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HomeMy WebLinkAbout0036 SUNSET LANE 'A 77 Rvl- R d, ,Ki W� fM fUl q /I ;,,, , li V, WRNXI 4,�1,1'14�t',�� ...... 1 4 I - le iN, N !w I j, V" IV 14 I'iii1b,i,f T IV k 14 J` -"". ','rW �-L illil.�,`�,..,,I �--",-A;'�- I,;;, t , '�t��., ,."; ,�`i"t Ci;i;,,,,� J�, �,V 1Y g" Y, JT� iItO �3,�Yj V 141 IZ, �Ml i7 f-" V,31 �4 II% IV ft oil W�j — I V4 ph�jqe,"Ot g�jlqj .141 6 V 1; i"P -,54 R R I, m yk, ;jr( ov. &N,ow If 41 S,Aft',� Vr 4, i F 13, m 4-4, ,p 1,MA w wa 'k, 'IK All 4 "VIE, 41' . , , t IAMYMIM-i Ati, i,'�,& MW VIA, NM W& MET 4 It Yl ON, ill lim, g cl",24,�f,�l M�'� �,"M?N 1,A .. ............. W.,4 11 MIA Mt F �Mlq 1)il q, �Vl VIM,P fA M"F",1 "'Ik et 2 _3- 9 PO , c)T pea- FI J i- - - ---� -- _- - - .. 1 � , 3 `5 P i 1 r c { 3(o S v C� -9 4- f3y qyo COA �1 1�tl1 1 THE FOLLOWING IS/ARE THE BEST IMAGES FROM POOR QUALITY ORIGINALS) I M ^C&L DATA Y,^r t , f � ram.. i i . W-iz 40 MY � Y Y TOWN OF BARNSTABLE I CERTIFICATE OF OCCUPANCY l PARCEL ID 301 036 GEOBASE III 21280 ADDRESS 36 SUNSET LANE PHONE BARNSTABLE ZIP - i LOT 141 & 1 BLOCK LOT SIZE DSA DEVELOPMENT DISTRICT BA PERMIT 32025 DESCRIPTION CERTIFICATE OF OCCUPANCY PERMIT TYPE BC00 TITLE CERTIFICATE OF OCCUPANCY i CONTRACTORS: Department of Health, Safety ARCHITECTS: and Environmental Services . TOTAL FEES: BOND $.00 Ox THE CONSTRUCTION COSTS $.00 756 CERTIFICATE OF OCCUPANCY 1 PRIVATE P ,t; i * BARNSTABLE, +*' MA83. � I i639. ♦0 ED MA'S� V i BUIL N D I BY Y V DATE ISSUED 07/10/1998 EXPIRATION DATE I 4 �C?111 COMMONWEALTH OF MASSACHUSETTS Land Court Department of the Trial Court \4iscellancous Case No. 246863 JOSEPH F. DUGAS & another,' Plaintiffs Vs. BARNSTABLE ZONING BOARD OF APPEALS' &others,` Defendants DE,CI8ION ON CROSS-MOTIONS FOR SUMMARY JUDGMENT By decision entered on January 22, 1999,I allowed plaintiffs'motion for summary judgment, concluding that the Barnstable building commissioner(commissioner)and zoning board of appeals (board) erred in their conclusions that defendants Richard and Joan Rudders (Rudderses) were entitled to a building permit as a matter of right for construction of a single family residence on land at 36 Sunset Lane in Barnstable (locus). In that decision, I remanded the matter to the board for consideration whether the residence constructed by the Rudders on locus is a"reconstruction"of the Rudders' former residence on locus (which they demolished),as the term"reconstruction" is used 'Edith W. Dugas 'The complaint names Gene Burman, Gail Nightingale, Elizabeth Nilsson, David Rice, Emmett Glynn,Richard Boy and Ron Jansson, as they are members of the Barnstable zoning board of appeals: 3Richard Rudders and Joan Rudders . 1 . . s ` k in the"second except clause"of the first sentence of G. L. c.40A, § 6,¶ 1.' Following that remand, the board concluded that the new residence is such a"reconstruction," and authorized it to remain. Defendants appealed that determination here, and the parties filed cross-motions for summary judgment. I heard argument on the cross-motions on April 10,2000,and affirm the board's decision. I incorporate and adopt the findings contained in my decision dated January 22, 1999,some of which are restated here for convenient reference, supplemented by certain additional findings which(on the basis of the additional record materials submitted on the instant cross-motions)are not in dispute.' 'The first paragraph of§ 6 is "Except as hereinafter provided, a zoning ordinance or by-law shall not apply to strictures or uses lawfully in existence or lawfully begun,or to a building or special permit issued before the first publication of notice of the public hearing on such ordinance or by-law required by section five, but shall apply to any change or substantial extension of such use, to a building or special permit issued after the first notice of said public hearing, to any reconstruction,extension or structural change of such structure and to any alteration of a structure begun after the first notice of said public hearing to provide for its use for a substantially different purpose or for the same purpose in a substantially different manner or to a substantially greater extent except where alteration, reconstruction, extension or structural change to a single or two-family residential structure does not increase the nonconforming nature of said structure." The"second except" clause is the last clause of the sentence,providing special protections for single or two-family residential structures. 'The parties submitted the following materials with their cross-motions: (i) transcript of the deposition of Richard Rudders, with exhibits; (ii) affidavit of plaintiff Joseph Dugas; (iii) attested copy of the records of the Barnstable assessor regarding locus; (iv) affidavit of Frank Whiting; (v)portions of the transcript of a deposition of Gail Wilcox, with exhibit; (vi) affidavit of commissioner Ralph M. Crossen; (vii) affidavit of Debbra Lavoie, an employee of the Barnstable planning department; (viii) affidavit of Linda E. Hutchenrider, the Barnstable town clerk;_(ix) attested copy of the board's decision following remand; (x) affidavit of Richard Rudders,with exhibits; and (xi) attested copy of the zoning ordinances [sic] of the town of Barnstable(by-law). 2 COMMONWEALTH OF MASSACHUSETTS Land Court Department of the Trial Court Miscellaneous Case No. 246863 JOSEPH F. DUGAS & another,' Plaintiffs VS. B aRNSTABLE ZONING BOARD OF APPEALS' & others,' Defendants JUDGMENT Plaintiffs appeal a decision of the Barnstable zoning board of appeals (board), authorizing the reconstruction of a larger single family dwelling in replacement of a prior dwelling voluntarily demolished on land owned by defendants Richard Rudders and Joan Rudders and located at 36 Sunset Lane, in Barnstable. A decision of today's date is entered, allowing defendants' motions for summary judgment and denying plaintiffs' cross-motion. In accordance with that decision, it is hereby ORDERED AND ADJUDGED that the decision of the board following remand from this court, filed with the Barnstable town clerk on July 12, 1999, was within the board's authority and is affirmed. So ordered. By the court. (Green, J.)' Attest: Charles W. Trombly, Jr. Recorder A TRUE COPY ATTEST Dated: March 1, 2001 RECORDER W4Y 'Edith W. Dugas 2The complaint names Gene Burman, Gail Nightingale, Elizabeth Nilsson, David Rice, Emmett Glynn, Richard Boy and Ron Jansson, as they are members of the Barnstable zoning board of appeals. 'Richard Rudders and Joan Rudders 1. Plaintiffs own and reside at property located at 30 Sunset Road, in Barnstable. Plaintiffs' property abuts locus to the south. 2. The Rudders own locus. Prior to the events which have given rise to this action,locus was improved by a one-story single family residential dwelling(former dwelling). Locus is located in an RB zoning district, which requires a minimum lot size of 43,560 square feet. Locus contains only 10,000 square feet and, consequently, is nonconforming in that respect. However, locus complied with the applicable lot size requirements when the former dwelling was constructed. As situated on locus, the former dwelling complied with the applicable setback and other dimensional requirements (other than minim=am lot area) in effect under the current by-law. 3. ' On or about September 19, 1997, the Rudders applied to the commissioner for a permit to demolish the former dwelling and to construct a new, two-story, dwelling on locus (new dwelling). 4. The commissioner issued the requested building permit on or about November 14, 1997, and construction commenced shortly thereafter. Pursuant to the permit, the Rudders demolished the former dwelling and constructed the new dwelling as described in the permit. As proposed (and as constructed), the new dwelling complies Nvith applicable setback and other dimensional requirements (other than minimum lot area). 5. By letter dated December 30, 1997,plaintiffs''counsel made a written request to the commissioner for enforcement under G.L.c.40A,§7. Following the commissioner's denial of their enforcement request, plaintiffs appealed the denial to the board. Plaintiffs moved to strike portions of Mr. Rudders's affidavit. The motion is allowed as to the paragraphs cited in the motion, and I have not relied on those paragraphs for purposes of my disposition of the cross-motions. 3 i is 6. Following a hearing held on March 4, 1998, the board voted to uphold the commissioner's decision. The board filed a written decision, dated March 17, 1998, with the Barnstable town clerk on March 18, 1998. 7. Plaintiffs appealed the board's decision to this court where, as noted above, it was atuiulled, and the matter was remanded to the board for further proceedings. 8. Following the order of remand, the board held a public hearing on the question whether the new dwelling was a"reconstruction"within the meaning of G. L. c. 40A, §6,¶ 1, and (if so)whether the new dwelling intensified the nonconforming nature of the prior dwelling and(if so)whether the new dwelling could be authorized without substantial detriment to the neighborhood. After a public hearing, the board concluded that the new dwelling is a"reconstruction" within.the meaning of§ 6, that it does not intensify the nonconforming nature of the prior dwelling and that, even if it were considered to intensify the nonconforming nature of the prior dwelling, it poses no substantial detriment to the neighborhood. The board recorded its conclusions in a written decision, which it filed with the Barnstable town clerk on July 12, 1999. 9. Prior to its demolition,the single-family residential structure on locus was one story in height, with a gross "footprint" of approximately 1,284 square feet. That "footprint" total aggregated a main living area of 3006 feet, an enclosed sun porch of 200 feet, and a utility room of 8x7 feet. 10. The present single family residential structure on locus is two stories tall,with a gross "footprint"of approximately 1,2:88 square feet, excluding the area within an attached garage. The garage contains an additional 308 square feet. There are 1,008 square feet of living area on the second floor. Total living area on the two floors combined (again excluding the garage) is 2,296 4 „ square feet. The"footprint”total of the new structure aggregates a main living area of 2806 feet, an enclosed sun porch of 428 feet, and a utility room of 12xl4 feet. The garage is 22x14 feet. 11. The new structure is not entirely within the footprint of the former dwelling,though there is substantial overlap between the footprint of the two structures. The total width of the new dwelling along Sunset Road (including the garage) is approximately fifty-four feet; the former . dwelling had a total Nvidth of thirty-six feet along Sunset Road. The new dwelling is set back slightly farther from the road than the former dwelling, but it is not as deep as the former dwelling and actually results in a slightly larger rear yard set back as well. 12. As noted above,both the new dwelling and the former dwelling comply with all side, rear and front yard set back requirements applicable under the by-law. 13. There are thirty-four lots on Sunset Lane. All are undersized under current zoning. of those lots,twenty-one are improved by two-story single family dwellings(including the Dugas's lot). Within the last ten to fifteen years,nine new two story single family residences have been built on Sunset Lane,and ten previously existing two story single family residences havb been renovated. Two previously existing one story single family residences have added a second story. 14. Including with Sunset Lane the adjacent streets of First Way, Second Way and Meridian, there are a total of eighty lots in the area surrounding locus, all of them undersized. Seventy-five of the eighty lots are improved by single family dwellings;of those thirty-six are two story dwellings and thirty-nine are one story dwellings. 15. The by-lair contains no definition of the term"reconstruction." As noted,the board on remand concluded that the new dwelling is a"reconstruction"of the 5 7 prior dwelling, entitled to the protection of the "second except" clause of G. L. c. 40A, § 6, 11 1. Plaintiffs contend that the board's conclusion to that effect was in error. Citing Berliner v.Feldman, 363 Mass.767,775(1973),and Lomelis v. Board of Appeals of Marblehead, 17 Mass.App.Ct.962, 965 (1983), plaintiffs argue that a"reconstruction" must be of dimensions substantially similar to the original structure.6 Both Berliner and Lomelis arose under local by-law provisions providing for reconstruction following casualty or other accidental destruction of a nonconforming structure. Berliner involved a structure used for commercial purposes,while Lomelis involved a dwelling;I conclude that,while the "second except" clause affords broader protection to nonconforming dwellings than to commercial structures, it does not matter for purposes of construing the term "reconstruction" that Berliner involved a commercial structure rather than a dwelling. In particular,Berliner discusses at some length the nature of penmissible deviations in the reconstructed building from the manner and style of the former building,eventually stating; "The floor area,ground coverage,number of stories,and height and other dimensions of the Inn's north wing . . . delimit the maximum permissible size and shape of the rebuilt structure." 363 Mass.at 775. Under the analysis applied in Berliner and followed in Lomelis,the new dwelling in the instant case is not, strictly speaking, a "reconstruction," as it increases the footprint of the structure and adds a second story.' See also Dvkcns v Quincy Zoning Board of Appeals, 6 LCR 6Contrary to the board's contention, its conclusion that the new dwelling is a reconstruction within the meaning of the second except clause presents a question of fact and law and is entitled to no particular deference. See Lomelis, 17 Mass. App. Ct. at 964. 'Though the Rudders point out that the footprint of the living area, exclusive of the garage, is substantially the same size as the footprint of the former dwelling,they offer no persuasive reason why the attached garage should be excluded from consideration when 6 342, 345 (1998). The proposed new dwelling is a"reconstruction" in the sense the term was used in Planning Bd. of Reading v. Board of Appeals of Reading, 333 Mass. 657, 661 (1956), in that it is not merely an alteration or extension of the prior nonconforming structure. However,it is not such a "reconstruction" as could proceed as a matter of right under a by-law authorizing reconstruction after casualty, as considered in Berliner and Lomelis. On the other hand, the Court did not appear particularly concerned with a comparison between the dimensions of the former structure and the proposed replacement structure for purposes of determining whether the second except clause would authorize a reconstruction in Dial Away Co. Inc. v. Zoning Board of Appeals of Auburn, 41 Mass. App. Ct. 165, 170-171 (1994). histead, the Court framed the question as whether the proposed new structure would "increase the nonconforming nature of said structure. Similarly, reconstruction of a nonconforming structure outside its original footprint was approved in Murphy v. Halkiotis, Plymouth superior court civil action no. 88-2192A(slip op. December 20, 1989, at 6), affirmed 30 Mass. App. Ct. 1117 (1991). In Migplay,the court observed that the property owner could have constructed an exact duplicate of the former structure, and then extended the rebuilt duplicate; accordingly,the court concluded,"he has the right to construct a conforming dwelling in one giant step rather than in two expensive baby steps."' I conclude that,while the new dwelling is not simply a reconstruction of the prior dwelling, it may be permitted-as a reconstruction and extension of the prior dwelling under 11, subject to a comparing the dimensions of the new dwelling with the former dwelling. 'Murphy was decided on the basis of the provisions of the local by-law, rather than on § 6. However, as implied by Dial Away, the same considerations appear under § 6. 7 so-called "section 6 finding." That result is consistent with the analysis in MumhY and with the holding in Dial A%vay, and is not inconsistent with Berliner. Moreover, it harmonizes to some extent the treatment of residential properties under°igl 1 and 4 of§6. The position urged by plainti ffs would produce the anomalous result that (i) a dwelling on an undersized lot could be expanded (subject to a finding under§ 6),and (ii)a dwelling identical to such an expanded stricture could be constructed on a previously vacant residential lot,but (iii)a dwelling on an undersized lot could not be razed and replaced with a new dwelling identical to such an expanded structure.10 \'here, as here,the proposed new dwelling is not identical to the prior dwelling, it may not proceed as a matter of right. Instead.as m% prior remand order directed,it is incumbent on the board to consider whether the expanded dwelling will intensify the nonconforming nature of the prior nonconforming structure and, if so, whether it will produce a substantial detriment to the neighborhood. See Goldhirsh v.McNear. 32 Mass. App. Ct. 455,460-461 (1992). Here, the board concluded on remand that the proposed new dwelling will not intensify the nonconforming nature of the prior dwelling.' The board went on to find that, even if the proposed new dwelling were 9I note that, under the by-law provision at issue in Berliner, the similarity of the proposed reconstruction to the prior structure determined whether the reconstruction could proceed as a matter of right; the by-law included provision for enlargement incident to reconstruction, subject to authorization by the board of appeals. Berliner, 363 Mass. at 769. 10The harmony between the two paragraphs is nonetheless not perfect. Under¶4 the expanded dwelling in my hypothetical could proceed as a matter of right, while under 1 it would require a section 6 finding(or at least a determination whether the expansion would 'intensify the nonconformity). "Since the former dwelling was a conforming use, and since the dwelling itself conformed to all dimensional requirements, the question is whether its expansion would intensify the nonconforming nature of the undersized lot. Cf. Holmes v. Doelger, 3 LCR 158, 159 (miscellaneous case no. 212113,August 18, 1995). 8 considered to intensify the nonconforming nature of the prior dwelling,it would not be substantially 1 P more detrimental to the neighborhood. Does the replacement of a dwelling on an undersized lot with a much larger dwelling intensify the nonconformity presented by the undersized lot? Or is the board correct that there is no change in the nonconformity because the lot remains the same size and no new nonconformities are introduced? I need not resolve those questions here, because on the summary judgment record I conclude that the board is correct in its further determination that the new dwelling is not substantially more detrimental to the neighborhood than the former dwelling. On the summary ears that the new dwelling i in keeping�udgrnent record, �t appears g s P g with the general tenor of the surrounding neighborhood,and might even represent an improvement. Plaintiff's concern regarding the impact of the new dwelling on their view might be sufficient to support their standing,but it does not bear on the question whether the new dwelling is detrimental to the neighborhood. Moreover, on such questions, unlike on the question of construing"reconstruction," it is appropriate to defer to the local board's exercise of its discretion: Defendants' motions for summary judgment are allowed, and plaintiffs' cross-motion is denied. The decision of the board was within its authority and is affirmed. Judgment accordingly. Mark . Green J -tice Dated: March 1, 2001 9 r cJ Engineering Dept. (3rd floor) Map 30 Parcel /)3(.� ?J1"Permit# L47, House# Q Date Issued Board of Health(3rd floor)(8:15 -9:30/1:00-4:30y✓!2G9i1rM 4e",4 i Fee Conservation Office(4th floor)(8:30-9:30/1:00=2:00) Al - q' _. �hoolAdmm-.Bidg:)— �tHE,p ag-BoaLd 19 BARN STABLE. MASS p %6)q.a� y TOWN OF BARNSTABLE! ePPr,cm En s9WASEWER CONNECTION PRUIT nOM THE Building Permit Application ENOINEBEQtG OIYo0I1 PBI08 TO �oN Project Street Address ��(�.t�9/1 Village. nAd. +- d Owner /a ,f'L GL�/J/il'L S Address Telephone /7 3 7 - Z. s Permit Request / Z ?. / A G PM 4/� G�2 _ �GG�s ✓3!+-O C .r.Ti � G /c� z�-ion/s/� ' First Floor square_ee Second Floor L/ o square feet Construction Type k�ov/9 /�/Yig. Estimated Project Cost $ 'Id Zoning District / , Flood Plain �� Water Protection p Lot Size l o o X l O O Grandfathered ❑Yes ❑No Dwelling Type: Single Family f' Two Family Ll Multi-Family(#units) Age of Existing Structure Historic House ❑Yes S No On Old King's Highway ❑Yes ®No Basement Type: (Full Ll Crawl ❑Walkout ❑Other Basement Finished Area(sq.ft.) Basement Unfinished Area(sq.ft) Number of Baths: Full: Existing New_, Half: Existing New No.of Bedrooms: Existing <---7 New 3' Total Room Count(not including baths): Existing New First Floor Room Count L� I r Heat Type and Fuel: 5fGas ❑Oil ❑Electric ❑Other I Central Air ❑Yes UrNo Fireplaces: Existing New er Existing wood/coal stove &Yes p No Garage: ❑Detached(size) Other Detached Structures: ❑Pool(size) aAttached(size) ,2 J- ❑Barn(size) ❑None - _ ❑Shed(size) ❑Other(size) Zoning Board of App eals Authorization Ll Appeal# Recorded p Commercial ❑Yes ❑No - If yes, site plan review# Current Use Proposed Use Builder Information Name s s �/.}/�c V•v i�r Telephone Number SOS- Address > 1/ 5 License# o o� �Z Y S G. '01-t s J'4 A l V/® Home Improvement Contractor# 5/ Worker's Compensation# W6/­ 0 f/6 k D NEW CONSTRUCTION OR ADDITIONS REQUIRE A SITE PLAN(AS BUILT)SHOWING EXISTING,AS WELL AS PROPOSED STRUCTURES ON THE LOT. r ALL CONSTRUCTION DEBRIS RESULTING FROM THIS PROJECT WILL BE TAKEN TO lot Iz/"IU s-F SIGNATURE DATE BUILDING PERMIT DENIE ; OR THE FOLLO G REASON(S) QQ \ TY �� � - I FOR OFFICIAL USE ONLY - ry J •r 1 4 �F:... PERMIT NO. DATE ISSUED MAP/PARCEL NO:: ADDRESS VILLAGE t i OWNER DATE OF INSPECTION. FOUNDATION FRAME INSULATION •` t �' FIREPLACE ELECTRICAL: ROUGH FINAL _ + PLUMBING: ROUGH FINAL ' GAS: + ROUGH FINAL' ` ry F FINAL`BUILDING n .r DATE CLOSED OUT 'al + ASSOCIATION PLAN NO. ' ; -�u� - - %� ���'- I Town of Barnstable Planning Department Staff Report Appeal Number 1998-37-Dugas-Remand Appeal Decision of Building Commissioner and Request for Enforcement Action Date: April 23, 1999 To: Zoning EWard of Appeals From: Approved By: Rob rt . ernig,AICP, Planning Director Reviewed By: Art Traczyk Principal Planner Drafted By: Alan Twarog,Associate Planner Applicants: Joseph and Edith Dugas Property Address: 36 Sunset Lane,Barnstable Assessors Map/Parcel: Map 301, Parcel 036 Area: 0.23 acre Building Area: 2,422 sq.ft. Zoning:: RB Residential B Zoning District Groundwater Overlay: AP Aquifer Protection District Background: The property that is the subject of this appeal is a 0.23 acre lot located at 36 Sunset Lane in Barnstable Village. It is located within an RB Residential Zoning District. The owners of this property, Richard and Joan Rudders, have been issued a building permit(Permit No. 27103)to demolish the previously existing single-family residence on this site and build a new one with a garage. The old dwelling has since been, demolished and a new single-family residence has been constructed. The applicants are the owners of and reside at 30 Sunset Lane(Map 301 Parcel 037), which abuts the subject property to the south. As the Board will recall, the petitioners appealed the decision of the Building Commissioner(in Appeal No. 1998-37)to issue the above referenced building permit. The applicants contend that because the property is nonconforming with regard to lot size, approval from the Zoning Board of Appeals should have been obtained prior to any new construction. Further, they contend that the new structure is not a re-establishment of a nonconforming building or an alteration or extension of an existing building but rather a totally new building. The applicants also sought enforcement action by the Zoning Board of Appeals to rescind the building permit, issue a Cease and Desist Order on the construction of the new residence and to compel the construction to date to be removed. The Board upheld the decision of the Building Commissioner finding that the lot was a legal nonconforming lot under the Town's Zoning Ordinance, and that the existing structure currently conforms to the bulk regulations of the Zoning Ordinance and, therefore, no zoning relief was necessary prior to the issuance of a building permit. The petitioners subsequently appealed this decision of the Board to the Massachusetts Land Court(Land Court Misc. No. 246863). The Court annulled the Board's decision after concluding it was based on a legally incorrect premise and rendered a decision for Summary Judgment and Order of Remand in favor of the petitioners. The court concluded that"an otherwise conforming structure on a nonconforming lot is treated as a nonconforming structure." In accordance with the terms of the Court's decision, the Board is required to determine whether the new dwelling is a"reconstruction"as that term is used in the"second except'clause of the first sentence of MGL Ch. 40A, Section 6. The Court has ruled that the reconstruction may be allowed if the Board finds that(1)the proposed new dwelling does not intensify the alleged nonconformity, or(2) (if it does intensify the nonconformity), the proposed new dwelling would not be substantially more detrimental to the neighborhood than the former dwelling (see attached copy of the Court's decision for complete details). Attachments: Land Court Decision Copies: Applicants/Petitioners Decision and Notice for Appeal No. 1998-37 a F t LEGAL DEPARTMENT, TOWN OF BARNSTABLE ROUTING SLIP DATE: January 25, 1999 TO: ZONING BOARD OF APPEALS FROM: ROBERT D. SMITH, Town Attomey RUTH J. WEIL,Asst.Town Attorney L V/1 RE: DUGAS v. Barn.Zoning Bd. of Appeals OUR FILE REF.NO.: 98-0042 --------------------------------------------------------------------------------------------------------------------------- ATTACHED: DECISION ALLOWING PLAINTIFFS'MOTION FOR SUMMARY JUDGMENT AND ORDER OF REMAND, DATED 1/22198,JUSTICE MARK V.GREEN, LAND COURT. RJW:cg Atchmt. O w U 1 A 2 510 TOWN OF BARNSTABLE OF APPEALS P8-0042\mutingl] G COMMONWEALTH OF MASSACHUSETTS Land Court Department of the Trial Court Miscellaneous Case No. 246863 JOSEPH F. DUGAS & another,' Plaintiffs VS. GENE BURMAN2&others,3 Defendants DECISION ALLOWING PLAINTIFFS' MOTION FOR SUMMARY JUDGMENT AND ORDER OF REMAND Plaintiffs appeal, under G. L. c. 40A, § 17, the decision of defendant members of the Barnstable zoning board of appeals(board)to uphold the Barnstable building commissioner's refusal of plaintiffs'request that the building inspector revoke a building permit issued for the construction of a single family residence on certain land located at 36 Sunset Lane, in Barnstable(locus). Plaintiffs filed their unverified complaint on March 26, 1998. Following the answer of defendants Richard Rudders and Joan Rudders(Rudders),4 filed on April 21, 1998,plaintiffs moved for summary judgment. The Rudders and the board both filed oppositions to the motion. A hearing was held on the motion on October 27, 1998,at which all parties appeared. 'Edith W. Dugas 'As he is a member of the Barnstable zoning board of appeals 3Gail Nightingale,Elizabeth Nilsson,David Rice,Emmett Glynn,Richard Boy and Ron Jansson, as they are members of the Barnstable zoning board of appeals; and Richard Rudders and Joan Rudders 4The board is not required to file and answer. G. L. c. 40A, § 17. 1 . The record for purposes of summary judgment includes the following materials:(i)affidavit of plaintiff Joseph Dugas, dated June 4, 1998, with exhibits; (ii) attested copy of letter of Ralph Crossen,Barnstable building commissioner(commissioner),to plaintiffs'counsel,dated January 6, 1998; (iii) copy of the board's decision dated March 17, 1998, and filed with the town clerk on March 18, 1998, in appeal number 1998-37; (iv) attested copy of the payment records of the Barnstable tax collector regarding real property tax payments made for the account of locus during tax year 1997;(v)attested copies of the building permit application,dated September 19, 1997,by the Rudders, and building permit, dated November 14, 1997, issued by the commissioner to the Rudders,for demolition of an existing residence and construction of a new residence on locus; (vi) attested copy of the record maintained by the Barnstable assessor's office of the real property taxes assessed against locus; (vii) attested copy of a portion of the Barnstable zoning map, showing the portion of the town in which locus is situate;(viii)attested copy of the Barnstable zoning ordinance as amended through April 16, 1998(by-law)and of various amendments thereto;(ix)attested copy of plot plan of locus,dated September 19,4997,and drawn by Sweetser Engineering; (x)affidavit of Arthur Traczyk, Barnstable principal planner, dated October 16, 1998; and (xi) affidavit of plaintiff Joseph Dugas,dated October 26, 1998,with exhibits. The following facts are not in dispute. 1. Plaintiffs own and reside at property located at 30 Sunset Road, in Barnstable. Plaintiffs' property abuts locus to the south. 2. The Rudders own locus. Prior to the events which have given rise to this action,locus was improved by a one-story single family residential dwelling(former dwelling). Locus is located in an RB zoning district,which requires a minimum lot size of 43,560 square feet. Locus contains 2 +yt only 10,000 square feet and, consequently, is nonconforming in that respect. However, locus complied with the applicable lot size requirements when the former dwelling was constructed. As situated on locus,the former dwelling complied with the applicable setback and other dimensional requirements(other than minimum lot area)in effect under the current by-law. 3. On or about September 19, 1997, the Rudders applied to the commissioner for a permit to demolish the former dwelling and to construct a new,two-story,dwelling on locus(new dwelling). As proposed, the new dwelling would comply with applicable setback and other dimensional requirements(other than minimum lot area). Plaintiffs assert that the new dwelling will occupy a different footprint from that of the former dwelling,but I am unable to.determine the extent of the difference from the materials in the record. 4. The commissioner issued the requested building permit on or about November 14, 1997, and construction commenced shortly thereafter. 5. By letter dated December 30, 1997,plaintiffs' counsel made a written request to the commissioner for enforcement under G. L. c. 40A, § 7.' Following the commissioner's denial of their enforcement request,plaintiffs appealed the denial to the.board. 6. Following a hearing held on March 4, 1998, the board voted to uphold the commissioner's decision. The board filed a written decision, dated March 17, 1998, with the Barnstable town clerk on March 18, 1998. As reasons for its decision, the board referred to its findings of fact, which included the following: 'The Rudders assert in their opposition that plaintiffs previously had requested the building inspector to issue a stop work order, and the building inspector had complied with such request. However,the record does not establish their assertion, and the matter is not germane to this order. 3 J t `yt "6. Under the [by-law], section 4-4.2 (1) Nonconforming Lots - Separate Lot Exemption-this lot qualifies as a legal nonconforming lot. 7. The building is a legal building. It is conforming and meets all the setbacks of the [by-law]. It is not a nonconforming building. 8. The [commissioner] in his letter of January 06, 1998 (which the applicants are appealing) states `your contention about the Building Code is factually wrong as stated,therefore I see no reason to go any further with it. Finally, an as built, as submitted,is what the Town customarily accepts. We see no problem with this one.' 9. The demolition of an other wise [sic] conforming building on a nonconforming lot does not cause the lot to loose [sic] its nonconforming status." 7. Section 4-4.2 (1)of the by-law provides: "Any increase in area, frontage,width,yard or depth requirement of the [by-law] shall not apply to a lot for single or two-family residential use which at the time of recording or endorsement: A was not held in common ownership with any adjoining land; and B) had a minimum of 5,000 sq. ft. of area and 50 feet,of frontage or the minimum requirement for the zoning district in which it is located; and C) conformed to the existing zoning if any when legally created; and D) was separately owned at the time of every zoning change which made it nonconforming." 8. Section 44.3 of the by-law provides: "A pre-existing nonconforming building or structure that is used as a single or two family residence may be physically altered or expanded only as follows: 1)As of Right: If the [commissioner] finds that: A. The proposed physical alteration or expansion does not in any way encroach into the setbacks in effect at the time of construction,provided that 4 i encroachments into a 10-foot rear or side yard setback and 20-foot front yard setback shall be deemed to create an intensification requiring a special permit under Section 4-4.3(2); and B. The proposed alteration or expansion conforms to the current height limitations of the [by-law]. 2)By Special Permit: If the proposed alteration or expansion cannot satisfy the criteria established in Section 4-4.3(1) above, the [board] may allow the expansion by special permit provided that the proposed alteration or expansion will not be substantially more detrimental to the neighborhood than the existing building or structure." 9. Section 4-4.6 of the by-law provides: "1) The re-establishment of a lawful pre-existing nonconforming use and/or building or structure which has been destroyed or damaged by fire, acts of nature or other catastrophe, shall be permitted as of right, provided the building commissioner has determined that all the following conditions are met: A)The reconstruction or repair will not increase the gross floor area or height of the building or structure beyond that which previously existed, nor increase the footprint of the structure; B) If the building's location on the lot is to be changed, it will change in a manner that will result in a greater compliance with the bulk regulations established in the zoning district in which it is located; and Q The reconstruction or repair will not constitute an expansion or intensification of any nonconforming use. D) In the case of any use in which it would otherwise be required, the site plan review process has been followed. 2) The pre-existing nonconforming use and/or structure or building shall be discontinued unless a building permit has been applied for within 2 years from the date of damage or destruction, and construction is continuously pursued to completion." 10. Section 4-4.8 of the by-law provides: "Any lawful pre-existing nonconforming use or building or structure or use of land 5 r: which has been(i)abandoned or(ii)not used for 3 years,shall not thereafter be re- established. This section shall not apply in cases of damage or destruction governed by section 4-4.6." Summary judgment is appropriate in the instant case because there are no genuine issues of any material facts which would preclude disposition as a matter of law. Community Nat'l Bank v. Dawes 369 Mass. 550 553-556(1976); Mass. R. Civ. P. 56(c). Before addressing the merits of the parties'arguments,I must address defendants'challenge to plaintiffs' standing. Defendants contend that plaintiffs have failed to present evidence to substantiate that they are "persons aggrieved." Plaintiffs are abutters to locus, and as such are entitled to the presumption that they are "persons aggrieved" within the meaning of G. L. c. 40A, § 17. Watros v Greater Lynn Mental Health and Retardation Association,Inc.,421 Mass. 106, 111 (1995). "The presumption recedes when a defendant challenges a plaintiffs status as an aggrieved person and offers evidence supporting his or her challenge." Id. Once the presumption is so challenged,the burden shifts to the plaintiffs to demonstrate that they are aggrieved,without benefit of the presumption. Defendants have produced no evidence to show that plaintiffs would suffer no injury to a cognizable legal interest as a result of the proposed construction. Accordingly,plaintiffs are entitled to rely on their statutory presumption,and bear no burden to produce evidence to support their standing. Defendants also challenge this court's jurisdiction to hear plaintiffs' appeal,on the ground that plaintiffs' action began with a request for enforcement under G. L. c. 40A, § 7.6 However, 6Section 7 confers jurisdiction on the superior court to "enforce the provisions of this chapter" [G. L. c. 40A]. 6 Y plaintiffs'appeal is hereunder G.L.c.40A,§ 17,pursuant to which this court's jurisdiction is clear. Defendants claim that the commissioner properly issued the building permit,because the new dwelling meets all applicable setback requirements and, accordingly, is not nonconforming. According to defendants,it is the lot,rather than the structure,that is nonconforming,and the lot is "grandfathered"-pursuant to the provisions of G.L.c.40A, § 6,14,and section 4-4.2(1)of the by- law. Defendants' claim is inconsistent with the holding in Dial Away Co..Inc.v.Zoning Board of Anneals of Auburn,41 Mass.App.Ct. 165,.further appellate review denied 423 Mass. 1111 (1996). See also Willard v. Board of Appeals of Orleans,25 Mass. App. Ct. 15 (1987). Dial Away makes clear that improved lots are governed by the provisions of G. L. c.40A, § 6,11. Accordingly, an otherwise conforming structure on a nonconforming lot is treated as a nonconforming structure. See also Holmes v. Doelger, 3 LCR 158, 159, miscellaneous case no. 212113 (August 18, 1995) (Scheier,J.). The board's decision is based on a legally incorrect premise,and is therefore annulled. This matter is remanded to the board for further proceedings consistent with this decision. In anticipation of the board's consideration of this matter on remand, I offer the following guidance on certain issues argued by the parties in this appeal. First,the new dwelling may be allowed if the new dwelling is a"reconstruction"as that term is used in the "second except" clause of the first sentence of G. L. c. 40A, § 6, ¶ L' Dial Awav 'The first paragraph of§ 6 is "Except as hereinafter provided, a zoning ordinance or by-law shall not apply to structures or uses lawfully in existence or lawfully begun,or to a building or special permit issued before the first publication of notice of the public hearing on such ordinance or by-law required by section five, but shall apply to any change or substantial extension of such use,to a building or special permit issued after the first notice of said public hearing,to any reconstruction, extension or structural 7 expressly recognizes that the"second except"clause allows reconstruction of nonconforming single- or two-family residential structures,despite more limited provisions for reconstruction under a local by-law. Dial A v,41 Mass.App. Ct.at 170- 171. For purposes of determining whether the new dwelling is a permissible reconstruction within the meaning of the "second except" clause, Dial Away further suggests that it does not matter that the Rudders voluntarily demolished the former dwelling. Angus v. Miller, 5 Mass. App. Ct. 470 (1977), and Martin v. Board of Appeals of Yarmouth,20 Mass.App.Ct. 972,further a,_,pnellate review denied 396 Mass. 1102(1985),cited by plaintiffs, both involved nonconforming commercial structures, to which the provisions of the "second except" clause do not apply. See Dykens v. Board of Appeals of Quincy, land court miscellaneous no. 238329(December 15, 1998)(Kilborn, C.J.).' Second, unlike the circumstances of Dial Away, the Rudders did not abandon the former dwelling simply by demolishing it. Abandonment is a question of intent. The Rudders demolished the former dwelling for the purpose and with the intent of constructing the new dwelling in replacement thereof. Such circumstances do not evidence an intent to abandon. Compare Dial change of such structure and to any alteration of a structure begun after the first notice of said public hearing to provide for its use for a substantially different purpose or for the same purpose in a substantially different manner or to a substantially greater extent except where alteration, reconstruction extension or structural change to a single or two-family residential structure does not increase the nonconforming nature of said structure." The "second except" clause is the last clause of the sentence,providing special protections for single or two-family residential structures. 'Plaintiffs suggest that a contrary result was reached in Siepel v Board of Appeals of Eastham, 2 LCR 151, miscellaneous case no. 177558 (October 17, 1994) (Scheier,J.). That case was decided before Dial Away and, in any event, resulted in a remand to the board for a Goldhirsh determination in a manner similar to the remand under this order. 8 J Y Away,41 Mass. App. Ct. at 171 - 172(rebuilding did not occur until twenty-three years following demolition). See generally Derby Ref. Co. v. Chelsea,407 Mass. 703 (1990). Third,the proposed new dwelling is not within the commissioner's approval authority under the provisions of section 4-4.3(1)of the by-law. That section speaks to"extensions and alterations" but not to reconstructions. The proposed new dwelling, if it may be authorized at all, is not an extension or alteration,but is instead a reconstruction. See Dial Away,41 Mass. App. Ct. at 168 - 169; Planning Bd. of Reading v Board of Appeals of Reading, 333 Mass. 657, 661 (1956). Accordingly, the proposed reconstruction may be allowed only if the board finds that (i) the proposed new dwelling does not intensify the nonconformity, or (ii) (if it does intensify the nonconformity) the proposed new dwelling would not be substantially more detrimental to the neighborhood than the former dwelling. See Goldhirsh v. McNear, 32 Mass. App. Ct. 455, 460- 461 (1992). See also Holmes v.Doelger,3 LCR 158, 159,miscellaneous case no.212113 (August 18, 1995)(Scheier,J.). Plaintiffs' motion for summary judgment is allowed, and the decision of the board is annulled. This matter is remanded to the board for further proceedings consistent with this decision. This court shall retain jurisdiction over this matter for any necessary review of the board's further action. So ordered. Ma7VGreen Dated: January 22, 1999 9 -i tv ' 1lABL l _ _•,'y i Town of Barnstable Zoning Board of Appeals ?28 Decision and Notice Appeal Number 1998-37-Dugas Appeal Decision of Building Commissioner and Request for Enforcement Action Summary Upheld the Building Commissioner Applicants: Joseph and Edith Dugas Property Address: 36 Sunset Lane, Barnstable,MA Assessor's Map/Parcel:. Map 301,Parcel 036 Area: 0.23 acre Building Area: 2,422 sq.ft. Zoning: RB Residential B Zoning District Groundwater Overlay: AP Aquifer Protection District Background: The property that is the subject of this appeal is a 0.23 acre lot located at 36 Sunset Lane in Barnstable Village. It is located within an RB Residential B Zoning District. The owners of this property, Richard and Joan Rudders, have been issued a building permit(Permit No. 27103)to.demolish the previously existing single-family residence on this site and build a new one.- The old dwelling has since been demolished and construction of the new residence has started. At this point, the foundation has been poured and a substantial portion of the structure has been completed. The applicants are the owners of and reside at 30 Sunset Lane(Map 301 Parcel 037), which abuts the subject property to the south. They are appealing the decision of the Building Commissioner as defined in a letter dated January 6, 1998, in which the Building Commissioner states° your contention about the Building Code is factually wrong as stated, therefore I see no reason to go any further with it. Finally, an as built, as submitted, is what the Town customarily accepts. We see no problem with this one." The applicants are also seeking enforcement action by the Zoning Board of Appeals to rescind the building permit, issue a Cease and Desist Order on the construction of the new residence and to compel the construction to date to be removed. History: The following is a brief history of events leading up to the present situation: September 17, 1997-Old King's Highway Historic District Committee issued a Certificate for Demolition or Removal to allow the demolition of the existing single-family residence on the subject property. At this same meeting, OKH issued a Certificate of Appropriateness for the construction of a new home and garage on the property. November 14, 1997-A building permit(Permit No. 27103)was issued by the Building Division for the demolition of the existing structure and construction of a new residence. December 23, 1997-After it was brought to their attention by Joseph Dugas, OKH unanimously agreed that there were two issues of noncompliance with the Certificate of Appropriateness previously issued and that a stop work order should be issued by the Building Division: Town of Barnstable-Zoning Board of Appeals-Decision and Notice Appeal Number 1998-37-Dugas Appeal Decision of Building Commissioner and Request for Enforcement Action 1. The building as proposed and approved was to be at the same finish grade as the house that was demolished on the site. It appears that the-finished elevation is 4' higher. 2. The foundation was built almost 4 feet closer to Sunset Lane than was shown on the approved site plan. December 30, ,1997-The applicants request Zoning and Building Code enforcement by the Building Commissioner. January 6, 1998-The Building Commissioner sends letter to applicants in response to their December 30, 1997 request January 21, 1998-The Building Commissioner determines that both the height and location of the . proposed structure are substantially in conformance with Zoning and the intent of the OKH act The stop work order is lifted. January 22, 1998-The applicants appeal the decision of the Building Commissioner as stated in the. January 6, 1998 letter and request enforcement action by the.Zoning Board of Appeals. February 9, 1998-At a meeting held on February 9, 1998, OKH approved the following motions: 1. To request the Building Commissioner to immediately issue a Cease and Desist Order to stop construction at'36 Sunset Lane Barnstable, MA because the"as built"-location of the.house is 4'to 4.5' closer to the road than was approved by Old King's Highway Historic District, 2. To request that the Building Commissioner look into a.).whether the as built house is located closer to the Southeast lot line than was approved by Old King's Highway Historic District and b.)whether the elevation of the house as built is higher than the approved plans. Procedural Summary: This appe al was filed at the Town Cler k's s Office and at the Office of the Zoning Board of Appeals on January 22, 1998. A public hearing before the Zoning Board of Appeals was duly advertised and notices sent to all abutters in accordance with MGL Chapter 40A. The hearing was opened March 04, 1998, at which time the Board granted the request with conditions. Hearing Summary: Board Members hearing this appeal were Gene Burman, Gail Nightingale, David Rice, Elizabeth Nilsson, and Acting Chairman Ron Jansson. Attorney. Lois M. Farmer represented the applicants, Joseph and. Edith Dugas, who were present. Also present were Richard and.Joan Rudders, owners of the property in issue. At the start of this hearing, Acting Chairman Ron Jansson addressed the Board. He explained that, pursuant to MGL Chapter 40A, the Zoning Board of Appeals does.not have the authority to hear any cases involving an appeal of the State Building Code. Therefore, this hearing is limited to zoning violations. Also, any issue involving the-Old King's Highway Historic District_is.not under the jurisdiction of this Board. Therefore, this application is limited to the appeal of the Building Commissioner and a request for enforcement only as it pertains to zoning under MGL Chapter 40A. Attorney Farmer submitted a memorandum to the Board which included four additional legal cases for reference. These were Angus v. Miller, David v. Board of Appeals of Reading,Dial Away, Co. Inc. v. Zoning Board of Appeals of Auburn,.and Willard v. Board of Appeals of Orleans. Ms. Farmer gave a brief overview of the project Originally, the applicant[Dugas]was in favor of the construction of this new house on the site, but the construction did not go as was presented to the Old Kings Highway Committee. Mr. Dugas hired an attomey.[Ms. Farmer]to help sort out the issues. Ms. 2 Town of Barnstable-Zoning Board of Appeals-Decision and Notice Appeal Number 1998-37-Dugas Appeal Decision of Building Commissioner and Request for Enforcement Action T' Farmer reported there was a'single story house on a nonconforming lot which was demolished. A building permit was granted to put in its place(though not on the same footprint)a.new two-story house with a garage. Ms. Farmer is of the opinion that the old house was nonconforming. She stated that because the-house. . was on a lot which at the time of the zoning change became nonconforming, the entire property is a nonconforming property. She stated that if a lot became nonconforming and there was a house on that lot then the house also became nonconforming. The Board did not agree with this interpretation. Acting Chairman Ron Jansson.stressed the nonconformity of the Q does not render the house nonconforming unless the house itself was. nonconforming -such as not complying with seioadks: Acting Chairman Ron Jansson reminded Attorney Farmer that the Zoning Ordinance distinguishes between nonconforming lots, nonconforming uses, and nonconforming structures. Attorney Farmer reviewed the cases of Willard v. Board of Appeals of Orleans and Siepel v. Tainter. In the Siepel Case,when they razed the house, the remaining vacant lot was no longer protected as a nonconforming lot However, the Board asked Ms. Farmer how the building is nonconforming-not the lot. She clarified that the original building was not nonconforming-but rather the lot is nonconforming with a house on it that lost its nonconforming protection when the house on it was razed.- When the house was razed, the lot lost its nonconforming status and therefore a new house cannot be built on the lot In Ms. Farmer's opinion, according to the Zoning Ordinance, on a nonconforming lot the only way you can rebuild a house that has been taken down, is if the house.was destroyed or severely damaged, not voluntarily taken down. Therefore, if you voluntarily take.down a house-you have abandoned it-and you- can not replace it on an undersized lot[without relief). She claims that this is the ruling in the Siepel Case. The Board did not feel the cases Attorney Farmer presented were similar to this case. In the Siepel Case the lot was undersized, however, the structure wasalso nonconforming with regard to setbacks. This is not true in the case before the Board tonight. The Board also felt this lot was protected under the Nonconforming Lots-Separate Lot Exemption Section of the Zoning Ordinance. In the Dial Away Case, the lot was 5,000 sq.ft. lot where 7,500 sqA was needed, so it didn't comply with minimum local statuary requirements. That distinguishes that case from this appeal. The lot in issue complies with the minimum statuary requirements. The Building Commissioner reviewed the history of this lot as it pertained to the demolition and rebuilding. He reported this house is located in the Old Kings Highway District. There was.an application to tear down the house and rebuild it. That was approved by the OKH Committee. Now, after the house has been town down, there is an appeal stating they can not tear it down. It was"a package deal involving razing and rebuilding." The new house conforms to all the existing setbacks. Mr. Crossen feels this lot has not lost its nonconforming status even though there has been.a demolition. As long as the new structure stays within the setbacks, it is allowed. In his opinion, this lot is buildable. The Building Division encourages people"to take out one permit for both actions" so there is no question as to rebuilding. Public Comment: No one spoke in favor of this appeal. Speaking in opposition was Attorney James Quirk. He represented Richard and Joan Rudders, the owners of the property in issue. Attorney Quirk submitted a memorandum to the Board. He reviewed the Siepel and Dial Away Cases and felt they were not the same in that the Rudder's house is not nonconforming. He also questioned if the applicant had standing before the Board. No one else spoke in favor or in opposition. 3 r r Town of Barnstable-Zoning Board of Appeals-Decision and Notice Appeal Number 1998-37-Dugas Appeal Decision of Building Commissioner and Request for Enforcement Action Findings of Fact: At the Hearing of March 4, 1998, the Board unanimously found the following findings of fact as related.to Appeal No. 1998-37: 1. The applicants are Joseph and Edith Dugas. 2. The property in issue is 36 Sunset Lane, Barnstable, MA as shown on-Assessor's Map 301,.Parcel 036, in an RB Residential B Zoning District and an AP Aquifer Groundwater Protection District. 3. The property that is the subject of this appeal is a 0.23 acre lot 4. The owners of this property, Richard and Joan Rudders, have been issued a building permit(Permit No. 27103)to demolish the previously existing single-family residence on this site and build a new one- with a garage. 5. The old dwelling has since been demolished and construction of the new residence has started. 6. Under the Town of Barnstable Zoning'Ordinance, Section 4-4.2 (1) Nonconforming Lots-Separate Lot Exemption-this lot qualifies as a legal nonconforming lot. 7. The building is a legal building. It is conforming and meets all the setbacks of the Zoning Ordinance. It is not a nonconforming building. 8. The Building Commissioner in his letter of January 06, 1998(which the applicants are appealing) states° your contention about the Building Code is factually wrong as stated, therefore I see no reason to go any further with it. Finally, an as built, as submitted,is what the Town customarily accepts. We see no problem with this one." 9. The demolition of an other wise conforming building on a nonconforming lot does not cause the lot to loose its nonconforming status.. Decision: Based on the findings of fact in Appeal Number 1998-37, a motion was made to uphold the Decision of the Building Commissioner. As to this appeal, the Building Commissioner shall not rescind the Building Permit nor should he issue a Cease and Desist. The Vote was as follows: AYE: Gene Burman, Gail Nightingale, Elizabeth Nilsson, David Rice, and Acting Chairman Ron Jansson NAY: None Order. In Appeal Number 1999-37,the Building Commissioner has been upheld. Appeals of this decision, if any;shall be made pursuant to MGL Chapter 40A, Section 17, within twenty er the date of the filing of this decision. A copy of which must be filed in the office of the Town 3 l 1998 Ron Ron S. s n, Arave n Date Signed Linda Hutchenr Town*of Barnstable, Barnstable County; Massachusetts, hereby certify that twenty (20) daed since the Zoning Board of Appeals filed this decision and that no appeal of the decision has been filed in the office of the Town Clerk. Signed and sealed this day of 1998 under the pains and penalties of perjury. Linda Hutchenrider, Town Clerk 4 t� i COMMONWEALTH OF MASSACHUSETTS BARNSTABLE, ss: LAND COURT Misc. No. 2463 JOSEPH F. DUGAS and MEMORANDUM IN OPPOSITION EDITH W. DUGAS, Plaintiffs, TO PLAINTIFFS' MOTION FOR V. PARTIAL SUMMARY JUDGMENT BY DEFENDANT, ZONING BOARD OF GENE BURMAN, GAIL NIGHTINGALE, APPEALS. ELIZABETH NILSSON, DAVID RICE, EMMETT GLYNN, RICHARD BOY, and RON JANSSON, as they are Members of the TOWN OF BARNSTABLE ZONING ) y BOARD OF APPEALS; OCT 2 Zr,]c_, and RICHARD RUDDERS and JOAN --- Towpl r,� 4 RUDDERS, Defendants. ) cgrl{, L t I. INTRODUCTION. This case involves an appeal by the Plaintiffs, Joseph and Edith Dugas, (hereinafter°Dugases") from a decision of the Barnstable Zoning Board of Appeals (hereinafter the "Board") which upheld the determination of the Building Commissioner that Richard and Joan Rudders (hereinafter"the Rudders") were properly issued a building permit to construct a single-family residence which residential building complies in all respects to the requirements of the RB (Residence) zoning district in which it is located. As is delineated more fully below, the Board of Appeals was correct in determining under the Town of Barnstable Zoning Ordinance,' that the Rudders were entitled to a permit to The subject locus is located in the Old King's Highway Regional Historic District in which any demolition or construction is governed by the St.1973, c. 470. While obtaining a certificate of appropriateness from the Barnstable Committee of the Old King's Highway Regional District, the Rudders have admitted that they failed to construct the building in accordance to the location [98-0042\oppjud4] t demolish the existing residential structure and to rebuild a new single-family home in its place. Accordingly, the Barnstable Zoning Board of Appeals respectfully requests that Plaintiffs Motion for Summary Judgment be denied and that pursuant to Mass. R. Civ. P. 56(c), that summary judgment be entered in favor of said Zoning Board in this matter. II. STATEMENT OF ISSUES PRESENTED. Whether the Plaintiffs Complaint should be dismissed based on the fact that the Barnstable Zoning Board of Appeals correctly found that the Rudders were entitled to a building permit to construct a single-family home on a non- conforming lot. III. ARGUMENT IN SUMMARY FORM. The Zoning Board,of Appeals correctly held that, under G.L. c: 40A; s. 6, paragraph 1 and the Town of Barnstable Zoning Ordinance, the Rudders were . entitled to obtain a building permit to construct a single-family home, which conformed in all respects to the requirements of the zoning ordinance except for contained in the plan upon which the certificate of appropriateness was issued. Other litigation has and may address in the future the construction by the Rudders in violation of the terms of the certificate of appropriateness(Rudders v. Building Commissioner et al, CA 98-111 (Barnstable Superior Court)).The Supreme Judicial Court has determined that legislation which creates historic districts represents a valid legislative exercise of the police power, separate and apart from zoning enactments. Opinion of the Justices to the Senate., 333 Mass. 773(1955). Similarly, the authority of the Barnstable Committee to apply the provisions of the Act, regardless of whether the issuance of the certificate of appropriateness was the only permit preventing the property-owner from using his property as he wished, has been upheld. See, e.g. Harris v. Old King's Highway Regional Historic Dist. Com'n, 421 Mass. 612 (1996);Anderson v. Old King's Hy. Regional Historic Dist. Commn., 397 Mass. 609 (1986). Obviously, the instant action is confined to the question of whether or not the Rudders were properly issued a building permit under the Town of Barnstable Zoning Ordinance. Nothing in this brief should be construed as waiving any rights of the Town of Barnstable or any of its agencies from pursuing an action against the Rudders for their failure to conform the construction of the building to the terms of the certificate of appropriateness issued by the Barnstable Committee of the Old King's Highway Historic District. [98-0042\oppjud4] 2 f its location on a nonconforming lot. Additionally, even assuming arguendo that the residential dwelling is nonconforming by dint of the fact that it is located on a nonconforming lot, the Rudders application complies with section 4-4.3(1) of the Town of Barnstable Zoning Ordinance and therefore the Rudders, under the zoning ordinance, were entitled to a building permit as a matter of right. Finally, the demolition of the existing residential structure by the Rudders did not constitute an act of abandonment under Section 4-4.8 of the Town of Barnstable Zoning Ordinance because the Rudders began construction of their new home almost immediately upon demolition of the preexisting structure. II. STATEMENT OF FACTS. The salient facts of the case are essentially'undisputed. The Rudders were owners of a single-family residence, which, according to the assessors' 9 Y 9 records, was built in 1950 on a .23 acre lot on Sunset Lane in Barnstable, Massachusetts. The Rudders property is located in an RB zoning district where the minimum lot is currently one acre and therefore, the lot is nonconforming. In September of 1997, the Rudders applied for permits to demolish the existing single -family home and to build a new single-family home it its place. The new home met all the requirements of the zoning ordinance for the RB residential district as did the home that was to be demolished. On or about [98-0042\oppjud4] 3 L ti November 14, 1997, the Rudders obtained a building permit to construct their new home and soon thereafter construction began.2 The Dugases, abutters to the south of the Rudders, objected on a number of grounds to the construction undertaken on the Rudders lot, and by letter dated December 30, 1997, the Dugases, through their attorney, demanded that the Barnstable Building Commissioner proceed with zoning and building enforcement against the Rudders. (Exhibit 1, Plaintiffs' Motion). After the Building Commissioner responded that the building permit was properly issued, the Dugases appealed the decision to the Zoning Board of Appeals. The Board upheld the Building Commissioner, finding that since the demolition of the old residence and the buildingof the new home r e occurred contemporaneously, there P Y� was no abandonment and therefore, the lot retained its pre-existing . nonconforming status. Fuirther, the construction of the new house, which house complied with all the current requirements of the zoning ordinance, did not require a special permit from the Zoning Board of Appeals. (Exhibit C, Plaintiffs' Motion.) It is from the decision of the Barnstable Zoning Board of Appeals denying the Plaintiff a building permit that the Plaintiffs now appeal. Thereafter, issues arose as to whether the location of the home complied with the certificate of appropriateness issued by the Old King's Highway Regional Historic District,which the Zoning Board of Appeals determined were not germane to this action because this case involves whether or not the construction on the subject locus is in compliance with G.L. c. 40A§6 and the Town of Barnstable Zoning Ordinance. 198-0042\oppjud4] 4 J V. ARGUMENT. 1. Standard of Review The task of the Superior Court in reviewing a decision under M.G.L. c. 40A, s. 17 is to determine whether the applicant is able to demonstrate in a hearing de novo that the Board of Appeals has based its decision on legally untenable ground or is unreasonable, whimsical, capricious or arbitrary. Parseghian v. Board of the Zoning Appeals of Cambridge, 7 Mass. 879 (1979) citing Gulf Oil Corp. v. Board of Appeals of Framingham, 355 Mass. 275, 277 (1979); Siepel v. Bd. of Appeals of Eastham, 2 Land Ct. Rptr. 151 (Misc. No., 17758 1994). A judge in "reviewing a decision of the board...does not possess the same discretionary power as does the board... Subaru of New England, Inc. v..Boardi of Appeals of Canton, 8 Mass. App. Ct. 483, 486 (1979). If reasonable minds - can differ on the conclusion to be drawn from the evidence presented, it is the board's decision which is controlling. Zaltman v. Board of Appeals of Stoneham, 357 Mass. 482, 484 (1970). To hold that a decision of the board is arbitrary and capricious per se whenever the board, on the facts found by the trial judge, could have reached a different result would eliminate the board's intended discretion. Gulf Oil Corp. v. Board of Appeals of Framingham, 355 Mass. at 277-278 2. The Plaintiffs Have Failed to Demonstrate That They Have the Requisite Standing to Bring this Action. It is axiomatic that "( t)o have standing in any capacity, a litigant must show that the challenged action has caused the litigant injury." Slama v. [98-0042\oppjud4] 5 Attorney Gen., 384 Mass. 620, 624 (1981). As noted by the Supreme Judicial Court in Kaplan v. Bowker, 333 Mass. 455 (1956), "[f]rom an early day it has been an established principle in this Commonwealth that only persons who have themselves suffered, or who are in danger of suffering, legal harm can compel the courts to assume the difficult and delicate duty of passing upon the validity of the acts of[another] branch of government." Id. at 459, See also Save the Bay, Inc. v. Department of Pub. Utils., 366 Mass. 667, 672 (1975). In a recent series of cases, Massachusetts courts have underscored that while, in the zoning context where abutters enjoy the presumption of aggrieved status, the presumption is rebuttable. Marashlian v. Zoning Bd. of Appeals of Newburyport, 421 Mass.719, 721 (1996); Watros v. Greater Lynn Mental Health, 421 Mass. 106, 107 (1995). Once the abutter's standing.is challenged and evidence is offered to support of such challenge, the presumption is'deemed overcome and the burden of proof shifts to the abutter, who must present specific facts to support his assertion of aggrieved person status. Riley v. Janco Cent., Inc., 38 Mass. App. Ct. 984, 985 (1995). Abutters "must put forth credible evidence to substantiate claims of injury to their legal rights." Marashlian, 421 Mass. at 723. The Dugases have not put forth one scintilla of evidence to indicate that they have suffered any aggrievement in this matter. As such, they have failed to carry their burden of demonstrating that they have standing to proceed with this action. [98-0042\oppjud4] 6 r r 3. The Board of Appeals Correctly Found that the Rudders were Entitled to a Building Permit to Building a Conforming Single Family House. a. The subject locus has not lost its status as a pre-existing nonconforming lot. ' Ignoring the language of Sections 4-4.2, 4-4.3 and 4-4.8 of the Town of Barnstable Zoning Ordinance and misconstruing the holdings of Dial Away Co., Inc. v. Zoning Board of Appeals of Auburn, 41 Mass. App. Ct. 165 (1996) and the Siepel v. Bd. of Appeals of Eastham, 2 Land Ct. Rptr. 151 (1994), the Dugases argue that the subject locus has lost its status as a nonconforming lot. As such, the Dugases assert that the lot is now unbuildable and the single-family structure, which is conforms to zoning ordinance in all respects, must be removed. In asserting that the Rudders' property has lost its status as a pre-existing non-conforming lot, the Dugas rely heavily on the Dial Away case. The question before the Appeals Court in Dial Away was "...whether, under the Auburn zoning bylaw, an undersized lot retains its protected character as a buildable lot twenty- three years after a nonconforming dwelling on the lot was razed." 41 Mass App. Ct. at 165. In analyzing this issue, the Court recognized that under the second "except" clause of G.L. c. 40A, §6, para. 1, special status was given to nonconforming single and two family dwellings, permitting "alteration, reconstruction, extension or structural change" notwithstanding a change in the local zoning enactment as long as the proposed activity "does not increase the [98-0042\oppjud4] 7 y , nonconforming nature of the structure." 41 Mass at 170-171 quoting Goldhirsh v. McNear, 32 Mass. App. �Ct. 455, 460 (1992). However, because the Auburn Board of Appeals found that any rights to the lot had been abandoned, the Court focused on how G.L. c. 40A§6 and the Auburn bylaw addressed the issue of the abandonment. G.L. c. 40A, §6, para. 1, provides that "[a] zoning ordinance or by-law may define and regulate nonconforming uses and structures abandoned or not used for a period of two years or more." The Auburn ordinance provided for abandonment of use after, inter alia, discontinuance for two years or more, and for reconstruction of nonconforming structures, as a matter of right, that were "..:destroyed by fire, flood or natural disaster.." After concluding that neither of. the these provisions were applicable, the Court.held that the lapse of time.of .. twenty4hree years ".:.is so significant that abandonment exists as a matter of law." 41 Mass. App. Ct. at 172. In contrast, the Barnstable ordinance specifically addresses the abandonment and non-use of uses, buildings and structures as follows: 4-4.8 Abandonment; Non-Use: Any lawful pre-existing nonconforming use or building or structure or use of land which has been (i) abandoned or (ii) not used for 3 years, shall not thereafter be re-established. This section shall not apply in cases of damage or destruction governed by section 4-4.6. Without specifically addressing the issue of issue of the whether a conforming single family residence on an undersized lot is nonconforming, which is discussed below, there clearly has been no abandonment. Upon demolition of [98-0042\oppjud4] 8 f the existing home, construction of the new home was then immediately commenced. As noted in Dial Away, abandonment as used in zoning requires the intent to abandon and voluntary conduct which carries the implication of abandonment. Derby Ref. Co. v. Chelsea, 407 Mass. 703 (1990). Here, all work proceeded contemporaneously, thus, there is no intent to abandon. There was no significant lapse of time between demolition and the start of construction. Likewise, the conduct here, evinces an intent to continue, not an implication to discontinue. This is evidenced by obtaining and operating under a building permit. 3 Similarly, the Dugases misconstrue Siepel v. Bd. of Appeals of Eastham, 2 Land Ct. Rptr. 151 (1994) when they state that this case stand for the proposition that where a nonconforming structure is demolished to build a new structure, the nonconforming status is lost. In Siepel, the Court specifically held that the demolition and partial reconstruction of a structure which was nonconforming in that it encroached into the zoning setbacks, did not cause the property to lose its nonconforming status. In fact, the Court specifically ruled that if the property-owner was unable to obtain either a special permit or variance to allow the completion of the new structure which further.encroached into the 3 In Aldrich v Board of Appeals of the Town of Nahant, 6 Land Ct. Rptr. 3 (Misc. No. 234009 December 31, 1997), a case cited by the Dugases, the Court concluded that, although a considerable period of time had elapsed since the razing of the structure (which was a commercial garage), the fact that the demolition had occurred at a time when the lot was conforming obviated the need for the Court to undertake an analysis of whether an abandonment had occurred vis a vis the Dial Away case. (Paragraph 22, of the Courts findings of fact). The Dugases improperly rely on the case as support for the proposition that when a single family structure is demolished after the lot has become nonconforming, said lot loses its nonconforming status. [98-0042\oppjud4l 9 zoning setbacks, the property owners, would be permit "to rebuild the original cottage that they demolished to its original dimensions, except for the poured concrete foundation and basement which has been completed and shall remain."(Seipe/at 8 attached to the Plaintiffs' Motion.) Contrary to the assertion made by the Dugases, where, as here, a single family home on a nonconforming lot is demolished and contemporaneously rebuilt, there exists no authority for the proposition that the razing of the home causes the residential lot to lose its non-conforming status, thereby rendering it unbuildable. The residence built n h locus i conforming structure but b. ao the s s a co o g even if it is deemed nonconforming, under Section 4-4.3 of the Barnstable ZoningOrdinance it can be constructed on the locus as a matter of right. 9 - The statuto rovisions in respect of nonconformities found in G.L. c. ry p p 40A, §6 prescribe the minimum tolerance which must be given to nonconforming uses. See generally, Chilson v. Zoning Bd. of Appeal of Attleboro, 344 Mass. 406 (1962). As long as a local zoning enactment does not conflict with State Zoning Act, courts have deferred to the local communities both when they have chosen to tolerate only the statutory minimum, Blasco v. 1 well as when Board of Appeals of�nchendon 31 Mass. A . Ct. 32 199 as o PP pp ( ) they have been more permissive with regard to their treatment of non conformities. McAleer v. Board of Appeals of Barnstable, 361 Mass. 317 (1972). The Dugases assertion that the Board "exceeded its authority" in upholding the Building Commissioner's issuance of a building permit to the [98-0042\oppjud4j 10 a Rudders is premised on two misapplications of the case law.interpreting G.L. c. 40A, §6 and local zoning enactments promulgated regarding nonconformites. First, the Dugases ignore the special status given to nonconforming single and two family dwellings under G.L. c. 40A, §6, para. 1, as acknowledged in Goldhirsh and Dial Away which recognize that the alteration, expansion, and reconstruction of such structures can occur as a matter of right as long as the proposed activity does not increase the nonconformity. Instead, the Dugases rely on a series of cases which involve commercial uses, where any alteration or expansion requires the requisite finding by the permit-granting authority. See, e.g., Angus v. Miller, 5 Mass. App. Ct. 470 (1977)(the razing of an eight-unit non- conforming multi-family building with two cabins to build a five-story nonconforming motel not justified under Wareham's zoning ordinance); David.v. Board of Appeals of Reading, 333 Mass. 657 (1956)(the razing of an existing nonconforming grocery and gas station in a residential zoning district to construct a larger, more nonconforming grocery and gas station.) Second, the Dugases attempt to improperly extrapolate from decisions upholding a Board's reasonable interpretation of its own ordinance or bylaw regarding nonconformities, which have denied an applicants' request to raze and rebuild a nonconforming structure as authority for the proposition that such an application must be universally adopted, is clearly misplaced. Mackenzie v. Town of Wayland, Misc. Case No. 131524 (1990) (the court upheld the town's denial to raze and rebuild a residence which was illegal but protected under G.L. c. 40A, §7, holding that there was nothing in section 6 to require a town to [98-00421oppjud4] 11 l authorize the razing of a structure while noting that there was no authority which held-that a town was precluded from granting such relief). Holmes v. Doegler, 3 Land Ct. Rptr. 158, 159 (1995) (the court upheld as reasonable the board's interpretation of its own bylaw that the doubling of the size of a two residential structures on an undersized lot was more detrimental than the existing structures and uses). Contrary to the Dugases assertion, there is nothing in either G.L. c. 40A, §6, para.1 or the town of Barnstable zoning ordinance that makes it legally 9 Y erroneous for the board to conclude that a single-family home, located on an undersized lot, which,conforms to all the requirements of the zoning ordinance, is a conforming structure. See generally, McAleer v. Board of Appeals of Barnstable, 361 Mass. 317 (1972). The reasonableness of this interpretation is underscored by the fact that Barnstable has thousands of conforming single i family houses on undersized lots and to require these homeowners to seek a special permit any time that they proposed an alteration or expansion, regardless of whether such alteration made the home nonconforming, would be unnecessarily onerous. See, Affidavit of Arthur P. Traczyk attached hereto. Further, even assuming arguendo, that the'Rudders' home is nonconforming based upon the fact that lot upon which it is located is undersized, under the terms of zoning ordinance dealing with non-conforming single-family structures, the Rudders were still entitled to a building permit as a matter of right, to wit: [98-0042\oppjud4] 12 Y - 3 4-4.3 Nonconforming Buildings or Structures Used as Single and Two Family Residences: A pre-existing nonconforming building or structure that is used as a single or two family residence may be physically altered or expanded only as follows: 1) As of Right: If the Building Commissioner finds that: A. The proposed physical alteration or expansion does not in any way encroach into the setbacks in effect at the time of construction, provided that encroachments into a 10-foot rear or side yard setback and 20-foot front yard setback shall be deemed to create an intensification-requiring a special permit under Section 4-4.3(2); and B. The proposed alteration or expansion conforms to the current height limitations of the Zoning Ordinance. 2) By Special Permit: If the proposed alteration or expansion cannot satisfy the criteria established in Section 4.4.3(1) above, the Zoning Board of-Appeals may allow the expansion by special permit provided that the proposed alteration or expansion will not be substantially more detrimental to the neighborhood than the existing building or structure. In the instant case, there is no dispute that the proposed physical alteration or expansion does not in any way encroach into the setbacks currently in effect. Further, the proposed alteration or expansion conforms to the current height limitations of the Zoning Ordinance. In fact, as previously stated, the single family residence conforms to all the requirements of the zoning ordinance. For all of the above reasons, the Board's decision upholding the issuance of the building permit to the Rudders, represents a proper exercise by the Board of Appeals authority under the ordinance is not unreasonable, whimsical, capricious or arbitrary or based on legally untenable grounds. [98-0042\oppjud4] 13 k �i T a. C CONCLUSION. A motion for summary judgment is proper where no material facts are in dispute. Miles v. Aetna Casualty& Sur. Co., 412 Mass. 424 (1992). Where appropriate, summary judgment may be rendered against the moving party. Mass.R.Civ.P. 56(c), 365 Mass. 824 (1974); Vickodil v. Lexington Ins. Co., 412 Mass. 132 (1992). In light of the foregoing, the Defendant Board respectfully requests that summary judgment be entered in its favor dismissing the Plaintiffs' Complaint, thereby affirming the Board's decision in all respects. Dated: October 19, 1998. BARNSTABLE ZONING BOARD OF APPEALS, By their Attorney(s), ROBERT D. SMITH, Town Attorney [B.B.O. No. 469980] RUTH J. WEIL, Assistant Town Attorney [B.B.O. No. 519285] 367 Main Street, New Town Hall Hyannis, Ma. 02601-3907 (508) 790-6280; (508) 775-3344 (FAX) [98-0042\oppjud4] 14 TO:: LOIS M. FARMER, ESQ. [B.B.O. No. 552142] Attorney for Plaintiffs Garnick & Scudder, P.C. 32 Main Street, P.O. Box 398 Hyannis, MA 02601 (508) 771-2320; (508) 771-3304 Fax TO: JAMES H. QUIRK, ESQ. THOMAS J. PERRINO, ESQ. [B.B.O. No. 555297] Attorney for Plaintiffs Quirk & Chamberlain, P.C. 99 Willow Street P.O. Box 40 Yarmouthport, MA 02675-0040 (508) 362-8262; (508) 362-6060 Fax CERTIFICATE OF SERVICE Barnstable, ss: October 19, 1998. I, Theresa M. Cahalane, hereby certify under the pains and penalties of perjury, that I caused to be mailed by first-class mailing, postage prepaid, a copy of the above document to the attorney(s) for the parties herein on the date above written. Theresa M. Cahalane, Legal Clerk Town of Barnstable 367 Main Street, New Town Hall Hyannis, MA 02601-3907 (508) 790-6280; (508) 775-3344 FAX [98-00421oPPJud4] 15 • a t #t lot aH +. 7 + aaK + ---- 26. AK WE lflllK 25 _ a ; 3 as 23 61 n- �. 3 aQK 9Q on rr K OXAC ntr 9#33MAC u ' T ell I 1 ► 14 r #2S a31K a 2 - �K 63- off - 0 _any - ` .' 2 :✓ > N on 1 aaK K P , + 6 � i � •i - GAK ME Swat I." = ,50'-yf Dugas 36 Sunset lane Map 301, Parc.el 36 z r COMMONWEALTH OF MASSACHUSETTS BARNSTABLE, ss: LAND COURT Misc. No. 131-524 JOSEPH F. DUGAS and EDITH W. DUGAS, Plaintiffs, AFFIDAVIT OF V. BUILDING COMMISSIONER, RALPH M. CROSSEN. GENE BURMAN, GAIL NIGHTINGALE, ELIZABETH NILSSON, DAVID RICE, EMMETT GLYNN, RICHARD BOY, and RON JANSSON, as they are Members of ) the TOWN OF BARNSTABLE ZONING ) BOARD OF APPEALS; and, ) MICHAEL J. MULAY, ) and ) RICHARD RUDDERS and JOAN ) RUDDERS, Defendants. ) I, Ralph M. Crossen, being duly sworn depose and say: 1) 1 have full knowledge of the facts stated herein and am competent to testify to these facts. 2) 1 am the Building Commissioner for the Town of Barnstable and have held that position since August, 1994. Between the years 1990 and 1995, 1 served as the Building Commissioner for the Town of Scuituate. 3) As part of my responsibilities as Building Commissioner, I serve as the zoning enforcement officer for the Town of.Barnstable. 4) On February 28, 1985, the Town of Barnstable amended the zoning bylaw to have at least one acre zone applicable town-wide in residential zoning districts. The following residential zoning districts required less than on acre town-wide: RB, RB-1, RC, RC-1, RC-2, RD, and RD-1, prior to 1985. [98-0042/ralphaff] 1 5) The 1985 zoning change which increased lot size to at least one acre town-wide as well as prior zoning changes which had increased lot size to one-acre in certain residential zoning district, made thousands of lots containing existing residential structures non-conforming. 6) Since I have been Barnstable's Building Commissioner, I have reviewed numerous applications by owners of otherwise conforming single-family residences located on lots that became nonconforming when one-acre zoning was implemented town-wide, who were seeking permission to replace the existing dwelling. In determining how to address these applications, I have looked at G.L. c. 40A, s.6 and Section 4-4 of the Town of Barnstable Zoning Ordinance, which is the section dealing with nonconformities. I also review publications and guidances received from the Department of Housing and Community Development. 7) Of particular note in this regard, are the amendments that were made with regard to nonconformities which appear in Section 4-4 of the zoning ordinance, which became effective in 1995. (See attested copy of Zoning Ordinance attached hereto ). Specifically, there are two sections which provide more than the minimal tolerance for nonconformities allowed under G.L. c. 40A, §6. 8) With regard to nonconforming lots, the ordinance contains separate provisions for nonconforming single and two family residential uses and nonconforming single and two-family residential lots. Further, the ordinance [98-0042/ralphaff] 2 provides vesting of rights once lots for single or two-family use are either transferred into separate ownership or are built upon, as follows: 4-4.2 Nonconforming Lots: 1) Separate Lot Exemption: Any increase in area, frontage, width, yard or depth requirement of the Zoning Ordinance shall not apply to a lot for single or two-family residential use which at the time of recording or endorsement: A) was not held in common ownership with any adjoining land; and B) had a minimum of 5,000 sq. ft. of area and 50 feet of frontage or the minimum frontage requirement for the zoning district in which it is located; and _ C) conformed to the existing zoning if any when legally created; and D) was separately owned at the time of every zoning change which made it nonconforming. 2) Common Lot Protection: Any increase in the area, frontage, width, yard or depth requirement of the Zoning Ordinance shall not apply for a period of 5 years from the effective date of the change, to a lot for single or two-family residential use that: A) is held in common ownership with not more than 2 adjoining lots; and B) had a minimum of 7,500 sq. ft. in area and 75 feet of frontage or the minimum frontage requirement for the zoning district in which it is located; and C) was recorded or endorsed on a plan that conformed to zoning when legally created; and D) conformed to applicable zoning requirements as of January 1, 1976. [98-0042/ralphaff] 3 The protection afforded by this paragraph shall become vested upon the sale or transfer of the lot so protected into ownership separate from that of adjoining lots or the building thereon of a residence. 3) Approval Not Required Plan Protection: Any change in uses permitted under the Zoning Ordinance shall not apply to any lot created by a plan endorsed by the Planning Board as a plan not requiring approval under the Subdivision Control Law for such period of 3 years from the date of endorsement, as provided by G.L. Ch. 40A, Section 6. 4) Subdivision-Plan Protection: Any change in the Zoning Ordinance shall not apply to land shown on a plan under the Subdivision Control Law by a duly submitted and endorsed definitive subdivision plan, or a preliminary plan followed within 7 months by a definitive plan, for such period of 8 years from the date of endorsement, as provided by G.L. Ch. 40A, Section 6. Any legally created lot with a recorded release from covenant of the Planning Board that has been sold or transferred into separate ownership and control from any adjoining lots within 8 years from the endorsement of the original subdivision plan shall be exempt from any dimensional or bulk zoning changes and shall not lose its status as a single buildable lot under zoning. 5) Merged Lots: Except as otherwise provided herein, lawfully nonconforming lots that are adjoining and held in common ownership, or under the control of the same owner, shall be treated so as to conform so far as possible with the minimum area requirement of the zoning district in which they are located. No lot so merged, or portion thereof, may be changed or transferred in any manner that will increase the degree of nonconformity unless a special permit has first been obtained from the Zoning Board of Appeals. No such special permit may crreate any additional buildable lot(s). I 4 [98-0042/ralphaff] 9) In addition, with regard to the issue of abandonment, the ordinance protects the nonconforming use of land as well as nonconforming lots, uses and structures under the following circumstances: 4-4.8 Abandon ment; Non-Use: Any lawful pre-existing nonconforming use or building or structure or use of land which has been (i) abandoned or (ii) not used for 3 years, shall not thereafter be re-established. This section shall not apply in cases of damage or destruction governed by section 4-4.6. 10) It was based upon my reading of various provisions of the zoning ordinance that I concluded that an existing conforming house located on a nonconforming lot could be replaced as long as the replacement dwelling conformed with all the requirements of the zoning ordinance. 11) If Dr. Rudders' previously existing dwelling had failed to conform with the dimensional requirements of the Barnstable Zoning Ordinance then, in my opinion, Section 4-4.3, the provision of the Town of Barnstable Zoning Ordinance which regulates alterations and expansion of nonconforming buildings or structures used as single and two family residences, would have been applicable. Although the word "reconstruction" is not used in the zoning ordinance, I have interpreted the phrase "alteration", which is not defined in the zoning ordinance, to encompass "reconstruction." Otherwise, it is my experience that you encourage a charade where property-owners are forced to leave a single wall of the existing building in order to get under the umbrella of the term "alteration." [98-00421ralphaff] 5 12) 1 agree with the decision of the Zoning Board of Appeals that the reconstruction of a conforming single-family dwelling on the lot does not intensify the nonconforming nature of the use in that neither the extent, manner of purpose of the use are not substantially affected by the reconstruction. Further, I agree with the Board's further finding that even assuming for the sake of argument that an intensification has occurred, that the new dwelling is not substantially more detrimental to the neighborhood since the dwelling conforms to all current setbacks, is located in a neighborhood which contains a number of other two-story homes, the footprint of the new dwelling is not a substantial increase over the footprint of the previous dwelling and the number of bedrooms are not increased in the new dwelling and may even be decreased. Signed under the pains and penalties of perjury this day of January, 2000. RALPH M. CROSSEN, BUILDING COMMISSIONER TOWN OF BARNSTABLE [98-00421ralphaff] 6 LEGAL DEPARTMENT, TOWN OF BARNSTABLE OFFICE OF TOWN ATTORNEY Inter-Office Memorandum TO. OKH Committee, c/o Planning Dept. Ralph Crossen, Building Commissioner FROM: RUTH J. WEIL, ASST. TOWN ATTORNEY [ RE: RUDDERS v. Building Commissioner; OKH Committee Superior Ct., C.A. No. 98-111 OUR FILE REF: 98-0027 DATE: June 1, 1999 ----------------------------------------------------------------------------- I have enclosed a copy of the Brief of Appellant, Barnstable Old King's Highway Committee for your files. RJW/tmc Enclosure memo6199 106/01/99 r No.99-P-637 Commonwealth of Massachusetts ,Appeals (gourt for toe flomutaufaealt4 BARNSTABLE COUNTY RICHARD RUDDERS and JOAN RUDDERS, Appellees, V. BUILDING COMMISSIONER of the TOWN OF BARNSTABLE, Defendant, and the BARNSTABLE OLD KING'S HIGHWAY COMMITTEE, Appellant. Appeal from an Order of the Suberior Court BRIEVAPPENDIX OF APPELLANT, BARNSTABLE OLD IQNNG'S HIGHWAY COMMITTEE. ROBERT D. SMITH B.B.O.No.469980 RUTH J.WEIL B.B.O.No. 519285 TOWN OF BARNSTABLE 367 Main Street,New Town Hall _ Hyannis,Ma.02601-3907 508 862-4620 508 775-3344 Fax Attorneys for Appellants r } Curry&Taylor Appellate Service(202)3934141/appeOela0wOrkilpxnet irx I I. STATEMENT OF ISSUES: (1) Whether the trial court had jurisdiction to strike the Notice of Appeal filed by the Barnstable Old King' s Highway Committee based on its finding that the Committee was not a "party aggrieved" by the Memorandum of Decision andOrder on the Plaintiffs ' Motion for Order of Mandamus and Preliminary Injunction and entry of Judgment on Findings of the Court . (2) Whether the court erred in striking the Notice of Appeal filed by the Barnstable Old King' s Highway Committee based on its finding that the Committee was not a "party aggrieved" by the Memorandum of Decision and Order on the Plaintiffs ' Motion for Order of Mandamus and Preliminary Injunction and entry of Judgment on Findings of the Court . (3) Whether the trial court erred in issuing an order of mandamus ordering the building commissioner to revoke a stop work order which had been placed upon a home under construction in the Old King' s Highway Regional Historic District . 1 II. STATEMENT OF CASE. This case began rather unremarkably when the Rudders, the owners of a parcel of land located in the Old King's Highway Regional Historic District, St.1973, c. 470, as amended (hereinafter "the Act") , within the Town of Barnstable, applied for and received a "certificate of appropriateness" from the Barnstable Committee of the Old King's Highway Regional Historic District (hereinafter the "Committee" or "Barnstable Committee") to demolish an existing single-story home and build a new two-story home on the lot . (A.41-43) . Things went awry when the Rudders decided to locate the house on the lot differently from what was shown on the approved plan without returning to the Committee for a new certificate. (A.4-5) . Once construction began and the error was brought to the attention of the Committee, the Rudders again chose not to seek a new certificate. The issuance of a stop work order by the building commissioner eventually led to the filing of an action by the Rudders in the superior court, seeking an "order of mandamus" and a preliminary injunction. (A.2-13) . The superior court, after a summary proceeding for which the Committee had less than one business day' s notice, acknowledged that it lacked jurisdiction over the Rudders ' request for injunctive relief under the 2 statute creating the Act . (A.151) . Nonetheless, the court, in a breathtaking exercise of judicial power, ordered the lifting of the stop work order issued by the Barnstable building commissioner, styling its decision as an "order of mandamus." (A. 152-155) . Without further hearing, on May 12, 1998, the court issued a "Judgment on the Findings" ordering that the stop work order issued by the Town be revoked. (A. 156) . On May 28, 1998, the Committee filed a Notice of Appeal from the Judgment of Findings . (A.157) . On or about July 17, 1998, the Rudders, pursuant to Superior Court Rule 9A, filed a "Motion to Strike the Appeal of Defendant, the Barnstable Old King' s Highway Committee," which motion to strike the Committee opposed. (A.159-170) . The basis for the Rudders ' motion was the assertion that the Committee was not "aggrieved" by the court ' s judgment. (A. 171-173) . By decision dated September 11, 1998, the trial court granted the Rudders ' motion. (A.171-173) . While acknowledging that the superior court did not have jurisdiction over the subject matter of the Rudders ' complaint (A. 171-172) , the Court nonetheless held that the "Notice of Appeal filed by the Town of Barnstable Old King' s Highway Committee must be stricken." . (A. 173) . On or about October 9, 1998, the Barnstable Old King' s Highway Committee filed a Notice of Appeal, appealing from the decision and order captioned 3 "Memorandum and Decision and Order on the Plaintiff ' s Motion to Strike Appeal of Defendant, Barnstable Old Kings ' Highway Committee." (A. 174-175) . It is from the judgment and decisions of the superior court that the Barnstable Committee appeals. III. STATEMENT OF FACTS. On or about September 17, 1997, Richard Rudders and Joan Rudders submitted an application for a "certificate of appropriateness" allowing the demolition of an existing one-story single-family home at 36 Sunset Lane, in Barnstable, in part of the Old King' s Highway Regional Historic District, and to erect a new two-story single-family home. (A.41-43) . A plot plan showing the location of the new home was submitted with the Rudders ' application for a certificate of appropriateness . (A.43) . At the hearing held before the Committee on October 8, 1997, there was discussion as to the appropriate location of the house. (A. 124) . Russ Hamlyn, the contractor appearing on behalf of the Rudders, represented that the submitted plot plan reflected that the proposed new home was "nine feet back" from the existing structure. (A.124) . After discussion, including considerable discussion on the topic of the exact location of the house and how far back from the street it should be, and deliberation, the Committee approved the certificate of 4 u'+, appropriateness at the location shown on the proposed plot plan. ' (A.124-125) . Apparently, after the issuance of the certificate of appropriateness, but prior to the demolition of the existing home, Dr. Rudders "discovered" that the plot plan presented on his behalf and approved by the Committee showing the location of the new home approximately eight or nine back feet from the existing structure was not where Dr. Rudders had wanted it to be built . (A.4-5) . The Rudders did not request an amendment to the approved plan, which procedure is provided for under the Committee ' s guidelines . (A. 100- 101) . In fact, they made no effort to apprise the Committee, the permit granting authority, of their desire to modify the approved plan. Rather, they assert that they directed their contractor to contact the Town of Barnstable building department . (A.4-5) . The Rudders state that their building contractor told them that he checked with an unidentified person in the building department and allegedly "learned" that as long as there was no zoning violation, a deviation from a plan approved by the Committee was permissible. (A.4- 5) Without first obtaining permission from the Committee to proceed with an amended plan, the Rudders demolished the existing structure and began construction of the new building in the different 5 location. (A.4-5) . Soon thereafter, concerns were raised about the location of the new structure and after confirming the discrepancy, the Committee, pursuant to Section 12 of the Act (A.74) , requested the building commissioner to order the construction stopped.' (A.21-22) . Rather than pursuing the administrative procedures delineated under the Act, on or about February 20, 1998, the Rudders filed a Complaint seeking a mandatory injunction against the Committee, essentially requesting that the court order the Committee to completely relinquish its jurisdiction over the project . (A.2-13) . As part of the mandatory injunction, the Rudders also sought an "order of mandamus" requiring the building commissioner to revoke the stop work order he issued on February 10, 1998 . (A. 9-11) . In the late afternoon of Friday, February 20, 1998, the Town of Barnstable was served with a Summons and Order of Notice for a hearing to be held on ' The Rudders complaint inaccurately refers to "public hearings" and "improper meetings" which were held by the Committee after it became clear that the construction being undertaken by the Rudders failed to comply with the plan approved by the committee. (A.5-8) . These were simply discussions of the Rudders , noncompliance aired at meetings that were properly noticed under the public meeting law. G.L. c. 39, §23 . Had the Rudders properly pursued their administrative remedies rather than unilaterally modifying the previously-approved plan, then the notice and hearing procedures under the Act would have been triggered. 6 Monday, February 23, 1998 . (A.59) . The Court heard oral argument on the Plaintiffs ' Motion for Order of Mandamus and Request for Preliminary Injunction on Monday, February 23, 1998, as scheduled. By memorandum and order dated March 27, 1998, the superior court denied the Plaintiffs ' motion for a preliminary injunction, finding that jurisdiction over matters relating to certificates of appropriateness under the Act was vested exclusively in the district court. (A. 151) . Having so held, the court proceeded to issue an "order of mandamus" requiring the Building commissioner to revoke his February 10, 1998 stop work order. (A.152-154) . Without further hearing, on May 12, 1998, this Court issued a "Judgment on Findings By the Court" in this matter. (A.156) . On or about May 27, 1998, the Barnstable Old King' s Highway Committee filed a Notice of Appeal of the court ' s decision. (A. 157-158) . On July 8, 1998, the Barnstable Committee was served with a Motion to Strike the Notice of Appeal, asserting that the Barnstable Committee is not a "party aggrieved." (A.159-161) . By decision dated October 9, 1998, the trial court dismissed the Committee 's Notice of Appeal . (A.177-179) . 7 IV. ARGUMENT A. The Trial Court Did Not Have Jurisdiction to Strike the Committee's Notice of Appeal on the Basis that the Committee was not a Party Aggrieved and the Trial Court Erred in Dismissing the Committee' s Appeal. It is axiomatic that upon entry of final judgment under Mass. R. Civ. P. Rule 58 (a) , the trial court has limited post-judgment jurisdiction. See Zatsky v. Zatsky, 36 Mass. App. Ct. 7, 8-10 (1994) . The rules of civil procedure spell out several post-judgment motions which the court may consider when timely filed, to wit : Motion for Judgment Notwithstanding the Verdict, Mass. R. Civ. P. Rule 501.b) ; Motion to Amend or Make Additional Findings, Mass . R. Civ. P. Rule 52 (b) ; Motion for a New Trial, Mass. R. Civ. P. Rule 59 (b) ; and, Motion To Alter or Amend the Judgment, Mass . R. Civ. P. Rule 59 (e) . See e.g. , Holder v. Gilbane Bldg. Co. , 19 Mass . App. Ct . 214, 218-220 (1985) . In addition, a Motion for Relief from Judgment can be entertained by the trial court under Mass. R. Civ. P. Rule 60 . See e.g. Berube v. McKesson Wine & Spirits, i Co. , 7 Mass. App. Ct . 426, 435 (1979) . Under Mass . R. Civ. P. Rule 62 (b) , the trial court may stay the execution of a judgment pending the disposition of a motion for relief from judgment. 8 Additionally, the Massachusetts Rules of Appellate Procedure vest in the trial court certain procedural gate-keeping functions relating to the filing of the notice of appeal and the assembly of the record on appeal. Under Mass. R. App. P. 4 (c) , the trial court can extend the time for filing a notice of appeal . Also, the trial court has the jurisdiction to dismiss an appeal which has not been timely filed. See generally Catalano v. First Essex Savings Bank, 37 Mass. App. Ct . 377, 383 (1994) ; Zieminski v. Berkshire Div. of the Probate and Family Court, 408 Mass. 1008, 1009 (1990) . Similarly, the lower court, upon motion, can extend the time for docketing the appeal, Mass. R. App. P. 10 (b) and can also dismiss the appeal upon motion and failure of the appellant to properly docket the appeal, Mass. R. App. 10 (c) . See Robinson v. Planning Board of Wayland, 23 Mass . App. Ct . 920, 921 (1986) . Also, a court, having conditioned an appeal upon the filing of a bond, can cause the dismissal of the appeal based upon the failure to post the required bond. Kargman v. Dustin, 5 Mass . App. Ct . 101 (1977) . However, the motion judge ' s decision points to no authority nor has the Committee found any to support the power of a trial court to strike a notice of appeal filed by a party to an action based upon the assertion that the party filing the notice of appeal is not 9 li "aggrieved." Such matters are properly left to the { appellate court, as all the reported cases on the issue reflect . See, e.g. , Tsagronis v. Board of Appeals of Wareham, 415 Mass . 329 (1993) ; Chongris v. Board of Appeals of Andover, 17 Mass . App. Ct . 999 (1984) ; Save the Bay, Inc. v. Department of Public Utilities, 366 Mass. 667 (1975) . In this regard, appellate courts have consistently held that "[t] he right of access to the appellate process on the part of a civil litigant is an important one, guaranteed by G. L. c. 231, §113, and any deprivation of that right ought to be based upon extraordinary circumstances." Sommer v. Monga, 35 Mass . App. Ct . 761, 763 (1994) . Dismissal of an appeal even at the appellate level, before the appellant is given an opportunity to present his case, is highly disfavored and has only been rarely applied in cases where the appellant has flagrantly violated orders of the trial court . See, e.g. , Henderson v. Henderson, 329 Mass. 257, 258 (1952) (appellant 's disappearance with the child while his or her appeal from a custody 3 order was pending was determined to be a sufficient basis for dismissal of appeal) ; Commonwealth v. I Rezendes, 353 Mass . 228, 230 (1967) (criminal defendant who has become a fugitive held to have waived his right of appeal) . Clearly, whether or not an appellant is a "person aggrieved" represents a garden-variety 10 appellate issue, which is properly raised and litigated on appeal . See generally, Bell v. Zoning Board of Appeals of Gloucester, 429 Mass. 551 (1999) . B. The Barnstable Committee is a "Party Aggrieved" by the "Order of Mandamus" and Entry of Final Judgment and It Should Be Permitted to Proceed 1 with Its Appeal. In order to be deemed a "person aggrieved," one must demonstrate that his legal rights have been infringed. See Circle Lounge & Grill v. Board of Appeal of Boston, 324 Mass. App. Ct. 427, 430 (1949) . "A party has standing when it can allege an injury within the area of concern of the statute or regulatory scheme under which the injurious action has occurred." Massachusetts Assoc. of Indep. Ins. Agents and Brokers, Inc. v. Commissioner of Ins. , 373 Mass. 290, 293 , j (1977) ; United Oil Paintings, Tnc. v. Commonwealth, 30 F_ Mass. App. 958, 959 (1991) . For the purposes of ` appellate review, a party is aggrieved where a direct, immediate and substantial interest has been prejudiced by the judgment. See generally, Binker v. State, 977 F.2d 738, 745 (3d Cir. 1992) (even nonparties are permitted to appeal where the equities favor hearing i= f. the appeal, the nonparties participated in the settlement agreement, and the nonparties had a stake in } its proceeds discernible from the record) . 11 The judgment entered by the trial court on May 12, 1998, prejudiced a direct, immediate and substantial interest of the Barnstable Committee in that the trial court on a preemptory basis, and admittedly without jurisdiction, essentially eviscerated the entire regulatory regime established under the special legislation which created the Old King's Highway Regional Historic District, S'=.1973, c. 470 . The proper appeal route for litigation under the Act as well as the scope of the authority of the Barnstable Committee to enforce the terms of an unappealed certificate of appropriateness are critical issues implicated by the judge ' s decision.2 In 1973 , by special act, St .1973 , c. 470, the General Court established the Old King' s Highway Regional Historic District (hereinafter "District") in the towns of Sandwich, Barnstable, Yarmouth, Dennis, Brewster and Orleans .3 The district encompasses a 2 In filing this action, the Rudders asserted jurisdiction in the superior court, inter alia, under Chapter 40C. Chapter 40C deals with the creation of town historic districts within a town' s boundaries . However, where, as here, a regional historic district is created by a special act of the legislature, the provisions of the special act control . See, G.L. c. 40C, §16 . This was the specific determination in Attorney General v. Barnstable Committee of the Old King's Highway Regional Historical District, 92-0127, at 7 (Supreme Judicial Court, March 15, 1993) . (A. 133- 134) . 3 The Act has been subsequently amended by St . 1975, c . 298 and c. 845; St . 1976, c . 273 ; St . 1977, c. 38 and 12 broad area within the member towns bounded on the south by Route 6, and on the north by Cape Cod Bay. The purpose of the Old King's Highway Regional Historic District is to "promote the general welfare of the inhabitants [of the district] through preservation and protection of buildings, settings and places within [its] boundaries . . . through the development and maintenance of appropriate settings and exterior appearance of such buildings .' Each member town of the district appoints a local Committee consisting of five persons.5 No structure may be' erected within the district without the issuance of a "certificate of appropriateness" by the historic district Committee of the town in which the proposed structure is to be located.s Their role is to receive and evaluate applications for certificates of appropriateness.' Any person aggrieved by the determination made by the Committee may file an appeal to the Regional c. 503; St . 1978, c. 436; St. 1979, c. 631; and St . 1982, c. 338 . Both the trial judge and the motion judge held that special legislation creating the Old King' s Highway Regional Historic District, and not Chapter 40C, was applicable to these proceedings. Section 2 of the Act . (A. 64-65) . 4 Section 1 of the Act. (A.64) . 5 Section 5 of the Act . (A.67-68) . B Section 6 of the. Act. (A.68-69) . Section 6 of the Act. (A.68-69) . i 13 Commission.8 If the local Committee "exceeded its authority or exercised poor judgment, was arbitrary, capricious or erroneous in its action," the commission must annul or revise the local Committee's determination.9 Appeal from the regional commission is to the local District Court only.70 Similarly, all enforcement activities, explicitly including the issuance injunctive relief, are vested in the district court under Section 12 . Section 12 . . . . The building inspector in the affected town shall have the power and duty to enforce the provisions of this act. The district court having jurisdiction over the affected town shall have jurisdiction to enforce the provisions of this act and the determinations, rulings and regulations issued thereunder, and may restrain by injunction violations thereof and issue such other orders for relief of violations as may be required. There is no dispute that the Rudders ' property is located within the Old King' s Highway Regional Historic District and, therefore, the construction they are seeking to undertake must comply with the provisions of the Act . As outlined above, the Act establishes a comprehensive administrative process and appellate regime vesting exclusive jurisdiction in the district 8 Section 11 of the Act . (A.68-69) . 9 Section 11 of the Act . (A.73-74) . t0 Section 11 of the Act. (A.73-74) . Yam. 14 court . Not only does the Act provide exclusive jurisdiction in the district court for appeals from decisions of the Committee and Regional Commission but it grants the district court exclusive jurisdiction to enforce the provisions of this act and the determinations, rulings and regulations issued thereunder, and may restrain by injunction violations thereof and issue such other orders for relief of violations as may be required."" While both the trial judge and the motion judge embraced the Committee' s position that the Act vested jurisdiction over all matters relating to the regional historic district in the Barnstable district court, this acknowledgement did not dissuade the trial judge from issuing "an order of mandamus" which required the building commissioner to remove the stop work order which the Barnstable Committee had requested from the building commissioner under Section 12 of the Act . Clearly, the Court ' s issuing the order had the effect r " of allowing the construction to proceed notwithstanding the fact that it indisputably failed to comply with the plan upon which the Committee relied in issuing its certificate of appropriateness. The motion judge, in striking the Barnstable Committee 's appeal, acknowledged that the decision of " Section 12 of the Act. (A. 74 ) . 15 the trial court did adversely affect the Committee ' s rights . (A. 173) . Specifically, the court stated: "The position of the OKH is that even though the Court may lack jurisdiction over them in this matter, the decision affects their rights and therefore justice and equity require that they be permitted to appeal . The Court admits the validity of the principle expressed by the OKH but need not reach that issue because the act of the building inspector in the prese nt cir cumstance is the act of the OKH. His determination that the project complies with the OKH regulations has been upheld by the Court and therefore there is nothing for the defendant OKH to appeal ." (A. 173) . The very issues identified in the motion judge ' s recitation underscore the nature of the injury sustained by the Committee by the trial court 's decision. While both the trial court judge and the motion judge indicate that jurisdiction under the Act is vested exclusively in the Barnstable district court, the superior court judge nonetheless issued an order which has deprived the Committee of an important enforcement tool and, therefore, has the effect of seriously constricting the Committee ' s authority under the Act . The Barnstable Committee is clearly a proper party to contest the issue of whether the superior court had jurisdiction to issue such an order in light of the provisions contained in the Act as well as the a 16 propriety of the Court 's issuance of such an order. See generally, Rockport v. DeCarolis, 32 Mass . App. Ct . 348, 254 (1992) . Further, the motion judge, as noted above, concluded that even though the Committee was adversely affected by the trial judge's decision, the Committee was precluded from appealing this adverse ruling because under the motion judge's interpretation of the Act, the purported determination of the building commissioner that the building erected by the Rudders, which deviated from the unappealed"certificate of appropriateness, complied with the OKH .Act, was a decision imputed to the Committee. Before even reaching the merits of the motion judge's conclusion, the Court ' s acknowledgment that this interpretation of the Act, to which the Committee takes strong exception, deprives the Committee of any appellate rights and clearly gives rise to the Committee ' s status as an aggrieved party. Moreover, the trial court ' s and motion judge ' s respective memoranda of decision both rely on alleged facts which were presented in the context of a Motion for a Preliminary Injunction for which the Committee had less than one day's notice. (A. 59) while the motion for a preliminary injunction was denied for lack of jurisdiction, inexplicably a final judgment was entered several months later making final the "order of µ 17 mandamus", without further evidentiary hearing. (A.147- 156) . The - record contains no testimony or even an affidavit from the building commissioner. There is no evidence on the record to indicate the factual information upon which the building commissioner based his January 21, 1998 memorandum that he believed the Rudders ' home was in compliance with zoning and the intent" of the OKH. (A.51) . Other than the affidavit of Richard Rudders which states that Russ Hamlyn, his builder, informed Rudders that some unnamed person in the building department told Mr. Hamlyn that he could deviate from the terms of the approved certificate of appropriateness, there is no evidence as to the truthfulness of this assertion. (A.3,4) . Mr. Hamlyn offered no affidavit or testimony on this issue. The undisputed facts are, however, that the Rudders applied for and received a certificate of appropriateness. to construct a single-family home in accordance with the plan they submitted to the Barnstable Committee. (A.3,40-43) . The Rudders unabashedly admit that they deviated from the approved plan. (A.4) . Without making any attempt to file a modification of the approved plan (A.100-101) or to file for a new certificate of appropriateness (A.71) , the Rudders chose to proceed with the construction and sought to invoke the jurisdiction of the superior court, when the Committee, through the building 18 x commissioner, tried to stop work on the construction which was not in compliance with the duly issued certificate of appropriateness . (A. 2-12) . Thereafter, a court, which admittedly did not have jurisdiction over the subject matter of the Rudders complaint, issued a final order without the benefit of any evidentiary hearing, essentially preventing the Committee from enforcing the terms of the Act. (A.147- 150) . Under all the circumstances presented in this case, the Barnstable Committee clearly has a direct, immediate and substantial interest which has been prejudiced by the judgment .12 C. In the Interests of Judicial Economy, This Court Should Decide The Merits of the Appeal Which Was .Improperly Dismissed. Where, as here, the substantive appellate issues raised by the Barnstable Committee' s improperly stricken Notice of Appeal can be resolved on the basis of the record appendix, which includes all the pleadings that were before the trial court when it 'Z The Committee takes strong exception to the motion judge' s characterization that ". . .the attempted appeal may be likened to children foot-stomping for failure to get their way." (A.173) . The Rudders blatant failure to comply with the plan approved with their certificate of appropriateness, their refusal to exhaust administrative remedies, and the court 's decision removing an important enforcement mechanism, all represent critical and legitimate concerns for the Committee. << 19 issued its decision, it is in the interests of judicial economy to allow this appeal to proceed. Patton v. Mayo, 23 Mass . App. Ct . 657 (1987; Caccia v. Caccia, 40 Mass . App. 376 (1996) . D. An Action In The Nature Of Mandamus Does Not Lie. The superior court 's "order of mandamus" reflects an error of law and abuse of discretion because the superior court lacked jurisdiction over the subject matter of the Rudders ' complaint based upon the fact that jurisdiction is vested exclusively in the district court by the provisions of Sections 11 and 12 of the Act . (A. 73-74) . Moreover, neither an action in the nature of mandamus nor an action for declaratory relief can be used as a substitute for the exhaustion of administrative remedies. Additionally, the actions of the building commissioner, as characterized by the trial_ court ' s order, were discretionary in nature and, therefore, not subject to an action in the nature of mandamus . Finally, the issuance of a final judgment in an action in the nature of mandamus, without providing the Barnstable Committee with an opportunity for pretrial discovery and for a full hearing on the merits, is without legal basis. The superior court, in its decision, correctly recognized that the district court has exclusive 20 jurisdiction over a matter relating to the issuance of a certificate of appropriateness under the Act . (A.15) . Having reached this conclusion, the court, rather than dismissing the Rudders ' complaint, inexplicably proceeded to issue an "order of mandamus" revoking the February 10, 1998 stop work order. (A.155, 156) . Part of the court 's confusion in this regard appears to stem from its misunderstanding of the responsibilities given to the building commissioner to enforce the provision of the Act under Section 12, which are clearly distinct and additional to the duties given to the building commissioner to enforce zoning under Chapter 40A. The Supreme Judicial Court has determined that legislation which creates historic districts represents a valid legislative exercise of the police power, separate and apart from zoning enactments. Opinion of the Justices to the Senate. , 333 Mass. 773 (1955) . Similarly, the authority of the Committee to apply the provisions of the Act, regardless of whether the issuance of the certificate of appropriateness was the only permit preventing the property-owner from using his property as he wished, has been upheld. See, e.g. Harris v. Old King's F Highway Regional Historic Dist. Com'n, 421 Mass. 612 (1996) ; Anderson v. Old King's Hy. Regional Historic Dist. Commas. , 397 Mass . 609 (1986) . 21 Yet, the primary reason provided by the trial court for its "order of mandamus" requiring the building commissioner to revoke his stop work order was that the issuance of the stop work order was not based upon zoning matters and was outside the scope of Chapter 40A. In support of its conclusion, the court cites several cases which dealt exclusively with zoning enforcement under Chapter 40A. (A.152, 153) ; Castelli v. Board of Selectmen of Seekonk, 15 Mass . 711 (1983) .i3 Moreover, an action in the nature of mandamus is only appropriate to compel a public official to perform a non-discretionary act he or she is legally obligated to do. " (I] t is well settled that the relief provided in the nature of mandamus does not lie to compel the municipal officer to exercise his or her judgment or discretion in a particular way." Urban Transp. , Inc. v. Mayor of Boston, 373 Mass . 693, 698 (1977) . The trial judge court 's "order of mandamus" and the motion 13 The Court in the Castelli case notes that the comprehensive changes under Chapter 40A effected by St . 1975, c. 808, Sec. 3, required that all questions regarding zoning enforcement be determined at the local administrative level before resort to the courts. As ' such, although the Appeals Court upheld the revocation of the stop work order, it prohibited the property- owner from under the building permit to permit the initiation locally of any enforcement under the by-law. Similarly, Oulette v. Building Inspector of Quincy, 363 Mass . 272 (1972) , also cited by the Court, was -pre- 808 case and clearly today, an action in the nature of mandamus would not be available. This illustrates that even in the zoning context, actions in the nature of mandamus are disfavored. i 22 judge ' s decision is based upon in part upon a conclusion that the building commissioner is imbued with the discretion to determine whether a property owner is in "substantial" compliance with the ". . . intent of the OKH Act." (A.152-154, 177) . Where, as here, the trial court 's decision is based upon a finding that the building commissioner should be permitted to exercise his discretion in a particular way, an action in the nature of mandamus will not lie. f See Lutheran Service Association of New England v. Metropolitan District Commission, 397 Mass. 341, 344 (1986) . Moreover, " [i] t is settled that the writ of mandamus is an extraordinary remedy granted only where there is a failure of justice and in instances where there is no other adequate and effectual remedy." Coach & Six Restaurant, Inc. v. Public Works Commission, 363 Mass . 643 , 644 (1973) . The Rudders ' recourse under the Act was clear. They could request either an amendment to the approved plan, claiming a "minor modification" (A. 100-101) or file for a new "certificate of appropriateness ." (A.71) . Additionally, "one reason to eschew mandamus is enough, but, if more were needed, one might recognize previous judicial admonitions against expansive use of that extraordinary remedy in novel applications, Reading v. Attorney Gen. , 362 Mass. 266, 269, (1972) , 23 i � �T#- and too liberal use of the discretion inherent in the decision to issue an order in the nature of mandamus." Doe v. District Attorney for Plymouth Dist. , 29 Mass App. Ct. 671, 675 (1991) (cite omitted) . Finally, there is no authority for entering final judgment in an action in the nature of mandamus under r G.L. c. 249, §5 in a summary proceeding for which the town was given one business day's notice.t4 In Castelli v. Board of Selectmen of Seekonk, 15 Mass. 711, 712-714 (1983) , relied upon by the trial court, the mandamus in question was issued after a trial in which testimony was adduced, approximately eleven months after the filing of the complaint . See also, Cape Resort Hotels, Inc. v. Alcoholic Licensing Bd. of Falmouth, 385 Mass . 205, 207 (1982) . In this regard, courts have noted that actions in the nature of mandamus often turn on issues relating to the credibility of witnesses for which a hearing on the 14It is not uncommon for plaintiffs filing an action in the nature of mandamus to also seek preliminary injunctive relief during the pendency of the mandamus proceeding. See WBZ-TV4 v. District Atty. for Suffolk, 408 Mass. 595, 597 (1990) ; Callanan v. Personnel Adm'r for Com. , 400 Mass. 597, 599 (1987) . However, in the instant case, the court explicitly denied the Rudder' s n Motion for a Preliminary Injunction, finding that it lacked jurisdiction to issue same. Moreover, it is , ,.,. clear that the injunctive relief is interlocutory and _ that the action in the nature of mandamus must still be `litigated. WBZ-TV4 v. District Atty. for Suffolk, 408 {� • } Mass. at 598-599 fn.4 . t b 24 t merits is necessary. See generally, Gladstone Bros. , Inc. v. Board of Health of Salisbury, 4 Mass. App. Ct . 780 (1976) .15 The evils of the misapplication of the extraordinary and sparingly used remedy of an action in the nature of mandamus are vividly illustrated in the trial court 's decision which effectively thwarted the Committee 's efforts to obtain the Rudders ' compliance with the elaborate regulatory scheme established under the Act. "Because the jurisdictional issues are obviously dispositive, the Committee focused on these issues in filing its response to the Rudders ' motions . See Balcam v. Town of Hingham, 41 Mass. App. Ct . 260, 261- 262 (1996) ; "Defendants ' Suggestion of Want of Jurisdiction and Opposition to Plaintiffs ' Motion for Preliminary Injunction." (A.60-63) . Evidently, the Court based its entire factual findings upon the affidavit of Richard Rudders and unsupported allegations contained in the Complaint, which are fraught with totem-pole hearsay, statements not based upon his own personal knowledge, and gross inaccuracies. (See, e.g. , Affidavit of Richard Rudders, paragraphs 8, 11, 14, 16, A.35-39) . The Committee takes strong exception to the court ' s statement that it acted in an arbitrary and capricious manner, when the Committee was simply seeking that the Rudders comply with the terms of the approved and unappealed certificate of appropriateness . I 25 T� C CONCLUSION For all of the reasons set forth above, the Judgment of the trial court should be vacated and judgment of dismissal should enter. Dated: May 24, 1999. THE BARNSTABLE OLD RING'S HIGHWAY CO1rIIriITTEE, TOWN OF BARNSTABLE, By their Attorneys, ROBERT D. SMITH, Town Attorney [B.B.O. No. 469980] RUTH J. WEIL, Assistant Town Attorney " [B.B.O. No. 519285] TOWN OF BARNSTABLE ga. 367 Main Street, New Town Hall Hyannis, Ma. 02601-3907 (508) 862-4620 y ywi ?wM1» Ml 'Y ,) 26 . I COMMONWEALTH OF MASSACHUSETTS BARNSTABLE, SS. ZONING BOARD OF APPEALS APPEAL NO. 1998-37 IN RE: JOSEPH AND EDITH DUGAS ) REMAND OF APPEAL NO. 1998-37 ) MEMORANDUM FOR THE BOARD OF APPEALS Land location: 36 Sunset Lane, Barnstable, Massachusetts. RB Zoning District, Assessor' s Map 301 Parcel 036, Lots 141 and 143 . Locus contains 10, 000 square feet of land. The lot was in full compliance with the zoning by-law at the time of construction of the original house. The newly constructed house complies with the applicable zoning set backs and other dimensional requirements with the exception of the present minimum lot area. This lot complies with the grandfather protection created by section ,4-.4 .2 ( 1) : "Any increase in area, frontage, width, yard or depth requirement of the [by-law] shall not apply to a lot for single or two-family residential use which at the time of recording or endorsement: (A) was not held in common ownership; " The property has been owned by Richard Rudders and Joan Rudders for over twenty (20) years. " (B) had a minimum of 5,000 sq. ft. of area and 50 feet of frontage or the minimum frontage requirement for the zoning district in which it is located; " -2- The parcel owned by the Rudders contains 10,000 square feet and 100 feet of frontage on Sunset Lane. (C) conformed to the existing zoning if any when legally created; " The plan was conforming to the zoning at the time it was approved and there is no issue before the Board on this point. Locus conforms to all the conditions of the definition under Section 4-4-2 ( 1) . Under the provisions of Section 4-4.3 of the By-law, a pre- existing non-conforming building or structure that is used as a single or two family residence may be physically altered or expanded only as follows: " ( 1) as of right: if the [commissioner] finds that: A. the proposed physical alteration or expansion does not in any way encroach into the setbacks in effect at the time of construction, provided that encroachments into a 10 foot rear on side yard setback and 20 foot front yard setback shall be deemed to create an intensification requiring a special permit under Section 4- 4 .3 (2) . " The Rudders ' house does not encroach into the setbacks, therefore, under this definition the new structure does not constitute an intensification requiring a special permit. The Land Court, in a written decision rendered in this case, has determined that the new dwelling may be allowed if the new dwelling is a "reconstruction" as the term is used in the ' second except' clause of the first sentence of G.L. Ch. 40A §6, Paragraph 1. This clause is as follows: except where alteration, reconstruction, extension or structural chancre to a Y -3- single or two-family residential structure does not increase the nonconforming nature of said structure. " The Court remanded the matter to this Board for further findings in accordance with the second except clause of §6 . The Land Court apparently determined that because the lot itself is undersized, the structure located on the lot is nonconforming, even though the structure complies with all zoning setbacks. The Rudders dispute the contention that the structure is nonconforming and nothing herein should be considered as a waiver of that issue. The two (2 ) issues which the Court requested be addressed on the remand are: ( 1) whether the proposed new dwelling does not intensify the non-conformity; or (2 ) if it does intensify the non-conformity the proposed new dwelling would not be substantially more detrimental to the neighborhood than the former dwelling. A. 36 SUNSET LANE, LOTS 141 AND 143 CHARACTERISTICS. 1. No Intensification Of The Alleged Nonconformity. The lot size is 10, 000 square feet. The area of the original house footprint contained 1315 square feet. The footprint for the present structure minus the garage contains 1260 square fee. Therefore, the house footprint is 81%, i.e. , 19% less than the original footprint. The garage is 14 ' x 34 ' . See Exhibit "A" attached hereto and incorporated by reference. -4- The location of the present house is set back from the original footprint by several feet. The house is moved north, away from the Dugas ' house, thereby providing a better view than that of the original house. The total square footage of living space in the original house was 1315 square feet. The new house has 1120 square feet of living space on the first floor and 975 square feet of living space on the second floor for a total of 2095 square feet. The original house occupied 13% of the land area of the lot. The new house occupies 11% of the land area of the lot not including the garage. The height of the house is 26 feet. The use remains residential and all setbacks meet the zoning setbacks by considerable margins. The original residence had three (3 ) bedrooms and the new residence has two (2 ) bedrooms. The property is on the town sewer, therefore, there is no impact on the water with the change in this house. B. CHARACTER OF THE NEIGHBORHOOD 1. Not Substantially More Detrimental To The Neighborhood Than The Former Dwelling Sunset Lane is abutted by 34 lots. All lots contain approximately 10,000 square feet and all are developed by single family dwellings. On 21 of the 34 lots two story houses exist. Therefore, proportionally, 620 of the lots on Sunset Lane have single family houses with two stories. Sunset Lane' s neighborhood is in transition. Within the last 10-15 years, the homes have gone from summer residences to year round residences. -5- Of the 21 two-story homes, nine (9) were constructed as two- story homes, ten ( 10) of the two-story homes have been renovated increasing their size and two (2 ) single story homes have been reconstructed or remodeled to two-story homes. The entire neighborhood including Sunset Lane, First Way, Second Way and Meridian Lane contains 80 lots. All of the lots are non-conforming to the present zoning. Five (5) of the lots are vacant and 75 lots have houses. Thirty-six (36) of the 75 houses, or 48%, contain two-story houses. See Exhibit "B" attached and incorporated by reference is a copy of Assessors Map 301. The lots designated in red contain two-story houses. The two (2 ) lots in yellow are lots with two-story houses under construction, locus is in black. In applying the "second except" clause of §6 and the local by-law to the present structure, the question is whether the proposed change to the alleged nonconforming residential structure increases any alleged nonconforming nature. The facts of this case compels the conclusion that if any nonconformity exists, there is no increase or intensification of any such nonconformity. The Rudders ' structure met all of the zoning requirements except lot size. The new structure meets all of the zoning requirements except lot size. The facts presented demonstrate that the new house does not intensify the alleged nonconformities or result in additional ones. See Willard V. -6- Board of Appeals of Orleans, 25 Mass. App. Ct. 15, 514 N.E.2d 369 ( 1987 ) (Board should determine whether proposed alteration or addition intensifies existing inconformities or creates new ones) . What is currently on the lot is the same as what was previously on the lot: a completely conforming structure on an undersized lot. On these facts no intensification exists and the Board should find as such. In view of the facts of this case and the supporting case law, it is the position of Dr. and Mrs. Rudders that the Board should again deny the appeal presented by the Dugas ' for the following reasons: ( 1) The building inspector acted permissibly in granting the building permit, although the by-law does not include the word reconstruction. The Town has historically taken the position that by a property owner to merely maintain a single wall and reconstructed the entire house was not substantially different than destroying the entire structure and rebuilding the structure, but constitutes an extension or alteration of the existing structure. The present Building Commissioner and his immediate predecessor share this view; (2 ) The present change in the location of the foundation back from the road and more northerly on the lot were due in an attempt to accommodate the concerns of the complaining abutter, Mr. Dugas; I -7- (3 ) The Affidavit of Joseph Dugas states that he had lost 70% of his view of Barnstable Harbor. This Affidavit was submitted to the Land Court. The location of the view to Barnstable Harbor has never changed. The location of the Rudders ' house has preserved that view to the extent possible as is shown by the pictures which are part of this presentation, therefore, the Rudders ' dispute the Dugas ' representation. Paragraph 8 simply is not true. The statements have been perpetuated at all of the various forums that Mr. Dugas has appealed. While what impact the Dugas ' Affidavit may have had on the Land Court' s position is uncertainable, it certainly is unfair that reaffirmations of the distortions have occurred; (4 ) The use of the property with the first house was a single family residence and the use of the property with the present structure is a single family residence, the new residence meets all of the zoning dimensional requirements. The new dwelling does not intensify any asserted nonconformity. In Watros v. Greater Lynn Mental Health & Retardation Assoc. , Inc. , 421 Mass. 106, 653 N.E.2d 589 ( 1995) , the property contained a two-family house and a barn. The barn was converted to housing for handicapped individuals. This was a change in use of the building, but because the educational use was protected by Ch. 40A S3, the Court ruled that it did not constitute an increase in the nonconforming nature of the structure. Therefore, where there is no change requiring zoning relief, there is no increase in the nonconforming nature of said structure and it would be allowed without relief and the building inspector could issue the building permit; (5) In the Rudders ' situation, the new structure is in compliance with everything but lot area which was the case with the prior structure after the zoning changes. Cox vs. Board of Appeals of Carver, 42 Mass. App. Ct. 422, 677 N.E.2d 699 ( 1997 ) (extensions and changes to nonconforming structures are allowed if the extensions or changes themselves comply with the ordinance or by-law) . (6 ) If the new structure constitutes an intensification of the nonconformity, is the new structure more detrimental to the neighborhood? Under the Willard case the neighborhood must be identified. The neighborhood is a residential area of nonconforming lots. It is transforming from single story to two-story houses. The Rudders ' house is smaller than many of the other houses in the neighborhood. Traffic in the area is in part dictated by the commercial nature of the area to the west, the marina, restaurant, shop, fish market, office building and public beach. The Rudders use of the property remains residential with one less bedroom on the public sewer. In the Lomelis case, changes in the size of the new structure did not constitute a substantial change or alteration. The Court in Bridgewater v. Chuckran, 351 Mass. 20, 127 N.E.2d 721 sets out the three tests the Court has adopted to determine -9- whether a current use of property is a protected nonconforming use. Assuming the Rudders did not have the protection of Ch. 40A §6: " ( 1) whether the use reflects the 'nature and purposes ' of the use prevailing when the zoning by law took effect . . . (2 ) whether there is a difference in the quality or character, as well as the degree of use . (3) whether the current use is 'different in kind in its effect on the neighborhood. '" The Rudders ' current use and prior use of locus are the same - single family residential; (7) the Cape Resort Hotel, Inc. case illustrates how a use can change and be detrimental. In that case the property was originally used as a hotel and supplied food and entertainment to is guests. As it changed, the focus went to entertaining non-guests. The numbers of people using the facility increased substantially, the hours of use expanded, the traffic increased, the disruption at closing time was louder with patrons fighting, car noise, and waking up the residential neighbors. The findings of the Court established the detrimental impact. In the Rudders ' case, we have no detrimental impact. While we dispute the issue of the neighbors view claim, the view is not contemplated under the by-law as a basis of denying the Rudders relief. i -10- PROPOSED FINDINGS The Rudders respectfully request that the Board make the following findings: 1. That the building inspector in issuing the Rudders ' building permit was acting consistently with his prior practice; 2 . The original use of locus was single family residential and there has been no change of use; 3. At the time it was constructed the original three (3) bedroom single family residence complied with the applicable Town of Barnstable zoning by-laws; 4 . Through the period of changes in the by-law, the property has been held in separate ownership; 5. The Rudders ' property is subject to the protection afforded by M.G.L. Ch. 40A §6; 6. That the lot became undersized because of subsequent changes of the minimum lot size required for this zoning district; 7 . Locus contains 10,000 square feet of property, as do almost all of the 80 lots within the neighborhood; 8. The present structure complies with all of the zoning by-law requirements except for the minimum lot size; 9. The present structure, although different because it is a two-story house as opposed to a one-story, has 2% less lot coverage for habitable space and contains two (2) bedrooms instead of the three (3) bedrooms in the original structure. -11- The new structure does not constitute a substantial alteration or extension of any nonconforming use; 10. The neighborhood is changing from single story to two- story houses and the changes to the Rudders ' house reflects that change, as does the abutter' s home; 11. Sunset Lane is abutted by 34 house lots. All of the lots in the area are now undersized. Twenty-one (21) of the 34 lots have two-story houses, many larger than the Rudders ' house. Sixty-two (62%) percent of the lots contain two-story houses, therefore, a clear majority are presently two-story houses. The Rudders ' house is consistent with the changing neighborhood; 12. Nine (9) of the houses on Sunset Lane were originally built as two-story. Ten ( 10) of the two-story houses originally were built as one-story and remodeled to add a second story. Two (2) of the single story houses have been reconstructed with two-story houses; 13. If the entire subdivision is included as the neighborhood, the lots are laid out on four (4 ) streets with 80 lots. Five (5) are vacant and 75 have houses. Thirty-six (36) of the 75 houses are two-story or 48% of the houses,; 14 . Two (2) of the houses presently under construction in the subdivision are two-story houses; 15. The foundation and structure footprint of the original structure contained 1315 square feet, without a garage; i -12- 16. The footprint of the present structure is set back further from the roadway and further away from the abutter, Dugas. The habitable space (foundation footprint) excluding the garage is 1260 square feet. The garage is 14 , x 341 ; 17 . The original footprint of the house contained approximately 13% coverage on the lot. The present structure, without the garage, contains approximately 11% lot coverage; and 18. The new structure does not intensify any existing nonconformity; 19. Because the use of locus has not changed, and the present structure is not significantly different from all of the other structures in the neighborhood, the reconstruction, is not substantially more detrimental to the neighborhood than the former dwelling. By their attorneys, J mes Quirk, Jr. , Esq. BO #409780 omas Perrino, Esq. , BBO #555297 UIRK CHAMBERLAIN, P.C. 9 Willo Street, P.O. Box 40 armouth ort, MA 02675-0040 508) 36 -6262 DATED: May 5, 1999 f K/ OR 14(11 Ivi G��G-rNA� kbus� q 1 10 38 .sus .•f„ - ° 33 J37 35 z , / 1 p s $. •249 Art ¢ ry o° !� 3034 cc �t•7 J3�� / /f�� �C 22f 133 0 i .az 1 2� � v '>< 38.17� Aft Aq mfl9: !7L,G 39 Is / 1134G ! REV. BY I AWS .44ft .16 . / ORIGINAL 10 1 1 00 1 ac'f �' lj�� g lfne 31 , 13 e I j2 F2 / 1. .bat 6 n 1 - moo 301 no 3ta UPPER Cv��;Ru�TioN° z 5 m R y Ms.Virginia Grace Shepherd 1149 Shoreline Dr San Mateo,CA 94404.2006 0 Q S �999• `t �� h� ►��y�.eve c ((so- ski- 31/4) JAN-Oi-1900 00:03 P.02i02 Ahn.and Sally Johnson 99 Smset Lme Barnstable,MA 02630 (509)362.6292 April S0, 1999 Mr.Emmett Glynn Chsiom=6 Zoniag Board dAppeals Town of BauwmMe 230 Souib Stm Hyannis,MA 02601 : Rudders property,�6 Sunset Lue,Bwas Me 'Dew W Giyna: The purpose of this lei isi to a T=8 our 001 m 99ardiug thO Rudders p upraty at 36 Sunset Lane in Bamstabie. We find the pm perly and new home that was constzucted one the lot to be an improvemrat to the zdg'hborhaod,and nay detrimemd to the fires.We hope you would consider this is your derision malding process. Sincerely, 44�6Alan and Sally Jobwoun TOTAL P.02 ct YlLf�fh�St�htP �pn+ IN._ L" e-4I-J aF 1.),rlg f IV AA:c ku� iaw-4-- -40 C%, .w �q CCQc� rip zm _ _ ltq�g-- C, �.;f a.�; r999 �_„ !r � ,% 1 ��c[�.� Y,�a . � � � �� �� ���� April 16, 1999 Chairman Zoning Board of Appeals Town of Barnstable Barnstable, MA 02630 Dear Sir/Madam: As a long time homeowner in the Village of Barnstable (58 Second Way) and a nearby neighbor of Richard Rudders, I would like to record the following concerning the construction and completion of his new house: 1. It is an attractive, tasteful and high quality dwelling that adds considerably to the character and ambiance of the neighborhood. 2. It is in no way a detriment to the neighborhood; rather, it compliments the improvements which have occurred with other neighborhood properties over the past several years. In short, I definitely view the Rudder house as a very positive factor in our neighborly life and living on Cape Cod. Sincerely yours, Robert M. Lewis 58 Second Way P.O. Box 904 Barnstable, MA 02630 ( M) Roger & Marge Metcalfe 163 SUNSET LANE BARNSTABLE, MASSACHUSETTS 02630 April 20, 1999 Mr. Emmett Glynn, Chairman Zoning Board of Appeals Barnstable, MA 02630 Dear Mr. Glynn: In reference to the. Richard Rudder home on Sunset Lane in Barnstable Village, we find the design very appealing; and not at all detrimental to the area. Yours very truly, Roger & Marge Metcalfe A_P o T �S jf2 S r w A y /5 14 12- ,V ST0 r 1414 4 400r .4/�L/ 77E�t- G PAC SUN SF-7" L..4iVF_ 6,4/LAJ 57Z/S-C � oA- ,qAJ tX419Z A_;01X-,q 4161 77&,q ✓l?/� />vrJ!�Cam,S 2 �-c ���2 y co�l,1 S/'n.�!C� n /� � � ��� T �--.4 7-0 w/1.//-,5 7_6 717L,5_� 2S P/ 4 J CT 7-0 dG/L /<ivvCu L i o(� L Pi4Z /-/O"D*1 g C-0AJS711-vc1707U / 17— y L0C477OVIV OAJ 7771-9 r/ �4 Al-0 .4G6- 5 £7"/3AC/e- T C a12 E.� .4 2 c/�/T� j / T /S' v�2 y �� L 4 SSY 1` %v 777'� 6 r� off-- 7 a/72 G p.V STn— v e j7 dkJ �� J ITS I Av 77f-,r L�c� l�ljorL17,va/2 &.(4/Z/> D Llv �lfv/J !i(,"` �!J Y G/� v/t-- i'y!/L /L c1lJ✓l�/Z S �/t-o J �. c j'_ U John & Edna Blake 20 Fox Hill Lane Norwell, Massachusetts 02061 April 19, 1999 Dear Mr. Glynn: We are writing in response to the Public Hearing Notice we received, April 1211999: appeal number 1998-37. We have been abutters to Dick and Joan Rudders for seventeen years. We feel that their new dwelling has been reconstructed in a tasteful manner and certainly is not a detriment to our property. Sincerely, John & Edna Blake S 9 "Vg Ze �/>/� -- �_/J�v•?/cL.�S ��/I O�LG� �yl o Ti �i �'C�/ /�,f cam' ol •t-1 all ev��9 G CliG/aw.� Gl Ox TS Q 4 • a �� ,mod�G��-�,� ��� _ -,eiq� � gel) 113 9� CGS,art � � April 28, I999 To Whom It May Concern, We own the property across the street from the Rudders on Sunset Ise in Barn- stable. Although we are aware of building and legal issues,the new house is beautiful. It adds appearance and property value to the constantly changing neighborhood. 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Y '•�<�FAH '►7. - P J a ! l• ��•.�(j�a � .Jt .i q ' y 'any- ,� C•. •�`a''',C >'yt 7s" �•a �"` I w.. '!." �r bwl .� Yraa��r..!� >�+�� r r Arc �'? • :� i�� '• sii a.I�1 a-� _ •�•�-ia �ij.;i -t�� 44 ^�..r�, At; j—_.► NAM �I■t�.! ��� _art2r Pdt1'i11•:. Ke#^.l_ ....r.. _ .-.� +may!'e� [� ���_ ,.r•u"$"'w� �..,.. xt�.x Jh'JLJ r_:SJ ii.C.. -1ceF 'fii�+ ,.. .t r .^� ^�,s•• Lb4{ - � 1 ..� .w+Y�j Gt� ,JiLti�►L�r::.s_ `� _ }1 I � N.tr69'-!r Y 'r1�!'3i ` �ilI' Aid ,iS'�.yC•LLa vit�� c " 4'"'a..t' y-:�..�,t-;et;1iZ<f'.$, ��.o aY '� � /�.3:�7LL a► n ,... a�....�...i aE:s11J..L .♦ - ... `�i- �_. _.�u.tcn� '�-' � ,,.,,-a=sas..a.-.,_::.3i►:. ��'�fi L w r QUIRK AND CHAMBERLAIN, P.C. COPY c ttoznEyi and C ou.nsEffot., at-faw 99 WILLOW STREET JAMES H.QUIRK,JR. POST OFFICE BOX 40 ROBERT C.CHAMBERLAIN YARMOUTHPORT, MASSACHUSETTS 02 6 7 5-0040 BARNSTABLE OFFICE PAMELA S. MARSH ' POST OFFICE BOX 92 508/362-6262 THOMAS J. PERRINO BARNSTABLE.MA 02630 FACSIMILE 508/362-6060 ANASTASIA WELSH PERRINO 508/362-43 1 4 OF COUNSEL WILLIAM E.CROWELL,JR. March 31, 1998 VIA FACSIMILE AND FIRST CLASS MAIL (508) 775-3344 Robert D. Siu th, Town A l_—oraey Town of Barnstable 367 Main Street, New Town Hall Hyannis, MA 02601-3907 RE: RICHARD RUDDERS AND JOAN RUDDERS VS. BUILDING COMMISSIONER OF THE TOWN OF BARNSTABLE AND OLD KING'S HIGHWAY COMMITTEE OUR FILE NO. 927/8533 Dear Mr. Smith: Please be advised that I have spoken to Mr. Crossen regarding the Court' s Order in the above-captioned matter. He is prepared to lift the Cease and Desist Order. Kindly confirm that the Town intends on complying with the Court' s Order. Please let me know immediately. Thank you for your attention to this matter. I look forward to hearing from you today. Very truly yours, QUIRK AND CHAMBERLAIN, P.C. Thomas J. Perrino, Esq. TJP:cam cc: Mr_—:Ralph=Crossenwa-fac=simile r �•.°��"�' .� TOWN OF BARNSTABLE BARNSTABLE. OFFICE OF TOWN ATTORNEY MASS. 2639• `eg 367 MAIN STREET rEot � HYANNIS, MASSACHUSETTS 02601-3907 ROBERT D.SMITH, Town Attorney September 24, 2002 TEL.(508)862-4620 RUTH J.WEIL, 1st Assistant Town Attorney FAX#(508)862-4724 T.DAVID HOUGHTON,Assistant Town Attorney` CLAIRE R.GRIFFEN, Legal Assistant Gerald S. Garnick, Esq. Garnick & Scudder, P.C. 32 Main Street P.O. Box 398 Hyannis, MA 02601 Re: Your letter of September 24, 2002 regarding Richard Rudders Our File No.: #2002-0214 Dear Gerry: I am writing in response to the above-referenced matter. I want to emphasize that our office represents the interests of the Town of Barnstable as a whole and not those of individual abutters. In analyzing what course of action to pursue in a particular case, our office must determine what is in the Town's corporate best interest, evaluating the legal claims raised while at the same time weighing public policy concerns and fiscal constraints. Consonant with this approach, the Supreme Judicial Court has made it clear that a lawyer cannot be retained to represent both the interests of the town and private parties in an action. See generally, Town of Edgartown v. State Ethics Commission, 391 Mass. 83 (1984). Further, you have been advised and are aware that the regulations governing enforcement of the Old King's Highway Regionai Historic District statute specifically permit any person who believes that a violation has occurred to seek a criminal complaint against the alleged violator. 972 CMR 3.01(1). Apparently, your client has exercised his prerogative not to pursue this legal remedy. I have shared your letter with Jeffrey Wilson, Chairman of the Barnstable Committee of the Old King's Highway Historic District. He is amenable to entertaining an informal discussion of your client's concerns at the end of the Committee's October 9th meeting provided that the Rudders and their attorney are able to participate on that 2002.0214Agarnitrl] Gerald S. Garnick, Esq. September 24, 2002 Page 2 date as well. If October 9th, 2002 is not feasible for either your client or the Rudders, a mutually agreeable date should be arrived at to schedule such a discussion. Please contact Planning Director Thomas Broadrick at 508-862-4686, should you need to reschedule said informal discussion, either because of your unavailability or that of the Rudders. Thank you for your consideration of this matter. Since ly yours, RJW:cg Ruth J. Weil, First Assistant Town Attorney Town of Barnstable cc: Jeffrey W. Wilson, Chair, Old King's Highway Historic District Committee cc: Thomas A. Broadrick, Planning, Zoning & Historic Preservation Director Cc: Thomas Perrino, Esq., Attorney for Richard Rudders c: Thomas Perry, Building Commissioner [99.0225\garnitr7] �V � ✓ ' Garnick & Scudder, P.C. ATTORNEYS AT LAW 32 MAIN STREET POST OFFICE BOX 398 GERALD S.GARNICK HYANNIS,MASSACHUSETTS 02601 LOIS M.FARMER JOYCE W. SCUDDER (508)771 -2320 PAIJL J.ATTEA FAX:(508)771 -3304 September 12, 2002 Ruth J. Weil, Esq. 15EP i3 •' ' Town of Barnstable Office of Town Attorney 367 Main Street - Hyannis, MA 02601-3907 Re: Richard Rudders et al v. Building Commissioner, et al Joseph Dugas Your File No.: #98-0027 Our File No. 15180 Dear Attorney Weil: I am in receipt of your August 27, 2002 letter and it has taken me some time to respond to it because Mr. Dugas has been out of town. First and foremost, I want to apologize to you. You are correct in stating that the Town did not oppose my client's Motion to Intervene. I stand corrected concerning my statements in my letter of August 26, 2002 to you and I thank you for bringing it to my attention. However, my client and I still believe that as a result of the Rudders going forward with the construction of their home, at their own peril and in violation of the stop work order, and not complying with the plans as submitted to the Historic District Committee, the Town and/or the Committee, through your office, does in fact have an obligation to pursue these wrong actions by the Rudders. The Court's statement that the Town was protecting the interests of the abutters is in our opinion correct. Throughout the entire litigation there was no comment from the Town or from the Committee that you would not be protecting our interests. The fact that we did not appeal the Court's decision is immaterial in light of the fact that you did not do anything to express or contradict the Court's finding and you were defending the same issues and concerns as the Dugases. Your pursuit in the defense was a clear indication that if in fact you did prevail, that actions would take place against the Rudders as a result of their violations. Otherwise, why would you be defending the case. I Ruth I Weil,Esq. Page 2 9/12/02 I would greatly appreciate it if you would in fact inform us as to whether or not any such actions by either the Town or the Committee are going to take place. This office and the Dugases stand ready, willing and able to discuss these matters kvith you and the Committee in order to determine what actions will be brought against the Rudders. Very truly yours, GARNI *SQDDER, P.C. Gerald S. GSG:cmg Cc: Joseph Dugas 01-08-1938 10:31AM FROM SWEETSER ENGINEERING TO 3626060 P.01 + f f 10000 J P .It j CTj A f LOS" 14I & I¢3 1 ZZ Y 10 Qs Qj 11 Fej n/ yy 1 ,?�� �n/!,'6'J -'`f� Jam.• y�l r T M1 VJ T rl f To THE �Esr of M AS—BUILT PLOT FLAN Y INFORMIA-r10N, BARNSTABLE, MASS. KNOWLEDGE, AND BELIEF THE. ,,t;,,� LOTS �� FOUL DA110N SHOWN ON TNI "�►iof ,.,"•s.� L. C.17933A PLAN HAS BEEN LOCATED;: �L? s,�;.� DATE DEC. 1 1997 SCALE 1 cRauNa As INDICATED. ���� �"������� .:�,��. JOB 3972—tip CLIENT HAMLYN f S l Fa 'gq •, �' //rii�i�7L' l'ri Yi11 yjr �l Y�7 r 235 GREAT WESTERN ROAD QEC. 1, 199a —. P.O. 8( 713 �_ r �L1L �.�� A' PROI-. LAND SU "V1�C�Fd 3J8 3s22 SOUTH DENNIS, r�asS. DAT TOTAL P.01 4 TOWN OF BARNSTABLE BARNSTABLE. ' OFFICE OF TOWN ATTORNEY MASS yew• eg 367 MAIN STREET 'rEOMA+". HYANNIS, MASSACHUSETTS 02601-3907 ROBERT D. SMITH, Town Attorney TEL. (608)790.6280 RUTH J. WEIL, Assistant Town Attorney NIGHT LINE-AFTER 4:30 P.M. CLAIRE R. GRIFFEN, Legal Assistant October 9, 1998 (508)790-6283 EILEEN S. MOLLICA, Legal Clerk FAX N(508)775-3344 Mrs. Phyllis A. Day, Clerk Barnstable Superior Court, Civil County Court Complex, Main Street P.O. Box 425 Barnstable, Ma. 02630 Re: C.A. No. 98-111, Barn. Supr. Ct. Richard Rudders, et ux v. Building Commissioner, etc., Barnstable Old Kings Highway Committee Our File Ref: #98-0027 Dear Mrs. Day: Enclosed please find the Defendant, The Barnstable Old King's Highway Committee's Notice of Appeal which appeals the Appeals Court from the Decision and Order captioned "Memorandum of Decision and Order on the Plaintiffs' Motion to.Strike Appeal of Defendant, Barnstable Old Kings' Highway Committee" filed with the Court on September 11, 1998, which we would appreciate your filing with the Superior Court. Thank you. Sincer ,, RJW:cg - Ruth J. Weil, Assistant Town Attorney Encs. Town of Barnstable cc: Robt. C. Chamberlain, Esq. & Thomas J. Perrino, Esq. cc: Old King's Highway Regional Historic District Committee cc: Building Commissioner, Town of Barnstable [98-002'Aday-apl2]. t 'Ys COMMONWEALTH OF MASSACHUSETTS BARNSTABLE, ss: SUPERIOR COURT C.A. No. 98-111 RICHARD RUDDERS and NOTICE OF APPEAL JOAN RUDDERS, Plaintiffs, ON BEHALF OF THE DEFENDANT, THE V. BARNSTABLE OLD KING'S HIGHWAY COMMITTEE. BUILDING COMMISSIONER FOR THE TOWN OF BARNSTABLE and THE BARNSTABLE OLD KING'S HIGHWAY COMMITTEE, Defendants. NOTICE IS HEREBY GIVEN, that the Defendant, THE BARNSTABLE OLD. KING'S HIGHWAY COMMITTEE, hereby appeals to the Appeals Court from the Decision and Order captioned "Memorandum of Decision and Order on the Plaintiffs' Motion to Strike Appeal of Defendant, Barnstable Old Kings' Highway Committee" entered with the Superior Court on September 11, 1998. Dated: October 9, 1998. THE BARNSTABLE OLD KING'S HIGHWAY COMMITTEE, TOWN OF BARNSTABLE, Defendants, By their Attorneys, 44k��- A-V—� OBERT D. MI , Town Attorney [B.B.O. No. 4 80] RUTH J. WEIL, Assistant Town Attorney [B.B.O. No. 519285] TOWN OF BARNSTABLE 367 Main Street, New Town Hall Hyannis, Ma. 02601-3907 (508) 790-6280; (508) 775-3344 FAX [9H0271notcap13] 1 TO: ROBERT C. CHAMBERLAIN, ESQ. [B.B.O. NO. 080368] THOMAS J. PERRINO, ESQ. [B.B.O. No. 555297] Attorney for Plaintiffs Quirk & Chamberlain, P.C. 99 Willow Street P.O. Box 40 Yarmouthport, MA 02675-0040 (508) 362-8262; (508) 362-6060 Fax CERTIFICATE OF SERVICE Barnstable, ss: October 9, 1998. 1 hereby certify under the pains and penalties of perjury, that I caused to be mailed by first-class mailing, postage prepaid, a copy of the Notice of Appeal to the attorney for plaintiffs on the date written above. Theresa M. Cahal ne, Legal Clerk Town of Barnstable 367 Main Street, New Town Hall Hyannis, Ma 02601-3907 (508) 790-6280; (508) 775-3344 Fax [98-00271notcapl3] 2 l r Mailings: ROBERT C. CHAMBERLAIN, ESQ. THOMAS J. PERRINO, ESQ. Attorneys at Law Quirk & Chamberlain, P.C. 99 Willow Street P.O. Box 40 Yarmouthport, MA 02675-0040 (508) 362-8262; (508) 362-6060 Fax TO: ROBERT C. CHAMBERLAIN, ESQ. [B.B.O. NO. 080368] THOMAS J. PERRINO, ESQ. [B.B.O. No. 555297] Attorney for Plaintiffs Quirk & Chamberlain, P.C. 99 Willow Street P.O. Box 40 Yarmouthport, MA 02675-0040 (508) 362-8262; (508) 362-6060 Fax [98-00271notcapl3] 3 QiJIRK AND CHAMBERLAINS P.C. ogttoanEp and CounjEffo ti at 1'aw 99 WILLOW STREET JAMES H.QUIRK,JR. POST OFFICE BOX 40 ROBERT C.CHAMBERLAIN BARNSTABLE OFFICE YARMOUTHPORT, MASSACHUSETTS 02675-0040 PAMELA B. MARSH POST OFFICE BOX 92 THOMAS C. PAQUIN 508/362--6262 THOMAS J. PERRINO FACSIMILE 508/362-6060 BARNSTABLE,MA 02630 ANASTASIA WELSH PERRINO 508/362-4314 OF COUNSEL WILLIAM E.CROWELL,JR. February 11, 1999 Ralph Crossen, Building Commissioner Town of Barnstable 367 Main Street Hyannis, MA 02601 RE: DUGAS v. RUDDERS LAND COURT NO. 24.6863 OUR FILE NO. 927/8355 Dear Ralph: - In accordance with our conversation, enclosed please find copies of the cases referred to in the decision of the Land Court Judge, as well as a copy of his decision for your review and information. As I indicated to you, I will continue to provide information as the matter progresses. In the meantime, if you have any questions after reviewing this information, please do not hesitate to contact me. Very truly yours, QI K AND CHAMBE LAIN, P.C. s (Enclo men H. Quirk, Jr. , Esq. Q/mre ures f COMMONWEALTH OF MASSACHUSETTS Land Court Department of the Trial Court Miscellaneous Case No. 246863 JOSEPH F. DUGAS & another,' Plaintiffs VS. GENE BURMANZ & others,3 Defendants DECISION ALLOWING PLAINTIFFS' MOTION FOR SUMMARY JUDGMENT AND ORDER OF REMAND Plaintiffs appeal, under G. L. c. 40A, § 17, the decision of defendant members of the Barnstable zoning board of appeals(board)to uphold the Barnstable building commissioner's refusal of plaintiffs' request that the building inspector revoke a building permit issued for the construction of a single family residence on certain land located at 36 Sunset Lane, in Barnstable (locus). Plaintiffs filed their unverified complaint on March 26, 1998. Following the answer of defendants Richard Rudders and Joan Rudders(Rudders),'filed on April 21, 1998,plaintiffs moved for summary judgment. The Rudders and the board both filed oppositions to the motion. A hearing was held on the motion on October 27, 1998, at which all parties appeared. 'Edith W. Dugas 2As he is a member of the Barnstable zoning board of appeals 3Gail Nightingale, Elizabeth Nilsson,David Rice, Emmett Glynn, Richard Boy and Ron Jansson, as they are members of the Barnstable zoning board of appeals; and Richard Rudders and Joan Rudders 'The board is not required to file and answer. G. L. c. 40A, § 17. 1 r The record for purposes of summary judgment includes the following materials: (i)affidavit of plaintiff Joseph Dugas, dated June 4, 1998, with exhibits; (ii) attested copy of letter of Ralph Crossen,Barnstable building commissioner(commissioner),to plaintiffs'counsel,dated January 6, 1998; (iii) copy of the board's decision dated March 17, 1998, and filed with the town clerk on March 18, 1998, in appeal number 1998-37; (iv) attested copy of the payment records of the Barnstable tax collector regarding real property tax payments made for the account of locus during tax year 1997; (v)attested copies of the building permit application, dated September 19, 1997,by the Rudders, and building permit, dated November 14, 1997, issued by the commissioner to the Rudders, for demolition of an existing residence and construction of a new residence on locus; (vi) attested copy of the record maintained by the Barnstable assessor's office of the real property taxes assessed against locus; (vii) attested copy of a portion of the Barnstable zoning map, showing the portion of the town in which locus is situate; (viii)attested copy of the Barnstable zoning ordinance as amended through April 16, 1998(by-law)and of various amendments thereto; (ix)attested copy of plot plan of locus, dated September 19,.1997,and drawn by Sweetser Engineering; (x) affidavit of Arthur Traczyk, Barnstable principal planner, dated October 16, 1998; and (xi) affidavit of plaintiff Joseph Dugas, dated October 26, 1998, with exhibits. The following facts are not in dispute. 1. Plaintiffs own and reside at property located at 30 Sunset Road, in Barnstable. Plaintiffs' property abuts locus to the south. 2. The Rudders own locus. Prior to the events which have given rise to this action,locus was improved by a one-story single family residential dwelling(former dwelling). Locus is located in an RB zoning district,which requires a minimum lot size of 43,560 square feet. Locus contains 2 I , only 10,000 square feet and, consequently, is nonconforming in that respect. However, locus complied with the applicable lot size requirements when the former dwelling was constructed. As situated on locus,the former dwelling complied with the applicable setback and other dimensional requirements (other than minimum lot area) in effect under the current by-law. 3. On or about September 19, 1997, the Rudders applied to the commissioner for a permit to demolish the former dwelling and to construct a new,two-story, dwelling on locus(new dwelling). As proposed, the new dwelling would comply with applicable setback and other dimensional requirements(other than minimum lot area). Plaintiffs assert that the new dwelling will occupy a different footprint from that of the former dwelling,but I am unable to.determine the extent of the difference from the materials in the record. 4. The commissioner issued the requested building permit on or about November 14, 1997, and construction commenced shortly thereafter. 5. By letter dated December 30, 1997,plaintiffs' counsel made a written request to the commissioner for enforcement under G. L. c. 40A, § 7.5 Following the commissioner's denial of their enforcement request, plaintiffs appealed the denial to the board. 6. Following a hearing held on March 4, 1998, the board voted to uphold the commissioner's decision. The board filed a written decision, dated March 17, 1998, with the Barnstable town clerk on March 18, 1998. As reasons for its decision, the board referred to its findings of fact, which included the following: 5The Rudders assert in their opposition that plaintiffs previously had requested the building inspector to issue a stop work order, and the building inspector had complied with such request. However,the record does not establish their assertion, and the matter is not germane to this order. 3 116. Under the [by-law], section 4-4.2 (1) Nonconforming Lots - Separate Lot Exemption-this lot qualifies as a legal nonconforming lot. 7. The building is a legal building. It is conforming and meets all the setbacks of the [by-law]. It is not a nonconforming building. 8. The [commissioner] in his letter of January 06, 1998 (which the applicants are appealing) states `your contention about the Building Code is factually wrong as stated, therefore I see no reason to go any further with it. Finally, an as built, as submitted, is what the Town customarily accepts. We see no problem with this one.' 9. The demolition of an other wise [sic] conforming building on a nonconforming lot does not cause the lot to loose [sic] its nonconforming status." 7. Section 4-4.2 (1) of the by-law provides: "Any increase in area, frontage, width, yard or depth requirement of the [by-law] shall not apply to a lot for single or two-family residential use which at the time of recording or endorsement: A was not held in common ownership with an adjoining land; and ) P Y J g � B) had a minimum of 5,000 sq. ft. of area and 50 feet of frontage or the minimum requirement for the zoning district in which it is located; and C) conformed to the existing zoning if any when legally created; and D) was separately owned at the time of every zoning change which made it nonconforming." 8. Section 4-4.3 of the by-law provides: "A pre-existing nonconforming building or structure that is used as a single or two family residence may be physically altered or expanded only as follows: 1) As of Right: If the [commissioner] finds that: A. The proposed physical alteration or expansion does not in any way encroach into the setbacks in effect at the time of construction,provided that 4 encroachments into a 10-foot rear or side yard setback and 20-foot front yard setback shall be deemed to create an intensification requiring a special permit under Section 4-4.3(2); and B. The proposed alteration or expansion conforms to the current height limitations of the [by-law]. 2) By Special Permit: If the proposed alteration or expansion cannot satisfy the criteria established in Section 4-4.3(1) above, the [board] may allow the expansion by special permit provided that the proposed alteration or expansion will not be substantially more detrimental to the neighborhood than the existing building or structure." 9. Section 4-4.6 of the by-law provides: "1) The re-establishment of a lawful pre-existing nonconforming use and/or building or structure which has been destroyed or damaged by fire, acts of nature or other catastrophe, shall be permitted as of right, provided the building commissioner has determined that all the following conditions are met: A)The reconstruction or repair will not increase the gross floor area or height of the building or structure beyond that which previously existed, nor increase the footprint of the structure; B) If the building's location on the lot is to be changed, it will change in a manner that will result in a greater compliance with the bulk regulations established in the zoning district in which it is located; and C) The reconstruction or repair will not constitute an expansion or intensification of any nonconforming use. D) In the case of any use in which it would otherwise be required, the site plan review process has been followed. 2) The pre-existing nonconforming use and/or structure or building shall be discontinued unless a building permit has been applied for within 2 years from the date of damage or destruction, and construction is continuously pursued to completion." 10. Section 4-4.8 of the by-law provides: "Any lawful pre-existing nonconforming use or building or structure or use of land 5 which has been(i)abandoned or(ii)not used for 3 years, shall not thereafter be re- established. This section shall not apply in cases of damage or destruction governed by section 4-4.6." Summary judgment is appropriate in the instant case because there are no genuine issues of any material facts which would preclude disposition as a matter of law. Community Nat'l Bank v. Dawes, 369 Mass. 550, 553-556 (1976); Mass. R. Civ. P. 56(c). Before addressing the merits of the parties' arguments,I must address defendants'challenge to plaintiffs' standing. Defendants contend that plaintiffs have failed to present evidence to substantiate that they are "persons aggrieved." Plaintiffs are abutters to locus, and as such are entitled to the presumption that they are "persons aggrieved" within the meaning of G. L. c. 40A, § 17. Watros v. Greater Lynn Mental Health and Retardation Association Inc.,421 Mass. 106, 111 (1995). "The presumption recedes when a defendant challenges a plaintiff's status as an aggrieved person and offers evidence supporting his or her challenge." Id. Once the presumption is so challenged,the burden shifts to the plaintiffs to demonstrate that they are aggrieved,without benefit of the presumption. Defendants have produced no evidence to show that plaintiffs would suffer no injury to a cognizable legal interest as a result of the proposed construction. Accordingly,plaintiffs are entitled to rely on their statutory presumption,and bear no burden to produce evidence to support their standing. Defendants also challenge this court's jurisdiction to hear plaintiffs' appeal, on the ground that plaintiffs' action began with a request for enforcement under G. L. c. 40A, § 7.' However, 'Section 7 confers jurisdiction on the superior court to "enforce the provisions of this chapter" [G. L. c. 40A]. 6 plaintiffs' appeal is here under G.L.c.40A, § 17,pursuant to which this court's jurisdiction is clear. Defendants claim that the commissioner properly issued the building permit,because the new dwelling meets all applicable setback requirements and, accordingly, is not nonconforming. According to defendants,it is the lot,rather than the structure,that is nonconforming,and the lot is "grandfathered"pursuant to the provisions of G. L. c. 40A, § 6,14,and section 4-4.2 (1)of the by- law. Defendants' claim is inconsistent with the holding in Dial Awav Co.,Inc. v.Zoning Board of Appeals of Auburn,41 Mass.App. Ct. 165,further appellate review denied 423 Mass. 1111 (1996). See also Willard v. Board of Appeals of Orleans, 25 Mass. App. Ct. 15 (1987). Dial Away makes clear that improved lots are governed by the provisions of G. L. c. 40A, § 6,¶ 1. Accordingly, an otherwise conforming structure on a nonconforming lot is treated as a nonconforming structure. See also Holmes v. Doelger, 3 LCR 158, 159, miscellaneous case no. 212113 (August 18, 1995) (Scheier,J.). The board's decision is based on a legally incorrect premise,and is therefore annulled. This matter is remanded to the board for further proceedings consistent with this decision. In anticipation of the board's consideration of this matter on remand, I offer the following guidance on certain issues argued by the parties in this appeal. First,the new dwelling may be allowed if the new dwelling is a"reconstruction"as that term is used in the "second except" clause of the first sentence of G. L. c. 40A, § 6, ¶ L' Dial Away 'The first paragraph of§ 6 is "Except as hereinafter provided, a zoning ordinance or by-law shall not apply to structures or uses lawfully in existence or lawfully begun, or to a building or special permit issued before the first publication of notice of the public hearing on such ordinance or by-law required by section five, but shall apply to any change or substantial extension of such use,to a building or special permit issued after the first notice of said public hearing,to any reconstruction, extension or structural 7 i expressly recognizes that the"second except"clause allows reconstruction of nonconforming single- or two-family residential structures,despite more limited provisions for reconstruction under a local by-law. Dial Away,41 Mass. App. Ct. at 170- 171. For purposes of determining whether the new dwelling is a permissible reconstruction within the meaning of the "second except" clause, Dial Away further suggests that it does not matter that the Rudders voluntarily demolished the former dwelling. Angus v. Miller, 5 Mass. App. Ct. 470 (1977), and Martin v. Board of Appeals of Yarmouth,20 Mass. App. Ct. 972,further appellate review denied 396 Mass. 1102(1985),cited by plaintiffs, both involved nonconforming commercial structures, to which the provisions of the "second except" clause do not apply. See Dykens v. Board of Appeals of Quincy, land court miscellaneous no. 238329 (December 15, 1998) (Kilbom, C.J.).' Second, unlike the circumstances of Dial Away, the Rudders did not abandon the former dwelling simply by demolishing it. Abandonment is a question of intent. The Rudders demolished the former dwelling for the purpose and with the intent of constructing the new dwelling in replacement thereof. Such circumstances do not evidence an intent to abandon. Compare Dial change of such structure and to any alteration of a structure begun after the first notice of said public hearing to provide for its use for a substantially different purpose or for the same purpose in a substantially different manner or to a substantially greater extent except where alteration, reconstruction extension or structural change to a single or two-family residential structure does not increase the nonconforming nature of said structure." The "second except" clause is the last clause of the sentence, providing special protections for single or two-family residential structures. 'Plaintiffs suggest that a contrary result was reached in Siepel v. Board of Appeals of Eastham, 2 LCR 151, miscellaneous case no. 177558 (October 17, 1994) (Scheier, J.). That case was decided before Dial Away and, in any event, resulted in a remand to the board for a Goldhirsh determination in a manner similar to the remand under this order. 8 Away, 41 Mass. App. Ct. at 171 - 172 (rebuilding did not occur until twenty-three years following demolition). See generally Derby Ref. Co. v. Chelsea, 407 Mass. 703 (1990). Third,the proposed new dwelling is not within the commissioner's approval authority under the provisions of section 4-4.3 (1)of the by-law. That section speaks to "extensions and alterations" but not to reconstructions. The proposed new dwelling, if it may be authorized at all, is not an extension or alteration, but is instead a reconstruction. See Dial Away, 41 Mass. App. Ct. at 168 - 169; Planning Bd. of Reading v. Board of Appeals of Reading, 333 Mass. 657, 661 (1956). Accordingly, the proposed reconstruction may be allowed only if the board finds that (i) the proposed new dwelling does not intensify the nonconformity, or (ii) (if it does intensify the nonconformity) the proposed new dwelling would not be substantially more detrimental to the neighborhood than the former dwelling. See Goldhirsh v. McNear, 32 Mass. App. Ct. 455, 460 - 461 (1992). See also Holmes v. Doelger, 3 LCR 158, 159,miscellaneous case no.212113 (August 18, 1995) (Scheier,I). Plaintiffs' motion for summary judgment is allowed, and the decision of the board is annulled. This matter is remanded to the board for further proceedings consistent with this decision. This court shall retain jurisdiction over this matter for any necessary review of the board's further action. So ordered. Mark V. Green J tice Dated: January 22, 1999 9 I i 158 Land Court Reporter Volume 3 SALT POND 6. Section VII.B.10.a regulates guest houses in the R-40 zoning THOMAS HOLMES,Managing Partner,ASSOCIATES GENERAL PARTNERSHIP district: a.There shall be not more than one guest house on any one lot,such vs. guest house may be separate from or a part of the principal dwelling, garage or bam.However,the floor area of a guest house shall not exceed C.PETER DOELGER,J.MICHAEL DOYLE,JOHN fifty percent(50%)of the floor area of the principal dwelling. LESLIE,JOHN RICOTTA,and LEONORE W ICHMANN,as b.A guest house may be used by the owner or occupant of the principal they are Members of the TOWN OF CHATHAM ZONING dwelling or his or her guests,or it may be rented. c.For such guest house,the lot on which it is constructed shall have at BOARD OF APPEALS least twenty thousand (20,000) square feet of buildable upland in addition to the minimum lot size required for the zoning district in which Misc.Case No.212113 it is located.No guest house shall have more than two(2)bedrooms. August 18, 1995 7. Plaintiff seeks to demolish the existing 868-square-foot guest Karyn F.Scheier,Justice house and construct a 3,652 square-foot main house in its place.In addition,Plaintiff wishes to convert the existing 3-bedroom main DECISION house into a two-bedroom guest house by eliminating one bedroom. If Plaintiff is allowed to construct the proposed laintiff Thomas Holmes,as managing partner of Salt Pond improvements, the usable living area of the buildings on the Associates,seeks review pursuant to G.L. c.40A, §17,of Property would increase by 100%. Defendant Chatham Zoning Board of Appeals' (Board) 8 On August 5, 1994,Plaintiff SPA filed an application with the decision denying Plaintiffs application for a special permit to Board, seeking to modify the prior nonconforming use of the modify a prior nonconforming use.Plaintiff seeks to convert what Property under Section V.B of the By-law.Section V.B provides is currently the main house on his property to a guest house,and to that construct a new larger main house in place of the current guest re existing nonconformingstructures or uses may be extended, house,which he would demolish.In support of its decision to deny alp�or changed in use by special permit,provided that the Zoning approval,the Board argues that Plaintiffs proposed extension of Board of Appeals finds that such extension,alteration or change will not detrimental to be substantially more detrimental to the neighborhood than the existing its nonconforming use would be substantially more the neighborhood than the existing nonconformity.Because I agree nonconforming uses..." with the Board that Plaintiff is not entitled to a special permit, I 9.In a decision dated October 25,1994,the Board denied Plaintiff s affirm the Board's decision. application for a special permit,stating that the proposed expansion of Plaintiffs nonconforming main house and guest house use A trial was held on March 30, 1990, at which three witnesses would be substantially more detrimental to the neighborhood than testified and 9 exhibits were admitted into evidence. A the present nonconformity. stenographer was sworn to transcribe the testimony.Based on all The sole issue before the Court is whether the Board reasonably the evidence,I make the following findings of fact: concluded that Plaintiffs proposed construction constitutes an 1.Plaintiff Thomas Holmes is the managing partner of Salt Pond extension of a lawful prior nonconforming use, and, if it does, Associates (SPA), a general partnership. SPA is the owner of whether the extension is substantially more detrimental to the property known as and numbered 85 Briggs Way,Chatham,and neighborhood 2 than the present nonconformity.n ornCty15 21-�11ard v. I shown on a plan recorded in the Barnstable County Registry of Board o A eals o Orleans, Mass.App. Deeds in Book 498,at Page 48(the Property). cannot disturb the Board's decision unless it is"based on legally untenable grounds, or is unreasonable, whimsical, capricious or 2.Defendants are members of and constitute the Chatham Zoning arbitrary-"MacGibbon v.Board ofAppeals of Duxbury,365 Mass. Board of Appeals. 635, 639 (1970)(MacGibbon II). Because I find the Board acted reasonably in denying Plaintiffs application,I affirm its decision. 3.The Property consists of 58,474 square feet of land supporting two structures:a main house of 1,768 square feet.and a guest house Prop decision,does not onfoim to the By-law: and the of 868 square feet. guest house use are situated on a lot with less than 4.The Property is located in Zone R-40 on the Chatham Zoning 60,000-square-feet.Plaintiff,in contrast,urges the Court to define Map and under the Chatham Zoning By-law(the By-law).As the the nonconformity in terms of lot area only. Under Plaintiff s result of an amendment to the By-law increasing the area theory,the Property is nonconforming because the lot size is less requirement for lots in the R-40 district with both a main house and than 60,000 square feet.Inasmuch as Plaintiff's proposal does not a guest house to 60,000 square feet,the Property is a lawful prior alter the size of the Property,the argument goes,it does not alter or nonconforming use under G.L.c.40A,S6 and the By-law. expand the nonconformity.I cannot agree. 5.Section II.B.40 of the By-law defines"Guest House"as follows: There can be only one reason Section VII.B.10.c requires an additional 20,000 square feet of area for lots supporting both a main "GUEST HOUSE"means a subordinate dwelling unit located on the house and a guest house: the Town has determined that two same lot as a principal one-family dwelling,owned and maintained by residential structures require more space than one.Thus,by falling the owner of the principal dwelling. " - Land Court Decisions 159 short of the 60,000 square feet of area required under the By-law, HENRY SLEDZ,ANNE SLEDZ,ANGIE WESTON,MARK Plaintiffs Property fails to provide the amount of area the By-law WESTON,ALBERT O'CONNOR,NORINE O'CONNOR, contemplates for lots with two dwelling houses. See Fitzsimonds JOHN HIGGINS,ANNA HIGGINS,DAVID STAGNONE, v.Board of Appeals of Chatham,21 Mass.App.Ct.53(1985). JOANNE STAGNONE,ROBERT NELSON,JOANNE NELSON,JOSEPH SULLIVAN, SHIRLEY SULLIVAN, Presently, the structures situated on the Property contain THERESA METRAS AND JOHN STONE approximately 2,600 square feet of living area Plaintiff proposes to increase the size of the structures such that the total living area vs. is more than doubled In that Plaintiffs lot already contains NANCY CENSULLO AND RICHARD SUGHRUE, insufficient square footage to support the existing structures, Individually,and CHERYL BUSCH,ROBERT FOWLER, Plaintiff seeks to increase the nonconformity by making the guest RICHARD KRAUSE,BRIAN O'CONNOR,ROBERT house on the Property bigger.I conclude,therefore,as the Board SULLIVAN,Individually and as members of the TOWN OF did, that Plaintiffs proposal would result in an intensification of TEWKSBURY PLANNING BOARD the present nonconformity.In addition,the Board's conclusion that the doubling of the square footage of living space on the Property Misc.Case No. 185353 would be substantially more detrimental to the neighborhood than the present nonconformity is a reasonable one.Plaintiff offers no JOHN HIGGINS,ANNA HIGGINS,DAVID STAGNONE, evidence that renders the Board's decision unreasonable,arbitrary, JOANNE STAGNONE,ROBERT NELSON,JOANNE or whimsical. See MacGibbon, supra. Although there was NELSON,JOSEPH SULLIVAN,SHIRLEY SULLIVAN, testimony from a real estate broker and one of the Chatham THERESA METRAS AND JOHN STONE,ALBERT assessors that the proposed project would be more aesthetically O'CONNOR,NORINE O'CONNOR,HENRY SLEDZ, pleasing than the existing buildings, and would make the ANNE SLEDZ,ANGIE WESTON,MARK WESTON surrounding properties more marketable,the testimony was at best speculative and conclusory,and without specific factual support. vs. Because I find the Board acted reasonably and within its authority NANCY CENSULLO AND RICHARD SUGHRUE, E in denying Plaintiffs special permit application, I affirm the Individually,and WALTER MACIEL, EDWARD decision. JOHNSON,SHARON PITTS,DONNA HARRINGTON,as members of the TOWN OF TEWKSBURY ZONING Judgment accordingly. BY-LAW BOARD OF APPEALS Misc.Case No 186825 William F.Riley,Esq. August 22, 1995 Toabe and Riley Robert Y. Cauchon, Chief Justice 154 Crowell Road P.O.Box 707 DECISION Chatham,MA 02633 Appears for Plaintiff laintiffs filed their first complaint(the Subdivision case)on October 20, 1992, alleging that the Town of Tewskbury Bruce P.Gilmore,Esq. Planning Board(Planning Board)exceeded its authority in 1095 Route 6A approving a subdivision plan of Defendant Sughrue. This P.O.Box 714 complaint was amended twice—on November 6, 1992 and again W.Barnstable,MA 02668 on January 7,1993.The amended complaint is pursuant to G.L.c. Appears for Town of Chatham Zoning Board of Appeals 185 §1(k) and G.L. c. 41 §81BB and alleges that the Planning * * * * * Board's decision does not comply with the requirements of the Tewksbury Subdivision Regulations. The complaint also alleges that the decision was overreaching and may result in serious, irreversible harm to the neighborhood environment and the Plaintiffs'property. On December 1, 1992,Plaintiffs filed their second complaint(the Zoning Appeal),pursuant to G.L.c. 185§l(p)and G.L.c.40A§17, claiming that the Tewksbury Board of Appeal(Board of Appeal) exceeded its authority by granting certain variances to the Defendants Sughrue and Censullo.Further,Plaintiffs allege that if the variances are allowed to stand, irreparable harm to the neighborhood environment and their property will most likely result. r COMMONWEALTH OF MASSACHUSETTS 2 OF�Ok/rtJ Land Court 9 Department of the Trial Court Miscellaneous Case No. 246863 JOSEPH F. DUGAS & another," . Plaintiffs VS. GENE BURMAN' & others,' Defendants DECISION ALLOWING PLAINTIFFS' MOTION FOR SUMMARY JUDGMENT AND ORDER OF REMAND Plaintiffs appeal, under G. L. c. 40A, § 17, the decision of defendant members of the Barnstable zoning board of appeals(board)to uphold the Barnstable building commissioner's refusal of plaintiffs'request that the building inspector revoke a building permit issued for the construction of a single family residence on certain land located at 36 Sunset Lane, in Barnstable (locus). Plaintiffs filed their unverified complaint on March 26, 1998. Following the answer of defendants Richard Rudders and Joan Rudders(Rudders),'filed on April 21, 1998,plaintiffs moved for summary judgment. The Rudders and the board both filed oppositions to the motion. A hearing was held on the motion on October 27, 1.998, at which all parties appeared. 'Edith W. Dugas 'As he is a member of the Barnstable zoning board of appeals 'Gail Nightingale, Elizabeth Nilsson, David Rice, Emmett Glynn, Richard Boy and Ron Jansson, as they are members of the Barnstable zoning board of appeals; and Richard Rudders and Joan Rudders 'The board is not required to file and answer. G. L. c. 40A, § 17. 1 The record for purposes of summary judgment includes the following materials:(i)affidavit of plaintiff Joseph Dugas, dated June 4, 1998, with exhibits; (ii) attested copy of letter of Ralph Crossen,Barnstable building commissioner(commissioner),to plaintiffs'counsel,dated January 6, 1998; (iii) copy of the board's decision dated March 17, 1998, and filed with the town clerk on March 18, 1998, in appeal number 1998-37; (iv) attested copy of the payment records of the Barnstable tax collector regarding real property tax payments made for the account of locus during tax year 1997; (v)attested copies of the building permit application,dated September 19, 1997,by the Rudders, and building permit, dated November 14, 1997, issued by the commissioner to the Rudders,for demolition of an existing residence and construction of a new residence on locus; (vi) attested copy of the record maintained by the Barnstable assessor's office of the real property taxes assessed against locus; (vii) attested copy of a portion of the Barnstable zoning map, showing the portion of the town in which locus is situate;(viii)attested copy of the Barnstable zoning ordinance as amended through April 16, 1998(by-law)and of various amendments thereto;(ix)attested copy of plot plan of locus, dated September 19,.1997, and drawn by Sweetser Engineering; (x)affidavit of Arthur Traczyk, Barnstable principal planner, dated October 16, 1998; and (xi) affidavit of plaintiff Joseph Dugas, dated October 26, 1998,with exhibits. The following facts are not in dispute. 1. Plaintiffs own and reside at property located at 30 Sunset Road, in Barnstable. Plaintiffs' property abuts locus to the south. 2. The Rudders own locus. Prior to the events which have given rise to this action,locus was improved by a one-story single family residential dwelling(former dwelling). Locus is located in an RB zoning district,which requires a minimum lot size of 43,560 square feet. Locus contains 2 'r. COMMONWEALTH OF MASSACHUSETTS Land Court Department of the Trial Court Miscellaneous Case No. 246863 JOSEPH F. DUGAS & another,' Plaintiffs vs. GENE BURMANZ & others,' Defendants DECISION ALLOWING PLAINTIFFS' MOTION FOR SUMMARY JUDGMENT AND ORDER OF REMAND Plaintiffs appeal, under G. L. c. 40A, § 17, the decision of defendant members of the Barnstable zoning board of appeals(board)to uphold the Barnstable building commissioner's refusal of plaintiffs'request that the building inspector revoke a building permit issued for the construction of a single family residence on certain land located at 36 Sunset Lane, in Barnstable (locus). Plaintiffs filed their unverified complaint on March 26, 1998. Following the answer of defendants Richard Rudders and Joan Rudders(Rudders),4 filed on April 21, 1998,plaintiffs moved for summary judgment. The Rudders and the board both filed oppositions to the motion. A hearing was held on the motion on October 27, 1.998, at which all parties appeared. 'Edith W. Dugas 2As he is a member of the Barnstable zoning board of appeals 3Gail Nightingale, Elizabeth Nilsson, David Rice, Emmett Glynn, Richard Boy and Ron Jansson, as they are members of the Barnstable zoning board of appeals; and Richard Rudders and Joan Rudders 'The board is not required to file and answer. G. L. c. 40A, § 17. 1 only 10,000 square feet and, consequently, is nonconforming in that respect. However, locus complied with the applicable lot size requirements when the former dwelling was constructed. As situated on locus,the former dwelling complied with the applicable setback and other dimensional requirements (other than minimum lot area) in effect under the current by-law. 3. On or about September 19, 1997, the Rudders applied to the commissioner for a permit to demolish the former dwelling and to construct a new, two-story, dwelling on locus (new dwelling). As proposed, the new dwelling would comply with applicable setback and other dimensional requirements(other than minimum lot area). Plaintiffs assert that the new dwelling will occupy a different footprint from that of the former dwelling,but I am unable to.determine the extent of the difference from the materials in the record. 4. The commissioner issued the requested building permit on or about November 14, 1997, and construction commenced shortly thereafter. 5. By letter dated December 30,.1997,plaintiffs' counsel made a written request to the commissioner for enforcement under G. L. c. 40A, § 7.' Following the commissioner's denial of their enforcement request,plaintiffs appealed the denial to the board. 6. Following a hearing held on March 4, 1998, the board voted to uphold the commissioner's decision. The board filed a written decision, dated March 17, 1998, with the Barnstable town clerk on March 18, 1998. As reasons for its decision, the board referred to its findings of fact, which included the following: 'The Rudders assert in their opposition that plaintiffs previously had requested the building inspector to issue a stop work order, and the building inspector had complied with such request. However,the record does not establish their assertion, and the matter is not germane to this order. 3 encroachments into a 10-foot rear or side yard setback and 20-foot front yard setback shall be deemed to create an intensification requiring a special permit under Section 4-4.3(2); and B. The proposed alteration or expansion conforms to the current height limitations of the [by-law]. 2) By Special Permit: If the proposed alteration or expansion cannot satisfy the criteria established in Section 4-4.3(1) above, the [board] may allow the expansion by special permit provided that the proposed alteration or expansion will not be substantially more detrimental to the neighborhood than the existing building or structure." 9. Section 4-4.6 of the by-law provides: "1) The re-establishment of a lawful pre-existing nonconforming use and/or building or structure which has been destroyed or damaged by fire, acts of nature or other catastrophe, shall be permitted as of right, provided the building commissioner has determined that all the following conditions are met: A)The reconstruction or repair will not increase the gross floor area or height of the building or structure beyond that which previously existed, nor increase the footprint of the structure; B) If the building's location on the lot is to be changed, it will change in a manner that will result in a greater compliance with the bulk regulations established in the zoning district in which it is located; and C) The reconstruction or repair will not constitute an expansion or intensification of any nonconforming use. D) In the case of any use in which it would otherwise be required, the site plan review process has been followed. 2) The pre-existing nonconforming use and/or structure or building shall be discontinued unless a building permit has been applied for within 2 years from the date of damage or destruction, and construction is continuously pursued to completion." 10. Section 4-4.8 of the by-law provides: "Any lawful pre-existing nonconforming use or building or structure or use of land 5 which has been(i)abandoned or(ii)not used for 3 years, shall not thereafter be re- established. This section shall not apply in cases of damage or destruction governed by section 4-4.6." Summary judgment is appropriate in the instant case because there are no genuine issues of any material facts which would preclude disposition as a matter of law. Community Nat'l Bank v. Dawes, 369 Mass. 550, 553-556 (1976); Mass. R. Civ. P. 56(c). Before addressing the merits of the parties'arguments,I must address defendants'challenge to plaintiffs' standing. Defendants contend that plaintiffs have failed to present evidence to substantiate that they are "persons aggrieved." Plaintiffs are abutters to locus, and as such are entitled to the presumption that they are "persons aggrieved" within the meaning of G. L. c. 40A, § 17. Watros v Greater Lynn Mental Health and Retardation Association,Inc.,421 Mass. 106, 111 (1995). "The presumption recedes when a defendant challenges a plaintiff's status as an aggrieved person and offers evidence supporting his or her challenge." Id. Once the presumption is so challenged,the burden shifts to the plaintiffs to demonstrate that they are aggrieved,without benefit of the presumption. Defendants have produced no evidence to show that plaintiffs would suffer no injury to a cognizable legal interest as a result of the proposed construction. Accordingly,plaintiffs are entitled to rely on their statutory presumption,and bear no burden to produce evidence to support their standing. Defendants also challenge this court's jurisdiction to hear plaintiffs' appeal,on the ground that plaintiffs' action began with a request for enforcement under G. L. c. 40A, § 7.' However, 'Section 7 confers jurisdiction on the superior court to "enforce the provisions of this chapter" [G. L. c. 40A]. 6 plaintiffs' appeal is here under G.L.c.40A, § 17,pursuant to which this court's jurisdiction is clear. Defendants claim that the commissioner properly issued the building permit,because the new dwelling meets all applicable setback requirements and, accordingly, is not nonconforming. According to defendants,it is the lot,rather than the structure,that is nonconforming, and the lot is "grandfathered'.' pursuant to the provisions of G. L. c. 40A, § 6,14, and section 4-4.2 (1)of the by- law. Defendants' claim is inconsistent with the holding in Dial Away Co. Inc. v. Zoning Board of Anneals of Auburn,41 Mass.App.Ct. 165,further appellate review denied 423 Mass. 1111 (1996). See also Willard v. Board of Appeals of Orleans, 25 Mass. App. Ct. 15 (1987). Dial Away makes clear that improved lots are governed by the provisions of G. L. c. 40A, § 6,¶ 1. Accordingly, an otherwise conforming structure on a nonconforming lot is treated as a nonconforming structure. See also Holmes v. Doelger, 3 LCR 158, 159, miscellaneous case no. 212113 (August 18, 1995) (Scheier,J.). The board's decision is based on a legally incorrect premise,and is therefore annulled. This matter is remanded to the board for further proceedings consistent with this decision. In anticipation of the board's consideration of this matter on remand, I offer the following guidance on certain issues argued by the parties in this appeal. First,the new dwelling may be allowed if the new dwelling is a"reconstruction"as that term is used in the "second except" clause of the first sentence of G. L. c. 40A, § 6, 11.1 Dial Away 'The first paragraph of§ 6 is "Except as hereinafter provided, a zoning ordinance or by-law shall not apply to structures or uses lawfully in existence or lawfully begun, or to a building or special permit issued before the first publication of notice of the public hearing on such ordinance or by-law required by section five, but shall apply to any change or substantial extension of such use,to a building or special permit issued after the first notice of said public hearing, to any reconstruction, extension or structural 7 expressly recognizes that the"second except"clause allows reconstruction of nonconforming single- or two-family residential structures,despite more limited provisions for reconstruction under a local by-law. Dial Awav,41 Mass.App. Ct. at 170- 171. For purposes of determining whether the new dwelling is a permissible reconstruction within the meaning of the "second except" clause, Dial Away further suggests that it does not matter that the Rudders voluntarily demolished the former dwelling. Angus v. Miller, 5 Mass. App. Ct. 470 (1977), and Martin v. Board of Appeals of Yarmouth,20 Mass. App. Ct.972,further appellate review denied 396 Mass. 1102(1985),cited by plaintiffs, both involved nonconforming commercial structures, to which the provisions of the "second except" clause do not apply. See Dykens v. Board of Appeals of Quincy, land court miscellaneous no. 238329 (December 15, 1998) (Kilborn, C.J.).8 Second, unlike the circumstances of Dial Away, the Rudders did not abandon the former dwelling simply by demolishing it. Abandonment is a question of intent. The Rudders demolished the former dwelling for the purpose and with the intent of constructing the new dwelling in replacement thereof. Such circumstances do not evidence an intent to abandon. Compare Dial change of such structure and to any alteration of a structure begun after the first notice of said public hearing to provide for its use for a substantially different purpose or for the same purpose in a substantially different manner or to a substantially greater extent except where alteration, reconstruction extension or structural change to a single or two-family residential structure does not increase the nonconforming nature of said structure." The "second except" clause is the last clause of the sentence, providing special protections for single or-two-family residential structures. 'Plaintiffs suggest that a contrary result was reached in Siepel v Board of Appeals of Eastham,2 LCR 151, miscellaneous case no. 177558 (October 17, 1994) (Scheier, J.). That case was decided before Dial Away and, in any event,resulted in a remand to the board for a Goldhirsh determination in a manner similar to the remand under this order. 8 Away,41 Mass. App. Ct. at 171 - 172(rebuilding did not occur until twenty-three years following demolition). See generally Derby Ref. Co. v. Chelsea, 407 Mass. 703 (1990). Third,the proposed new dwelling is not within the commissioner's approval authority under the provisions of section 4-4.3 (1)of the by-law. That section speaks to"extensions and alterations" but not to reconstructions. The proposed new dwelling, if it may be authorized at all, is not an extension or alteration,but is instead a reconstruction. See Dial Away,41 Mass. App. Ct. at 168 - 169; Planning Bd. of Reading v. Board of Appeals of Reading, 333 Mass. 657, 661 (1956). Accordingly, the proposed reconstruction may be allowed only if the board finds that (i) the proposed new dwelling does not intensify the nonconformity, or (ii) (if it does intensify the nonconformity) the proposed new dwelling would not be substantially more detrimental to the neighborhood than the former dwelling. See Goldhirsh v. McNear, 32 Mass. App. Ct. 455, 460 - 461 (1992). See also Holmes v. Doelger,3 LCR 158, 159,miscellaneous case no. 212113 (August 18, 1995) (Scheier, J.). Plaintiffs' motion for summary judgment is allowed, and the decision of the board is annulled. This matter is remanded to the board for further proceedings consistent with this decision. matter for any necessary This court shall retain jurisdiction over this review of the board's further action. So ordered. Mark V Green J tice Dated: January 22, 1999 9 °sue- TOWN OF BARNSTABLE BAR" ABLE. ' OFFICE OF TOWN ATTORNEY MASS. �es9. peg 367 MAIN STREET lEpt ,(► HYANNIS, MASSACHUSETTS 02601-3907 ROBERT D. SMITH, Town Attorney TEL. (508)862-4620 RUTH J. WEIL,Assistant Town Attorney FAX#(508)775-3344 CLAIRE R. GRIFFEN, Legal Assistant THERESA M. CAHALANE, Legal Clerk October 21, 1998 Mrs. Phyllis A. Day, Clerk Barnstable Superior Court, Civil County Court Complex, Main Street P.O. Box 425 Barnstable, Ma. 02630 Re: C.A. No. 98-111, Barn.'Supr. Ct. Richard Rudders, et ux v. Building Commissioner, etc., Barnstable Old Kings Highway Committee Our.File Ref: #98-0027 Dear Mrs. Day: We are in receipt of your letter of October 13, 1998 requesting return of the Certificate of Transcript of testimony. Since there was no trial in this matter but rather all proceedings occurred during a motion session, it my understanding that neither a stenographic transcript nor a cassette is available. It is for this reason we have indicated that we are not ordering a transcript of testimony in this matter. Thank you. Sincerely, R th J. Weil, Assistant Town Attorney Tiwn of Barnstable RJW/tmc Enclosure cc: Robert C. Chamberlain, Esq. & Thomas J. Perrino, Esq. Old King's Highway Regional Historic District Committee Building Commissioner, Town of Barnstable [98-0027ldaytrans Toter of M"S rlwpfts BARNSTABLE, ss. SUPERIOR COURT No. 98-111 RICHARD RUDDERS et al VS. BUILDING COMMISSIONER, TOWN OF BARNSTABLE, et al CERTIFICATE RE TRANSCRIPT I hereby certify: (1) That a transcript of testimony was ordered on (2) That a transcript of testimony has not nor will be ordered. X Robert D. Esa. Appellant BBO #469980 -� Town Attorney Ruth H. Weil, Esq. , Assistant 'Town Attorney Dated: October 21, 1998 BBO #519285 Attorneys for Appellant The Barnstable Old Kinc Highway Committee, Town of Barnstable Q- Tusumun3upaft# of 12assat#.tioptb BARNSTABLE, ss. SUPERIOR COURT No. 98-111 RICHARD RUDDERS et alca r VS. mD , C111 BUILDING COMMISSIONER, "' TOWN OF BARNSTABLE et alp MEMORANDUM OF DECISION AND ORDER ON PLAINTIFFS' MOTION TO STRIKE APPEAL OF DEFENDANT BARNSTABLE OLD KING'S HIGHWAY COMMITTEE The plaintiffs as prevailing parties in this litigation seek to strike the appeal of the defendant, Barnstable Old Kings Highway Committee (hereinafter referred to as OKH) on the basis that the defendant, OKH, is not a party aggrieved and has no standing to claim an appeal. By way of background, the plaintiffs/homeowners instituted this action to appeal the issuance of a Stop Work Order on their home construction by the defendant building commissioner at the direction of OKH. The defendant, OKH, filed a motion to dismiss plaintiffs' complaint alleging that the Court lacked jurisdiction over the subject matter because under the statute creating the Old King's Highway Regional Historic District jurisdiction is vested exclusively in the District Court by the provisions of '§§ 11, 12. Moreover, the defendant alleges that neither an action in the nature of mandamus nor an action for declaratory relief can be used as a substitute for the exhaustion .of administrative remedies and the plaintiffs have failed to exhaust their administrative remedies. This motion was never acted upon because in his decision on the plaintiffs' motion for an Barnstable Old King's Highway Committee. a i order of.mandamus and preliminary injunction, Justice Connon acknowledged the correctness of the defendant, OKH's position and declined to grant an injunction against OKH for lack of jurisdiction. Judge Connon went on to find that the building commissioner determined that the height and location of the new house on the revised plan was substantially in conformance with zoning and the intent of the OKH act. Because OKH ordered the building inspector to issue a Stop Work Order subsequent to the building commissioner's determination that the project complied with OI<H regulations, Judge Connon found that the attitude of the OKH committee was arbitrary and capricious in requesting the building commissioner to issue a Stop Work Order on grounds beyond the scope of its authority. It is from this Judgment that OKH seeks to appeal. The problem with the defendant's position is as follows; the rules and regulations of Old King's Highway Regional Historic District Commission are by agreement contained in a bulletin dated December 1983 introduced as Exhibit 1 to the defendant's motion to dismiss. Section 11 of these regulations entitled "Enforcement" states in part, "[T]he local building inspectors are the watchdogs of the district and will not issue building permits without a demonstration of compliance with the act . . . The law goes on to state that, [T]he building inspector of the affected town shall have the power and duty to enforce the provisions of this lave'. The following paragraph begins, "While the local building inspectors are specifically charged with the responsibility of enforcing the act . . . ". In effect, what OI<H is attempting to do is to appeal its own decision as promulgated by the building commissioner that the plaintiffs' home complies with the provisions of local zoning and the OKH act. 2 2';, The position of OKH is that even though the Court may lack jurisdiction over them in this matter the decision,affects their rights and therefore justice and equity require that they be permitted to appeal. The Court admits the validity of the principle expressed by OKH but need not reach that issue because the act of the building inspector in the present circumstance is the act of OKH. His determination that the project complies with the OKH regulations has been upheld by the Court and therefore there is nothing for the defendant OKH to appeal. The plaintiffs' motion to strike the appeal of the defendant Barnstable Old King's Highway Committee is ALLOWED. To-Z, Z2 Gerald F. O'Neill, Jr. Justice of the Superior Court DATED: September 11, 1998 A, true esh n '- 'Ile entire substance of this case is that the plaintiffs' foundation is 4.5 feet closer to the property line than shown on the plan provided to OKH. According to OKH this change somehow affects the "setting" of the house. This variation was the subject of meetings and discussions among the plaintiffs/owners, a neighbor, the. building commissioner and OKH. There may or may not have been some agreement as to this site. In any event, the commissioner found that the foundation complied with zoning and OKH regulations. Judge Connon found OKH's action to be arbitrary and capricious. This attempted appeal might be likened to children foot-stomping for failure to get their way. 3 TOWN OF BARNSTABLE BARN8TABLE. ` OFFICE OF TOWN ATTORNEY MASK.079• e$ 367 MAIN STREET HYANNIS, MASSACHUSETTS 02601-3907 ROBERT D. SMITH,Town Attorney TEL. (508)790-6280 RUTH J. WEIL, Assistant Town Attorney NIGHT LINE-AFTER 4:30 P.M. CLAIRE R. GRIFFEN, Legal Assistant May 27, 1998 (508)790-6283 EILEEN S. MOLLICA, Legal Clerk FAX N(508)775-3344 Mrs. Phyllis A. Day, Clerk Barnstable Superior Court, Civil County Court Complex, Main Street P.O. Box 425 Barnstable, Ma. 02630 Re: C.A. No. 98-111, Barn. Supr. Ct. Richard Rudders, et ux v. Building Commissioner, etc., Barnstable Old Kings Highway Committee Our File Ref: #98-0027 Dear Mrs. Day: Enclosed please find the Defendant, The Barnstable Old King's Highway Committee's Notice of Appeal which appeals the Judgment on Findings filed with the Court on May 12, 1998, which we would appreciate your filing with the Superior Court. Thank you. Sincerely, RJW:cg Ruth J. Weil, sistant Town Attorney Encs. Town of Barnstable cc: Robt. C. Chamberlain, Esq. & Thomas J. Perrino, Esq. cc: Old King's Highway Regional Historic District Committee cc: wilding Commissioner, Town of Barnstable [98-00271day-apl2] Y COMMONWEALTH OF MASSACHUSETTS BARNSTABLE, ss: SUPERIOR COURT C.A. No. 98-111 RICHARD RUDDERS and NOTICE OF APPEAL JOAN RUDDERS, Plaintiffs, ON BEHALF OF THE DEFENDANT, THE V. BARNSTABLE OLD KING'S HIGHWAY COMMITTEE. BUILDING COMMISSIONER FOR THE TOWN OF BARNSTABLE and THE BARNSTABLE OLD KING'S HIGHWAY j COMMITTEE, Defendants. NOTICE IS HEREBY GIVEN, that the Defendant, THE BARNSTABLE OLD KING'S HIGHWAY COMMITTEE, hereby appeals to the Appeals Court from the Judgment on Findings of the Court entered with the Superior Court on May 12t , 1998. Dated: May 27, 1998. THE BARNSTABLE OLD KING'S HIGHWAY COMMITTEE, TOWN OF BARNSTABLE, Defendants, By their Attorneys, R BERT D. S IT , Town Attorney [B.B.O. No. 469 0] RUTH J. WEIL, Assistant Town Attorney [B.B.O. No. 519285] TOWN OF BARNSTABLE 367 Main Street, New Town Hall Hyannis, Ma. 02601-3907 (508) 790-6280; (508) 775-3344 FAX [98-00271notmpl2] 1 f TO: ROBERT C. CHAMBERLAIN, ESQ. [B.B.O. NO. 0803681 THOMAS J. PERRINO, ESQ. [B.B.O. No. 555297] Attorney for Plaintiffs Quirk & Chamberlain, P.C. 99 Willow Street P.O. Box 40 Yarmouthport, MA 02675-0040 (508) 362-8262; (508) 362-6060 Fax CERTIFICATE OF SERVICE Barnstable, ss: May 27, 1998. 1 hereby certify under the pains and penalties of perjury, that I caused to be mailed by first-class mailing, postage prepaid, a copy of the Notice of Appeal from the Judgment on Findings entered May , 1998, with the Superior Court, to the attorney for plaintiffs on the date written above. Claire Griffen�:e)*sistant Town of Barn 367 Main Street, New Town Hall Hyannis, Ma 02601-3907 (508) 790-6280; (508) 775-3344 Fax [98-002Anotcapl2] 2 LEGAL DEPARTMENT, TOWN OF BARNSTABLE OFFICE OF TOWN ATTORNEY Inter-Office Memorandum �� May 5, 1998. TO: RALPH CROSSEN, Building Commissioner TO: OLD KINGS HIGHWAY HISTORIC DISTRICT FROM: RUTH J. WEIL, ASST. TOWN ATTORNEY RE: Case No. 98-J-300, Appeals Court Decision - Petition for Interlocutory Relief Richard Rudders, et ux v. Building Commissioner, etc., Barnstable Old Kings Highway Committee OUR FILE REF. NO.: 98-0027 ------------------------------------------------------------------------------- We have on this date received the Decision in the above matter and are enclosing a copy herewith for your records. Thank you. RJW:cg Encs. [98-002nnhousel] %woos COMMONWEALTH OF MASSACHUSETTS APPEALS COURT coo Case No. SUFFOLK, ss: RICHARD RUDDERS and DEFENDANT, BARNSTABLE JOAN RUDDERS, plaintiffs, ) COMMITTEE OF THE OLD KING'S HIGHWAY REGIONAL HISTORIC V. ) DISTRICT COMMISSION'S PETITION FOR INTERLOCUTORY BUILDING COMMISSIONER FOR THE ) RELIEF PURSUANT TO TOWN OF BARNSTABLE S HIGHWAY G.L.d THE c. 231, §118, para. 1. H ) BARNSTABLE OLD KING ) COMMITTEE, Defendants. ) I, REQUEST FOR INTERLOCUTORY REVIEW. Petitioner, the Barnstable Committee of the Old King's Highway Regional Historic District Commission, requests that this Court vacate the order of mandamus issued by the Superior Court(Connon, J.) on March 27, 1998 09 rderin the Building Commission to revoke his February 10, 1998 stop work order. The order issued by the court states as follows: For the foregoing reasons , it is hereby ORDERED that the p EDiff part• motion for order of mandamus is ALLOWED p ____— Accordingly, the Building Commissioner for the1998 st p workto dler.S hereby ORDERED to revoke his February 10, preliminary Further, it is hereby ORDERED that the plaintiffs' motion for a p injunction is DENIED. Finally, it is hereby ORDERED that the motion to intervene of Joseph F. Dugas and Edith W. Dugas is DENIED. II. STATEMENT OF ISSUES. The issuance of the order of mandamus, for which the defendants had been given on e business day's notice, reflects an error of law and abuse of discretion for the following reasons: 1 (98-0027�pefitioll Z' ^� Injunction and Motion to Intervene of Joseph F. Dugas and Edith W. Dugas, 8. A memorandum in support of this petition. Dated: April 23, 1998. Respectfully Submitted, THE BARNSTABLE OLD KING'S HIGHWAY COMMITTEE, Defendants, By their Attorneys, i ROBE�RT D MITH, wn Attorney [B.B.O. N . 469980] RUTH J. ;, Town Attorney [B.B.O. No. 519285] TOWN OF BARNSTABLE 367 Main Street, New Town Hall Hyannis, Ma. 02601-3907 (508) 790-6280; (508) 775-3344 FAX TO: ROBERT C. CHAMBERLAIN, ESQ. [B.B.O. No. 080368] THOMAS J. PERRINO, ESQ. [B.B.O. No. 5552971 Attorney for Plaintiffs 99 Willow Street, P.O. Box 40 Yarmouthport, MA 02675-0040 (508) 362-82062; (508) 362-6060 Fax APPEALS COURT It has not been made to appear that intervention by a single i justice is warranted at this juncture. The defendants, of course, are free to pursue any and all remedies at law or in equity that are appropriate in the now existing circumstances. However, the parties would do well to consider that any further requests for injunctive relief could be met with the application of Mass.R.Civ.P. 65(c) . Brown, .J. 4/30/98 ASLOAM Clerk 4 LEGAL DEPARTMENT, TOWN OF BARNSTABLE ROUTING SLIP / DATE: 1998 TO: FROM: ROBERT D. SMITH, Town Attorney f 1� RUTH J. WEIL, Asst. Town Attorney f !/ 1 AIRE GRIFFEN, Legal Assistant f 1 RE: C� I OUR FILE REF:NO.: 1 a 5 COMMONWEALTH OF MASSACHUSETTS BARNSTABLE, ss. SUPERIOR COURT CIVIL ACTION NO. 98-111 RICHARD RUDDERS et al' VS. BUILDING COMMISSIONER, TOWN OF BARNSTABLE et a12 MEMORANDUM OF DECISION AND ORDER - ON THE PLAINTIFFS' MOTION FOR ORDER OF MANDAMUS AND PRELIMINARY INJUNCTION, AND THE MOTION TO INTERVENE OF JOSEPH F. DUGAS AND EDITH W. DUGAS The matter before this Court is the motion for order of mandamus and preliminary injunction of plaintiffs Joseph and Joan Rudders ("Rudders"). This case arises out of a dispute between the plaintiffs, who are building a home in Barnstable, and the Old King's Highway Committee of the Town of Barnstable (the "OKH Committee") and the Building Commissioner for the Town of Barnstable (the "Building Commissioner"). Plaintiffs seek to enjoin the OI(H from taking any further action to prevent the plaintiffs from building their home. In addition, they ask this Court to order the Commissioner to revoke a stop ,vork order issued on February 10, 1998 and to authorize construction of the home pursuant to the plaintiffs' building permit. 'i � 'Joan Rudders 3010 ZThe Barnstable Old King's Highway committee � d�lv�l t `T Rf4FY u ....TOt'r ?G EaisR v lnIL -- Also before this Court is a motion to intervene, pursuant to Mass. R. Civ. P. 24 (b), brought by Joseph F. and Edith W. Dugas (the "Dugases"). In support of the motion, the Dugases contend that intervention is necessary in order to protect their interests as abutters to the plaintiffs' property. For the following reasons, the plaintiffs' motion for order of mandamus is ALLOWED in part and DENIED in part. Further, the plaintiffs request for a preliminary injunction is DENIED. Finally, the motion to intervene of the Dugases is DENIED. BACKGROUND The plaintiffs own property in the Town of Barnstable. Their land lies within the Old King's Highway Regional Historic District created by St. 1973, c. 470 (the "OKH Act")'. The OKH Committee is the local committee which is designated to review proposals and to issue Certificates of Appropriateness for buildings within their jurisdiction. On October 8, 1997, the OKH Committee approved the demolition of an existing house on the plaintiffs' property and approved a Certificate of Appropriateness for a proposed.new house on the property. Plaintiffs allege that due to a measurement error the plot plan submitted by the plaintiffs showed the proposed foundation of the new house located 35 feet from the property line rather than 26 feet. 3This Act has been subsequently amended by St. 1975, c. 298 and c. 845 ; St. 1976, c. 273 ; St. 1977, c. 38 and c. 503 ; St. 1978, c. 436; St. 1979, c. 631; St. 1982 , c. 338; and St. 1994, C. 90. 2 During the October 8, 1997 meeting, Joseph F. Dugas, a neighbor whose property abuts the plaintiffs', expressed concern that the ne-.v house would interfere with the view from his home. The Plaintiffs' and their neighbor agreed that the foundation should be moved three to four feet further back from the property line than the original foundation. The location of the ne,%v foundation, as built, is located approximately 30.6 feet from the property line. This is in accordance with what the plaintiffs allege was agreed to during the meeting of October 8. However, it is approximately four feet closer to the property line than what vas indicated on the plot plan submitted to and accepted by the OKH Committee. n Plaintiffs allege that upon realization of the mismeasurement, and prior to demolition of the existing home, their contractor consulted with the Building Commissioner to determine whether this four foot difference would require submission of a revised plan to the OICH Committee. Plaintiffs further allege that the Building Commissioner responded that a revised plan was not required because the actual location of the new home would appear on the "as built" plan. Further, the four foot difference did not violate the zoning regulations or the intent of the OKH Committee. Plaintiffs then proceeded with the demolition of their existing home and the construction of their new home. The Building Commissioner issued a building permit for the construction of the new home in November, 1997.} On December 17, 1997, the OKH Committee held a hearing, purportedly at the request of Joseph F. Dugas. As a result of this 4Joseph F. Dugas has appealed the commissioner's issuance of this building permit. 3 meeting, the Chairman of the OKH Committee wrote the Building Commissioner directing him to issue a stop work order on the construction of the new house. On January 7, 1997, the OKH Committee held a hearing at the request of the plaintiff. Plaintiff contends that it was agreed that the issue of the location of the new foundation would be referred to the Building Commissioner and, upon his satisfaction, the stop work order was to be lifted. After reviewing the revised plot plan, the Building Commissioner determined that the height and location of the new house on the revised plan was "substantially in conformance with Zoning and the intent of the OXH. act." He lifted the stop work order on January 21, 1998. On February 2, 1998, plaintiffs' counsel learned that the OKH Committee had scheduled a meeting for February 4, 1998. On February 6, 1998, the Chairman of the OKH Committee went to the plaintiffs' property and demanded that all work stop. On February 5, 1998, the Town Clerk's Office received notice of an OKH Committee meeting scheduled for February 9, 1998. On the morning of February 9, 1998, plaintiffs learned of the meeting that was to take place that afternoon. The agenda indicated that the meeting was for discussion of the plaintiffs' construction of their new house. As a result of that meeting, the OKH Committee requested that the Building Commissioner issue a stop work order based on the discrepancy between the proposed location and the actual location of the new foundation. The following day, February 10, 1998, the Commissioner issued a stop work order. 4 DISCUSSION A. Preliminary Injunction: Plaintiffs seek a preliminary injunction preventing the OKH Committee from taking any further action uith respect to the building of their new home. They contend that the OI(H Committee hearing violated the statutory requirements of G.L. c. 40C, § 11. First, argue plaintiffs, the four day notice of the February 9, 1998 meeting violated the statutory notice provision which requires that notice be given fourteen days prior to such hearings. Second, the purpose set forth in the notice was "discussion" and the OKH Committee took punitive action beyond the scope of the notice. Finally, plaintiffs contend that the OKH Committee's request of a stop work order was arbitrary and capricious because the location of the house is a matter outside its scope of authority. In opposition to the preliminary injunction, defendants OKH Committee and the Building Commissioner assert that the Superior Court does not have jurisdiction to issue the requested injunction. The defendants are correct. Under § 11 of the OKH Act, a party aggrieved by a local committee's decision may appeal to the. regional commission. A party aggrieved by the regional commission's decision then may appeal to the local District Court. Appeals from the final judgment of the District Court may be pursued.in the Appellate Division. See § 11 of the OKH Act. Thus, this Court does not have jurisdiction to grant the plaintiffs' request for a preliminary injunction against the OKH Committee. Because the Superior Court lacks jurisdiction, this Court need not respond to the defendants' additional arguments in opposition to the plaintiffs' request. However, due to what this Court views as the arbitrary and capricious attitude of the OKH Committee, as evidenced by its behavior in this matter, this Court feels 5 compelled to comment on the merits of the plaintiffs' claim. After carefully reviewing the record, it is apparent that -he plaintiffs have made out a meritorious claim for injunctive relief because they are able show irreparable injury and a likelihood of success on the merits. The OKH Committee failed to provide adequate notice of its February 9, 1998 meeting, it acted beyond the scope of the announced purpose of the meeting, and it arbitrarily and capriciously requested that the Building Commissioner issue a stop work order on grounds beyond the scope of its authority. B. Order for Mandamus: In support of their request for an order of mandamus, plaintiffs contend that the Building Commissioner acted outside the scope of his authority by issuing the . February 10, 1998 stop work order because the issuance vas not based on any zoning violations. Relief in the form of mandamus is appropriate to set aside an illegal performance of a duty by a pu':)lic official in the "area of building and zoning code enforcement." Reading v. Attomev General, 363 Mass. 266, 269 at note 3 (citations omitted). Our Supreme Judicial Court has held that mandamus is an appropriate remedy where a building inspector acts outside the scope of his authority conferred by G.L. c. 40A. Oullette v. Btiilding:Inspector of Quincy, 362 Mass. 272, 277 (1972); Castelli v. Board of Selectmen of Seekonk, 15 Mass. App. Ct. 711 (1983)(affirming the Superior Court's revocation of a stop work order). In Castelli, a building inspector, who had signed a stop work order, later admitted that he did not agree with the order because he had determined that the project in question was not in violation of zoning by-laws. Castelli, 362 Mass. at 713. The court found that the evidence supported the determination that the 6 building inspector had repudiated the stop order or had shown the order was not a result of his independent action or prompted by any zoning considerations. Id. at 715. As a result, the court held that where the building inspector had not issued the stop work order as a result of his independent judgment in good faith, the inspector had acted outside his scope of authority. Id. at 714-715. This Court finds that the Building Commissioner acted outside his scope of authority by issuing the stop work. order in the present case. By a letter dated December 23, 1997, the OKH Committee requested that the Building Commissioner issue a stop work order based on the height and location of the new house as built. In a letter dated January 21, 1998, the Building Commissioner informed the OKH Committee of his intention to lift the stop work order after determining that "both the height and location [of the revised plot plan were] substantially in conformance with Zoning and the intent of the O.K.H. act." In a letter dated February 9, 1998, the OKH Committee again requested that the Building Commissioner issue a stop work order based on the height and location of the new house as built. The follox%ing day, the Building Commissioner issued the stop work order in question. The Building Commissioner had already determined that the height and location of the ne,%v house as built was in conformance with zoning law and the intent of the OIC-I Act. Because the issuance of the January 10, 1998 stop work order was not based on zoning considerations nor a result of the Building Commissioner's independent action, the Building Commissioner acted outside his scope of authority. Accordingly, the plaintiffs are entitled to an order of mandamus revoking the January 10, 1998 stop work order. 7 This Court, however, may not order the Building Commissioner to allow construction to proceed pursuant to the plaintiffs' building permit. See Castelli v. Board of Selectmen of Seekonk, 15 Mass. App. Ct. 711, 716 (1983). That order "could interfere with proper enforcement action which. . .ought to be passed upon at the local administrative level before resort to a court." Id. C. Motion to Intervene The Dugases move to intervene in this action on the grounds that, as immediate abutters, they have an interest in the Rudders' compliance with the OKH Act and the Certificate of Appropriateness. This Court chooses not to exercise its discretion under Mass. R Civ. P. 24 (b) to permit the Dugases to intervene. The . arguments put forth by the proposed intervenors are, in essence, no different than those argued by the defendants. Thus, the interests of the Dugases are adequately represented by the defendants. See Planned Parenthood Lea .ie of Massachusetts, Inc. v. Attornev General, 424 Mass. 586, 599 (1997). 8 i Y ORDER For the foregoing reasons, it is hereby ORDERED that the plaintiffs' motion for order of mandamus is ALLOWED in part and DENIED in part. Accordingly, the Building Commissioner for the Town of Barnstable is hereby ORDERED to revoke his February 10, 1998 stop work order. Further, it is hereby ORDERED that the plaintiffs' motion for a preliminary injunction is DENIED. Finally, it is hereby ORDERED that the motion to intervene of Joseph F. Dugas and Edith W. Dugas is DENIED. Richard F. Connon Justice of the Superior Court DATED: March r , 1998 i t: 9 , Clerk I ' .o� TOWN OF BARNSTABLE BARNSTABLE � OFFICE OF TOWN ATTORNEY MAS39. 0 • eg 367 MAIN STREET s679 HYANNIS, MASSACHUSETTS 02601-3907 ROBERT 0. SMITH, Town Attorney TEL. (508)790-6280 RUTH J. WEIL, Assistant Town Attorney NIGHT LINE-AFTER 4:30 P.M. CLAIRE R. GRIFFEN, Legal Assistant April 23, 1998 (508)790-6283 EILEEN S. MOLLICA, Legal Clerk FAX#(508)775.3344 Mrs. Phyllis A. Day, Clerk Barnstable Superior Court, Civil County Court Complex, Main Street P.O. Box 425 Barnstable, Ma. 02630 Re: C.A. No. 98-1'11, Barn. Supr. Ct. Richard Rudders, et ux v. Building Commissioner, etc., Barnstable Old Kings Highway Committee Our File Ref: #98-0027 Dear Mrs. Day: Enclosed please find the Defendant, The Barnstable Old King's Highway Committee's Notice of Appeal in the above matter which we would appreciate your filing. Thank you. Sincerely, RJW:cg Ruth J. Weil, Assistant Town Attorney Encs. Town of Barnstable cc: Robt. C. Chamberlain, Esq. & Thomas J. Perrino, Esq. cc: Old King's Highway Regional Historic District Committee cc: Vuilding Commissioner, Town of Barnstable [98-00271day-apl] COMMONWEALTH OF MASSACHUSETTS BARNSTABLE, ss: SUPERIOR COURT C.A. No. 98-111 RICHARD RUDDERS and NOTICE OF APPEAL JOAN RUDDERS, Plaintiffs, ON BEHALF OF THE DEFENDANT, THE V. BARNSTABLE OLD KING'S HIGHWAY COMMITTEE. BUILDING COMMISSIONER FOR THE TOWN OF BARNSTABLE and THE BARNSTABLE OLD KING'S HIGHWAY COMMITTEE, Defendants. NOTICE IS HEREBY GIVEN, that the Defendant, THE BARNSTABLE OLD KING'S HIGHWAY COMMITTEE, hereby appeals to the Appeals Court from the Decision and Order captioned "Memorandum of Decision and Order on the Plaintiffs' Motion for Order of Mandamus and Preliminary Injunction and Motion to Intervene of Joseph F. Dugas and Edith W. Dugas" entered with the Superior Court on March 27, 1998. Dated: April 23, 1998. THE BARNSTABLE OLD KING'S HIGHWAY COMMITTEE, TOWN OF BARNSTABLE, Defendants, By their Attorneys, ROBERT D. SM H Town Attorney [B.B.O. No. 469 8 RUTH J. WEIL, ssistant Town Attorney [B.B.O. No. 519285] TOWN OF BARNSTABLE 367 Main Street, New Town Hall Hyannis, Ma. 02601-3907 (508) 790-6280; (508) 775-3344 FAX [98-00271notcapl] I TO: ROBERT C. CHAMBERLAIN, ESQ. [B.B.O. NO. 0803681 THOMAS J. PERRINO, ESQ. [B.B.O. No. 555297] Attorney for Plaintiffs Quirk & Chamberlain, P.C. 99 Willow Street P.O. Box 40 Yarmouthport, MA 02675-0040 (508) 362-8262; (508) 362-6060 Fax CERTIFICATE OF SERVICE Barnstable, ss: April 23, 1997. 1 hereby certify under the pains and penalties of perjury, that I caused to be mailed by first-class mailing, postage prepaid, a copy of the Notice of Appeal to the attorney for plaintiffs on the date written above. i a Griffen, eg istant Town of Barns e 367 Main Street, New Town Hall Hyannis, Ma 02601-3907 (508) 790-6280; (508) 775-3344 Fax [98-00271notcapl] 1� r TOWN OF BARNSTABLE DA100rABLE. OFFICE OF TOWN ATTORNEY .039 367 MAIN STREET �639 ,eS rEOM�� HYANNIS, MASSACHUSETTS 02601-3907 ROBERT 0. SMITH, Town Attorney TEL. (508)790-6280 RUTH J. WEIL, Assistant Town Attorney NIGHT LINE•AFTER 4:30 P.M. CLAIRE R. GRIFFEN, Legal Assistant (508)790.6283 EILEEN S. MOLLICA, Legal Clerk April 23, 1998 FAX N(508)775.3344 Ms. Ashley Brown Ahearn, Clerk Appeals Court Commonwealth of Massachusetts New Court House Bldg., 15th Floor Pemberton Square Boston, MA 02108 I v. Building Re. Rudders, eta g Commissioner, etc., and the Barnstable Old King's Highway Committee Barnstable Superior Court, C.A. No. 98-111 Our File Ref.: #98-0027 Dear Ms. Ahearn: In accordance with the requirements of M.G.L. v. 231, §118, para. 1, we enclose herewith the town of Barnstable's draft in the sum of $160.00 for the required docket fee for entering an interlocutory appeal on the Appeals Court docket, together with the Town of Barnstable's Old King's Highway Committee's Petitioner for Interlocutory Relief, and the attachments and Memorandum in Support thereof for consideration. Thank you for your attention to this matter. S incerel yours, RJW:cg Ruth J. Weil, A istant Town Attorney Encs. ' Town of Barnstable cc: Robert C. Chamberlain, Esq. & Thomas J. Perrino, Esq. of Quirk & Chamberlain, P.C. [98-002r dkap1ct](intedowtory)] COMMONWEALTH OF MASSACHUSETTS APPEALS COURT SUFFOLK, ss: Case No. RICHARD RUDDERS and ) JOAN RUDDERS, ) DEFENDANT, BARNSTABLE Plaintiffs, ) COMMITTEE OF THE OLD KING'S HIGHWAY REGIONAL HISTORIC V. ) DISTRICT COMMISSION'S PETITION FOR INTERLOCUTORY BUILDING COMMISSIONER FOR THE ) RELIEF PURSUANT TO TOWN OF BARNSTABLE and THE ) G.L. c. 231, §118, para. 1. BARNSTABLE OLD KING'S HIGHWAY ) COMMITTEE, ) Defendants. ) I. REQUEST FOR INTERLOCUTORY REVIEW. Petitioner, the Barnstable Committee of the Old King's Highway Regional Historic District Commission, requests that this Court vacate the order of mandamus issued by the Superior Court (Connon, J.) on March 27, 1998 ordering the Building Commission to revoke his February 10, 1998 stop work order. The order issued by the court states as follows: For the foregoing reasons , it is hereby ORDERED that the plaintiffs' motion for order of mandamus is ALLOWED in part and DENIED in part. Accordingly, the Building Commissioner for the Town of Barnstable is hereby ORDERED to revoke his February 10, 1998 stop work order. Further, it is hereby ORDERED that the plaintiffs' motion for a preliminary injunction is DENIED. Finally, it is hereby ORDERED that the motion to intervene of Joseph F. Dugas and Edith W. Dugas is DENIED. II. STATEMENT OF ISSUES. The issuance of the order of mandamus, for which the defendants had been given one business day's notice, reflects an error of law and abuse of discretion for the following reasons: [98-002271petitiol] 1 e+ i (1) The Court, having determined that the superior court lacked subject matter jurisdiction to entertain the plaintiffs' request for a preliminary injunction because the Old King's Highway Regional Historic District Commission Act, St. 1973, c. 470, as amended, vested exclusive jurisdiction in the district court under the provisions of Sections 11 and 12, concomitantly lacked jurisdiction to issue an "order of mandamus." (2) While holding that the superior court lacked jurisdiction to issue a preliminary injunction, the trial court's "order of mandamus," issued as a result of a hearing for which the defendants had less than one business day's notice, is, in fact, a mandatory injunction. (3) The plaintiffs have no reasonable likelihood of success on the merits, since they failed to exhaust their administrative remedies. (4) An action in the nature of mandamus does not lies where as here, the plaintiffs have failed to exhaust their administrative remedies. (5) An action in the nature of mandamus does not lie where the order sought involves what the plaintiffs and the trial court characterize as a discretionary function of the Building Commissioner. (6) Where an action in the nature of mandamus lies, the defendant is entitled to a full hearing and not a summary process decided upon less than one business day's notice. (7) An action for declaratory relief cannot be pursued in lieu of an administrative appeal. [9e-002rWtiboll 2 e (8) The superior court had no jurisdiction over the plaintiffs' purported claim under G.L. c. 40C because the Old King's Highway Regional Historic District is created by a special act and is not controlled by G.L. c. 40C III. STATEMENT OF RELIEF REQUESTED. The relief the Defendants seek is reversal and vacation of the March 27, 1998 Order ordering the Building Commissioner to revoke the stop work order issued by him under the provisions of the Old King's Highway Regional Historic District , St. 1973, c. 470, as amended. IV. SUPPORTING MATERIALS. Filed with this petition are the following pleadings that were before the Superior Court% 1 Summons and Short Order of Notice; 2. Plaintiffs' Complaint; 3.. Plaintiffs' Motion for Order of Mandamus and Preliminary Injunction; 4. Affidavit of Plaintiff; Richard Rudders; 5. Defendants' Suggestion of Want of Jurisdiction and Opposition to Plaintiffs' Motion for Preliminary Injunction; and, 6. Motion to Intervene of Joseph F. Dugas and Edith W. Dugas. In addition, the following documents are also submitted: 7. A copy of the March 27, 1998 Memorandum of Decision and Order on the Plaintiffs' Motion for Order of Mandamus and Preliminary [M02r"Holl 3 a ` Injunction and Motion to Intervene of Joseph F. Dugas and Edith W. Dugas, 8. A memorandum in support of this petition. Dated: April 23, 1998. Respectfully Submitted, THE BARNSTABLE OLD KING'S HIGHWAY COMMITTEE, Defendants, By their Attorneys, ROBERT D. SMITH, Town Attorney [B.B.O. No. 4699801 RUTH J. WEIL, Assistant Town Attorney [B.B.O. No. 519285] TOWN OF BARNSTABLE 367 Main Street, New Town Hall Hyannis, Ma. 02601-3907 (508) 790-6280; (508) 775-3344 FAX TO: ROBERT C. CHAMBERLAIN, ESQ. [B.B.O. No. 080368] THOMAS J. PERRINO, ESQ. [B.B.O. No. 555297] Attorney for Plaintiffs 99 Willow Street, P.O. Box 40 Yarmouthport, MA 02675-0040 (508) 362-8262; (508) 362-6060 Fax P8.002rq*dol] 4 CERTIFICATE OF SERVICE Barnstable, ss: April 23, 1998. 1 hereby certify under the pains and penalties of perjury, that I caused to be mailed by first-class mailing, postage prepaid, a copy of the above document to the attorney for plaintiff and/or the named parties on t written above. Clair riffen, eg stant Town of Barn tab 367 Main Street, New Town Hall Hyannis, Ma 02601-3907 (508) 790-6280; (508) 775-3344 Fax [98-0027%peftil 5 t COMMONWEALTH OF MASSACHUSETTS APPEALS COURT SUFFOLK, ss: Case No. RICHARD RUDDERS and ) JOAN RUDDERS, ) DEFENDANT, BARNSTABLE Plaintiffs, ) COMMITTEE OF THE OLD KING'S HIGHWAY REGIONAL HISTORIC V. ) DISTRICT COMMISSION'S MEMORANDUM IN SUPPORT OF BUILDING COMMISSIONER FOR THE ) PETITION FOR INTERLOCUTORY TOWN OF BARNSTABLE and THE ) RELIEF PURSUANT TO BARNSTABLE OLD KING'S HIGHWAY ) G.L. c. 231, §118, para. 1. COMMITTEE, ) Defendants. ) I. INTRODUCTION. This case began rather unremarkably when the Rudders, the owners of a parcel of land located in the Old King's Highway Regional Historic District, St.1973, c. 470, as amended (hereinafter"the Act"), within the Town of Barnstable, applied for and received a "certificate of appropriateness"from the Barnstable Committee of the Old King's Highway Regional Historic District (hereinafter the "committee"), to demolish an existing single-story home and build a new two-story home on the lot. Things went awry when the Rudders decided to locate the house on the lot differently from what was shown on the approved plan without returning to the committee for a new certificate. Once construction began and the error was brought to the attention of the committee, the Rudders again chose not to seek a new certificate. The issuance of a stop work order by the building commissioner eventually led to the filing of an action by the Rudders in the superior court, seeking an "order of mandamus" and a preliminary injunction. [9&-0 AmemdieQ 1 The superior court, after a summary proceeding for which the committee had less than one business day's notice, acknowledged it lacked jurisdiction over the Plaintiffs' request for injunctive relief under the statute creating the Act. Nonetheless, the court, in a breathtaking exercise of judicial power, ordered the lifting of the stop work order issued by the Barnstable building commissioner, styling its decision as an "order of mandamus." As is set forth more fully below, the superior court's "order of mandamus" is an error of law and abuse of discretion because the superior court lacks jurisdiction over the subject matter of the Plaintiffs' complaint, jurisdiction being vested exclusively in the district court by the provisions of Sections 11 and 12 of the Act. Moreover, neither an action in the nature of mandamus nor an action for declaratory relief can be used as a substitute for the exhaustion of administrative remedies. Finally, the trial court's order must be viewed as a mandatory injunction and, therefore, interlocutory in nature, because there is no authority for the issuance of a final appealable decision from a complaint in the nature of mandamus, under G.L. c. 249, §5, following a summary hearing held within seventy-two hours from the filing of the complaint, without providing the target of the order an opportunity to answer, conduct discovery, or confront witnesses as to vigorously disputed facts. Accordingly, the Barnstable Committee respectfully requests that the March 27, 1998 order issued by the superior court be vacated. [98-002Amemdieq 2 II. REGULATORY FRAMEWORK FOR THE OLD KING'S HIGHWAY REGIONAL HISTORIC DISTRICT. In 1973, by special act, St.1973, c. 470 (hereinafter the "Act"), the General Court established the Old King's Highway Regional Historic District (hereinafter "District") in the towns of Sandwich, Barnstable, Yarmouth, Dennis, Brewster and Orleans.' The district encompasses a broad area within the member towns bounded on the south by Route 6, and on the north by Cape Cod Bay. The purpose of the Old King's Highway Regional Historic District is to "promote the general welfare of the inhabitants [of the district] through preservation and protection of buildings, settings and places within [its] boundaries ... through the development and maintenance of appropriate settings and exterior appearance of such buildings.i2 Each member town appoints a local committee consisting of five persons.' No structure may be erected within the district without the issuance of a "certificate of appropriateness" by the historic district committee of the town in which the proposed structure is to be located." Their role is to receive and evaluate applications for certificates of appropriateness.' Any person aggrieved by the determination made by the committee may file an appeal to the Regional Commission.' If the local committee "exceeded its authority or exercised poor judgment, was arbitrary, capricious or erroneous in its action," "The Act has been subsequently amended by St.1975, c. 298 and c. 845; St.1976, c. 273; St.1977, c. 38 and c. 503; St.1978, c. 436; St.1979, c. 631; and St.1982, c. 338. s/Act§1. 3/Act§5. "/Act§6. S/Act§6, e/Act§11. [98 002AmemdiefJ 3 the commission must annul or revise the local committee's determination! Appeal from the regional commission is to the local District Court only.8 Similarly, all enforcement activities, explicitly including the issuance injunctive relief, are vested in the district court under Section 12: Section 12. ... The building inspector in the affected town shall have the power and duty to enforce the provisions of this act. The district court having jurisdiction over the affected town shall have jurisdiction to enforce the provisions of this act and the determinations, rulings and regulations issued thereunder, and may restrain by injunction violations thereof and issue such other orders for relief of violations as may be required. In contrast, chapter 40C deals with the creation of town historic districts within a town's boundaries. Where, as here, a regional historic district is created by a special act of the legislature, the provisions of the special act control. See, G.L. c. 40C, §16. This was the specific determination in Attomey General v. Barnstable Committee of the Old King's Highway Regional Historical District, 92-0127, at 7 (Supreme Judicial Court, March 15, 1993) (copy attached hereto as Attachment 1).9 III. STATEMENT OF CASE. On or about September 17, 1997, Richard and Joan Rudders submitted an application for a "certificate of appropriateness" allowing the demolition of an existing one-story single-family home at 36 Sunset Lane, in Barnstable, in part of the Old King's Highway Regional Historic District, and to erect a new two-story single-family home. (Exhibit A attached to the Plaintiffs' Complaint). A plot plan showing the location of the 7/Act§11. 8/Act§11 9/ Count III of the Plaintiffs' Complaint seeks an"order of mandamus"and a preliminary injunctive relief pursuant to C.L. c.40C, 12A,which has no applicability to the cage at bar. The trial court also incorrectly references thin section. 198-00271mem1iel] 4 new home was submitted with the Rudders' application for a certificate of appropriateness. (Exhibit A attached to the Plaintiffs' Complaint). At the hearing held before the committee on October 8, 1997, there was discussion as to the appropriate location of the house. (See copy of minutes attached to Motion to Intervene as Exhibit A). Russ Hamlyn, the contractor appearing on behalf of the Rudders, represented that the submitted plot plan reflected that the proposed new home was "eight feet back" from the existing structure. (See copy of minutes attached Motion to Intervene as Exhibit A). After discussion, including considerable on the topic of the exact location of the house and how far back from the street it should be, and deliberation, the committee approved the certificate of appropriateness at the location shown on the proposed plot plan. (Exhibit A attached to the Plaintiffs' Complaint). Apparently, after the issuance of the certificate of appropriateness, but prior to the demolition of the existing home, Dr. Rudders "discovered" that the plot plan presented on his behalf and approved by the Committee showing the location of the new home approximately eight or nine back feet from the existing structure was not where Dr. Rudders had wanted it to be built. (Plaintiffs' Complaint, para. 11; Decision at 3). The Rudders did not request an amendment to the approved plan. In fact, they made no effort to apprise the Committee, the permit granting authority, of their desire to modify the approved plan. Rather, they assert that they directed their contractor to contact the Town of Barnstable Building Department. (Plaintiffs' Complaint, para. 11). The Rudders state that their building contractor"checked with the Building Department" and allegedly (98-00271memdieQ 5 "learned" that as long as there was no zoning violation, a deviation from a plan approved by the committee was permissible.10 (Plaintiffs' Complaint para. 11). Without first obtaining permission from the Committee to proceed with an amended plan, the Rudders demolished the existing structure and began construction of the new building in the different location. (Plaintiffs' Complaint, para. 12; Decision at 3). Soon thereafter, concerns were raised about the location of the new structure and after confirming the discrepancy, the committee, pursuant to Section 12 of the Act, requested the building commissioner to order the construction stopped. (Exhibit I, attached to Plaintiffs' complaint)." Without first pursuing the administrative procedures delineated in Section 11 of the Act, on or about February 20, 1998, the Rudders filed this Complaint seeking a mandatory injunction against the committee, essentially requesting that the court order the committee to completely relinquish its jurisdiction over the project. As part of the mandatory injunction, the Rudders also sought an "order of mandamus" requiring the building commissioner to revoke the stop work order he issued on February 10, 1998. 101 There exists no record of any such call from the Rudders' contractor. Nor does anyone in the Building Department recall any such interchange. Therefore, the Defendants deny the allegations made by the Rudders More importantly, generally, the principles of estoppel are not applicable against the government in connection with its exercise of public duties, particularly when the government is acting in the public interest. Baicam v. Town of Hingham, 41 Mass.App Ct. 260, 264 (1996); Highland Tap of Boston, Inc. v. Commissioner of Consumer Affairs&Lic. of Boston, 743 Mass. 559, 568 (1993); Freetown v. Zoning Bd. of Appeals of Dartmouth, 33 Mass .App. Ct. 415, 420(1992). "' Plaintiffs'complaint inaccurately refers to"public hearings"and"improper meetings"which were held by the Committee after it became clear that the construction being undertaken by the Rudders failed to comply with the plan approved by the committee. These were simply discussions of the Rudders' noncompliance aired at meetings that were properly noticed under the public meeting law. G.L. c. 39, §23. Had the Rudders properly pursued their administrative remedies rather than unilaterally modifying the previously approved plan, then the notice and hearing procedures under the Act would have been triggered. [98-002Amemdieq 6 (Count I - Mandamus of Plaintiffs' Complaint paras. 26 through 30). In the late afternoon of Friday, February 20, 1998, the Town of Barnstable was served with a Summons and Order of Notice for a hearing to be held on Monday, February.23, 1998. The Court heard oral argument on the Plaintiffs' Motion for Order of Mandamus and Request for Preliminary Injunction on Monday, February 23, 1998, as scheduled. By memorandum and order dated March 27, 1998, the superior court denied the Plaintiffs' motion for a preliminary injunction, finding that jurisdiction over matters relating to certificates of appropriateness under the Act was vested exclusively in the district court. (Decision at 5). Having so held, the court proceeded to issue an "order of mandamus" requiring the Building Commissioner to revoke his February 10, 1998 stop work order. (Decision at 6-8; Order at 9). It is from this order that the Defendant Barnstable Committee appeals. VI. ARGUMENT. A. STANDARD OF REVIEW. The nature of the legal error committed by the trial court in issuing its "order of mandamus" becomes vivid when one attempts to identify the appropriate path for appellate review to challenge the order. The superior court's decision clearly indicates that a preliminary injunction does not lie against the committee because jurisdiction relating to all matters involving the issuance of the certificate of appropriateness is exclusively vested in the district court. (Decision at 5). However, the trial court proceeds to issue an "order of mandamus" revoking the Building Commissioner's stop work order, which was an enforcement action based upon the Rudders' admitted failure to comply with the unappealed certificate of appropriateness. [9840271memdief 7 Putting aside the anomalous result created by the court's jurisdictional ruling and its issuance of the "order of mandamus," as well as the fact that an action in the nature of es are discussed at length below, clearly final mandamus does not lie, which issues 9 judgment in an action in the nature of mandamus under G.L. c. 249, §5 cannot be rendered in a summary proceeding for which the town was given one business day's notice. For example, in CasteN v. Board of Selectmen of Seekonk, 15 Mass. 711, 712- 714 (1983), relied upon by the trial court, the mandamus in question was issued after a trial in which testimony was adduced; approximately eleven months after the filing of the complaint. See also, Cape Resort Hotels, Inc. v. Alcoholic Licensing Bd. of Falmouth, 385 Mass. 205, 207 (1982). In this regard, courts have noted that actions in the nature of mandamus often turn on issues relating to the credibility of witnesses for which a hearing on the merits is necessary. See generally, Gladstone Bros., Inc. v. Board of Health of Salisbury, 4 Mass. App. Ct. 780 (1976) (rescript).12 It is not uncommon for plaintiffs filing an action in the nature of mandamus also to seek preliminary injunctive relief during the pendency of the mandamus proceeding. See WBZ-N4 v. District Atty. for Suffolk, 408 Mass. 595, 597 (1990); Callanan v. 12/ Because the jurisdictional issues are obviously dispositive, the defendant focused on these issues in filing its response to the Plaintiffs' Motions. See Balcam v. Town of Hingham. 41 Mass. App. Ct. at 261- 262; Defendants' Suggestion of Want of Jurisdiction and Opposition to Plaintiffs' Motion for Preliminary Injunction". Evidently as a result, the Court based its entire factual findings upon the affidavit of Richard Rudders and unsupported allegations contained in the Complaint,which are fraught with totem pole hearsay, statements not based upon his own personal knowledge and gross inaccuracies. (See, e.g, Affidavit of Richard Rudders, paragraphs 8, 11, 14,16; Complaint, para 21) . The committee takes strong exception to the court's statement that it acted in an arbitrary and capricious manner, when the committee was simply seeking that the Rudders comply with the terms of the approved and unappealed certificate of appropriateness. Clearly, it would be completely untenable for the trial court's decision based upon one unrefuted affidavit and untested allegations in a complaint, to serve as a final decision. [98-00171memd1en 8 Personnel Adm'r for Com., 400 Mass. 597, 599 (1987). However, it is clear that the injunctive relief is interlocutory and that the action in the nature of mandamus must still be litigated. WBZ-TV4 v. District Atty. for Suffolk, 408 Mass. at 598-599 fn.4. In light of the above, the court's "order of mandamus", if it has any validity at all, which the Defendant committee strongly disputes, it must be treated as a preliminary injunction. The familiar general rule for issuing preliminary injunctions is set forth in Packaging Indus. Group, Inc. v. Cheney, 380 Mass. 609, 617 (1980) and its progeny. Additionally, where, as here,the trial court's order is based solely on documentary evidence, the appeals court is free to draw its own conclusion from the record. Edwin R. Sage Co. v. Foley, 12 Mass. App. Ct. 20, 25-26 (1981). Even if there were jurisdiction in the superior court to entertain such a motion, the defendant committee respectfully asserts that the trial court utterly failed to apply the proper legal standard in imposing a mandatory injunction. Moreover, the Rudders cannot demonstrate a likelihood of success on the merits on this case. B. THE OLD KING'S HIGHWAY REGIONAL HISTORIC DISTRICT ACT VESTS EXCLUSIVE JURISDICTION OF THE CLAIMS RAISED IN THE PLAINTIFFS' COMPLAINT IN THE DISTRICT COURT AND, THEREFORE, THE SUPERIOR COURT DID NOT HAVE THE POWER TO ISSUE AN MANDATORY ORDER AND SHOULD HAVE DISMISSED THE PLAINTFFS' COMPLAINT. There is no dispute that the Rudders' property is located within the Old King's Highway Regional Historic District and, therefore, the construction they are seeking to undertake must comply with the provisions of the Act. The Act establishes a comprehensive administrative process and appellate regime vesting exclusive jurisdiction in the district court. Not only does the Act provide exclusive jurisdiction in the district P8-002Amemdieq 9 court for appeals from decisions of the Committee and Regional Commission but it grants the district court exclusive jurisdiction to "... enforce the provisions of this act and the determinations, rulings and regulations issued thereunder..." and authorizes it to "restrain by injunction violations thereof and issue such other orders for relief of violations as may be required.s 13 "Whenever it appears by suggestion of a party or otherwise that the court lacks jurisdiction of the subject matter, the court shall dismiss the action." Flynn v. Contributory Retirement Appeal Board, 17 Mass. App. Ct. 668, 670 n. 3 (1984). The superior court, in its decision, correctly recognized that the district court has exclusive jurisdiction over matters relating to the issuance of a certificate of appropriateness under the Act. (Decision at 5). Having reached this conclusion, the court, rather than dismissing the Rudders' complaint, inexplicably issued an "order of mandamus" revoking the February 10, 1998 stop work order. (Decision at 7, 9). Part of the court's confusion in this regard appears to stem from its misunderstanding of the responsibilities given to the building commissioner to enforce the provision of the Act under Section 12, which are clearly distinct and additional to the duties given to the building commissioner to enforce zoning under Chapter 40A. The Supreme Judicial Court has determined that legislation which creates historic districts represents a valid legislative exercise of the police power, separate and apart from zoning enactments. See generally, Opinion of the Justices to the Senate, 333 Mass. 773, 777-779 (1955). Similarly, the authority of the committee to apply the provisions of the Act, regardless of whether non-issuance of the certificate of appropriateness was the 13 Act§12. (98-002Amemdieq 10 only factor preventing the property-owner from using his property as he wished, has been upheld. See, e.g. Harris v. Old King's Highway Regional Historic Dist. Com'n, 421 Mass. 612 (1996); Anderson v. Old King's Hy. Regional Historic Dist. Commn., 397 Mass. 609 (1986). Yet, the primary reason provided by the trial court for its "order of mandamus" requiring the Building Commissioner to revoke his stop work order was that the issuance of the stop work order was not based upon zoning matters and was outside the scope of Chapter 40A. (Decision at 6-8). In support of its conclusion, the court cites several cases which dealt exclusively with zoning enforcement under Chapter 40A. (Decision at 6-7); Castelli v. Board of Selectmen of Seekonk, 15 Mass. 711 (1983).14 To hold that a property-owner can circumvent the provisions of the Act and the prescribed jurisdiction of the district court to enforce the Act under Section 12 by simply asserting in a superior court action that he is entitled to proceed under the building permit because he is not in violation of zoning has no basis in law and would clearly eviscerate the provisions of the Act. Simply stated, the superior court has no jurisdiction over the Rudders' Complaint and as such, the Complaint should be dismissed. t4/The Court in the Castelli case notes that the comprehensive changes under Chapter 40A effected by St. 1975, c. 808, Sec. 3, required that all questions regarding zoning enforcement be determined at the local administrative level before resort to the courts. As such, although the Appeals Court upheld the revocation of the stop work order, it prohibited the property-owner from working under the building permit to allow the initiation locally of any enforcement under the by-law. Similarly, Oulette v. Building Inspector of Quincy, 363 Mass. 272 (1972), also cited by the Court, was a pre-808 case and clearly today an action in the nature of mandamus would not be available. This illustrates that even in the zoning context, actions in the nature of mandamus are disfavored. (98-002Amemdieq s v , C. THE PLAINTIFFS HAVE FAILED TO EXHAUST THEIR ADMINISTRATIVE REMEDIES AND, THEREFORE, THEIR COMPLAINT SHOULD BE DISMISSED. "It is reasonable that a conscious participant in the administrative process be held to conditions of review specifically prescribed for the process, specifically the time limits." New England Milk Dealers Association, Inc. v. Department of Food and Agriculture, 22 Mass. App. Ct. 705, 710 (1986). "In the absence of a statutory directive to the contrary, the administrative remedies should be exhausted before resort to the courts." Gordon v. Hardware Mutual Casualty Co., 361 Mass. 582, 587 (1972). This policy reflects "a sound principle of law and jurisprudence aimed at preserving the integrity of both administrative and judicial processes." Assuncaco's Case, 372 Mass. 6, 8 (1977). In the instant case, the Plaintiffs admit that before demolishing the existing structure and commencing work on the new building, they were aware that they wanted to build their new home at a location different from that approved by the Committee. Their recourse under the Act was clear. The Rudders can file an application for a new certificate of appropriateness. See Harris v. Old King's Highway Regional Historic Dist. Com'n, 421 Mass. 612. 613 (1996). The Rudders' assertion that they have no administrative remedies to exhaust because the Committee cannot identify a decision subject to the administrative process is disingenuous at best. More accurately, recognizing that seeking a new certificate of appropriateness to properly amend the plan would afford their abutters' rights of appeal, the Rudders have scrupulously avoided pursuing the prescribed administrative JW027hemdieq 12 s J . procedures. Moreover, it is clear that any dispute over the applicability, scope or efficacy of the administrative remedies18 made available under the act should be determined by the appellate process spelled out in the Act itself, not through a spurious resort to a court alien to the subject matter under the guise of an ancient writ. D. AN ACTION IN' THE NATURE OF MANDAMUS DOES NOT LIE. An action in the nature of mandamus is only appropriate to compel a public official to perform a non-discretionary act he or she is legally obligated to do. "[I]t is well settled that the relief provided in the nature of mandamus does not lie to compel the municipal officer to exercise his or her judgment or discretion in a particular way." Urban Transp., Inc. v. Mayor of Boston, 373 Mass. 693, 698 (1977). The trial judge court's "order of mandamus" is based, in part, upon a conclusion that the building commissioner is imbued with the discretion to determine whether a property owner is in "substantial" compliance with the "... intent of the OKH Act." (Plaintiffs' Complaint, para. 24, 30). Where, as here, the trial court's decision is based upon a finding that the building commissioner should be permitted to exercise his discretion in a particular way, an action in the nature of mandamus will not lie. See Lutheran Service Association of New England v. Metropolitan District Commission, 397 Mass. 341, 344 (1986). 16/Contrary to another argument put forth by the Rudders, courts have rejected assertions of futility based upon an administrative board's previous involvement or knowledge of a particular matter. Peter L. Gill v. Board of Registration of psychologists, 399 Mass. 724(1987); Clark&Clark Hotel Corp v. Building Inspector Of Falmouth, 20 Mass.App.Ct. 206(1985). [98M2Amemdieq 13 Moreover, even if an act sought is ministerial in nature, "[i]t is settled that the writ of mandamus is an extraordinary remedy granted only where there is a failure of justice and in instances where there is no other adequate and effectual remedy." Coach & Six Restaurant, Inc. v. Public Works Commission, 363 Mass. 643, 644 (193). As noted above, the plaintiffs have an adequate administrative remedy which they simply have refused to pursue. Finally, "one reason to eschew mandamus is enough, but, if more were needed, one might recognize previous judicial admonitions against expansive use of that extraordinary remedy in novel applications, Reading v. Attorney Gen., 362 Mass. 266, 269, 285 N.E.2d 429 (1972), and too liberal use of the discretion inherent in the decision to issue an order in the nature of mandamus." Doe v. District Attorney for Plymouth Dist., 29 Mass App. Ct. 671, 675 (1991) (cite omitted). F. NONE OF THE CRITERIA FOR THE ISSUANCE OF A MANDATORY INJUNCTION HAVE BEEN MET BY THE PLAINTIFFS. For all the reasons enumerated above, the plaintiffs have not met their burden of showing any likelihood of success on the merits. Lanier v. Massachusetts Parole Board, 396 Mass. 1018 (1986). Moreover, in imposing the mandatory injunction, the trial court improperly ignored the requirement that where a public entity is a party, a judge may weigh the risk of harm to the public interest when deciding a preliminary injunction motion. Commonwealth v. Mass. CRINC, 392 Mass. 79, 88-89 (1984). Clearly, the public interest would be adversely affected if a comprehensive statutorily-imposed administrative procedure can simply be circumvented by seeking premature intervention from the court. See Balcam v. Town of Hingham, 41 Mass, App. Ct, at 261-262, 19M2AmemdieQ 14 A CONCLUSION. Defendant, the Barnstable Old King's Highway Committee, respectfully requests that this Court reverse and vacate the March 27, 1997 order of mandamus issued by the trial court. Dated: April 23, 1998. BARNSTABLE OLD KINGS HIGHWAY COMMITTEE, Defendants, By their Attorneys, ROBERT D. SMITH, Town Attorney [B.B.O. No. 469980] RUTH J. WEIL, Assistant Town Attorney [B.B.O. No. 519285] TOWN OF BARNSTABLE 367 Main Street, New Town Hall Hyannis, Ma. 02601-3907 (508) 790-6280; (508) 775-3344 FAX TO: ROBERT C. CHAMBERLAIN, ESQ. [B.B.O. NO. 080368] THOMAS J. PERRINO, ESQ, [B.B.O. No. 555297] Attorney for Plaintiffs 99 Willow Street, P.O. Box 40 Yarmouthport, MA 02675-0040 (508) 362-8262; (508) 362-6060 Fax CERTIFICATE OF SERVICE Barnstable, ss: April 23, 1998. I hereby certify under the pains and penalties rjury, t cau ed to be mailed by first- class mailing, postage prepaid, a copy of th ab a documen o the alto eys for the above- named parties on the date written above. Clai riffen, eg taut Town of Barn4ta416 [98-002Amemdieq 15 _• �.�� I 4--••moo i- F. j111 Department of Health, Safety and Environmental Services �' DARN.4I'ABLE, 1 MASS.' 039. BUILDING DIVISION BY;- 'f , IS PERMIT CONVEY N S O RIGHT TO OCCUPY ANY STREET,ALLEY OR SIDEWALK OR ANY PART THEREOF, EITHER TEMPORARILY OR PERMANENTLY.EN- OACHMENTS ON PUBLIC PROPERTY,NOT SPECIFICALLY PERMITTED UNDER THE BUILDING CODE,MUST BE APPROVED BY THE JURISDICTION.STREET OR LEY GRADES AS WELL AS DEPTH AND LOCATION OF PUBLIC SEWERS MAY BE OBTAINED FROM THE DEPARTMENT OF PUBLIC WORKS.THE ISSUANCE OFTHIS RMIT DOES NOT RELEASE THE APPLICANT FROM THE CONDITIONS OF ANY APPLICABLE SUBDIVISION RESTRICTIONS. MINIMUM OF FOUR CALL INSPECTIONS REQUIRED . ' FOR ALL CONSTRUCTION WORK: APPROVED PLANS MUST BE RETAINED ON JOB AND WHERE APPLICABLE; SEPARATE 1.FOUNDATIONS OR FOOTINGS THIS CARD KEPT POSTED UNTIL FINAL INSPECTION PERMITS ARE REQUIRED FOR 2.PRIOR TO COVERING STRUCTURAL MEMBERS HAS BEEN MADE.WHERE A CERTIFICATE OF OCCU ELECTRICAL,PLUMBING AND MECH- (READY TO LATH). PANCY IS REQUIRED,SUCH BUILDING SHALL NOT BE ANICAL INSTALLATIONS. 3.INSULATION. OCCUPIED UNTIL FINAL INSPECTION HAS BEEN MADE. 4.FINAL INSPECTION BEFORE OCCUPANCY. BY&DING INSPECTION APPROVAL PLUMBING INSPECTION APPROVALS ELECTRICAL INSPECTION APPROVALS 2 2 3 1 14=ATING INSPEICTMON APPROVALS ENGINEERING DEPARTMENT fr 2 =,. 40 OTHER: _ S PLA R IEW A V L v. c WORK SHALL NOT PROCEED TIL PERMIT WILL BECOME NULL AND VOID IF CON- INSPECTIONS INDICATED ON THIS THE INSPECTOR HAS APPROV THE STRUCTION WORK IS NOT STARTED WITHIN SIX CARD CAN BE ARRANGED FOR BY VARIOUS STAGES OF CONSTRUC- MONTHS OF DATE THE PERMIT 1S ISSUED AS TELEPHONE OR WRITTEN NOTIFICA- on ABOVE. TION. J EIj- -� --- - r� 11 E t_6 V.nn�n ___- EJ 5'�.t r�'^�: M•IIOaJE-.TC..��,j �,�i -7P�E t:?y �7 i i - ' T M ILL, I tl \ L I V - t S5 P FBI :� iPillUl -----y-- ---�----- ----�_��vf-����,�- i.;sc_.-..,.G1��..�- tz.._�.- .�- "is'���..ems:• i -��� �.� - , i i 1 I i i B.Y 51A� .wLc.:E-.7t•:�.-S'�ti %78667y - auw..o r�urm i -n woe .,.=r. '4 ..c:.. 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L xTF TNo/� - -.• _ , L INE The Town of Barnstable • BAMSTABL& • "AM Department of Health Safety and Environmental Services Building Division 367 Main Street,Hyannis MA 02601 Office: 508-790-6227 Ralph Crossen Fax: 508-790-6230 Building Commissioner TO: Peter Freeman,Chairman,O.K.H. FROM: Ralph Crossen,Building Commissioner REGARDING: 36 Sunset Lane,Barnstable,MA DATE: January 21, 1998 I have reviewed the plot plan of December 1, 1997 and both the height and location are substantially in conformance with Zoning and the intent of the O.K.H.act. I believe the stop work order should be lifted. I intend on doing that forthwith. q98012 I a Town of Barnstable - Planning Department °FjHE t Old King's Highway Historic District Committee 230 South Street, Hyannis, Massachusetts 02601 BARNSTABM * (508) 790-6285 Fax (508) 790-6288 9 MASS. s639. Arfp��A To: Ralph Crossen, Building Commissioner From: Old Kings-Highway Historic District Committee Date: February 9, 1998 Re: 36 Sunset Lane, Barnstable At a duly held meeting Old King's Highway Historic District Committee at which a quorum was present on February 9, 1998, the following two motions were approved: 1) To request the Building Commissioner to immediately issue a Cease and Desist Order to stop construction at 36 Sunset Lane Barnstable, MA, because the "as built" location of the house is 4' to 4.5' closer to the road than was approved by Old King's Highway Historic District; 2) To request that the Building Commissioner look into a.) whether the as built house is located closer to the Southeast lot line than was approved by Old King's Highway Historic District and b.) whether the elevation of the house as built is higher than the approved plans. As to the house location issue, Stan Alger's review of the plot plans submitted by Sweetser Engineering and Eagle Survey, and of the site plan approved by Old King's Highway Historic District Committee shows the following: The Old King's Highway Historic District approved site plan shows that the new house was to be 35' back from the layout of Sunset Lane. The Sweetser plan shows that the house is built 30.6' back from said layout. The Eagle plan shows that the house is built 31' back from said layout. We appreciate your assistance in this matter. Stanley IIger Peter L. Freeman !CIA IL � Edward Molans f BENCHMARK \ HYDRANT BOLT #64 ELEV.= j3,6i (NGVD) zoo 00 , TOP OF EXISTING `IV O FOUNDATION IS ELEV. 13.13 (NGVD) LOTS 141 & 143 1 \ ?B 00' 10,000 S.F 2 .00 EXISTING STRUCTURE TO BE REMOVED w ° 's°p a r , DRI ° 29,6)0' Q .°p. Ft Xo ^ 4 6 70 00 PROPOSED PLOT PLAN BARNSTABLE, MASS. 36 SUNSET LANE ROSIN ,"p DATE SEPT. 19, 1997 SCALE 1 = 20 v 1341 �1r JOB 3972-00 CLIENT HAMLYN SWEETSER ENGINEERING 235 GREAT WESTERN ROAD P.O. BOX 713 SOUTH DENNIS, MASS. 398-3922 02660 FAX 398-3063 Town of Barnstable - Planning Department � TO�q, Old King's Highway Historic District Committee 230 South Street, Hyannis, Massachusetts 02601 BARNSTABM * (508) 790-6285 Fax (508) 790-6288 9 MASS. g prFD MA'S A To: Ralph Crossen, Building Commissioner From: Old King's Highway Historic District Committee Date: February 9, 1998 Re: 36 Sunset Lane, Barnstable At a duly held meeting Old King's Highway Historic District Committee at which a quorum was present on February 9, 1998, the following two motions were approved: 1) To request the Building Commissioner to immediately issue a Cease and Desist Order to stop construction at 36 Sunset Lane Barnstable, MA, because the "as built" location of the house is 4' to 4.5' closer to the road than was approved by Old King's Highway Historic District; 2) To request that the Building Commissioner look into a.) whether the as built house is located closer to the Southeast lot line than was approved by Old King's Highway Historic District and b.) whether the elevation of the house as built is higher than the approved plans. As to the house location issue, Stan Alger's review of the plot plans submitted by Sweetser Engineering and Eagle Survey, and of the site plan approved by Old King's Highway Historic District Committee shows the following: The Old King's Highway Historic District approved site plan shows that the new house was to be 35' back.from the layout of Sunset Lane. The Sweetser plan shows that the house is built 30.6' back from said layout. The Eagle plan shows that the house is built 31' back from said layout. We appreciate your assistance in this matter. Staple Iger 0 Peter L. Freeman Edward Molans JAN-22-98 04 :51 PM ATTY PETER FREEMAN 5083628281 P. 02 Lipman, Drummond 6z Freeman Mr. Ralph Crossen, Building Commissioner TOWN OF BARNSTABLE Page 2 January 22, 1998 do not believe that the engineer' s certification, or verification, of what we all were looking for has been accomplished. And if, as you told me on the telephone, the new location. is "2 to 3 feet off" what OKH approved, that itself is still a discrepancy that OKH considers material. This ie not Peter Freeman' rs opinion, but the position of all five OKH members as voted at the December 17 , 1997 meeting. Please check with Tom Parry concerning my understanding of the above. And, please understand that neither I nor any one else on OKH wants to create unnecessary extra work for you or your Inspectors. In fact, we sincerely appreciate the extra effort at working with OKH that your department has made, as exemplified by your sending an znapector to attend our meetings. The true situation on the house in question has simply proven difficult for us to get a handle on; and we are simply trying to get to the bottom of it and be fair to all concerned. As frustrating as this may be, please be assured that your assistance is greatly appreciated. Very truly yours, r PETER L. FREEMAN PLFanjm l 'OO OQ W Y LOTS 141 & 143 10,000 S.F. f O E--q O 3O s' O _ O 3j 00 7Qo OQ , "AS-BUILT" PLOT PLAN TO THE BEST OF MY INFORMATION, BARNSTABLE, MASS. KNOWLEDGE, AND BELIEF THE;,,,#_.µ,se LOTS 141 & 143, L. C. 1'7933A FOUNDATION SHOWN ON THI ,H 20 c� , PLAN HAS BEEN LOCATED, i�1 r.JR DATE DEC. 1, 1997 SCALE 1 = GROUND AS INDICATED. ' ' ` °`` �' ' JOB 3972-00 CLIENT HAMLYN SWWEETSER ENGINEERING 235 GREAT WESTERN ROAD -` P.O. BOX 713 DEC. 1, 1997 o. , vycr,F. SOUTH DENNIS, MASS. DATE PROF. LAND SUR OR 398_3922 02660 FAX 398-3063 FEE- 6-98 FRI 4 2 PM BARNSTAE E, PI AN ING, rEP^ FA; NO. 5108 790 6288 P, 1 MWN OF SARNSTASLE NCMCE OF MEETINGS OF TOWN DWART'MEW AND ALL TOWN BOARDS An Required by Chapter;9.Mri- . /VAMFt7FG ?ARTMFl11P ®.4f��7 dA'�1LfM�551D110 �2ATL OF MM1`ING� G GE VERAL ptl MS_F- 1,F 111Cs' Februar 1998 Old King's Highway 'Hist6ric District. Committee 2:00 PM Meeting Cv discuss the construction at " 36 Sunset Lane, Barnstable P ACM School Adman. Bldg 230 South Street .. RO®M: Hyannis" SAB ROOM FWOFL date of Nodca: February.5, 1998 PERSONS INTERE�'T� ARE Awsm THAT.IN THE"EVENT ANY MATTER TAF.5� UP AT THE MEETING AEMAINS UNFINiSHEO AT THE'CLOSE OF THE MEE7NG,IT MAYBE L�KBOP TO A CONTINUED S1ON OF TH119 MEFTTINC�,WITHOUT FURTHER N(MM By Order of Peter b. F're�eman, Chairman � Clark.of Board/or Board Me eF mp all copies in Town Cleric`s ice-Leave 1 copy with Clark!Poia Capy, opy f®r ya>1c°Records). 1 V (TYT `It` i goo 00 , v W _ LOTS 141 & 143 10, 000 S:F � I 33 3` L %41 00 100. 00 "AS- BUILT" PLOT PLAN TO THE BEST OF MY INFORMATION, BARNSTABLE, MASS. KNOWLEDGE, AND BELIEF THE,.,,::� LOTS 141 & 143, L. C. 17933 FOUNDATION SHOWN ON THI` A i PLAN HAS BEEN LOCATE %` `c`<. DATE_DEC. 1, 1997 SCALE 1 " = 20' VIL GROUND AS INDICATE JOB 3972-00 CLIENT HAMLYN /✓ ENGfNEERING rvo.sssgi � SWEETSER . t� 235 GREAT WESTERN ROAD DEC. 1, 1997 r - P.O. BOX 713 DATE PROF. LAND SUVEOR SOUTH DENNIS, MASS. 398-3922 02660 FAX 398-3063 (TO PLAINTIFF'S ATTORNEY: PLEASE CIRCLE TYPE OF ACTION INVOLVED: TORT MOTOR VEHICLE TORT CONTRACT EQUITABLE RELIEF ems` OTHER r�ie0�rc I t/S• F.}L_ C~Oh/CrM COMMONWEALTH OF MASSACHUSETTS BARNSTABLE, ss. SUPERIOR COURT NO. 98-111 A TRUE CO Yl A Zn RICHARD RUDDERS and JOAN RUDDERS vs. DEPUTY SHERIFF BUILDING COMMISSIONER OF THE TOWN OF BARNS'TABLE and OLD KING' S HIGHWAY ' COMMITTEE SUMMONS AND ORDER OF NOTICE To the above-named Defendant You are hereby summoned and required to serve upon. .Thomas J. Perrino, Esquire, Quirk and Chamberlain I. . . plaintiff's attorney, whose address is .P. . .O. Box, 40,, .. . .. . 99 Willow Street, Yarmouth:Port, Massachusetts 02675-0040,. . .. . . . . . . . . . . . . .. . . . . . . . .. . . . . . . . . . . . . . . . . . . . . . . . . . .. an answer to the complaint which is herewith served upon you, within 20 days after service of this summons upon you, exclusive of the day of service. If you fail to do so, judgment by default will betaken against you for the relief demanded in the complaint.You are also required to file your answer to the complaint in the office of the*Clerk of this Court at Barnstable either before service upon plaintiff's attorney or within a reasonable time thereafter. Unless otherwise provided by Rule 13(a), your answer must state as a counterclaim any claim which you may have against the plaintiff which arises out of the transaction or occurrence that is the subject matter of the plaintiff's claim or you will thereafter be barred from making such claim in any other action. WE ALSO NOTIFY YOU that application has been made in said action,as appears in the complaint,for a preliminary injuction and that a hearing upon such application will be held at the Courthouse at .. .Barnstable. . . . . . . . . in the County of . . .Barnstable. . . . . . . . . . . . in the first session without jury of our said Court on MondaX . . . . . . the .twenty-third. . . . .. . ..day of P. February A. D. 19 98 , at. ..??.�. . . . . . . . . . . . o'clock X.M., at which you may appear and show cause why such application should not be granted. Witness, ROBERT A. MULLIGAN , Esquire, at Barnstable, the . .nineteenth day of . . . . . . . . in the year of our Lord one thousand nine hundred and ninety-eight. . . . . . . . . . . . . . . . . . .. . . . . . . . . . Asst. Clerk NOTE: When more than one defendant is involved,the names of all defendants shall appear in the caption.If a separate summons is used for each defendant, each should be addressed to the particular defendant. *NOTICE TO DEFENDANT You need not appear personally in Court to answer the complaint but if you claim to have a defense, i either you or your attorney must serve a copy of your written answer within 20 days as specified herein and also file the original in the Clerk's office. C� COMMONWEALTH OF MASSACHUSETTS BARNSTABLE, SS. SUPERIOR COURT DOCKET NO. RICHARD RUDDERS and ) JOAN RUDDERS, ) Plaintiffs ) VS. ) BUILDING COMMISSIONER FOR THE ) TOWN OF BARNSTABLE and THE ) BARNSTABLE OLD KING'S HIGHWAY ) COMMITTEE, ) Defendants ) COMPLAINT PARTIES 1. The plaintiffs, Richard Rudders and Joan Rudders, are the owners of property located at 36 Sunset Lane, Barnstable, Massachusetts and have owned that property since the 1970 ' s. 2 . The defendant, Building Commissioner, is the zoning enforcement officer for the Town of Barnstable and for the Old Kings Highway Committee. 3. The defendant, Old King' s Highway Committee, (hereinafter referred to as "OKH" ) , is the statutory designated entity for review of proposals and to issue Certificates of Appropriateness for buildings within their jurisdiction pursuant to Mass. Gen. Laws Ch. 40C. JURISDICTION 4 . This is an action for mandamus and for a declaration of the rights of the parties pursuant to Mass. Gen. Laws Ch. 231A. QUIRK AND CHAMBERLAIN,-P.C. . '.TTORNEYS AND COUNSELLORS AT LAW 99 WILLOW STREET POST OFFICE BOX 40 a RMOUTHPORT,MA 02675-'040 5081362-6262 FACSIMILE 508/362-60E0 -2- 5. The plaintiffs assert there is an actual controversy between the parties which requires the Court to adjudicate and declare the rights of the parties with respect to the jurisdiction of the defendant, OKH. FACTS 6. On or about October 8, 1997 the defendant, OKH, at a duly advertised public hearing approved the demolition of an existing structure located on the Rudders ' property and approved a Certificate of Appropriateness for a proposed new dwelling to be located on the same site. See Exhibit "A" , Application for Certificate of Appropriateness. 7 . On October 8, 1997 on the night of the initial Old King' s Highway hearing on my Application for a Certificate of Appropriateness, my neighbor to the south, Joseph Dugas, entered my home without invitation or warning and issued a threat stating that "unless you build this house the way I want you to, you will never build it. What do you think about that?" 8. At the Old King' s Highway meeting later that night, Mr Dugas expressed concern over his view of the water from his bedroom window. A discussion ensued over the location of the new house in relation to its distance from the road and from the original foundation. Mr. Dugas sought to have the house moved back from the old foundation a distance of approximately 9-10 feet, but agreed that 3-4 feet might be all that was required to QUIRK AND CHAMBERLAIN, P.C. ,TTORNEYS AND COUNSELLORS AT LAW 99 WILLOW STREET POST OFFICE 80%40 ARMOUTHPORT.MA 02 6 7 5-0040 508/362 62EZ FACSIMILE 508/362 6060 -3- preserve his view. The plaintiffs and Mr. Dugas agreed to move the foundation back approximately 3-4 feet from the original foundation to accommodate Mr. Dugas. Due to a measurement error made by the plaintiff, the plot plan submitted to Old King' s Highway showed the proposed foundation of the new house as being 35 feet back from the property line rather than 26 feet which is where the plaintiff originally intended the new home to be located. 9. The location of the new foundation, as built, is set back approximately 30.6 feet from the front property line. The old foundation was located approximately 26.2 feet from the front property line. Therefore, the new foundation is approximately 4.4 feet further back than the old foundation. See Exhibit "B" , Revised Plot Plan. 10. At the hearing, Mr. Dugas expressed his concern over his view of the water from his second story window. The old foundation was 2 feet behind Mr. Dugas ' home. The location of the new foundation is 7 feet further back from the road than Mr. Dugas '* home. See Exhibit "C" , Eagle Surveying, Inc. Plot Plan. 11. After the Old King' s Highway meeting of October 8, 1997, the plaintiff saw the plot plan for the first time and realized the measurement error. The plaintiff communicated with the contractor regarding the location of the proposed foundation and instructed him to contact the Building Department and submit QUIRK AND CHAMBERLAIN, P.C. . ATTORNEYS AND COUNSELLORS AT LAW 99 WILLOW STREET POST OFFICE BOX 40 'ARMOUTHPORT.MA 02675-0040 508/362"6262 FACSIMILE 508/362.6060 -4- a revised plan reflecting the 3-4 foot setback as agreed. Prior to demolition of the plaintiffs ' original home, the contractor checked with the Building Department to determine whether a difference of approximately 4 feet on the proposed plan and what was proposed at the Old King' s Highway meeting required submission of a revised plan. The plaintiffs learned that a revision was not required because the final location would appear on the as built and as long as zoning regulations were complied with a 4 foot variation was not an issue. Because of that, a revised plan was not submitted. In reliance on this information, the plaintiffs proceeded with the demolition of the old home and the construction of the new home. 12 . In November, 1997, the Building Commissioner issued a building permit for construction of the new dwelling. An abutter, Joseph Dugas, has appealed the Building Commissioner' s decision to issue the permit. 13. On or about December 17, 1997 the defendant, OKH, at the request of an abutter to the Rudders, Joseph Dugas, conducted what purported to be an informal discussion of the project. However, based on the punitive action taken, without notice to the property owners, the hearing was more in the nature of a Show Cause Hearing. 14 . The plaintiffs were given no notice of this hearing. As a result of this hearing, the OKH Chairman, Attorney Freeman, QUIRK AND CHAMBERLAIN, P.C. ATTORNEYS AND COUNSELLORS AT LAW 99 WILLOW STREET POST OFFICE BOX 40 YARMOUTHPORT.MA 02E75-0040 508/362-6262 FACSIMILE 508/362-�:F0 -5- wrote a memorandum directing the Building Commissioner to issue a Stop Work Order on the project. See Exhibit "D" , Memorandum dated December 23, 1997 . 15. On or about January 7, 1998 another hearing was held by the OKH at the plaintiffs ' request. Present were the plaintiffs, their attorney, the plaintiffs ' contractor, Russ Hamlyn. The plaintiffs ' neighbor to the south, Joseph Dugas, was also present. 16. At that hearing, the discussion involved the location of the foundation of the new house. After an extended discussion it was agreed and understood that the issue of location of the new foundation would be referred to the Building Commissioner and upon the Building Commissioner' s satisfaction the Stop Work Order was to be lifted. Accordingly, a revised plot plan showing the old foundation and the new foundation was submitted to the Building Commissioner. See Exhibit "E" , Revised Plot Plan showing old foundation and new foundation as built. 17 . The Building Commissioner reviewed the matter and rendered his opinion that he was satisfied with the location of the new foundation. The Building Commission determined that "both the height and location are substantially in conformance with Zoning and the intent of the O.K.H.. act. " As a result the QUIRK AND CHAMBERLAIN, P.C. ATTORNEYS AND COUNSELLORS AT LAW 99 WILLOW STREET POST OFFICE BO%40 ARMOUTHPORT.MA 02675-0040 508/362-6262 FACSIMILE 508/362-6060 -6- Stop Work Order was lifted on or about January 21, 1998. See Exhibit "F" , letter dated January 21, 1998 from Ralph Crossen to Peter Freeman. 18. As work recommenced on the project, Mr. Dugas continued to raise other perceived problems, this time through the Town Conservation Commission. Although the Conservation Commission had previously noted no jurisdiction, a warning was issued to the plaintiffs. As a result, the plaintiffs have been required to file a Request for Determination of Applicability with the Town of Barnstable Conservation Commission. A hearing on the plaintiffs ' Request for a Determination of Applicability is scheduled for March 3, 1998. 19. On or about February 2, 1997 by telephone message received after 5:00 p.m. to plaintiffs ' counsel it was learned that OKH had scheduled a meeting for February 4, 1997. The apparent purpose was to discuss the construction of the plaintiffs home. Due to scheduling conflicts and for the reasons set forth in correspondence to Attorney Freeman, counsel for the plaintiffs did not attend this hearing. See Exhibit "G" , letter dated February 4, 1998. 20. Upon information a belief there was no legal notice of this hearing by publication or otherwise. Additionally, based on the understood agreement reached at the January meeting and the Building Commissioner' s removal of the Stop Work Order, QUIRK AND CHAMBERLAIN, P.C. .ATTORNEYS AND COUNSELLORS AT LAW 99 WILLOW STREET POST OFFICE BOX 40 'ARMOUTHPORT.MA 02675-0000 5081362-6262 FACSIMILE 508/362-6060 -7- further action by OKH was not contemplated and constitutes interference with the Building Commissioner' s enforcement authority. In essence, the defendant, OKH, was not satisfied with the Building Commissioner' s determination, although, it was understood that the defendant, OKH, would abide by the Building Commissioner' s determinations. 21. On or about Friday, February 6, 1998 the Chairman of the OKH, Attorney Peter Freeman, appeared at the Rudders ' property and demanded that all work stop immediately. The conduct of Attorney Freeman in attempting to intimidate, interfere and/or coerce the contractor to stop work without authority constitutes willful abuse of authority on the part of Attorney Freeman. 22 . On the morning of February 9, 1998 it was learned that the defendant, OKH, scheduled a further meeting for Tuesday, February 9, 1998 at 2 :00 p.m. The only agenda item was the plaintiffs' project. As set forth in the purported notice, the agenda indicated "discussion of the construction at 36 Sunset Lane, Barnstable, Massachusetts. See Exhibit "H" , Notice of Meeting. 23. The meeting was noticed for discussion only, however, punitive action was taken against the plaintiffs in that the defendant, OKH, requested the defendant, Building Commissioner, to issue a Cease and Desist Order based on a 4 to 4� foot QUIRK AND CHAMBERLAIN, P.C. ATTORNEYS AND COUNSELLORS AT LAW 99 WILLOW STREET POST OFFICE BOX 40 /ARMOUTHPORT.MA 02675-0040 508/362-6262 FACSIMILE 508/362-6060 ' -8- discrepancy between the proposed location and the actual location of the new foundation. See Exhibit "I" , Decision of OKH meeting of February 9, 1998 . 24 . As a result of the OKH action on February 10, 1998, the Building Commissioner issued a Stop Work Order. This was done despite the Building Commissioner' s satisfaction with the project' s zoning compliance and substantial compliance with the intent of the OKH act. This Stop Work Order is solely at the direction of OKH and is based only on a 4-4h foot difference in location of the foundation. See Exhibit "I" , Decision of OKH meeting of February 9, 1998. 25. The actions of OKH are beyond the scope of its jurisdiction and constitute unreasonable interference with the conduct of the Building Commissioner with regard to this project. COUNT I - MANDAMUS 26. The plaintiffs restate, reallege and incorporate Paragraphs 1 through 25 of this Complaint as if fully set forth herein. 27 . The Building Commissioner previously expressed his satisfaction with the project' s compliance with zoning and with the intent of the OKH act. The action of the OKH in ordering the Building Commissioner to issue a Cease and Desist Order based on location is beyond the jurisdiction of OKH and QUIRK AND CHAMBERLAIN, P.C. ATTORNEYS AND COUNSELLORS AT LAW 99 WILLOW STREET POST OFFICE 60%40 YARMOUTHPORT.MA 02675-0040 508/362-6262 FACSIMILE 508/362-6060 L -9- constitutes an unreasonable interference with the performance of the Building Inspector' s duties. 28. The actions of OKH in taking punitive action against the plaintiffs without proper notice is unlawful and, as such, the action taken at such meeting should be declared a nullity. 29. The Stop Work Order of February 10, 1998 was based not on the basis of non-compliance with zoning requirements, but rather on account of improper interference with the Building Commissioner' s duties by the defendant, OKH. 30. The plaintiffs are entitled to an honest uninfluenced opinion by the Building Commissioner with respect to enforcement issues and decisions. The Building Commissioner previously expressed his opinion that the project complied with zoning and the intent of the OKH act and the defendant, OKH, has interfered with that determination all to the plaintiffs ' detriment and has and will continue to sustain damage by the defendants ' actions. WHEREFORE, the plaintiffs request the following: 1. That a Short Order of Notice issue on the plaintiffs ' request for a preliminary injunction; 2 . That a preliminary injunction issue enjoining the defendant, OKH, their agents, servants and employees from taking any further action to prevent the plaintiffs from construction of their home located at 36 Sunset Lane,, Barnstable, Massachusetts; QUIRK AND CHAMBERLAIN, P.C. ATTORNEYS AND COUNSELLORS AT LAW 99 WILLOW STREET POST OFFICE BOX 40 YARMOUTHPORT.MA 02 67 5-0040 508/362 6262 FACSIMILE 5081362-6060 l -10- 3. That a permanent injunction issue as set forth in Request #2 above; and 4 . That the Court order the defendant, Building Commissioner, revoke the Stop Work Order issued on February 10, 1998 and to authorize construction of the project pursuant to the Building Permit. COUNT II - DECLARATORY RELIEF 31. The plaintiffs restate, reallege and incorporate Paragraphs 1 through 30 of this Complaint as if fully set forth herein. 32 . The plaintiffs assert that there exists a controversy which cannot be eliminated without intervention of the Court to establish and declare the respective rights of the parties. 33. The plaintiffs assert that the meeting itself and the action taken by OKH on February 9, 1998 meeting is unlawful in that no proper notice was given of the meeting, that the punitive action taken could not have reasonably been anticipated based on the purported notice and, further, that the defendant, OKH, has no jurisdiction over the location of the plaintiffs ' foundation. 34. Further, based upon the January 7, 1998 meeting it was understood that if the Building Commissioner was satisfied then no further action would be taken by OKH. The actions of the defendant, OKH, and its Chairman, Attorney Freeman, are unlawful QUIRK AND CHAMBERLAIN, P.C. - ATTORNEYS AND COUNSELLORS AT LAW 99 WILLOW STREET POST OFFICE BOX GO YARMOUTHPORT,MA 02675-OO40 508/362-6262 FACSIMILE 508/362-6060 -11- and beyond the scope of authority granted by statute to the defendant, OKH. 35. The plaintiffs are entitled to an honest uninfluenced opinion by the Building Commissioner, which was obtained by agreement of all concerned. The defendant, OKH, has taken action which improperly interferes with the duties of the Building Commissioner, all to the plaintiffs ' detriment and damage. WHEREFORE, the plaintiffs request the following: 1. That a Short Order of Notice issue on the plaintiffs ' request for a preliminary injunction; 2 . That a preliminary injunction issue enjoining the defendant, OKH, their agents, servants . and employees from taking any further action to prevent the plaintiffs from construction of their home located at 36 Sunset Lane, Barnstable, Massachusetts; 3. That a permanent injunction issue as set forth in Request #2 above; and 4. That the Court order the defendant, Building Commissioner, revoke the Stop Work Order issued on February 10, 1998 and to authorize construction of the project pursuant to the Building Permit. COUNT III - RELIEF PURSUANT TO M.G.L. CH. 40C 912A 36. The plaintiffs restate, reallege and incorporate QUIRK AND Paragraphs 1 through 35 of this Complaint as if fully set forth CHAMBERLAIN, P.C. g _ p y ATTORNEYS AND COUNSELLORS AT LAW 99 WILLOW STREET herein. POST OFFICE BOX 40 YARMOUTHPORT,MA 02 6 7 5-004 0 506/362-6262 FACSIMILE 508/362-6060 -12- 37 . The plaintiffs are aggrieved by the action taken by the defendant, OKH, on February 9, 1998. 38 . The action of the defendant, OKH, is unsupported by the evidence and exceeds the authority of the defendant, OKH. WHEREFORE, the plaintiffs request that the Court annul the decision of the defendant, OKH, and the plaintiffs further request the following: 1. That a Short Order of Notice issue on the plaintiffs ' request for a preliminary injunction; 2 . That a preliminary injunction issue enjoining the defendant, OKH, their agents, servants and employees from taking any further action to prevent the plaintiffs from construction of their home located at 36 Sunset Lane, Barnstable, Massachusetts; 3. That a permanent injunction issue as set forth in Request #2 above; and 4 . That the Court order the defendant, Building Commissioner, revoke the Stop Work Order issued on February 10, 1998 and to authorize construction of the project pursuant to the Building Permit. By their attorneys, Robert C. Chamberlain, Esq. , BBO #080368 Thomas J. Perrino, Esq. , BBO #555297 QUIRK AND CHAMBERLAIN, P.C. 99 Willow Street, P.O. Box 40 QUIRK AND /CHAMBERLAIN, P.C. YarmouthP ort MA 02675-0040 ATTORNEYS AND COUNSELLORS (5 0 8) 3 6 2-6 2 6 2 AT LAW 99 WILLOW STREET POST OFFICE BOX 40 !ARMOUTHPORT.MA 02675-0040 DATED: February 19, 1998 5081362-6262 FACSIMILE 508/362.6060 Application to1997 219 Old King s Highway Regional Historic District Committee in the Town of Barnstable for a CERTIFICATE OF APPROPRIATENESS Application is hereby made, iri triplicate, for the issuance of a-Certificate of Appropriateness under Section 6 of Chapter 470, Acts and Resolves of Massachusetts, 1973, for proposed work as described below and on plans, drawings or photographs ;,cc,rnpanying this application for: CHECK CATEGORIES THAT APPLY: 1. Exterior Building Construction: 2 New Building ❑ Addition . Q Alteration Indicate type of building: 5a-House ❑ Garage ❑ Commercial ❑ Other 2. Exterior Painting: ❑ 3. Signs or Billboards: ❑ New sign ❑ Existing sign ❑ Repainting existing sign 4. Structure: ❑ Fence ❑ Wall ❑ Flagpole ❑ Other (Please read other side for explanation and requirements). TYPE On PRINT LEGIBLY DATE ADDRESS OF PROPOSED WORK G Ae' ASSESSORS MAP NO. OWNIER L`•/6ZiAA P L .-6A Al tt al,n,1.4,5 ASSESSORS LOT NO. Je/ H0.1AE ADDRESS LY A/6/.14 w.h A7-12- tf /i/i4- ;</r• iz tl4- TEL. NO. t'- ! 7 FULL NAMES AND ADDRESSES OF ABUTTING OWNERS. Include name of adjacent property owners across any public street or way. (Attach additional sheet if necessary). -- 51217- A,00/1 L AGENT OR CONTRACTOR 36e S S f-� /`�L_�t/ h� J!! TEL. NO. D :P- 55_5 3 ADDRESS �� 51614A /t-�Z SD. 4 /Lr.Q, DETAILED DESCRIPTION OF PROPOSED WORK: Give all particulars of work to be done (see No. 8, other side), including materials to be used, if specifications do not accompany plans. In the case of signs, give locations of existing signs and proposed locations of new signs. (Attach additional sheet, if necessar�v). pli, 44/ --D/'-f/Z, �Z�Z S,/'fL .S/-f tz rs +fj Signed '�` !�'f ✓l �` er•Co ractor•Ayent ac x�_ in fttee use. •t�by'3-L..s' 17. 11 a /C C/J rc Certificate is hereby Date 19W lax approved IMPORTANT: If Certificate is approved, approval is subject to the 10 day appeal period I'll 8%I �:� Town of Barnstable �('y ,�J Old King's Highway Historic District Committee SPEC SHEET FOUNDATION J TD l� O /'' G oti ti 4 i i1 14d�-V/.f/G" 3 S/.q/z5 lf//�/7� G�pi3w Sf�//uc�,kc SIDING TYPEr-/t c,,i o sS9LOR CHIMNEY TYPE /9/L/ �C /G COLOR ROOF MATERIAL ff$�W,4 L j ,/ COLOR b 2) PITCH )a T� Z- WINDOW y SIZE JV6,4yLS TRIM COLOR 134C-/c' 97 vdn `j�I DOORS r-11, i /7 -0A, J- 1, COLOR SHUTTERS ,!/ U COLOR GUTTERS (i4i/4 !riz /a-G 4e1"//t/*.X- DECK ti D GARAGE DOORS 1tL,-/ S r'/J P/}ivr' G COLOR t t, SIGNS COLORS I. - J ' FENCE COLOR NOTES: Fill out completely, including measurements and materials/colors to be used. Three copies of this form are required for submittal of an application, along with three copies each of the plot plan, landscape plan and elevation plans, when applicable. Site plan should show all structures on the lot to scale. SPECSHT r 1 1 100 00 o Op DRIVE 800, � 2 i J o O � J00 OO , /f PROPOSED PLOT .: �:.yv .- \\NOF 511A_. BARNSTABLE, .9 mAS.s. TrLa� - -�, 7 36 :.SUNSET LANE i�� <<) U'Sat �, DATE SEPT. 19, 1997 SCALE 1" - 20'__ , '�ir� JOB 3972-00 CLIENT HAMLYN �, 235 GREAT WEN ERN RO DING P.O. BOX 713 SOUTH DENNIS, MASS. 398-3922 02660 FAX 398-3{ (>. • � �OjL�z /'Lo�S jo SoN Aw IZ C f3 o 1-1119 , v Sri AL,' rid % G/V . xl-rl4d 0lS r Icy Z., i . •`-.Cr--m,"�u�„af:�l'.^'�r,:..;ref; ...ur1�- i�l LOTS 141 & 143 e- F 'y n.., 1 � � f i AS-BUILT' PLOT PLAN TO THE BEST CF MY INFORMATION, BARNSTABLE, MASS. KNOWLEDGE, AND BELIEF THE LOTS 141 & 14 FOUNDATION SHOWN ON 3, L. C. 17933 PLAN HAS BEEN LOCATED;', `� DATE DEC. 1, 1'997 SCALE 1 " - 20' GROUND AS INDICATE D '�-`' ` .'' J08 3972-00 4.;�.:;� ' CLIENT HAMLYN S 'EE'TSL'R LNGINE'ERING DEC. 1, 199 _ 235 GREAT WESTERN ROAD DA iE PKOF. LAtJU SL1Rt fro SOUTH DENNIS, MASS. _— I:39R--3922 0266021� FA _T TOTq:- =.32 , iiI(i,'Ii!'��I�i,�1��i�!II�!!,I�'jtll��l:l i... L h M9 TAO e0L T 64 I .5 REV - /J.4 7 P ELEVATION I I.0 DEPICTED ON THIS ��y�F PLAN REPRESENTS AN APPROXIMATE .r /J,2 N LOCATION OF THE NATURAL GROUND ELEVATION BASED ON SPOT ELEVATIONS TAKEN BY ELECTRONIC SURVEY METHODS. I L O TS 1•4 l l 43 '$'4k S /00�'3, -F BN ME 1 \ • 00 • a I DODO S.F. BENCH MARK USED: RM S. /1'4o p /2,o 31•'t i \ ELEVATION: 12.24 NGVD I J:o o � l 4 z 1 113: 4� +12.e Io.eS j / I?,6+ DWELLING UNDER � / CONSTRUCTION o q L J T.O.F. 1J.92 R/L I O N MATES SHUTOFF 12.9 I 00 0 33 2.3 _ � o 10.42 10.7 1 /2.6 10.2e. // 0 /1.2///��� `y . `�`\ ` 12.e lO./1 110.5 P �� '`�` ` +I2.S . 10 y10 _ 0.29 /00. 0010.7 !o. I lo' -�- lo. P4rro oR/ 0.54 9.92 rF 1.3 9.64 10.19 M /0,66 /0,6 GqR 22. : .w A o s O o s/•: #30 i T.O.F. - 11.49 IQ e.0 ' ^ 4� O 'Al 24•s o N L 0 TS 145 147 TOWN OF BARNSTABLE ZONING NINE /0000 S.F. _ t ZONE R B /o,o+ SETBACKS w • 0.24 a FRONT - 20' SIDE - IO' e.7s REAR - l0' /0 00 . TO THE BEST OF MY PROFESSIONAL KNOWLEDGE. PROPERTY LINES SHOWN HEREON 1117 "�'-` _ INFORMATION AND BELIEF THE DWELLING SHOWN WERE COMPILED FROM AVAILABLE u� ��� ""`"� HEREON CONFORMS TO THE HORIZONTAL SETBACKS PLANS OF -RECORD AND DO NOT r ". OF THE ZONING BY-LAW FOR THE RB DISTRICT. REPRESENT AN ACTUAL SURVEY ON THE GROUND. I�.�r 91 419.98 ' i 1 i THE LOT SHOWN HEREON IS IN FLOOD HAZARD ZONE A3 (ELEV. 111 THE DWELL/NGS DEPICTED ON THIS W Al.-_r, i ,.,,�:','-, AS SHOWN ON MAP 250001 000/ D. DATED JULY 2. 19�2. PLAN WERE LOCATED ON THE GROUND . " - BY SURVEY ON JAN. 5. 1998 AND ,r''.�',ty •;; .;' i�L JAN. 27. 1998 AND EXIST AS SHOWN PLOT PLAN AS OF THE DATES OF LOCATION. �P.r\` ` / 1=f I , � 1N THIS PLAN IS FOR PLOT BARNSTABLN AM L T PLAN '::.'' � . PURPOSES ONLY AND NOT FOR L' ,`"`'' SCALEV l'-40' JAN. 28. 1998 RECORDING. DEED DESCRIPTIONS. �• /� �� ESTABLISHING PROPERTY LINES G EAGLE SURVEYING INC OR FOR CONSTRUCTION PURPOSES. r 823 Rout, M Yormouthport. YA. 02073 THIS PLAN l S VOID IF NOT (ao°) 302-4132 STAMPED AND SIGNED IN RED. (50e) 432-4 0 /0 20 40 z � � I ] . . � - �.: �� . $�7k �� OWRAND To: Ralph Grossen Date: December 23, 1997 Ip[ "' Building commissioner By Facsimile: 790-6230 From: Peter L. Freeman, chairman Barnstable OKH Committee Re: Sunset Lane, uarub Lable ilamlyn Conet runt i on, Ducras At the Mii meeting an December 17, 1997, Joseph Dugas brought to our Attention what he believed to be two issues of noncompliance with the Certificate of Appropriateness previoubly granted by the Committee for the house abutting his lot, now under construction by Hamlyn Construction. Issue 1: The building as proposed and approved was to be at the same finish grade as the house that was demolished on the site. It appears that the finished elevation ie 4' higher. Issue 2: The foundation was built almost 4 ' closer to Sunset Lane than was shown on the approved site plea. In discuss.Lng the maLLct, Usa C4MML-Knoo rova11a.1 thnt Kr. Dugas had appeared at the hearing on the application, and the exact location of the structure was a concern he raised at the hearing. ae was czVUVVA."6d about hic viow of the vatpr, and the relationship of the new structure to the surrounding buildings and the street. The Committee definitely felt that location was an issue, especially is an area like Common Fields, where the lots are small and the houses are close together, and especially where a neighbor's view can• be accommodated without detriment to the applinar,t ,- These matters were reviewnd on December 17, 1997, and the Committee expressed the opinion, unanimouzlyr that the construction of the house as described above, as to both issues, was in violation of the Certificate of Appropriateness. It was the opinion of the CommitLets that the changes constituted more than minor changes, and that a stop work order should be issued by the Building Department. The location of the structure is material to this application, for the reasons stated above. However, I must also emphasize that 1......t�,:a is slaspya a cent-; arat i nn in nnr rpVi cw Or¢,ipss. Our gui.delineo require that applicants submit "a plot plan showing the exact location of a proposed building or structure and identifying existing relevant bulldings di&J as Lructures. " who concideritts oti of TOTAL F.03 INl 1 kl�iGi(���,l�ii u ljl "settin {sections- is included in both the purpose section of the Act and in the powers, functions and duties section of the Act (Section 10) . Section 10 also calls upon thesection Committee to compare the proposed construction in relation Co "buildin s and structures is the immediate surroundin s" . g U9 that a buildings relation to other9buildIn iG Golf_evident to vary, depending on its proposed location, 4 the area will District Crown� •:ouY�sel to Old ning-*8 Highway Regional aistozlc omission, agrees with the view z have expressed in this Memorandum. Both he and z are ravel otherwise would set an improper and dangerouserned that holding inconsistent with precedent that the way that our 81sL-oric District Act traditionally been interpreted. has I would point out that the OI{H Guidelines also provide: "It shall be the duty and responsibility of the Commission to interpret the act . . . ". For all these reasons, our Committee respectfully urges you to Issue a stop work order on the propert right to a l y• PP The owner would have the APPraPriaLezzess y to our Committee for ar a new Certificate of , requestiny approval lox Lhe changes he has made. CC: ()wen Brown - By Fa=imile= 790-6288 TOTAL P.013 l r - LOTS 141 & 143 I. 6H �'1;�;llti';IIki i17f 4 crh ;- � ` c CIO V =rr �•. O x, 1. � 39�l••v;;r 1 •�� 1 fl r ti / i / Jf. TO THE BEST OF MY INFORMA TION, AS-BUILT„ PLOT PLAN KNCtiyLEDCE, AND BELIEF THE BARNSTABLE) MASS.. LOTS FOUNDATION SHOWN 141 P, vvry ON �i��-.... . & 143, L. C. 17933 . BAN HAS BEEN ZNc�F PLAN H LOCATED;-.. E° ;.;`�_ DATE DEC. 1 1997 SCALE 1 _ , AS INDICATED JOB 39/ —20 GRCU . CLIENT HAML ,N / 31 DEC. 1, 199 ' 235 GREAT wETFR ROAdl�G T ,: '- P.O. 64X 713 Da E NKOF. LAND SJR:VFlr�OR SOLiTH DENNIS, ki S3. .,3y_ A2F.,6 . r3Ta_ ,.31 l(�I!i�I�If'141t���I'�ill I's'���; I�!{� I!i��is�lll Ilil III�i II aj�l�� N�Fl::.��� ?�.,i��!e III Ni��,`{F Ij��iS°����'N�(���.�k��Il�il! t ki>�fi(U;:7t i li (ucm fhe Town of Barns-cab le s�xsTest.e. = • ��. 1 ¢ ,0�' Department of Health Safety and Environmental Services '�Eo►r+A�' Building Division 367 Main Street,Hyannis MA 02601 Office: 508-790-6227 Ralph Crossen Fax: 508-790-6230 Building Commissioner TO: Peter Freeman, Chairman,0. K.H. Key t •dly�'t FROM: Ralph Crossen,Building Commissioner REGARDING: 36 Sunset Lane,Barnstable,MA DATE: January 21, 1998 I have reviewed the plot plan of December 1, 1997 and both the height and location are substantially in conformance with Zoning and the intent of the O.K.H.act. I believe the stop work order should be lifted. I intend on doing that forthwith. g980121a :4t�'�'YI' ' 1� %-. vIRK AND CHAMBERLAIN, r.C. G� ,0112Eys and12ounIF-10T_ at 1Laa7 99 WILLOW STREET JAMES H. QUIRK.JR. POST OFFICE BOX 40 ROBERT C. CHAMBERLAIN BARNSTABLE OFFICE YARMOUTHPORT, MASSACHUSETTS 02 6 75-0040 PAMELA S. MARSH POST OFFICE BOX 92 50B/362-6262 THOMAS J. PER RINO BARNSTABLE. MA 02630 FACSIMILE 508/362-6060 A NASTA SIA WELSH PER RINO 508/362.43 14 OF COUNSEL WILLIAM E. CROWELL.JR. via Facsimile (508) 362-8281 February 4, 1998 Peter L. Freeman, Chairman Old King' s Highway Historic District 230 South Street �- Hyannis, MA 02601 '4 "t�l L. u^iW � �� r� L• pz; �s�' RE: OLD KING'S HIGHWAY MEETING FEB. 4, 1998 DR. RICHARD RUDDERS OUR FILE NO. 903/8533 Dear Mr. Freeman: - Please be advised that after returning from Boston, I received your message concerning Dr. Rudders and a Board meeting on February 4 . I attempted to contact you personally, but was unable to do so. I have commitments to two other matters on the 4th and, therefore, cannot be available to attend the Old King' s Highway meeting. I believe that we have complied with the intent of the meeting of January 7, 1998, where Dr. Rudders and I appeared to respond to the actions following the initial approval. The matter did go back to the Building Commissioner as you know. He reviewed the information and made the determination that the project was in compliance with zoning and the Old King' s Highway concerns. Attached please find the Building Commissioner' s file memo. Since being before your committee, Mr. Duga-s has appealed the Building Commissioner' s decision relative to a myriad of issues raised by his counsel. He has also successfully obtained a cease and desist order for a claim relative to the flood plain. This is now the third cease and desist order that Dr. Rudders and his wife have been forced to address. Apparently the statement made to Dr. Rudders at his house prior to the Old King' s Highway meeting that "If you don't build this house the way I want it you will never build it" , continues to be the agenda being raised by Mr. Dugas. My client has suffered substantial emotional and financial impact from the many proceedings he has been required to address. dad 7 K!%� :�C����� (�. �:$/� ,/�t� $k4 . Peter L. Freeman, Chairman February 4 , 1998 Page Two i If I can provide more specific information to you and/or the Board I will be glad to do so. Unfortunately, I am not available for your meeting this evening. If, as a result of this correspondence you have any questions, please do not hesitate to contact me regarding same. Very truly yours, QUUIRR AND CHAMB R N, P.C. QUIRK H. Quirk, Jr. , Esq. JHQ/mrg Enclosre cc: D Richard Rudders TOWN OF 13ARNSTAEI:E NOTICE OF M EMNM OF MWN MEZARTMEsNT AND ALL TOWN 813ARDS As.Required by Chapter q9,M.G.Q. N,QME CF DE=,4MWE.,l Bfl.4RD C;7=AfMl a,dN CAM 13F IVI -3 ING: & Grp, lF�9QL FUAPddF/V1F7NG.' February 9, 1998 Old KinCs Highway 'Historic District. Committee 17MI= 2:00 PM Meeting to discuss the construction at . 36 Sunset Lane, Barnstable RL M. School Admin. Bld •• 230 South Street RDDM: Hyannis " j . • SAB ROOM - Pf AGR: Data of NotiCW February. 5, 1998 PER SONS INT'ERESIELTARE AC.-ME D THAT. IN THE EVENT ANY MATTER TAKEN UP AT THE A4EE37NG REMAINS UVFNISHIH7 ATTHE=EE 37:THE MEEnNG, IT MAY BE PUT OFF TO A CONTINUED SOON OF?HbS 1NIEEf1NG, WITHOUTRJAT7iII3 NCMM By. Order of -Peter. 'L*. Freeman, Chairman"'.* tv Clerk.of Board/or Board Me be [T,mestsmp ail copies in Town Clerk's Offica-Leeva 1 copy with Clerk-Fo a - Keep a.Copy for your Rerardsj. l�1 Ve Ln V. . A �_p�, �' 4' ������r�1�1 ' ��u1:.��� �� ll i Il'J4yy :u�'8'yg7�7 I{. �i: ��N���I��.�!�1!'tiG�`�7�u h Town of Barnstable - Planning Department T TOYtti Old King's Highway Historic District Committee 0 1 230 South Street, Hyannis, Massachusetts 02601 • • J (508) 790-6285 Fax (508) 790-6288 BARNSTABLE, 9 MASS. 16g9. ♦0 �ArfO MA'I A AGENDA FOR ***SPECIAL PUBLIC HEARING*** To all persons deemed interested or affected by the Town of Barnstable's OLD KING'S HIGHWAY HISTORIC DISTRICT under Section 9 of Chapter 470, Acts of 1973. You are hereby notified that a hearing will be held on the following applications for Certificate of Appropriateness and other types of applications or requests, if so named. The hearing will be held in the School Administration Conference Room, 230 South Street, Hyannis, MA., at 2:00 P. M. on Monday, February 9, 1998. Agenda items Discussion of the construction at 36 Sunset Lane, Assessor's Map# 301, Parcel# 036, Barnstable- ALL APPLICATIONS AND PLANS MAY BE REVIEWED AT THE OLD KING'S HIGHWAY HISTORIC DISTRICT OFFICE, TOWN OF BARNSTABLE PLANNING DEPARTMENT, 230 SOUTH STREET, HYANNIS, MA. Peter L. Freeman, Chairman Old King's Highway Historic District I i TC ! C'cRK Town of Barnstable - Planning D "iiien ''" c VE ro Old King's Highway Historic District Committee �29 y 230 South Street, Hyannis, Massacfts �691 saRxsTasi.E. : (508) 790-6285 Fax (508) 790-6288 y Mass. 1639. �ArFD MP'�A Decision Special Public Meeting of February 9, 1998 Re: In the application of Richard & Joan Rudders, 36 Sunset Lane, Assessor's Map# 301, Parcel#036, Barnstable- Discussion of the construction at 36 Sunset Lane The meeting was held in the School Administration Conference Room, 230 South Street, Hyannis, MA., at 2:00 P. M. on Monday, February 9, 1998. W 4 Committee members present at this meeting were Edward Molans, Stanley Alger, and the Chairman Peter Freeman. Also sitting in on the meeting were Joseph and Edith Dugas and Lois Farmer, Esquire. At a duly held meeting Old King's Highway Historic District Committee at which a quorum was present on February 9, 1998, the following two motions were made Stanley Alger and seconded by Ed Molans and approved unanimously to: 1) To request the Building Commissioner to immediately issue a Cease and Desist Order to stop construction at 36 Sunset Lane Barnstable, MA, because the "as built" location of the house is 4' to 4.5' closer to the road than was approved by Old King's Hiahway Historic District; 2) To request that the Building Commissioner look into a.) whether the as built house is located closer to the Southeast lot line than was approved by Old King's Highway Historic District and b.) whether the elevation of the house as built is higher than the approved plans. JAN - 9 Peter L. Freeman, Chairman Date Rudder-E.docN I��:l ��`�� �����i���l � � , � ���- Old King's Highway Historic District Coy ornittee 230 South Street, Hyannis, Massachusetts 02601 BARPWABIZ s (608) 790-6285 Fax (608) 790-6288 MASS. 1659. To: Ralph Crossen, Building Commissioner From: Old King's Highway Historic District Committee Date: February 9, 1998 Re: 36 Sunset Lane, Barnstable At a duly held meeting of the Old King's Highway Historic District Committee at which a quorum was present on February 9, 1998, the following two motions were approved: 1) To request the Building Commissioner to immediately issue a Cease and Desist Order to stop construction at 36 Sunset Lane Barnstable, MA, because the "as built" location of the house is 4' to 4.5' closer to the road than was approved by Old King's Highway Historic District; 2) To request that the Building Commissioner look into a.) whether the as built house is located closer to the Southeast lot line than was approved by Old King's Highway Historic District and b.) whether the elevation of the house as built is higher than the approved plans. As to the house location issue, Stan Alger's review of the plot plans submitted by Sweetser Engineering and Eagle Survey, and of the site plan approved by Old King's Highway Historic District Committee shows the following: The Old King's Highway Historic District Committee approved site plan shows that the new house was to be 35' back from the layout of Sunset Lane. The Sweetser plan shows that the house is built 30.6' back from said layout. The Eagle plan. s"oti.s that the house is built 31' back from said layout. We appreciate your assistance in this matter. Stance Iger 4 Peter L. Freeman JWV GL �nD f Edward Molans COPY COMMONWEALTH OF MASSACHUSETTS BARNSTABLE, SS. SUPERIOR COURT DOCKET NO. RICHARD RUDDERS and ) JOAN RUDDERS, ) Plaintiffs ) VS. ) BUILDING COMMISSIONER FOR THE ) TOWN OF BARNSTABLE and THE ) BARNSTABLE OLD KING'S HIGHWAY ) COMMITTEE, ) Defendants ) PLAINTIFFS ' MOTION•FOR ORDER OF MANDAMUS AND PRELIMINARY INJUNCTION' Now come the plaintiffs, Richard Rudders and Joan Rudders, and request that this Court issue an order of mandamus requiring the defendant, Building Commissioner for the Town of Barnstable, to revoke a Stop Work Order issued on February 10, 1998 and to authorize construction of the project pursuant to the Building Permit. The plaintiffs also request a preliminary injunction enjoining the defendant, Old King' s Highway (hereinafter referred to as "OKH" ) , their agents, servants and employees from taking any further action to prevent the plaintiffs from construction of their home located at 36 Sunset Lane, Barnstable, Massachusetts. As grounds therefor, the plaintiff asserts the following as set forth in the Affidavit of Richard Rudders, attached hereto as Exhibit "1" and in the Complaint filed herewith: QUIRK AND 1. The Building Commissioner previously expressed his CHAMBERLAIN, P.C. satisfaction with the project' s compliance with zoning ATTORNEYS AND COUNSELLORS AT LAW 99 WILLOW STREET POST OFFICE BOX 40 /ARMOUTHPORT.MA 02675-0040 .. 508/362 6262 FACSIMILE 508'362-6060 -2- and with the intent of the OKH act. The action of the OKH in ordering the Building Commissioner to issue a Cease and Desist Order based on location is beyond the jurisdiction of OKH and constitutes an unreasonable interference with the performance of the Building Inspector' s duties. 2 . The actions of OKH in taking punitive action against the plaintiffs without proper notice is unlawful and, as such, the action taken at such meeting should be declared a nullity. 3. The Stop Work Order of February 10, 1998 was based not on the basis of non-compliance with zoning requirements, but rather on account of improper interference with the Building Commissioner' s duties by the defendant, OKH. 4 . The plaintiffs are entitled to an honest uninfluenced opinion by the Building Commissioner with respect to enforcement issues and decisions. The Building Commissioner previously expressed his opinion that the project complied with zoning and the intent of the OKH act. In further support, the plaintiffs assert that the construction complies in all respects with the Town of Barnstable Zoning Ordinances and By-Laws and that, but for the action taken by the defendant, OKH, the Building Commissioner would not have issued the Stop Work Order. The plaintiffs also assert that any deviation from the proposed foundation location and the as built was done with approval of and in reliance on the Building Department' s authority. Further, the plaintiffs assert that irreparable harm will result in that they have and will continue to be deprived of the use and enjoyment of their property by the actions of the defendants. QUIRK AND CHAMBERLAIN, P.C. ATTORNEYS AND COUNSELLORS AT LAW 99 WILLOW STREET POST OFFICE BOX 40 fARMOUTHPORT.MA 02675-0040 50B/362-6262 FACSIMILE 508/362-6060 -3- WHEREFORE, the plaintiffs request an order of mandamus requiring the following: 1. That a Short Order of Notice issue on the plaintiffs ' request for a preliminary injunction; 2 . That a preliminary injunction issue enjoining the defendant, OKH, their agents, servants and employees from taking any further action to prevent the plaintiffs from construction of their home located at 36 Sunset Lane, Barnstable, Massachusetts; 3. That a permanent injunction issue as set forth in Request #2 above; and 4 . That the Court order the defendant, Building Commissioner, revoke the Stop Work Order issued on February 10, 1998 and to authorize construction of the project pursuant to the Building Permit. By his attorneys, Robert C. Chamberlain, Esq. , BBO #080368 Thomas J. Perrino, Esq. , BBO #555297 QUIRK AND CHAMBERLAIN, P.C. 99 Willow Street, P.O. Box 40 Yarmouthport, MA 02675-0040 (508) 362-6262 QUIRK AND CHAMBERLAIN, P.C. DATED: February 19, 1998 ATTORNEYS AND COUNSELLORS AT LAW 99 WILLOW STREET POST OFFICE 80X 40 YARMOUTHPORT.MA 02675-0040 508/362-6262 FACSIMILE 508/362-6060 COMMONWEALTH OF MASSACHUSETTS BARNSTABLE, SS. SUPERIOR COURT DOCKET NO. RICHARD RUDDERS and ) JOAN RUDDERS, ) Plaintiffs ) VS. ) ) BUILDING COMMISSIONER FOR THE ) TOWN OF BARNSTABLE and THE ) BARNSTABLE OLD KING'S HIGHWAY ) COMMITTEE, ) Defendants ) AFFIDAVIT OF RICHARD RUDDERS I, Richard Rudders, on my oath depose and say as follows: 1. My name is Richard Rudders and along with my wife, Joan, own .the property located at 36 Sunset Lane, Barnstable, Massachusetts. I am a professor of medicine at Boston University School of Medicine. My wife and I and our children use the Barnstable home throughout the entire year. 2 . We have owned this property since the late 1970 ' s and have used it as a second home since that time. I am planning on retiring later this year and moving to my home in Barnstable on a permanent basis. 3. The home at 36 Sunset Lane was a single story two bedroom house. In order to make it more comfortable for year round living I proposed to demolish the existing structure and replace it with a larger two story single family dwelling. I have refinanced my current primary residence to pay for this QUIRK AND project. CHAMBERLAIN, P.C. ATTORNEYS AND COUNSELLORS AT LAW 99 WILLOW STREET POST OFFICE BOX 40 ARMOUTHPORT.MA 02675-0040 508,362-6262 FACSIMILE 508/362-6060 ■ @ / -2- 4 . On October 8, 1997 on the night of the initial Old King' s Highway hearing on my Application for a Certificate of Appropriateness, see Exhibit "A" , Application for Certificate of Appropriateness with approval noted, my neighbor to the south, Joseph Dugas, entered my home without invitation or warning and issued a threat stating that "unless you build this house the way I want you to, you will never build it. What do you think about that?" 5. At the Old King' s Highway meeting later that night, Mr Dugas expressed concern over his view of the water from his bedroom window. A discussion ensued over the location of the new house in relation to its distance from the road and from the original foundation. Mr. Dugas sought to have the house moved back from the old foundation a distance of approximately 9-10 feet, but agreed that 3-4 feet might be all that was required to preserve his view. Mr. Dugas and I agreed to move the foundation back approximately 3-4 feet from the original foundation. Due to a measurement error made by me, the plot plan submitted to Old King' s Highway showed the proposed foundation of the new house as being 35 feet back from the property line rather than 26 feet. The mistake occurred because I had measured the distance from the edge of pavement which I later learned is not the correct property line. 6. The location of the new foundation, as built, is set QUIRK AND back approximately 30.6 feet from the front property line. The CHAMBERLAIN, P.C. PP Y p p y \TTORNEYS AND COUNSELLORS AT LAW 99 WILLOW STREET old foundation was located approximately 26.2 feet from the POST OFFICE BOX 40 ARMOUTHPORT.MA 02675-0040 508/362 6262 FACSIMILE 508/362-6060 L -3- front property line. See Exhibit "B" , Revised Plot Plan. Therefore, the new foundation is approximately 4 .4 feet further back than the old foundation and is what was agreed to at the Old King' s Highway meeting. 7 . At the hearing, Mr. Dugas expressed his concern over his view of the water from his second story window. The old foundation was 2 feet behind Mr. Dugas ' home. The location of the new foundation is 7 feet further back from the road than Mr. Dugas ' home. See Exhibit "C" , Eagle Survey, Inc. Plot Plan. The location of the new foundation does not in any way interfere with the view from the Dugas home. 8. After the Old King' s Highway meeting of October 8, 1997, I saw the plot plan for the first time and realized the mistake I had made in the measurement of the property foundation. I communicated with my contractor regarding the location of the proposed foundation and instructed him to contact the Building Department and submit a revised plan reflecting the 3-4 foot setback agreed to at the Old King' s Highway meeting Prior to demolition of my original home, Mr. Hamlyn checked with the Building Department to determine whether a difference of approximately 4 feet on the proposed plan and what was proposed at the Old King' s Highway meeting required submission of a revised plan. We were told a revision was not required because the final location would appear on the as built QUIRK AND and as longas zoning regulations were complied with a 4 foot CHAMBERLAIN, P.C. g g p ATTORNEYS AND COUNSELLORS AT LAW 99 WILLOW STREET variation was not an issue. Because of that, a revised plan was POST OFFICE BOX 40 'ARMOUTHPORT,MA 02675-0040 508/362-6262 FACSIMILE 508/362-6060 _ -4- not submitted. In reliance on this information, we proceeded with the demolition of my old home and the construction of my new home. 9. At a meeting of Old King' s Highway held on December 17, 1997 a discussion of my project occurred at the insistence of Mr. Dugas. I was not provided any notice of this meeting. I later learned that as a result of this meeting, Old King' s Highway decided to instruct the Building Commissioner to issue a Stop Work Order based on Mr. Dugas' assertions regarding the construction of the foundation. See Exhibit "D" , Memorandum dated December 23, 1997 . Again, this was done without notice to me and in spite of the Building Department' s insistence that there were no zoning violations present. 10. A further hearing of Old King' s Highway was held on January 7, 1998 at which I was present along with my attorney. At this hearing the incorrect measurement made by me was explained to the Old King' s Highway. It was explained and demonstrated, by way of numerous photographs, that the location of the new foundation does not obstruct or interfere with the view from the Dugas property thereby fulfilling the agreement made at the original Old King' s Highway meeting.. 11. At the end of a lengthy discussion it was agreed upon by all parties that a plot plan would be submitted to the Building Commissioner showing the location of the old foundation QUIRK AND and the location of the new foundation. CHAMBERLAIN, P.C. See Exhibit "E" , ATTORNEYS AND COUNSELLORS AT LAW 99 WILLOW STREET Revised Plot Plan showing old foundation and, new foundation. POST OFFICE BOX 40 lARMOUTRPORT,MA 02675 0040 508/362-6262 FACSIMILE 508/362 6060 -5- It was understood that if the Building Commissioner was satisfied as to the location of the new foundation, then Old King' s Highway and Mr. Dugas would likewise be satisfied and raise no further objection. 12. The Building Commissioner reviewed the matter and determined that "both the height and location are substantially in conformance with zoning and the intent of the Old King' s Highway act. I believe the Stop Work Order should be lifted. I intend on doing that forthwith. " See Exhibit "F" , letter dated January 21, 1998 from Ralph Crossen to Peter Freeman. 13. The Old King' s Highway reversed their position and attempted to and did conduct two (2) additional meetings regarding this project. Due to insufficient notice, scheduling conflicts and the time of day, neither myself nor my attorney could attend. See Exhibit "G" , letter dated February 4, 1998. 14 . On Monday, February 9, 1998 at 2:00 p.m. , Old King' s Highway held a meeting to discuss my project. See Exhibit "H" , Notice of Meeting. Significantly, Mr. Dugas and his attorney , were present at this meeting. Although the matter was scheduled ostensibly for discussion only, the Old King' s Highway took punitive action against me by instructing the Building Commissioner to issue a Cease and Desist Order based on issues relating to the location of the new foundation. See Exhibit "I" , Decision of OKH meeting of February 9, 1998. Q U I R K A N D CHAMBERLAIN, P.C. ATTORNEYS AND COUNSELLORS AT LAW 99 WILLOW STREET POST OFFICE BOX 40 1ARMOUTHPORT.MA 02675-0040 508/362-6262 FACSIMILE 5 0813 6 2-606 0 -6- 15. The home is now only partly constructed and is open to weather and unsecured. The second story is only partially constructed. This results in a potentially unsafe and dangerous condition and could result in a collapse of the constructed portion of the second story. 16. Based on information and belief, there are other homes constructed within the Old King' s Highway district which have equal or far greater deviations from the proposed approved plans with regard to location. For this reason I believe that I am being treated differently than other applicants and have been subject to action by the Old King' s Highway which is not only biased and discriminatory, but is beyond the scope of their authority. 17. Upon information and belief the most recent Stop Work Order is based solely upon the request of the Old King' s Highway and is not as a result of any violation of any zoning ordinance or by-law of the Town of Barnstable. The justification is that the new foundation is 4.4 feet closer to the front property line than what was approved by Old King' s Highway. 18. The actions of Old King' s Highway have caused and will continue to cause irreparable harm in that I have been deprived of the use and enjoyment of my property. This home is scheduled to be my permanent residence and because the completion schedule has been altered, I will not be able to retire and use my QUIRK AND CHAMBERLAIN, P.C. property. 'TTORNEYS AND COUNSELLORS AT LAW 99 WILLOW STREET POST OFFICE BOX 40 ARMOUTHPORT,MA 02675 0040 508/362-6262 FACSIMILE 508/362 6060 i Richard Rudders, being duly sworn, says that he has read the foregoing Affidavit and knots the contents thereof, and that the same is true to the best of his knowledge except as to those matters therein stated on information and belief, and as to those matters he believes them to be true. RICEMD RUDDERS COMMONWEALTE OF MMSACHUSETTS February ' 7 , 1998 Then personally appeared the above-reamed, Richard Rudders, who acknowledged the foregoing document to be his free act and deed, before me. NOTARY PAMLIC ' my Co=ission Expires: �3 f o?o d QUIRK AND CHAMBERLAIN, P.C. AIVURNM AM coUbMwo: AT LAW ee W-LLOw eAUT POST OP-cc MCM 40 . —@A.GUTW Iff.MA 4404.0ab *WiQ49AI r•cwuw xearr.ram TOTAL P.02 I` .. �'�\\ Application to �99 1--- y` -, r- ' 219 0 Kings Highway Regional Hisroric District Commirree in the Town of Barnstable for a �r ' CERTIFICATE OF APPROPRIATENESS ,f,plication is lureby made, iri triplicate, for the issuance of a-Certificate of Appropriateness under Section 6 of Chapter 470, Acts and Resolves of Massachusetts, 1973, for proposed work as described below and on plans, drawings or photographs :.ccr;rnpanying this application for: CHECK CATEGORIES THAT APPLY: 1. Eztr_rior Building Construction: 2 New Building ❑ Addition 7 Alteration Indicate type of building: Ta-House ❑ Garage ❑ Commercial ❑ Other 2, Exterior Painting: ❑ 3. Signs or Billboards: L7 New sign ❑ Existing sign ❑ Repainting existing sign 4. Structure: ❑ Fence ❑ Wall ❑ Flagpole ❑ Other (.Please read other side for explanation and requirements). TYPE Oil PRINT LEGIBLY DATE _ ADDRESS OF PROPOSED WORK '3 a/rl S1�i r G ti ASSESSORS MAP N0. 49 0`N !ER 12-1 C/; ,44-/7 I- .7b/f>✓ JZu1942,,5A-5 ASSESSORS LOT NO. HOME ADDRESS LY All141_/AA&a nn 46-r<i_G 1't . TEL. N0. l! 7 FULL NAMES AND ADDRESSES OF ABUTTING OWNERS. Include name of adjacent property owners across any public street or way. (Attach additional sheet if necessary). z r /I-C, s r7`14 /1 i AGENT OR CONTRACTOR. S S �-�/�/`�G f/ TEL. NO. 3 1-Z 1-5 3 2 ADDRESS 6( 5 16/^/L�t-�i S'D. All :z w>v /`t,4 DETAILED DESCRIPTION OF PROPOSED WORK: Give all particulars of work to be done (see No. 8, other side), including materials to be used, if specifications do not accompany plans. In the case of signs, give locations of existing signs and proposed locations of new signs. (Attach additional sheet, if necessary). Iti/ �pM� S %2/Z /i r� / J Signed er-Co ractor•Ayent '13c �'L rtcc use. 71 R G VC C/ tl ate Certificate is herebyDate r C L 9 -�r-Drcved _ IMPORTANT If Certificate !s approved, approval is subject to the 10 day acceal perinc; L ¥ §[pip y / �� . , \ƒ\a\ aw Town of Barnstable Old King's Highway Historic District Committee SPEC SHEET FOUNDATION , Tc /,A D f' G Dire tirf i/1 J 14d w/Vj!'; 3 S/J7/z S ;V /7A- CA'7/31` SIDING TYPE c:,//,4w CHIMNEY TYPE COLOR ROOF MATERIAL,ff si'�/l L` J COLOR D 2/ �'Wad D PITCH WINDOW V AIVQ11_14_50AJ SIZE S,47/L P6,43t-S TRIM COLOR j iL DOORS / /LOiv% 12,00 A- J- L/ l/i COLOR SHUTTERS y U COLOR GUTTERS w %,/i 14-6 4e/"//i/*;4- DECK ti 0 GARAGE DOORS rz- L COLOR i SIGNS COLORS FENCE "J COLOR NOTES: Fill out completely, including measurements and materials/colors to be used., Three copies of this form are required for submittal of an application, along with three copies each of the plot plan. landscape plan and elevation plans, when applicable. Site plan should show all structures on the lot to scale. SPECSHT Q) I � 29 00, a O 6Op., -% z O c � a 17 O IF h� 'J N N � h zoo , A PROPOSED PLOT v �N OF . S �.,�•- BARNSTABLE, MASS. Rpat - 1c= A7 36 .. .SUNSET LANE DATE SEPT. 19, 1997 SCALE 1" = 20' w i!a.31341 -=- >�. JOB 3972-00 CLIENT HAMLYN S;YE�TSL'R ENGINEERING 235 GREAT WESTERN ROAD P.O. BOX 713 SOUTH DENNIS, MASS. 398-3922 02660 FAX 398-3',:'. rL G G s oAv f3 �C13iz�.� 1 e1z sq,/t"wy o Av rid r3hnw s�1/9-156/' L7 42 /cam T �� pp G,7 LOTS 141 & 143 ;27 ;��l 10,000 S.F .t lqzc 4L. ri "1 , it c. AS-BUILT PLOT PLAN TO THE BEST CF MY INFORMATION, BARNSTABLE, MASS, KNCWLEDGE, AND BELIEF THE...".�,,x, LOTS 141 & 14 FOUNDATION 3, L. C. 17933 SHOWN ON TI-lfzµOF; PLAN HAS BEEN LOCATED;•', ,:; • " . * DATE DEC. 1, 1997 SCALE 1" - 20' GROUND E � ::: AS INDICATED JOB 3972-00 CLIEIJT HAM _ ) LYN SWEETSL'R ENGINEERING DEC. i, 199 235 GREAT WESTERN ROAD P.O. BOX 713 T DA I` PKOF. LAf L) SURVF.' SOUTH DENNIS, MASS. j,39R--392? 02660 FG X --� __.�__��J8 ..G J _HE gam= 11.78 Hm TAo BOLT 64 ELEY - /J.47 ELEVATION l l.0 DEPICTED ON THIS O ��'��►'�s PLAN REPRESENTS AN APPROXIMATE f/'1.z- LOCATION OF TH£ NATURAL GROUND ELEVATION BASED ON SPOT ELEVATIONS 1 TAKEN BY ELECTRONIC SURVEY METHODS. 1 L 0 T S 1.41 � / 4,3 *�'� s /00� 3/ •F 1 N . 00 . a, 10000 S.F. BENCH MARK USED: RM S /l'�0 ELEVATION: 12.24 NGVD O ?.0 31.e JJ.o 12.8 ,W 4 1J.o+ ti a I ,� - 4 4 & p RQ /o.e� j / 12.e�• DWELLING UNDER 1 CONSTRUCT/ON HATER SHUTOFF T.O.F. �j , 1 I n� o• o \ o I 10.42 10.7 16�\ate `\ 11. 10.2e 11.0 I?.6 ? i 10.11 PetsrONFOR`.` j +J2.s to.8-1- \ 11.st u.•�. .r1.0 /00. 00 , 10.7 10. 1 M o 11./S **41to pR/ 0454 9.92 YF M 1.3 ll.l /0.66 10.6 10 s+ 10.9 /0.62 .Ds Q4R 22's 11.1 0 Op � s/•= • O I #30 10.s+ Z T.O.F. - 1I.60 4t ?4•s O Qr O O L 0 TS 145 147 TOWN OF BARNSTABLE ZONING 0.e+ 10000 S.F. Z ZONE RB w /o,o+ SETBACKS D•2� cvv FRONT - 20. SIDE - /p- s.7t REAR - 10- /0 00 . S 7B�S>.3/ •F l o.OJ PRO?4 RTY LINES SHOWN HEREON I TO .THE BEST OF MY PROFESSIONAL KNOWLEDGE. INFORMATION AND BELIEF THE DWELLING SHOWN WERE COMP/LED FROM AVAILABLE E I!: _- HEREON CONFORMS TO THE HORIZONTAL SETBAC PLANS OF -RECORD AND DO NOT I KS REPRESENT AN ACTUAL SURVEY , �'i +� i OF THE ZONING BY-LAW FOR THE RB DISTRICT. ON THE GROUND. 'l I I 1 l W a 1998 ' = i THE LOT SHOWN HEREON IS IN FLOOD HAZARD 20NE A3 (ELEV. I THE DWELLING; DEPICTED ON THIS �';-,'I�'' I1 AS SHOWN ON MAP 250001 0001 D. DATED JULY 2. 1902. PLAN WERE LOCATED ON THE GROUND BY SURVEY ON JAN. S. 1998 AND JAN. 27. 1998 AND I ��' AS OF THE DATES OF LOCATION, <' '�' �� " PLOT PLAN EXIST AS SHOWN IN THIS PLAN IS FOR PLOT PLAN BARNS'TABU, MA, PURPOSES ONLY AND NOT FOR SCALE: 1•�90' JAN. 29. 1998 RECORDING. DEED DESCR 1 P T I ONS. �. / ESTABLISHING PROPERTY LINES �LL `� EAGLE SURVEYING , INC OR FOR CONSTRUCTION PURPOSES. i12J R006 $A THIS PLAN 1 S VOID /F NOT Y°"1011APort. MA. 02073 (608) 302-6132 STAMPED AND SIGNED 1N RED. (300) 432-6= 0 10 i i ii ��$ ���` �� ��'EF sf��F':r f'�i:i: s.___.._��. To.• Ralph Crosson Date: December 23, 1997 Building Commissioner .By Facsimile: 790-6230 From: Peter L. Freeman, Chairman 1011 Barnstable OKR Committee Re., Sunset Lane, uartib L41blo Uamiyu Conat riu-t i on, Ducras At the ORH meeting on December 17, 1997, Joseph Dugas brought to our Attention what he believed to be two issues of noncompliance with the Certificate of Appropriateness previously granted by the Committee for the house abutting his lot, now under construction by Bamlyn Construction. Issue 1: The building as proposed and approved was to be at the same finish grade as the house that was demolished on the site. It appears that the finished elevation is V higher. Issue 2: The foundation was built almost 4' closer to Sunset Lane than was shown on the approved site plan. In discussing the ti ULL=&, Liao e6mrateneo raw"11M.1 thnt Kr, Dugas had appeared at the hearing on the application, and the exact location of the Structure was a concern he raised at the hearing. ne vas vvu4eia.ad about his viow of the water, and the relationship of the new structure to the surrounding buildings and the street. The Committee definitely felt that location was an issue, especially in an area like Common Fields, where the lots are small and the houses are close together, and especially where a neighbor's view can- be accommodated Without detriment to the Applinant ; These matters were revlewe:d on December 17, 1997, and the Committee expressed the opinion, unanimouelyr that the construction of the house as described above, as to both issues, was in violation of the Certificate of Appropriateness_ It was the opinion of the Committee that the changes constituted more than minor changes, and that a atop work order should be issued by the Building Department. The location of the structure is material to this application, for the reasons stated above. Bovmver, I toast also emphasize that 1.,....L_.:,s is aalasarn a cone-;eiarat i nn in n11r rpYi cv Drgg9ss. Our guidelines require that applicants submit "a plot plan showing the exact location of a proposed building or structure and identifying existing relevant buildings aual =Lructures_ 11 Tbo cone. derat:Loss of TOTAL P.03 �I L� I tJ� a� 3y,F� "settings" is included in bath the (Section purpose section of the Act and in the powers, nct 'o�s end dut�section of tha S Act (Section Section 10 also calls upon the committee to cOmpare the proposed construction in relation to "buildings and structures in the immediate surroundings" . It is self-evident to as that a build.incg•s relation to other buildins iII the arch will vary, depending on its proposed location. g Brown, Counsel to old King-8 Highway Regional turic District Commission, agrees with the view I have expressed in this Memorandum. Both he and i are rave]. otherwise would set an improper and day -rouse ned thatrececlent holding inconsistent with is the way that. our llstorlc District acctthas traditionally been interpreted. I would point out that the 01M Guidelines also provide: "It shall be the duty and responsibility of the COI=ission to interpret the act V . . N. For all these reasons, ouzCommittee respectfully urges you to issue a stop work order on the property, The owner would have the right APP to apply to our Committee for a new Certificate of rvPriaL'esiess, requestiny appzovaj. for Lhe changes he has made. ocs Gwen Brown - By Famimile= 790-6288 TOTAL P.03 LOTS 141 & 148 10,000 S.F .� IN J''130 „ O • Cry. �3 ,. .� n, , rr �+ fl - pp Y I TO THE BEST CF MY (NFORMA T(0 AS--BUILT„ PLOT PLAN ►�, BARNSTABLE, MASS. KNCtivLEDG , AND BELIEF THc. Lc Ts FOUNDATION sHOwN ON 7711: F" '�. 141 & 143, L. C. 17933 PLAN HAS BEEN LOCATED': °� DATE DEC. 1 1'997 , GROUND A i�: `'' E''' SCALE 1 - 20 S INDICATE JOB 3972-00 CLItN T HAMLYN DEC. 1, log -.. 235 GREAT '!STERN RO pfG �- �� Da►E NKOF. LArJU ► ; OR ����H P.O[)E BOX�S71� fir SJRVF kqR--392 2 02660+ A,,,,. 32 r��i��_�!ri�;l�I�l4�r. 1 e Town ofBarnstable — � Department of Health Safety and Environmental Services prEDMA1� Building Division 367 Main Street,Hyannis MA 02601 Office: 508-790-6227 Ralph Crossen Fax: 508-790-6230 Building Commissioner TO: Peter Freeman, Chairman, O.K. H. FROM: Ralph Crossen,Building Commissioner REGARDING: -.,.. .r• 36 Sunset Lane Barnstable MA �•4 ..'�'`"`�" ;i,,•'•�'�', DATE: January 21, 1998 I have reviewed the plot plan of December 1, 1997 and both the height and location are substantially in conformance with Zoning and the intent of the O.K.H.act. I believe the stop work order should be lifted. I intend on doing that forthwith. g980121a i Ul•Ali :.: k��ilc H19 lliiliyij;i 4. . c ,07=ys and�20unszffozs at-faar 99 WILLOW STREET DAMES H. QUIRK.JR. POST OFFICE BOX 40 1'i0BERT C. CHAMBERLAIN BARNSTABLE OFFICE YARMOUTHPORT, MASSACHUSETTS 026 7 5-0040 PAMELA B. MARSH POST OFFICE BOX 92 508/362-6262 7H0MA5 J. PERRINO BARNSTABLE. MA 026_ ANASTA SIA WELSH PER RING FACSIMILE 508/362-6060 508/362-43 14 OF COUNSEL WILLIAM E.CROWELL.JR. via Facsimile (508) 362-8281 February 4, 1998 Peter L. Freeman, Chairman Old Ring' s Highway Historic District 230 South Street Hyannis, MA 02601 RE: OLD RING'S HIGHWAY MEETING FEB. 4f 1998 � DR. RICHARD RUDDERS OUR FILE NO. 903/8533 Dear Mr. Freeman: - Please be advised that after returning from Boston, I received your message concerning Dr. Rudders and a Board meeting on February 4 . I attempted to contact you personally, but was unable to do so. I have commitments to two other matters on the 4th and, therefore, cannot be available to attend the Old Ring' s Highway meeting. I believe that we have complied with the intent of the meeting of January 7, 1998, where Dr. Rudders and I appeared to respond to the actions following the initial approval. The matter did go back to the Building Commissioner as you know. He reviewed the information and made the determination that the project was in compliance with zoning and the Old Ring' s Highway concerns. Attached please find the Building Commissioner' s file memo. Since being before your committee, Mr. Duga-S has appealed the Building Commissioner' s decision relative to a myriad of issues raised by his counsel. He has also successfully obtained a cease and desist order for a claim relative to the flood plain. This is now the third cease and desist order that Dr. Rudders and his wife have been forced to address. Apparently the statement made to Dr. Rudders at his house prior to the Old Ring' s Highway meeting that "If you don't build this house the way I want it you will never build it" , continues to be the agenda being raised by Mr. Dugas. My client has suffered substantial emotional and financial impact from the many proceedings he has been required to address. I 1P Peter L. Freeman, Chairman February 4 , 1998 Page Two If I can provide more specific information to you and/or the Board, I will be glad to do so. Unfortunately, I am not available for your meeting this evening. If, as a result of this correspondence you have any questions, please do not hesitate to contact me regarding same. Very truly yours, QUIRK AND CHAMs N, P.C. ame H. Quirk, Jr. , Esq. JHQ/,u Enclosre cc: D Richard Rudders • TOWN OF EA►RNSMELE NCMCE OF M -j NG3 CF'T M GB:AMVMTAND ALL MVVPJ'ECARIIS As.Requiredby Chapter 3q,M.G.L. Af,4MFQFDEV,4A77W -V S770V DATE OF iV1 G., & G=EME 74L AU)VPCS 0FY1W j7IVG.- February 9, 1998 Old King's Highway Historic District. Committee 2:00 PM Meeting to discuss the construction at 36 Sunset Lane, Barnstable RLAM School Admin. Bld •' 230 South .Street ROOM: Hyannis " , . SAB ROOM • FLOOR: B x�c Dot@ D February. 5, 1998 No�i�L •• r; s•.'s8jilii•.!?�L5!ir!!I�I? PEi..71VS(N -ARE AWEEM THAT 1N THE EVEWANY MA T03 TA V UP AT THE MEETING AEi1l1A1NS UNRN(SH � ID ATTHE'CLD.EE OF 3N(EE;TNG. ITMAY HEM` '`!! PUT OFF W A CONTINUED SCESESM QF TH(S MEEi7NM WITHOUT icU THM NOTICE By. Older of .Peter L'. Freeman, Chairma`\`j ' Oki*of Bard/or$card Me fie (rime_�mp all copies in Town Clerk's Qffica.LMWe 1 copy Wfth Qerk. a C ,- Keep a.Copy for your Re=rdsj. Ln T � rn r- • Ln , u 0�� Z) mill'711 ��gal..: Town of Barnstable - Planning Department y��oFT Too,► Old King's Highway Historic District Committee 230 South Street, Hyannis, Massachusetts 02601 sAxivsrnsi.E. (508) 790-6285 Fax (508) 790-6288 9 MASS. 1659. ♦0 ArFb MA'S�' AGENDA FOR ***SPECIAL PUBLIC HEARING*** To all persons deemed interested or affected by the Town of Barnstable's OLD KINGS HIGHWAY HISTORIC DISTRICT under Section 9 of Chapter 470, Acts of 1973. You are hereby notified that a hearing will be held on the following applications for Certificate of Appropriateness and other types of applications or requests, if so named. The hearing will be held in the School Administration Conference Room, 230 South Street, Hyannis, MA., at 2:00 P. M. on Monday, February 9, 1998. Agenda items Discussion of the construction at 36 Sunset Lane, Assessor's Map# 301, Parcel# 036, Barnstable- ALL APPLICATIONS AND PLANS MAY BE REVIEWED AT THE OLD KING'S HIGHWAY HISTORIC DISTRICT OFFICE, TOWN OF BARNSTABLE PLANNING DEPARTMENT, 230 SOUTH STREET, HYANNIS, MA. Peter L. Freeman, Chairman Old King's Highway Historic District IL TG I'm C' =RK Town of Barnstable - Planning D�crf�rien " c Old King's Highway Historic District Committee �29 230 South Street, Hyannis, Massad%s RAMSTaeM = (508) 790-6285 Fax (508) 790-6288 Mass 9� t639. Decision Special Public Meeting of February 9, 1998 Re: In the application of Richard & Joan Rudders, 36 Sunset Lane, Assessor's Map# 301, Parcel#036, Barnstable- Discussion of the construction at 36 Sunset Lane The meeting was held in the School Administration Conference Room, 230 South Street, Hyannis, MA., at 2:00 P. M. on Monday, February 9, 1998. Committee members present at this meeting were Edward Molans, Stanley Alger, and the Chairman Peter Freeman. Also sitting in on the meeting were Joseph and Edith <<G aa� w' Dugas and Lois Farmer, Esquire. At a duly held meeting Old King's Highway Historic District Committee at which a quorum was present on February 9, 1998, the following two motions were made Stanley Alger and seconded by Ed Molans and approved unanimously to: 1) To request the Building Commissioner to immediately issue a Cease and Desist Order to stop construction at 36 Sunset Lane Barnstable, MA, because the "as built" location of the house is 4' to 4.5' closer to the road than was approved by Old King's Highway Historic District; 2) To request that the Building Commissioner look into a.) whether the as built house is located closer to the Southeast lot line than was approved by Old King's Highway Historic District and b.) whether the elevation of the house as built is higher than the approved plans. JAN - 9 998 Peter L. Freeman, Chairman Date Rudder-EdocN n �Nff t ,� ly'N?iiflifiiiifi 230 South Street, Hyannis, Massachusetts 02601 EAWMABLZ : (608) 790-6285 Fax (508) 790-6288 9 bUS& _ ib;q• 10� � ArED MP'�A To: Ralph Crossen, Building Commissioner From: Old King's Highway Historic District Committee Date: February 9, 1998 Re: 36 Sunset Lane, Barnstable At a duly held meeting of the Old King's Highway Historic District Committee at which a quorum was present on February 9, 1998, the following two motions were approved: 1) To request the Building Commissioner to immediately issue a Cease and Desist Order to stop construction at 36 Sunset Lane Barnstable, MA, because the "as built" location of the house is 4' to 4.5' closer to the road than was approved by Old King's Highway Historic District; 2) To request that the Building Commissioner look into a.) whether the as built house is located closer to the Southeast lot line than was approved by Old King's Highway Historic District and b.) whether the elevation of the house as built is higher than the approved plans. As to the house location issue, Stan Alger's review of the plot plans submitted by Sweetser Engineering and Eagle Survey, and of the site plan approved by Old King's Highway Historic District Committee shows the following: The Old King's Highway Historic District Committee approved site plan shows that the new house was to be 35' back from the layout of Sunset Lane. The Sweetser plan shows that the L. fi ut Inn shows that h u built house is �uil► 30.5 back from said layout. The Eagle p��.. ��...ti.� .ha. the house is b..i�. 31' back from said layout. We appreciate your assistance in this matter. Stanle Iger N Peter L. Freeman 'Edward Molans Trial Court of Massachusetts DOCKET NUMBER C'VIL ACTION COVER SHEET SUPERIOR COURT DEPARTMENT �-_ Fy ' BARNSTABLE . Division ���/// PLAINTIV(S) DEFENDANT(S) RICHARD RUDDERS AND JOAN RUDDERS ggBUILDING COMMISSIONER FOR THE TOWN OF HIAYB�E ANDTEE THE BARNSTABLE OLD KING'S ATTORNEY(S)FIRM NAME,ADDRESS AND TEL.) 508-362-6262 ATTORNEY(S)(if known) Robert C. Chamberlain, Esq., BBO #080368 Thomas J. Perrino, Esq., BBO #555297 QUIRK AND CHAMBERLAIN, P.C. 9 Willow Street, P.O. Box 40, Board of Bar Overseers # (Required) Yarmouthport, MA 02675 ORIGIN CODE AND TRACK DESIGNATION Place an ® in one box only: 1. F01 Original Complaint ❑ 4. F04 District Ct. Appeal c231, s. 97 (X) ❑ 2. F02 Removal to Sup. Ct. c 231, s. 104 (F) ❑ 5. F05 Reactivated after Rescript; Relief from ❑ 3. F03 Retransfer to Sup. Ct. c 231, s. 102C (X) judgment/order (Mass. R Civ. P. 60 (X) ❑ 6. E10 Summary process appeal (X) TYPE OF ACTION AND TRACK DESIGNATION (See Reverse Side) CODE NO. TYPE OF ACTION (specify) TRACK IS THIS A JURY CASE? D13 Declaratory Judgment ( A) ❑ Yes Fil No 1. PLEASE GIVE A CONCISE STATEMENT OF THE FACTS: (Required in ALL Types of Actions) Action for an order of mandamus requiring the defendant, Building Commissioner to remove a Stop Work Order and for a preliminary injunction. The Building Commissioner issued a Stop Work Order at the direction of the defendant, Old King's Highway Committee, despite the project's compliance with Town of Barnstable Zoning Ordinances and By-Laws. The action of the defendant` Old King's Highway Committee, is beyond the scope of their authority. 2. IN A CONTRACT ACTION (CODE A) OR A TORT ACTION (CODE B) STATE, WITH PARTICULARITY, MONEY DAMAGES WHICH WOULD WARRANT A REASONABLE LIKELIHOOD THAT RECOVERY WOULD EXCEED $25,000: 3. PLEASE IDENTIFY, BY CASE NUMBER, NAME AND DIVISION, ANY RELATED ACTION PENDING IN THE SUPERIOR COURT DEPARTMENT. SIGNATURE OF ATTORNEY OF RECORD OR PLAINTIFF pA� OFFICE USE ONLY • • NOT WRITE BELOW I DISPOSITION RECEIVED A. Judgment Entered B. No Judgment Entered BY: ❑ 1. Before jury trial or non-jury hearing ❑ 6. Transferred to District DATE ❑ 2. During jury trial or non-jury hearing Court under G.L. c.231, DISPOSITION ENTERED ❑ 3. After jury verdict s.102C. -❑ 4. After court finding Disposition Date BY: ❑ 5. After post trial motion DATE: OCAJ 6-mtc 005-6/91 • BARNSTABLE ZONING BOARD OF APPEALS APPEAL NO. 1998-37 IN RE APPLICATION OF ) JOSEPH and EDITH DUGAS ) MEMORANDUM OF RICHARD AND JOAN RUDDERS INTRODUCTION Richard and Joan Rudders have owned the property located at 36 Sunset Lane since the late 1970 ' s. They are planning on retiring and using the property as their primary home. To improve the property, the Rudders sought and obtained approval for the demolition of the existing structure and the permits to construct a two-story single family dwelling. Neighbors to the south, Joseph and Edith Dugas, have caused two (2) Stop Work Orders to be issued by the Building Department and one by the Conservation Department. They are also the applicants before the Zoning Board of Appeals. This required the Rudders to apply for a Request for a Determination before the Conservation Commission because a small portion of the driveway area is located in a flood plain. At a hearing held on March 3, 1998 the Rudders received a favorable decision that the fill placed in a flood plain is not significant for conservation purposes. The most recent Stop Work Order issued by the Building Department is the subject of a Barnstable Superior Court Action No. 98-111. The matter is before this Board on the appeal/application of Joseph and Edith Dugas pursuant to Mass. Gen. Laws Ch. 40A §7, an appeal from the Building Commissioner' s alleged failure to enforce the Barnstable Zoning Code. Matters which relate to the State Building -2- Code and issues related to proceedings before the Old King' s Highway Committee are not properly before this Board. The Dugas ' are seeking an order that the Building Permit be revoked and that the zoning laws be enforced. For the reasons set forth below, the Building Commissioner' s response to the Dugas' demand for enforcement should be upheld. A. THE APPLICANTS HAVE MANUFACTURED AN APPEAL BEYOND THE TIME ALLOWED IN AN ATTEMPT TO RESCIND A VALIDLY ISSUED BUILDING PERMIT. This is a situation in which the applicants are essentially challenging the issuance of a Building Permit. The applicants generated an appeal because they failed to appeal the issuance of the permit within the time allowed, even though the record demonstrates that the applicants had actual knowledge that the permit issued. Because they failed to appeal within the time allowed, the relief they now seek should be denied. The Building Permit was issued on or about November 14, 1997 . Mr. Dugas was aware that construction was commencing and that the foundation was being installed. In fact, Mr. Dugas claims a Building Inspector asked to borrow a shovel and that a Building Inspector informed him to call the Department if he observed work at the site. Further, Mr. Dugas appeared at an Old King' s Highway meeting on December 17, 1997 to discuss his concerns with this project. It is clear from the hearings that he knew within the time for appeals that a Building Permit had issued and he chose not to appeal. It is also clear that the issues raised were in existence during the appeal period. Therefore, he has waived his right to seek review of the propriety of the issuance of the Permit and his manufactured appeal should be denied. i -3- Further, the applicants have failed to demonstrate that they have standing as an aggrieved person. The applicant occupies a two story home himself and is attempting to prevent the Rudders from obtaining the same benefit. Additionally, the applicants cannot identify any protected property interest or tangible harm to their property. Rather it is clear that they are seeking to enforce town by-laws, a general community interest which does not confer upon them aggrieved person status. Harvard Sq. Defense Fund v. Planning Bd. of Cambridge, 27 Mass. App. Ct. 491, 540 N.E.2d 182 ( 1989) . B. THE PROPERTY OWNERS HAVE AT ALL TIMES FOLLOWED THE APPROPRIATE PROCESS AND PROCEDURE FOR OBTAINING BUILDING PERMITS AND ARE ENTITLED TO RELY ON THAT PROCESS. The Rudders, as property owners, are entitled to rely on the validity of the Building Permit issued by the Building Department. Prior to obtaining the permit the Rudders applied for a demolition permit and a Certificate of Appropriateness and received both. Shortly thereafter, the Building Permit was issued to the contractor hired by the Rudders. The Rudders are entitled to reasonably rely on the determination of the Building Commissioner that the project conformed with zoning and that they were entitled to a Permit as a matter of right. C. UNDER THE TOWN ZONING CODE THE RUDDERS' PROJECT IS ALLOWED AS A MATTER OF RIGHT, THEREFORE, THE BUILDING COMMISSIONER'S DETERMINATION SHOULD BE UPHELD. The lot in question is 10,000 square feet and is undersized under current zoning. Because of the lot size, the lot is non-conforming. The old structure, now demolished, conformed to zoning in all respects. The new structure, currently partially complete, also conforms to l -5- First, there was and currently is no non-conformity with regard to the use or the building. There is no issue with regard to use. As set forth above, both the old home and the new home conform with zoning. There is no non-conformity with regard to the building. Second, there has been no abandonment. The old home was demolished in accordance with a valid demolition permit. Construction of the new home was then immediately commenced, again in accordance with a valid building permit. Abandonment as used in zoning requires the intent to abandon and voluntary conduct which carries the implication of abandonment. Derby Ref. Co. v. Chelsea, 407 Mass. 703, 555 N.E.2d 534 ( 1990) . Here all work proceeded contemporaneously, thus, there is no intent to abandon. There was no significant lapse of time between demolition and the start of construction. Likewise, the conduct here expresses an intent to continue, not an implication to discontinue. This is evidenced by obtaining and operating under a Building Permit. E. THE ARGUMENTS OF THE APPLICANTS ARE NOT SUPPORTED BY THE BY-LAW OR THE CASE UPON WHICH THEY RELY. The applicants ' position is factually erroneous and is contrary to the Town By-Law. The applicants rely on 4-4.3 for the assertion that "the original building thereon was a non-conforming building as defined in 4-4.3. " First, the building itself conforms in all aspects to zoning. It is the lot which is non-conforming due to its size. Second, Section 4-4 .3 contains no definition of any sort. Finally, as argued above, 4-4 .3, assuming its applicability, entitles the Rudders to a Building Permit as a matter of right. Thus, the arguments advanced by the applicants must fail. i f -4- zoning in all respects. There are no encroachments into setbacks and it complies with applicable height restrictions. Section 4-4 .3 entitled "Non-conforming Buildings or Structures Used as Single and Two Family Residences" allows alterations and expansions to pre-existing non-conforming buildings or structures as a matter of right if the Building Commissioner finds A) the proposal does not in any way approach into setbacks in effect at the time of construction; and B) the proposed alteration or expansion conforms to , the current height limitations of the zoning ordinance. See copy of Section 4-4 .3 attached hereto as Exhibit "A" . This is also demonstrated by the site plan attached hereto as Exhibits "B" and "C" . Assuming that this section applies, the proposal satisfied the above criteria and is therefore allowed as a matter of right.' ' D. THE ABANDONMENT SECTION OF THE ZONING CODE DOES NOT APPLY TO THESE CIRCUMSTANCES. Section 4-4 .8 governs abandonment and is as follows: "Abandonment; Non-use. Any lawful pre-existing non-conforming use or building or structure or use of land which has been (i) abandoned or (ii) not used for 3 years, shall not thereafter be re- established. This section shall not apply in cases of damage or destruction governed by section 4- 4 .6% This section does not apply for the following reasons. 1 The above assumes that Section 4-4 .3 applies to situations such as the present matter which involves a building or structure that is conforming. Note that here, the non-conformity is due to lot size, not position of the structure located on the lot. By making this alternative argument the Rudders do not waive their right to contest the issue of whether a non- conforming structure exists due to an undersized lot. i I -6- The applicants cite the case of Siepel v. Tainter, Land Ct. Misc. No. 177558 ( 1994 ) for the proposition that as a matter of law demolition and removal of an existing structure forfeits any non- conforming status. The applicants misread both Siepel and Angus v. Miller, 5 Mass. App. ct. 470, 363 N.E.2d 1349 ( 1979) . The facts of Siepel are significantly different from the present situation. Siepel involved an undersized lot and a structure located on the lot which encroached into the zoning setbacks. The structure itself was non-conforming as to front, rear and one side. Thus any increase in the structure automatically increased the non-conformity of the structure. The Court remanded the case for variances because there was no possible way to locate the structure in compliance with zoning. Here, the structure (both old and new) complied with zoning. An increase in the structure will not result in an non-conforming structure. Rather, the end result will be the same: an undersized (non-conforming) lot with a completely conforming residential dwelling located thereon. Like the Court in Siepel, the applicants rely on Angus v. Miller, 5 Mass. App. Ct. 470, 363 N.E.2d 1349 ( 1977) for the proposition that "where a non-conforming structure is voluntarily demolished to make room for a new or essentially new, structure, non-conforming status is forfeited, even if the new building will not increase the non- conformity. " In Angus, non-conforming buildings were to be replaced with new structures which themselves were non-conforming. The present case does not involve a non-conforming structure. I -7- Additionally, neither Siepel nor Angus had a by-law which expressly authorizes alteration and expansion of lawful pre-existing non-conforming structures which comply with all aspects of the zoning code. Thus, neither of those cases are controlling. Rather, what is controlling are the facts of this case as applied to the by-law involved in this case. A proper application of the facts results in a I decision which upholds the decision of the Building Commissioner. CONCLUSION For the above-stated reasons, the application of Joseph and Edith Dugas should be denied and the decision of the Building Commissioner should be upheld. By their attorney, James H. Quirk, Jr. , Esq. QUIRK AND CHAMBERLAIN, P.C. 99 Willow Street, P.O. Box 40 Yarmouthport, MA 02675-0040 (508) 362-6262 BBO #409780 DATED: March 4, 1998 119 has first been obtained from the Zoning Board of Appeals . No such special permit may crreate any additional buildable lot (s) . g a 3 Nonconforming Buildings or Structures Used as Single and Two Family Residences: A pre-existing nonconforming building or structure that is used ' as a single or two family residence may be physically altered or expanded only as follows : 1) As of Right: z If the Building Commissioner finds that : A. The proposed physical alteration or expansion does not in any way encroach into the setbacks in effect at the time of construction, provided that encroachments into a 10-foot rear or side yard setback and 20-foot front yard setback shall be deemed to create an intensificiation requiring a special permit under Section 4-4 .3 (2) ; and B. The proposed alteration or expansion conforms to the current height limitations of the Zoning Ordinance. 2) By Special Permit: If the proposed alteration or expansion cannot satisfy the criteria established in Section 4 .4 . 3 (1) above, the Zoning Board of Appeals may allow the expansion by special permit provided that the proposed alteration or expansion will not be substantially more detrimental to the neighborhood than the existing building or structure. 4 4 4 Nonconforming Building or Structure Not Used as Single or Two- Family Dwellings: 1) As of Right: A. The normal and customary repair and maintenance of a pre- existing nonconforming building or structure not used as a single or two-family dwelling is permitted as of right . B. The alteration and expansion of a pre-existing nonconforming building or structure, housing a conforming use, is permitted as of right, provided that the alteration or expansion does not increase or intensify the degree of the pre-existing A i Apo. ap 1 1 44 LOTS 141 & 143 10,000 S. F. .: rj cJ to j f1 �j9u��.-yr 1 •�li ! f� r NJ i ? »AS+B vILT�� PLOT PLAN THE BEST CF MY INF ORMAION, BARNSTABLE, MASS. ICIVLEDGE, AND BELIEF THE.�\-ArA'� LOTS 141 UNDATIOf�► SHOWN ON TMI & 143, L. C. 17933 AN HAS BEEN LOCATED;', , ,- .E`"-''A DATE DEC. 1 1997 S _ � ;:: CALF 1 -- 20 OUND AS INDICATED '�s+ �;'.;. �; '. JOB 3972-00 CLIEIJT HAMLYN • ��98 �;�.3 13 1 S�1'ETTSER EIVGINE'ER� — 235 GREAT WESTERN ROADG �Tr�°� �� �.~: ,. P.O. ROX 711 Da �� PHOF. LAND SJR�;IF►`r�OR 1328-3922 SOUTH UENNIS, M S 026160A.7J. 0-2 T�T�_ r J February 25, 1999 Mr, Lames H, Quirk,Esquire Quirk and Chamberlain PO Box 40 99 Willow Street. Yarmouth Port,MA 02675-0040 Re: Richard and Joan Rudders Dear Mr. Quirk: We have no objections to the Rudders construction at 36 Sunset Lane,Barnstable. The Rudders have been good neighbors for over 20 years. We have owned our home at 25 Sunset Lane,Barnstable for over 30 years. Please do not hesitate to contact us with any questions. Very truly yours, Robert ancy Mastico 200 Pilgrim Road Braintree, MA 02184 (781) 843-4668 `2C?/ / 9�� �U 1/2-1<' C i« ajl�;i-iL L 41 A.l �� d /J/L 0 2 7-r— Y � /1 a �if, e%7� e � ceft � ScGf -(fc/ � � 3 - 3 -�8 � � •-� 7L 12 0 1AI 12- 1-2 1-1�4 4'00' /�! ce Cc, r// ��► 1��/ old , M�� 7n Qya Ae ck" / /7.ti 7*is 17 U Xe- 7 y CC< /7 y c0n c2 G/� U S d Q/ Q,�-PVG "e,,;7 Ur aS f7 c. /4"1 cz v�fj lic�c�C � eo 0 1 � � �l�/ S � r/ ���h- �d y livJ cc7L� /-)2 ;Z 414-S 1-9 A 2 77bN -/- S- �s� yoz620 r February 23, 1998 To concerned parties for: Dr. Richard and Joan Rudders 36 Sunset Lane Barnstable,Massachusetts I have owned property at 35 Sunset Lane in Barnstable,Massachusetts for eight years. Dr. Richard Rudders has property directly across the street from me. I have found him and his family to be friendly and helpful neighbors . I have no problem with the demolition of their existing house and the construction of their new home. The area of Blish Point where we are has seen many remodeling projects in the years that I have been there. I just completed a considerable remodel on my own house. The construction done at the Rudders would be a welcome addition to the neighborhood. As always Robert Moore Robert Moore 35 Walker Street Norton,Massachusetts 02766 (508)-226-4575 L Z\JP -66? tm �1-�� ►UG�C�N��Y;i-}�v� 14" 714C- --t ti Nt!; r JENNISTEN, INC . BUILDERS/DEVELOPERS 916 PLEASANT STREET UNIT 2 NORWOOD, MA. 02062 (781)769-1401 February 16, 1998 James H. Quirk, Jr. , Esq. Quirk and Chanberlain, P.C. 99 Willow Street P.O. Box 40 Yarmouthport, Ma. 02675 Dear Mr. Quirk, Being an adjacent abutter to The Rudders I have had the opportunity to view the construction going on at 36 Sunset Lane, Barnstable several times . I am extremely impressed with the professional manner in which this project has been handled by the Rudders . This house was architecturally designed to be very pleasing to the neighborhood, engineered very professionally by taking into consideration the setback and elevation of the house on the lot so as not to affect anyone ' s view of the water and the final grade of the lot was designed to blend into the adjacent yards with little or no impact at all . Richard and Joan appear to have taken into account any concerns that the neighbors may have had and it is my understanding that they have the overwhelming support of all but one abutter. It is my hope that the Historical Commission will view this project with the same professionalism as the Rudders have used and will not succumb to the views of one self centered, narrow minded, vicious person who fills his days trying to stop any and all construction projects, inject pain, and cause financial burden on innocent people just because these projects don' t reflect his viewpoints . The Rudders have my complete support on this project and if necessary I would be very willing to appear at any meeting to support them through this terrible tragedy. Respectfully, Robert Hall President Monday,February 23, 1998 Quirk and Chamberlain 99 Willow Street P.O. Box 40 Yarmouthport. Mass, 02675-0040 Dear Sirs: It has come to my attention that the building project of Richard and Joan Rudder of Sunset Lane has been halted because of abutter opposition through the Conservation Commission and Historical Society. As an abutter of fifteen years I would like to go on record as having no personal objection to the project. I do find the area changing but not to the detriment of the residents. Thank you for the opportunity to comment. Sincerely, John A, Blake L Town of Barnstable Planning Department Staff Report Appeal Number 1998-37-Dugas Appeal Decision of Building Commissioner and Request for Enforcement Action Date: February 27, 1998 To: Zoning Board of Appeals From: Approved By: Robert P. Schemig, Director Reviewed By: Art Traczyk Principal Planner Drafted By: Alan Twarog, Associate Planner Applicants: Joseph and Edith Dugas Property Address: 36 Sunset Lane, Barnstable,MA Assessor's Map/Parcel: Map 301, Parcel 036 Area: 0.23 acre Building Area: 2,422 sq.ft. Zoning: RB Residential B Zoning District Groundwater Overlay: AP Aquifer Protection District Filed:Jan.22, 1998 Public Hearing:Mar.4, 1998 Decision Due:May 2, 1998 Background: The property that is the subject of this appeal is a 0.23 acre lot located at 36 Sunset Lane in Barnstable Village. It is located within an RB Residential B Zoning District. The owners of this property, Richard and Joan Rudders, have been issued a building permit(Permit No. 27103)to demolish the previously existing single-family residence on this site and build a new one with a garage. The old dwelling has since been demolished and construction of the new residence has started. At this point, the foundation has been poured and a substantial portion of the structure has been completed. The applicants are the owners of and reside at 30 Sunset Lane(Map 301 Parcel 037), which abuts the subject property to the south. They are appealing the decision of the Building Commissioner as defined in a letter dated January 6, 1998, in which the Building Commissioner states" your contention about the Building Code is factually wrong as stated, therefore I see no reason to go any further with it. Finally, an as built, as submitted, is what the Town customarily accepts. We see no problem with this one." The applicants are also seeking enforcement action by the Zoning Board of Appeals to rescind the building permit, issue a Cease and Desist Order on the construction of the new residence and to compel the construction to date to be removed. Staff Review: The applicants contend that the construction on the subject site is in violation of the Town of Barnstable Zoning Ordinance and the Massachusetts State Building Code, and is in contravention of the Certificate of Appropriateness issued by the Old_King's-Highway-Historic District Committee. See the attached Request for Zoning and Building Code Enforcement for details. According to assessor's records, the original dwelling was constructed in 1950. At that time, it was located within an RA Residential A Zoning District. The property was later rezoned to an RB Residential B Zoning District,which today requires a minimum area of one acre. The applicants contend that because the property is nonconforming with regard to lot size(being approximately 10,000 sq. ft. in area), approval from the Zoning Board of Appeals should have been Town of Barnstable-Planning Department-Staff Report Appeal No. 1998-37-Dugas Appeal Decision of Building Commissioner and Request for Enforcement Action obtained prior to any new construction. Further, they contend that the new structure is not a re- establishment of a nonconforming building or an alteration or extension of an existing building but rather a totally new building. Board's Issue: The applicants and Board should confine this hearing to the discussion regarding the Town of Barnstable Zoning Ordinance and State M.G.L. Ch. 40A, regulations only. This appeal stems from an Old King's Highway Committee application and decission. Appeals of Old King's Highway Historic District Committee permits or decisions are processed through the OKH Regional Commission appeal process and then to the court appeals. State Building Codes also has its own appeal mechanism. There are two main issues before the Board: • Does the demolition of the original structure constitute an abandonment of the legal nonconforming status of the lot? Section 4-4.8 Abandonment; Non-Use states: "Any lawful pre-existing nonconforming use or building or structure or use of land which has been (i)abandoned or(ii) not used for 3 years, shall not thereafter be re-established. This section shall not apply in cases of damage or destruction governed by Section 4-4.6." • Does the demolition and new construction require a special permit pursuant to Section 4-4 of the Zoning Ordinance? The applicants have submitted a copy of the Siepel v. Tainter case, a copy of which is attached. Staff suggests the Board review this particular case because of its similarity to the case at hand. History: The following is a brief history of events leading up to the present situation: October 8, 1997-Old King's Highway Historic District Committee issued a Certificate for Demolition to allow the demolition of the original single-family residence on the subject property. At this same meeting, OKH issues a Certificate of Appropriateness for the construction of a new home and garage on the property. November 14, 1997-A building permit(Permit No. 27103)is issued by the Building Division for the demolition of the original structure and construction of a new residence and garage. December 2, 1997-A Stop Work Order is issued by the Building Commissioner due to problems noted in the construction of the foundation. December 23, 1997-After it was brought to their attention by Joseph Dugas, OKH unanimously agrees that there were two issues of noncompliance with the Certificate of Appropriateness previously issued and that a stop work order should be issued by the Building Division: 1. The building as proposed and approved was to be at the same finish grade as the house that was demolished on the site. It appears that the finished elevation is 4' higher. 2. The foundation was built almost 4 feet closer to Sunset Lane than was shown on the approved site plan. Town of Barnstable-Planning Department-Staff Report Appeal No. 1998-37-Dugas Appeal Decision of Building Commissioner and Request for Enforcement Action December 24, 1997 -A second Stop Work Order is issued by the Building Commissioner at the request of OKH. December 30, ,1997-A request for Zoning and Building Code Enforcement is made upon the Building Commissioner on behalf of Joseph F. Dugas and Edith W. Dugas. January 6, 1998-The Building Commissioner responds to the Dugas's December 30, 1997 letter, seeing no problem with continuing construction. January 21, 1998-The Building Commissioner determines that both the height and location of the proposed structure are substantially in conformance with Zoning and the intent of the O.K.H. Act. The stop work order is lifted as per January 21, 1997 letter. January 22, 1998-The applicants appeal to the Zoning Board of Appeals the decision of the Building Commissioner as stated in his January 6, 1998 letter and applicants request enforcement action. February 9, 1998-At their February 9, 1998 meeting, OKH approves the following motions: 1. To request the Building Commissioner to immediately issue a Cease and Desist Order to stop construction at 36 Sunset Lane Barnstable, MA because the"as built" location of the house is 4'to 4.5' closer to the road than was approved by Old King's Highway Historic District; 2. To request that the Building Commissioner look into a.)whether the as built house is located closer to the Southeast lot line than was approved by Old King's Highway Historic District and b.)whether the elevation of the house as built is higher than the approved plans. February 23, 1998-A hearing in the case of Rudders vs. the Building Commissioner and Old King's Highway Committee was held in Barnstable Superior Court. The out come of that hearing is still pending. Attachments: Applications Assessor Map/Card January 6,1998 Letter Site Plan Request for toning and Enforcement Action Certificate of Demolition/Appropriateness Siepel v.Tainter Copies: Applicant/Petitioner Jr COMMONWEALTH OF MASSACIfUSETTS LAND COURT l DEPARTMENT OF THE TRIAL COURT MISCELLANEOUS CASE NO. 177558 JOSEPH M. SIEPEL and CHRISTINE A. ABRAHAMSON, Plaintiffs V. HENRY TAINTER, LESLIE ANN MORSE, THOMAS NEWTON, PHILIP LIVINGSTON, EDWARD STEWART, ROGER THURSTON and JAMES CECIL, AS THEY CONSTITUTE THE APPOINTED ZONING BOARD OF APPEALS FAR THE TOWN OF EASTHAM, KENNETH L. HATES, AS HE IS THE BUILDING INSPECTOR AND ZONING ENFORCEMENT AGENT FOR THE TOWN OF' EASTHAM, LESLIE H. MORSE, JR. AND D,ONALD W. DELANEY, Defendants JODd W- The motions for summary judgment by both parties have been argued and a decision of today' s date has been rendered, granting Defendants' motion on Count I and denying both parties( motions on Count II . In accordance with that decision, It is ORDERED and ADJUDGED that the decision of the Board of Appeals . of the Town of Eastham dated March li, 1991 overturning the Building Inspector' s action and reinstating a "stop-work" order With respect to Plaintiffs' property is hereby upheld and Plaintiffs' appeal is dismissed; and it is further ORDERED and ADJUDGED that Plaintiffs may petition the Board of Appeala for a $pecial permit under Section VT Paragraph C or a variance and the case is hereby remanded -to the Hoard for further proceedings to •consider Plaintiffs, petition; and it . is further ORDERED and ADJUDGED that the Court shall retain jurisdiction. By the Ccurt . (Scheier, f A-rT; T• Attest: _ Charles W. •TroaibIV, Xr. Recorder Dated: October 17, 1994 - 07� - Y comm0NWEAL'rH OF MASSACHUSETTS LAND COURT DEPARTMENT OF THE TRIAL COURT MISCELLANEOUS CASE NO. 177558 JOSEPH M. SIEPEL and CHRISTINE A. ABRAIHAMSON, Plaintiffs V. HENRY TAINTER, LESLIE ANN MORSE. THOMAS NEWTON, PHILIP LIVINGSTON, EDWARD STEWART, ROGER THU STON and JAMES CECIL, AS THEY CONSTITUTE THE APPOINTED ZONING BOARD OF APPEALS FOR THE TOWN OF EASTHAM, KENNETH L. BATES, AS HE IS THE BUILDING INSPECTOR AND ZONING ENFORCEMENT AGENT FOR THE TOWN OF EASTHAM, LESLIE H. MORSE, JR. AND DONALD W. DELANEY, Defendants DICCISION GRANTING SUbMUY JUDGMENT In this action filed under G. L. e. 40A §17, Plaintiffs Joseph M. Siegel and Christine A. Abrahamson, (Siegel and Abrahamson) , appeal a decision by the Defendant Zoning Board of Appeals (The .Board) which ruled that the Town Building Inspector' s decision to lift his earlier "stop work" order was in error. The Board's decision had the effect of preventing Siepel and Abrahamson from completing work under a building permit an a residential structure on their property at 95 Bay Road, Eastham (the "Property") . Siepel and Abrahamson also request a determination pursuant to G. L. c. 231A that the partially built house, which . replaced a cottage having lawful nonconforming status, retains that status, because the new structure is built entirely within the former structure's l J footprint. The "new" house is composed almost entirely of now materials alid incorporates, at most, one wall of the old structure, which was dismantled piece. by piece during construction. The complaint is is, two counts. Count I is the 0. L. C. 40A 617 appeal, and Count II, the G. L. c. 231A requect for declaratory judgment . Siepel and Abrahamson now move for "Partial Summary Judgment on Count 1I" , claiming as a matter of law that the legal non-conforming status of their cottage has not been lost through abandonment Defendant Kenneth L. Bates, the Town Building Inspector, and the Board have filed a memorandum in opposition which also contains a request for aummary judgment in their favor on bath counts. Tn addition, Defendant Donald W. Delaney has filed an opposition brief. The parties also submitted affidavits and answers to interrogatories to support their respective positions. The motions were heard July 28, 1994 . I rule as follows: The Building Inspector exceeded his authority when he lifted his "stop worku order because Plaintiffs SL re ired a special permit and finding under Section VI Paragraph C of the Eastham zoning Bylaw in order to secure a building permit for their project. Accordingly, summary judgment is granted in favor of Defendants on Count T of the Complaint. with respect to Count II, 1 find and rule that given the unique facts of this case, it cannot be said that. the Plaintiffs' demolition was "voluntary* such that the Property has lost its_ non-conforming status. Accordingly, _Plaintiffs must be afforded an opportunity to petition the Board for a special permit under Section VI Paragraph C of the 2 F.astham Bylaw. Alternatively, they may rebuild the old cottage to its original dimensiona under Section VI Paragraph D, or apply for a variance. The facts are as follows : By aced dated April 12, 1991 recorded with the Barnstable Reglscry of Deeds in Book 7500, at Page 33, Siepel and Abrahamson acquired the Property, upon. which was located a one story, three bedroom residential dwelling described in some earlier deeds as a "cottage" , and a single car garage. The property is approximately 75' by 100' with an overall area of 7, 500 square fsst, well shy of the Town' s current requirement for 40, 000 square feet in zoning district A, in which the Property is located. Firsir estpblis3hed as a separate lot in 191S, the Property, together with the former "cottageo , predates Eastham zoning in that area, and was therefore legally non- conforming. As located on the Property, the rottage itself was non-conforming as to its front, rear, and one of the side set- backs.' Soon after acquiring the Property, Siepel and Abrahamson set about to find a way to improve the cottage and to renovate it into a dwelling suitable for year-round residence, containing a second story and a full basement. Mindful of the Property' s non- conforming status, they consulted, among others, a builder, David Fleming, who they had retained for the project, and an attorney 'The dwelling was set 16.5 feet back from Bay Road where 50 feet is required; 20.4 feet back from the southerly boundary where 30 feet is required and 16.5 feet from the rear boundary where 30 feet is also required. The dwelling was set 44 . 6 feet from the northerly boundary where 30 feet is required. 3 (who in turn conferred with -then Eastham Town Counsel) as to how the Plaintiffs might realize their plans without jeopardizing the Property's non-conforming status. Plaintiffs were advised that if construction was entirely within the cottage's existing footprint the Property would not lose its non-conforming status . On November 4, 1991, David Fleming applied on Plaintiffs' behalf to the Building Inspector for a building permit. The application contains this notation at the bottom: "Removing Old House & Re-building [sic) with New" , On December 6, 1991 Fleming obtained a "foundation only, permit. followed on December 13 , 1991 by a full building permit indicating in the space provided, "Ater" (as opposed to the form' s other pre-printed choices to "Build" or "Repair") _ With the first permit in hand, Fleming had the cottage jacked up off its cinderblock foundation which was then dismantled to make way for a new poured concrete foundation in its place. The new foundation provides a full basement, is entirely within the footprint of the former cinderblock foundation and is, in fact, smaller by several inches than the old foundation. A brand new flooring deck was then constructed upon the foundation and the cottage was dismantled section by section contemporaneously with construction of a new house within the footprint of the old one. What emerged over the next few weeks was a dwelling having new walls. a new roof, built entirely of new materials (possibly excepting part of one wall)' and complete with a new second story. 'Thera is some dispute as to whether or not all of the original cottage walls were demolished or whether one ' wall was temporarily laid on ita side on the new deck, subsequently reinforced and incorporated into the new house. Resolution of this disputed fact is not necessary to the outcome of the case. • c t Defendants Leslie H. Morse Jr. and David W. Delaney were concerned with the events unfolding at the Property, and complained to the Building Inspector, who an December 16, 1991 issued a "temporary stop-work order" . For unexplained reasons, the Building Inspector reversed himself the next day and lifted the stop-work order. That action prompted' an appeal to the Board by Morse and Delaney. Pollowing a lengthy public hearing, the Board upheld the Defendants' appeal and filed its decision with the Town Clerk on March 20, 1992. The decision ordered the Building Inspector to enforce the stop-work Order, and instructed Siegel and Abrahamson to apply for a variance for the new building. In its decision, the Board also noted, "evidence exists that at some -point in time the entire structure was removed from the property° . This appeal under G.L. C. 40A 517 Followed on April B, 1992. Before getting into the substance of their appeal, I note one jurisdictional point - that of Delaney's and Morse' s standing as aggrieved persons capable of appealing the Building Inspector' s action to the Board under G. L. c. 40A 98. If neither party had standing in 1992 at the time of their appeal, Lhe Board would have been without authority to hear the appeal and its decision would therefore be a nullity, Chongris v. Board of Appeals of Andover, 17 Mass. Asp. Ct. 999 (1984) . 8iepel and Abrahamson have characterized the individual Defendants as "distant abutters" and have not challenged their standing as "persons aggrieved° . Because the presumption has gone unchallenged and unrebutted, it is deemed established for the purpose of this Summary Judgment proceeding. 5 l , slepel and Abrahamson attempt to recast the issue here presented ' as one of abandonment, rather than one involving demolition of a non-conforming structure. Abandonment analysis has generally been applied to non-conforming uses, see e.g. Derby Refining Co, v. Chelsea, 407 Ma-se. 703 , 708 (1990) , rather than to non-conforming structures_ Plaintiffs cite and rely on Volume 1, M.C.L.E. Maseachugetts Zoning Manual, at Chapter 6-22 where it is stated: The application of the abandonment proposal :.o non- conforming structures is problematic. It is difficult to see how a standing, non-conforming structure, even if vacant , could be abandoned since its mere presence evidences its continued existence. 1 do not disagree, but Plaintiffs' reliance on their lack of intent to abandon their non-conforming protection is misplaced. Even assuming Plaintiffs did not abandon their cottage, there is no question that they cauced it to be demolished. The only remaining lasue is whether their demolition should be deemed "voluntary" , thereby eliminating the Property' s non-conforming protection, and leaving the Plaintiffs with no alternative but to demolish the new structure, or to apply for a variance. Generally, a non-conforming structure destroyed by natural_ catastrophe, fire, accident or the like may be reconstructed or rebuilt, where allowed by local zoning regulations, so long as the original building' s non-conforming nature is not increased to any appreciable degree. Berliner v. Feldman, 363 Mass. 767, 770, 775. (1973) ; Lomelis v. Board of &repeals of Marblehead, 17 Mass ._, App. Ct . 962,. 964 (1983) . Section VI Paragraph D of the Eastham Zoning 6 Bylaw specifically authorizes repair or rebuilding of non- conforming' structures which have been- "damaged by fire or other cause to any extent" . But where a non-conforming structure in. voltu%tsrily demolished to make room for a new or essentially new, structure, non- conforming status in forfeited, even if the riew building will not increase the non-conformity. u$ v. t( ller, 5 Mass . App. Ct. 470 , 472 (1977) . In the instant case, while Plaintiffs did cause their cottage to be demolished, they did so under a duly issued building permit, after considerable consultation with the Building Inspector who sought, and apparently received, guidance and approval from Town Counsel. This is not a case where people have proceeded both in ignorance and defiance of the law and now seek a djt facto blessing for their misdeedu . To the contrary. In 1991, when the Building Inspector issued a building permit, the law was unclear as to whether one needed Board of Appeals' approval to alter a non- conforming structure ii such alterations did not increase the structure' s "footprint" . subsequently, the Appeals court issued its decision in Goldhirsh v, QNeal , 32 Mass. App . Ct.. 455 (1992) , which clarified that where proposed changes to a non-conforming structure increase the structure' s nonconformity, the Board of Appeal; must determine.that such changes are not substantially more detrimental to the neighborhood than the existing structure. Presumably, had the Eastham Building Inspector anticipated the 5ubstauce of eh$ cold irsh decision, he would have denied the 7 Plaintiffs' original application and directed them to apply to the Board of Appeals. I think that Plaintiffs' should be afforded the opportunity to present their proposal to the Board. Likewise, the Board should be permitted to hear plaintiffs' petition and determine whether the changes to plaintiffs' new house increase the Property' s non-conformity and, if so, whether such changes are substantially more detrimental to the neighborhood. Accordingly, the case is remanded to the Board for further proceedings, consistent with this decision. The Court will retain jurisdiction and afford a speedy hearing in the event of an appeal by either side following the Board' s decision. In any event, if the Board determines that Plaintiffs are not entitled to a Special Permit• or a variance, Plaintiffs must be given a reasonable period of time in which to rebuild the cottage that they demolished to its original dimensions, except for the poured concrete foundation and basement that has been completed and which may remain. This order in no way implies that Plaintiffs are entitled to receive any other permits, including any required from the Board of Health, the local conservation commission or any other local authority, that may be necessary in connection with the maintenance, alteration or completion of the structure on the Property. Judgment accordingly. &-- -KanVn Faith Scheier, Justice Dated: October 17, 1994 8 s 1 COMM0111VRALTI1 OF MA88AC11L19ET q 1 � LAND COURT DEPARMENT OF THE TRIArj CArlRT MISCELLANEOUS CASK NO 1??5SS �70aE►PH rd. 6IEPFI, And C:i1RIaTT1118 A. ' ASRA11Ah19Oty� Plaintiffs V. 11EtfRY TA.INTER, i•ESI,IR ANTI UORSE, TITOMAEJ NEWTON PHILIP LIVT11Q-9T01J, EDVIARn STEWART , ROCIER T111jREjT0N and DAMES CECIi, AS THEY CONSTITUTE T1TE APPOINTEp ZONINq�BOARD OF APPEA14S FOR THE TO{JN OF EASTRAM, KENT eTil 14. RATES, AS HE IS THE RUILDIN►3 114EIPE;CTOR AND. ZO1jT11C1 ENFORCEMEW AGEIJT FCR THE 'ro$jtj UF' EAST11AN t LESLIp 11 . MORSE r JR ANDI�oNAi.D W_ PELANEY, Defendaptq JONMT T11n moti.gne for s»mmary Judgment by hoth parties have bean ar�tled and a deci.siop Pf today' s date lion been }endered, grantin l�af�:ndan�s� mq� '011 on Aai►nt I and denYtng both moli �artieef g Court I IR accordance with that dea;.tgign, l.t is onA on ORDERER Anil ADJI7DRED that the cleci.a.ion of the sorcrd of Appeals Of Vhe ToWn Af $astham dated Marah _l puildiPq Inspectnrl s action And reinntat:�rl 19a In overturning t11e Wlt=h >regpecO t.� Rlain�iffsl property is h$reby-uph eldprand apP441 is dismissed; and it i S flir.tiler ORDER81) apd .A•tl.7i ORD that Plaintiffa PlaY AppaAlp for � - $paoial Permit tinder Seat 1 an V�tit?aragr phtion the e C or oa valrianca apd the aapa !•a hOrab remanded to the Board for further proce0diR94 tq consider PlAintiffa► petitionl anti it is further ORpERED and An.TUDGED that the Court Shall_ retal.n jtirisdicti.on. >� BY the Court . (Scheler, / Attest: ATWST• Gt�Arles W: 'Tr4�mbl Y, Xr. R.acardar Dated; Oatobe1F 1.7, 1994 i GIN CLERK TOWN -OF BARNSTABLS R `T .��E ASS Zoning Board -of Appeals A=lication for Other Powers .� ZZ •p� 8 Date Received D. ,� For office use only: Town Clerk office �� Appeal #. o,gig- 3 „AN 2 2 � Hearing Date :2 � Decision Due T The undersigned hereby applies to 7ths :Zoning1'*0i d c ' Appeals for the reasons indicateds TM " Applicant Names Joseph F. and Edith W. Duaas , Phone (SnRi �ti�_AnE8 Applicant Address: #30, Lots 1356137, Sunset Lane, Barnstable (Village) Property Location: Tntc idizjd-j Sunset Lane, Barnstable. (Village) This is a request for: (� Enforcement Action (q Appeal of Administrative officials Decision [J Repetitive Petitions Ij Appeal from the Zoning Administrator (� Other General Powers .Please Specify: See attached Please Provide the Following Information (as. applicable)s Property owners Richard & Joan Rudders , Phone (617) 237-6626 Address of owner: 14 Richland Road, Wellesley; MA 02181 xf applicant differs from owner, state nature of Interests Applicant is direct abutter of owner Assessors Hap/Parcel Number ID-1 /046 Zoning District RB Groundwater overlay District N/A Which Section(s) of the Zoning Ordinance and/or of NGL Chapter 40A are you appealing to the Zoning Board of Appeals? See attached Existing Level of Development of the Property - Number of Buildings: Present tise(s)s single family residence Gross Floor Areas aA„ sq. ft. c T Application for Other Powers r Nature 6 Description of Request: -SEE ATTACHED Attached aeparate sheet if needed. Is the property located in an Historic District? Yes k$ No-. [ If yes OKH Use onlvs Plan Review Number Date Approved . Is the building a designated Historic andmar s Q Zf yes Historic Preservation DepartmentseU onl : Date Approved Has a building permit been applied for? *See attached Yes D{1 No Has the Building Inspector refused a permit? Yes [] No [C] Has the property been before site Plan Review?. Yes [] No [�] For Building Department Use only [, Not Required - single Family site Plan Review Number Date Approved signatures : The following information must be submitted with the application at the time of filing, failure to supply this may result in a denial of your requests Three (3) copies of the completed application form, each with original signatures. Three (3) copies of all attachments as may be required for standing before the Board and for clear understanding of your appeal. The applicant may submit any additional supporting documents to assist the Board in making ij.;s determination. Dates signatures p licant or Agent's Sgnatures� O , Lois M. Farmer, Esq. GARNICR 6 SCUDDER, P•C•(508) 771-2320 32 Main Street, P.O. Box 398 Phones — 'Agent's Address: • Hyannis, MA 02601 (508) 771-3304 Fax No. ATTACHMENT TO APPLICATION FOR OTHER POWERS I. Sections of the Zoning Ordinance and Massachusetts General Laws and Regulations upon which this appeal is based G.L. c. 40A, sec. 7 failure of building commissioner to enforce zoning regulations Zoning By-Law 44.2(1) issuance of building permit to owner on nonconforming lot without authority of Zoning Board of Appeals 4-4.3 issuance of building permit where lot lost its nonconforming protection upon total voluntary demolition of building without authority of Zoning Board of Appeals Chapter 470 of Acts of 1973 (Old King's Highway) Section 7 continuance of permit on property where construction fails to comply with Certificate of Appropriateness Section 12 failure of building commissioner to enforce Certificate of Appropriateness 780 CMR 1205 failure of building inspector to enforce code regulations for footings and foundation 250 CMR 4.02 et seq acceptance of"certified"plot plan which is not based upon the signor's development or supervision of plan and to perform such surveys as are required for construction plans Conservation Commission regulations failure to obtain proper Conservation Commission approval based upon legally sufficient plans II. Relief Sought Rescission of building permit Order that original house be rebuilt to the original specifications, on the original footprint and on the original elevations. 1, Application for Other Powers Attachment page 2 STATEMENT OF FACTS The following is a chronology of events, as supported by the Exhibits attached as well as personal observation, with regard to the construction activities at 36 Sunset Lane, Barnstable Village. 9/19/97 Application for Building Permit made to the Barnstable Building Commissioner. (Exhibit A). This is an application clearly indicates the intent to demolish the existing house and build a totally new structure. The Application erroneously lists the Zoning District as RF-1. In fact,this is an RB zone. The Application lists the gross square footage as 2422. Unlike the structure to be demolished, the new structure would also have a garage. 9/19/97 Application made for Certificate for Demolition or Removal to Old King's Highway Regional Historic District Committee reflecting "total demolition of building". (Exhibit B). Pictures of existing structure are attached. 9/19/97 Application made for Certificate of Appropriateness for"New Home & Garage". (Exhibit C) 10/8/97 Old King's Highway hearing on Certificates for Demolition and Appropriateness. (Exhibit D). At this meeting the abutter Joseph Dugas appeared and indicated that he had no objections to the construction provided that it did not block his view of the bay view from his house. (See Exhibit E photos). Toward that end Mr. Dugas indicated that wanted to know the exact location of the existing structure and he requested that the house be moved back approximately eight feet. The builder, Russ Hamlyn, indicated that the house had been moved back nine feet from the existing structure. The Committee also raised questions as to the height of the structure. Mr. Hamlyn also represented that the height of the house would be kept down"to make it conform with the neighborhood." 10/8/97 Old King's Highway approval of Certificate of Appropriateness and Certificate of Demolition 11/14/97 Building Permit Issued. Application for Other Powers Attachment page 3 11/18/97 Construction began. A basement was excavated, where none had previously existed. (Exhibit F). The fill from the basement area was distributed over the lot creating artificial elevations. On information and belief, the elevations have been increased by approximately four(4) feet. On information and belief, as a result of the increase in the elevations,the building height as planned may exceed the 30 foot height restriction in the RB zone. 12/1/97 "As-Built"Plot Plan submitted to the Barnstable Building Commissioner. (Exhibit G). This plan reflects that the Building was constructed well forward of the proposed location under the 9/19/97 plan. The"As Built"Plot Plan was stamped by engineer Wilcox "To the best of my information,knowledge, and belief..." 12/2/97 First Stop Work Order issued by Building Commissioner. On information and belief, this order was the result of problems noted in the foundation construction. 12/10/97 Report of Philbrook Engineering & Construction which was submitted to the Building Commission. (Exhibit I). This report identifies deficiencies in the footings and foundation, particularly the entire south end wall. (See also second page comment on Building Permit Application noting "Problems with garage & depth of footing"). On information and belief these deficiencies have not been rectified to this date. 12/23/97 Memorandum from Peter L. Freeman, Chairman, Barnstable OKH Committee to Ralph Crossen, Building Commissioner. (Exhibit I). This memorandum reflects two problems with the construction: 1. the building was not placed at the original finish grade but was actually elevated by approximately 4 feet 2. the foundation was built almost 4 feet closer to Sunset lane than was shown on the approved site plan. 12/24/97 (Date approximate) Stop work order issued based on OKH memorandum. 12/30/97 Request for Zoning and Building Code Enforcement made upon Ralph Crossen, served by hand 12/30/97 and by certified mail 12/31/97 on behalf of Joseph F. l , 9 Application for Other Powers Attachment page 4 Dugas and Edith W. Dugas (Exhibit J) 1/6/98 Denial by Ralph Crossen of Request for Zoning and Building Code Enforcement (Exhibit K) 1/7/98 Old King's Highway Committee"informal hearing" on the construction problems. On information and belief, at this hearing the owner of the property, Dr. Rudders indicated that he actually developed the "plot plans" on his computer and that he made a"nine foot error." On information and belief, at this hearing, Engineer Wilcox re-signed the 12/1/97 plot plan with a 1/2/98 date with the notation"top of foundation is elevation 13.94 which is 0.81' above old house. This is 9-3/4 " higher." (Exhibit L) POSITION STATEMENT This is a Request for Enforcement of the Zoning By-Laws of the Town of Barnstable and the Massachusetts State Building Code with regard to the construction at Lots 141 & 143 Sunset Lane pursuant to G.L. c. 40A,sec. 7. We submit that the construction is in violation of the Town of Barnstable Zoning By-Laws and the Massachusetts State Building Code in numerous and diverse ways, and is in contravention of the Certificate of Appropriateness issued by the Old. King's Highway Regional Commission. Mr. & Mrs. Dugas demand that the building permit be rescinded and that you issue a cease and desist order as to such construction, and that all construction performed to date be ordered removed forthwith. 1. Failure to obtain Zoning Board of Appeals approval The property at issue contains approximately 10,000 square feet of land in an RB (one acre lot size) zone and, until November 1997, contained a single family residence. The existing structure, including foundation, was in habitable condition and indeed was inhabited. However, on or about November 17, 1997, the building was totally demolished and removed by or on behalf of the owners. A new structure, on a different foot print, is now under construction. A portion of the property was represented to be located in Flood Zone B. The elevation of the lot has been raised by four(4) feet and the footings of the building were constructed on the pre- existing elevation. The position of the construction has been moved forward approximately four (4) feet from the originally intended site as submitted to the Old King's Highway Regional Historic Commission. The property, located in a RB zone, is a nonconforming lot under 44.2 (1) in that it contains Application for Other Powers Attachment page 5 only 10,000 square feet of land. The original building thereon was a nonconforming building as defined 44.3. Pursuant to 44.3, that original building could have been physically altered or expanded as of right. However, the original building was demolished and removed. Significantly, the building had not been destroyed or damaged by fire, acts of nature or other catastrophe within the meaning of 4-4.6 (1). The new structure is not a re-establishment of a nonconforming building or an alteration or extension of an existing building but rather a totally new building. As a matter of law, upon the demolition and removal of the existing building, other than as the result of acts of nature or catastrophe, the nonconforming status was forfeited. Siepel v. Tainter, Land Ct Misc.No.: 177558 at 7 (1994)(enclosed), citing Angus v. Miller, 5 Mass. App. Ct. 470 (1977). Once the original building was demolished and removed, it became necessary for the owners to obtain approval of the Zoning Board of Appeals to build a new structure on the nonconforming lot. That has not been done. As such, the mere existence of a new structure on the property without approval of the Zoning Board of Appeals violates the zoning by-laws of the Town of Barnstable. 2. Failure to conform to Old King's Highway Certificate of Appropriateness Pursuant to Chapter 470 of Acts of 1973, and as amended, Section 7, no permit shall be issued by the building inspector for any building or structure to be erected within the district, unless the application or said permit shall be accompanied ... by a certificate of appropriateness ... Pursuant to Section 12 of Chapter 470 of Acts of 1973 The building inspector ... shall have the power and duty to enforce the provisions of this Act. On or about October 8, 1997, the Old King's Highway Regional Historic District Committee issued a Certificate of Appropriateness for the"New Building"to be built by the Rudders. Mr. Joseph Dugas appeared at the hearing and expressed his reservations concerning the new construction, and particularly any loss of the view from the Dugas property, as well as the relationship between the new structure to the surrounding buildings and the street. It is now evident that the"new building"has been placed approximately four feet closer to Sunset Lane than was shown on the approved site plan. In addition,the elevation of the southern portion of the lot, and arguably the elevation of the building,has been raised by three feet to date, �_ - Application for Other Powers Attachment page 6 with additional elevation of one foot anticipated in accordance with the recommendations of the engineer Varnum Philbrook. The raise in the elevation of the lot is of particular concern to the Dugas property as it, as well as the neighboring properties, are subject to flooding in storms and it is anticipated that the change of topography will increase the burden to neighboring properties in floods. The change of location of the building forward, and the change of elevation of the property four feet higher, has the effect of blocking the view from the Dugas property. It would violate the spirit and intent of Chapter 470 of the Acts of 1973, and as amended, if the owner of property were obligated to get Certificates of Appropriateness from the Old Kings Highway Committee, and then deviate in material ways from that Certificate. Mr. & Mrs. Dugas submit that the building permit issued must be in compliance with the Certificate of Appropriateness from the Old King's Highway Regional Historic District Commission and that any construction must be in compliance with the site plan, specifications, and considerations upon which such Certificate of Appropriateness is issued. 3. Failure to comply with Massachusetts State Building Code As noted previously, the elevation of the land surrounding the new building has been raised by as much as three to four feet. In addition,the building elevation itself has been raised by four feet. The footings for the building were placed on the original grade. Not only is the soil at the original elevation inappropriate for the placement of footings for the building, but also the footings must be placed four feet below the original grade of the land under the Massachusetts State Building Code. 780 CMR 1205. As the elevation of the land and the building have been artificially altered, the placement of the footings is inconsistent with and in violation of the Massachusetts State Building Code. 4. Failure to obtain Conservation Commission permit Mr. & Mrs. Dugas believe that the building and the filling of the lot requires Conservation Committee approval. It appears that no application to fill the lot to raise the grade has has been obtained. Further, since the building"as built"now intrudes into the A-3 Flood Zone action by the Commission is warranted for the building. Accordingly,the building permit should be rescinded until all necessary approvals are obtained and complied with. 3 u ! 5. Lack of Certified As Built" plan We note that the"As Built' plan is not based on any engineering or measurements but is based merely on"knowledge and belief'. The building was never staked out. The Dugas' submit that 1 ' Application for Other Powers Attachment page 7 the purportedly "certified plot plans" submitted by Engineer Wilcox are legally insufficient to support the issuance of building permits. Indeed, Mr. and Mrs. Dugas submit that the purportedly "certified" plot plans violate 250 CMR 4.02 et seq. For example, pursuant to 250 CMR 4.03(2) Registrants shall not affix their signatures or seal to ... any such plan or document not prepared or reviewed under their direct supervisory control. Similarly, 250 CMR 6.03 sets forth specific criteria for construction surveys, all of which were apparently disregarded in the acceptance of the "certified"plot plans of Mr. Wilcox. Mr. & Mrs. Dugas submit that a certified plot plan is not based upon"knowledge and belief' is insufficient for the purposes of obtaining a building permit. Rather, surveys which comply with 250 CMR 6.03 and which are certified in compliance with 250 CMR 4.03(2) are required. Mr. & Mrs. Dugas suggest that the "as built"plan is inadequate to support any further construction on the property. Mr. & Mrs. Dugas demand that any building permit under which construction is performed on the premises at 36 Sunset Lane be predicated on legally sufficient certified plot plans showing the original elevations,the original foot print,the actual current foot print, and the actual current height of the building. - 1 APPLICATION FOR OTHER POWERS ATTACHMENT EXHIBITS A. Application for Building Permit together with 9/19/97 Proposed Plot Plan B. Application for Certificate for Demolition or Removal made to Old King's Highway Regional Historic District Committee together with pictures submitted by Rudders of original structure C. Application for Certificate of Appropriateness together with 9/19/97 Proposed Plot Plan showing grassy areas D. Minutes of Old King's Highway hearing October 8, 1997 E. View photographs F. Construction photographs G. "As Built" Plot Pan H. Philbrook Engineering& Construction Report dated 12/10/97 I. Memorandum from Peter L. Freeman to Ralph Crossen J. Request for Zoning and Building Code Enforcement K. Denial of Request for Enforcement L. "As Built" Plot Plan with 1/2/98 handwriting i i ��rc.,i --mow' Board of I leallh(3rd floor)(9:15-9:~0/ l:(M)-4:30 /L"" 6-4 f ,S,ti c-44 Fcc ��){� •OT7 -- Conservation Office(41h floor)(8:30-9:30/10)-20)) (' z(: O` ' -A4anning-9ept4U1.41oor/8chool Admin:Bldg.) - d UetlrT1livulf pproved byTianning Board 19 . i s�anuw TOWN OF BARNSTARLE MOM? �V-11aSMIt colMACTloll 111MIT Mit 18S Building Permit Application Qg1IdERM 01t1t101111 toot to Project Street Address 9�- f'0"S,j / Al tDol�nvl:Qalt Village_ Owner it tLlf !r Address/gXl,CHeAni� Telephone 37 - 6 ,Z Permit Request i-S a z A;v -P'VQlwii _ - 2GG/S /r•O C n.l'i /tom c_!S/! 6 ( '�k V-4 -' is. T o -f /a F/ c. 1 First Floor OJ- square a econd Floor LJ;1- o square feet Construction Type_Lr ov n ,E Estimated Project Cost $ !D 0Ov.od Zoning District r'/-- 1 ' Flood Plain Water Protection Lot Size J y a X /D d Grandfathered ❑Yes ❑No Dwelling•Type: Single Family (a- Two Family U Multi-Family(N units) Age of Existing Structure Historic l louse ❑Yes ®No On Old King's highway U Yes la No Basement'Type: ®Full ❑Crawl EI Walkout U Other Basement Finished Area(sq.f(.) _ Basement Unfinished Area(sq.ft) G y y Number of Baths: Full: Existing New�_ half: Existing New No.of Bedrooms: Existing <- New .3 Total Robin Count(not including baths):Existing New 7—First Floor Room Count y Heat Type and Fuel: ®•Gas Cl Oil ❑Electric ❑Other Central Air Q Yes ®No Fireplaces:Existing New A ) Existing wood/coal stove ®Ycs ❑No Garage:❑Detached(size) Other Detached Structures: ❑Pool(size) ®Attached(size) j y x,Z], 0 Barn(size) ❑None ❑Shed(size) p Other(size) Zoning Board of Appeals Authorization LI Appeal N Recorded❑ Commercial p Yes ❑No If yes,site plan review N Curren(Use II Ci 5 / b/L iv T!!1_G Proposed Use Builder Information Name ,_ly s s NAh f. 67 Telephone Number _3 Off- 3 `l F- 5-5'J tl Address/ y y i��,i 7y is n License N :I,)- r/ /6 0 I lome Improvement Contractor 0 // 0 Y S-/ Worker's Compensation N WG/- 0//6 P O V NEW CONSTRUCTION OR ADDITIONS REQUIRE A SI•IE PLAN(AS BUILT)SIIOWING EXISTING,AS WELL AS PROPOSED STRUCTURES ON THE LOT:ALLCONSTRUCrm DEBRIS RESUUrING FROM TIIIS PROJECT WILL BETAKEN TOC6vdldy-L / �,I,L k,( meI./ .L DOn A! /1%41-y4� ! SIGNATURE "Y- DACE �`c,7 BUILDING PERMIT UENIF,U 'OR TI)E FOLLO NG REASON(S) 4WA Lax :' G „ FOR OFFICIAL USE ONLY 3 'ERMM NO. ?ATEISSUED IAP/PARCEL NO. DDRI SS VILLAGE WNER -ATE OF INSPECnON: �..,G ,�/4�1f,. �.:��-.ram✓ OUNDATION -RAME \'SULATION -IREPLAC- :_ECTR[CAL ROUGH FINAL �_UMBV:G: ROUGH FINAL AS: ROUGH FINAL ":NAL A,'ILDING12 �e$ a=os a 'ATE C:i ASED Ol)T F s s„s . ec e. 'SOLI'• ION PLAN NO. ma BENCHMARK HYDRANT BOLT #64 ELEV.= 13,51 (NGVD) 0000 13Y I TOP OF EXISTING N p \ FOUNDATION IS ELEV. 13.13 (NGVD) LOTS 141 & 143 zBo `C 2,9.00 �, o° 10,000 S.F. t ` Z _ EXISTING STRUCTURE TO BE REMOVED W O \ 16'oo o DRIVF ?00- �� B.00, ^' 6 _ O O' y A3 0 Fcoo 0 PROPOSED PLOT PLAN BARNSTABLE, MASS. 36 SUNSET LANE o? AWN DATE SEPT. 19, 1997 SCALE 1" = 20' Lc JOB 3972-00 CLIENT HAMLYN SWEETSER ENGINEERING .235 GREAT WESTERN ROAD P.O. BOX 713 SOUTH 398-3922 (FAX) 398-3063. Application to 1997 Old Kings Highway Regional Historic District Committee in the Town of Barnstable for a f� CERTIFICATE FOR DEMOLITION OR REMOVAL -, :lepton is huiuby mr.:lc, in triplicate, for die Issuance of a.Permit for Demolition or Removal of a building or a structure or 1:_i t tl.::rcof, un&r Section fi of Chapter 470, Acts and Resolves of Massachusetts. 1973, for proposed work as described below t.ij cn p;ans, d(ay.ing; or photographs accompanying this application. 'l`�.'-C.'1 P111 :T LL•GIBLY GATE ? ADDRESS OF PROPOSED WORK ASSESSORS MAP NO. OWNER 1Z/ b X21+/y A, / 1*2 121T IL.5 ASSESSORS LOT NO. � ''13 HOf'ICADORLES r V 1?-/Z II IAA'0 v /Lf/J TEL NO. 7 7 �CZ` NAMES AND ADDRESSES OF ABUTTING OWNERS. Include names of adjacent property owners across any public street or way. (Attach additional sheet, if necessary). AGLtJT OR CONTRACTOR �� S S /7 .TEL NO. ADDRESS DZSCRIPIION OF PROPOSED WORK: If building,is to be removed, give new location. Snap shots showing all views of building must accompany application. (Attach additional sheet, if necessary). . T o�-,¢L Q r, t o 4 iT/o.+) �LGI 5 J3l�-f�S. G p,t.f: f•vG- ,�L(� ,�/z,�-c oG /T♦p•� /y/.il'�!z/r-i� L ivy i c, ryif 03lu U614 i 1-0 H,4, -""ec/Y Note: If approval is granted for relocation, a separate Certificate of Appropriateness is required for new location the Old King's Highway Regional Historic District. • SIGNED -*W-C46trw ut-Agent Space below line for committee use. Re iv bg H (0] (; The Certificate is hereby� Date 1" 0 ate 1' SO T 1997 pns QL Approved ❑ IMPORTANT: If Certificate is approved. approval is subject to the to day appeal per-oi' provided in the Act. Disapproved 0 )7-Cf3i-7— w , H 00 Al /9 0 o S/z//'/� �cl G•�9-S' J i=vir /-114<- G yt► •J'jai ' � - �'-�1'- •ti'�a c h 4ltij,� r' r �) o i{ '` i ,elf• +�.�i�`� l,+J�i ...`'' ) .F u, - ti' a. t. wiy" Application to 111997 219 .:5 Old Kings Highway Regional Historic District Committee in the Town of Barnstable for a CERTIFICATE OF APPROPRIATENESS �.r,aiwlion is ht:rt;by made, in triplicate, for the issuance of a Certificate of Appropriateness under Section 6 of Chapter 470, Acts and Resolves of Massachusetts, 1973, for proposed work as described below and on plans, drawings or photographs acc,mp3nyin9 this application for: CHECK CATEGORIES THAT APPLY: 1, Ei terior Building Construction: [D New Building ❑ Addition ❑ Alteration Indicate tyre of building: ®-House 2TGarage ❑ Commercial ❑ Other 2. Exterior Painting: ❑ 3. Signs or Billboards: ❑ New sign ❑ Existing sign ❑ Repainting existing sign 4. Structure: ❑ Fence ❑ Wall ❑ Flagpole ❑ Other (Please read other side for explanation and requirements). TYPE OR PRINT LEGIBLY DATE ADDRESS OF PROPOSED WORK 3 y S alll S/'Z ASSESSORS MAP NO. 01AINER /2 !611IIA-V it- 6A AZ 11-C 0/7/S/L5 ASSESSORS LOT NO. O HOME ADDRESS All? reel A. TEL. NO. t!l 7 3 7 — FULL NAMES AND ADDRESSES OF ABUTTING OWNERS. Include name of adjacent property owners across any public street or way. (Attach additional sheet if necessary). AGENT OR CONTRACTOR L/ S _ /`7 V A. !%! TEL. NO. ADDRESS DETAILED DESCRIPTION OF PROPOSED WORK: Give all particulars of work to be done (see No. P, n*her si(Ie), inclurfinq materials to be used, if specifications do not accompany plans. In the case of signs, give locations of cz: locations of new signs. (Attach additional sheet, if necessary). Signed er•Co ractor•Agent — .6oace txaa,t"t t r Committee use. ��U aCWJCt9b H i' Date he Certificate is hereby C �`" ` " Date I SEP I 199R' Time. r� �~ ..�..�..�_u Y• .�-.......�... �5 • r1 Irlrr)n ro f?T If r,`tlifir..,tr i,. �nnriwr:,l -,r tiYr „ it i „I.i rt In thn in tl-w w.ri, rl t nri:al Town of Barnstable ' _•.j Old King's [lighway historic District Committee SPEC SHEET FOUNDATION 7 7-0 /Jt O i i1 -3 Iry /-VG- 3 5id7�z SIDING TYPE=�zc,T /ZFn c:Rn.ait, c GfJ��3o,1.COLOR �(//}:TG(It_11 L CHIMNEY TYPE ��Z/��/(� COLOR Ali Q ROOF. MATERIAL,jfx�///�L j ,/ COLOR 12 4 IF— w v d p ct PITCH WINDOW SIZE TRIM COLOR j,t/f-f / j/L DOORS COLOR SHUTTERS ,l/ y COLOR GUTTERS I.v J j j r/i /4-6 ce DECK ti 0 GARAGE DOORS JL/17/ S�lJ �/��/i G COLOR t-t/ SIGNS COLORS FENCE �' � COLOR NOTES: Fill out completely, including measurements and materials/colors to be used. Three copies of this form are required for submittal of an application, along with three copies each of the plot plan, landscape plan and elevation plans, when applicable. Site plan should show all structures on the lot to scale. �I I1'`1 r 1 zoo. OO A C r ti \ `` 7 rZi �� `LJ ?p,00Z y 29 00, E Q) (' J' o 6'00- IS, 00 ry �� 10o 00 , PROPOSED PLOT PLAN BARNSTABLE, -, MAS.S. ,r,Q.. " �r �{oF. as.� 3" SUNSET LANE /•\r,�t-COX 1706 D;�Tt SE'T. 1 1997 ' i Ic, -- 9, SCALE 1 = 20 �•� j��' JOB 3972-00 _ CLIENT HAMLYN ���..L• �,;;;,,s,.��.� -;;� 22TS -LNGINEERING -. 235 Gf"ir- t UESTERN ROAD HY.V`f'Y"i'1 P.O. BOX 713 SOUTH DENNIS, MASS. 398-3922 02660 FAX 398-3062 Id King'e Highway Historic District Committee 7. DRAFT /genda for Public Hearing of October e,1997 Continued `/ Richard &Joan Rudders 36 Sunset anp, sQapQQ...�e ",gg#301 Parcel#036� Barnsiadre t otat Demolition of one structure & New HouQe/Geroge to be conct��lrtp.. Richard Rudders and Russ Hamlyn were present for the hearings. There were two applications filed at the Planning Department on September 17, 1997. The Certificate of Appropriateness was heard first. Certificate of Agp�o riateness The Committee started to review the plans, and since there was an abutter present, they invited him to come forward. Public Comment: Joe Dugas, direct abutter to the south, had no objections to the demolition of the existing structure. He was concerned about maintaining the view of Barnstable Harbor from the second story of his home. He wanted to know the relationship between old existing structure and the new structure. He asked Mr. Rudder if he would be willing to move it back a few feet - approximately eight feet. Upon viewing the drawings, Mr. Dugas realized that eight feet was not necessary because the whole structure is out to the front. Mr. Dugus wanted to know the exact location of the new structure. Mr. Hamlyn said that they had moved the whole structure back nine feet further than the now existing structure. Mr. Dugas asked about the "A" frame. Mr. Hamlyn explained that the Farmer's porch roof sticks out, not the "A" frame. The "A" frame, up top, flushes with the house. Mr. Dugas pointed out that lie welcomes the new home and the neighbors, but he wanted to maintain the view of Barnstable Harbor. Mr. Dugas felt it was very close, and he was concerned about the lower roof. Mr. Hamlyn reiterated that the lower roof sticks out, but will not be seen. The structure is moved back nine feet. The Committee questioned the height and it was noted that it shoud be indicated on the plans. They further questioned how far back the new house would be from the existing house. Mr. Hamlyn said it would be nine feet back. This is a double lot. Mr. Hamlyn explained that the front wall is only five feet high to maintain the Colonial look of the house. This raises the front view of the house and gives it a "set down look". He wanted to keep the height of the house down to make it conform with the neighborhood. Mr. Freeman stated that he did not have any strong objections. The house has very little of the attributes of a Cape design even with this type of porch that had a hip portico. It seems to clash with this small porch effect. It almost looks somewhat Victorian, and is more of a fine design detail, and is very steep with a Victorian gable design. The two together do not seem completely appropriate. The overall dimensions and the look is fine. He was not sure how important that little design is to the internal layout. Mr. Hamlyn remarked that the big "A" coming up was roughly 5 feet...If the "A" became 7 feet not necessarily that proportion, but to stretch it out so that it's better looking, and it should be the same width. It should be a few feet wider. He wasn't sure the owner would want it, but it was the only way he could perceive that if you go for it, he would be losing some of the Palladium type window. The Committee commented that they did not have a problem with it, because this is a neighborhood where the it has been approving decks, and Mr. Hamlyn felt It would look good. The Chairman asked Mr. Dugas if he was satisfied with it as proposed. Mr. Dugas said tie was, except for the location of the footprint. He called Robert Wilcox who has done a lot of work for him, who said he would put together a layout with the existing structure. Mr. Dugas commented that they had wanted to get the new structure back about 8 feet, but It Is 8 feet back now. Mr. Hamlyn remarked that before Mr. Dugas had called, It was already back 8 feet. Mr. Dugas commented that on the house detail. They were very please to see them build this type of investment here. It's a big Improvement. The Committee again tried to ascertain the true the height and window issue. Ms. Savage commented that the problem was that the window is not a true Palladium window, and this is what makes a problem with the roof line. 13 .d King's Highway Fllstorlc District Committee Agenda for Public Hearing of October 8,1997 Continued Mr. Hamlyn explained that they were trying to get away from the true Palladium look. The Committtee asked The Chairman if a change was requested. Mr. Freeman said yes, but they did not seem to want to consider it. It could be changed to a regular rootline with another donner, not the "A"jutting out. Mr. Flamlyn reiterated that the Chalrinan's request was to have ilia two dormers. It would be more of a true Nantucket Colonial type. If they were 5 feet wide, the middle one would be 7 feet, dropping It down another foot above these. (See plans) This would change the look of the Palladium window making it a wider width, therefore changing the look. Mr. Dugas asked about the inserts (dividers) in the windows. In many of the houses they do not put the dividers in the house. Mr. Hamlyn said they are Anderson's windows, and they are pretty easy to Insert. Mr. Freeman commented that they should make sure that windows are approved as shown. A MOTION was duly made by D. Babbitt and seconded by E. Molans that the OKH Committee approve the Certificate Appropriateness of as submitted. Discussion: Ms. Savage stated she had a problem with the Palladium window. Aye: D. Babbitt, E. Molans, and P. Freeman Nay: Abstained: Ms. Savage. The motion carries by a vote of 3-0-1, the application is approved as submitted. Certificate of Demolition They discussed the application. The Committee reviewed the plans for the demolition. Public Comments: Joe Dugas, direct abutter to the south, had no objections to the demolition of the existing structure. A MOTION was duly made by P. Savage and seconded by D. Babbitt that the OKH Committee approve the Certificate of Demolition as submitted. Discussion: None. All members voted to APPROVE. 14 i ` � �i�= _ +l..� �. - �, . rr: �� 3:. ' • , _ � .. �' ,�� „� 4.: . 9 •. . �5 �- %fir } } �� =' �+'._ 'i' _ f - /. _ ;rr I � i _;;.�:- 'i r 1 'rva -. �;.. � � .. _ ...:ram .�_ _ r �'i .. - bti. - ++ j - _ � / / c A.'Yya 6,.�f��•.�tier,^'4-p.. 'a..r,ro`" �� `� ', r . _ a J � ,e' ir ^, ^� 9 _ Y r A R'°s ' 1 I/ pi i i 1Too 00 LOTS 141 & 143 --� 10, 000 S.F. f r Q rzq co Jp 6 , Q) co O. Q 7pp OO ) "AS- BUILT" PLOT PLAN TO THE BEST OF MY INFORMATION, BARNSTABLE, MASS. KNOWLEDGE, AND BELIEF THE. :,:.,,,,,, LOTS 141 & 1431 L. C. 1793t- FOUNDATION SHOWN ON TkII "�" '".-. `�`�' ' ' +, DEC. 1, 1997 SCALE "1 = 20' PLAN HAS BEEN LOCATED :: (rt��l- `� ► ; JOB 3972-00 CLIENT HAMLYN GROUND AS INDICATED. >` SWEETSER ENGINEERING 235 GREAT WESTERN ROAD DEC. 1, 1997 l - SOUT DENNIS,; � y MASS. ASS. DATE PROF. LAND SURVEYOR02660 __ .....-..__.___. .. .. .-. _ -- ------ ------- . 398-3922 .- . (FAX) i PNILBROOKIT ENGINEERING & 107 BEACH STREET DENNIS, MA 02638 CONSTRUCTION 1-508-385-8682 ENGINEERING DESIGN • CONSTRUCTION INSPECTIONS • BUILDING, ALTERATIONS & RENOVATIONS 10 December 1997 Town of Barnstable Attn: Mr. Richard Stevens Building Inspector Barnstable, Massachusetts 02601 Reference: Footings & Foundation Bearing 30 Sunset Avenue, Barnstable, MA Dear Sir: I conducted an investigation of the in-situ soil materials and new concrete footings and foundation at the above location for Russ Hamlyn, Builder, to determine their existing conditions . In accordance with the State Building Code this letter shall serve as documentation for satisfactory use of the in-place foundation provided the following construction modifications are completed. The foundation along w/ these items will be suitable for the con- struction of the wood framed garage and store areas . The roof can be either stick-built or wood truss . Observa inns • • The concrete foundation consists of an 8"x 310" wall on an 8"x 16" strip footing. Total height = 44" . • The end wall (South end) is eccentrically placed along one side of the strip footing. • Depth of excavation along the end wall is shallow, rang- ing from 10" to 20" and in places it is barely below the topsoil gradient. • The cut (and in-ground depth) is greater across the rear and front where the foundation approaches the full height step downs. • Additional concrete has been placed in front and beneath the leading edge of the garage strip footings . Commentary: Most of the short wall foundation construction will be satisfactory once the backfill is installed as their subgrade bearing soils are non-frost susceptible and the fill height will exceed 36" (minimum Code depth is 18" for clean, granular .fills) . The entire South end wall is not satisfactory for 3 reasons . One; the eccentric placement of the foundation wall overloads the 1 4: PHILBROOK ENGINEERING & �.� CONSTRUCTION 107 BEACH STREET DEWS,MA 026M 1.508.US•8482 footing which could fail by rotation (uneven settlement). As most of this wall is in the garage there is no wood deck which would normally provide some lateral restraint against rotation. Two; additional concrete work to increase frost depth has acted to further destabilize the bearing when it was placed along and under only one side. Three; the depth of the excavation in some places barely exceeds the depth of the topsoil. This leaves the actual bearing capacity of the subgrade soils along this line suspect as there is evidence of some topsoil contamination and the top of the subgrade layer looks quite loose (uncompacted) . Remedial Repair Work* Install 5 equally spaced 10" deep x 310" square spread footings beneath the existing South wall and its footings . The 31011 wall will serve as an unreinforced grade beam spanning over these footings . Undercut the wall at both ends and space the 3 remaining interior pads at about 910" o/c. Remove the added concrete across the front of the wall but leave intact the original strip footing. Formed in-place footings are allowed but rod and slightly over-pour the concrete to ensure full pene- tration and contact w/ the underside of the existing strip foot- ings . After backfill shape all grades to pitch water away from the foundation wall . Along this line it will come naturally as the existing topography at the lot line is considerably lower. The following soil determination was made: • USCS Type Classified - SP/SC (loose, soft yellow sand) State Building Code Material Class - 8/9 • Soil Bearing (allow) - 1, 100 lb/sq ft • No ground water levels are present. This provides a bearing factor of safety in excess of 1 . 5 for the South foundation wall based ,upon projected design loads (design notes attached) . Respectfully .submitted, T. VARNUM PHILBROOK, P.E. as : inclosures I 2 PHILBROOK ! I 1 a ENGINEERING FIELD REPORTMORKSHEET Project No: P91 °a y �07�lACfl f1nlR Sheet No: of GENERAL DESCRIPTION Narrative: Review in-situ soil conditions and construction needs for load ---------- capacities on existing cast-in-place footings supporting non- symetrical short concrete foundation walls; garage gable end Client: Russ Hamblin, Builder 398-8259 Location: 30 Sunset Avenue, Barnstable, MA SPECIAL CONSIDERATIONS 444 JJJ During foundation construction the excavation for the garage end was not dug quite deep enough. Placement of the footings and short foundation wall will not allow for ree tive frost p ua� protection. Further, due to some misalign- ment the garage gable foundation wall (South side) is eccentrically bearing moo: .. along the outside edge of the strip footing. An attempt to increase frost -- protection resulted in an underdug condition inline w/ and directly below �Zithis off-center foundation wall. eo Z DESIGN CONSIDERATIONS General: Check for adequate bearing capacity. Provide stable bearing at ------ below grade depth for foundation loadings. Loads S Loadings: Unless specifcally noted the following apply. ----------------- Live Loads SBC Location #/sq ft Dur Note ---------------------------------------------•------------------------ note - slab in garage so let Floor 40 1.00 Slab no floor load. The 2nd Floor 30 1.00 c/o walls bear thru Attic 20 1.00 Storage but no lateral wall Snow - m 7/12 25 1.15 Zone - 1 tie at sill plates Wind - Ref Pres s 21 1.33 Zone - 3 Exp - C/D Dead Loads SBC Location #/sq ft Dur Note ---------------------------------------------•------------------------ Concrete Floor 50 1.00 Wood Floor 15 1.00 2x10 6 16" o.c. 3/4" 6 Finish Attic 10 1.00 Partitions: 4S6 12 1.00 Roof 7 1.15 rd ^ 10 before DL&W SC 8" Grouted Block 85 Placed Concrete 150 lb/cub ft h Misc or Comments: ----------------- Loading 'X'-section of framed gable construction. Check existing foot- ing design review and capacity check for bearing. Check/Provide fog _`rost and water protection e foo:._ng _ere: i P82-FRW-7 f PHILBROOK ' ENGINEERING _FIELD REPO RTMORKSHEET Project No: P9 1- B y o�evc"sn,sar ,`eo.""`a�►�iau — hAet--No:--Z --at - — DESIGN CONSIDERATIONS cont'd ma=a=aaataaaa=aaaaaaaaaaamaama Description: 1-1/2 Story Wood Frame Garage w/ Utility space to rear. Slab- ------------ on-grade and crawl space w/ concrete floor & dust cap. Location: 30 sunset Avenue, Barnstable, MA Soil Data: Site Plan or Boring Log available: NO - from Previous Work s« P86-26 , 00o Direct Observation: YES 4 DEC 1997 „„ USCS = SP/3C at bearing depths, loose or soft yellow sand GOO �00 Specifics: Br(allow) _ _1,000 lb/sq ft w/ allowable increases ` z Z Increases allowed: -10-% for ftgs > 1'0" not taken, too narrow=; 0 % for depths > 110" 1 increase used Pressures: Active = _.30- coef. (Ac) Passive = -250_ lb/sq ft/ft depth Friction = _.40 coef. (Fc) equiv. fluid pres. Density (sat) = _130_ lb/cu ft ( a) 40-45 lb/cu ft Design Considerations Requirement Sliding (Lateral Thrust) W(Fc) >a 1.15 (T) Settling (Vertical Thrust) Br(allow) >- 1.15 (W/A) Additional Considerations ------------------------- Unbalanced fill height = NONE in garage, 21611 in crawl Backfill - sloped away from Garage, pitch will exceeds 1/8" per 110" All grading will have a positive slope Water table height above footer base - NA Front Protection Requirements - OR - non-frost susceptible and water management; gutters, leaders and positive grading Observations - Loamy-sand in Medium state is overlay topsoil. At the -------------- rear of the garage foundation penetration into the sub- grade is barely developed, some contamination present DESIGN ANALYSIS Sb(allow) Br(allow) x Depth Adjustment of 110" = 1,000 lb/sq ft x 1.2 = 1,200 lb/sq ft (note 6th ed sBC Range Class 8 = <1 ton/sq ft allowable P82-FRW-7 PHILBROOK ENGINEERING FIELD REPORTIWORKSHEET* Project No: P97-8 4 --z [--Sheet---No. —-Of___ - 7 -------7" .............. ILI To 9 Cy • TPA L DAD + U 1,j IL q I-L 4 31 L Do Liz 41)L" IL 7-�5 -3-3 z Lis 19/L TL Ces Tl-/1)1 L a t) 0 Tt- UDL L-1):DX a T-- cis OvTtYL. 0 M 17 V, Jul V_ p IL/6 &s ISO h o 15 2-RS N, vuo cxa3-t rJ c1cAv2 Of -sb'res-'r 32 . PHILBROOK p I , a ENGINEERING FIELD REPO RTIWOR KSH EET Project No: _! 91' g Li I ' -- - oc»•a.w.ma,. Sheet No: H of —„oo-ae ear• - --•---------------- ---_.._..----=--- - ------ ._ = 8 bS �fur �c !. 1 S� �195 N/r �` oou -IlLF- 6 Uz-- c -C— I ooai m. - - Z,500 t� , 80 PYT 6Z. PY o >, W Z = , 5 0 I fl,D Ov - r _ I0 1 OOd/ x L, i —125) 3 '0 T�. 11 1 LJ D�7 )S Ia 1 C-R%ce E F:D-0- l *d o �-► A CYS1a C40— -b4:P 1ti+, 1� U 0IQ � . � 15 Cl w .S i5r4ic"Vt- a� St, Frr� h P62•FRW-7 DEC-24-97 12 :04 PM ATTY PETER FREEMAN 5083628281 P.el MEMORMPUM To: Ralph Crossen Date: December 23, 1997 Building Commissioner By Facsimile: 790-6230 From., Peter L. Freeman, Chairman Barnstable OKN Committee Re: Sunset Lane, oarmiLal,le 11amlyn eonatr»rtinn, Dugas At the OKH meeting on December 17, 1997, Joseph Dugas brought to our attention what he believed to be two issues of noncompliance with the Certificate of Appropriateness previously granted by the Committee for the house abutting his lot, now under construction by Hamlyn Construction. Issue 1: The building as proposed and approved was to be at the same finish grade as the house that was demolished on the site. It appears that the finished elevation is 4 ' higher. Issue 2: The foundation was built almost 4 ' closer to Sunset Lane than was shown on the approved site plan. In discussing the maLLeL , Lho a rAmLesoo rvuAllwl thn* Mr. Dugas had appeared at the hearing on the application, and the exact location of the structure was a concern he raised at the hearing. ne was uu11vo1„ed about hie view of the water, and the relationship of the new structure to the surrounding buildings and the street. The. Committee definitely felt that location was an issue, especially in an area like Common Fields, where the lots are small and the houses are close together, and especially where a neighbor's view can be accommodated without detriment to the applinpnt These matters were reviewed on December 17, 1997, and the Committee expressed the opinion, unanimously, that the construction of the house as described above, as to both issues, was in violation of the Certificate of Appropriateness. It was the opinion of the Committew that the changes constituted mare than minor changes, and that a stop work order should be issued by the Building Department. The location of the structure is material to this application, for* the reasons stated above. However, I must also emphasize that 1VVML�sn is al%say a n cnnri riarat i nn in fnlr review vrOrrPrss. Our guidelines require that applicants submit "a plot plan showing the exact location of a proposed building or structure and identifying .existing relevant buildings aged uLructures. " The oencideration of "settings" is included in both the purpose section of the Act (Section . 1 ) and in the powers, functions and duties section of the Act (Section 10) . Section 10 also calls upon the Committee to compare the proposed construction in relation Lo "buildings and structures in the immediate surroundings" . It is self-evident to us that a building' s relation to other buildings in the .area will vary, depending on its proposed locaLlon. Bob Brown, Counsel to Old King' s Highway Regional HisL•vric District Commission, agrees with L•he view I have expressed in this Memorandum. Both lie and I are gravely concerned that holding otherwise would set an improper and dangerous precedent that is inconsistent with the way that our Historic District Act has traditionally been interpreted. I would point out that the OKII Guidelines also provide: "It shall be the duty and responsibility of the Commission to interpret the act . . . " . For all these reasons, our Committee respectfully urges you to issue a stop work order on the property. The owner would have the right to apply to our Committee for a new Certificate of Appropri.aL•eness, requesting approval for Llie changes lie has made. cc: Gin Brown - By Facsbnile: 790-6288 r Garnicic & ScIldaC1'JI .P,C, A'1 TORN1 VS AT LAW 32 MAIN STJIE E"IMIX 390 CERA1.1)S. (:AItNICIC IIYANNIS,1%1ASSA(:1111SE'1"1'S 01601 JOYCE '.SCUIMEll (508)771- N 3304 LOIS M. PARMER ' PA1)L J.Al 1'EA December 30, 1997 CERTIFIED MAIL NO.: P 015 558 452 RETURN RECEIPT REQUESTED AND BV PERSONAL SERVICE Ralph Crossen, Building Colnluissioner Town of Barnstable 367 Main Street Hyannis, MA 02601 RE: Property of Richar(l &Joan Rudders Lots 141 & 143 Sunset Lane Barnstable REQUEST FOR ZONING AND BUILDING CODE ENFORCEMENT Dear Mr. Crossen: We represent Joseph F. Degas anti rulith W. Dugi1S with regard to the ongoing construction on the property of their abutters Richard & Joan Rudders at Lots 141 & 143, #36, Sunset Lane, Barnstable. Mr. & Mrs, nugas are direct abutters with their residence at #30, Lots 135 & 137, Sunsct Lane. This is a Request for Enforcement of the Zoning fly-Laws of*the 'fpwn of Barnstaand the Massachusetts State Building Code with regard to the construction at Lots 141& 143 Sunset Lane pursuant to G.L. c. 4-0A, sec. 7. We submit that file construction is in Violation of the Town of Barnstable Zoning By-Laws and the Massachusetts State Building Code in numerous and diverse ways, and is in contravention of Appropriateness issued by t11e Old King's Highway Regional Commission. Mr, & care of Mrs, Degas demand that the building permit be rescinde(1 and that you issue a cease and desist order as to such construction, and that all construction performed to date be ordered Ralph Crossen, Building Commissioner Demand liar Enforcement '• December 30, 1997 Page 2 renutvecl forthwith. A. Fallm-c to obtain Zonhtg 11os11-d of Appeals approval The property at issue contains approximately 10,000 square feet of land in an RB (one acre lot size) zone and, until November 1997, contained a single family residence. The existing structure, including foundation, was in habilable condition and indeed was inhabited. however, on or about November 17, 1997, the building was totally demolished and removed by or on behalf of the owners. A new structure, on a different loot print, is now under construction. A portion of the property is located in Flood Zone 13. The elevation of the lot has been raised b lour Y ( I) feet and the footings of the bnilding were constructed on the pre-existing elevation. The position of the construction has been moved forward approximately four (4) feet from the originally sIIbI ,. Intended site as Witted o t file Ol d hing s l Ilghway Regional I lisloric Commission. The t property, located in a Y I B zone, Is a nonconlortning lot under 4-4,2 (1) in that it contains only 10,000 square feet of land. The original building thereon was a nonconforming building as defined 4-4.3. Pursuant to 4-4.3, that original building could have been physically altered or expanded as of right. I lowever, the'original building was demolished and removed. Significantly, the building had not been destroyed or damaged by fire, acts of nature or other catastrophe within the meaning of4-4.6 (1). The new structure is not a re- establishment of a nonconforming building or an alteration or extension of an existing building but rather a totally new building. As a matter of law, upon the demolition and removal of the existing building, other than as the result of acts of nalure or catastrophe, the nonconforming stgtus was forfeited. Si9P9 v. Tain&, Land Ct Misc. No.: 177558 at 7 (1994) (enclosed); citing Miller, 5 Mass, App. Ct. 470 (1977). Once the original building WAS demolished removed, it became necessary for the owners to obtain a special permit to build a new slt•ticture on the nonconforming lot. They have not clone so. As such, the mere existence of a new structure on the property without at, 011'special permit violates the zoning by-laws of the Town of Barnstable. Rulpb Crosson, Building COI)I III IS9IOIICI' Demand For linrorcement December 30, 1997 Pago 3 B. Failure to couli)rn► to Old Icing's I Ilghwl►y ('erllficale of Appropriateness On or about October 8, 1997, the Uld Icing's l liglnvay iegional Iistoric District Committee issued a Certificate of Appropriateness fi)r the "New Building" to be built by the Rudders. Mr. Joseph Dugas appeared at the hearing and expressed his reservations concerning the new construction, and particularly any loss of the view from the Dugas property, as well as the relationship between the new structure to the surrounding buildings and the street. it is now evident Ihat the "new bttileling" has been placed approximately four feet closer to Sunset Lane than was shown on the approved site plan. in addition, the elevation of file lot, as well as the clevalion of the building, has been raised by four feet. The raise in the elevation of the lot is ofparticular concern to the Dugas property as it, as well as the neighboring properties, are subject to flooding in storms and it is anticipated that the change of topography will increase the burden to neighboring properties in Iloods, The change of location of the building forward, and the change of elevation of the property four feet higher, has the effect of blocking the view from the Dugas property. Mr. & Mrs. Dugas submit that the building permit issued mast be in compliance with the Certificate of Appropriateness from the Old King's Ilighway Regional Historic District Commission and that any construction must be in compliance with the site plan upon Which such Certificate of Appropriateness is issued. C. Failure to comply with illassnchuselts State Building Code As noted previously, the elevation of the land surrounding the new building has been raised by four feet. In addition, the building elevation itself has been raised by four feet. The footing4 for the building were placed on the original grade. Not only is the soil at the original elevalion inappropriate for the placement of footings for the building, but also the footings must be placed four feet below the original grade of the land under the Mnsanchtisetts state Building Code. 780 CMR 1205. As the elevation of the land and the building have been artificially altered, the placement Of tile footings is inconsistent wills and in violation of file Massachusetts Slate Building g Ralph crosser, nuilding commissioner Demand for I?nforcement December 30, 1997 I'ugu 4 1). 1'atlurc to ol►tsrin co Ilse t•valiort Commission per•nrit Mt•. & Mrs. Dugas believe tlµtt the builting and the filling of the lot requires Conservation Committee approval.grade has It appears that no application to fill the lot to raise the has been obtained. further, since the building "as built" now intrudes into the A-3 flood Zone action by the Commission is warranted for the building. Accordingly, the building permit should be rescinded until all necessary approvals are obtained and complied with. E. Lack of Certifie(I "As Built" plan We note that the "As Built' plan is not based oil any engineering or measurements but is based merely on "knowledge anti belie[". The building was never staked out. Legal) a certified plot plan is not based ,poll "knowledge and belie(" but rather is based on Y, scientific measurement. We suggest that the "as built" plan is inadequate to support any further construction on the property. F. Demand for Enforcement Mr. & Mrs. Dugas hereby demand that you enforce the Town of Darnstable Zonis By- Laws anti the Massachuselts State Building Code and rescind the Building Permit i st ed on Lots 141 & 143, #36, Sunset Lane, Barnstable, immediately, that you issue a stop work order and filmier that ),oilorder that all construction done to (late be removed. Very truly yours, GARNICK & SCUDDER, P.C. Gerald S. Garnick, Esq. Lois M. Farmer, Esq. Eliclosure(s) cc: Joseph and I3dith Dugas Richard & Joan Rudders tr P 015 558 452 faceipt for Certified Mail st�tti No Insurance Coverage Provided ioerir•n�rr Do not use for International Mail (See Reverse) SeWalph Crossen, Building C rum 811491 and No. Town of Barnstable 67 Main Street P.O..State and ZIP Code Hyannis, MA 02601 Postage Certified Fee Special Delivery Fee Restricted Delivery Fee Return Receipt Showing pt to Whom 6 Dais Delivered m Return Receipt Showing om, C Date,and Addressee's Address 7 TOTAL Postage d Fees 0 Postmark or Date t'7 LL N a 1 also.Wlsh Ito receive the following §ervices Ifor en extra 2 SENDER: r • Complete Items i endlor.e&b��Itldnal iervicee' lQ so that we can `feel: 1�! r ddress. tB i a lets Items 3,and 4 gddreSSee e A • Comp t.: p i •" Print your name end address on the nyer'a of th a beck If space O card to You- tneitpiece,or on the i Delivery return tMathls form o the.front of the. ..:, �te8tricted • fee. - Attach r c •'o^ T` w the srticte ntunbef 2• ' does not Penult• rested•' 91109" delivered and the data Consult ostmaster for fee. ' Write•'Itetum Receipt Ps4u • The Return PeeelPt wig dhow to whom the att1de wW 48. Ar ficle Number o delivered. Files udders ; p015 550 !452 �• ;'.3•. Article Addressed to: R . tService TYPgj, ' Insured Building COMissi Registered. i s i•[] COD Crossenr ! r: :.Fcalph [ Certified _ Return Rebel for $ Town of Barnstable;'; erchendise1� (] E press Mail 36',7 Main Street: Date of Dell o, ` Hyannis, Nip► 02601 7 � �" C Addr s(Only H requested C 9. Addressee' idl a and fee is pa.. Z 8• Signature (Addre itssee) tl�� ,.;: ' . � Ilil it I 1 lli • e, s g t g�� TIC RETURN RECEIPT i• PS Form ,December 1991 a.oPo rota— -Tta DOMES - �.� The Town of Barnstable • oArwsrnec.e. 9� b�: Department of Health Safety and Environmental Services '°rEonnot" Building Division 367 Main Street, Hyannis MA 02601 Office: 508-790-6227 Ralph Crossen Fax: 508-790-6230 Building Commissioner January 6, 1998 Garnick&Scudder, P.C. Attorneys at Law P.O. Box 398 Hyannis, MA 02601 RE: Property of Richard&Joan Rudders, Lots 141 & 143 Sunset Lane, Barnstable, MA Dear Sirs: I received your letter of December 30, 1997 and as you probably now know,we had just taken action at the time of your letter. A stop work order was issued on this property until final resolution with the Old Kings Highway. Your contention about the Building Code is factually wrong as stated,therefore l see no reason to go any further with it. Finally an as built,as submitted, is what the'Town customarily accepts. We see no problem with this one. Sincerely, Ralph Crossen Building Commissioner RC:lb cc: Jim Quirk,Attorney at Law g980106a 5 loo 00, g tx� LOTS 141 & 143 ' 10,000 S.F. .f QO / 1 NN - - Ipp i. TO TILE BEST OF MY INFORMATION, I'AS BUILT" MASS N KNOWLEDGE, AND BELIEF TH LOTS 141 & 143, L C.17933 ' FOUNDATION SHOWN ON f v%Q;I.- 11 "aF;.� . 1997 SCALE t 20 PLAN HAS BEEN LOCATE ! � : :cc,� �D�ATEDII� i, ' ; �GROUND AS INDICATED ' "" .^=� 72-00 CLIENT HAMLYN 21 h.;iCpx 3 aai 5IVE7 5 SER ENGINEERING :. �+ 235 GREAT YVESTERN ROAD DEC. 1, 1997 z• P.O. BOX 713 k DATE PROF. LAND l9 SOUS DENtBS, MASS. 398-3 2 02680 FAX 98- 0 3 v� o� D4710 /7 f) i.JNicy is �. 8f' ' /f$a ✓� O t p t{e d Sd�� �Nlf /f / V :i WTAL PAW WIT &QA26 - AS am �A uiK an 25 - its 3 23 ago Y' n_ _ a s # 6 i,iVit in P K G L K �� _ r .v' 12 JW an —� 65 anx 5.1 i _ - �r _ r h " ON #2!6 ) f' #25 r� - pve I rJ =2 14 U[ 2 - r] r y 6 _ `�` a 0 ;all *,r< 2 -✓ i n �+ ° #firms axx K, I O #i_ on 5 1 1 j� ' 6 MAC MAEI no s p smie:1, = 15 , Dugas 36 -Sunset lane E Map 301, Parcel 36 a PROPERTY ADDRESS I I ZONING I DISTRICT CODE 'SP_DISTS.I DATE PRINTED I CLASS STATE I PCS I NBHD ►KEY O. 0036 SUNSET .LANE 04 RS 100 048A 07/09/95 1011 00 77AC R301 U36. 212807 LANDIOTH R PEATURES DESCRIPTION ADJUSTMENT FACTORS V UNIT ADJ'D.UNIT R UDDERS, R I C H A R D A 9 J 0 A N P MAP- Lane By/Date 51a•D1m•n.wn OC JYR. EC.CLASS ADJ. COND. P PRICE PRICE ACRES/UNITS VALUE O•acriplion NO FF.pe,n/Acr.a #LAN D 1 46,600 CARDS IN ACCOUNT - L 10 18LDG.SIT 1 x .22 =10 270 74999.9S 202499.9 .23 46600 #BLDG(S)-CARD-1 1 52,400 01 OF 01 A I #PL 36 SUNSET LN BARNSTABLE --9VUD- N BATHS 1 .0 U x C= 100 350O.00 3500.00 1.00 3500 d #DL LOT 141 3 143 MARKET 96100 C) - NO BSMT S x C= 100 6.7C 6.70 1080 7200-18 #RR 1564 0100 INCOME FIREPLACE U x C= 100 31OO.00 3100.00 1.00 3100 8 SE A C) PPRAISED VALUE p 99,000 ARCEL SUMMARY A T U AND 46600 A S LDGS 52400 T 0-IMPS M TOTAL 99000 E CNST F RIOR YEAR VALUE E N EEO REFERENCE yya DATE R_. -PRIOR T Bo.a Pao. '"" Mo Y, g""F °' LAND 46600 T S C73331 00/00 BLDGS 52400 U TOTAL 99000 R E BUILDING PERMIT S NVmMr D.la Typ• Anloun, LAND LAND-ADJ INC ME SE SP-BLDS FEATURES BLD-ADJS UNITS 46600 600- Clu• Consn, Total Base R.1e A01 Rate Ape Dew' = CNO La -R G Ael ­1R.pl Coat New 1 V,I,e s, . Is..gm Rooms W Rma BHM •Fia. Par".J Fat. Una Unns " 01C 000 100 100 59.40 59.40 50 75 19 80 95 75 69907 5240J 1 .0 5 3 1.0 4.0 W.cryllwt Re,. Square Fut Repl Coal MKT.INDEX: 1-00 IMP.BY/DATE. / SCALE. 1/00.74 ELEMENTS CODE CONSTRUCTION DETAIL S SAS 100 59.40 1080 64152 NST P: fEP 65 38.61 140 5405 *------20-----*--8--* STYLE 03 A_N_C_H 0.0 T FfU 25 14.85 64 950 7 FEP 7 8 DES ADJMT JlS 0.0 R ! FFU ! °kY4 WALLS Ji 006 FRAME 0.0 U 20----36--8-- 4 i-A-r/ u TYPE- -J2'As 0.0 c ! ! NT_.4-FlIdiSH- 00 .. ------ --------- 6.0 T INT-ER:LAYOUT- -01 -- - ------- 0T.0 U INT-�R:OUALTY' J[ AAE A-S_ EXfiER: U.0 R F LDOR"STRUCI- -JO ---------------- U.0 A W ! ! E LDJR CDVER-- -00 - ------ ---------U.O L Ay. u•204 1080 30 BASE 30 ODF-TYP-E---- -00----_-- _ U.0 Tatl Aran B E BUILDING DIMENSIONS T OAS W36 N30 FEP N07 E20 S07 F F 0UN0ATI-ON JJ D9.9 A E06 N06 W08 S08 .. FEP W20 .. ------------- - - - - SAS E36 S30 -----yEIT,N3ORH OD 7'7AC-EARN-STA8LE L ! LAND TOTAL MARKET ! ! PARCEL 46600 99000 *------------36----------x AREA 16611 VARIANCE +0 +496 STANDARD 25 'fhe Town of Barns We Department of Health Safety and Environmental Services +' Building Division 367 Main Street,Hyannis MA 02601 Office: 508-790-6M7 Ralph Crossen Fax: 503-790-6230 Building Commissioner TO: Peter Freeman,Chairman,O.K.H. FROM: Ralph Crossen,Building Commissioner REGARDING: 36 Sunset Lane,Barnstable,MA DATE: January 21, I998 I have reviewed the plot plan of December 1, 1997 and both the height and location are substantially in conformance with Zoning and the intent of the O.K.H,act. I believe the stop work order should be lifted. I intend on doing that forthwith. qM 121a TOTAL. P.04 o y . f. : The Town of Barnstable "E ' Department of Health, Safety and Environmental Services �'' Building Division 367 Main Street,Hyannis MA 02601 Office: 508-790-6227 Ralph Crossen Fax: 508-790-6230 Building Commissioner February 5, 1998 Attorney Peter L. Freeman 3180 Main Street Barnstable, MA 02630 Dear Mr. Freeman: The recent siting issue between Old Kings Highway and my office has raised several functional questions. The placement of a foundation,due to the fact that foundation work is not an exact science, is never exactly in the place that the proposed plot plan shows. As one building inspector recently said: "If the as-built shows the location to be exactly where it was proposed to be, question it!" Given this fact,none of us really wants every building permit in the Old Kings Highway District to experience a stop of work at the time of as-built while they wait for the next Old Kings Highway meeting (could be 1-2 weeks). Needless to say,this could result in a stampede to the Manager's office! As I discussed on the phone with you, your own committee is not sure how to proceed, as you said a foot or two is not.an issue while Stan Alger says anything could be. Where do we go from here? In an effort to resolve this to the benefit of the people of Barnstable, I am recommending that this question be referred to the "Alternative Dispute Resolution"program. I think this question is one that would be a good one for them, and I think the process could be helpful. I will keep you informed as I learn more. Sincerely, `� Ralph M. Crossen Building Commissioner RMC/lbn - - cc: Bob Smith "`l g980205c I O Brown Gwen From: Schemig Bob To: Brown Gwen Cc: Traczyk Art Subject: FW: OKH meeting. Date: Monday, February 09, 1998 8:53AM Please convey the message below to Peter Freeman From: Crossen Ralph To: Schemig Bob Subject: OKH meeting. Date: Monday, February 09, 1998 7:27AM On Friday afternoon we received word that Peter Freeman noticed a meeting for today at 2:00 PM in the SAB room. He apparently wants us to come. I have a conflict and will not be able to attend on such short notice. On the issue he is holding the meeting for I do not want any of my inspectors attending in my place. Would you send my regrets to Mr. Freeman?Thank you. tip , ��, . . N J 1 Page 9 02-09-1998 10:44AM FROM QUIRK & CHAMBERLAIN i0 17boccc r.rJc QUIRK AND CHAMBERLAINS P.G. f do-inrya. and eauniCLU of 1'a"T S9 WILLOW STREET JAMBS M.QUIRK,JR. POST OFFICE BOX 40 ROBERT C.CMAMBERLAIN YARMOUTWPORT,MASSACMUSCTTS 02675-0040 BARNSTABLE OFFICE PAMELA B.MARSH POST OFFICE BOX 93 508/362-6262 YHOMASJ,PERRINO BARNSTABLE,MA 02640 FACSIMILE 50813 6 2-60 60 ANASTASIA WELSH PERRINO SOW342-4314 OF COUNSEL WILUAM t.CROW6LL JR. via Facsimile (508) 362-8281 and 790-6288 February 9', 1998 Peter L. Freeman, Chairman Old King's• Highway Historic District , 230 South Street ' Hyannis, Mil 02601 RE: OLD RING'S HIGHWAY MEETING FEB. 4, 1998 DR. RICHARD RUDDERS OUR FILE NO. 903/8533 i Dear Mr. Freeman: - Please be advised that as counsel for the Attleboro Contributory Retirement Board, it is necessary that. 1 attend their meeting, which was previously scheduled for February 9, therefore, I will not be . available to attend the Old Ring's Highway meeting. I believe that we have complied with the intent of the meeting of January 7,: 1998, where Dr. Rudders and I appeared to respond to the actions following the initial approval. The matter did go back to the Building Commissioner as you know. He reviewed the information and made the determination that the project was in compliance with zoning and the Old Ring's Highway concerns. Attached please find the Building Commissioner's file memo. Since being before your committee, Mr. Dugas has appealed the Building Commissioner's decision relative to a myriad of issues raised by his counsel. He has also successfully. obtained a cease and desist order for a claim relative to the flood plain. This is now the third cease and desist order that Dr. Rudders and his wife have been forced to address. Apparently the statement made to Dr. Rudders at: his house prior to the Old Ring's Highway meeting that "If you don't build this house the way I want it you will never build it", continues to be the agenda being raised by Mr. Dugas. My client has suffered substantial emotional and financial impact from the many proceedings he has been required to address. I . Lt) . a.--.ram-�.--�--- QUIRK AND CHAMBERLAIN, P.C. Peter L. Freeman, Chairman February 9, 1998 Page Two If I can provide more specific information to you and/or the Board, I will be glad to do so. Unfortunately, I am not available for your ' meeting today. If, as a result of this correspondence you have any ; questions, please do not hesitate to contact me regarding same. Very truly yours, QUIRK AND CHAMBERLAIN, P.C. ��m�1eil James H. Quirk, JHQ/mre Enclosure r Town of Barnstable - Planning Department Old King's Highway Historic District Committee 230 South Street, Hyannis, Massachusetts 02601 awxrrsrest.E, : -(508) 790-6285 Fax (508) 790-6288 Mnas. FEB 91 To: Ralph Crossen, Building Commissioner From: Old King's Highway Historic District Committee Date: February 9, 1998 Re: 36 Sunset Lane, Barnstable At a duly held meeting Old King's Highway Historic District Committee at which a quorum was present on February 9, 1998, the following two motions were approved: 1) To request the Building Commissioner to immediately issue a Cease and Desist Order to stop construction at 36 Sunset Lane Barnstable, MA, because the "as built" location of the house is 4' to 4.5' closer to the road than was approved by Old King's Highway Historic District; 2) To request that the Building Commissioner look into a.) whether the as built house is located closer to the Southeast lot line than was approved by Old King's Highway Historic District and b.) whether the elevation of the house as built is higher than the approved plans. As to the house" location issue, Stan Alger's review of the plot plans submitted by Sweetser Engineering and Eagle Survey, and of the site plan approved by Old King's Highway Historic District Committee shows the following: The Old King's Highway Historic District approved site plan shows that the new house was to be 35' back from the layout of Sunset Lane. The Sweetser plan shows that the house is built 30.6' back from said layout. The Eagle plan shows that the house is built 31' back from said layout. ;We appreciate your ssistance in this matter. Stanle Iger Peter L. Freeman •Edward Molans 1 i t loo. oo v lvl x� LOTS 141 & 143 10, 000 S.F, f N O O 1p 3O 6 rlrl�' O' \ co _. 11�I �L � / y� cV n 0 00 TO THE BEST OF MY INFORMATION, ."AS- BUILT" PLOT PLAN BARNSTABLE, MASS. KNOWLEDGE, AND BELIEF THE,,,l,-_,-,l LOTS 141 & 143, L. C. 1793 FOUNDATION SHOWN ON THl' �HOF,,,�� �a 3A �' �. DATE__DEC. 1, 1997 SCALE 1 " 20' PLAN HAS BEEN LOCATE r;T.,;, ` �, GROUND AS INDICATED. OB 3972-00 CLIENT HAMLYN MAID, Y, /95e No 5i311 ' _�' SWEETSER .ENGINEERING L 5 GREAT WESTERN ROAD DEC. 1, 1997 P.O. BOX 713 SOUTH DENNIS, MASS. DATE PROF. LAND SUAVE 4OR 398_3922 02660 FAX 398-3063 JAN-22-98 04 :50 PM ATTY" PETER FREEMAN 5083628281 P. 01 Lipman, Drummond & Freeman Attorneys at Law 86 Willow Street Yartnouthport,Mas achtisetts 02677 Stephen 1. Lipman' Tel: (508) 362,4700 Tucker Drummond lax: (508) 362.8281 Peter L. Freeman January 22, 1998 Y F IM 7 -623 Mr. Ralph Crossen, Building Commissioner TOWN OF BARNSTABLE Town Hall Hyannis, MA 02601 Re: Sunset Zane, Barnstable Dear Ralph: I wanted to follow up our telephone call immediately. It seemed that you were annoyed, if not upset, over this situation with OKH; and I respect both you and the importance of OKH too much to let any dissatisfaction simmer. In checking my notes, I see that I did = send you a letter after the January 7, 1998 OKH meeting at which the subject property was diseussed. The reason I didn't is that Tom Perry bras there and participated in the discussion. It was clear to dll that Dr. Rudder, the owner , of 36 Sunset Lane, who was there with his attorney, James Quark, was going to have an engineer prepare a certified plot plan that certified D91h the as-built 'location of the new foundation, and the location of the previous foundation an the lot. The purpose was to verify whether the new foundation was built in the location approved by OKH with the Certificate of Appropriateness. Because the owner admitted that the plans he had submitted-- clu ' the "as-built" plot plan dated December 1, 1997--had mistakes on the setback distances shown, we all, agreed that the best way to determine whether the foundation location complied with the OKH approval was to have a new plan prepared by an engineer certifying bgth the as-built location of the new .foundation and the location of the previous foundation on the lot. I believe that we All thought--including Tom Perry--that there were too many discrepancies between the "as-built" plot plan dated December 1, 1997 and the proposed plot plan dated September 19, 1997 (which are the very same plans that Al Martin gave me last night at the OKH meeting, along with your Memo to me dated January 21, 1998) to allow any of us to be certain of the true facts. My only point to you in our telephone call was that the owner has not done that. What he submitted to you yesterday wen what we already had (the "as-built" plot plan dated December 1, 1997) . I 'At.0 Adnau:u in Rhode Islmi and New York Boston Office,21 Custom House Street,Boston MA 021?0.3500 Telex hone, (617)261.7800•Fax(617)260878•7878 ..�.. ,,..,. ...,...ir.�...e, .,'t._ :'$`,.. , .r.. ... _ ...... ..._Z•1d.+•..•, .!t/� � n...,�.�_�,,.s.Wit,`.Y,i:JIB.,.,in.ar .J...K::d:Ctr:.'•Lir✓.:•01:..rr.'l.�:L.r.�.,aT.e.,C...L.t:_:'�•:�ai:�.Yr,, x1,..�....., 01-08-1998 10=31AM FROM SWEETSER ENGINEERING TO 3626060 P.01 AX7 LOTS 141 & t4,3 1 101 ova S.F• f Q J lQU, QQ f TO THE BEST of 'AS-BUILT" PLOT PLAN MY INFORMATnoN, BARNSTABLE, MASS. KNOWLEDGE, AND BELIEF THE,,.�;,4 LOTS ��.� $C ��- ,. . FOUNDATTaN SHOWN ON THr =�' �` '° 7933A PLAN HAS BEEN LOCATE©:"'. �Si'- '°���'; DATE DEC. It 1997 , SCALE 1" gyp' GROUND AS INDICATE h� a. ' U. � r'' ^., ' �� JOB 3972-00 CLIENT HAMLYN r 235 GREAT WE ROAD Dom, P.O. 9Qx 713 DATA' _ rRCfF. _LAND SU 1t�Ul� 3�a 3s^ SaU'ni DENNIS. f�as . (FAXJJ —3063 TOTAL P.01 01- 3-1'3'98 05:49AM _.JEETSER. E*JuIiJEERI`;ia TD 79OG230 ?.31 S WEETSER E GIINEE 'INN P.C7. BOX -713 • SOU`6"H DIENNIS • MASSAC HUSETTS 02660 TE L (508) 398-3922 F'AX (5013) 398-3063 LAND SUr?VEYir4C, . ENGIhIEERING EM DATE:� FAX RFFM JCE/PRGjwr: NUME. of SHE= G i °FtHE Tp� The Town of Barnstable * BARNSTABLE, « 9� "6 � Department of Health Safety and Environmental Services ArEDru�° Building Division 367 Main Street,Hyannis MA 02601 Office: 508-790-6227 Ralph Crossen Fax: 508-790-6230 Building Commissioner TO: Peter Freeman,Chairman,O.K.H. FROM: Ralph Crossen,Building Commissioner REGARDING: 36 Sunset Lane,Barnstable,MA DATE: January 21, 1998 I have reviewed the plot plan of December 1, 1997 and both the height and location are substantially in conformance with Zoning and the intent of the O.K.H. act. I believe the stop work order should be lifted. I intend on doing that forthwith. g980121a Crossen Ralph From: Lavoie Debbra To: Crossen Ralph Subject: ZBA Appeal Date: Monday, January 26, 1998 8:31AM Ralph, To keep you informed, I received an application for an appeal of an administrative official regarding Lots 141 + 143 Sunset Lane, Barnstable. The owners are Richard &Joan Rudders. The applicants are Joseph & Edith Dugas. The appeal was clocked in at the clerks office on Jan 22rd and then delivered to me. I am tentatively scheduling this appeal for March 4th. If you need any information let me know. Debbie Page 1 01-23-1993 09.50AM FROM SWEETSER ENGINE'E-RING TO 7906230 P.02 i LOTS' 141 & 140 lk r O. br: g TO THE BEST CF MY INFORMATION, F-FWs---BUlLT9, PLOT PLAN KNOWLEDGE, AND BELIEF 7HE,...��^gi �A� VST1�,�3 .►► , �j�,SS, FOUNDATION ^HOWN ON T dl` itroF; �� q LOTS 141 & 143, L, C. 17933A PLAN HAS BEEN L.00ATEp► ,:;,T��: �:;��'_ DATE DEC. 1 1997 5 , GROUND AS INDICATED GALE 1 - 2a ;;T� `"�,. " �, .' JOB 3972 ' „1 -�'®_a CLIENT HAMLYN � &'TSER L1'd�INE 'RI11T� DEC. 11 199 235 GREAT tNESTERN LOAD --- t 0. �0713 DA T PROF, LAND aull �;'F " !fyo SOU H UENtgjS, MASS. -, gat--39 22 02660 TOTAL P.02 Lipman, Drummond & Freeman Attorneys at Law 86 Willow Street Yannouthport,Massachusetts 02675 Stephen I. Lipman* Tel: (508) 362.4700 Tucker Drummond Fax: (508) 362-8281 Peter L. Freeman January 22, 1998 BY FACSIMILE: 790-6230 Mr. Ralph Crossen, Building Commissioner TOWN OF BARNSTABLE Town Hall Hyannis, MA 02601 Re: Sunset Lane, Barnstable Dear Ralph: I wanted to follow up our telephone call immediately. It seemed that you were annoyed, if not upset, over this situation with OKH; and I respect both you and the importance of OKH too much to let any dissatisfaction simmer. In checking: my notes., I, see that .I-, did_ no send you a,`lett' er after the January7 ,1998 OKH meetin "► g at.which-the aubject. property was discussed. The reason I didn't 'is that Tom Perry was there and participated An, ..the .discussion..;,- It -was,- clear .to, all, ,that Dr. Rudder; the. .owner ...of. .36 . .Sunset Lane, .. who was - there with his attorney,' .James Quirk, was .going to have an engineer prepare a certified plot plan that certified both the as-built .location of the new foundation, and the location of the previous foundation on the lot. The purpose was to verify whether the new foundation was built in the location approved by OKH with the Certificate of Appropriateness. Because the owner admitted that the plans he had submitted--including the "as-built" plot plan dated December 1, 1997--had mistakes on the setback distances shown, we all agreed that the best way to determine whether the foundation location complied with the OKH approval was to have a new plan prepared by an engineer certifying both the as-built location of the new foundation and the location of the previous foundation on the lot. I believe that we all thought--including Tom Perry--that there were too many discrepancies between the "as-built" plot plan dated December 1, 1997 and the proposed plot plan dated September 19, 1997 - (which -are the very same plans that Al Martin gave me last night at the OKH meeting, along with your Memo to me .dated January 21, 1998) ,"to allow, any ,of ,us, to be certain of the true facts. .My only point. to you .in our telephone• cal1 was that the .owner has not done that.*- What he submitted- to you yesterday was_.what..we already had (the "as-built" plot plan dated December, l, 1997) . I •Also Admitted in Rhode Island and New York Boston Office:21 Custom House Street,Boston,MA 02110-3500 Telephone:(617)261-7800-Fax(617)261-7878 Lipman, Drummond & Freeman t Mr. Ralph Crossen, Building Commissioner TOWN OF BARNSTABLE Page 2 January 22, 1998 , do not believe that the engineer' s certification, or verification, of what we all were looking for has been accomplished. And if, as you told me on the telephone, the new location is 112 to 3 feet off" what OKH approved, that itself is still a discrepancy that OKH considers material. This is. not Peter .Freeman' s opinion., but the, position of all five OKH members as voted at the December 17, 1997 meeting. Please check with Tom Perry concerning my understanding of the above. And, please understand that neither I nor any one else on OKH wants to create unnecessary extra work for you or your Inspectors. In fact, we sincerely appreciate the extra effort at working with OKH that your department has made, as exemplified by your sending an Inspector to attend our meetings. The true situation on the house in question has simply proven difficult for us to get a handle on; and. we are simply trying to . get to the bottom of it and be fair to all concerned. As frustrating as this may be, please be assured that your assistance is greatly appreciated. Very truly yours, 4f/ � PETER L. FREEMAN PLF:njm __ I Garnick & Scudder, P.C. ATTORNEYS AT LAW 32 MAIN STREET POST OFFICE BOX 398 HYANNIS,MASSACHUSETTS 02601 GERALD S.GARNICK (508)771-2320 LOIS M.FARMER JOYCE W.SCUDDER (508)771-3304 PAUL J.ATTEA December 30, 1997 CERTIFIED MAIL NO.: P 015 558 452 RETURN RECEIPT REQUESTED AND BY PERSONAL SERVICE Ralph Crossen, Building Commissioner Town of Barnstable 367 Main Street Hyannis, MA 02601 RE: Property of Richard & Joan Rudders Lots 141 & 143 Sunset Lane Barnstable REQUEST FOR ZONING AND BUILDING CODE ENFORCEMENT Dear Mr. Crossen: We represent Joseph F. Dugas and Edith W. Dugas with regard to the ongoing construction on the property of their abutters Richard & Joan Rudders at Lots 141 & 143, #36, Sunset Lane, Barnstable. Mr. & Mrs. Dugas are direct abutters with their residence at#30, Lots 135 & 137, Sunset Lane. This is a Request for Enforcement of the Zoning By-Laws of the Town of Barnstable and the Massachusetts State Building Code with regard to the construction at Lots 141 & 143 Sunset Lane pursuant to G.L. c. 40A, sec. 7. We submit that the construction is in violation of the Town of Barnstable Zoning By-Laws and the Massachusetts State Building Code in numerous and diverse ways, and is in contravention of the Certificate of Appropriateness issued by the Old Ding's Highway Regional Commission. Mr. &Mrs. Dugas demand that the building permit be rescinded and that you issue a cease and desist order as to such construction, and that all construction performed to date be ordered I i Ralph Crossen,Building Commissioner Demand for Enforcement December 30, 1997 Page 2 removed forthwith. A. Failure to obtain Zoning Board of Appeals approval The property at issue contains approximately 10,000 square feet of land in an RB (one acre lot size) zone and, until November 1997, contained a single family residence. The existing structure, including foundation, was in habitable condition and indeed was inhabited. However, on or about November 17, 1997,the building was totally demolished and removed by or on behalf of the owners. A new structure, on a different foot print, is now under construction. A portion of the property is located in Flood Zone B. The elevation of the lot has been raised by four (4) feet and the footings of the building were constructed on the pre-existing elevation. The position of the construction has been moved forward approximately four (4) feet from the originally intended site as submitted to the Old King's Highway Regional Historic Commission. The property, located in a RB zone, is a nonconforming lot under 4-4.2 (1) in that it contains only 10,000 square feet of land. The original building thereon was a nonconforming building as defined 4-4.3. Pursuant to 4-4.3, that original building could have been physically altered or expanded as of right. However, the original building was demolished and removed. Significantly, the building had not been destroyed or damaged by fire, acts of nature or other catastrophe within the meaning of 4-4.6 (1). The new structure is not a re- establishment of a nonconforming building or an alteration or extension of an existing building but rather a totally new building. As a matter of law, upon the demolition and removal of the existing building, other than as the result of acts of nature or catastrophe, the nonconforming status was forfeited. Siegel v. Tainter, Land Ct Misc. No.: 177558 at 7 (1994) (enclosed), citing Angus v. Miller, 5 Mass. App. Ct. 470 (1977). Once the original building was demolished and removed, it became necessary for the owners to obtain a special permit to build a new structure on the nonconforming lot. They have not done so. As such, the mere existence of a new structure on the property without authority of special permit violates the zoning by-laws of the Town of Barnstable. Ralph Crossen,Building Commissioner Demand for Enforcement December 30, 1997 Page 3 B. Failure to conform to Old King's Highway Certificate of Appropriateness On or about October 8, 1997, the Old King's Highway Regional Historic District Committee issued a Certificate of Appropriateness for the "New Building"to be built by the Rudders. Mr. Joseph Dugas appeared at the hearing and expressed his reservations concerning the new construction, and particularly any loss of the view from the Dugas property, as well as the relationship between the new structure to the surrounding buildings and the street. It is now evident that the "new building" has been placed approximately four feet closer to Sunset Lane than was shown on the approved site plan. In addition, the elevation of the lot, as well as the elevation of the building, has been raised by four feet. The raise in the elevation of the lot is of particular concern to the Dugas property as it, as well as the neighboring properties, are subject to flooding in storms and it is anticipated that the change of topography will increase the burden to neighboring properties in floods. The change of location of the building forward, and the change of elevation of the property four feet higher, has the effect of blocking the view from the Dugas property. Mr. & Mrs. Dugas submit that the building permit issued must be in compliance with the Certificate of Appropriateness from the Old King's Highway Regional Historic District Commission and that any construction must be in compliance with the site plan upon which such Certificate of Appropriateness is issued. C. Failure to comply with Massachusetts State Building Code As noted previously, the elevation of the land surrounding the new building has been raised by four feet. In addition, the building elevation itself has been raised by four feet. The footings for the building were placed on the original grade. Not only is the soil at the original elevation inappropriate for the placement of footings for the building, but also the footings must be placed four feet below the original grade of the land under the Massachusetts State Building Code. 780 CMR 1205. As the elevation of the land and the building have been artificially altered, the placement of the footings is inconsistent with and in violation of the Massachusetts State Building Code. I Ralph Crossen,Building Commissioner Demand for Enforcement December 30, 1997 Page 4 D. Failure to obtain Conservation Commission permit Mr. & Mrs. Dugas believe that the building and the filling of the lot requires Conservation Committee approval. It appears that no application to fill the lot to raise the grade has has been obtained. Further, since the building"as built" now intrudes into the A-3 Flood Zone action by the Commission is warranted for the building. Accordingly, the building permit should be rescinded until all necessary approvals are obtained and complied with. E. back of Certified "As Built" plan We note that the "As Built' plan is not based on any engineering or measurements but is based merely on "knowledge and belief'. The building was never staked out. Legally, a certified plot plan is not based upon "knowledge and belief' but rather is based on scientific measurement. We suggest that the "as built"plan is inadequate to support any further construction on the property. F. Demand for Enforcement Mr. & Mrs. Dugas hereby demand that you enforce the Town of Barnstable Zoning By- Laws and the Massachusetts State Building Code and rescind the Building Permit issued on Lots 141 & 143, #36, Sunset Lane, Barnstable, immediately, that you issue a stop work order and further that you order that all construction done to date be removed. Very truly yours, GARNICK & SCUDDER, P.C. Gerald S. Garnick, Esq. Lois M. Farmer, Esq. Enclosure(s) cc: Joseph and Edith Dugas Richard & Joan Rudders COMMONWEALTH OF MASSACHUSETTS LAND COURT ' DEPARTMENT OF THE TRIAL COURT MISCELLANEOUS CASE NO. 177558 JOSEPH M. SIEPEL and CHRISTINE A. ABRAHAMSON, Plaintiffs i � V. r.- HENRY TAINTER, LESLIE ANN MORSE, THOMAS NEWTON, PHILIP LIVINGSTON, EDWARD STEWART, ROGER THURSTON and JAMES CECIL, AS THEY CONSTITUTE THE APPOINTED ZONING BOARD OF APPEALS FOR TIIE TOWN OF EASTHAM, KENNETH L. BATES, AS HE IS THE BUILDING INSPECTOR AND ZONING ENFORCEMENT AGENT FOR THE TOWN OF EASTHAM, LESLIE H. MORSE, JR. AND DONALD W. DELANEY, Defendants DXCISION GRANT=G SUMMARY JDDGMENT In this action filed under G. L. c . 40A §17, Plaintiffs Joseph M. Siepel. and Christine A. Abrahamson, (Siepel and Abrahamson) , appeal a decision by the Defendazit Zoning Board of Appeals (The Board) which ruled that the Town Building Inspector' s decision to lift his earlier "stop work" order was in error. The Board' s "- decision had the effect of preventing Siepel and Abrahamson from completing work under a building permit an a residential structure on their property at 95 Bay Road, Eastham (the "Property") . Siepel and Abrahamson also request a determination pursuant to G. L. c. 231A that the partially built house, which . replaced a cottage having lawful nonconforming status, retains that status, because the new structure is built entirely within the former structure`.s 1 footprint_ The "new" house is composed almost entirely of new materials aid incorporates, at most, one wall of the old structure, which was dismantled piece by piece during construction. The complaint is ill Lwo counts . Count I is the G. L. C. 40A 917 appeal, and Count II, the G,. L. c. 231A request for declaratory judgment , Siepel and Abrahamson now move for "Partial Summary Judgment on Count I1" , claiming as a matter of law that the legal non-conforming status of their cottage has not been lost through abandonment Defendant Kenneth L. Bates, the Town Building Inspector, and the Board have filed a memorandum in opposition which also contains a request for summary judgment in their favor nn both counts_ Tn addition, defendant Donald -W. Delaney has filed an opposition brief. The parties also submitted affidavits and answers to interrogatories to support their respective positions. The motions were heard July 28, 1994 , I rule as follows: The Building Inspector exceeded his authority when he lifted his "stop work" order because Plaintiffs � required a special P permit and finding under Section VI Paragraph C of the Eastham zoning Bylaw in order to secure a building permit for their project . Accordingly, summary judgment is granted 'in favor of Defendants on Count_ T of the complaint. With respect to Count 11, 1 find and rule that given the unique facts of this cafe !q , it cannot be said that the Plaintiffs' demolition was "voluntaxy" such that the property has lost its non-conforming status_ Accordingly, Plaintiffs must be afforded an opportunity to petition the Board for a special permit under Section VI Paragraph C of the 2 Bastham Bylaw. Alternatively, they may rebuild the old cottage to its original dimensions under Section VI Paragraph D, or apply for a variance, The facts are as follows : By deed dated April 12 , 1991 recorded with the Barnstable Registry of Deeds in Book 7500, at Page 33, Siepel and Abrahamson acquired the Property, upon which was located a one story, three bedroom residential dwelling described in some earlier deeds as a -"cottage" , and a single car garage. The property is approximately 75' by 1.00` with an overall area of 7. 500 square feet well shy of the Town' s current requirement for 40, 000 square feet in zoning district A, in which the Property is located. First_ estpblished as a separate lot. in 1915, the Property, together with the former "cottage" , predates Eastham zoning in that area, and was therefore legally non- conforming. As located on the Property, the rottage itself was non-conforming as to its front, rear, and one of the side set- backs.' Soon after acquiring the Property, Siepel and Abrahamson set about to find a way to improve the cottage and to renovate it into a dwelling suitable for year-round residence, containing a second story and a full basement. Mindful of the Property' s non- conforming status, they consulted, among others, a builder, David Fleming, who they had retained for the project, and an attorney 'The dwelling was set 16.5 feet back from Bay Road where 50 ' 1 feet is required; 20 .4 feet back from the southerly boundary where 30 feet is required and 16 .5 feet from the rear boundary where 30 feet is also required. The dwelling was set 44 . 6 feet from the northerly boundary where 30 feet is required. 3 I_ (who in turn conferred with then Eaetham Town Counsel) as to how the Plaintiffs might realize their plans without jeopardizing the Property's non -conforming status. Plaintiffs were advised that if construction was entirely within the cottage' s existing footprint the Property would not lose its non-conforming status . On November 4, 1991, David Fleming applied on Plaintiffs' behalf to the Building Inspector for a building permit. The application contains this notation at the bottom: "Removing Old House & Re-building [sic] with New" . On December 6, 1991 Fleming obtained a "foundation only" permit. followed on December 13 , 1991 by a full building permit indicating in the space provided, "Alter" (as opposed to the form' s other pre-printed choices to "Build" or "Repair") _ With the first permit in hand, Fleming had the cottage jacked up off its cinderblock foundation which was then dismantled to make way for a new poured concrete foundation in its place. The new foundation provides a full basement, is entirely within the footprint of the former cinderblock foundation and is, in fact, i smaller by several inches than the old foundation. A brand new flooring deck was then constructed upon the foundation and the cottage was dismantled cection by section contemporaneously with construction of a new house within the footprint of the old one. 'That emerged over the next few weeks was a dwelling having new walls, a new roof, built entirely of new materials (possibly excepting part of one wall) and complete with a new second story. 'There is some dispute as to whether or not all of the original cottage walls were demolished or whether one wall was temporarily laid on its side on the new deck, .subsequently .reinforced and incorporated into the new house. Resolution of I this disputed fact is not necessary to the outcome of the case. 6 x. Defendants Leslie H. Morse Jr. and David W. Delaney were concerned with the events unfolding at the Property, and complained to the Building Inspector, who an December 16, 1991 issued a "temporary stop-work order' . For uncxplained reasons, the Building Inspector reversed himself the next day and lifted the stop-work order. That action prompted an appeal to the Board by Morse and Delaney. Following a lengthy public hearing, the Board upheld the Defendants' appeal and filed its decision with the Town Clerk on March 20, 1992 . The decision ordered the Building Inspector to enforce the stop-work order, and instructed Szepel and Abrahamson to apply for a variance for the new building. In its decision, the Board also noted, "evidence exists that at some -point in time the entire structure was removed from the property" . This appeal under G.L. c. 40A 517 followed on April 8, 1992 . Before getting into the substance of their appeal, I note one jurisdictional point - that of Delaney' s and Morsels standing as aggrieved persons capable of appealing the Building Inspector' s action to the Board under G. L. c. 40A §6 . If neither party had standing in 1992 at the time Of their appeal, Lhe Bcdrd would Have been without authority to hear the appeal and its decision would therefore be a nullity, Chongris v. Board of Appeals of And ver, 17 i. Mass. APP. Ct. 999 (1984) . 5iepel and Abrahamson have I ' characterized the individual Defendants as "distant abutters" and have not challenged their standing as "persons aggrieved" . Because the presumption has gone unchallenged and unrebutted, it is deemed established for the purpose of this summary Judgment proceeding. 5 I I siepel and Abrahamson attempt to recast the issue here presented • as one of abandonment, rather than one involving demolition of a non-conforming structure. Abandonment analysis has generally been applied to non-conforming uses, see c.g. Derby Refining co, v. C 1sea, 407 Mass. 703 , 708 (1990) , rather than to non-conforming structures_ Plaintiffs cite and rely on volume 1, M.C.L,E. Massachusetts zoning Manual, at Chapter 6-22 where it is stated: The application of the abandonment proposal to non- conforming structures is problematic, It is difficult to see how a standing, non-conforming structure, even if vacant, could be abandoned since its mere presence evidences its continued existence. 1 do not disagree, but Plaintiffs' reliance on their lack of intent to abandon their non-conforming protection is misplaced. Even assuming Plaintiffs did not abandon their cottage, there is no question that they cauoed it to be demolished. The only remaining issue is whether. their demolition should be deemed "voluntary" , thereby eliminating the Property' s non-conforming protection, and leaving the Plaintiffs with no alternative but to demolish the new structure, or to apply for a variance , Generally, a non-conforming structure destroyed by natural ._• catastrophe, fire, accident or the like may be reconstructed or (' rebuilt, where allowed by local zoning regulations, so long as the is original building' s non-conforming nature is not increased to any appreciable degree. Berliner v, Feldt;an, 363 Mass . 767, 770, 775. (1973) ; L m4 el i.s v. Board of Anpeals of Marblehead, 17 Mass . App. j Ct . 962,, 964 (1983) . Section, VI Paragraph D of the East-ham. Zoning 6 Bylaw specifically authorizes repair or rebuilding of non- conforming- structures which have been- "damaged by fire or other cause to any extent" . fH E; But where a non-conforming structure is voluntarily demolished r to make room for a new or essentially new, structure, non- f` conforming statue is forfeited, even if the new building will not increase the non-conformity. Anclus v. Miller 5 Mass . A pp. Ct. 4 7-0 , 472 (1977) . _ In the instant case , while Plaintiffs did cause their cottage to be demolished, they did so under a duly issued building permit, after considerable consultation with the Building Inspector who sought, and apparently received, guidance an4 approval from Town Counsel. This is not a case where people have proceeded both in ignorance and defiance of the law and now seek a cue facts hle$aing for their misdeeds . To the contrary. In 1091. when the Building Inspector issued a building permit, the law was unclear as to whether one needed Board of Appeals- approval to alter a non- conforming structure iL such alterations did riot increase the structure' s "footprint" . subsequently, the Appeals court issued its decision in Goldhirsh. v. McNeaL , 32 Mars. App, Ct. 455 (1992) , which clarified that where proposed changes to a non-conforming structure increase the structure' s nonconformity, t the Boaz-d o- ' Appeals must determine that such changes are not substantially more detrimental to the neighborhood than the existing structure. Presumably, had the Eastham Building Inspector anticipated the substance of the Goldhirsh decision, he would have denied the 7 `z Plaintiffs' original application and directed them to apply to the Board of Appeals. I think that Plaintiffs should be afforded the opportunity to present their proposal to the Board. Likewise, the _ Board should be permitted to hear Plaintiffs' petition and determine whether the changes to Plaintiffs' new house increase the Property' s non-conformity and, if no, whether such Changes are substantially more detrimental to the neighborhood. Accordingly, the case is remanded to the Board for turther proceedings, consistent with this decision. The court will retain jurisdiction and afford a speedy hearing in the event of an appeal by either side following the Board' s decision. In any event, it the Board determines that Plaintiffs are not entitled to a Special Permit or a variance, Plaintiffs must be given a reasonable period of time in which to rebuild the cottage that thcy demolished to its original dimensions, except for the poured concrete foundation and basement that has been completed and which may remain. This order in no way implies that Plaintiffs ; are entitled to receive any other permits, including any required from the Board of Health, the local conservation commission or any other local authority, that may be necessary in connection with the maintenance, alteration or completion of the structure on the Property. Judgment accordingly. t rn Faith Scheier, Justice Dated: October 17, 1994 j , 8 i:' COMMONWEALTH OF MASSACHUSETTS 1 LAND COURT DEPARTMENT OF THE TRIAL COURT MISCELLANIEOUS CASE NO. 177559 JOSEPH M. SIEPEL and CHRISTINE A. ABRAHAMSON, Plaintiffs V. HENRY TAIN]TER, LESLIE ANN MORSE, THOMAS IEWTON, PHILIP LIVINGSTON, EDWARD STEWART, ROGER THURSTON and JAMES CECIL, AS THEY CONSTITUTE THE APPOINTED ZONING BOARD OF APPEALS FOR THE TOWN OF EASTHAM, KENNETH L. BATES, AS HE IS THE BUILDING INSPECTOR AIJD zo11ING ENFORCEMENT AGENT FGR THE TOWN OF BASTHAR, LESLIE H. MORSE, JR. AND DONA.LD W_ DELANEY, Defendants J'[l'DO ENT The motions for summary judgment by both parties have been argued and a decision of today' s date has been rendered, granting Defendants' motion on Count I and denying both parties, motions on Count II . In accordance with that decision, it is ORDERED and ADJUDGED that the decision of the Board of Appeals :. of the Town of Eastham dated March 11, 1991 overturning the Building Inspector' s action and reinstating a "stop-work" order With respect to Plaintiffs' property is hereby upheld and Plaintiffs, appeal is dismissed; and it is further ORDERED and Aj)Jt1DGED that Plaintiffs may petition the Board of Appeals for a Special Permit under Section VT Paragraph C or a variance and the case is hereby remanded to the Board for further proceedings to consider Plaintiffs' petition; and it is further ORDERED And ADJUDGED that the Court shall retain jurisdiction. �V ! By the Court . (Scheier, A 1 3�;.aT• ' I Attest: Charles W: Trambly, Jr. ; Recorder Dated: October 17, 1994 of WE A The Town of Barnstable • snie STAB , • 9� 9. ���' Department of Health Safety and Environmental Services ArED .�► Building Division 367 Main Street,Hyannis MA 02601 Office: 508-790-6227 Ralph Crossen Fax: 508-790-6230 Building Commissioner January 6, 1998 Garrick&Scudder,P.C. Attorneys at Law P. O.Box 398 Hyannis,MA 02601 RE: Property of Richard&Joan Rudders,Lots 141 & 143 Sunset Lane,Barnstable,MA Dear Sirs: I received your letter of December 30, 1997 and as you probably now know,we had just taken action at the time of your letter. A stop work order was issued on this property until final resolution with the Old Kings Highway. Your contention about the Building Code is factually wrong as stated,therefore I see no reason to go any further with it. Finally an as built,as submitted,is what the Town customarily accepts. We see no problem with this one. Sincerely, Ralph Crossen Building Commissioner RC:lb cc: Jim Quirk,Attorney at Law g980106a �,Vr L�,„�;rt•�it>< f' M'.yk a�. ^-,�'tir�a fi ti.�,tf `ir air. s,}�, ,d,, ��Y #,x1'9q u''�,e°���, ^i� ���wg'�" '1 y, ,��'��' . i,.' _ f1 �� � �ie`',.'Pomvmaourea/�o� umelA, HOME�MPROVEMENT,,CONTRACTO Re9istraton�110451 �� y Type g O6Qr : Expiration` 14/20/9& �RUSS ELL S}HAMLYMIIIV ;� - '` # � ,RUSSEL"-S' .,HAMLYN III BOX 816,114'SKERRY�RD` I4 mApMINISTRATO8' � �v� pxa .1 � S`DENNIS� ' � ✓/ie �omtnnoouu� o�✓�avvuc%uvelld ' 35624 T O,\' LI NSS: tJ�4 mince; 5 ��" !' A Fai- j 2 ``aaII tt 1 s a M `� = ,3r .JJ C Halll�i1 1s nvu•h e r ' P ..._. y LIP��� WHOM rv�4 . y 4� n l The Commonwealth of AfIIssaCllUSCtts ,rjl •.. ---- zj ;; • :-.-. �;_ Deptlrt»Iclr! of Indttrtrial.9cciticnts 1- Of/iceo//nvestlga!/ors 600 R askin,ton Street Boston. Ma.Y.Y. 02111 Workers' Compensation Insurance Affidavit ji�liFI' informatinn:, Please PRINT 1E,i61 r__.. _..-..•. name: location: 61N. phone I am a homeowner performing all work myself. I am a sole proprietor and have no one working in any capacity • .. -r .-.e�....-...��.s-•..._...........,,.-„-•��n.r.ur-s+�st�T•w�.n+/,'a'r,^�..r7T�...�+w.•��1.:���...•�..R..w.w..�.r+....•�.+-•-w.w..-..rr.ww.._-...__-..... I am an employer providing workers' compensation for my emplovees working on this job. comma, name: AI'f L lZAI All Ae012 iVG address: city: S .0/.1 A X-1 < i� .t� Phone ii• S'®�i 3 L X- —S�S 2 7 insurance co G/li- i /d A✓ /1v ; es/q /a J�I�G`• C U e Polio # k..,ef [I I am a sole proprjetor. general contractor, or homeowner(circle one) and have hired the contractors listed below who have the following workers' compensation polices: comnan• name: atitlress: sir`•: Phone 00- insur-ince cn. Holier a •f.::•�. Vim" -•-• =•Tt••_ -_ __ _l r'_'�:�::��1 iT"T^�w-..Sir •--TZ•r•..__ ..e..ti...�-Y -... comnarn name: address: Phone insurance co. policy 9 Attach additional sheet if necessary --'— --. '"�"" ';r _:r _-!i' :}� "�I'�-���•�w �"'�•� r��_ �"--_ � y�yc a. :—..+s. -- ---.. . —, --- :aue rr:emu•. Failure to secure cm-crage as required under Section 25A of NIGL 152 can lead to the imposition of criminal Penalties of a line up to 51.500.00 andiur une wears' imprisonment:ts well as civil penalties in the form of a STOP NVORK ORDER and a fine of 5100.00 a day against me. I understand that a cop} of this statentent maw be forwarded to the OMcc of Investigations of the D1A for covcragc verification. l do hereht•certifi-under the pains and penaiues of perjuty that the information prorided above is true and correct Signature Date :z�� Print name lz,�e A/-LZ. �/%t/ /e Phone# .3 e74P' official use unh do not twritc in this area to be cumPlctcd by sin or town otTicial city or town: permit/license it ritiuilding Department Licensing board t check if immediate response is required �Seleetmen's Office t !-- C31lc21th Department phone#t• rnOtltcr !% contact person: ' Information and Instructions Massachusetts General Laws chapter 152 section 25 requires all emplovers to provide workers* compensation for th employees. As quoted from the "law". an empl(tree is defined as every person in the service of another under any contract of hire, express or implied. oral or written. An emplurcr is defined as an individual, partnership, association. corporation or other legal entity• or ally two or me the foregoing en�ga�ged in a joint enterprise. and including; the legal representatives of a deccasetl employer, or the receiver or inutce of an individual • partnership. association or other legal entity, employing employees. However ti owner of a dwelling house having not more than three apartments and who resides therein. or the occupant of the dwelling house of another who employs persons to do maintenance , construction or repair work on such dwelling ttc or oil the ;wounds or building appurtenant thereto shall not because of such employment be deemed to be an empioyc MGL chapter 152 section 25 also:.states that even* state or, local licensing agency shall withhold the issuance or rene��•al of a license or permit to operate a business or to construct buildings in the commonwealth for any applicant who itas not produced acceptable evidence of compliance with the insurance coverage required. Additionally, neither the commonwealth nor any of its political subdivisions shall enter into any contract for the performance of public work until acceptable evidence of compliance with the insurance requirements of this chapter been presented to the contracting authority. Applicants Please fill in the workers- compensation affidavit completely, by checking the box that applies to your situation and as all affidavits may be submitted to the Department of supplying_ company names. address and phone numbers 1 Industrial Accidents for confirmation of insurance coverage. Also be sure to sign and date the affidavit. The affidavit should be returned to the city or town that the application for the permit or license is being requested. not tite Department of Industrial Accidents. Should you have any questions regarding the "law' or if you are require. to obtain a workers' compensation policy. please call the Department at the number listed below. City or-1•owns Please be sure that the affidavit is complete and printed legibly. The Department has provided a space at the bottom c the affidavit for you to fill out in the event the Office of Investigations has to contact you regarding the applicant. Plc be surethe permit/license number which will be used as a reference number. The affidavits may be returned to fill �n 1 the Department by mail or FAX unless other arrangements have been made. The Office of Investigations would like to thank you in advance for you cooperation and should you have any questic please do not hesitate to :give us a call. �...y,.,�.+.._ ..._ .�-v.... ..�..w�»...•.••.-,..r.—..vim-z��.... _....�r.r�w.w•�+_.......nwrv. ... _• . . .. :ti'. .. The Department's address. telephone and fax number:. The Commonwealth Of Massachusetts 5" Department of Industrial Accidents Office of Investigations 600 Washington Street Boston,Ma. 02111 fax #: (617) 727-7749 .,t,,,,,�u• rri'T) '777-•19(1(1 ovt 4116_ 409 or 375 l / : 0 F � l Garnick & Scudder, P.C. ATTORNEYS AT LAW 32 MAIN STREET POST OFFICE BOX 398 HYANNIS,MASSACHUSETTS 02601 { GERALD S.GARNICK (508)771-2320 LOIS M.FARMER JOYCE W.SCUDDER (508)771-3304 PAUL J.ATTEA December 30, 1997 CERTIFIED MAIL NO.: P 015 558 452 RETURN RECEIPT REQUESTED AND BY PERSONAL SERVICE Ralph Crossen, Building Commissioner Town of Barnstable 367 Main Street Hyannis, MA 02601 RE: Property of Richard & Joan Rudders Lots 141 & 143 Sunset Lane Barnstable REQUEST FOR ZONING AND BUILDING CODE ENFORCEMENT Dear Mr. Crossen: We represent Joseph F. Dugas and Edith W. Dugas with regard to the ongoing construction on the property of their abutters Richard & Joan Rudders at Lots 141 & 143, #36, Sunset Lane, Barnstable. Mr. &Mrs. Dugas are direct abutters with their residence at#30, Lots 135 & 137, Sunset Lane. This is a Request for Enforcement of the Zoning By-Laws of the Town of Barnstable and the Massachusetts State Building Code with regard to the construction at Lots 141 & 143 Sunset Lane pursuant to G.L. c. 40A, sec. 7. We submit that the construction is in violation of the Town of Barnstable Zoning By-Laws and the Massachusetts State Building Code in numerous and diverse ways, and is in contravention of the Certificate of Appropriateness issued by the Old King's Highway Regional Commission. Mr. & Mrs. Dugas demand that the building permit be rescinded and that you issue a cease and desist order as to such construction, and that all construction performed to date be ordered Ralph Crossen,Building Commissioner Demand for Enforcement ':';'' December 30, 1997 Page 2 removed forthwith. Y; A. Failure to obtain Zoning Board of Appeals approval The property at issue contains approximately 10,000 square feet of land in an RB (one acre lot size) zone and until November 1997 contained a single family� g Y residence. The existing structure, including foundation, was in habitable condition and indeed was inhabited. However, on or about November 17, 1997, the building was totally demolished and removed by or on behalf of the owners. A new structure, on a different foot print, is now under construction. A portion of the property is located in Flood Zone B. The elevation of the lot has been raised by four(4) feet and the footings of the building were constructed on the pre-existing elevation. The position of the construction has been moved forward approximately four (4) feet from the originally intended site as submitted to the Old King's Highway Regional Historic Commission. The property, located in a RB zone, is a nonconforming lot under 4-4.2 (1) in that it contains only 10,000 square feet of land. The original building thereon was a nonconforming building as defined 4-4.3. Pursuant to 4-4.3, that original building could have been physically altered or expanded as of right. However, the original building was demolished and removed. Significantly, the building had not been destroyed or damaged by fire, acts of nature or other catastrophe within the meaning of 4-4.6 (1). The new structure is not a re- establishment of a nonconforming building or an alteration or extension of an existing building but rather a totally new building. •:�-a As a matter of law, upon the demolition and removal of the existing building, other than as the result of acts of nature or catastrophe, the nonconforming status was forfeited. Siepel v. Tainter, Land Ct Misc. No.: 177558 at 7 (1994) (enclosed), citing AngUs v. Miller, 5 Mass. App. Ct. 470 (1977). Once the original building was demolished and removed, it became necessary for the owners to obtain a special permit to build a new structure on the nonconforming lot. They have not done so. As such, the mere existence of a new structure on the property without authority of special permit violates the zoning by-laws of the Town of Barnstable. r= Ralph Crossen,Building Commissioner Demand for Enforcement December 30, 1997 Page 3 B. Failure to conform to Old King's Highway Certificate of Appropriateness 1 w On or about October 8, 1997, the Old King's Highway Regional Historic District Committee issued a Certificate of Appropriateness for the "New Building" to be built by the Rudders. Mr. Joseph Dugas appeared at the hearing and expressed his reservations concerning the new construction, and particularly any loss of the view from the Dugas property, as well as the relationship between the new structure to the surrounding buildings and the street. It is now evident that the "new building" has been placed approximately four feet closer to Sunset Lane than was shown on the approved site plan. In addition, the elevation of the lot, as well as the elevation of the building, has been raised by four feet. The raise in the elevation of the lot is of particular concern to the Dugas property as it, as well as the neighboring properties, are subject to flooding in storms and it is anticipated that the change of topography will increase the burden to neighboring properties in floods. The change of location of the building forward, and the change of elevation of the property four feet higher, has the effect of blocking the view from the Dugas property. ;;, Mr. & Mrs. Dugas submit that the building permit issued must be in compliance with the Certificate of Appropriateness from the Old King's Highway Regional Historic District Commission and that any construction must be in compliance with the site plan upon which such Certificate of Appropriateness is issued. I � C. Failure to comply with Massachusetts State Building Code As noted previously, the elevation of the land surrounding the new building has been raised by four feet. In addition, the building elevation itself has been raised by four feet. The footings for the building were placed on the original grade. Not only is the soil at the original elevation inappropriate for the placement of footings for the building, but also the footings must be placed four feet below the original grade of the land under the a: Massachusetts State Building Code. 780 CMR 1205. As the elevation of the land and the building have been artificially altered, the placement of the footings is inconsistent with and in violation of the Massachusetts State Building Code. E�i .j =a Ralph Crossen,Building Commissioner Demand for Enforcement December 30, 1997 Page 4 i I j D. Failure to obtain Conservation Commission permit Mr. &Mrs. Dugas believe that the building and the filling of the lot requires Conservation Committee approval. It appears that no application to fill the lot to raise the grade has has been obtained. Further, since the building"as built" now intrudes into the A-3 Flood Zone action by the Commission is warranted for the building. Accordingly, the building permit should be rescinded until all necessary approvals are obtained and complied with. E. Lack of Certified "As Built" plan We note that the "As Built' plan is not based on any engineering or measurements but is based merely on "knowledge and belief'. The building was never staked out. Legally, a certified plot plan is not based upon "knowledge and belief' but rather is based on scientific measurement. We suggest that the "as built"plan is inadequate to support any further construction on the property. F. Demand for Enforcement Mr. & Mrs. Dugas hereby demand that you enforce the Town of Barnstable Zoning By- Laws and the Massachusetts State Building Code and rescind the Building Permit issued on Lots 141 & 143, #36, Sunset Lane, Barnstable, immediately, that you issue a stop work order and further that you order that all construction done to date be removed. i Very truly yours, 1, GARNICK & SCUDDER, P.C. Gerald S. Garnick, Esq. Lois M. Farmer, Esq. Enclosure(s) cc: Joseph and Edith Dugas >: Richard & Joan Rudders . COMMONWEAL,ru OE' MASSACHUSETTS ' LAND COURT - DEPARTMENT OF THE TRIAL COURT i :j MISCELLANEOUS CASE NO, 177558 JOSEPH M. SIEPEL and CHRISTINE A. ABRAHAMSON, Plaintiffs V. i HENRY TAINTER, LESLIE ANN MORSE, THOMAS NEWTON, PHILIP LIVINGSTON, EDWARD STEWART, ROGER THURSTON and JAMES CECIL, AS THEY CONSTITUTE THE APPOINTED ZONING SOARU OF APPEALS FOR TIIE TOWN OF EASTHAM, KEMIETH L. BATES, AS HE IS THE BUILDING INSPECTOR AND ZONING ENFORCEMENT AGENT FOR THE TOWN OF EASTHAM, LESLIE H. MORSE, JR. AND DoNAL.D W. DELANEY, Defendants DECISION GRANTING SUbBLUY ►Ii3DGMENT In this action filed under G. L. r_ , 4nA §17, Plaintiffs Joseph M. Siepel and Christine A. • Abrahamson, (Siepel and Abrahamson} , appeal a decision by the Defendant Zoning Board. Of: Appeals (The Board) which ruled that the Town Building Inspector' s decision to lift his earlier "stop work" order was in error. The Board' s idecision had the effect of preventing Siepel. and Abrahamson from completing work under a building permit on a residential structure oa their property at 95 Bay Road, Eastham (the "Property") . Siepel and Abrahamson also request a determination puxeuant to G. L. c, 231A that the partially built house, which . replaced a cottage n:` . having lawful nonconforming status, retains that status, because the new structure is built entirely within the former structure's i 1 � I tvi • R_ footprint. The "new" house is composed almost entirely of new materials and incorporates, at most, one wall of the old structure, jlwhich was dismantled piece by piece during construction. 'I The complaint is ill Lwo counts . Count Z is the G. L. c, 40A 517 appeal, and Count II, the G.. L. c. 231A request for declaratory judgment. Siepel and Abrahamson now move for . "Partial Summary Judgment on Count 11" , claiming as a matter of law that the legal non-conforming status of their cottage has not been 9 lost throe h •1 _ j^ abandonment Defendant Kenneth L. Bates, the Town Building 'y'� Inspector, and the Board have filed a memorandum in opposition MI yt 9 which also contains a request fOr summer�' 7ud met in their favor I 9ri nn hnth counts_ Tn addition, Defendant Donald-W. Delaney has filed an opposition brief. The parties also submitted affidavits and answers to interrogatories to support their respective positions, The motions were heard duly 28, 1994 . I rule as f allow s: The Buil ding i • �' n T ns 5 ectcax• ex ceeded xGeeded his authority when he lifted his estop work" ardor because Plaintiffs a required a special 1; P permit and finding under Section VI Paragraph C of the Eascham zoning Bylaw in order to secure a building permit for their project . Accordingly, summary judgment is granted in favor of Defendants on Count_ T of the Complaint , with respect to Count II, 1 find and rule that given the unique facts of this case, it cannot be said that the Plaintiffs' demolition was "voluntary,, � such that the Property has lost its non-conforming status. Accordingly, Plaintiffs must be afforded an opportunity to My Pp y petition p permit under Section VI Paragraph C of the the Board for a special x' ! 2 e i EasCham Bylaw. Alternatively, they may rebuild the old cottage to its original dimensions under section VT Paragraph D, Or apply for a variance, The Facia are as Follows : By deed dated April 12 , 199, recorded with the Barnstable Registry of Deeds in Book 7500, at Page 33, Siepel and Abrahamson acquired the Property, upon which was located a one story, three bedroom residential dwelling described in some earlier deeds as a "cottage1l , ' and a single car <� garage. The property is approximately 75' by 100 ` with an overall area of 7, 500 square feet, well shy of the Towns current requirement for 40, 000 s� guars feet in zoning district A, in which the Property is located. Firsr_ estitblished as a separate lot in 1915, the Property, together with the former "cottage" , predates Eastham zoning in that area, and was therefore legally non- conforming. As located on the Property, the cnts-_.age itself was non-conforming as to its fzbnt, rear, and one of the side -set- backs-' ' Soon after acquiring the Property, Siepel and Abrahamson set about to find a way to improve the cottage and to renovate it into a dwelling suitable for year-round residence, containing a second story and a full basement. Mindful of the property' s non- conforming status, they consulted, among others, a builder, David Fleming, who they had retained for the project, and an attorney j 'The dwelling was set 16.5 feet back from Say Road where 50 feet is required; 20 .4 feet back from the southerly boundary where 30 feet is required and 16.s feet from the rear boundary where 30 feet is also required. The dwelling was set 44 , 5 feet from the northerly boundary where 30 feet is required. 3 1 . µs , N (who in turn conferred with then Eastham Town Counsel) as to how the Plaintiffs might realize their plans without jeopardizing the `f Property's non-conforming status. Plaintiffs were advised that if construction was entirely within the cottage' s existing footprint ;A the Property would not lone ita. non-conforming statims . On November 4, 1991, David, Fleming applied on Plaintiffs' =? behalf to the Building Inspector for a building permit. The application contains ,this notation- at the bottom; "Removing -Old` House & Re-building [sic] with New" . On December 6, 1991 Fleming obtained a "foundation only" permit. followed on December 13 , 1991 .5 by a full building permit indicating in the space provided, "Alter" (as opposed to the form' s other pre-printed choices to "Build" or "Repair") _ With the first permit in hand, Fleming had the cottage jacked up off its cinderblock foundation which was then dismantled to make way for a new poured concrete foundation is its place. The new foundation provides a fall basement, is entirely within the >� footprint of the former cinderblock foundation and is, in fact, smaller by several inches than the old foundation. A brand new flooring deck was then constructed upon the foundation and the cottage was dismantled section by section contemporaneously with construction of a new . house within the footprint of the old one, What emerged over the next few weeks was a dwelling having new walls, a new roof, built entirely of new materials (possibly excepting part of one wall) ' and complete with � a now second story. 'There is some dispute as to whether or not all of the { original cottage walls were demolished or whether one wall was temporarily laid on its side on the new deck, subsequently .3 reinforced and incorporated into the new house. Resolution of this disputed fact is not necessary to the outcome of the case. s �1 �� I :-3 { Defendants Leslie H. Morse Jr. and Da vid W. Delaney were concerned with the events unfolding at the Property, and complained to the Building Inspector, who on December 16, 1991 issued a "temporary stop-work order" . For unexplained reasons, the Building Inspector reversed himself the next day and lifted the stop-work j p-work order. That action prompted an appeal to the Board by Morse and Delaney. Following a lengthy public hearing, the Board upheld the Defendants, appeal and filed its decision with ;the Town Clerk on (' March 20, 1992 . The decision ordered the Building Inspector to Y enforce the stop-work OX-dur, and instructed Siepel and Abrahamson to apply for a variance for the new building. In i ;j is decision, the Board also Hated, 'evidence exists that at some point in time the entire structure was removed from the propertyu . This appeal under G.L. c. 40A §17 followed on April s, 1992 . Before getting into the substance of their appeal, I note one jurisdictional point - that. of Delaney' s and Marse' e standing as aggrieved persons capable of appealing the Building lr.spec:tvr' s action to the Board under G. L. C. 40A §8 . Y£ neither party had standing in 1992 at the time of their appeal, Lhe gourd would have been without authority to hear the appeal and its decision would therefore be a nullity, Qhon ris v. Doazd sf Appeals of And ver 7 f Mass. Agp. Ct. 999 (1984) . 5iepel and Abrahamson have characterized the individual Defendants as "d.i.5tant abuttern" and have not challenged their standing as "persons aggrieved" . Because the presumption has gone unchallenged and unrebutted, it is deemed established for the purpose of this Summary Judgment proceeding. I 9 d siepel and Abrahamson attempt to recast the issue here presented ' as one of abandonment, rather than one involving "I demolition of a non-conforming structure. Abandonment analysis has generally been applied to non-conforming uses, see e.g. Darby Refining co. v. Chelsea, 407 Mass. 703 , 708 (1990) , rather than to non-conforming structures_ Plaintiffs cite and rely on Volume 1, M.G.L,E. Massachusetts Zoning Manual, at Chapter 6-22 where it is stated: The application of the abandonment proposal to non- conforming structures is problematic, It is difficult to see how a standing, non-conforming structure, even if _a vacant, could be abandoned since its mere presence evidences its continued existence, i do not disagree, but Plaintiffs' reliance on their lack of intent to abandon their non-conforming protection is misplaced. Even assuming Plaintiffs did not abandon their cottage, there is no question that they caused it to be demolished. The only remaining jasue is whether their de=l.ition should be deemed "voluntary" , ' thereby eliminating the Property' s non-conforming protection, and leaving the Plaintiffs with no alternative but to demolich the new structure, or to apply for a variance , Generally, a non-conforming structure destroyed by natural .�il catastrophe, fire, accident or the like may be reconstructed or rebuilt, where allowed by local zoning regulations, so long as the original building' s non-conforming nature is not increased to any appreciable. degree. Berliner v, Feldman, 363 Mass . 767, 770, 775. w!� (1973) ; Lomelis v. Heard of Appeals of MaKblehead, 17 Mass . App. Ct . 962 ,. 964 (1983) . Section VI Paragraph D of the Eastham Zoning �\ 6 f �S:T I is - Bylaw specifically authorizes repair or rebuilding of non- {,.:,: ;. conforming structures which have been- '-damaged damaged by fire or other 3.-1 _ cause to arty extent" . But where a non-conforming structure is voiui�taril demo Y demolished to make room for a new or essentially new, structure, non- conforming at is forfeited, even if the riew building will not increase the non-conformity, A V_qus v, 1Zer 5 Mass . A pp. Ct. 470 , 472 (1977) . In the instant case, while Plaintiffs did cause their cottage to be demolished, they did so under a duly issued building permit, y`1 after considerable consultation with the Building ilding Inspector who sought, and apparently received, guidance and. approval from Town Counsel. This is not a case where peop a have proceeded hoth in ignorance and defiance of the law and now seek a de facto bles$ing for their misdeeds , To the contrary. In 1991, when the Building Inspector issued a building permit, the law was unclear as to whether one needed Board of Appt;als' approval Co alter a pan- conforming structure of such alterations did not increase the 13tructure' 3 "footprint" . subsequently, the Appeals Court issued ' its decision in 9Q1dbirsh v. McNeal , 32 Mass. App. Ct. 455 (1992) , ==a which clarified that where proposed changes to a non-conforming structure increase the structure' s nonconformity, the Boaz-d of Appeals must determine that such changes are not substantially more ...' detrimental to the neighborhood than the existing structure. :- Presumably, had the Eastham Building Inspector anticipated the Y` SubSCd11CC of the ;oldhirsh decision, he would have deliied the { 7 " I its ti` } Plaintiffs' original application and directed them to apply to the Board of Appeals. I think that Plaintiffs• should be afforded the opportunity to present their proposal to the Board. Likewise, the Board should be permitted to hear Plaintiffs' petition and determine whether the changes to plaintiffs' new house increase the Property' s non-conformity and, if so, whether such changes are substantially more detrimental to the neighborhood. Accordingly, the case is remanded to the Board for further ;. proceedings, consistent with this decision. =, The Court will retain jurisdiction and afford a speedy hearing in the event of an appeal by either side following the Board' s decision. In any event, if the Board determines that Plaintiffs are not entitled to a Special Permit. or a variance, Plaintiffs must be given a reasonable period of time in which to rebuild the cottage that they demolished to its original dimensions, except for the poured concrete foundation and basement that has been completed and which may remain. This order in no way implies that plaintiffs are entitled to receive any other permits, including any required from the Board of Health, the local conservation commission or any other local authority, that may be necessary in connection with the maintenance, alteration or completion of the structure on the Property. Judgment accordingly. Faith Scheier, Justice Dated: October 17, 1994 i COMMONWEALTH OF MASSACIfUSETTS l LAND COURT DEPARTMENT OF THE TRIAL COURT MISCELLANEOUS CASE NO. 177558 JOSEPH N. SIEPEL and CHRISTINE A. ABRAHAMSON, Plaintiffs V. HENRY TAINTER, LESLIE..ANN MORSE, THOMAS NEWTON, PHILIP LIVINGSTON, EDWARD STEWART, ROGER THURSTON and JAMES CECIL, AS THEY CONSTITUTE THE APPOINTED ZONING BOARD OF APPEALS FOR THE TOWN OF EASTHAM, KENNETH L. BATES, AS HE I8 THE BUILDING INSPECTOR AND ZONING ENFORCEMENT AGENT FOR THE TOWN OF EASTHAR, LESLIE H. MORSE, JR. AND DPNALD V1_ DELANEY, Defendants The motions for summary judgment by both parties have been argued and a decision of today' s date has been rendered, granting Defendants' motion on Count •I and denying both parties( motions on Count II . In accordance with that decision, it i.s ORDERED and ADJUDGED that the decision of the Board of Appeals of the Town of Eastham dated March ii, 1991 overturning the Huildin� Ynspectorrs ' action and reinstating a estop-work" order With respect to Plaintiffs` property is hereby upheld and Plaintiffs , appeal is dismissed, and it is further ORDERED and AL7JCMGED that Plaintiffs may petition the Board of 4peals for a Special Permit under Section VT Paragraph C or a variance and the case is hereby remanded to the Board for further proceedings to consider Plaintiffa � petition; and it is further ORDERED and ADJUDGED that the Court shall retain jurisdiction, By the Ccurt . (Scheier, Attest: 1 Charles W: 'Troinbly, ,Tr. Recorder Dated: -October 17, 1994 W,4 t7 i a TO c{�WN OF A STABLE DEPARTMENT OF HEALTH SAFETY AND ENVIRONMENTAL SERVICES BUILDING DIVISION STOP WORK THIS STRUCTURE AND/OR PREMISES HAS BEEN INSPECTED AND THE FOLLOWING VIOLATIONS OF THE BUILDING CODE AND/OR ZONING ORDINANCE HAVE BEEN FOUND: 1) a�`V 2> f�jv\ 3) 1? L A Iy EV.Ryc&'Gp a) VJ L C d YOU ARE HEREBY NOTIFIED THAT NO ADDITIONAL WORK SHALL BE UNDERTAKEN UPON THESE PREMISES, OR THE PREMISES OCCUPIED UNTIL THE ABOVE VIOLATIONS ARE CORRECTED. ANY PERSON REMOVING THIS NOTICE WITHOUT PROPER AUTHORIZATION SHALL BE LIABLE TO A FINE OF NOT LESS THAN FIFTY, NOR MORE THAN ONE HUNDRED DOLLARS. Address s� Date 12 Building A ' . + BRIDGE BRIDGE $TRIP-TAC� $TRIP-TAC PRESSURE PRESSURE SENSITIVE SHEET SENSITIVE SHEET PRODUCTS PRODUCTS Kimberly-Clark AL Kimberly-Clark t_ Brown-Bridge BROWN- Brown-Bridge AL . .. BRIDGE . �. Ac� r $TRIP-TAC* s . PRESSURE ELT SENSITIVE SHEET PRODUCTS r i Kimberly-Clark ,-Bridge . BROWN- Brown-Bridge - BROWN- BRIDGE BRIDGE d �. L %f t _ PHILBROOK ENGINEERING & 107 BEACH STREET DENNIS, MA 02638 C O N ST R U CT I O N 1-508.385-8682 ENGINEERING DESIGN • CONSTRUCTION INSPECTIONS • BUILDING, ALTERATIONS & RENOVATIONS 10 December 1997 Town of Barnstable Attn: Mr. Richard Stevens Building Inspector Barnstable, Massachusetts 02601 Reference: Footings & Foundation Bearing 30 Sunset Avenue, Barnstable, MA Dear Sir: I conducted an investigation of the in-situ soil materials and new concrete footings and foundation at the above location for Russ Hamlyn, Builder, to determine their existing conditions . In accordance with the State Building Code this letter shall serve as documentation for satisfactory use Of the in-place foundation provided the following construction modifications are completed. The foundation along w/ these items will be suitable for the con- struction of the wood framed garage and store areas . The roof can be either stick-built or wood truss . Observations : m The concrete foundation consists of an 8"x 310" wall on an 8"x 16" strip footing. Total height = 44" . o The end wall (South end) is eccentrically placed along one side of the strip footing. ® Depth of excavation along the end wall is shallow; rang- ing from 10" to 20" and in places it is barely below the topsoil gradient. ®. The cut (and in-ground depth) is greater across the rear and front where the foundation approaches the full height step downs . * Additional concrete has been placed in front and beneath the leading edge of the garage strip footings. Commentary: Most of the short wall foundation construction will be satisfactory once the backfill is installed as their subgrade bearing soils are non-frost susceptible and the fill height will exceed 36" (minimum Code depth is 18" for clean, granular .fills) . The entire South end wall is not satisfactory for 3 reasons . One; the eccentric placement of the foundation wall overloads the 1 t t PHILBROOK ENGINEERING & 5 CONSTRUCTION 107 BEACH STREET DENNIS,MA 02638 1.508-385.8682 footing which could fail by rotation (uneven settlement) . As most of this wall is in the garage there is no wood deck which would normally provide some lateral restraint against rotation. Two; additional concrete work to increase frost depth has acted to further destabilize the bearing when it was placed along and under only one side. Three; the depth of the excavation in some places barely exceeds the depth of the topsoil . This leaves the actual bearing capacity of the subgrade soils along this line suspect as there is evidence of some topsoil contamination and the top of the subgrade layer looks quite loose (uncompacted) . Remedial Repair Work: Install 5 equally spaced 10" deep x 3 ' 0" square spread footings beneath the existing South wall and its footings . The 3' 0" wall will serve as an unreinforced grade beam spanning over these footings . Undercut the wall at both ends and space the 3 remaining interior pads at about 9' 0" o/c. Remove the added concrete across the front of the wall but leave intact the original strip footing. Formed in-place footings are allowed but rod and slightly over-pour the concrete to ensure full pene- tration and contact w/ the underside of the existing strip foot- ings. After backfill shape all grades to pitch water away from the foundation wall. Along this line it will come naturally as the existing topography at the lot line is considerably lower. The following soil determination was made: ® USCS Type Classified - SP/SC (loose, soft yellow sand) State Building Code Material Class - 8/9 • Soil Bearing (allow) - 1, 100 lb/sq ft s No ground water levels are present. This provides a bearing factor of safety in excess of 1 .5 for the South foundation wall based upon projected design loads (design notes attached) . Respectfully submitted, _1_' VZnX„Pvn c cl_ T. VARNUM PHILBROOK, P.E. as: inclosures 2 PHILBROOK a ENGINEERING FIELD REPO RTIWORKSH EET ! Project No: P91" O 4 107 GEra6.MA 02878 1--------------------- I Sheet No: of GENERAL DESCRIPTION Narrative: Review in-situ soil conditions and construction needs for load ---------- capacities on existing cast-in-place footings supporting non- symetrical short concrete foundation walls; garage gable end Client: Russ Hamblin, Builder 398-8259 Location: 30 Sunset Avenue, Barnstable, MA SPECIAL CONSIDERATIONS aaa , 000 During foundation construction the excavation for the garage end was not dug quite deep enough. Placement of the footings and short foundation wall will not allow for presumptive frost protection. Further, due to some misalign- ment the garage gable foundation wall (South side) is eccentrically bearing along the outside edge of the strip footing. An attempt to increase frost protection resulted in an underdug condition inline w/ and directly below Zthis off-center foundation wall. Z DESIGN CONSIDERATIONS General: Check for adequate bearing capacity. Provide stable bearing at -------- below grade depth for foundation loadings. Loads S Loadings: Unless specifcally noted the following apply. ----------------- Live Loads SBC Location #/sq ft Dur Note ---------------------------------------------•------------------------ note - slab in garage so lst Floor 40 1.00 Slab no floor load. The 2nd Floor 30 1.00 o/s walls bear thru Attic 20 1.00 Storage but no lateral wall Snow - m 7/12 25 1.15 Zone - 1 tie at sill plates Wind - Ref Pres = 21 1.33 Zone - 3 Exp - C/D Dead Loads SBC Location #/sq ft Dur Note ---------------------------------------------•------------------------ Concrete Floor 50 1.00 Wood Floor 15 1.00 2x10 @ 16" o.c. 3/4" & Finish Attic 10 1.00 Partitions: 4&6 12 1.00 Roof 7 1.15 rd ^ 10 before DL&W SC 8" Grouted Block 85 Placed Concrete 150 lb/cub ft h Misc or Comments: ----------------- Loading 'X'-section of framed gable construction. Check existing foot- ing design review and capacity check for bearing. Check/Provide for frost and water protection @ footing level P82-FRW-7 PHIL15ROOK I, ENGINEERING FIELD REPORTMORKSHEET Project No: P9 It"RpA STREET ,E;�,,� — -- -Sheet---No:Z"- - DESIGN CONSIDERATIONS cont'd ------------------------------ Description: 1-1/2 Story Wood Frame Garage w/ Utility space to rear. Slab- ------------ on-grade and crawl space w/ concrete floor & dust cap. Location: . 30 sunset Avenue, Barnstable, MA Soil Data: Site Plan or Boring Log available: NO - from Previous Work P86-26 A« '000' Direct Observation: YES 4 DEC 1997 USCS = SP/SC at bearing depths, loose or soft yellow sand boa Specifics: Br(allow) _ _1,000 lb/sq ft w/ allowable increases eIncreases allowed: _10_% for ftgs > 110" not taken, too narrow _0_% for depths > 110" 1 increase used z Pressures: Active = _.30_ coef. (Ac) Passive _250_ lb/sq ft/ft depth Friction = _.40_ coef. (Fc) equiv. fluid pres. Density (sat) = _130_ lb/cu ft ( s) 40-45 lb/cu ft Design Considerations Requirement --------------------- ------------- sliding (Lateral Thrust) W(Fc) >-- 1.15 (T) Settling (Vertical Thrust) Br(allow) >= 1.15 (W/A) Additional Considerations ------------------------- Unbalanced fill height = NONE in garage, 216" in crawl Backfill - sloped away from Garage; pitch will exceeds 1/8" per 1101, All grading will have a positive slope Water table height above footer base = NA Frost Protection Requirements - OK - non-frost susceptible and water management; gutters, leaders and positive -grading Observations - Loamy-sand in Medium state is overlay topsoil. At the -------------- rear of the garage foundation penetration into the sub- grade is barely developed, some contamination present DESIGN ANALYSIS Sb(allow) = Br(allow) x Depth Adjustment of 110" 1,000 lb/sq ft x 1.2 = 1,200 lb/sq ft (note 6th ed sBC Range Class 8 = <1 ton/sq ft allowable P82-FRW-7 PHILBROOK pq ENGINEERING 'FIELD REPO RTIWORKSHEET ! Project No: 1 91^8 ISM" --1------------------- T.L-- ------- o�M,+-o�-- — -- Sheet--_Na-- -----of----- ----- +-soeaasaeez ��J1Ca �N/a'LyS i} ,a�►� 'D 3'U ._.._----.._---- 3 b` n L laoo LwL kA c 15 + 12 a t 14 ►'L .4 31 1 ) L1 L w t: = 1 W�Z 3 0 7-5 1.3-3 Z ti 5 Z On„ LjTZ./ = Qi6 frz ��100 - lug G 0" Lj)t f cis i OVT .M- 0 tY1 QU'1t1L 1. 33 - ►�� 6SU 3 �S 1 )0I5 ro,� ` ZP5 rn, ,,j NG v��o c,+aS.f rJ c1 �pcAvtt, of ,toG'ss's7 P82-FRW-7 4 PHILBROOK p i , aENGINEERING FIELD REPORTMIORKSHEET Project No: r 9�'g I-OMO c M-5 Sheet No: `� of DENN45.iM 02678 L____ . N/ ` 1,o rJv ��� U � S 0 _ '4-- a Z 8 0 PST G �jN�C 1 . Z W 17 !a 0 � � ���D OU # 10 2� x e-a l o 'l x 0�10 `jr 11 ) c L.I u � 15 '/� c�R+Ke>E f-a-a- I a d 0) .► C, i P82-FRW-7 t Application to Old Kinds Highway Regional Historic District Committee -• � 1— 1 in the Town of Barnstable for a CERTIFICATE OF APPROPRIATENESS Application is hereby made, iri triplicate, for the issuance of a Certificate of Appropriateness under Section 6 of Chapter 470, Acts and Resolves of Massachusetts, 1973, for proposed work as described below and on plans, drawings or photographs accompanying this application for: CHECK CATEGORIES THAT APPLY: 1, Exterior Building Construction: jam' New Building ❑ Addition ❑ Alteration Indicate type of building: §a House ❑ Garage ❑ Commercial ❑ Other 2. exterior Painting: ❑ 3. Signs or Billboards: ❑ New sign ❑ Existing sign ❑ Repainting existing sign 4. Structure: ❑ Fence ❑ Wall ❑ Flagpole ❑ Other (Please read other side for explanation and requirements). TYPO. OR PRINT LEGIBLY DATE_ 17Z ADDRESS OF PROPOSED WORK S�L/L/ G.Al ASSESSORS MAP NO. OWNER n-I 61i,44-P L •Tbft Al tLCeP 2tiA-S ASSESSORS LOT NO. �`�� � rf 3 HOME ADDRFSS /y AlGl�C1►ti7 h-12• tf- t;r< V 4. TEL. NO. ,1_ l7 - 3 FULL NAMES AND ADDRESSES OF ABUTTING OWNERS. Include name of adjacent property owners across any public street or way. (Attach additional sheet if necessary). AGENT OR CONTRACTOR 6e S S /-I i/% TEL. NO. r P - 5 5"3 � ADDRESS ��Giz/L/L �i SJ 4. a �i li�1v/ S ✓'2� DETAILED DESCRIPTION OF PROPOSED WORK: Give all particulars of work to be done (see No. 8, other side), including materials to be used, if specifications do not accompany plans. In the case of signs, give locations of existing signs and proposed locations of new signs. (Attach additional sheet, if necessary). P12- lit/ � 5 /Z r S fl' : Fon U Signed - er•Co ractor•Agent �aac xlewlin For Comma, ewe. 1 pate Certificate is hereby Date L1 lt. Vv !� (Jl ire, G1 TOIMf\I OF� LD KIND-AR9�1�TASLE I` • y S Approved ❑ IMPORTANT: If Certificate is approved, approval is subject to the 10 day appeal period provided in the Act. Town of Barnstable Old King's Highway Historic District Committee SPEC SHEET FOUNDATION 7 'TQ /J-"' 0 /'- 3 Si�iy 5 Lf/r1/Th G/•/�/�w S/�//UGG,Kc SIDING TYPE /2rzI2 c�,b)PAA_, C G./3�/3cSrOLOR �{j�?'i /�� C_ CHIMNEY TYPE 13/21 COLOR ROOF MATERIAL COLORjZ�/=i PITCH WINDOW 7y e41VP1iA-5yii✓ SIZE 5,, TRIM COLOR DOORS L 1 j/i' COLOR �✓v/� /%r SHUTTERS ,t/ U COLOR GUTTERS %r4 /a-G 4e/''t DECK /(,/ 0 GARAGE DOORS COLOR yli SIGNS COLORS D FENCE COLOR NOTES: Fill out completely, including measurements and materials/colors to be used. Three copies of this form are required for submittal of an application, along with three copies each of the plot plan, landscape plan and elevation plans, when applicable. Site plan should show all structures on the lot to scale. SPECSHT OO 00 F; 29 00.0 Q ► Aa f4G p0 oAl CQ DR1VZ 200• /800, "� Q .41 0 29 Q '3¢0p, 700 p0 �1 PROPOSED PLOT P-vi` : BAIRNS TABLE, MASS. aj �y 36 SUNSET LANE : ta G - ; lax DATE SEPT. 19 1997 SCALE 1 " = 20' .4 v 1, 31341 s. CLIENT HAML JOB 3972-00 '�N — - `� SAFT-TSER ENGINEERING - �w�� 235 GREAT WESTERN ROAD ' P.O. BOX 713 SOUTH DENNIS, MASS. 398-3922 02660 FAX 398-306 sqA-1n-y V9 611-5 0;2- /4w N N BENCHMARK \ HYDRANT BOLT #64 ELEV.= t3,5j. (NGVD) loo 00 TOP OF EXISTING 'Y O FOUNDATION IS "i ^� I ELEV. 13.13 (NGVD) ��`eo LOTS 141 & 143 1 T 10,000 S.F, f {EXISTINGC STRU CT URE [ter o fIlk, 141 \' o \ O O O O \off _0 29 O a�� 3yc 0p.- � o^j� T Loop Z 700 . 00 PROPOSED PLOT PLAN BARNSTABLE, MASS. \N of a-ys4 r s 36 SUNSET LANE _ w W ° DATE SEPT. 19, 1997 SCALE 1" = 20' p. JOB 3972-00 CLIENT HAMLYN SIMMER ENGINEERING ` c tee' 235 GREAT W o v� ESTERN ROAD R su ,� P.O. BOX 713 SOUTH DENNIS, MASS. 398-3922 02660 FAX 398-3063 /e- 4-EC-23-9T 05 :49 PM ATTY PETER FREEMAN 5083628281 P. 01 NEM®RANDiTM To., Ralph Crossen Date: December 23, 1997 Building Commissioner By Facsimile: 790-6230 From: Peter L. freeman, Chairman Barnetable OKH Committee Rea Sunset Lane, Barnstable e Hamlyn Construction, Dugas At the OKH meeting on December 17, 1997, Joseph Dugas brought to our attention what he believed to be two issues of noncompliance with the Certificate of Appropriateness previously granted by the Committee for the house abutting his lot, now under construction by Hamlyn Construction. Issue 1: The building as proposed and approved was to be at the same finish grade as the house that was demolished on the site. It appears that the finished elevation is 4 ' higher. Issue 2: The foundation was built almost 4 ' closer to Sunset Lane than was shown on the approved site plan. In discussing the matter, the Committee recalled that Mr. Dugas had appeared at the hearing on the application, and the exact location of the structure was a concern he raised at the hearing. He was concerned about his view of the water, and the relationship of the new structure to the surrounding buildings and the street. The Committee definitely felt that location was an issue, especially in an area like Common Fields, where the lots are small and the houses are close together, and especially where a neighbor's view can be accommodated without detriment to the applicant, These matters were reviewed on December 17, 1997, and the Committee expressed the opinion, unanimously, that the construction of the house as described above, as to .both issues, was in violation of the Certificate of Appropriateness. It was the opinion of the Committee that the changes constituted more than minor changes, and that a stop work order should be issued by the Building Department. The location of the structure is material to this application, for the reasons stated above. However, I must also emphasize that location is always a consideration in our review process. Our guidelines require that applicants submit °a plot plan showing the exact location of a proposed building or structure and identifying existing relevart buildings and structures. " The consideration of jr;;'�IJEC-23-97 05 :50 PM ATTY PETER FREEMAN 5083628281 P. 02 "settings" is included in both the purpose section of the Act (Section 1) and in the powers, functions and duties section of the Act (Section 10) . Section 10 also calls upon the Committee to compare the proposed construction in relation to "buildings and structures in the immediate surroundings" . It is self-evident to us that a building' s relation to other buildings in the area will vary, depending on its proposed location. Bob Brown, Counsel to Old King' s Highway Regional, Historic District Commission, agrees with the view I have expressed in this Memorandum. Both he and I are gravely concerned that holding otherwise would set an improper and dangerous precedent that is inconsistent with the way that our Historic District Act has traditionally been interpreted. I would point out that the OKH Guidelines also provides "It shall be the duty and responsibility of the Commission to interpret the act . . . " . For all these reasons, our Committee respectfully urges you to issue a stop work order on the property. The owner would have the right to apply to our Committee for a new Certificate of Appropriateness, requesting approval for the changes he has made. ` NOV-07-97 12:43 FROM:COMMONWEALTH ELECTRIC HYA ID=50B+291+0950+5705 PAGE 2/2 Y � r Commonwealth Electric Company 2421 Cranberry Highway COM Belumtric Wareham,Massachusetts 02571 Telephone (5W)291.09s0 484 Willov St. Hyannis, Ma 02601 November 7, 1997 Town .Of Earnstable Bldg Inspestoss Office South St. Hyannis, N,a 02601 Dear Six- This letter is to confirm that the electric service and meter have been removed from the property at 36 Sunset Lane in Barnstable. This was done at the request of Russ Hamlyn for the purpose of demolition. If I can be of further assistance to you please feel free to contact me at 508-790-1721 X5781. Very truly yours, . udf th A. Webb Customer Service Reo Hyannis District Office cc Russ Hamlyn i To: Er, Russ Hamlin From: BORKE FIGUEROA 11-07-9? 12;55pm P. 1 of 1 Cap� O �.�!pth 127 COLONIAL, 1-'7 Whites Path South Yarmouth,NIA 0'66; G A 5 C 0 M P A N Y 508-394-98S1 Fax 508-394-2564 November 7, 1997 Mr. Russ Hamlin fax 508.398.5539 re: 36 Sunset Lane Barnstable, VIA account number: .55-07-2.554 To Whom It May Concern: This letter is to confirm that the natural gas service to the above referenced property has been cut and capped at the gate box merco. This work was completed by its on November 4, 1997. If you have any questions, I can be contacted at the number listed above,extension 7503. Sincerely, Bonnie Figueroa Distribution Department ORIGINAL SIGNED BY: Bonnie Figueroa 11/7/97 NOV 07 '97 15:39 BPD WRTER DEPARTIIENT0900 P.1 J BARNS'" " BLE FIRE DISTRIC`E WATER DEPARTMENT 0 ,l987 a P.O. Box 546 Barnstable, MA 02630 Phone: (508) 362-6498 Fax, (508) 362-9616 November 7, 1.997 Russ Hanlyn P.O.Box 878 So, Dennis,MA 02660 Mr. Hanlyn: This letter is to inform you that the water service at 36 Sunset Lane, Barnstable, MA.,the Richard Rudders property, has been turned offat the street and the meter removed. very truly Yours,— i on R. Erickson, Superintendent cc: File y _� :� � ��_� - __----, � � f � '� 1 �� � „� �'� � i yp� 3� �'� POWER OF ATTORNEY Know All Men by These Presents: (Irrevocable) No. B- 41061961 That this Prover of Attorney is not valid Kr'in effect unless attached to the bond which it authorizes executed,but may be detached by the approving officer if desired.That Western Surety Comparii a corporation.does hereby make,constitute and appoint the following authorized Individuals: _ n A _ AINDIVIDUALS EDMUND R CRAWFORD C WHITNEY CRAWFORD PHILIP 8 CRAWFORD RICHARD W CRAWFORD / in tic City of BOSTON _ _._—_, static of MAS5ACHl1SFTIS _ with limited authority, its true and Iawbl Attorney(s) in fact with full power and authority hereby conferred. to sign, execute. acknowledge and deliver for and on its behalf as Surcy, one of the following bonds: An ORIGINAL bond required by Statute. Decree of Court or Ordinance for: M.AXIMUIM. PENALTY 1A) ADMINISTRATOR EXECUTOR 'PERSONAL REPRESENTATIVE GUARDIAN OF INCOMPETENT CONSERVATOR OF INCOMPETENT CURATOR $ 500,000 TRUSTEE-iTemamentar Only) SALE OF REAL OR PF.R�ONAI.PROPERTY-xx!wn this aenAmg has qualifying bond or when it is aaeparate N,:: ..r accounting of prnceeds of side only REFERpE.IN PARTITION COMM15SIONER TO SELL.RIiAL ESTATE TRUE,EE,gR RECEIVER IBI GLIA ,'+�Q MINOR OR('ONSERVATOR OF MINOR S 10,000 ICI NoTA.. �_S $ 50,000 PURL F7kL AND DEPUTIES RECEt, ._ '='R;a,Shite Court Onlyl IO) PLAINTIFF'S r6t.Irt BOND-Banks and Trust C'ompanics $ 100,000 -All Others.cscepl N,nds prohibited by 'NOTE"hNnw $ 20.000 IE) COST ON APPEAL A EXCLUDING OPEN PENALLY. S 2.000 REMOVAL OF CAUSE) STAY,SUPERLSE.DEA-S OR GUARANI FA OF A JUDGMENT IF) LICENSE.PERSUT.OR�OU11•''r TITLE-Ciiy.Count) S 25.000 -State S 15.000 (G) ANY BOND OR INDEN\ITY provided there is attached to this Powcr of Atiornc),written authority in the form of an endorsement,letter or telegram. signed by the Sr L'nderir&ng Officer,Underwriting Officer.President, Vice President.Assistant Vice President,Secretary.Treasurer or Assistant Secretary or kkestern SatcM('ompan> specifica11> authorizing its ei,ecution.For confirmation of the necessary written authority,please contact our Underwriting DmaAl4nt at i•g00•J.tt•h05.1 i3394)0h0 in South Dakota). NOTE:SUPERSEDEAS.OR OPEN PENALTY OR SLAY BONDS ON APPEAL OR GUA.t EE OF JUDGMENT OR BAIL BONDS OR CONSTRUCTION BID OR.CONTRACT BONDS OR SUBDIVISION BONDS OR IMI'ROVEMENT BONDS OR BONDS FOR DEFENDANTS OR UTILITY DEPOSIT BONR ARE NOT .AUTHORIZED BY THIS POWER OF ATTORNEY.except as provided in Section (G). The acknowledgment and execution of an) such document by the said Attorney•in•Faci. shall be as binding upon this Company as if such bond had been executed and acknowledged by the regularly elected officers of this company. WESTERN SURETY COMPANY further certifies that the following is a true and exact copy of Sec ion 7 of (;.a Ey-Lr ;of t!1c Westarr Surely C'omrany,duly adopted and now in force. to-wit:-Section 7. All bonds, policies. undertakings,Powers of Attorney orother obligations of the corporation shall'be executed in the corptrate name of the Company by t:•t. Cllainna,: of i;:c S.-ard. President,Secretary. any Assistant Secretary.Treasurer,or any Vice President,or by such other officers as the Board of Directors may authorize.The Chairman of the Board, President. any Vitt President. Secretarc. and Assistant Secretary. or the Treasurer may appoint Attorneys in Fact or Agents who shall have the authority to issue bonds, policieL or undertakings in the name Of the('ompany.The corporate seal is not necessary for the validity of any bonds. policies, undertakings. Powers of Attorney or other obligations of the.corporaticet-the signature of any such officer and the corporate seal may be printed by facsimile' INAVITNESS WHEREOF,th id WESTERN SURETY COMPANY has caused these presents to be execute s reside t with its corporate seal affixed this )rd day of,)uly,1989. W S T S Y C O M P A N Y ATTEST' an Assistt Secretary By STATE OF SOUTH DAKOTA 1 President County of Minn6aha I SS On.ih,s Ird da) !q Jul, �`I" la We nic... Nwjr% Public, pe'nnnalls appeared JOL I'. KIRBY. wh*,�,Ulh n.acknowledged (hat signed a above Power of Allr9ney as President d the riid wESTkRN MiRI.TY ('OMPANY:taut ackn—ledged.aid in:nnn,en and deed of said corpora M) Commissi.vl c+roc• June 12 19 y(' --..- -•-- - — - Notary Public, South Dakota I. rfw imtkrsirrseu officer oI ou western }uict) (bnpoam. a shw•k corp,rauon :II the Maleereby certif).••hat the attached Power of Anurnry;and Certificatc rl .luthnitty— g. 41063961n In ('uli h,rce anJ enerl and is irrc•ocahlr, and forth in re, that Section 7 it y•-aw the eompuri)I and the riesolutinn rl the Brant o� nitcom•.,s set firth it the Certificate of Au(honly are now,n force. In lcslimun) whcrcrl',I base nucum,,a•t in) hand and the seal of the Western Surct>�('ompany this- 77 of I'9_.' / WEST R SU COMPANY 'IMPORTANT: This date must he filled in before it is attached to the bond and it must be the same date as the By hand. President ,I �I ISSUED THROUGH Ae A. DORITY COMPANY BOSTON STREET PERMIT BOND KNOW ALL MEN BY THESE PRESENTS, That we Russell Hamlyn III, dba Hamlyn Aemodeling & Building Co. of PO Box 874._ ... South Dennis , Ma 02660, hereinafter referred to as Principal, and Western Surety Company a corporation organized and existing under the laws of the State of South Dakota and authorized to do business in the Commonwealth of Massachusetts, as Surety, are held .'and firmly bound unto Town of Barnstable , hereinafter referred to as Obligee, in the sum,of Two Thousand &No/100 Dollars ($2000.00) lawful money of the United States of America,to the payment of which sum,well and truely to be made,we bind ourselves, our executors, administrators, successors and assigns, firmly by these presents. 1 ;THE CONDITION OF THIS OBLIGATION IS SUCH, That wh;,reas, the Principal has made application for a license or permit to.the Obligee for the purpose of opening and/or occupying a public way. ,,NOW, THEREFORE, if the Principal shall faithfully comply with all ordinances, rules and regulations which have been or may hereafter be in force concerning said License or Permit, and shall save and keep harmless 'the Obligee from all loss or damage which it may sustain or for which it may become liable on account of the nce of said license r permit. th Principal, h n hi obligation shall be null and void; otherwise to remain i se o e t to ethen this ssua P > .,in fall force and effect. , THIS BOND WILL CONTINUE IN PULL FORCE UNTIL CANCELLED BY THE SURETY. The Surety way at any time terminate its liability by ivin,;thirty(30) days.written-notice to the Obligee, and the Surety shall rot be liable for any default after such thirty day notice period, except for defaults occuring prior thereto. ;:!SIGNED,SEALED AND DATED October 14th,1997. 11 w !'r i.. I ! I it il; ii I Russell HanjiynrTH,dba JTam I y n Remodeling & Buildi g Co. f Wester urety Company Bond No. 22198235 By; Philip-B.Crawford Attorney-in-Fact A.A.Dority Company;Inc. 262 Washington Street, Suite 99 i;l € Boston,MA 02103 i ; (017)523-2935 j ll.rs HM TAO SOL T 64 / •S ELEY - IJ.47 ELEVATION //,0 DEP I CTED ON THIS PLAN REPRESENTS AN APPROXIMATE 11 LOCATION OF THE NATURAL GROUND l?•? N ELEVATION BASED ON SPOT ELEVATIONS I TAKEN BY ELECTRONIC SURVEY METHODS, I I- T S I.4 I ` ` ` �• S �e-s�- 1 / 43 4k \ /00 00. •F BENCH MARK USED: RM S 11.40 /0000 S.F. ELEVATION: 12.24 NGVD 13,0 i /2.8+ 0 / U P 4 /L z DWELL I NG UNDER CONSTRUCTION .w +LJ T.O.F. - IJ.a? O ti HATER SHUTOFF o M o I 10.42 10.7 10-28 10.11 IO.S ��` It.O 7� ..r +?.S 11.0.9� 10.d�` ,� `�`\� 11.S� '� Jl. •/'/0 r�\ /00 3 ' --1�_ - . 00 • t'APID 0.54 to l 1.15 Oq/PF w I / J 9.64 /o.10 M /l.l 10.66 10.6 .93 (j Io.S+ 10.9 /0.62 �4R 22'; I cV - . p #30 11.49 r - 8.9 4 ?4•; O ti LOTS I45 4 I47 + ` TOWN OF BARNSTABLE'ZONING /0000 S. F, 10.0+ ZONE RB SETBACKS ; 9.2' a FRONT - 20' SIDE - l 0- /0 REAR - l0' S 7B-S7 0/••� l0.OJ PROi'RTY LINES SHOWN HEREON I . TO THE BEST OF MY PROFESSIONAL KNOWLEDGE. WERE COMP/LED FROM AVAILABLE I 1; �fl INFORMATION AND BELIEF THE DWELLING SHOW/y PLANS OF RECORD AND DO NOT 1Jill 1 HEREON CONFORMS TO THE HORIZONTAL SETBACKS REPRESENT AN ACTUAL SURVEY ! !+ (I J HE ZONING BY-LAW FOR THE RB DISTRICT. ON THE GROUND. THE DWELLINGS DEPICTED ON THIS i NE LOT SHOWN HEREON IS IN FLOOD� ti i i,; HAZARD ZONE A3 PLAN WERE LOCATED ON THE GROUND­'I►, ",`�'' AS SHOWN ON MAP 25000/ 000/ D. DATED JUL Y 2. /g p2.(EL V. By SURVEY ON JAN. 5. 1998 AND ' JAN. 27. 1998 AND EXIST AS SHOWN r 'sty _` •��` AS OF THE DATES 0 N ' ~ F LOCATION. \ PLOT PLAN THIS PLAN IS FOR PLOT PLAN I., /N PURPOSES ONLY AND NOT FOR BARNSTABLE. MA. RECORDING, DEED DESCRIPTIONS. �• SCALE: 1 '-40' JAN. 28. I998 ESTABLISHING PROPERTY LINES OR FOR CONSTRUCTION PURPOSES.A �l EAGLE SURVEYING , INC THIS PLAN Is VOID IF NOT it OU ROUIS @A STAMPED AND SIGNED IN RED. C YammutAPort. MA. 02s7s (004) 302-61.12 (308) 432-0333 I ------.,,- ------.------ �-----------�,—�----,--�,---.--------,—,--.,---�—-----------------------------------, — - - - ::!::'':!!, - - I , -, , , .- - , -''�, � 1, - I 1-11- -, - ,� ".11 -4 'In I �, I � '. �I I- —,��Att,-.,i,��­ �i �, � I — I � -- 1-1-1- �------7---- 1 -��---� , I I I I ,, . �" , I , . - . I N-ol I ,� �� �, � I - - , I� ,� , � � 1. - I I I - 21, 17,--l-�---: --- --7— - '-, . ,1:��, 5 ' ' , . . , �, . 1, I. 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Zoning: RB Residential B Zoning District Groundwater Overlay: AP Aquifer Protection District Background: The property that is the subject of this appeal is a 0.23 acre lot located at 36 Sunset Lane in Bamstable Village. It is located within an RB Residential Zoning District The owners of this property, Richard and Joan Rudders, have been issued a building permit(Permit No. 27103)to demolish the previously existing single-family residence on this site and build a new one with a garage. The old dwelling has since been demolished and a new single-family residence has been constructed. The applicants are the owners of and reside at 30 Sunset Lane(Map 301 Parcel 037),which abuts the subject property to the south. The petitioners appealed the decision of the Building Commissioner(in Appeal No. 1998-37)to issue the above referenced building permit.The applicants contend that because the property is nonconforming with regard to lot size,approval from the Zoning Board of Appeals should have been obtained prior to any new construction. Further,they contend that the new structure is not a re-establishment of a nonconforming building or an alteration or extension of an existing building but rather a totally new building. The applicants also sought enforcement action by the Zoning Board of Appeals to rescind the building permit, issue a Cease and Desist Order on the construction of the new residence and to compel the construction to date to be removed. The Board upheld the decision of the Building Commissioner finding that the lot was a legal nonconforming lot under the Town's Zoning Ordinance, and that the existing structure currently conforms to the bulk regulations of the Zoning Ordinance and,therefore, no zoning relief was necessary prior to the issuance of a building permit The petitioners subsequently appealed this decision of the Board to the Massachusetts Land Court(Land Court Misc. No.246863). The Court annulled the Board's decision after concluding it was based on a legally incorrect premise and rendered a decision for Summary Judgment and Order of Remand in favor of the petitioners. The court concluded that man otherwise conforming structure on a nonconforming lot is treated as a nonconforming structure." In accordance with the terms of the Court's decision,the Board is required to determine whether the new dwelling is a"reconstruction'as that term is used in the°second except clause of the first sentence of MGL Ch.40A, Section 6. The Court has ruled that the reconstruction may be allowed N the Board finds that(1)the proposed new dwelling does not intensify the alleged nonconformity, or(2) (if it does intensify the nonconformity),the proposed new dwelling would not be substantially more detrimental to the neighborhood than the former dwelling. Procedural Summary: This appeal was filed at the Town Clerk's Office and at the Office of the Zoning Board of Appeals on January 22, 1998. By order of the Massachusetts Land Court(Land Court Misc. No.246863),the case was remanded to the Zoning Board of Appeals for further action. A public hearing before the Zoning Town of Barnstable-Zoning Board of Appeals-Decision and Notice Appeal Number 1998 37-Dugas-Remand Appeal Decision of Building Commissioner and Request for Enforcement Action f Board of Appeals was duly advertised and notices sent to all abutters in accordance with MGL Chapter 40A The hearing was opened June 5, 1999 and continued to June 30, 1999,at which time the Board reaffirmed the decision of the Building Commissioner. Hearing Summary: Board Members hearing this appeal were Gene Burman, Ron Jansson,Gail Nightingale, Tom DeRiemer, and Chairman Emmett Glynn. Attorneys Gerald Gamick and Lois M. Farmer represented the applicant, Joseph F. Dugas,who was present Attorney James H.Quirk, Jr. represented Richard Rudder,the owner of the property in issue,who was also present A memorandum of support was submitted by Attorney Gamick. Attorney Gamick addressed the Board. He reviewed the Remand Order and stated the Court has ruled that the house the Rudder's had on their property was a nonconforming structure because it was an undersized lot The Court also ruled that the Building Commissioner was incorrect in issuing a building permit The Court ruled that the only way the structure can be built on the Rudder's property would be if it were a reconstruction. The Board has to determine if this dwelling is a reconstruction. In Attorney Gamick's opinion,this is not a reconstruction because the new dwelling must be the same height,the same area, and in the same footprint as the previous dwelling. The Rudder's new property does not meet this criteria. This is not a reconstruction and therefore should not have been built The property does meet all the setback requirements but Attorney Gamick stated that was not important Attorney Gamick also submitted three cases for the Board's review; (1)Vt611iam M. Berliner v. Michael L Feldman, (2)Frank Lomelis v. Board of Appeals of Marblehead, and(3)Daniel J. Dykens and Charles Kelley v. City of Quincy Zoning Board of Appeals et al. The Board asked Attorney Gamick how the abutters are aggrieved by this new dwelling. Attorney Gamick stated the mass of the house is greater than what was previously on the site with a second story and now their view is blocked. When this project was before the Old Icing Highway Historic Committee,the Rudders presented a plan and that plan was not abided by with respect to location. The Rudders changed the location on the property and the result is the Dugas's view is obstructed. .: The Board reviewed the Remand Order by Judge Green. That order states,'The proposed reconstruction may be allowed only if the board finds that(i)the proposed new dwelling does not intensify the nonconformity...." The Board asked Attorney Gamick to explain how the proposed new dwelling would intensify the nonconformity. Attorney Gamick stated that this is not a reconstruction so you can not go any further regarding whether or not there is any intensification, once it is determined that this is not a reconstruction. Earlier in the Remand Order,it states,'First, the dwelling may be allowed if the new dwelling is a'reconstructon'.' Because Mr. Gamick does not believe this is a reconstruction,the other requirements do not matter. The Board questioned if Judge Green gave deference to the Town of Barnstable Zoning Ordinance. Attorney Gamick felt he did give deference to the town's bylaw because he ruled that the structure was a nonconforming structure because it was on an undersized lot He determined that if the house is tom down it can only be reconstructed. Attorney Gamick agreed that if this lot were a vacant lot,this house(probably)could have been built But, Attorney Gamick stated this case is different because this was not a vacant lot and any new house that is built,must be a replica of the previous house. The neighbors have rights as to what type of structure is built on the abutting lot-they have rights to their neighborhood. Attorney Gamick stated a person can not just tear down a house and rebuilt it-it must be a reconstruction. Board Member Ron Jansson did not agree. If that were the case-then every house that has been built on a nonconforming lot that is otherwise expanded-and still complies with the zoning requirements-is in essence illegal. There is a difference between an expansion and a reconstruction and Attorney Gamick stated this is not an expansion,this is a reconstruction and the Zoning Ordinance does not address the issue of reconstruction. The owner does not have the right to a reconstruction because the Zoning Ordinance does not give them the right to do so. 2 Town of Barnstable-Zoning Board of Appeals-Decision and Notice Appeal Number ISM7-Dugas-Remand Appeal Decision of Building Commissioner and Request for Enforcement Action The Board asked a hypothetical question of Attorney Gamick-if the Rudders had reconstructed the exact same house and then added on to it,would that have been allowed? Attorney Gamick said it probably would have been allowed-even though it seems ridiculous-it would have been allowed under the Zoning Ordinance. But,that is not what the Rudders did. Attorney Gamick reported that other towns allow for reconstruction, but the Town of Barnstable Zoning Ordinance does not. As to what portion must remain of the old structure to allow for a reconstruction,Attorney Gamick stated that is up to the Building Commissioner. In this case,the Building Commissioner allowed the complete destruction of the previous home and then allowed a new dwelling to go up and that is not a reconstruction. If a property has an ocean view it is more valuable and by the Rudders placing their house in this new location and not on the same footprint,they have blocked the Dugas's view and that affects the value of their[Dugas's]home. Attorney James Quirk represented the owner of the property in issue, Richard Rudder. Attorney Quirts submitted a memorandum and copies of photographs. He addressed the Board and reviewed the Remand Order. It is his view that the Court looked at the Zoning Ordinance and found that the word reconstruction'was not in the Zoning Ordinance. Had it been there, they would not be before the Board. Next,the Court said that because the word reconstruction was not in the Zoning Ordinance,one must look at MGL Chapter 40A, Section 6. That section allows the Building Commissioner to make'a determination that if the new structure is not substantially more detrimental to the neighborhood than the former dwelling,the Building Commissioner has the authority to allow the construction to go forward. As to the subject property, it is not on the same footprint because the Rudder's made concessions as to its I=tion at the time of the Old IGng's Highway Historic District Committee Hearing,to provide a view for the Dugas's. The house was moved back from the street and moved further away on the lot The lot is similar in size to most of the other lots in the neighborhood. They are all around 10,000 square feet The original footprint consisted of 1315 square feet and the new footprint(minus the garage)is 1260 square' feet The original house had three bedrooms,the new house only,has.tw6 bedrooms. The property is not substantially more nonconforming. There are no setback problems in this case. Attorney Quirk reviewed several court cases dealing with nonconforming structures and new structures. Attomey Quirk referred to this neighborhood as an area of transition. The abutting property-the Dugas's lot-has a two story house. On this street-Sunset Lane-there are thirty flour(34)house lots, most of them are 10,000 square feet Twenty-one(21)of the thirty-four(34)lots have two story homes. That is 64%of the lots. In the entire subdivision,there are four(4)streets with eighty(80)lots,seventy-five(75)of the lots have been built upon and of those lots,thirty-six(36)have two story houses or 48%of the lots have two story homes. The Rudders home is consistent with the neighborhood. As to the Remand Order,Attorney Quirk believes that Judge Green has indicated that if the Rudders new house is not a substantial expansion of a pre-existing nonconforming use,then it can be allowed. if you look at the cases that deal with MGL Chapter 40A,Section 6,that Attorney Quirk cited, he stated that if the Board makes the determination that this is not a substantial expansion,then the issue is over. If the Board does not make that determination and goes on to the section clause of Section 6,then the Board should look at the neighborhood and the impact of the structure on the neighborhood to see if it is substantially more detrimental to go forward. Attorney Quirk reported that the case of Cox v. Board of Appeals of Carver states that extensions and changes to the nonconforming structure are allowed if the extensions or changes themselves comply with the Zoning Ordinance. In the Rudders case,they do comply because they do not need any relief. Attorney Quirk reminded the Board that Mr. Rudder went to the Building Commissioner and asked what to do and how to go about this proposal. He did exactly what he was told to do. The Building Commissioner made the determination that it is not necessary to'pretend*by creating one wall while building a whole new structure in an effort to get around the Zoning Ordinance. This was a single family residential dwelling and it is staying a single family residential dwelling. The Board asked Attomey Quirk how he would deem this work a"reconstruction'as defined in the Remand Order of Judge Green. Attorney Quirk responded that reconstruction is not replication. The court cases demonstrated that replication is not what they meant by reconstruction. Some buildings were 3 l Town of Barnstable-Zoning Board of Appeals-Decision and Notice Appeal Number 1998-37-Dugas-Remand Appeal Decision of Building Commissioner and Request for Enforcement Action on the same footprint but went up as two stories not one story and were considered reconstruction but they can not be considered replication because they are two stories not one story. There are other cases where there was a change in the footprint but the court has determined.it was a reconstruction. In his opinion,replication is not what the court meant by reconstruction. If replication was what was intended, then that would be in the Zoning Ordinance. Attorney Quirk believes th&Rudders new home is a reconstruction because it is the same Use now as was the use before-a single family house. Use is partofhowJudgeGreengetstotheissueofreconstruction. Attorney Quirk also.stated that since there is no need for zoning relief then this can be construed as reconstruction under Chapter 40A,Section 6. TheyarenotseekingaVarianceorSpecialPermittoreconstructthishome. The house is otherwise in compliance and relief is not needed for any intrusion-such as setbacks. In Attorney Quirk's opinion, Judge Green never made a determination that this could not be considered a reconstruction and that maybeareasonwhythiswasremandedbacktotheZoningBoardofAppeals. The Board has the ability torule,as to whether this is a reconstruction after they view all the relevant materials. If the Board finds this is a reconstruction, it can allow the structure to remain if the Board determines the new dwelling would notintensifythenonconformityandisnotsubstantiallymoredetrimental. Attorney Quirk submitted letters from ten abutters that are in support and do not find this propertydetrimental. He also submitted three series of pictures. Section three includes views'from the RudderhomeandtheDugashomeandviewsfromthestreet Public Comments:Steve Santos questioned if a house could be moved anywhere on a lot and stated that a view-even if it is only 2 feet-is worth a lot of money. Marty Santos stated she had a problem withtheBuildingCommissionerbuttheBoardinformedherthiswasnottheproperforum: No one else spokeinfavororinoppositiontothisappeal. Attorney Gamick reviewed the Dyken's Case which states that reconstruction'is treated the same as rebuilding. Even though this is a"rebuilding'in his opinion it ends up to be anew dwelling which is notwhatreconstructionmeans. The Board asked Attorney Gamick if(for the sake of argument)they disagreed with the BuildingCommissioner's decision in issuing a building permit, could they now issue a Special Permit if the criteria is met Attorney Gamick stated the problem is that the burden has been put on the abutter to do the work that should have been done by the owner. The owner(in Attorney Gamick'opinion)should have been told that he needed a Special Permit to rebuild the house. The Board next asked Attorney Gamick if there was something to preclude the Board from issuing a Special Permit-if that is what the Board determines is needed to allow the structure to remain. Attorney Gamick said the Board can not make that determination without being arbitrary and capricious that this is a reconstruction under the present law. In Attorney Gamick's opinion, everything presupposes that this is a reconstruction. The Board told Mr. Garrick that they did not necessarily agree that is what Judge Green meant This is an appeal of theBuildingCommissionerandnotaSpecialPermitapplication. Attorney Gamick stated the Remand Order said the Building Commissioner had no right to issue abuildingpermitbecausetheRemandstates, '...the proposed new dwelling is not within the commissioner's approval authority...' It was decided to continue this.appeal to June 30, 1999 at 8:00 PM. This continuation is to allow the Board time to review all the materials presented this evening. The public comment portion of this hearingisclosed. Board Members hearing this appeal on June 30, 1999 were Gene Burman, Ron Jansson, Gail Nightingale,Tom DeRiemer,and Chairman Emmett Glynn. Attorneys Gerald Gamick and Lois M. Farmer represented the applicant, Joseph F. Dugas. Attorney James H.Quirk,Jr. represented Richard Rudder,the owner of the property in issue. At the start of the hearing, Chairman Emmett Glynn asked the Board Members if they had any questionsfortheAttorneysregardingthisappeal. Both sides have presented their cases and, in view of Judge Green's Decision on the Order of Remand, the Board was ready to move forward. 4 r A Town of Barnstable-Zoning Board of Appeals-Decision and Notice Appeal Number 199837-Dugas-Remand Appeal Decision of Building Commissioner and Request for Enforcement Action Flndings of Fact: At the Hearing of June 30, 1999,the Board unanimously found the following findings of fact as related toAppealNo. 1998.37: 1. This is a Remand from the Land Court in Boston, Miscellaneous C9se No.246863,dated January 22,1999. 2. This initially resulted from an appeal of a Decision by the Building Commissioner filed by the Plaintiff,Joseph F. Dugas et al. 3. Under that case,the appeal was made under MGL Chapter 40A,Section 17. 4. That appeal pertained to a single family residence located at 36 Sunset Lane, Barnstable, MA.5. The Zoning Board of Appeals rendered a Decision on March 17, 1998 which was the initial subject of this appeal under the terms and conditions of which the Zoning Board of Appeals sustained theDecisionoftheBuildingCommissioner. 6. 'Subsequently,the Plaintiff filed a complaint in the Land Court in Boston as Miscellaneous Case No. 246863, and as a result of a Motion For Summary Judgment,a Decision was entered on behalf of thePlaintiffremandingtheDecisionoftheZoningBoardofAppealsbacktothisBoardforfurtherdeliberation. 7. In the Court's Decision,the Judge specifically asked the Zoning Board of Appeals to address twoissues: The first issue is whether or not the new dwelling on the lot,that is the subject of this appeal, is a"reconstruction"as that term is used in the"second except"clause of the first sentence ofG.L. Chapter 40A, Section 6. In the second issue, Judge Green specifically asked that if the Zoning Board of Appeals comes to the conclusion that this structure was in fact a'reconstructlon",the Board must decide whether or not the proposed new dwelling intensifies'ttie'rionconformity,-and if it does intensify the nonconformity,the proposed new dwelling'would nofbe substantially moredetrimentaltotheneighborhoodthantheformerdwelling. 8. The Board is left with a somewhat unique situation in'thafthe Town of Barnstable Zoning-Ordinancedoesnotdefinetheterm"reconstruction". There have been certain cases that have been handeddownwhich-purport to define"reconstruction'. It is the customary use of what that term means to theZoningBoardofAppealswhichisgoverning. 9. In the Land Court Decision of Miscellaneous Case No. 238329 Dykens v. Gordon (Dec. 1998), it reaches a contradictory result But it defines what"reconstruction"means and quotes Black's Law Dictionary which defines "Reconstruction"as "An act of constructing again. It presupposes the nonexistence of the thing to be reconstructed, as an entity;that the thing before existing has lost itsentity.' 10. That definition would be the definition that the Town of Barnstable and the Zoning Board of Appealshasadoptedinthepast 11. A reconstruction consists of a rebuilding of a structure and does not presuppose that any portion ofthestructurehastoexist 12. Reconstruction imposes the rebuilding of a structure at least similar to what existed on the site previously, as well as the use. The building that exists on the site is, in essence,similar to the overall size of the building that existed prior to that In particular,the area of the original house footprint contained 1,350 square feet The footprint for the present structure(minus the garage)contains1,260 square feet Therefore, the living area of this new house is 19%less than the original footprint This does establish that, in terms of the overall size of the house, it is the same,or less intense. The prior house contained three(3)bedrooms. The new house contains two(2)bedrooms. 13. With reference to the issue of use, there is no question that the prior structure on the lot was residential and proposed use on the lot is residential. 14. In essence, this term as it has been defined in Black's Law Dictionary, in the absence of any specificdefinitionundertheTownofBarnstableZoningOrdinanceorMGLChapter40A, is a"reconstruction'. 15. The remaining issue that Judge Green asked the Zoning Board of Appeals to find pertains to the overall intensification on the lot Judge Green's Decision states the Board must make a finding thatthenewproposeddwellingdoesnotintensifythenonconformityor(if it does intensify the 5 1 I Appeal own of Barnstable-Zoning Board of Appeals-Decision and Notice ppeal Number 1998-37-Dugas-Remand Decision of Building Commissioner and Request for Enforcement Action nonconformity)the proposed new dwelling would not be substantially more detrimental to the neighborhood than the former dwelling.' 6. With reference to the building itself,the setbacks that are required,there is no nonconformity in the present structure. That is, in particular, the present structure as it Wists,complies with the ZoningOrdinance,so there is no increasein the nonconformity because there is no nonconformity. 17. Assuming that argument to be debatable, since the proposed use is located on a lot that alreadyhousedasinglefamilyresidence,and since this is an area of single family residences,and since the proposed dwelling is not signficantly increased over the footprint involved,since there has been no evidence presented to document a detriment,the proposed reconstructed dwelling is not substantiallymoredetrimentaltotheneighborhood. In view of the way in which it is being constructed in that it is now being connected to town sewer,it is substantially less detrimental than what existed there before. 18. The Town of Barnstable Zoning Ordinance presupposed that the Zoning Board of Appeals can makedeterminationsintermsofissuessuchasthis. 19. The overall purpose and intent of the Zoning Ordinance is to allow such buildings to be reconstructed on nonconforming lots, specifically under Section 4-4.2 of the Zoning Ordinance. It should be noted that nonconforming lots can be built upon and that there are certain criteria under Section 4-4.2. It is the intent of the Zoning Ordinance,that these lots be allowed to be built upon whether they contain ahousethatexistedbeforeorafter. This is what the Town of Barnstable determined was acceptable when the Town adopted these provisions of the Zoning Ordinance under the general provisions ofMGLChapter40A. Decision: Based on the findings of fact, a motion was duly made.and sec onded that the Decision of the Building 'Commissioner be reaffirmed in the.Remand of Appe81'Number 1998-37. The Vote was as follows: AYE: Gene Burman, Ron Jansson,Gail Nightingale;Tom DeRieMk and-Chairmari Emmett Glynn .NAY: None Order: In the Remand of Appeal Number 1998-37,the Decision of the Building Cominlssioner has beenReaffirmed. Appeals of this decision, if any, shall be made pursuant to MGL Chapter 40A, Section 17,within twenty20)days after the date of the filing of this decision. A copy of which must be filed in the office of the A0!9 Of Emmett Glynn,Chairman Date Signed I Linda Hutchenrider,Clerk of the Town of Barnstable, Barnstable County, Massachusetts, hereby certifythattwenty(20)days have elapsed since the Zoning Board of Appeals filed this decision and that no appeal of the decision-has been filed.in the office of the Town Clerk Signed and sealed this day of under the pains and penalties of pequry. Linda Hutchenrider,Town Clerk 6