New York Lawyers’ Practical Skills Series

Includes Forms on CD

Zoning, Land Use and Environmental Law Michael E. Cusack, Esq. John P. Stockli, Jr., Esq. Herbert A. Kline, Esq. Professor Nicholas A. Robinson Professor Philip Weinberg

2015–2016

NEW YORK STATE BAR ASSOCIATION

New York State Bar Association Continuing Legal Education publications are intended to provide current and accurate information to help attorneys maintain their professional competence. Publications are distributed with the understanding that NYSBA does not render any legal, accounting or other professional service. Attorneys using publications or orally conveyed information in dealing with a specific client’s or their own legal matters should also research original sources of authority. We consider the publication of any NYSBA practice book as the beginning of a dialogue with our readers. Periodic updates to this book will give us the opportunity to incorporate your suggestions regarding additions or corrections. Please send your comments to: CLE Publications Director, New York State Bar Association, One Elk Street, Albany, NY 12207.

Copyright 2015 New York State Bar Association All rights reserved ISBN: 1-57969-463-2 Product Number: 423916

CONTENTS PART ONE: ZONING AND LAND USE Michael E. Cusack, Esq. John P. Stockli, Jr., Esq. Herbert A. Kline, Esq. I. II. III.

IV. V. VI.

VII.

VIII.

IX.

Introduction ................................................................................................................... What Is Zoning? ............................................................................................................ Other Land Use Mechanisms ........................................................................................ A. Site Plan Review.................................................................................................... B. Subdivision Control............................................................................................... Practical Implications of Land Use and Zoning ............................................................ New York Zoning and Land Use Jurisdiction............................................................... Zoning and Land Use Enabling Legislation.................................................................. A. Town Law.............................................................................................................. B. General City Law .................................................................................................. C. Village Law ........................................................................................................... D. General Municipal Law......................................................................................... E. Municipal Home Rule Law ................................................................................... F. Statute of Local Governments ............................................................................... Adoption and Amendment of Zoning Legislation......................................................... A. Town Law.............................................................................................................. B. Village Law ........................................................................................................... C. General City Law .................................................................................................. D. Municipal Home Rule Law ................................................................................... E. Comprehensive Plan.............................................................................................. F. Moratoria ............................................................................................................... Zoning Board of Appeals .............................................................................................. A. Nature and Types of Variances ............................................................................. B. Genesis of Variances ............................................................................................. C. Jurisdiction ............................................................................................................ D. Interpretations........................................................................................................ E. Perfecting the Appeal ............................................................................................ F. The Appeal ............................................................................................................ G. Limitations on ZBA Authority .............................................................................. 1. General Limitations ........................................................................................ 2. ZBA Precedent ............................................................................................... 3. Rehearing; Res Judicata ................................................................................. Area Variances .............................................................................................................. A. Nature of Area Variance........................................................................................ B. Standard of Review ............................................................................................... 1. Neighborhood Character................................................................................. 2. Alternatives to Variance ................................................................................. 3. Physical/Environmental Conditions ............................................................... 4. Whether Variance Is Substantial .................................................................... 5. Self-Created Hardship .................................................................................... iii

1 1 2 2 2 3 3 4 4 8 10 12 13 14 14 14 16 17 17 18 19 20 20 21 22 23 24 25 27 27 28 29 30 30 31 32 34 35 36 38

X.

XI. XII. XIII.

XIV.

XV.

XVI.

6. Economic Considerations; Personal Benefit/Convenience ............................ 7. Court Review .................................................................................................. Use Variances................................................................................................................ A. Nature of Use Variance ......................................................................................... B. Standard of Review ............................................................................................... 1. Lack of Reasonable Return............................................................................. 2. Unique Hardship............................................................................................. 3. Essential Character of the Neighborhood ....................................................... 4. Self-Created Hardship .................................................................................... Varying the Variance Criteria ....................................................................................... Planning Boards............................................................................................................. Site Plan Review............................................................................................................ A. Nature of Site Plan Review ................................................................................... B. Jurisdiction ............................................................................................................ C. Standard of Review ............................................................................................... 1. Scope of Review Authority ............................................................................ 2. Limitations on Review Authority ................................................................... D. Site Plan Review Application Process .................................................................. E. Authority to Impose Conditions ............................................................................ 1. Recreational Land and Substitutes.................................................................. 2. Public Infrastructure and Improvements ........................................................ F. Waiver of Requirements........................................................................................ Special Use Permits....................................................................................................... A. Nature of the Special Use Permit .......................................................................... B. Jurisdiction ............................................................................................................ C. Standard of Review ............................................................................................... 1. Scope of Review Authority ............................................................................ 2. Power Reserved to Governing Municipal Board............................................ D. Special Use Permit Application Process ............................................................... E. Waiver of Requirements........................................................................................ Subdivision Review....................................................................................................... A. Nature of Subdivision Review............................................................................... B. Jurisdiction ............................................................................................................ C. Standard of Review ............................................................................................... D. Subdivision Review Process.................................................................................. 1. Substantive Review Criteria ........................................................................... 2. Posting of Bond or Other Suitable Security ................................................... 3. Waiver of Requirements or Improvements..................................................... 4. Integration of SEQRA Process; Default Approval......................................... 5. Filing Requirements; Other Matters ............................................................... a. Certification of Plat.................................................................................. b. Filing of Decision .................................................................................... c. Filing of Final Plat; Expiration of Approval............................................ 6. Abandonment.................................................................................................. State-Mandated Overlays .............................................................................................. A. State Environmental Quality Review Act ............................................................. iv

39 40 41 41 42 42 44 45 46 47 48 49 49 50 50 51 53 54 55 55 56 56 57 57 57 58 58 60 60 61 61 62 62 63 64 64 66 67 67 68 68 69 69 70 70 70

B. Adirondack Park Agency Regulations .................................................................. C. Agriculture and Markets Law art. 25-AA ............................................................. D. General Municipal Law......................................................................................... XVII. Limitations on Zoning Power........................................................................................ A. Takings .................................................................................................................. B. Authority to Impose Conditions ............................................................................ 1. Constitutional Requirements .......................................................................... 2. Variance Conditions ....................................................................................... 3. Special Use Permit and Site Plan Conditions ................................................. a. Site Plan Review Conditions ................................................................... b. Special Use Permit Conditions ................................................................ c. Religious and School Purposes................................................................ XVIII. Open Meetings Law ...................................................................................................... A. Meetings ................................................................................................................ B. Public Notice ......................................................................................................... C. Minutes .................................................................................................................. D. Enforcement .......................................................................................................... XIX. Freedom of Information Law ........................................................................................ A. Full Disclosure; Exemptions ................................................................................. B. FOIL Procedure ..................................................................................................... C. FOIL Appeals ........................................................................................................

71 72 72 74 74 75 76 77 79 80 82 82 82 83 84 86 87 88 88 90 92

Zoning and Land Use Forms Index .............................................................................................

97

PART TWO: ENVIRONMENTAL LAW Professor Nicholas A. Robinson Professor Philip Weinberg I. II. III.

IV.

Introduction ................................................................................................................... Overview of Environmental Law .................................................................................. State Environmental Quality Review Act ..................................................................... A. Generally ............................................................................................................... B. Applicability .......................................................................................................... C. Environmental Impact Statements......................................................................... 1. Need for Environmental Impact Statement (EIS)........................................... 2. EIS Procedure ................................................................................................. 3. Cumulative Impacts ........................................................................................ D. Alternatives............................................................................................................ E. Mitigation Measures.............................................................................................. F. Judicial Review ..................................................................................................... Environmental Land Use Controls ................................................................................ A. When Is a Land Use Control a “Taking of Property”?.......................................... B. Wetlands Regulations............................................................................................ 1. State Controls ................................................................................................. 2. Federal Controls ............................................................................................. C. Coastal Resources.................................................................................................. D. Protection of Water Supply ................................................................................... v

413 414 415 415 416 417 417 418 419 419 420 420 422 423 424 424 425 425 426

E. Adirondack Park Agency and Parkland Protection ............................................... F. Conservation Easements........................................................................................ G. Historic Preservation ............................................................................................. Air Quality..................................................................................................................... A. Clean Air Act......................................................................................................... 1. Generally......................................................................................................... 2. State Implementation Plan.............................................................................. 3. Enforcement.................................................................................................... B. Incinerator Controls............................................................................................... C. Motor Vehicles ...................................................................................................... D. Public and Private Nuisance Actions .................................................................... E. Stratospheric Ozone Layer Protection................................................................... F. Climate Change ..................................................................................................... Water Quality ................................................................................................................ A. Clean Water Act and State Controls...................................................................... 1. Generally......................................................................................................... 2. Water Quality Standards................................................................................. 3. Discharge Permits........................................................................................... 4. Bulk Storage of Petroleum.............................................................................. B. Enforcement .......................................................................................................... C. Nuisance and Riparian Rights Actions.................................................................. Noise.............................................................................................................................. Solid Waste.................................................................................................................... Hazardous Materials and Wastes................................................................................... A. Generally ............................................................................................................... B. Comprehensive “Cradle-to-Grave” Chemical Regulation .................................... C. Manufacture and Transport ................................................................................... D. Storage and “Community Right to Know”............................................................ E. Hazardous Waste Transport, Storage and Disposal .............................................. F. Environmental Justice ........................................................................................... G. Contaminated Site Cleanup ................................................................................... H. Pesticide Use ......................................................................................................... Wildlife and Endangered Species.................................................................................. Summary of Practice .....................................................................................................

427 427 427 428 428 428 428 430 430 430 431 432 432 433 433 433 433 434 435 435 436 436 437 439 439 440 441 441 442 444 444 447 448 448

Selected Bibliography..................................................................................................................

450

Environmental Forms Index ........................................................................................................

453

Table of Authorities ..................................................................................................................... About the Authors........................................................................................................................

575 595

V.

VI.

VII. VIII. IX.

X. XI.

vi

INDEX OF FORMS* ENFORCEMENT Code Violation Letter From Attorney to Violator ....................................................................... Code Enforcement Officer Letter to Violator .............................................................................. Code Compliance Letter From Code Enforcement Officer to Violator (Alternate) ................... Complaint, Violation of Zoning Ordinance ................................................................................. Information Regarding Zoning Ordinance Violation................................................................... Order to Remedy Violation of Zoning Local Law....................................................................... Order to Remedy Violation (Alternate Form).............................................................................. Summons and Complaint – Failure to Maintain Property ..........................................................

101 103 104 105 113 115 116 117

FREEDOM OF INFORMATION Application for Public Access to Records and Response ............................................................ Application for Public Access to Records and Response (Alternate Form)................................ Freedom of Information Request Sample Letter ......................................................................... Preliminary Response to FOI Request......................................................................................... Response to FOI Request.............................................................................................................

129 131 135 136 137

MISCELLANEOUS Adoption of Local Law Resolution.............................................................................................. Consulting Agreement—Intermunicipal ..................................................................................... General Release and Indemnification .......................................................................................... Mobile Homes and Travel Trailers, Town of Corinth.................................................................. Natural Gas Vehicle Permits Local Law...................................................................................... Resolution of Support Regarding Bluestone Gas Corporation .................................................... Noise Control .............................................................................................................................. Noise Control (Alternative Form)................................................................................................ Oil and Gas Lease (DEC) ............................................................................................................ Open Burning, Outdoor Furnaces and Bonfires .......................................................................... Proposal for Engineering Services, Compressed Natural Gas Fuel Filling Station Projects....... Rental Registration Application, City of Binghamton................................................................. Resolution That Zoning Determinations Be Filed With Municipal Clerk................................... Public Works Department Permit Under Highway Law Section 136, Town of Preston ............. Settlement and Release Agreement ............................................................................................. Driveway Design Standards ......................................................................................................... Driveway Building Permit Application .......................................................................................

* All the forms contained in this section are included on the forms CD accompanying this publication.

139 141 147 151 187 193 195 207 211 221 223 231 233 235 237 241 247

PLANNING BOARD Appointment of Ad Hoc Temporary Members to Planning Board Zoning Board of Appeals .... Procedure for Assignment of Alternate Members ....................................................................... Planning Board, Resolution Appointing ...................................................................................... Approved Training Courses, Resolution Designating ................................................................. Training Requirements for Planning Board and ZBA, Local Law Establishing ......................... Training Requirements for Planning Board and ZBA, Resolution Waiving................................ Section 239 Review Submission Form ........................................................................................ 239 Review Submission Form ..................................................................................................... Site Plan Review (Model), Notice of Public Hearing .................................................................. Site Plan Denial ........................................................................................................................... Subdivision Regulations—Map Endorsement .............................................................................

249 251 252 253 255 259 261 262 263 265 267

ROAD USE AGREEMENTS, LOCAL LAWS AND PERMITS Road Use Agreement, Broome County ....................................................................................... Road Use Agreement, Town of Owego ....................................................................................... Road Use and Crossing Agreement (With Exhibits), Amended and Restated ........................... Road Preservation Local Law ...................................................................................................... Road Preservation Law: Town of Sanford ................................................................................... Road Use and Preservation Policy, Resolution Adopting............................................................ Road Use Permits for Vehicles in Excess of Weight Limitations, Town of Kirkwood................ Special Hauling Permit Motor Vehicles, Broome County ........................................................... Special Hauling Permit Agreement, Intermunicipal....................................................................

269 291 303 317 321 331 337 341 345

SEQR Conditioned Negative Declaration of Significance...................................................................... Determination of Type II Action.................................................................................................. Determination That Proposed Activity Does Not Require Environmental Review..................... Environmental Notice Bulletin Form........................................................................................... Lead Agency Notice to Other Interested Agency ........................................................................

349 351 352 353 355

ZONING Adoption of Zoning Local Law (Village), Notice of ................................................................... Resolution Adopting Zoning Local Law (Village) ...................................................................... Amendment to Zoning Local Law............................................................................................... Zoning Amendment (With Determinations) ................................................................................ Resolution Recommending Proposed Amendments to the Town Zoning Code.......................... Application for Change in Zoning ............................................................................................... Comprehensive Plan, Resolution Adopting ................................................................................. Declaration of Covenants and Restrictions to Accommodate Rezoning ..................................... Resolution Accepting Declaration of Covenants and Restrictions ............................................. Resolution Accepting Declaration of Covenants and Restrictions (Alternate Form) .................. County Department of Planning Letter Requesting Review of Variance Application ................ Land Use Change Application Flowchart....................................................................................

357 358 359 361 363 365 369 371 373 374 375 376

ZONING BOARD OF APPEALS Application for Appeal ................................................................................................................ Notice of Public Hearing: Area Variance (Model) ...................................................................... Area Variance Granted (Setback)—Sample Appeal Action ........................................................ Area Variance Denied (Setback)—Sample Appeal Action ......................................................... ZBA Procedure Flowchart ........................................................................................................... Interpretation of Zoning Ordinance—Sample Appeal Action..................................................... Interpretation of Zoning Ordinance or Alternative Variance, Notice of Public Hearing re......... Rehearing—Notice of Public Hearing re Zoning Board of Appeals Decision............................ Special Use Permit, Model .......................................................................................................... Special Use Permit, Town of Sanford West Beach Enterprises LLC .......................................... Special Permit Granted—Sample Appeal Action........................................................................ Special Use Permit, Granted With Conditions............................................................................. Use Variance Model..................................................................................................................... Use Variance Granted—Sample Appeal Action .......................................................................... Use Variance Denied—Sample Appeal Action ........................................................................... Use Variance (Alternate Form)—Decision ................................................................................. Use Variance Findings Form........................................................................................................

377 381 383 385 387 388 389 390 391 393 395 397 399 401 403 405 407

ABOUT THE AUTHORS

595

MICHAEL E. CUSACK, ESQ. Michael E. Cusack is General Counsel to the Dormitory Authority of the State of New York (DASNY). Mr. Cusack is responsible for all legal services, including legislation, litigation, contract matters, and the legal aspects of all DASNY financings. He most recently served as of counsel to the Albany, New York, law firm of Young/Sommer, LLC, where his practice included representation of upstate New York municipalities, telecommunications service providers in the siting of public utility/ personal wireless service facilities and other private sector clients. Previously, Mr. Cusack served as Vice President, General Counsel and Secretary to Independent Wireless One Corporation, a Sprint PCS Network member. He holds a Bachelor of Science degree from Siena College and a Juris Doctor degree from Albany Law School of Union University, and he is a member of the American, New York State and Federal Communications Bar Associations.

HERBERT A. KLINE, ESQ. Herbert A. Kline was with the Binghamton, New York, firm of Pearis, Kline & Barber, LLP continuously from 1957 until 2007 when he became of counsel to Coughlin & Gerhart, LLP. Mr. Kline received his bachelor of arts degree from Syracuse University and his law degree from Harvard Law School. From 1957 through 1968, he was Assistant District Attorney of Broome County. Mr. Kline has been active in municipal law for over 50 years, serving as Town Attorney of the Town of Kirkwood since 1958. From 1979 to 2008 he served as either the Town Attorney or the Deputy Town Attorney of the Town of Colesville, and has served as the Village Attorney of the Village of Port Dickinson since 1992 and Attorney for the Town of Sanford since 2005. From 1994 to 2008 he served as either the Town Attorney or the Deputy Town Attorney of the Town of Triangle. He was elected Chairman of the Municipal Law Section of the New York State Bar Association in 1970 and President of the Association of Towns of the State of New York in 1971. He is a member of the Broome County, New York State, and American Bar Associations. Mr. Kline is the author of New York Municipal Formbook, 1st, 2nd, 3rd and 4th editions (NYSBA 2013). He is also the author of Forms and Outlines of Criminal Procedure for Town Justices and Police, published by the Association of Towns in 1962, 1965, 1971 and 1978, and the Association's 1977 through 2009 editions of Small Claims Guide for Town and Village Courts.

JOHN P. STOCKLI, JR., ESQ. John P. Stockli is a partner in the Albany firm of Stockli Slevin & Peters, LLP. He has over 25 years’ experience in land use, zoning, and real estate law related to the development of commercial and utility projects. Mr. Stockli represents several clients on the sale and leasing of multi-asset real estate portfolios and issues associated with the acquisition of multiple contiguous properties and rights of way for utility projects. He has counseled numerous clients on compliance strategies in the development context and has successfully litigated several land-use cases, including wrongful permit denials for projects ranging from wireless infrastructure to schools and religious organizations. For more than 10 years, Mr. Stockli has been co-author of the New York State Bar Association’s chapter on Land Use and Zoning for the New York Lawyer’s Deskbook. Mr. Stockli has also lectured at numerous professional seminars on environmental and land-use issues. Mr. Stockli is a former Trustee for the New York State Interest on Lawyers Account Fund. He is a graduate of Albany Law School, where he served as Managing Editor for the Albany Law Review. Mr. Stockli is admitted to practice before the Courts of the State of New York and the United States District Court of the Northern District of New York. He is a member of the New York State Bar Association.

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NEW YORK LAWYERS’ PRACTICAL SKILLS SERIES, 2015–2016

PROFESSOR PHILIP WEINBERG Philip Weinberg served as a professor of law at St. John’s University School of Law in Jamaica, New York, for three decades, until his retirement in 2009. A graduate of Columbia University Law School, his primary area of practice is environmental law. Prior to teaching at St. John’s University, Professor Weinberg was the Assistant Attorney General in charge of the Environmental Protection Bureau in the New York State Attorney General’s Office from 1970 to 1978. He currently teaches environmental law at Pace Law School and at Columbia University. Professor Weinberg is a member of the New York State Bar Association (Chair, Environmental Law Section 1988–1989); the New York City Bar Association (Chair, Committee on Environmental Law 1981–1984, Committee on Transportation Law, 1994–1997; Committee on International Environmental Law, 2000–2003; Chair, Downtown Redevelopment Task Force, 2003–2004); and the Association of American Law Schools (Chair, Environmental Law Section, 1983). He has given numerous NYSBA/CLE lectures. His publications include Environmental Law: Cases and Materials (University Press of America, 2006); Practice Commentary, New York Environmental Conservation Law (McKinney’s, 1984 and annual supplements); Environmental Law and Regulation in New York (West, 1996) (co-author); Environmental Impact Review in New York (LexisNexis, 1990 and annual updates) (co-author); Understanding Environmental Law, 2d Edition (LexisNexis 2007) (co-author); and numerous law review articles.