early planning and zoning law in the u.s.€¦ · •hadacheck v. sebastian, 239 u.s. 394 (u.s....
TRANSCRIPT
![Page 1: Early Planning and Zoning Law in the U.S.€¦ · •Hadacheck v. Sebastian, 239 U.S. 394 (U.S. 1915) –Upheld constitutionality of Los Angeles ordinance excluding existing brickyard](https://reader033.vdocuments.us/reader033/viewer/2022060419/5f1693f5f89a8130c8293ec7/html5/thumbnails/1.jpg)
Early Planning and Zoning Law in the U.S.
Stuart Meck, FAICP/PP
Associate Research Professor
Rutgers University, New Brunswick, NJ
Email: [email protected]
Rocky Mountain Land Use Institute Conference
University of Denver Sturm College of Law
Denver, Colorado, March 6, 2013
![Page 2: Early Planning and Zoning Law in the U.S.€¦ · •Hadacheck v. Sebastian, 239 U.S. 394 (U.S. 1915) –Upheld constitutionality of Los Angeles ordinance excluding existing brickyard](https://reader033.vdocuments.us/reader033/viewer/2022060419/5f1693f5f89a8130c8293ec7/html5/thumbnails/2.jpg)
2
Outline
• Covers cases and statutes from 1876 to 1928
• Courts gradually broaden scope of the police
power, at the expense of laissez-faire
• Zoning is a response to massive industrialization
and population growth, chiefly through immigration
and internal migration
• Racism, purposeful economic segregation are also
motives
![Page 3: Early Planning and Zoning Law in the U.S.€¦ · •Hadacheck v. Sebastian, 239 U.S. 394 (U.S. 1915) –Upheld constitutionality of Los Angeles ordinance excluding existing brickyard](https://reader033.vdocuments.us/reader033/viewer/2022060419/5f1693f5f89a8130c8293ec7/html5/thumbnails/3.jpg)
Early Cases
• Munn v. Illinois, 94 U.S. 113 (1876)
– Backed state regulation of maximum charges for storing grain in warehouses
– “When one devotes his property to a use in which the public has an interest, he, in effect, grants to the public an interest in that use, and must submit to be controlled by the public for the common good, to the extent of the interest he has thus created.”
– Expansion of police power, crack in the façade of laissez faire
3
![Page 4: Early Planning and Zoning Law in the U.S.€¦ · •Hadacheck v. Sebastian, 239 U.S. 394 (U.S. 1915) –Upheld constitutionality of Los Angeles ordinance excluding existing brickyard](https://reader033.vdocuments.us/reader033/viewer/2022060419/5f1693f5f89a8130c8293ec7/html5/thumbnails/4.jpg)
Early Cases
• L’Hote v. New Orleans, 177 U.S. 587 (1900)
– Upheld regulations creating red-light district
– “The management of these vocations . . . affect directly the public health and morals . . . . The ordinance is an attempt to protect a part of the citizens from the unpleasant consequences of such neighbors.”
4
![Page 5: Early Planning and Zoning Law in the U.S.€¦ · •Hadacheck v. Sebastian, 239 U.S. 394 (U.S. 1915) –Upheld constitutionality of Los Angeles ordinance excluding existing brickyard](https://reader033.vdocuments.us/reader033/viewer/2022060419/5f1693f5f89a8130c8293ec7/html5/thumbnails/5.jpg)
5
Early Land Use Controls
• 1885—San Francisco bans public laundries in
most areas—aimed at Chinese
• 1886—U.S. Supreme Court invalidates S.F.
ordinance in Yick Wo v. Hopkins, 118 U.S. 356
![Page 6: Early Planning and Zoning Law in the U.S.€¦ · •Hadacheck v. Sebastian, 239 U.S. 394 (U.S. 1915) –Upheld constitutionality of Los Angeles ordinance excluding existing brickyard](https://reader033.vdocuments.us/reader033/viewer/2022060419/5f1693f5f89a8130c8293ec7/html5/thumbnails/6.jpg)
6
Early Land Use Controls
• S.F. restricts dance halls, livery stables,
slaughterhouses, saloons, pool halls
• 1882—Oak Park, Illinois, adopts subdivision
control
• 1885—N.Y. state limits the height of tenements to
1 ½ times the street width
![Page 7: Early Planning and Zoning Law in the U.S.€¦ · •Hadacheck v. Sebastian, 239 U.S. 394 (U.S. 1915) –Upheld constitutionality of Los Angeles ordinance excluding existing brickyard](https://reader033.vdocuments.us/reader033/viewer/2022060419/5f1693f5f89a8130c8293ec7/html5/thumbnails/7.jpg)
7
• 1898—Massachusetts restricts buildings around Copley Square (above) in Boston to 90 feet
• 1909—U.S. Supreme Court upholds height restrictions in Boston in Welch v. Swasey (more below)
• By 1913, 22 cities had height control
![Page 8: Early Planning and Zoning Law in the U.S.€¦ · •Hadacheck v. Sebastian, 239 U.S. 394 (U.S. 1915) –Upheld constitutionality of Los Angeles ordinance excluding existing brickyard](https://reader033.vdocuments.us/reader033/viewer/2022060419/5f1693f5f89a8130c8293ec7/html5/thumbnails/8.jpg)
Early Cases
• Welch v. Swasey, 214 U.S. 91(1909)
– Court sustained building height regulations for the City of Boston that differed between two areas, one of which, the business or commercial part, had a limitation of 125 feet, and the other, used for residential purposes, with a permitted height of buildings from 80 to 100 feet
8
![Page 9: Early Planning and Zoning Law in the U.S.€¦ · •Hadacheck v. Sebastian, 239 U.S. 394 (U.S. 1915) –Upheld constitutionality of Los Angeles ordinance excluding existing brickyard](https://reader033.vdocuments.us/reader033/viewer/2022060419/5f1693f5f89a8130c8293ec7/html5/thumbnails/9.jpg)
9
Early Land Use Controls
• 1909-1915—Los Angeles divides city into 27
districts, including one large zone restricted
to residences
![Page 10: Early Planning and Zoning Law in the U.S.€¦ · •Hadacheck v. Sebastian, 239 U.S. 394 (U.S. 1915) –Upheld constitutionality of Los Angeles ordinance excluding existing brickyard](https://reader033.vdocuments.us/reader033/viewer/2022060419/5f1693f5f89a8130c8293ec7/html5/thumbnails/10.jpg)
10
Racial Zoning Ordinances
• San Francisco (1890—applied to Chinese)
• Baltimore (1910)
• Richmond, Va. (1911)
• Atlanta (1913-24)
• Louisville, Ky. (1914)
• Other eastern and southern cities
Center for Government Services | Bloustein School of Planning and Public Policy | Rutgers, The State University of New Jersey
![Page 11: Early Planning and Zoning Law in the U.S.€¦ · •Hadacheck v. Sebastian, 239 U.S. 394 (U.S. 1915) –Upheld constitutionality of Los Angeles ordinance excluding existing brickyard](https://reader033.vdocuments.us/reader033/viewer/2022060419/5f1693f5f89a8130c8293ec7/html5/thumbnails/11.jpg)
Early Cases
• Reinman v. Little Rock, 237 U.S. 171(1915)
– Upheld ordinance banning the operation of livery stables in the central business district of Little Rock
– “[I]t is clearly within the police power of the state to regulate the business, and to that end to declare that in particular circumstances and in particular localities a livery stable shall be deemed a nuisance in fact and in law, provided this power is not exerted arbitrarily, or with unjust discrimination, so as to infringe upon rights guaranteed by the Fourteenth Amendment.”
11
![Page 12: Early Planning and Zoning Law in the U.S.€¦ · •Hadacheck v. Sebastian, 239 U.S. 394 (U.S. 1915) –Upheld constitutionality of Los Angeles ordinance excluding existing brickyard](https://reader033.vdocuments.us/reader033/viewer/2022060419/5f1693f5f89a8130c8293ec7/html5/thumbnails/12.jpg)
Early Cases
• Hadacheck v. Sebastian, 239 U.S. 394 (U.S. 1915)
– Upheld constitutionality of Los Angeles ordinance excluding existing brickyard from a residential area
– No prohibition on removal of brick clay, only its manufacture into bricks
12
![Page 13: Early Planning and Zoning Law in the U.S.€¦ · •Hadacheck v. Sebastian, 239 U.S. 394 (U.S. 1915) –Upheld constitutionality of Los Angeles ordinance excluding existing brickyard](https://reader033.vdocuments.us/reader033/viewer/2022060419/5f1693f5f89a8130c8293ec7/html5/thumbnails/13.jpg)
13
Site of Hadacheck’s Brickyard Built for Housing in L.A.
![Page 14: Early Planning and Zoning Law in the U.S.€¦ · •Hadacheck v. Sebastian, 239 U.S. 394 (U.S. 1915) –Upheld constitutionality of Los Angeles ordinance excluding existing brickyard](https://reader033.vdocuments.us/reader033/viewer/2022060419/5f1693f5f89a8130c8293ec7/html5/thumbnails/14.jpg)
14
Early Land Use Controls
• By 1913, there were more than 50 buildings in
Manhattan of more than 20 stories and 9 above 30
stories
![Page 15: Early Planning and Zoning Law in the U.S.€¦ · •Hadacheck v. Sebastian, 239 U.S. 394 (U.S. 1915) –Upheld constitutionality of Los Angeles ordinance excluding existing brickyard](https://reader033.vdocuments.us/reader033/viewer/2022060419/5f1693f5f89a8130c8293ec7/html5/thumbnails/15.jpg)
The Equitable
Building
• 120 Broadway
• Completed in 1915
• 38 stories
• Cast shadow over seven acres—concerned property owners
![Page 16: Early Planning and Zoning Law in the U.S.€¦ · •Hadacheck v. Sebastian, 239 U.S. 394 (U.S. 1915) –Upheld constitutionality of Los Angeles ordinance excluding existing brickyard](https://reader033.vdocuments.us/reader033/viewer/2022060419/5f1693f5f89a8130c8293ec7/html5/thumbnails/16.jpg)
The New York City Zoning Ordinance (1916)
• New York legislature authorized zoning in 1913
• Study prepared, effort overseen by Edward Murray Bassett
• Prompted by expansion of garment district & example of Equitable Building
• Simple districting plan, regulating height, bulk, and use
• First comprehensive zoning ordinance
16
![Page 17: Early Planning and Zoning Law in the U.S.€¦ · •Hadacheck v. Sebastian, 239 U.S. 394 (U.S. 1915) –Upheld constitutionality of Los Angeles ordinance excluding existing brickyard](https://reader033.vdocuments.us/reader033/viewer/2022060419/5f1693f5f89a8130c8293ec7/html5/thumbnails/17.jpg)
NYC 1916 Building Height
Map
NYC 1916 Land
Use Map
![Page 18: Early Planning and Zoning Law in the U.S.€¦ · •Hadacheck v. Sebastian, 239 U.S. 394 (U.S. 1915) –Upheld constitutionality of Los Angeles ordinance excluding existing brickyard](https://reader033.vdocuments.us/reader033/viewer/2022060419/5f1693f5f89a8130c8293ec7/html5/thumbnails/18.jpg)
Hugh Ferriss, “Study for the Maximum Mass Permitted by the 1916 NYC Zoning Law,” 1922
![Page 19: Early Planning and Zoning Law in the U.S.€¦ · •Hadacheck v. Sebastian, 239 U.S. 394 (U.S. 1915) –Upheld constitutionality of Los Angeles ordinance excluding existing brickyard](https://reader033.vdocuments.us/reader033/viewer/2022060419/5f1693f5f89a8130c8293ec7/html5/thumbnails/19.jpg)
Berenice Abbott, “Wall Street District,” 1938
![Page 20: Early Planning and Zoning Law in the U.S.€¦ · •Hadacheck v. Sebastian, 239 U.S. 394 (U.S. 1915) –Upheld constitutionality of Los Angeles ordinance excluding existing brickyard](https://reader033.vdocuments.us/reader033/viewer/2022060419/5f1693f5f89a8130c8293ec7/html5/thumbnails/20.jpg)
Early Cases
• Buchanan v. Warley 245 U.S. 60 (1917)
– Unanimous decision striking down racial zoning in Louisville, Ky.
20
![Page 21: Early Planning and Zoning Law in the U.S.€¦ · •Hadacheck v. Sebastian, 239 U.S. 394 (U.S. 1915) –Upheld constitutionality of Los Angeles ordinance excluding existing brickyard](https://reader033.vdocuments.us/reader033/viewer/2022060419/5f1693f5f89a8130c8293ec7/html5/thumbnails/21.jpg)
Village of Euclid v. Ambler Realty Co., 272 U.S. 365 (1926)
• Euclid ordinance had six zones, U-1 to U-6
• Village was located along Lake Erie to east of Cleveland
• Decision upheld constitutionality of zoning on substantive due process grounds
21
![Page 22: Early Planning and Zoning Law in the U.S.€¦ · •Hadacheck v. Sebastian, 239 U.S. 394 (U.S. 1915) –Upheld constitutionality of Los Angeles ordinance excluding existing brickyard](https://reader033.vdocuments.us/reader033/viewer/2022060419/5f1693f5f89a8130c8293ec7/html5/thumbnails/22.jpg)
22
Newton D. Baker represented
Ambler Realty Co.
U.S. Supreme Court Justice
George Sutherland wrote Euclid decision
![Page 23: Early Planning and Zoning Law in the U.S.€¦ · •Hadacheck v. Sebastian, 239 U.S. 394 (U.S. 1915) –Upheld constitutionality of Los Angeles ordinance excluding existing brickyard](https://reader033.vdocuments.us/reader033/viewer/2022060419/5f1693f5f89a8130c8293ec7/html5/thumbnails/23.jpg)
Village of Euclid v. Ambler Realty Co. (U.S. 1926) • “[T]he coming of one apartment house, if followed by others,
interfering by their height and bulk with the free circulation of air and monopolizing the rays of the sun . . . and bringing . . . the disturbing noises incident to increased traffic . . . and the occupation, by means of moving and parked automobiles, of larger portions of the street, thus detracting from their safety . . . until, finally, the residential character of the neighborhood and its desirability . . . are utterly destroyed. . . the reasons are sufficiently cogent to preclude us from saying . . . that such provisions are clearly arbitrary and unreasonable, having no substantial relation to the public health, safety, morals or general welfare.”
23
![Page 24: Early Planning and Zoning Law in the U.S.€¦ · •Hadacheck v. Sebastian, 239 U.S. 394 (U.S. 1915) –Upheld constitutionality of Los Angeles ordinance excluding existing brickyard](https://reader033.vdocuments.us/reader033/viewer/2022060419/5f1693f5f89a8130c8293ec7/html5/thumbnails/24.jpg)
1926—Village of Euclid v. Ambler
Realty Co., 272 U.S. 365, upholds
constitutionality of zoning Center for Government Services | Bloustein School of Planning and Public Policy | Rutgers, The State University of New Jersey
![Page 25: Early Planning and Zoning Law in the U.S.€¦ · •Hadacheck v. Sebastian, 239 U.S. 394 (U.S. 1915) –Upheld constitutionality of Los Angeles ordinance excluding existing brickyard](https://reader033.vdocuments.us/reader033/viewer/2022060419/5f1693f5f89a8130c8293ec7/html5/thumbnails/25.jpg)
25
Ambler Realty Site, Euclid, Ohio
![Page 26: Early Planning and Zoning Law in the U.S.€¦ · •Hadacheck v. Sebastian, 239 U.S. 394 (U.S. 1915) –Upheld constitutionality of Los Angeles ordinance excluding existing brickyard](https://reader033.vdocuments.us/reader033/viewer/2022060419/5f1693f5f89a8130c8293ec7/html5/thumbnails/26.jpg)
Significance of Euclid v. Ambler
• Pretty much gave carte blanche approval to zoning—deferential to local government
• Recognized the parochial dimension of zoning, but still allowed the exclusion of undesirable uses (and people)
• Nuisance a guide, but not a litmus for legality
• “A nuisance may merely be a right thing in the wrong place—like a pig in the parlor instead of the barnyard”
26
![Page 27: Early Planning and Zoning Law in the U.S.€¦ · •Hadacheck v. Sebastian, 239 U.S. 394 (U.S. 1915) –Upheld constitutionality of Los Angeles ordinance excluding existing brickyard](https://reader033.vdocuments.us/reader033/viewer/2022060419/5f1693f5f89a8130c8293ec7/html5/thumbnails/27.jpg)
Significance of Euclid v. Ambler
• The “fairly debatable” rule:
“If the validity of a legislative classification for zoning purposes be fairly debatable, the legislative judgment must be allowed to
control.”
27
![Page 28: Early Planning and Zoning Law in the U.S.€¦ · •Hadacheck v. Sebastian, 239 U.S. 394 (U.S. 1915) –Upheld constitutionality of Los Angeles ordinance excluding existing brickyard](https://reader033.vdocuments.us/reader033/viewer/2022060419/5f1693f5f89a8130c8293ec7/html5/thumbnails/28.jpg)
Nectow v. City of Cambridge, 277 U.S. 183 (U.S. 1928)
• Court invalidated a zoning restriction that applied to Nectow’s property, a portion of which was zoned for residential purposes and the remainder unrestricted
• Nectow attacked the ordinance as depriving him of property without due process of law
• “(A zoning restriction) . . . cannot be imposed if it does not bear a substantial relation to the public health, safety, morals or general welfare”
• Decision established limitations on zoning as applied
28
![Page 29: Early Planning and Zoning Law in the U.S.€¦ · •Hadacheck v. Sebastian, 239 U.S. 394 (U.S. 1915) –Upheld constitutionality of Los Angeles ordinance excluding existing brickyard](https://reader033.vdocuments.us/reader033/viewer/2022060419/5f1693f5f89a8130c8293ec7/html5/thumbnails/29.jpg)
29
![Page 30: Early Planning and Zoning Law in the U.S.€¦ · •Hadacheck v. Sebastian, 239 U.S. 394 (U.S. 1915) –Upheld constitutionality of Los Angeles ordinance excluding existing brickyard](https://reader033.vdocuments.us/reader033/viewer/2022060419/5f1693f5f89a8130c8293ec7/html5/thumbnails/30.jpg)
30
Nectow Site, Cambridge, Mass.
![Page 31: Early Planning and Zoning Law in the U.S.€¦ · •Hadacheck v. Sebastian, 239 U.S. 394 (U.S. 1915) –Upheld constitutionality of Los Angeles ordinance excluding existing brickyard](https://reader033.vdocuments.us/reader033/viewer/2022060419/5f1693f5f89a8130c8293ec7/html5/thumbnails/31.jpg)
Early planning enabling legislation
• 1907—Hartford, CT, becomes the first U.S. city with a permanent planning commission
– Result of special state legislation and charter amendment
31
![Page 32: Early Planning and Zoning Law in the U.S.€¦ · •Hadacheck v. Sebastian, 239 U.S. 394 (U.S. 1915) –Upheld constitutionality of Los Angeles ordinance excluding existing brickyard](https://reader033.vdocuments.us/reader033/viewer/2022060419/5f1693f5f89a8130c8293ec7/html5/thumbnails/32.jpg)
Early planning enabling legislation
• 1909—Wisconsin—first true general purpose planning enabling legislation for cities – Authorized creation of “commission on city plan”
– Specified membership
– Required referral to commission for certain public works for “consideration and report”
– Required referral of plats and replats, both inside and within one mile of city before council approval
– Authorized preparation of “maps” (really plans) for city for new public works, building lines, and use of “expert advice”
32
![Page 33: Early Planning and Zoning Law in the U.S.€¦ · •Hadacheck v. Sebastian, 239 U.S. 394 (U.S. 1915) –Upheld constitutionality of Los Angeles ordinance excluding existing brickyard](https://reader033.vdocuments.us/reader033/viewer/2022060419/5f1693f5f89a8130c8293ec7/html5/thumbnails/33.jpg)
The Standard Acts
• Commerce Secretary Herbert Hoover creates advisory committee in 1921 to draft model state zoning, planning enabling acts
Center for Government Services | Bloustein School of Planning and Public Policy | Rutgers, The State University of New Jersey
![Page 34: Early Planning and Zoning Law in the U.S.€¦ · •Hadacheck v. Sebastian, 239 U.S. 394 (U.S. 1915) –Upheld constitutionality of Los Angeles ordinance excluding existing brickyard](https://reader033.vdocuments.us/reader033/viewer/2022060419/5f1693f5f89a8130c8293ec7/html5/thumbnails/34.jpg)
Origins: The Standard Acts
Edward M. Bassett
![Page 35: Early Planning and Zoning Law in the U.S.€¦ · •Hadacheck v. Sebastian, 239 U.S. 394 (U.S. 1915) –Upheld constitutionality of Los Angeles ordinance excluding existing brickyard](https://reader033.vdocuments.us/reader033/viewer/2022060419/5f1693f5f89a8130c8293ec7/html5/thumbnails/35.jpg)
Origins: The Standard Acts
Alfred Bettman
![Page 36: Early Planning and Zoning Law in the U.S.€¦ · •Hadacheck v. Sebastian, 239 U.S. 394 (U.S. 1915) –Upheld constitutionality of Los Angeles ordinance excluding existing brickyard](https://reader033.vdocuments.us/reader033/viewer/2022060419/5f1693f5f89a8130c8293ec7/html5/thumbnails/36.jpg)
The Standard Acts
• The Standard State Zoning Enabling Act (1922-1926) – Delegated power to zone
– Established procedures for amendments, special exceptions, variances
– Created the board of zoning appeals
– Enigmatic language “in accordance with a comprehensive plan”
![Page 37: Early Planning and Zoning Law in the U.S.€¦ · •Hadacheck v. Sebastian, 239 U.S. 394 (U.S. 1915) –Upheld constitutionality of Los Angeles ordinance excluding existing brickyard](https://reader033.vdocuments.us/reader033/viewer/2022060419/5f1693f5f89a8130c8293ec7/html5/thumbnails/37.jpg)
The Standard Acts
• Standard City Planning Enabling Act (1928) – Established municipal planning commission
– Authorized preparation of master plan
– Required review of proposed public improvements by planning commission
– Authorized subdivision regulation
– Authorized the preparation of the “official map” showing precise location of proposed improvements
– Created regional planning commissions
![Page 38: Early Planning and Zoning Law in the U.S.€¦ · •Hadacheck v. Sebastian, 239 U.S. 394 (U.S. 1915) –Upheld constitutionality of Los Angeles ordinance excluding existing brickyard](https://reader033.vdocuments.us/reader033/viewer/2022060419/5f1693f5f89a8130c8293ec7/html5/thumbnails/38.jpg)
The Standard Acts
• Motivations – Response to post-WWI growth
– Protection of value of land as a commodity
– Delegation of authority to avoid invalidation
– Authority to exclude, backdrop of immigration, racism, especially in the South
![Page 39: Early Planning and Zoning Law in the U.S.€¦ · •Hadacheck v. Sebastian, 239 U.S. 394 (U.S. 1915) –Upheld constitutionality of Los Angeles ordinance excluding existing brickyard](https://reader033.vdocuments.us/reader033/viewer/2022060419/5f1693f5f89a8130c8293ec7/html5/thumbnails/39.jpg)
The Standard Acts
• Assumptions
–Built on nuisance concept
–Concern about congestion
–Land use was local issue
–Not environmental