PF Dev. Grp.

IN THE COURT OF APPEALS OF NORTH CAROLINA

Nos. COA19-533, COA19-534

Filed: 31 December 2020

Harnett County, Nos. 17 CVS 363, 17 CVS 1361

ANDERSON CREEK PARTNERS, L.P.; ANDERSON CREEK INN, LLC;

ANDERSON CREEK DEVELOPERS, LLC; FAIRWAY POINT, LLC; STONE

CROSS, LLC d/b/a STONE CROSS ESTATES, LLC; RALPH HUFF HOLDINGS,

LLC; WOODSHIRE PARTNERS, LLC; CRESTVIEW DEVELOPMENT, LLC;

OAKMONT DEVELOPMENT PARTNERS, LLC; WELLCO CONTRACTORS, INC.;

NORTH SOUTH PROPERTIES, LLC; W.S. WELLONS CORPORATION; ROLLING

SPRINGS WATER COMPANY, INC.; and STAFFORD LAND COMPANY, INC.,

Plaintiffs,

v.

COUNTY OF HARNETT, Defendant.

PF DEVELOPMENT GROUP, LLC, Plaintiff,

v.

COUNTY OF HARNETT, Defendant.

Consolidated appeal by Plaintiffs from order entered 26 November 2018 by

Judge Michael J. O’Foghludha in Superior Court, Harnett County. Heard in the

Court of Appeals 6 February 2020.

Ferguson, Hayes, Hawkins & Demay, PLLC, by James R. DeMay, and

Scarbrough & Scarbrough, PLLC, by James E. Scarbrough, Madeline J.

Trilling, and John F. Scarbrough, for Plaintiffs-Appellants.

Fox Rothschild LLP, by Kip David Nelson, Bradley M. Risinger, and Troy D.

Shelton, and Christopher Appel, for Defendant-Appellee.

McGEE, Chief Judge.

ANDERSON CREEK PARTNERS, L.P., V. COUNTY OF HARNETT

Opinion of the Court

Plaintiffs Anderson Creek Partners, L.P., et al. (“Anderson Creek”), and PF

Development Group, LLC (“PF Development”) (together, the “Developers”), each

brought suit seeking refunds for fees paid to Defendant Harnett County (the

“County”) for water and sewer services “to be furnished” to their future real estate

developments. Each of the two cases was designated to be an exceptional civil case

and the two cases were consolidated for a single decision in the trial court, as well as

consolidated for appeal to this Court.

The Developers appeal from the 26 November 2018 order of the trial court

granting the County’s motion for judgment on the pleadings. The Developers contend

that (1) the trial court erred by taking judicial notice of an interlocal agreement

between the County and its water and sewer districts; (2) the pleadings presented

material issues of fact with respect to whether the County was authorized to charge

fees for services “to be furnished;” and (3) the pleadings presented a viable

unconstitutional conditions claim.

We hold (1) that the trial court did not err in taking judicial notice of the

interlocal agreements because the agreements are public documents; (2) there were

no issues of material fact in the pleadings with respect to whether the County had

authority to charge prospective fees; and (3) the capacity use fees collected by the

County are not subject to review under the unconstitutional conditions doctrine. We

affirm the trial court’s order.

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ANDERSON CREEK PARTNERS, L.P., V. COUNTY OF HARNETT

Opinion of the Court

I. Factual and Procedural Background

A. Interlocal Agreements and Assessment of Fees

The Harnett County Board of Commissioners created a water and sewer

district in Buies Creek (the “Buies Creek District”) to collect wastewater within the

district. The County and the Buies Creek District entered into an interlocal

agreement in 1984 (the “1984 Buies Creek Agreement”), whereby the County agreed

to operate the Buies Creek District’s water and sewer system. The 1984 Buies Creek

Agreement was the subject of the North Carolina Supreme Court decision in McNeill

v. Harnett County, 327 N.C. 552, 398 S.E.2d 475 (1990). In McNeil, the North

Carolina Supreme Court held that counties could lawfully enter into and act upon an

interlocal agreement to operate a water and sewer system on behalf of a water and

sewer district, and could exercise the water and sewer district’s “rights, powers, and

functions” in carrying out those operations. Id. at 559–60, 398 S.E.2d at 479.

By 1998, the County created eight water and sewer districts (the “Districts”)

to manage wastewater across its entire jurisdiction. The County and the Districts

then entered into a joint interlocal agreement in May 1998 (the “1998 Agreement”),

whereby the County agreed to administer the Districts’ water and sewer systems.

Per the 1998 Agreement, the County and the Districts agreed that the County would

lease the Districts’ property; the Districts would transfer their intangible assets to

the County; the County would assume most of the Districts’ liabilities; and the

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Opinion of the Court

County would “administer all operations and maintenance” of the Districts’ water

and sewer systems.

The County then incorporated its duties under the 1998 Agreement into the

Harnett County Water and Sewer Ordinance (the “Ordinance”). See Harnett County,

N.C., Water and Sewer Ordinance (July 1, 2016) [hereinafter, Ordinance]. Pursuant

to section 28(h) of the Ordinance, the County charges landowners “capacity use” fees

(the “Fees”) for future water or sewer service as a mandatory condition prior to the

County issuing approvals and/or permits for developments to real property.

Ordinance § 28(h). The Fees for a single-family residential lot are a one-time, non-

negotiable payment of $1,000 for water and $1,200 for sewer. Ordinance § 28(h).

B. Anderson Creek’s Case

The Developers each sought to build a number of residences in the County in

or around 2017. Cumulatively, the County required the Developers to pay over

$25,000 in Fees prior to issuing its approval for the Developers’ proposed plans.

Anderson Creek filed a complaint against the County on 1 March 2017. The

complaint initially alleged six claims for relief, requesting:

(1) a declaration that the Ordinance and Fees were

unlawful because the County exceeded its authority under

N.C. Gen. Stat. § 153-277 in adopting and enforcing the

Ordinance and Fees, and/or because the Fees lacked an

“essential nexus” and “rough proportionality” to the impact

of the proposed developments on the County’s water and

sewer systems;

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Opinion of the Court

(2) a declaration that the Ordinance and Fees violated the

Developers’ rights to equal protection and substantive due

process under Article I, Section 19 of the North Carolina

Constitution;

(3) a refund to the Developers of all fees exacted by the

County, together with interest at the rate of 6% per annum

pursuant to N.C. Gen. Stat. § 153A-324;

(4) an award of costs, expenses, and attorneys’ fees

pursuant to N.C. Gen. Stat. § 6-21.7 and/or other applicable

law;

(5) an accounting of all fees exacted by the County from the

Developers; and

(6) an order allowing any future Fees required to be paid

into escrow pending the litigation resolution.

The County filed an amended1 answer, counterclaims, and motion for sanctions

in response to Anderson Creek’s complaint on 19 May 2017. Anderson Creek then

filed a motion to amend its complaint on 23 August 2017. The trial court granted the

motion, and Anderson Creek filed an amendment to its complaint asserting a seventh

and eighth claim for relief:

(7) alleging that the County breached the terms of a 4 April

2018 agreement with Anderson Creek, specifically; and

(8) requesting a declaration regarding the severability of a

provision of the agreement with Anderson Creek relating

to the payment of fees from Anderson Creek’s development

properties.

1 The County’s original answer, counterclaims, and motion for sanctions is not included in the

record on appeal.

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ANDERSON CREEK PARTNERS, L.P., V. COUNTY OF HARNETT

Opinion of the Court

The Anderson Creek case was designated an exceptional civil case under Rule

2.1 of the General Rules of Practice for the Superior and District Courts on 27

September 2017 and was reassigned to another Superior Court Judge in Chatham

County.

The County filed an answer and counterclaim in response to Anderson Creek’s

amended complaint on 1 February 2018.2 The County’s counterclaim requested a

declaration that the 1998 Agreement gave the County authority to collect fees

through the Ordinance.

On 12 February 2018, the County filed a Rule 12(c) motion for judgment on the

pleadings as to claims 1 through 6 and 8 of Anderson Creek’s amended complaint,

and filed a motion to join necessary parties or, in the alternative, motion for

permissive joinder of parties. The County attached to its motions the 1984 Buies

Creek Agreement at issue in McNeill, as well as the subsequent 1998 Agreement.

The motions were heard at the 6 August 2018 civil session of Chatham County,

Superior Court.

C. PF Development’s Case

2 The record indicates that the trial court did not grant Anderson Creek’s motion to amend its

complaint until 22 February 2018 and that Anderson Creek’s amended complaint was not filed until

16 March 2018. According to these filing dates, the County filed its answer, counterclaims, and motion

for judgment on the pleadings in response to Anderson Creek’s amended complaint over one week

before the trial court granted the motion to amend and over a month before the amended complaint

was filed. Nevertheless, the County’s answer, counterclaims, and motions evidence its receipt of the

amended complaint and the parties do not bring any arguments regarding the timeliness or

authenticity of the amended complaint.

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ANDERSON CREEK PARTNERS, L.P., V. COUNTY OF HARNETT

Opinion of the Court

PF Development’s complaint was filed against the County on 19 July 2017. Six

claims for relief were alleged in PF Development’s complaint. These claims were

identical to the claims raised in Anderson’s Creek initial complaint. The County filed

an answer denying the material allegations of the complaint and a counterclaim for

declaratory relief on 9 October 2017. PF Development filed a reply to the

counterclaim on 9 November 2017.

The County filed a Rule 12(c) motion for judgment on the pleadings as to all

six of PF Development’s claims, and a motion to join necessary parties or, in the

alternative, motion for permissive joinder of parties on 12 February 2018. The PF

Development case was designated an exceptional civil case on 4 October 2018 and

also reassigned to the same Superior Court Judge in Chatham County.

D. Consolidation for Decision and Appeal

The Developers initially filed a motion to consolidate their cases before the trial

court on 30 January 2018. After consideration of the pleadings, arguments of counsel

at the 6 August 2018 hearing in Anderson Creek’s case, and materials submitted to

the trial court, the trial court informed the Developers that the County’s Rule 12(c)

motion would be partially allowed in Anderson Creek’s case. The Developers again

filed a joint consent motion to consolidate their cases with the trial court on 5 October

2018. The trial court entered an order granting the consent motion to consolidate on

26 November 2018. The parties to the PF Development case elected to accept the

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Opinion of the Court

result of the Anderson Creek case and did not request additional oral argument for

PF Development’s case.

On 26 November 2018, the trial court entered an order (the “Consolidated

Order”) resolving each case, granting: (1) in the Anderson Creek case, the County’s

motion for judgment on the pleadings on claims 1 through 6 and 8 and dismissing

each with prejudice; and (2) in the PF Development case, the County’s motion for

judgment on the pleadings on all claims and dismissing all with prejudice. The

Consolidated Order noted that the court had “taken judicial notice of public

documents appended to [the County’s] Rule 12(c) Motion [] which are May 1998 and

July 1984 Agreements entered into among and between [the County] and other North

Carolina governmental units that are relevant to the matters involved in this action.”

The Consolidated Order also stated that the County’s motions to join necessary

parties or, in the alternative, motions for permissive joinder of parties in each of the

Developers’ cases were moot based on its decision. The Developers filed a

consolidated notice of appeal on 21 December 2018.

II. Analysis

A. Judicial Notice of Public Contracts

We first address the Developers’ argument that the trial court erred by (1)

taking judicial notice of the 1984 Buies Creek Agreement and the 1998 Agreement,

each of which the County attached to its motion for judgment on the pleadings, and

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Opinion of the Court

(2) considering the documents in the determination of its Consent Order. The

Developers contend that the Consent Order is, “in essence, a motion for summary

judgment by ambush” because they were not “afford[ed] an opportunity to reasonably

confront these documents.” Essentially, the Developers claim that they were unduly

surprised by the County’s presentation of the agreements, and placed in the

“untenable position” of having to “defend matters external to the allegations of their

Complaint[.]” We disagree.

The Developers are correct that “[i]f, on a motion for judgment on the

pleadings, matters outside the pleadings are presented to and not excluded by the

court, the motion shall be treated as one for summary judgment and disposed of as

provided in Rule 56[.]” N.C. Gen. Stat. § 1A-1, Rule 12 (2017). However, in deciding

a Rule 12(c) motion for judgment on the pleadings, our Court has held that “courts

must consider the complaint in its entirety, as well as other sources courts ordinarily

examine when ruling on Rule 12(b)(6) motions to dismiss, in particular, documents

incorporated into the complaint by reference, and matters of which a court may take

judicial notice.” QUB Studios, LLC, v. Marsh, 262 N.C. App. 251, 260, 822 S.E.2d

113, 120–21 (2018) (emphasis added) (adopting the United States Supreme Court’s

language in Tellabs, Inc., v. Makor Issues & Rights, Ltd., 551 U.S. 308, 322, 168 L.

Ed. 2d 179, 193 (2007)). To be clear, a court may take judicial notice of matters

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ANDERSON CREEK PARTNERS, L.P., V. COUNTY OF HARNETT

Opinion of the Court

outside the pleadings, where appropriate, without causing the proceeding to convert

from a Rule 12(c) motion to one for summary judgment under Rule 56. Id.

Judicial notice is appropriate where a fact is “not subject to reasonable dispute

in that it is either (1) generally known within the territorial jurisdiction of the trial

court or (2) capable of accurate and ready determination by resort to sources whose

accuracy cannot reasonably be questioned.” N.C. Gen. Stat. § 8C-1, Rule 201 (2017).

North Carolina Courts have long held that “important public documents will be

judicially noticed.” State ex rel. Utils. Comm’n v. S. Bell Tel. & Tel. Co., 289 N.C. 286,

287, 221 S.E.2d 322, 323 (1976) (citing Staton v. Atl. Coast Line Rail Co., 144 N.C.

135, 145, 56 S.E. 794, 797 (1907)). “Important public documents” in this context have

been held to include, among other things, a Utilities Commission order modifying a

joint venture agreement, Town of Midland v. Morris, 209 N.C. App. 208, 214, 704

S.E.2d 329, 335 (2011); a vehicle insurance classification scheme composed by the

North Carolina Rate Bureau, State ex rel. Com’r of Ins. v. N.C. Auto. Rate Admin.

Office, 293 N.C. 365, 381, 239 S.E.2d 48, 58 (1977); and contractual agreements

between a Native American tribe and both the state government and private entities,

Hatcher v. Harrah’s N.C. Casino Co., LLC, 169 N.C. App. 151, 154, 610 S.E.2d 210,

212 (2005). “[A] trial court’s decision concerning judicial notice will not be overturned

absent an abuse of discretion.” Muteff v. Invacare Corp., 218 N.C. App. 558, 568, 721

S.E.2d 379, 386 (2012) (citation omitted).

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ANDERSON CREEK PARTNERS, L.P., V. COUNTY OF HARNETT

Opinion of the Court

The 1984 Buies Creek Agreement and the 1998 Agreement are public contracts

between government entities, Harnett County and its municipal water and sewer

districts. See N.C. Gen. Stat. § 132-1 (2017) (defining documents created by

municipalities, counties, and special districts “in connection with the transaction of

public business” to be public records). These documents are subject to public review,

N.C. Gen. Stat. § 132-1, and their existence is therefore “not subject to reasonable

dispute.” The agreements are important public documents germane to the resolution

of this case; indeed, some of the Developers reference—or even incorporate—the 1998

Agreement in their pleadings. The Developers’ position was far from “untenable.”

The trial court took judicial notice of the existence of the agreements and of the

language therein, then interpreted that language as a matter of law. It was,

therefore, not an abuse of discretion for the trial court to take judicial notice of the

1984 Buies Creek Agreement and the 1998 Agreement and to consider the documents

in its review of the parties’ pleadings.

B. Preemptive Collection of Fees

The Developers primarily contend that the trial court erred in granting the

County’s motion for judgment on the pleadings because the pleadings presented

material issues of fact with respect to whether the County had authorization to

prospectively collect fees for water and sewer services “to be furnished” in the future.

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ANDERSON CREEK PARTNERS, L.P., V. COUNTY OF HARNETT

Opinion of the Court

We hold that the County had authority to collect prospective fees by virtue of the 1998

Agreement.

i. Standard of Review

“We review de novo a trial court’s order granting a motion for judgment on the

pleadings under Rule of Civil Procedure 12(c).” Tully v. City of Wilmington, 370 N.C.

527, 532, 810 S.E.2d 208, 213 (2018) (citation omitted). The moving party must show

that, after considering all well-pleaded factual allegations in the nonmoving party’s

pleadings as true, “no material issue of fact exists and that he is entitled to judgment

as a matter of law.” Id. A defendant moving for judgment on the pleadings must

prove, essentially, that the plaintiff’s pleadings “fail[] to allege facts sufficient to state

a cause of action or admit[] facts which constitute a complete legal bar to a cause of

action.” CommScope Credit Union v. Butler & Burke, LLP, 369 N.C. 48, 51–52, 790

S.E.2d 657, 659–60 (2016) (citations and quotation marks omitted).

This case also requires our review of two interlocal agreements between the

parties. “Generally, ‘the purport of a written instrument is to be gathered from its

four corners, and the four corners are to be ascertained from the language used in the

instrument.’” China Grove 152, LLC, v. Town of China Grove, 242 N.C. App. 1, 9, 773

S.E.2d 566, 572 (2015) (citation omitted).

ii. Authorization to Collect Prospective Fees

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ANDERSON CREEK PARTNERS, L.P., V. COUNTY OF HARNETT

Opinion of the Court

A clear understanding of the question before us first requires discussion of the

statutes and seminal cases which comprise the relevant fee-collecting authority of the

municipal entities involved. Municipalities are entities born purely from “legislative

will” and have no authority or powers apart from those given to them by the General

Assembly. Lutterloh v. City of Fayetteville, 149 N.C. 65, 69, 62 S.E. 758, 760 (1908)

(citations omitted). The General Assembly allows for the creation of municipalities

and expressly delegates powers and authorities to them via enabling statutes. N.C.

Const. art. VII, § 1; Lanvale Props., LLC, v. County of Cabarrus, 366 N.C. 142, 150,

731 S.E.2d 800, 807 (2012) (citations omitted). Acts taken by a municipality that

extend beyond the scope of the powers and authorities statutorily granted to it are

void. City of Asheville v. Herbert, 190 N.C. 732, 735, 130 S.E. 861, 863 (1925)

(citations omitted).

When the Developers sought development permits in early 2017, the County

had the statutory authority only to collect fees for past and present “services

furnished.” The governing statute then stated:

A county may establish and revise from time to time

schedules of rents, rates, fees, charges, and penalties for

the use of or the services furnished by a public enterprise.

N.C. Gen. Stat. § 153A-277(a) (2015) (emphasis added).

The North Carolina Supreme Court held that a nearly identical statute

regarding the fee-collecting authorities of cities did not authorize the collection of

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Opinion of the Court

prospective impact fees in its 2016 decision in Quality Built Homes Inc. v. Town of

Carthage, 369 N.C. 15, 789 S.E.2d 454 (2016). In Quality Built Homes, the town of

Carthage required developers to pay a progressively scaling fee prior to final approval

of the developers’ plats and building permits. Id. at 17, 789 S.E.2d at 456. Carthage

claimed authority to charge these prospective fees under N.C. Gen. Stat. § 160A-314,

which then read:

A city may establish and revise from time to time schedules

of rents, rates, fees, charges, and penalties for the use of or

the services furnished by a public enterprise.

N.C. Gen. Stat. § 160A-314 (2015) (emphasis added). Our Supreme Court held the

plain language of N.C. Gen. Stat. § 160A-314 “clearly and unambiguously

empower[ed] Carthage to charge for the contemporaneous use of water and sewer

services—not to collect fees for future [] spending.” Id. at 20, 789 S.E.2d at 458

(emphasis added) (citation omitted). The statute’s provisions were “operative in the

present tense.” Id.

Our Court addressed similar language enabling a utilities commission to

collect fees in Kidd Construction Group, LLC, v. Greenville Utilities Commission, ___

N.C. App. ___, 845 S.E.2d 797 (2020). In Kidd, the Greenville Utilities Commission

(the “GUC”), a local government entity created by our General Assembly to provide

water and sewer services to Pitt County, collected prospective capacity fees “as a

precondition to development approval, to the issuance of building permits, and to

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Opinion of the Court

receiving service.” Id. at ___, 845 S.E.2d at 799. The charter establishing creation of

the GUC and outlining its powers authorized the GUC to “fix uniform rates for all

services rendered[.]” Id. at ___, 845 S.E.2d at 801. This Court held that the operative

language in GUC’s charter was “functionally equivalent” and “nearly identical” to the

enabling language at issue in Quality Built Homes, and “also fail[ed] to confer

prospective charging authority by lacking the critical ‘to be’ language.” Id. (“Just as

the ‘services furnished’ language did not empower Carthage to impose impact fees

prior to any service being provided, so too does ‘services rendered’ fail to empower

GUC to impose impact fees on builders and developers as a condition of final

development approval.” (citation omitted)).

The only difference between the text of N.C. Gen. Stat. § 160A-314 reviewed in

Quality Built Homes and the text of N.C. Gen. Stat. § 153A-277(a) subject to our

review in this case is the substitution of the word “city” for “county.” We interpret

the nearly identical, plain language of N.C. Gen. Stat. § 153A-277(a) in the same

manner. N.C. Gen. Stat. § 153A-277(a) authorized the County only to assess fees for

the “contemporaneous use” of its water and sewer systems, and otherwise “clearly

and unambiguously fail[ed] to give [the County] the essential prospective charging

power necessary to assess [the Fees].” Quality Built Homes, 369 N.C. at 22, 789

S.E.2d at 459.

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ANDERSON CREEK PARTNERS, L.P., V. COUNTY OF HARNETT

Opinion of the Court

In response to the Quality Built Homes decision, our General Assembly

modified both N.C. Gen. Stat. § 153A-277(a) and N.C. Gen. Stat. § 160A-314 to

authorize counties and cities to collect fees for “services furnished or to be furnished

by any public enterprise.” N.C. Gen. Stat. § 153A-277(a) (2019); N.C. Gen. Stat. §

160A-314 (2019). The General Assembly thus amended each statute to permit the

prospective fee-collecting acts complained of here. The amended language of N.C.

Gen. Stat. § 153A-277(a) became effective 1 October 2017; however, the General

Assembly specified that “[n]othing in th[e] act provides retroactive authority for any

system development fee, or any similar fee for water or sewer services to be furnished,

collected by a local governmental unit prior to October 1, 2017.” PUBLIC WATER

AND SEWER SYSTEM DEVELOPMENT FEE ACT, 2017 North Carolina Laws S.L.

2017-138 (H.B. 436).

The Districts, on the other hand, were authorized to collect prospective fees in

2016. Each of the Districts involved in this case are water and sewer districts created

under chapter 162A of the North Carolina General Statutes and governed by the

Harnett County Board of Commissioners. Water and sewer districts are bodies

corporate and politic which are and were, at all times relevant to this case, authorized

to “contract and be contracted with” and to “establish, revise and collect rates, fees or

other charges and penalties for the use of or the services furnished or to be

furnished[.]” N.C. Gen. Stat. § 162A-88 (2015) (emphasis added). Unlike the versions

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Opinion of the Court

of N.C. Gen. Stat. §§ 153A-277 and 160A-314 in effect when the Developers were

required to pay the Fees, N.C. Gen. Stat. § 162A-88 “included the language ‘services

furnished and to be furnished’ and thus ‘plainly allowed the charge for prospective

services[.]’” Kidd, ___ N.C. App. at ___, 845 S.E.2d at 800 (quoting Quality Built

Homes, 369 N.C. at 20, 789 S.E.2d at 458) (distinguishing N.C. Gen. Stat. § 160A-314

(2015) and N.C. Gen. Stat. § 162A-88 (2015)).

Additionally, local government entities may generally cooperate through

interlocal agreements to carry out their purposes. See N.C. Gen. Stat. §§ 153A-275,

153A-278 (2015). Our Supreme Court has made it clear that a county may contract

with another local government entity to enable the county to exercise authority given

to that entity. Specifically, this issue has been addressed with respect to the County

and its water and sewer districts. In McNeil v. Harnett County, our Supreme Court

held that the 1984 Buies Creek Agreement—the prior interlocal agreement between

the County and the Buies Creek District, one of the Districts in this case—properly

enabled the County to exercise all “rights, powers, and functions granted to water

and sewer districts as found in N.C.G.S. § 162A-88[.]” McNeill, 327 N.C. at 559, 398

S.E.2d at 479.

At all times relevant to this action, counties did not have the authority to

collect prospective fees themselves. However, the Districts each had the authority to

collect prospective fees and were free to contract with the County to enable the

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Opinion of the Court

County to collect prospective fees by exercising the statutory authority of the

Districts. Therefore, the only way the County could have had the authority to charge

any prospective fees would be pursuant to an interlocal agreement through which the

County could exercise authority held by the Districts.3

iii. Issues of Fact

Having explained that the County may only collect fees for services “to be

furnished” by virtue of an interlocal agreement granting such rights, the question

before this Court is whether the 1998 Agreement did grant the County the Districts’

authority to collect prospective fees under N.C. Gen. Stat. § 162A-88.

In McNeil, our Supreme Court held that the County could lawfully enter into

and act under an interlocal agreement to operate a water and sewer system on behalf

of its water and sewer districts:

[P]ursuant to an interlocal cooperative agreement and

pursuant to authority granted in article 15 of chapter

153A, a county may, among other things, operate a water

and/or sewer system for and on behalf of another unit of

local government, such as a water and sewer district, and

in conjunction therewith may exercise those rights, powers,

and functions granted to water and sewer districts as found

in N.C.G.S. § 162A-88 and those rights, powers, and

3 We note that the impact fees charged in Quality Built Homes were assessed on a progressively

scaling basis, whereas the Fees charged by the County in the present case are flat and non-negotiable

charges which the County deems “capacity use” fees. This difference is not material to our

consideration of the County’s prospective fee-collecting authority. The Fees charged by the County

here are “not assessed at the time of actual use, but are payable in full at the time of final subdivision

plat approval—a time when water, sewer, or other infrastructure might not have been built and only

a recorded plat exists” and “requir[e] [the County] to invoke prospective charging power” for future

services. Quality Built Homes, 369 N.C. at 21, 789 S.E.2d at 458–59 (quotation marks and brackets

omitted).

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Opinion of the Court

functions granted to counties in N.C.G.S. ch. 153A, art. 15.

McNeil, 327 N.C. at 559, 398 S.E.2d at 479. The McNeil Court recognized that the

County and the Buies Creek District had entered into the 1984 Buies Creek

Agreement “on 23 July 1984 wherein it was agreed that the [Buies Creek District’s]

sewer system, which had been completed that year, would be operated by Harnett

County through its Department of Public Utilities.” Id. The McNeil Court held that,

pursuant to the 1984 Buies Creek Agreement, the County was “clothed” with “those

powers granted to the [Buies Creek District] in N.C.G.S. § 162A-88[,]” as well as

“those powers set forth in chapter 153A, article 15 of the General Statutes[.]” Id.

Therefore, the 1984 Buies Creek Agreement granted the County the power, among

other things, to “establish, revise and collect rates, fees or other charges and penalties

for the use of or the services furnished or to be furnished by any sanitary sewer

system, water system or sanitary sewer and water system” and to “exercise those

powers[.]” N.C. Gen. Stat. § 162A-88 (emphasis added); McNeil, 327 N.C. at 559, 398

S.E.2d at 479.

The terms of the 1984 Buies Creek Agreement stated, in relevant part, that

the County and the Buies Creek District “agreed to enter into [the] contract for . . .

the operation of the wastewater collection system as a County operated sewer and

wastewater collection system[.]” The contract provided that a newly constructed

“wastewater treatment plant owned by the County” would be operated by the County

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Opinion of the Court

to serve the sewer and wastewater needs of the Buies Creek District. In so doing, the

County was “entitled to fund or cause to be funded the construction of any sewer line

to be connected to the [Buies Creek District’s] system as an extension . . . for the

purpose of serving needy users with wastewater utility services[.]” Notably, the 1984

Buies Creek Agreement made no direct reference to N.C. Gen. Stat. § 162A-88.

The 1998 Agreement provides the County with substantially the same rights

as it was granted in the 1984 Buies Creek Agreement and more clearly incorporates

the Districts’ prospective fee-collecting authority. The 1998 Agreement opens by

acknowledging that it exists pursuant to statutory authority, which includes a

number of statutes “[w]ithout limitation.” The enumerated statutory authorities

include the authority of “two or more . . . units of local government [to] cooperate” in

the “joint provision of enterprisory services” as granted by N.C. Gen. Stat. § 153A-

278. The 1998 Agreement then expressly recognizes that the Districts have the

ability to assess fees for “services furnished or to be furnished” pursuant to N.C. Gen.

Stat. § 162A-88. In a section labeled “Purpose of the Agreement,” the 1998 Agreement

states that its purpose is to “provide a cost efficient method for the administration,

operation, maintenance and expansion of water and . . . wastewater services to each

of the Districts through [the County’s] Department of Public Utilities.” Like the 1984

Buies Creek Agreement, the 1998 Agreement does not make a specific reference to

the County’s receipt of the Districts’ authority to collect prospective fees, but does

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Opinion of the Court

wholly acknowledge an intent between the parties to have the County step into the

Districts’ shoes to efficiently provide water and sewer services throughout each

District. We therefore hold that the 1998 Agreement granted the County the ability

to exercise the Districts’ prospective fee-collecting authority, and that the pleadings

failed to present a material issue of fact regarding the County’s authority to collect

prospective fees.

The Developers’ argue that this case turns, instead, on a different issue:

whether the pleadings show a material issue of fact regarding how the County

assessed the Fees, either by managing the Districts’ infrastructure or by operating

its own county infrastructure. In the Developers’ view, this case presents a “complex

puzzle regarding the Ordinance, the Fees, and the true relationship of the County

and the Districts in the provision of water and sewer service.” The Developers

contend the County had no authority to collect the Fees because “[t]he clear inference

from the [1998 Agreement] is that the County is operating its own, countywide water

and sewer system—not the systems of the Districts.”

We disagree with the Developers’ statement of the issue in this case. The

pleadings may show an issue of fact with respect to whose infrastructure the County

used to assess the Fees, and whether the District even maintained any water and

sewer system of its own, but these issues are not material to the resolution of this

case. Regardless of whether the County is operating its own physical water and sewer

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Opinion of the Court

infrastructure, the Districts’ infrastructure, infrastructure it acquired from the

Districts, or a combination thereof, the issue is whether the County had the authority

to use any means to assess prospective fees for water and sewer services to be

furnished in the future.4 Indeed, the McNeil Court found that the County had this

authority where the 1984 Buies Creek Agreement specified that the County would

operate a “wastewater treatment plant owned by the County” and a “wastewater

treatment facility owned by the County[,]” which were located within the boundaries

of the Buies Creek District and thereafter referred to as “the [Buies Creek District’s]

wastewater collection system” and “the [Buies Creek District’s] wastewater

treatment facility[.]” It was immaterial to the holding of McNeil that the County

owned the infrastructure used. We hold that the 1998 Agreement gave the County

the rights to exercise the Districts’ fee-collecting authority—by any legal means—and

therefore affirm the Consolidated Order.

4 After hearing arguments from counsel regarding the County’s motion for judgment on the

pleadings, the trial court properly understood the issue in this case to be the same:

Legally, it doesn’t matter how they do it; legally, it matters can they

legally do it? But, how they do it doesn’t matter. Isn’t that kind of

irrelevant?

....

They have to have the authority, but, as long as they continue to have

the authority, that’s—that’s the legal threshold issue.

....

[T]he threshold issue for me to decide in this case is whether the [1998

Agreement] is legally—legally different than the [1984 Buies Creek

Agreement] and whether the [1998 Agreement] is not done pursuant to

[N.C. Gen. Stat. § 162A].

(Emphasis added).

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Opinion of the Court

C. Unconstitutional Conditions Doctrine

Lastly, the Developers argue that the pleadings presented a material issue of

fact of whether assessment of the Fees constituted an unconstitutional condition

under the United States Supreme Court’s decision in Koontz v. St. Johns River Water

Management District, 570 U.S. 595, 186 L. Ed. 2d 697 (2013). The Developers’

pleadings claim that, assuming the County had the authority to assess the Fees, the

Fees were nonetheless an unconstitutional condition on the exercise of their property

rights. Thus, this Court is asked to determine whether a generally applicable fee

assessed as a condition precedent to approval of a land-use permit warrants review

under the “unconstitutional conditions doctrine.” For the reasons below, we hold that

it does not and further affirm the Consolidated Order.

The “unconstitutional conditions doctrine” rests on the principle that “the

government may not deny a benefit to a person because he exercises a constitutional

right,” Regan v. Taxation With Representation of Wash., 461 U.S. 540, 545, 76 L. Ed.

2d 129, 136–37 (1983) (citation omitted), and works to “vindicate[] the Constitution’s

enumerated rights by preventing the government from coercing people into giving

them up[,]” Koontz, 570 U.S. at 604, 186 L. Ed. 2d at 708. The United States Supreme

Court has held that the unconstitutional conditions doctrine is particularly relevant

in the context of the land-use permitting process, as landowners are especially

vulnerable to the government’s broad discretion in imposing potentially

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Opinion of the Court

“[e]xtortionate demands” on the grant of land-use permits. Koontz, 570 U.S. at 605,

186 L. Ed. 2d at 708. Government conditions that request the landowner deed land

as an easement or designate a portion of his or her land for a particular use “can

pressure an owner into voluntarily giving up property for which the Fifth Amendment

would otherwise require just compensation.” Id.; U.S. Const. amend. V. However,

where a landowner’s proposed use of real property “threaten[s] to impose costs on the

public” the government may constitutionally require the landowner to “internalize

the negative externalities of their conduct” and make contributions of real property

or finances to mitigate the public costs imposed. Id.

The Supreme Court recognized these competing realities in Nollan v.

California Coastal Commission, 483 U.S. 825, 97 L. Ed. 2d 677 (1987), and Dolan v.

City of Tigard, 512 U.S. 374, 129 L. Ed. 2d 304 (1994). In Nollan and Dolan, the

Court ruled that the government is allowed to condition approval of land-use permits

by requiring the landowner to mitigate the impact of his or her proposed use. Dolan,

512 U.S. at 391, 129 L. Ed. 2d at 320; Nollan, 438 U.S. at 837, 97 L. Ed. 2d at 689.

The government may require that the landowner agree to a particular public use of

the landowner’s real property, as long as there is an “essential nexus” and “rough

proportionality” between the public impact of the landowner’s proposed developments

and the government’s requirements. Dolan, 512 U.S. at 391, 129 L. Ed. 2d at 320;

Nollan, 438 U.S. at 837, 97 L. Ed. 2d at 689.

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Opinion of the Court

In Koontz, the Court extended the application of Nollan/Dolan’s “essential

nexus” and “rough proportionality” requirements to government demands for

monetary contributions where there is a “direct link between the government’s

demand and a specific parcel of real property.” Koontz, 570 U.S. at 614, 186 L. Ed.

2d at 714 (footnote omitted). The plaintiff in Koontz was required to obtain a

Wetlands Resource Management Permit before he could make improvements to his

property which would, among other impacts, raise the elevation of the improved

property. Id. at 599–602, 186 L. Ed. 2d at 704–06. The plaintiff offered to deed a

portion of his property as a conservation easement to the water district to mitigate

the environmental impact of his proposed improvements. Id. The water district

considered the plaintiff’s offer inadequate, and refused to grant the plaintiff’s permit

unless he either (1) agreed to increase the amount of property encumbered by the

proposed conservation easement, or, in the alternative, (2) to deed the conservation

easement as offered and to also pay for environmental improvements to district-

owned real property several miles away. Id. The Koontz Court held that the district’s

second condition also warranted Nollan/Dolan review because such demands for

money operated, essentially, “in lieu of” relinquishments of real property rights, were

therefore “functionally equivalent to other types of land use exactions[,]” and

accomplished the same diminution in the landowner’s property rights: the landowner

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ANDERSON CREEK PARTNERS, L.P., V. COUNTY OF HARNETT

Opinion of the Court

could comply with the request, or be denied the right to use his or real property in

the desired way. Id. at 612, 186 L. Ed. 2d at 713.

In the case before us, the County assessed the Fees as a condition precedent to

its approval of the Developers’ building permits; if the Developers declined to pay the

Fees, the County would have denied the Developers’ permission to begin their desired

construction projects. The Fees in this case were categorized as impact fees and

referred to as “capacity use fees,” despite the County’s requirement that the fees be

paid prior to approval of a developer’s permits.

The Koontz Court stressed that taxes and fees do not trigger review under the

unconstitutional conditions doctrine, and stated: “It is beyond dispute that ‘[t]axes

and user fees . . . are not “takings.”’” Id. at 615, 186 L. Ed. 2d at 715 (citation omitted).

The Koontz Court explained that its holding did “not affect the ability of governments

to impose property taxes, user fees, and similar laws and regulations that may impose

financial burdens on landowners.” Id. But the Koontz Court otherwise provided little

guidance on how courts should tread the fine line between unconstitutional exactions

and constitutional, routine taxes and fees. See Michael B. Kent, Jr., Viewing the

Supreme Court’s Exactions Cases Through the Prism of Anti-Evasion, 87 U. COLO. L.

REV. 827, 871 (2016); Adam Lovelady, The Koontz Decision and Implications for

Development Exactions, Coates’ Canons: N.C. Local Government Law Blog (Dec. 17,

2020), https://canons.sog.unc.edu/the-koontz-decision-and-implications-for-

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Opinion of the Court

development-exactions/ (opining that the majority opinion in Koontz did not provide

a clear test for distinguishing permissible taxes and fees from potentially

unconstitutional exactions). Indeed, the dissenting justices in Koontz warned that

the majority’s decision extended the “notoriously ‘difficult’ and ‘perplexing’

standards” of the Fifth Amendment Takings Clause “into the very heart of local land-

use regulation and service delivery[,]” including the levy of fees to “cover the direct

costs of providing services like sewage or water to [a] development.” Koontz, 570 U.S.

at 626, 186 L. Ed. 2d at 722 (Kagan, J., dissenting) (citations omitted). The dissenting

justices concluded that these fees—such as the Fees at issue in the present case—

“now must meet Nollan and Dolan’s nexus and proportionality tests.” Id. at 627, 186

L. Ed. 2d at 722.

Neither party in this case briefed any North Carolina precedent, and our own

review has found no precedent, which speaks directly to the application of the

unconstitutional conditions doctrine to monetary exactions in North Carolina. Cf.

Homebuilders Ass’n of Charlotte, Inc., v. City of Charlotte, 336 N.C. 37, 46, 442 S.E.2d

45, 51 (1994) (assessing the legality of the city’s user fees without reviewing their

constitutionality); River Birch Assocs. v. City of Raleigh, 326 N.C. 100, 120–22, 388

S.E.2d 538, 550–51 (1990) (applying Nollan and holding no constitutional taking

occurred where the city required a dedication of real property as condition precedent

to permit approval, but the plaintiff’s permit was denied for other valid reasons). At

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Opinion of the Court

a minimum, this is the first time North Carolina appellate courts have been asked to

address this issue since the United States Supreme Court decided Koontz in 2013.

This Court most closely addressed the constitutionality of government

exactions in any form as takings in its 1989 decision in Franklin Road Properties v.

City of Raleigh, 94 N.C. App. 731, 381 S.E.2d 487 (1989). In Franklin Road, the city

of Raleigh refused to issue building permits for a subdivision requested by the

plaintiff because the plaintiff would not comply with city ordinances which required

the plaintiff to “dedicate and pave a portion of its property as part of [a] right-of-way”

prior to approval of a building permit. Franklin Rd., 94 N.C. App. at 734, 381 S.E.2d

at 489. The plaintiff sued seeking a declaratory judgment of its rights with respect

to the city ordinances, and the trial court granted summary judgment to the

defendant city of Raleigh. Id. This Court reviewed the constitutionality of the city

ordinance’s requirement that the plaintiff dedicate a portion of its land as a public

right-of-way. Id.

The Franklin Road Court concluded that the city ordinance was an “exaction”

which required constitutional scrutiny under North Carolina’s “rational nexus” test,

adopted only six months earlier in the 1989 opinion of Batch v. Town of Chapel Hill,

92 N.C. App. 601, 376 S.E.2d 22 (1989), rev’d, 326 N.C. 1, 387 S.E.2d 655 (1990). Id.

at 737, 381 S.E.2d at 491. The Franklin Road Court explained:

In [a] portion of our opinion in Batch we concluded that the

town’s requirement that plaintiff dedicate a portion of her

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ANDERSON CREEK PARTNERS, L.P., V. COUNTY OF HARNETT

Opinion of the Court

property as a right-of-way for the proposed [parkway] was

an “exaction.” In defining “exaction” we stated:

[A]n exaction is a condition of development permission that

requires a public facility or improvement to be provided at

the developer’s expense. Most exactions fall into one of four

categories: (1) requirements that land be dedicated for

street rights-of-way, parks, or utility easements and the

like; (2) requirements that improvements be constructed or

installed on land so dedicated; (3) requirements that fees

be paid in lieu of compliance with dedication or

improvement provisions; and (4) requirements that

developers pay “impact” or “facility” fees reflecting their

respective prorated shares of the cost of providing new

roads, utility systems, parks, and similar facilities serving

the entire area.

We further stated that “Not all exactions are constitutional

takings.” To aid a trial court in determining whether an

exaction is an unconstitutional taking, we adopted the

following rational nexus test:

To determine whether an exaction amounts to an

unconstitutional taking, the court shall: (1) identify the

condition imposed; (2) identify the regulation which caused

the condition to be imposed; (3) determine whether the

regulation substantially advances a legitimate state

interest. If the regulation substantially advances a

legitimate state interest, the court shall then determine (4)

whether the condition imposed advances that interest; and

(5) whether the condition imposed is proportionally related

to the impact of the development.

Id. at 736, 381 S.E.2d at 490 (emphasis added) (citing Batch, 92 N.C. App. at 613–14,

621, 376 S.E.2d at 30, 34).

Notably, though, the North Carolina Supreme Court reversed Batch a year

later, holding that the Town of Chapel Hill properly denied the plaintiff’s request for

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Opinion of the Court

a subdivision building permit because the permit failed to comply with town

ordinances requiring permits to contemplate coordination with the town’s

transportation plans. Batch v. Town of Chapel Hill, 326 N.C. 1, 13, 387 S.E.2d 655,

663 (1990). Based on this holding, the Court declined to address any other reason

why the permit was or may have been denied, and, particularly, did “not find it

necessary to review or decide any of [the] plaintiff’s constitutional claims or other

issues arising upon her complaint.” Id. at 13, 14, 387 S.E.2d at 663.

As a result, North Carolina law in regard to exactions as takings is without

foundation and has not been updated following Dolan and Koontz. The definition of

“exaction” and the “rational nexus” test presented in Franklin Road (and derived

from the Court of Appeals decision in Batch) were developed after the United States

Supreme Court decided Nollan, but prior to its decisions in Dolan and Koontz.

Nonetheless, Franklin Road addressed potentially unconstitutional exactions in

North Carolina by employing a “rational nexus” test which in many ways mirrors the

“essential nexus” and “rough proportionality” requirements of Nollan/Dolan, and

which also preemptively addressed Koontz’s later extension of those requirements to

monetary exactions “in lieu of” physical takings of land or as recompensation for the

impact of a proposed development.

The Developers cite to decisions from other states that have issued rulings

regarding the thin line between unconstitutional exactions and constitutional user

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Opinion of the Court

fees. However, we find most of these cases unpersuasive because they involve these

courts’ attempts to apply the real property-focused decisions in Nollan/Dolan alone

to exactions and fees, prior to the United States Supreme Court’s decision in Koontz.

See Home Builders Ass’n of Dayton & the Miami Valley v. City of Beavercreek, 729

N.E.2d 349, 356 (Ohio 2000); Trimen Dev. Co. v. King Cty., 877 P.2d 187, 194 (Wash.

1994); N. Ill. Home Builders Ass’n, Inc. v. Cty. of Du Page, 621 N.E.2d 1012, 1020 (Ill.

App. Ct. 1993), aff’d in part, rev’d in part, 649 N.E.2d 384 (Ill. 1995). These cases

were part of the pre-Koontz division of authority over whether a demand for money

could give rise to an unconstitutional conditions claim under Nollan/Dolan—a

division which Koontz settled in the affirmative. See Koontz, 570 U.S. at 603, 186 L.

Ed. 2d at 707.

The most persuasive case cited by the parties is the 2018 decision of Maryland’s

highest court in Dabbs v. Anne Arundel County, 182 A.3d 798 (Md. 2018), which cites

to Koontz in holding that a generally applicable fee does not invoke the

unconstitutional conditions doctrine. In Dabbs, the plaintiffs sought refunds for

impact fees paid to their county in connection with real estate developments; the fees

were collected to facilitate future improvements to transportation and education

infrastructure within the county. Id. at 801–02. The impact fees at issue were

“legislatively-imposed[,] predetermined, based on a specific monetary schedule, and

applie[d] to any person wishing to develop property in the district.” Id. at 811. The

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Opinion of the Court

plaintiffs argued that the impact fees were takings subject to the “essential nexus”

and “rough proportionality” requirements of Nollan/Dolan. Id. at 807–08. The

Dabbs Court acknowledged that Koontz extended the protections of Nollan/Dolan to

instances where there is a “‘direct link between the government’s demand and a

specific parcel of real property[,]’” but noted Koontz’s insistence that “‘taxes [and] user

fees . . . that may impose financial burdens on [land]owners’” are not takings under

Nollan/Dolan. Id. at 809–10 (citing Koontz, 570 U.S. at 614, 615, 186 L. Ed. 2d at

714, 715).

The Dabbs Court held that the impact fees were not subject to scrutiny under

Nollan/Dolan because, “[u]nlike Koontz, the Ordinance [did] not direct a [land]owner

to make a conditional monetary payment to obtain approval of an application for a

permit of any particular kind, nor [did] it impose the condition on a particularized or

discretionary basis.” Id. at 811 (citation omitted). Instead, the ordinance at issue in

Dabbs “applied on a generalized district-wide basis, making no determination as to

whether an actual permit will issue to a payor individual with a property interest.”

Id. (citing Koontz, 570 U.S. at 628, 186 L. Ed. 2d at 723 (Kagan, J., dissenting)

(commenting that the majority’s holding should apply “only to permitting fees that

are imposed ad hoc, and not to fees that are generally applicable”)). The Dabbs Court

further based its decision on its understanding that Dolan recognized that impact

fees “imposed on a generally applicable basis are not subject to a rough

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Opinion of the Court

proportionality or nexus analysis.” Id. (citing Dolan, 512 U.S. at 385, 129 L. Ed. 2d

at 316).

We find the holding of Dabbs persuasive and find it in harmony with both the

United States Supreme Court’s decision in Koontz and the definition of “exaction”

employed by this Court in Franklin Road. In Franklin Road, this Court defined

“exaction” to include fees assessed “in lieu of compliance with dedication or

improvement provisions” or fees “reflecting [developers’] respective prorated shares

of the cost of providing new [infrastructure.]” Franklin Rd., 94 N.C. App. at 736, 381

S.E.2d at 490. This definition did not include fees assessed on a generally applicable

basis in a static quantity indifferent to the particular developers’ prorated share of

any resulting impact. We hold that impact and user fees which are imposed by a

municipality to mitigate the impact of a developer’s use of property, which are

generally imposed upon all developers of real property located within that

municipality’s geographic jurisdiction, and which are consistently imposed in a

uniform, predetermined amount without regard to the actual impact of the

developers’ project do not invoke scrutiny as an unconstitutional condition under

Nollan/Dolan nor under North Carolina precedent.

The Fees assessed in the present case are similar to those assessed in Dabbs.

The parties agree that, under Section 28(h) of the Ordinance, any landowner who

wishes to develop a single-family residential lot in the County must pay one-time fees

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Opinion of the Court

of $1,000 for water and $1,200 for sewer. Ordinance § 28(h). The Fees are

predetermined, set out in the Ordinance, and non-negotiable; the Fees are not

assessed on an ad hoc basis or dependent upon the landowner’s particular project.

Ordinance § 28(h). The Fees are assessed in conjunction with the landowner’s intent

to make use of real property located within the County’s jurisdiction, but, unlike the

conditions imposed in Koontz, the County does not view a landowner’s proposed

project and then make a demand based upon that specific parcel of real property.

Koontz, 570 U.S. at 613, 186 L. Ed. 2d at 714 (holding Nollan/Dolan scrutiny applied

where there is a “direct link between the government’s demand and a specific parcel

of real property”).

We recognize that Dabbs is distinguishable from the present case in that the

Fees here were assessed prior to the County’s grant of building permits, thus making

them a condition of approval. The Dabbs Court expressly based its holding, in part,

on the fact that the fees at issue were not “a conditional monetary payment to obtain

approval of an application for a permit of any particular kind[.]” Dabbs, 182 A.3d at

811. This distinction speaks directly to the types of coercive harms that the United

States Supreme Court sought to prevent in Koontz: the unconstitutional conditions

doctrine seeks to prevent the government from leveraging its legitimate interest in

mitigating harms by imposing “[e]xtortionate demands” which may “pressure a[]

[land]owner into voluntarily giving up property for which the Fifth Amendment

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Opinion of the Court

would otherwise require just compensation.” Koontz, 570 U.S. at 605–06, 186 L. Ed.

2d at ___; but see id. at 607, 186 L. Ed. 2d at 709 (“Our unconstitutional conditions

cases have long refused to attach significance to the distinction between conditions

precedent and conditions subsequent.” (citation omitted)). Nonetheless, we do not

find the distinction material in this case. Regardless of whether the Fees were to be

paid prior to or after the Developers began their projects, the fees were predetermined

and are uniformly applied—not levied against the Developers on an ad hoc basis—

and thus do not suggest any intent by the County to bend the will or twist the arm of

the Developers.

Therefore, we hold that the Developers’ pleadings failed to present a

constitutional takings claim under current federal and state unconstitutional

conditions jurisprudence as a matter of law. The trial court had no duty to apply the

unconstitutional conditions doctrine to the Fees; rather, the court needed only ensure

that, if the County “[did] have the authority to assess user fees to defray the costs of

[future services to be rendered,] such fees [were not] upheld if they [were]

unreasonable.” Homebuilders Ass’n of Charlotte, 336 N.C. at 46, 442 S.E.2d at 51

(citation omitted).

III. Conclusion

We hold that the trial court did not abuse its discretion in taking judicial notice

of the 1984 Buies Creek Agreement and the 1998 Agreement. Further, we hold that

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Opinion of the Court

the 1998 Agreement granted the County the contractual right to exercise the

Districts’ prospective fee-collecting authority, and the County properly exercised that

authority in collecting the Fees. We further hold that the Developers failed to present

a viable constitutional claim because generally applicable impact and user fees, such

as the Fees in this case, are not subject to the unconstitutional conditions doctrine.

We affirm the trial court’s Consolidated Order.

AFFIRMED.

Judges STROUD and BROOK concur.

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