reviewing de novo dismissal of a petition for judicial review
How later courts described this case
- reviewing de novo dismissal of a petition for judicial review
Written by the judges who cited it.
The opinion
In the Missouri Court of Appeals
Western District
RITA AUST, et al., )
Appellants, )
v. )
) WD78181
PLATTE COUNTY, MISSOURI, )
PC HOMES L.L.C., )
KELLY JO YULICH TRUST, ) FILED: December 29, 2015
ARLENE KAGAN and WENDY WINER, )
Respondents. )
APPEAL FROM THE CIRCUIT COURT OF PLATTE COUNTY
THE HONORABLE GERALD D. MCBETH, JUDGE
BEFORE DIVISION THREE: KAREN KING MITCHELL, PRESIDING JUDGE, LISA WHITE
HARDWICK AND ANTHONY REX GABBERT, JUDGES
Rita Aust and 41 other Platte County property owners ("Appellants") appeal
the circuit court's judgment dismissing their petition for a writ of certiorari,
declaratory judgment, and preliminary and permanent injunctions against Platte
County. Appellants filed the petition after the Platte County Commission approved
PC Homes, LLC's request to rezone certain property from "agricultural" and "rural
estates" to "planned residential." Appellants contend the court erred in dismissing
their petition because: (1) they provided proper notice to all parties; (2) their failure
to file the record of the administrative proceedings within the statutorily-required
time frame was not fatal to their claim; (3) declaratory relief was available to them;
and (4) they sufficiently pled a claim for injunctive relief. For reasons explained
herein, we affirm.
FACTUAL AND PROCEDURAL HISTORY
PC Homes, a real estate developer, entered into a purchase agreement with
the Kelly Jo Yulich Trust, Arlene Kagan, and Wendy Winer1 to buy their real
property for the purpose of developing it into the Chapel Ridge Development, a
residential single-family community in Platte County. In July 2013, Intervenors
submitted an application to the Platte County Planning and Zoning Commission to
rezone the Chapel Ridge Development property. In that application, Intervenors
sought to change the property's zoning designation from "agricultural" and "rural
estates" to "single family high density." Following a public hearing, the planning
and zoning commission voted unanimously to deny the application.
Intervenors submitted a second application modifying their request to the
Platte County Planning and Zoning Commission in October 2013. Instead of
seeking the "single family high density" classification, Intervenors requested to
change the property's zoning classification to "planned residential." Following
another public hearing, the Platte County Planning and Zoning Commission voted
unanimously to deny Intervenors' second application.
1
PC Homes, Kelly Jo Yulich Trust, Arlene Kagan, and Wendy Winer will be referred to collectively
as "Intervenors."
2
Intervenors then submitted their request to rezone the property to the Platte
County Commission ("Commission"). The Commission held a hearing. One
Commissioner recused himself from the proceedings due to a conflict of interest.
As for the two remaining Commissioners, one voted against Intervenors' request,
while the Presiding Commissioner voted in favor of it. By statute, the Presiding
Commissioner's vote prevails in the event of a tie. Thus, the Commission approved
the Intervenors' request to rezone the Chapel Ridge Development property from
"agricultural" and "rural estates" to "planned residential."
Appellants subsequently filed a petition in the Circuit Court of Platte County
for a writ of certiorari and declaratory judgment declaring that the Commission's
decision was illegal, unreasonable, and arbitrary and ordering that the "planned
residential" zoning and platting be denied or rescinded. Appellants also sought
injunctive relief enjoining Platte County from allowing the Chapel Ridge
Development to develop under the "planned residential" zoning classification. The
only named defendant in their petition was Platte County. Less than a month later,
Appellants filed a first amended petition. Their first amended petition sought the
same relief and again named Platte County as the only defendant. Shortly
thereafter, Intervenors filed a motion to intervene.
Platte County filed a motion to dismiss Appellants' first amended petition.
Platte County asserted four grounds for dismissal: (1) Appellants failed to join
necessary and indispensable parties, specifically, Intervenors and the Commission;
(2) Appellants failed to file, within 30 days after filing their petition, the record of
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the proceedings before the Commission as required by Section 536.130, RSMo
2000;2 (3) Appellants could not obtain declaratory relief because a writ of certiorari
was the only available method for judicial review of the Commission's decision; and
(4) Appellants could not obtain injunctive relief because their petition had little
probability of success on the merits and they failed to plead facts sufficient to
entitle them to injunctive relief.
After Platte County filed its motion to dismiss, Appellants filed a motion for
leave to file a second amended petition and to join additional parties. In their
motion, Appellants stated that they wanted to add the Platte County
Commissioners, in their official capacities, as defendants and to add a specific
request that the court direct Platte County and the Platte County Commissioners to
file responsive pleadings, prepare a record of the pertinent Commission
proceedings, and transmit the record to the Platte County Clerk of the Court.
The circuit court held a hearing on Intervenors' motion to intervene, Platte
County's motion to dismiss, and Appellants' motion for leave to file a second
amended petition and to join additional parties. During the hearing, the court
granted Intervenors' motion to intervene. Following the hearing, the court entered
an order dismissing Appellants' first amended petition. At Appellants' request, the
court designated the dismissal order as a final judgment for purposes of appeal.
Appellants filed this appeal.
STANDARD OF REVIEW
2
All statutory references are to the Revised Statutes of Missouri 2000, as updated by the 2013
Cumulative Supplement.
4
We review the grant of a motion to dismiss de novo. Vogt v. Emmons, 158
S.W.3d 243, 247 (Mo. App. 2005). In reviewing the petition, we accept the
allegations in the petition as true and grant the plaintiffs all reasonable inferences
from those allegations. Campbell v. Cty. Comm'n of Franklin Cty., 453 S.W.3d
762, 767 (Mo. banc 2015). We will affirm the dismissal on any meritorious ground
stated in the motion. Bethman v. Faith, 462 S.W.3d 895, 899 (Mo. App. 2015).
ANALYSIS
In their four points on appeal, Appellants challenge each of the grounds
raised in Platte County's motion to dismiss. We will address Points I and II
together. In Point I, Appellants assert that the circuit court erred in dismissing their
petition for failure to join the Commission as a party. In Point II, Appellants
contend the circuit court erred in dismissing their petition for failing to timely file
the record. As both of these points concern the procedure for judicial review of
zoning actions, a brief discussion of that procedure is in order.
The circuit court's authority to review the Commission's decision arises from
Section 64.660. This statute provides the procedure for judicial review of zoning
actions in second and third class counties. According to Platte County, although it
is a non-charter first class county, its planning and zoning program continues to
operate pursuant to Sections 64.510 to 64.690, the statutory scheme applicable to
second and third class counties.3 To change its planning and zoning program and
3
Case law indicates that Platte County was a second class county, Miller v. Browning-Ferris
Industries, 674 S.W.2d 150, 152 (Mo. App. 1984), before it became a non-charter first class
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adopt the program applicable to non-charter first class counties under either
Sections 64.211 to 64.295 or Sections 64.800 to 64.905, Platte County would
have to hold an election and obtain voter approval. §§ 64.211 and 64.800. It is
undisputed that Platte County has never held such an election. Therefore, Platte
County's planning and zoning program is subject to the provisions of Section
64.510 to 64.690, including Section 64.660's provision for judicial review.
Section 64.660 is to be read in pari materia with Chapter 536, the
Administrative Procedures Act. State ex rel. State Tax Comm'n v. Luten, 459
S.W.2d 375, 378 (Mo. banc 1970). Pursuant to Rule 100.01, "The provisions of
sections 536.100 through 536.150, RSMo, shall govern procedure in circuit courts
for judicial review of actions of administrative agencies unless the statute
governing a particular agency contains different provisions for such review."
Hence, Sections 536.100 through 536.150 govern any procedural matters not
addressed in Section 64.660.
Section 64.660.2 provides, in pertinent part, that any owners of land
aggrieved by any decision of the board of adjustment or county commission under
the provisions of Sections 64.510 to 64.695 "may present to the circuit court of
the county in which the property affected is located, a petition, duly verified,
stating that the decision is illegal in whole or in part, specifying the grounds of the
illegality and asking for relief therefrom." The petition is to be presented to the
county on January 1, 1993, Parkville Benefit Assessment Special Road District v. Platte County,
906 S.W.2d 766, 767 (Mo. App. 1995).
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circuit court within 30 days after the mailing or delivery of the notice of the
agency's decision. § 536.110.1; Luten, 459 S.W.2d at 378.
After the petition is presented to the circuit court, Section 64.660.2 details
what happens next:
Upon the presentation of the petition the court shall allow a writ of
certiorari directed to the board of adjustment or the county
commission, respectively, of the action taken and data and records
acted upon, and may appoint a referee to take additional evidence in
the case. The court may reverse or affirm or may modify the decision
brought up for review.
Thus, after an aggrieved landowner presents a petition to the circuit court
challenging an agency's zoning action, the court is to issue a writ of certiorari
directed to the agency, which in this case is the Commission, compelling it to
provide the court with the complete record upon which the action was taken. See,
e.g., Campbell, 453 S.W.3d at 764 (noting that, after a petition seeking judicial
review under an identical provision in Section 64.870.2 was filed, the circuit court
"issued a writ of certiorari to the commission, directing it to provide the court with
a certified copy of the complete record pertaining to the commission's decision").
Here, Appellants filed their petition asserting the illegality of the
Commission's decision in the circuit court within 30 days after the decision. In
Count I, they asked the court to "issue its Writ of Certiorari and review the decision
made by the Platte County Commission." Appellants named only Platte County,
however, and not the Commission, as a party to the case. After the petition was
filed in the circuit court, the court never issued a writ of certiorari directed to the
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Commission, and the Commission did not provide the court with a certified copy of
the complete record pertaining to its decision.
It was Appellants' responsibility to ensure that the record was filed within 30
days of the filing of their petition. Section 536.130.1 provides:
1. Within thirty days after the filing of the petition or within
such further time as the court may allow, the record before the
agency shall be filed in the reviewing court. Such record shall consist
of any one of the following:
(1) Such parts of the record, proceedings and evidence before
the agency as the parties by written stipulation may agree upon;
(2) An agreed statement of the case, agreed to by all parties
and approved as correct by the agency;
(3) A complete transcript of the entire record, proceedings and
evidence before the agency. Evidence may be stated in either
question and answer or narrative form. Documents may be abridged
by omitting irrelevant and formal parts thereof. Any matter not
essential to the decision of the questions presented by the petition
may be omitted. The decision, order and findings of fact and
conclusions of law shall in every case be included.
Section 536.130.4 further provides that "[t]he record to be filed in the reviewing
court shall be filed by the plaintiff, or at the request of the plaintiff shall be
transmitted by the agency directly to the clerk of the reviewing court and by him
filed[.]" Thus, under Section 536.130, the record is to be filed by the plaintiff, or
by the agency at the plaintiff's request, within 30 days unless the plaintiff obtains
an extension of time.
Where the record is not filed within the 30-day period, the circuit court has
the discretion to dismiss the petition for review. City of Richmond v. Suddarth,
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120 S.W.3d 212, 215 (Mo. App. 2003). A circuit court contemplating dismissing
a petition for failure to timely file an adequate record under Section 536.130 "need
not first find that movant agency has proved that it produced an adequate record."
Id. at 218. The court also need not "find that noncompliance with Section
536.130 prejudiced the movant before dismissing the petition." Id.
Appellants, the plaintiffs below, did not file the record within 30 days after
filing their petition. Appellants' failure to file the record within 30 days was caused
by their failure to follow Section 64.660's procedure to seek a writ of certiorari
directed to the Commission to provide the record to the circuit court as required by
Section 64.660.2. Appellants sought a writ of certiorari directed to Platte County,
which is a different entity than the Commission. Platte County was not the agency
that made the decision under review and could not have provided the record to the
circuit court. Appellants never sought to join the Commission as a party and never
asked that the court issue a writ of certiorari directed to the Commission. While
they did request leave to file a second amended petition joining the individual
Commissioners in their official capacities as parties and adding a specific request
that the court direct Platte County and the Commissioners to prepare and transmit
the record to the circuit court, this request was made more than 30 days after they
filed their petition. The court effectively overruled Appellants' motion for leave to
file a second amended petition when it granted Platte County's motion to dismiss,
and Appellants do not assert in any of their points relied on that the court erred in
failing to grant them leave to file their second amended petition. Moreover, the
9
record does not indicate that Appellants ever requested leave to file the record
late.4 Because Appellants failed to seek a writ of certiorari against the proper party
under Section 64.660 and, in turn, failed to file the record within the 30-day period
prescribed by Section 536.130, the circuit court did not abuse its discretion in
dismissing Appellants' petition for writ of certiorari. Points I and II are denied.
In Point III, Appellants contend the court erred in dismissing their request for
a declaratory judgment. In Count II of their first amended petition, Appellants
requested that the court declare that the Commission's decision was "illegal,
unreasonable, and arbitrary" and to rescind the "planned residential" classification.
Because Section 64.660 provides for judicial review of the Commission's
zoning decisions through a petition for writ of certiorari, however, a declaratory
judgment is not available to Appellants. Gash v. Lafayette County, 245 S.W.3d
229, 233 (Mo. banc 2008).5 The existence of this legal remedy precludes
declaratory relief. Id. The court properly dismissed Appellants' request for a
declaratory judgment. Point III is denied.
4
Appellants also contend that they entered into a stipulation with Platte County concerning the
record, as provided for in Section 536.130.1(1). The record indicates that the stipulation was
contingent upon the court's denying Platte County's motion to dismiss. The court granted the
motion to dismiss. Moreover, Intervenors were not a party to the stipulation.
5
Gash was interpreting Section 64.870.2, which provides for judicial review of zoning decisions in
fourth class counties. 245 S.W.3d at 232. There was confusion in Gash as to whether the county
was subject to the zoning statutes applicable to fourth class counties or second and third class
counties. Id. at 232 n.6. The Court determined that it made no difference whether the county
zoned under those statutes applicable to fourth class counties (Sections 64.800 to 64.900) or those
applicable to second and third class counties (Sections 64.510 to 64.727) because "there are no
material differences" between Section 64.870 and Section 64.660. Id.
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In Point IV, Appellants assert that the court erred in denying their request for
injunctive relief. In Count III of their first amended petition, Appellants asked the
court to enjoin Platte County from allowing the development of the Chapel Ridge
property under the "planned residential" classification.
Parties are not entitled to seek or receive equitable relief, such as an
injunction, "unless the facts pleaded in the petition show they lack an adequate
remedy at law." Smith v. City of St. Louis, 409 S.W.3d 404, 414 (Mo. App.
2013). Indeed, "[o]ne seeking injunctive relief on grounds of irreparable damage
and lack of adequate remedy at law must plead irreparable injury and inadequate
legal remedy as traversable facts, not mere conclusions." J.H. Fichman Co. v. City
of Kansas City, 800 S.W.2d 24, 28 (Mo. App. 1990). Appellants did not plead
any facts showing that they lacked an adequate remedy at law. The court did not
err in dismissing their request for injunctive relief. Point IV is denied.
CONCLUSION
We affirm the circuit court's judgment.
______________________________
LISA WHITE HARDWICK, JUDGE
ALL CONCUR.
11