On March 19, 2004, the Wisconsin Supreme Court, in Ziervogel v.
Washington County Bd. of Adjust (Case No. 02-1618), unanimously
rejected the "no reasonable use" standard for measuring unnecessary
hardship in "area" zoning variance cases. In doing so, the Supreme
Court reversed the State v. Kenosha County Bd. of Adjustment case
and restored the more flexible "unnecessarily burdensome" standard
that had been previously applied to area variances for over 70
years.
Background
Since 1927, Wisconsin and most other states have recognized two
types of variances and different standards for each type of
variance.
-
A "use variance" allows communities to permit a use other
than that prescribed by the zoning ordinance, for example, a factory
in a residential neighborhood. Because a use variance can
change the character of a neighborhood and is in direct
contrast to the spirit of a zoning ordinance, courts have
consistently required applicants to demonstrate that they have
"no reasonable use" of their property without a variance (a
high standard).
-
An "area variance" allows communities to modify site
development requirements such as lot size, yard, setback and
frontage restrictions such as an addition to a structure that
encroaches into a setback area. Because these variances are
relatively minor and do not have a significant impact on the
character of a neighborhood, courts have required applicants to
show that the ordinance is "unnecessarily burdensome" (a lower
standard).
In 1998, the Wisconsin Supreme Court, in State v. Kenosha County
Board of Adjustment, eliminated the two different standards.
Instead, the Court decided that the "no reasonable use" standard
should apply to both types of variances. To meet this standard,
landowners must show that they have "no reasonable use" of their
property without a variance. Since the Kenosha County case, a
variance has been virtually impossible to legally obtain in
Wisconsin.
Ziervogel v. Washington County Bd. of Adjustment
In Ziervogel, the property owners owned a 1600 square-foot
lakefront home with a legal nonconforming setback of 26 feet from
the ordinary high water mark (OHWM) of the lake. The owners wanted
to convert the home from a summer cottage to a year-around home and
wanted to construct a 10-foot vertical addition to the home to
accommodate additional bedrooms, baths, and an office. When the
owners purchased the home in 1996, the addition would have been
permissible under Washington County’s shoreland zoning
ordinance. However, the County amended its shoreland zoning
ordinance in 2001 to prohibit any expansion of any portion of an
existing structure within 50 feet of the OHWM of the lake. The
owners applied for a variance and the county denied the request
because the owners failed to show that they would have "no
reasonable use" of their property without the variance.
The Circuit Court and Court of Appeals upheld Washington
County’s denial of the variance under the "no reasonable use"
standard established by the Kenosha County case.
In reversing the decision by the lower courts, the Supreme Court
in Ziervogel declared that the "perpetuation of a single,
highly-restrictive ‘no reasonable use of the property’
standard for all variances [is] unworkable and unfair." The Court
went on to state that "[a]pplying the ‘no reasonable
use’ standard to area variances is inconsistent with the
purpose of area zoning, fails to recognized the lesser effect of
area variances on the public interest, and very nearly extinguishes
the statutory discretion of local boards of adjustment."
For area variances, the Court concluded the appropriate standard
for determining "unnecessary hardship" is "whether
the compliance with the area zoning restrictions ‘would
unreasonably prevent the owner from using the property for a
permitted purpose or would render conformity with such restrictions
unnecessarily burdensome.’"
Of equal significance, the Court declared that local units of
government, although empowered by home-rule authority, are
prohibited from applying the "no reasonable use", or equally
restrictive standards, to area variances. "A local ordinance
defining ‘unnecessary hardship’ as ‘no reasonable
use’ . . .virtually eliminates the statutory discretion of
the board of adjustment . . . and is therefore unenforceable as
applied to area variances." Because the Washington County zoning
ordinance incorporated the "no reasonable use" definition of
unnecessary hardship, the Court invalidated that section of the
ordinance.
Benefit to Property Owners
This case is important to property owners because it restores
the flexible "unnecessarily burdensome standard" for area variances
which will make it easier to obtain permits necessary to renovate
and expand their existing homes. Furthermore, providing local
governments with flexibility in granting area variances will help
preserve property values and encourage reinvestment in existing
neighborhoods.
While area variances may continue to be difficult to obtain, the
Ziervogel case will at least make them possible once again.