Suffolk Housing Services v. Town of Brookhaven, 70 N.Y.2d 122 (1987)
A court will not invalidate a town’s zoning ordinance implementation based on a failure to provide low-cost housing unless there is proof that the town’s actions, rather than external economic factors, caused the housing shortage.
Summary
Suffolk Housing Services sued the Town of Brookhaven, claiming the town’s zoning ordinance, as implemented, discouraged the development of low-cost housing. The plaintiffs argued the town’s special permit requirements for multifamily dwellings and failure to pre-map areas for such housing inflated costs and faced community opposition, effectively excluding low-income residents. The lower courts upheld the ordinance. The New York Court of Appeals affirmed, holding that the plaintiffs failed to prove the town’s actions caused the housing shortage, as developer reluctance due to economic factors was a significant contributing factor. The court declined to undertake legislative rezoning, emphasizing the judiciary’s limited role in land use decisions.
Facts
Plaintiffs alleged a critical need for low-cost, multifamily rental housing in the Town of Brookhaven. The Town’s zoning ordinance required developers to obtain a special permit to construct any housing other than single-family dwellings. Developers could apply for permission to “cluster” developments in single-family residential districts or apply for rezoning to multifamily districts. Plaintiffs claimed the Town’s failure to “pre-map” vacant land for multifamily housing inflated costs and led to project failures due to community opposition. They asserted the Town actively discouraged low-income housing through its implementation of the ordinance.
Procedural History
Plaintiffs initially sued in a lower court, seeking to invalidate the Town of Brookhaven’s zoning ordinance and compel affirmative action to address the perceived housing shortage. The lower court ruled in favor of the Town, upholding the validity of the zoning ordinance. The Appellate Division affirmed this decision. The plaintiffs then appealed to the New York Court of Appeals.
Issue(s)
Whether the Town of Brookhaven’s implementation of its zoning ordinance illegally excluded low-income housing development, justifying judicial intervention to rezone the town.
Holding
No, because the plaintiffs failed to demonstrate that the town’s actions, rather than external economic factors, caused the claimed shortage of low-cost housing.
Court’s Reasoning
The Court of Appeals emphasized that a town’s zoning power is derived from the state and must promote the community’s health, safety, morals, or general welfare. While municipalities cannot use zoning to effectuate socioeconomic or racial discrimination, the court’s review is limited by affirmed factual findings. Both lower courts found that numerous developer applications for multifamily and subsidized housing were approved despite the special permit procedures. The court highlighted the affirmed findings that a significant reason for inadequate development was the lack of willing developers due to rising construction and financing costs and economic stagnation. The court stated, “Plaintiffs, in sum, have failed to demonstrate that efforts by the Town caused the claimed shortage of shelter.” The court distinguished this case from Berenson v. Town of New Castle, where the facial validity of a zoning ordinance was challenged. Here, the challenge was to the implementation, and the plaintiffs failed to provide sufficient proof of exclusionary practices. The court declined to undertake legislative rezoning, stating, “Zoning…is an essentially legislative task, and it is therefore anomalous that courts should be required to perform the tasks of a regional planner”. The court emphasized the need for a particularized claim directed at a specific parcel of land, plan, or project for housing. The court noted the abstract character of the case and the relief sought, while reaffirming that the decision “should not be read as revealing hostility to breaking down even unconstitutional zoning barriers that frustrate the deep human yearning of low-income and minority groups for decent housing they can afford in decent surroundings”.