Seventh Circuit Court of Appeals Commentary : In Their Opinion : Lawyer & Attorney Michael E. Rigney : Kelley Drye & Warren Law Firm

BETTENDORF v. ST. CROIX COUNTY (January 20, 2011)

John Bettendorf has owned a parcel of property in St. Croix County in west-central Wisconsin for decades. In the 1970s and early 1980s, Bettendorf operated a carpet sales business on the property although it was zoned agricultural-residential. In 1985, Bettendorf sought and received permission to use the property for commercial purposes. The ordinance granting permission also provided, however, that the permission was personal to Bettendorf and could not be transferred. Almost 20 years later, Bettendorf sought a declaration in state court that the limitations on the rezoning were void and should be stricken. Unfortunately, the state court declared the entire ordinance void. The County withdrew its permission for commercial operations. Bettendorf filed suit in federal court alleging an unconstitutional taking and violations of his procedural and substantive due process rights. Judge Crabb (W.D. Wis.) granted summary judgment to the County. Bettendorf appeals.

In their opinion, Judges Bauer, Flaum, and Hamilton (concurring in part and dissenting in part) affirmed. The Court first addressed the takings claim. It stated that Bettendorf had to establish that government action had deprived him of "all or substantially all" use of the property. The relevant factors are the nature of the regulatory scheme, the severity of the economic impact, and the degree of interference with the owner's investment opportunities. Here, there was no government intrusion or interference with investment opportunities because Bettendorf himself brought the state action that resulted in the declaration that the ordinance was void. Bettendorf also has not lost the use of the property. He is free to use the property for the agricultural and residential purposes for which it is zoned. The Court thus rejected the takings claim. On the substantive due process claim, the Court stated that Bettendorf would have to establish that the County's decisions were "arbitrary, oppressive, or unreasonable." But here, the County's actions were taken in response to a court order invalidating the ordinance. The Court rejected the substantive due process claim, finding that action utterly reasonable. Finally, the Court addressed and rejected Bettendorf's procedural due process claim. Bettendorf's due process claim is that he was not afforded the typical County appeals process in a rezoning case. The Court noted, however, that it was Bettendorf who chose to challenge the ordinance in state court in lieu of the local appeals process. Bettendorf was afforded adequate process in those state court proceedings. Even if the local appeals process was a superior method for resolving the issue, due process does not require superior process -- only constitutionally adequate process.

Judge Hamilton concurred with the majority's treatment of the due process claims but dissented from its treatment of the takings claim. He relied on the "vested rights" theory that the majority concluded was inadequately presented. Judge Hamilton surveyed the "long and winding history" of the concept in American law. Under the concept, an existing and lawful property use is a critical consideration in a takings claim. Judge Hamilton thus addressed the three factors quite differently than did the majority. First, the nature of the government interference is significant in that it prohibited a long time existing and lawful property use. Second, the economic impact appears to be significant although unclear on the pleadings. Third, although Bettendorf did agree to the condition, the withdrawal of permission substantially interfered with his investment expectations. Judge Hamilton recognized that his consent to the condition limited his expectations to continued commercial use only as long as he owns the property and would thus negatively affect any compensation due.

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PARVATI CORP. v. OAK FOREST (December 23, 2010)

In early 2004, Parvati Corp. decided to sell a motel it owned in Oak Forest, Illinois to Bethlehem Enterprise, Inc. The sale was contingent on Bethlehem's ability to secure municipal permission to operate a senior-living facility on the site. The Oak Forest Zoning Commission denied the request in early 2006, citing a recently enacted ordinance that prohibited the requested use. Parvati and Bethlehem filed suit seeking judicial review of the administrative decision. They also sought money damages under federal statutory and constitutional claims. Judge St. Eve (N.D. Ill.) affirmed the administrative decision and dismissed a state law administrative review count. She then, on plaintiffs' motion, dismissed the federal statutory and constitutional claims and entered final judgment. Several months later, Parvati (without Bethlehem) filed a new lawsuit reasserting the federal statutory and constitutional claims. After several more months, Parvati moved for post-judgment relief in the original case on the grounds that the City had misrepresented the validity of the ordinance on which it relied. The City responded on the merits but also maintained that Parvati lacked standing because it had since conveyed the property to its lender in lieu of foreclosure. The district court found that Parvati had standing, notwithstanding the sale of the property, because of the potential preclusive effect of the judgment on Parvati's new lawsuit. On the merits, however, the district court rejected the request for post-judgment relief because Parvati could have raised the ordinance’s invalidity before judgment. Parvati appeals.

In their opinion, Associate Justice O'Connor (Ret.) and Seventh Circuit Judges Williams and Sykes vacated and remanded with instructions to dismiss for want of jurisdiction. The Court addressed the central issue of standing. Parvati certainly met all the standing requirements at the inception of litigation. It owned the property and suffered an actual injury traceable to the City's conduct. Once it transferred ownership of the property, however, it lost its standing. First, the available relief cannot help its cause. Next, the Court then rejected the district court's basis for standing -- the refiling of the federal statutory and constitutional claims. The Court noted that constitutional standing requires that the injury be "fairly traceable" to the City's conduct. Here, the injury (the potentially preclusive effect of the earlier judgment) is not traceable to any conduct of the City. Instead, it is traceable exclusively to Parvati‘s litigation strategy and conduct. The potential injury would not exist had Parvati pressed its statutory and constitutional claims in the original litigation. Thus, Parvati lacks standing and the court should not have entertained its motions.

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 RIVER OF LIFE KINGDOM MINISTRIES v. HAZEL CREST (July 2, 2010)

The Village of Hazel Crest refused to allow the River of Life Kingdom Ministries ("Ministries") to locate its church in a commercial area of the village. Ministries had a very small congregation and hoped to relocate its facilities from a dirty warehouse in Chicago Heights to Hazel Crest. The area in which it wanted to locate was designated a commercial district under the village's zoning ordinance. New noncommercial uses were excluded from the district under the ordinance. Judge Gottschall (N.D. Ill.) denied the Ministries' request for a preliminary injunction under the Religious Land Use and Institutionalized Persons Act (“RLUIPA”). On October 27, 2009, a panel of the Seventh Circuit affirmed (the intheiropinion post). On petition by Ministries, the Court granted rehearing en banc.

In their opinion, the entire court affirmed, with Judges Manion, Cudahy, Rover, and Williams concurring and Judge Sykes dissenting. The "equal-terms" provision of RLUIPA prohibits a local government from instituting a land-use regulation that treats a religious institution "on less than equal terms with" a nonreligious institution. The Court addressed two different tests - one from the Third Circuit and one from the Eleventh. The Third Circuit approach is to identify a) the ordinance’s goals and b) the nonreligious assemblies comparable to the religious assembly at issue. The ordinance is consistent with the equal terms provision if the reasons for excluding a nonreligious assembly are applicable to the religious assembly. The Eleventh Circuit approaches the equal terms provision more literally. An ordinance that permits a nonreligious assembly must permit a religious assembly. The Eleventh Circuit test does include an exception -- unequal treatment could survive if it passed a "strict scrutiny" test. Although the panel had adopted the Third Circuit approach, the en banc court rejected both approaches. The Court believed the Eleventh Circuit’s approach was overprotective of religious groups (due, in large part, to the dictionary definition of "assembly") and that the "strict scrutiny" exception had no basis in the statute. With respect to the Third Circuit's test, its focus on the regulatory purpose of the zoning regulation was problematic to the Court. Instead, the Court adopted a variation of the Third Circuit test. It replaced the "subjective and manipulable" regulatory purpose test with an "objective" zoning criteria test. The zoning criteria used by Hazel Crest include setting aside land for commercial uses in order to generate tax revenue and to provide a convenient shopping area. When it created the district, it not only excluded churches but also excluded other nonreligious assemblies that did not offer opportunities for shopping or generate tax remedy. The Court concluded that Hazel Crest's adoption of an acceptable zoning criterion -- commercial district -- and its neutral application of the regulation demonstrated that Ministries was unlikely to prevail on the merits. It thus affirmed the district court's denial of the motion for a preliminary injunction.

Judge Cudahy concurred. He wrote separately to express his view that there was little difference in the Third Circuit’s “regulatory purpose” test and the Court’s “zoning criterion” test.

Judge Manion concurred. He wrote separately to express his view that the case was rather straight forward and that the en banc court's opinion unnecessarily crafted a test to apply to more difficult cases. He also took issue with the opinion's discussion of a complicated Establishment Clause issue.

Judge Williams concurred (joined by Judges Cudahy and Rovner). Judge Williams expressed her belief that the Third Circuit's "regulatory purpose" test adopted by the panel is the proper test.

Judge Sykes dissented. She explored in detail the history of RLUIPA as well as the text of the statute, not limited to the "equal terms" provision. She also laid out the history of the "equal terms" jurisprudence in the Third, Eleventh, and Seventh Circuits. She noted that the Seventh Circuit had approved of the Eleventh Circuit approach until the panel opinion in this case. In her view, the plain language of RLUIPA prohibits any zoning regulation that treats a religious assembly on less than equal terms with a non-religious one. It contains no requirement of discriminatory motive or bias. Judge Sykes concluded that the Ministries demonstrated a likelihood of success -- the zoning regulation's allowance of gymnasiums, health clubs, and day care centers in the district where the church is not allowed is sufficient to show unequal terms.

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NEW ALBANY DVD v. CITY OF NEW ALBANY (September 10, 2009)

New Albany DVD set out to operate an adult entertainment business in New Albany, Indiana. It purchased property, obtained licenses and renovated a building. Although the land was properly zoned, the City refused to conduct a final inspection, a requirement for occupancy. Instead, it imposed a moratorium on new adult businesses. During the moratorium, it changed the zoning rules to prohibit the operation of an adult business on the property selected by New Albany DVD. The new rules prohibit the operation of an adult business within 1000 feet of a church or any property zoned residential. The site is within 200 feet of both. New Albany DVD brought suit under § 1983, alleging a violation of the First Amendment. The district court held that the ordinance was likely unconstitutional and issued an injunction allowing New Albany DVD to open. The City appeals.

In their opinion, Chief Judge Easterbrook and Judges Ripple and Rovner remanded. The Court first disagreed with the lower court's rationale -- that the regulation was not narrowly tailored for its purpose -- for issuing the injunction. Although Alameda Books and other cases require narrow tailoring of regulations of adult businesses, the Court concluded that the dispersal regulation at issue had often been used and sustained after challenge. The Court went on, however, to agree with the court’s result under a different rationale. It noted that the studies relied on by the City focused on live-entertainment businesses. New Albany DVD offers take-home materials only. The City’s attempts to overcome this hurdle by offering anecdotal evidence of increased litter and theft was rejected as well. The Court agreed that the City might be able to use those justifications, but concluded that sufficient evidence did not exist in the record. Finally, the Court referred, as it did in its earlier Annex Books opinion (see post), to Justice Kennedy’s opinion in Alameda Books as a guide to the evidence required under the intermediate scrutiny standard.

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FLYING J INC. v. CITY OF NEW HAVEN (December 5, 2008)

Flying J develops and operates travel plazas for truck drivers and other travelers. It purchased 50+ acres in New Haven, Indiana (the “City”) to develop a new travel plaza. The City opposed the development and took the position that it was not allowed under the then-current zoning. Flying J ultimately prevailed in the Indiana state courts on its challenge to the City’s position. Undaunted, the City amended its zoning ordinance to limit developments of this type to two acres. The Flying J development was the only parcel affected by this limitation. The City held several public meetings on the amendment but never gave Flying J specific notice of them. In August of 2007, the City advised Flying J that its development must comply with the two acre rule. Flying J filed suit in September, alleging violations of its rights under the U.S. and Indiana Constitutions. The district court dismissed for failure to state a claim. Flying J appeals.

In their opinion, Judges Bauer, Flaum and Williams affirmed. The Court first addressed the City’s position that the Court lacked jurisdiction under the principles of Williamson County. The Supreme Court in Williamson County held that takings claims in land use cases are not ripe until the local authority has reached a final decision, including a decision on a variance application and compensation. Courts have applied the doctrine to takings claims even when they are labeled as due process or equal protection claims. The Court noted that it has created an exception for claims alleging the malicious conduct of a government agent unrelated to a legitimate state objective. Flying J’s allegations of the City’s protracted litigation, its covert amendment to the ordinance, the ordinance’s application only to Flying J, and the potential conflicts of interest of several commission members fit its claim within that exception.

The Court next addressed whether Flying J stated a claim. Relying on its precedent in Wroblewski and Lauth, the Court identified the pleading standard for a class-of-one equal protection claim. In those cases, the plaintiff must negate any set of facts that provides a rational basis for the classification challenged. Animus of the defendant comes into play only after the plaintiff has pled facts that show the irrationality of the government’s conduct. Flying J does allege facts that would show that the City took its actions in response solely to Flying J’s development but it does not allege facts to establish that the zoning amendment was irrational. Flying J’s allegations therefore do not overcome the presumption of rationality the government enjoys in cases of this nature.

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