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PLAN 724 – Introduction to Law for Planners
University of North Carolina at Chapel Hill
Department of City and Regional Planning
Fall 2015 – Syllabus
David J. Brower
Office Location
PLAN 724 New East 205
9:30-10:45am [email protected]
Tuesdays and Thursdays 919-962-4775
Hanes Art Center 218 Office Hours By
Appointment
Course Description
This course examines the legal framework within which urban planning and development takes
place. This includes the nature of law, the allocation of authority between institutions, public
and private, the nature of real property as well as the practice of managing urban
development, cultural resources and the natural environment. Special emphasis is given to
current issues such as RLUIPA, Reed v. Gilbert (6.18.2015), the Clean Water Rule (8.28.2015), the
Chesapeake TMDL (7.6.2015), the Clean Power Plan (8.3.2015), Climate Change and perhaps
others as they unfold.
COURSE SCHEDULE
Session 1 August 18th Reading
Assignments
I. Introduction LUP 1-12
Session 2 & 3 August 20th, 25th Reading
Assignments
II. Background Burn 167-177
A. The Law and the Courts
1. The Law: Defined a. The regime that orders human activities through systematic application of the
force of politically organized society
b. The aggregate of legislation, judicial precedents, and accepted legal principle;
the body of authoritative grounds for judicial and administrative actions
(1) Constitution (2) Statutes (3) Regulations (4) Judicial decisions (5) Executive Orders: Presidential Directives; signing statements (6) Guidance
c. A set of rules or principles dealing with a specific area of the legal system (1) Civil (2) Criminal (3) Torts (4) Real Property (5) Environmental (6) Constitutional (7) Local Governments (8) Land Use
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d. The judicial and administrative process; legal action and proceedings
2. Legal Materials
3. The Courts B. Institutional Framework and Relationships LGL Chap 1-8, 12
1. Federal Government
2. State Government 3. Regional Government 4. Local Government
a. Relationship with state government (1) Incorporation (2) Dillon’s Rule (3) Enabling Acts (4) Home Rule
b. Types of local governments (1) County (2) Municipal (3) Township (4) Special District
c. Organization of Local Government (1) Legislative body (2) Executive and staff (3) Boards and commissions
d. Boundaries (1) Corporate limits (2) Annexation (3) Extra-territorial jurisdiction
e. Relationship with federal government f. Relationship with regional and other local governments
5. Non-Governmental Organizations 6. Private Organizations 7. Institutional Hierarchy
a. Site b. Structure c. Subdivision d. Neighborhood e. Special District f. Municipal Corporation g. County h. Special Authority i. Metropolitan Area j. Region k. State l. Nation m. International
Session 4 & 5 August 27th, September 1st
Reading
Assignments
C. Land Ownership Sing 1-19
1. The relationship of human beings one with another and their individual and
collective relationship with the land
2. Systems of land ownership a. Customary land (tribal, familial, communal)
(1) Whose cave is this anyway? (2)
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(3) Who gets to sit closest to the fire? (4) Who has to clean up afterwards?
b. Feudal: Hapless baby George and the future of Downton Abbey c. Land Tenure d. Anthroprocentric: statutory law
e. Ecocentric values (intrinsic value) (1) Thomas Berry (2) Tribe, Sax, Singer, Freyfogle, Stone, Purdy (3) Earth Law, Wild Law, Animal Rights
3. Real Property Law in the United States a. Introduction
(1) Real Property: Definition & Dimensions (2) The Right to Exclude Sing 24-27
(a) The Civil Rights Act of 1964 Sing 45-47 (b) The Americans with Disabilities Act Sing 65-66
(3) Personal Property Sing 796-797 b. Relationships Among Neighbors
(1) Nuisance Sing 98-104 (2) Water Sing 128-135 (3) Support Sing 135-136 (4) Light and Air Sing 138-139 (5) Adverse Possession Sing 142-145 (6) Easements
(a) Introduction Sing 180-184 (b) Express Easements Sing 210-223 (c) Implied Easements Sing 186 (d) Prescriptive Easements Sing 200-202 (e) Easements of Necessity
(7) Covenants (a) Introduction Sing 230-238 (b) Public Policy Sing 281-293
c. Common Types of Ownership (1) Introduction Sing 304-304 (2) Fee Simple Sing 308-311 (3) Life Estates Sing 313 (4) Trusts Sing 317-318 (5) Public Trust Doctrine Sing 86-87
d. Concurrent Ownership Sing 352 e. Family Property Sing 396-398 f. Leaseholds Sing 437-447 g. Real Estate Transactions
(1) Introduction Sing 501-502 (2) Recording Sing 545-546
h. American Indian Property Sing 755-758
i. Water Sing 127-134
(1) Stream and River Water
(a) Preferred Use
(b) Natural Flow Doctrine
(c) Reasonable Use Doctrine
(d) Appropriation Systems
(2) Surface Water
(a) Common Enemy Doctrine
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(b) Natural Servitude Doctrine
(c) Reasonable Use Doctrine
(3) Underground Water
(a) Absolute Ownership
(b) Reasonable Use Doctrine
(c) Appropriation
(4) Littoral Rights
(5) Water per se is owned only after it has been taken from a stream or lake
Session 6 September 3rd
Reading
Assignments
THE STORY
III. Approaches to Managing Urban Development Campbell-Mohn
107-124 A. Characteristics of Development
1. Quantity 2. Location 3. Bulk 4. Timing 5. Quality 6. Appearance 7. Impact 8. Scale
B. Management Objectives/Values 1. Economic 2. Aesthetic 3. Tax Base 4. Environmental 5. Biodiversity 6. Greed 7. Quality of Life 8. Sustainable Development 9. Political Power
C. Policy Options for Managing Development 1. Regulation 2. Acquisition 3. Taxation 4. Education 5. Spending
D. Policy Strategies for Managing Development 1. Common law 2. Land Ownership 3. Statutory Law 4. Disclosure 5. Command and Control 6. Criminal Penalties 7. Civil Penalties 8. Cap and Trade 9. Social Funds 10. Incentives 11. Contracts and Spending
12. Investment E. Common Urban Development Management Policies
1. Zoning ordinance
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2. Subdivision control ordinance 3. National Flood Insurance Program LUP 47
Session 7, 8, 9 September 8th, 10th, 15th
Reading
Assignments
IV. Constitutional Mandates and Admonitions Chem 1-32
A. Introduction LUP 387-390
B. Authority (Federal) Chem 247-286
1. The Power to Regulate Commerce LUP 463-464
2. The Spending Power C. Authority (State)
1. Tenth Amendment a. Commerce b. Spending c. Police Power
D. Mandates and Admonitions Chem 545-548
1. Substantive Due Process LUP 454-462
Village of Euclid v. Ambler Realty Co. LUP 427-435
Nectow v. City of Cambridge
2. Procedural Due Process LUP 435-437
3. Equal Protection 437-445
City of Cleburne v. Cleburne Living Center
Village of Willowbrook v. Olech
Village of Arlington Heights v. Metropolitan Housing
Development Corporation
Texas Dept. of Housing v Inclusive Communities (6.25.2015)
4. Fundamental Rights: Strict Scrutiny Chem 791-802
Session 10 September 17th
Reading
Assignments
5. Taking LUP 390-392
a. Eminent Domain Chem 667-689
Poletown Neighborhood Council v City of Detroit LUP 340-408
Wayne County v Hathcock
Kelo v City of New London
Private Property Rights Protection Act(s)
Session 11 & 12 September 22nd, 24th
Reading
Assignments
b. Physical Invasion LUP 392-395
Loretto v. Teleprompter Manhattan CATV
c. Regulatory Impact LUP 395-400
Pennsylvania Coal v. Mahon
Penn Central Transportation Co. v. New York City
d. Essential Nexus LUP 400-403
Nollan v. California Coastal
Dolan v. City of Tigard
Session 13 September 29th
Reading
Assignments
e. Economic Impact LUP 403-409
Lucas v. South Carolina Coastal Council
Keystone Bituminous Coal Association v.DeBenedictis
f. Investment Backed Expectations LUP 409-412
Palazzolo v. Rhode Island
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g. Unit of Property LUP 412-415
Tahoe-Sierra Preservation Council, Inc. v. Tahoe
Regional Planning Agency
h. Compensation LUP 415-418
First English Evangelical Church v. County of Los Angeles
Session 14 & 15 October 1st, 6th
Reading
Assignments
i. Ripeness LUP 419-424
MacDonald v. Yolo County
j. Taking Legislation LUP 424-427
6. First Amendment
a. Signs LUP 446-450
Members of City Council v. Taxpayers for Vincent
Metromedia, Inc. v. City of San Diego
Linmark Assoc. v. Township of Willingboro
City of Ladue v. Gilleo
Reed v Town of Gilbert (6.18.2015)
b. Sex Oriented Business
City of Littleton v. Z. J. Gifts
Young v. American Mini Theatres
City of Renton v. Playtime Theatre
c. Religion
(1) Uses
(2) Religious Freedom Restoration Act
(3) Religious Land Use and Institutionalized Persons Act
d. Skokie Parade
7. The Regional General Welfare LUP 445-464
Save a Valuable Env’t v. City of Bothell
Session 16 October 8th
Reading
Assignments
V. Managing Urban Development LUP 53-61
A. Definition
B. Rationale
C. Legal Basis
1. Police Power (State)
2. Enabling Laws (Local)
D. Typical Policies
1. Zoning
a. Overview
(1) The teeth of the zoning ordinance
(2) How does zoning work?
(a) Zone district map
(b) District requirements
(3) History of zoning
(4) Authority to zone
(5) Standard State Zoning Enabling Act
(6) Types of regulations
(a) Cumulative v. exclusive
(b) Performance v. prescriptive
(c) Of right v. administrative findings
b. Zoning and the comprehensive plan
(1) Standard State Zoning Enabling Act
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(2) Standard State Planning Act
(3) In Practice
c. Zoning decision makers
(1) Legislative (elected state and local officials)
(2) Planning Commission (appointed)
(3) Board of Adjustment / Board of Zoning Appeals (appointed)
(4) Planning Department (employees)
(5) Affected Parties
(a) Development industry
(b) Citizen participants
(c) The community as a whole
(d) The region
d. Constitutional parameters of zoning LUP 437-445
(1) Village of Euclid v. Ambler Realty Co.*
(2) Nectow v. City of Cambridge*
(3) Challenges: facial v. as applied
Session 17 October 13th
Reading
Assignments
e. District Requirements (1) Use
(a) Residential (b) Single Family Use
What is a family? Village of Belle Terre v. Boras Moore v. City of East Cleveland
(c) Group Homes City of Cleburne v Cleburne Living Center*
(d) Agricultural Uses (e) Commercial Uses (f) Industrial Uses (g) Accessory Uses (h) Buffer Zones (i) Public Uses: schools, hospitals, etc. (j) Religious Uses
(i) Religious Freedom Restoration Act (ii) Religious Land Use and Institutionalized Persons Act Substantial Burden Compelling Governmental Interest Least Restrictive Means Equal Terms - Comparators
FALL BREAK – October 14th
Session 18, 19, 20 October 20th, 22nd, 27th
Reading
Assignments
(2) Height LUP 94-108
(3) Density
(4) Yard Size
(5) Floor-to-Area Ratio
(6) Bulk LUP 78-83
Teton County v. Crowe
(7) Setback
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Lucas v. South Carolina Coastal Council*
(8) Parking
(9) Signs
f. Flexibility LUP 84-93
(1) Floating zones
(2) Contract zoning/Conditional zoning
(3) Incentive zoning
(4) Interim zones
(5) Overlay zones
g. Non-conforming Situations LUP 108-116
Hadacheck v. Sebastian
Los Angeles v. Gage
h. Administrative, Legislative, or Quasi-judicial Action? LUP 118-133
(1) Delegation to an administrative body
(2) Delegation to property owners
(3) Initiative and referendum
City of Eastlake V. Forest City Enterprises
Cuyahoga Falls v. Buckeye Community
i. Rezoning: Amending the Ordinance LUP 133-150
(1) Generally
(2) Grounds for rezoning
(3) Extraordinary majorities
(4) Rezoning and the Comprehensive Plan
(5) Spot zoning
Bartram v. Zoning Commission
j. Variances LUP 150-156
(1) Use variances
(2) Other variances
k. Special Permits LUP 164-167
Rockhill v. Township of Chesterfield
l. Vested Rights LUP 169-182
Parkview Associates v. City of New York
City of Dallas v. Vanesko 49 TX Supreme Court 487
m. Development Agreements LUP 180-186
n. Exclusionary Zoning LUP 205-232
(1) The Americans with Disabilities Act
(2) Village of Arlington Heights v. Metropolitan Housing*
(3) Gautreaux v. Chicago Housing Authority In External Links
Folder on Sakai (4) The Fair Housing Act
Texas v. Inclusive Communities Project
(5) Affirmatively Furthering Fair Housing In External Links
Folder on Sakai (6) Fisher v. University of Texas (Fall 2015)
(7) Singapore Inclusionary Housing Policy LUP 189-191
214-251 o. Frustrations with Traditional Zoning
2. Subdivision Control, Official Maps and Planned Unit Development LUP 234-275
a. Subdivision Control
(1) Process
(2) Design requirements
(3) Exactions
(4) Dedication
(5) Plats
(6) Documents
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(7) Homeowners Associations
b. Planned Unit Developments
c. Official Maps
3. Utilities
4. Building Codes LUP 276-322
5. Housing Codes
6. Moratoria
Tahoe-Sierra Preservation Council v. Tahoe Regional Planning Agency*
7. Ownership of Land LUP 345-349
a. Fee Simple
b. Less than Fee Simple
(1) Easements
(2) Covenants
(3) Homeowner associations
c. Transfer of Development Rights
d. Land Banking
e. Eminent Domain
8. Development Agreements LUP 598-603
9. Economic Incentives
Maready v. City of Winston-Salem
10. Panaceas (cures for whatever ails you including the common cold)
Session 21, 22, 23 October 29th, November 3rd, 5th
Reading
Assignments
VI. Managing Cultural Resources (See PAS Reports in Reading Room – 489/490 & 570) LUP 513-515
A. Definition: Culture, Resources
B. Rationale: Sax
C. Legal Basis: Sax, Stone
D. Built resources
1. Signs LUP 515-516
2. Architecture LUP 516-521
Berman v. Parker
Reid v. Architectural Board of Review
Cathedral of St. John the Divine
3. Historic Preservation LUP 521-532
Penn Central Transportation Co. v. New York
Vestry of St. Bartholomew’s Church v. City of New York
4. National Historic Preservation Act
a. Historic Resources of National Interest
b. National Register of Historic Places
c. Section 106
5. NEPA
6. Dept. of Transportation Act
7. Flora
E. Landscape
1. Palisades, Englewood Cliffs, N.J.
2. Scenic vista (Nollan)
3. Adjacent Lands
4. View sheds: Boulder, Austin
5. Corridors
6. Ridge laws
F. Community Design
1. New Urbanism
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2. Form Based Zoning
3. Design Manuals
4. Bully Pulpit: Charleston, Columbus, Indiana
Session 24 & 25 November 10th, 12th
Reading
Assignments
VII. MANAGING THE ENVIRONMENT EL&P 1-110
A. Definition
B. Rationale
C. Legal Basis
D. Policies
1. NEPA EL&P 333-349
a. What does NEPA do?
b. What does an EIS “do”?
Calvert Cliffs v. U.S. Atomic Energy Commission
c. When must an EIS be prepared?
Sierra Club v. U.S. Army Corps of Engineers
d. NEPA Decision Making Process Chart
2. Air: The Clean Air Act EL&P 111-140
a. NAAQS EL&P 115
(1) State Implementation Plans EL&P 118
(2) Non-Attainment EL&P 119
b. Climate Change EL&P 134
(1) Massachusetts, et al. v. EPA
(2) Clean Power Rule (8.3.2015)
(3) Oklahoma v. EPA (US District Court)
(4) Michigan v EPA (6.29.2015)
(5) COP21
Session 26 November 17th
Reading
Assignments
3. Water: The Clean Water Act EL&P 173-204
a. Pollution EL&P 172
(1) Point Sources EL&P 179
(a) National Pollutant Discharge Elimination System (NPDES) Permits EL&P 180
(b) Publicly Owned Treatment Works (PUBLICLY OWNED TREATMENT
WORKS)
EL&P 180
(c) Industrial Point Source EL&P 182
(d) Existing Point Sources EL&P 184
(e) New Point Sources EL&P 185
(2) Non-Point Sources EL&P 189
(a) Section 208
(b) Section 319
(3) Water Quality Standards
(a) Section 303 EL&P 194
(b) Impaired Waters
(c) Total Maximum Daily Load (TMDL) EL&P 195
(d) Continuing Planning Process (CPP) EL&P 196
(e) Chesapeake Bay – Total Maximum Daily Load EL&P 195
(f) American Farm Bureau Federation et al. v. United States
Environmental Protection Agency et al. (7.6.15)
b. Wetlands
(1) CWA Section 404 EL&P 277
(a) Waters of the United States EL&P 277
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(i) 1972 Clean Water Act EL&P 279
(ii) 1975 Regulations EL&P 279
(iii) 1985 Migratory Bird Rule
(iv) 2001 Solid Waste Agency of Northern Cook County v. United
States Corps of Engineers (SWANCC)
(v) 2006 Rapanos v. United States
(vi) 2011 Draft Regulations
(vii) 2015 Clean Water Rule
(viii) 2015 Murray Energy Corp. v. EPA
(b) Discharge EL&P 280
(c) Permitting EL&P 283, 285
Session 27 November 19th
Reading
Assignments
4. Biodiversity EL&P 271-310
a. Endangered Species Act EL&P 287
(1) Federal Agency Activity
(2) Section 7(a)(2)
(3) TVA v. Hill EL&P 295
(4) Private Activity
(5) Section 9(a)(1) EL&P 300
(6) Babbitt v. Sweet Home
(7) Habitat Conservation Plans EL&P 303
b. Public Trust Doctrine EL&P 272
(1) Roman Law
(2) European
(3) Colonies
(4) Northwest Ordinance of 1878
(5) SCOTUS: Illinois Central v. Illinois EL&P 272, 274
(6) CA: Marks v. Whitney EL&P 273
(7) Other States EL&P 274
5. Natural Hazards LUP 502-503
a. National Flood Insurance Program (NFIP)
b. Stafford Disaster Relief and Emergency Assistance Act (Stafford Act)
c. Hazard Mitigation Act of 2000
Session 28 November 24th
Reading
Assignments
6. Coastal Zone LUP 495-501
a. Coastal Zone Management Act
(1) State Coastal Management Programs
(2) Implementation
(3) Consistency
b. Coastal Barrier Resources Act
c. Ocean Policy
7. Energy EL&P 311-329
THANKSGIVING BREAK – November 25th
Session 29 December 1st
VIII. Last Class
Key to Readings
LUP: JURGENSMEYER & ROBERTS, LAND USE PLANNING AND DEVELOPMENT REGULATIONLAW THIRD EDITION
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BURN: BURNHAM, LEGAL SYSTEM OF THE U.S. THIRD EDITION
LGL: REYNOLDS, LOCAL GOVERNMENT LAW THIRD EDITION
SING: SINGER, PROPERTY THIRD EDITION
CHEM: CHEMERINSKY, CONSTITUTIONAL LAW FOURTH EDITION
EL&P: SALZMAN & THOMPSON, ENVIRONMENTAL LAW AND POLICY FOURTH EDITION
COPYRIGHT © 2015 DAVID J BROWER
