Diocese Brief Undefined Use

8/3/2019 Diocese Brief Undefined Use

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2005 WL 5279664 (Pa.Cmwlth.) (Appellate Brief)

For opinion see899 A.2d 399

Briefs and Other Related Documents

Commonwealth Court of Pennsylvania.

DIOCESE OF ALTOONA-JOHNSTOWN,v.

ZONING HEARING BOARD OF THE BOROUGH OF STATE COLLEGE, Donald Hopkins and Mildred

Hopkins,

Appeal of Donald and Mildred Hopkins.

No. 1549 CD 2005.

December 7, 2005.

Appeal from the Order Dated June 30, 2005 of the Court of Common Pleas of Centre County,

Pennsylvania Trial Court Docket No., 2005-929

Appellee's Brief

Sullivan, Forr, Stokan & Huff,Shawn P. Sullivan, Esquire, Attorney I.D. # 42167, 1701 5th

Avenue, Altoona, Pa 16602, (814) 946-4316, Attorney for Appellee, Diocese of Altoona-

Johnstown.

*iTABLE OF CONTENTS

Table of Citations ... ii

I. Summary of Argument ... 1

II. Argument ... 2

III. Conclusion ... 11

*iiTABLE OF CITATIONS

CASES

Appeal of the Russian Orthodox Church of the Holy Ghost of Ambridge, 397 Pa. 126, 152 A.2d

489 (1959)... 6

In Re:Upper St. Clair Township Grange No. 2032, 397 Pa. 66, 152 A.2d 768 (1959)... 3, 7

Southco, Inc., v. Concorde Township, 552 Pa. 66, 713 A.2d 607 (1998)... 7

Bailey v. Upper Southhampton Township, 690 A.2d 1324 (Pa.Cmwlth.1997)... 2

Camp Ramah in the Poconos, Inc., v. ZHB of Worcester Township, 743, A.2d 1019 (Pa.Cmwlth.

2000) ... 6

Church of the Savior v. Zoning Hearing Board, 130 Pa. Cmwlth. 542, 568 A.2d 239 (1989)... 3

Franchi v. ZHB of the Borough of New Brighton, 117 Pa. Cmwlth. 542, 568, A.2d 1336 (1988) ...
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9

Noah's Ark v. Zoning Hearing Board, 831 A.2d 756, (Pa. Cmwlth. 2003)... 3, 5

Robin Coup. V. Board of Sup'rs of Lower Paxton Tp., 17 Pa. Cmwlth. 386, 332 A.2d 841, (1975)

... 2

Rural Route Neighbors v. East Buffalo Township Zoning Hearing Board, ___ Pa. Cmwlth. ___,

870 A.2d 388, (2005)... 2

Treatise

Arden H. And Daren A. Rathkopf, Law of Zoning and Planning 20.03 ... 3

*1SUMMARY OF ARGUMENT

This case really involves the question of what constitutes a church. The Appellants spent a great

deal of their argument in quantitative analysis of the size of the various rooms, the name of the

facility, and the nature of the population the building is intended to serve. All of this is without

any analysis of the nature of the activities that will be performed or the services that will beprovided at the building of the Appellee, Diocese of Altoona-Johnstown (Diocese).

The record is replete with the Catholic programs that will be provided at the campus ministry

center of Diocese. None of this testimony is contradicted. It has always been the underlying

principle of all of the prior decisions of the appellate courts of Pennsylvania, that you need tolook at the substance of the use to determine if it is consistent with the concept of a church.

The Trial Court properly dismissed the analysis offered by the Appellants. The Trial Court

accurately captured the essence of a church when it slated a church is defined by the

expectations of the people at the building ... A church, of any denomination is devoted to the

study of faith. All of the testimony in behalf of the Diocese and from the Borough Zoning Officer,Herman Slaybaugh, support this conclusion. There is no legal reason for this Court to find

otherwise.

*2ARGUMENT

This case comes before the Commonwealth Court as a result of an appeal filed by Appellants,

Donald and Mildred Hopkins (Hopkins) challenging the decision of the Court of Common Pleas ofCentre County. The lower court (Kistler J.) held that the Zoning Hearing Board of the Borough of

State College (ZHB) abused its discretion in denying this Appellee, the Diocese of Altoona-

Johnstown (Diocese) approval of the plan to construct a campus ministry center. The

Commonwealth Court must now determine whether the Trial Court was correct in itsdetermination the ZHB committed an error of law and an abuse of discretion.

An abuse of discretion occurs if ZHB made findings not supported by substantial evidence, i.e.such relevant evidence as a reasonable mind might accept as adequate to support a

conclusion.Rural Route Neighbors v. East Buffalo Township Zoning Hearing Board, _________

Pa. Cmwlth. ___________, _____________, 870 A.2d 388,391 (2005) (footnote 4);

reconsideration and re-argument denied, __________ Pa.Cmwlth. _____________, A.2d

__________ (2005); citingBailey v. Upper Southampton Township, 690 A.2d 1324 (Pa.Cmwlth.

1997). Substantial evidence is that which a reasonable man acting reasonably might have
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utilized in reaching the decision made.Robin Corp. v. Board of Sup'rs of Lower Paxton Tp., 17

Pa.Cmwlth. 386, 391, 332 A.2d 841, 845 (1975).

It is the contention of Diocese that ZHB abused its discretion in the following manners: first, it

ignored the concept of church, as defined by the appellate courts of the Commonwealth of

Pennsylvania; second, it ignored substantial evidence offered by the *3 Zoning Officer of State

College Borough as well as the testimony of Diocese's witnesses as to the use of and function ofthe property which qualifies the proposed use by Diocese as a church.

As to the definition of church, the Zoning Ordinance (Ordinance) of State College has nodefinition. Therefore, it was the responsibility of the ZHB to rely upon Pennsylvania law. Under

Pennsylvania law, the word Church must be afforded its usual and ordinary meaning. In Re:

Upper St. Clair Tp., Grange No. 2032, 397 Pa. 66, 152 A.2d 768 (1959);Church of the Savior v.

Zoning Hearing Board, 130 Pa.Cmwlth. 542,568 A.2d 1336 (1989). In attempting to define

church, the Courts have relied on Black's Law Dictionary where it is defined as an organization

for religious purposes or for the public worship of God.In Re:Upper St. Clair, 397 Pa. at

______, 152 A.2d at 771. In the Upper St. Claircase, the court went on to state that [t]he

ordinary meaning of the term contemplates a place or edifice consecrated to religious worship,

where people join together in some form of public worship.Upper St. Clair, 397 Pa. At 67, 152

A.2d at 771. Further, the concept of church has been accepted as including accessory usesincluding parochial schools, parking lots and playgrounds, rectories, gymnasiums and swimming

pools, boy scout rooms and other places of quasi-public assembly, daycare centers and drug

rehabilitationcenters.Noah's Ark v. Zoning Hearing Board, 831 A.2d 756, 761 (Pa.Cmwlth.

2003); citing Arden H. and Daren A. Rathkopf, Law of Zoning and Planning 20.03 (Fourth ed.1985).

As to the substantial evidence offered by Diocese, the ZHB ignored the testimony of Herman

Slaybaugh, Zoning Officer for State College Borough, that described the building as an

ecclesiastical building (RR p. 125a) and that the religious instruction which is an *4 accessory

use to a church would be offered at Diocese's building (RR p. 132a). Father Matt Laffey, O.S.B.,

who currently staffs the campus ministry for the Diocese, testified that the purpose of the

building to be constructed by the Diocese is to allow all the attributes of the Catholic religion to

be expressed and allow the Catholic students of Penn State University to have a place to practicetheir faith, to worship and praise God (RR p. 191a), to be used for sacraments and sacramentals

which included adorations, stations of the cross, morning and evening prayers, various other

devotions, as well as the Sacrament of Reconciliation (RR p. 193a), to allow for the studying of

scripture in the Catholic tradition (RR p. 194a), and that the center would be a gathering place

for Catholic social clubs such as the Newman Club, Right of Christian Initiation of Adults,

Students for Life, Right of Life Charismatic prayer group, Men Seeking God Group, Women

Seeking God prayer group, Mission Mexico, Project Haiti, and a Catholic group called SNACK (RRpp. 194a, 195a).

Even in its own findings, the ZHB stated that Diocese's building will offer a Catholic library,

catholic publications, the display of Catholic artifacts, a place to discuss scriptures from a

Catholic viewpoint.... (App. B-p.6 of Hopkins' Brief). All of the described uses are consistent with

the functioning of a Catholic church. All of the functions to be conducted by Diocese are part ofthe ministry of the Roman Catholic Church. Even the description of some of the activities bearthe adjective Catholic. It should not be any clearer that what is proposed to be performed at

the Diocese's property is the inculcation of Catholic teachings in a Catholic milieu. There could beno clearer case of religious purpose and use than what was presented to the ZHB in this case.

*5Diocese contends that the whole record is replete with sufficient evidence to allow areasonable person to arrive at the conclusion that this is a church. In fact, no witnesses

contested the presentation of the Diocese's witnesses as to the uses of the building proposed by

the Diocese. In doing so, ZHB has committed the same error that was committed by the zoning
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4/23

hearing board in the Noah's Arkcase, where the board ignored testimony that the Christian

focus of Noah's Ark ... was considered to be part ofSecond Baptist's ministry. Noah's Ark, 831A.2d at 759.

The ZHB was not satisfied with simply ignoring the uncontradicted testimony as to the use and

function of the building but also committed an error of law when it required a minimum use

standard which is not part of the ordinance. The ZHB simply looked at the size of the chapel vis-a-vis the rest of the Diocese's building. Within the ordinance, the only defined proportion

between primary and accessory use is under section 1202(a) of the Ordinance which is limited in

its application to Pennsylvania State University which is zoned University Planned District.

Ascribing a standard for the minimum amount of space required to be applied towards a primary

purpose which is not defined in the ordinance is an error of law. In essence, the ZHB has ignored

the uncontradicted testimony as to the purpose of the building as a whole, that is for conductionof religiously focused activities. The ZHB has set a new standard by proclaiming that because the

chapel, which is the site of actual religious worship, is below a certain proportion of the building

as a whole, then the accessory uses, even if religiously focused, do not count towards the overalluse of the building.

In its attempt to justify its finding and requirements, ZHB relies on two cases. However, neither

of these cases aid in the disposition of this matter due to the inapplicability of the two caseswhen compared with the circumstances of this matter.

*6 The first case relied upon by ZHB isAppeal of Russian Orthodox Church of the Holy Ghost of

Ambridge, 397 Pa.126, 152 A.2d 489 (1959)(Holy Ghost). This case involves the intent by a

church group to justify the opening of a cemetery on a piece of ground not zoned for the

purpose. In the Holy Ghost case, the use was impermissible regardless of whether the cemetery

would be owned by secular or religious entities. The zoning ordinance in Holy Ghost allowed for

religious uses. The issue in the Holy Ghost case was whether the ownership of a cemetery was in

and of itself a religious use. The court decided the issue in the negative. Therefore, the

Commonwealth Court's decision in that case is correct.

In this case, unlike Holy Ghost, the Diocese does not seek to justify its ministry center based

upon the nature of the Catholic church, but rather because the Diocese will use the property in amanner which is consistent with the functioning of a church. Even under the Holy Ghost case, if

the use would be a religious nature, the proposed use by Holy Ghost would have been acceptableunder the applicable ordinance.

The second case upon which ZHB incorrectly relies is the case ofCamp Ramah in the Poconos,

Inc., v The Zoning Hearing Board of Worcester Township, 743 A.2d 1019 (Pa.Cmwlth. 2000). In

Camp Ramah the use of the land was as a recreational camp. The daily activities of Camp Ramah

were not unlike any other children's day camp. As in Holy Ghost, the focus of judicial inquiry is

the nature of the activity rather than the identity of the user. Camp Ramah was not intended to

be used solely by members of the religious group which owned the camp. The camp and its

facilities would also be available to adult groups and would not be planned or directed by Camp

Ramah, but by the groups themselves. In the case at bar, all activities are supervised by and

conducted under the auspices of the Diocese *7 and the Benedictine priests who staff it. Thus,Camp Ramah is inapplicable to the situation of Diocese.

Next, Diocese contends that ZHB misapplied the holding inSouthco, Inc.. v Concorde Township,

552 Pa. 66, 713 A.2d 607 (1998). In Southco, the ordinance under scrutiny defined theattributes of a restaurant. The court analyzed the use in the context of the definition contained in

the ordinance. The ordinance required that the restaurant be devotedto the sale and

consumption of food and beverages ....Southco, 552 Pa. at 72, 713 A.2d at 610(emphasis

added). The court further analyzed the meaning of devoted and noted that it does not connote
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exclusivity...Southco, 552 Pa. at 72, 713 A.2d at 610. In order to make its analysis, the court

looked at the testimony which showed the percentage of use between the desired restaurant andthe wagering portion of the building.

In this case, it was unnecessary for the ZHB to conduct the Southco analysis because church, as

defined by the courts, necessarily includes accessory uses as presented by Diocese.Upper St.

Clair, 397 Pa. at _____, 152 A.2d at 770. This is common to any church. In fact, the BoroughZoning Officer testified that ... local churches often provide a wide range of activities beyond

worship and are constructed with the extra space needed to support that (sic) activities. (RR p.

136a). In none of the cases cited by Hopkins is there any statement by any court that there

must be a minimum proportioned use of the structure which is dedicated to religious services in

comparison with the rest of structure employed for other activities. Diocese contends that in

recognizing such accessory church uses as schools, playgrounds, and residency for clergy, thatthe courts understand that the actual portion of*8 the structure devoted to church may be

proportionally smaller than the rest of the structure employed for other accepted accessory

activities.

The Hopkins attempt to confuse the Court by using standards published by the United States

Conference of Catholic Bishops (USCCB) to prove that the design of the building does not

conform to the design of a Catholic church as suggestedby the USCCB. Firstly, this ignores theprimary purpose of the building as a Campus Ministry Center where more Catholic activities and

just the celebration of a Catholic Mass will occur. Secondly, nothing in the USCCB publication

dictates the dimensions of the various part of a Catholic church.

Although Hopkins quote the conclusion that the document provides guidelines for the building of

a church, Hopkins ignore the spirit of the document which further states that the primary role of

a church building is to [provide] a suitable place for the ce lebration of the Liturgical Rites,... and

in which groups of the faithful may gather for a rich variety of devotions expressive of the faith

life of a given culture, region, or ethnic community. The community which will be served

primarily by Diocese's building is the Catholic student population of Penn State University. All of

the functions which will be conducted at Diocese's building are Catholic in nature. The purpose is

to give the cultural focus of the building, the Catholic students of Penn State University, a church

setting where even the secular activities which will be conducted will be experienced in a Catholicenvironment.

Hopkins take the USCCB document and imply that the design of Diocese's building is inconsistent

with the USCCB guidelines. If the court reviews the first floor plan of Diocese, it will find all the

attributes of a church consistent with the USCCB guidelines. *9 Diocese's building has a nave(space within the church building for the faithful other than the priest celebrant and the

ministers, i.e. congregational seating), a sanctuary ((the space where the altar and ambo (from

which God's word is proclaimed) stand, and where the priest, deacon and other ministers

exercise their offices)), choir seating, and narthex (as displayed in Diocese's plan as gathering

spaces and Great Room.) In addition to the areas cited by Hopkins as requirements for a

church building, Diocese has also included such traditional Catholic touches as a holy water font,

sacristy, statuary, and reconciliation rooms. Lastly, the remainder of the first floor plan shows

what is reserved for the priests' residence, what is typically known in the Catholic and Christiantraditions as a rectory.

Although Diocese rejects the requirement being applied by ZHB and advocated by Hopkins that

actual church functions must employ a minimum percentage of the building, even Hopkins' own

exhibit demonstrates that the entire first floor plan of Diocese's building is of a typical Catholic

church. This, combined with the exterior architectural design of the building, will leave littledoubt as to the purpose of Diocese's building, that of an ecclesiastical building akin to a church.
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Lastly, the Diocese contends that the reliance by the ZHB onFranchi v Zoning Hearing Board of

the Borough of New Brighton, 117 Pa. Cmwlth. 236, 543 A.2d 239 (1988), was similarly

misplaced. Again, the court in Franchi was faced with deciding the matter in reliance upon a

definition supplied by the zoning ordinance. As its been argued in the preceding paragraphs, no

such definition of church is supplied by the State College *10 ordinance. Therefore, the courtmust rely on prior court pronouncements as to what is a church.

*11CONCLUSION

For the foregoing reasons, Appellee, Diocese of Altoona-Johnstown, contends that the Opinion

and Order of the Court of Common Pleas of Centre County dated June 30, 2005 should be

affirmed.

DIOCESE OF ALTOONA-JOHNSTOWN, v. ZONING HEARING BOARD OF THE BOROUGH OF STATE

COLLEGE, Donald Hopkins and Mildred Hopkins, Appeal of Donald and Mildred Hopkins.2005 WL 5279664 (Pa.Cmwlth.) (Appellate Brief)

Briefs and Other Related Documents(Back to top)

2005 WL 5279665(Appellate Brief) Appellants' Brief (Nov. 7, 2005) Original Image of this

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Neighbors Brief

Commonwealth Court of Pennsylvania.

DOICESE OF ALTOONA-JOHNSTOWN,

v.
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ZONING HEARING BOARD OF THE BOROUGH OF STATE COLLEGE, Donald Hopkins and Mildred

Hopkins, Appeal of: Donald and Mildred Hopkins.

No. 1549 CD 2005.

November 7, 2005.

Appeal of Order Dated June 30 2005 of the Court of Common Pleas of Centre County Trial Court

Docket no. 2005-929

Appellants' Brief

Engle & Engle, P.C.,David D. Engle, Esquire, Attorney I.D. No. 55930, 1500 S. Atherton Street,

State College, PA 16801, (814)234-8834, Attorney for Appellants, Donald and Mildred Hopkins.

*iTABLE OF CONTENTS

Table of Citations ... ii

I. Statement of Jurisdiction ... 1

II. Order in Question ... 1

III. Statement of Questions Involved ... 2

IV. Statement of the Case ... 4

V. Summary of Argument ... 8

VI. Argument ... 10

A. ZHB Decision that the primary use of the proposed Catholic Student Center is as a student

center rather than a church or other place of religious worship and that said student center use is

not permitted as a primary use in the R-2 Zoning District under Section 501.b of the StateCollege Borough Zoning Ordinance was legally correct and was supported by substantial

evidence ... 10

B. The uses of the non-church portions of the proposed structure are not permitted under

Section 501.b of the State College Borough Zoning Ordinance as accessory uses because they

are student union/center and multi-family residential uses rather than the permitted accessory

uses of religious instruction or a religious school... 25

C. ZHB Decision that the proposed Catholic Student Center structure is not permitted in State

College Borough's R-2 zoning district protects area homogeneity and preserves the integrity of

the State College Borough Zoning Ordinance by supporting the intent of the R-2 zoning district

regulations ... 29

VII. Conclusion ... 31

Appendices

Findings of Fact, Conclusions of Law and Decision of Zoning Hearing Board of the Borough of

State College Adopted February 7, 2005 ... Appendix A

Opinion and Order of Judge Thomas K. Kistler Entered June 30, 2005 ... Appendix B
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8/23

Proposed First Floor Plan for Catholic Student Center ... Appendix C

*iiTABLE OF CITATIONS

Cases

Appeal of the Russian Orthodox Church of the Holy Ghost of Ambridge, 397 Pa. 126, 152 A.2d

489 (1959)... 223, 28, 29, 30, 31

Appeal of Upper St. Clair Township Grange No. 2032, 397 Pa. 67, 152 A.2d 768 (1959)... 20,

21, 22

Camp Ramah in thePoconos, Inc. v. ZHB of Worcester Township, 743 A.2d 1019 (Pa. Comm. Ct.

2000)... 27, 28, 29

Franchi v. ZHB of Borough of New Brighton, 117 Pa. Commw. 236, 543 A.2d 239 (1988)... 2, 8,

15, 16

Fun Bun, Inc. v. Zoning Board of Adjustment5 Pa. Commw. 439, 291 A.2d 344 (1972)... 15

Herr v. Grier, 448 Pa. Super. 216, 671 A.2d 224 (1995)... 20

Hileman v. Morelli, 413 Pa. Super. 316, 605 A.2d 377 (1992)... 20

Merry v. Zoning Board of Adjustment, 406 Pa. 393, 178 A.2d 595 (1962)... 11

Nascone v. Ross Township Zoning Hearing Board, 81 Pa.Commw.482,473 A.2d 1141 (1984)...10

Rushford v. Zoning Hearing Board of Adjustment of Pittsburgh, 81 Pa. Commw. 274, 473 A.2d

719 (1984)... 10

Southco, Inc. and Contact II, Inc. v. Concord Township, 552 Pa. 66, 713 A.2d 607 (1998)... 2,

8, 14, 16

Valley View Civic Association v. Zoning Board of Adjustment, 501 Pa. 550, 462 A.2d 637 (1983)... 10

*iiiStatutes

1 Pa. C.S. 1903(a)... 20

42 Pa. C.S. 762(a)(4)... 1

Ordinances (All citations are to the State College Borough Zoning Ordinance)

Section 110.a ... 9, 30, 31

Section 201 ... 3, 9, 11, 16, 25, 26, 31

Section 501 ... 3, 7, 9, 10, 11, 16, 18, 25, 29, 31

Section 601 ... 3, 7, 9, 16, 31
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Diocese Brief Undefined Use

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