E. Rockhill Twp. v. Richard E. Pierson Materials Corp.
E. Rockhill Twp. v. Richard E. Pierson Materials Corp.
Opinion of the Court
This case arises out of a zoning dispute involving a long dormant quarry that sprung back to life in a residential area, sparking protests from neighbors affected by its operation. Although the quarry is located in an area zoned for mineral extraction and primarily regulated by the Pennsylvania Department of Environmental Protection, local officials sought to impose additional conditions on its operations in response to residents' concerns and hesitated to issue an operating permit. Then, fearing that the quarry owner and operator were about to install an asphalt plant on site, the Township sought to enjoin them from doing so in state court. The owner of the quarry along with the operator of the site removed the enforcement action to this court, seeking injunctive relief to permit their operations, which I granted in part. East Rockhill Twp. v. Richard E. Pierson Materials Corp., et al. ,
They have also asserted counterclaims for damages against the Township and local officials. One is a civil rights claim asserting a denial of substantive due process. The second is a state law claim alleging tortious interference with the quarry operator's contract to supply stone for a state highway project. The Township and its officials moved to dismiss these counterclaims. Because I am persuaded that no reasonable jury could find Defendants' actions shocking to the conscience, and because the actions Defendants took affecting the contract were privileged, I will grant the motions to dismiss.
*496I. Factual Background
In November 2017, Pierson Construction was awarded a contract by the Pennsylvania Turnpike Commission to widen and improve part of the Pennsylvania Turnpike ("the Turnpike Project"). To complete the Turnpike Project, an affiliated entity of Pierson Construction, Pierson Materials, leased the Rockhill Quarry in East Rockhill Township. When Pierson Materials notified the Township of its plans to use the quarry to obtain material and produce asphalt, the underlying dispute ensued. Counterclaim Plaintiffs here include Richard E. Pierson Materials Corp. and Richard E. Pierson Construction Co., Inc. (collectively "Pierson") as well as Hanson Aggregates Pennsylvania, LLC ("Hanson"), which owns the property that contains the Rockhill Quarry. Counterclaim Defendants include the Township, East Rockhill Township Board of Supervisors ("the Board"), Township Manager and Zoning Officer Marianne Morano, and Board members Gary Volovnik, David Nyman, and Jim Nietupski.
The quarry in question has been in existence and operated at some level since 1890. Asphalt production has periodically occurred at the site, but the equipment for such production was removed in the early 1980s when quarrying operations were reduced substantially. In the eyes of its neighbors, the quarry had long been inactive, see Defs.' Counterclaim Ex. G; Defs.' Counterclaim Ex. K, and the demographics of the area around the quarry had changed in that time. See Defs.' Counterclaim Ex. G. But Hanson continuously maintained Department of Environmental Protection (DEP) permits for the quarry, so as to remain in "active operation" for purposes of the controlling state statute, 52 P.S. § 3303.
In November 2017, Pierson informed the Township of its plans to lease the quarry for the Turnpike Project and its specific plans to produce asphalt. According to the Counterclaim, Pierson sought to "bring in portable quarrying equipment to be located on existing impervious areas of the site," "bring in portable asphalt making equipment to be located on existing impervious areas of the site and placed in the same areas (using existing foundations and footings) as prior asphalt making equipment," and "place temporary trailers on the existing foundations of prior buildings." Defs.' Counterclaim ¶ 55. Pierson provided a tour of the quarry to Zoning Officer Morano in December 2017, and on December 11 and December 21, 2017, Pierson submitted two letters to the Township regarding the proposed operations. See Defs.' Counterclaim Ex. E; Defs.' Counterclaim Ex. F. Pierson then began preparations for asphalt production, ordering equipment and materials, preparing the site, and hiring personnel.
On December 26, 2017, numerous local residents attended a meeting of the Township Board of Supervisors and expressed opposition to the proposed increase in quarrying operations. On December 28, 2017, Morano emailed DEP, copying various other officials. She described the concerns of local residents and asked DEP to delay issuing approvals until after the Township could meet with DEP about the changed circumstances since the quarry was last active. Defs.' Counterclaim Ex. G.
*497Morano did not send that email to Hanson or Pierson.
On December 29, 2017, Morano responded to Pierson's December 11 and 21 letters. In her response, she indicated that there appeared to be "new and/or altered structures, equipment and/or uses proposed for the property" and that a special exception would therefore be necessary before Pierson could proceed with the "proposed use and/or improvements." Defs.' Counterclaim Ex. H. Pierson responded to Morano's December 29, 2017 letter on January 4, 2018. It argued that the proposed use of the quarry was consistent with how it has always been used and noted that the Township previously issued annual zoning permits without referring to any special exception requirement. Defs.' Counterclaim Ex. I.
Prior to that response, on the same day that Morano responded to Pierson's letters-December 29, 2017-Hanson had submitted a letter to the Township along with a 2018 Zoning Permit Application, Existing Land Use Overlay Plans, and Site Plans. That same day, as a supplement to the 2018 Zoning Permit Application, Pierson had submitted a letter that confirmed compliance with the requirements in the Township's zoning ordinance for issuance of an H12 Extractive Operation Permit, a report regarding traffic routes, and the DEP General Plan Approval and General Operating Permit for certain temporary equipment to be used at the quarry.
On January 12, 2018, Morano replied to Hanson and Pierson's application materials in a letter that stated the following findings: Pierson would need to obtain a special exception; Pierson was not compliant with various zoning requirements; Pierson could only obtain relief related to the asphalt plant from the Zoning Hearing Board; and land development approval would be necessary to transport the portable quarrying equipment or to place trailers on the existing foundations. See Defs.' Counterclaim Ex. J. Based on these findings, the Township denied Hanson and Pierson's 2018 Zoning Permit Application.
Hearings before the Zoning Hearing Board proceeded over several sessions without resolution. The Township, concerned that Hanson and Pierson intended to proceed with the installation of an asphalt plant, sued in state court to enjoin its operation. See Defs.' Notice of Removal Ex. A. Significantly, the Township did not seek to enjoin the operation of the quarry; public hearings as to the terms under which it should operate continued. Following removal, Hanson and Pierson sought an injunction requiring the Township to allow operation of both the quarry and the asphalt plant. After a bench trial, I enjoined the Township from interfering with operation of the quarry under the Declaratory Judgment Act, finding that exclusive jurisdiction to regulate quarry operations rested with the DEP. I abstained from ruling as to the asphalt plant, finding state law at best unsettled, if not adverse to Hanson and Pierson. East Rockhill Twp. ,
In advancing their counterclaims, Hanson and Pierson contend that the actions on the part of Township officials summarized above were arbitrary because those officials knew that they lacked the authority to regulate quarry operations and acted only in response to the views of residents.
*498In support, Hanson and Pierson cite the following evidence:
- On December 19, 2017, in an email to a resident, Morano wrote that it is "the DEP Pottsville Mining Office who will be reviewing the Rockhill Quarry permit. DEP supersedes a lot of Township regulations for the Quarry." Defs.' Counterclaim ¶ 83.
- At a Board meeting on December 26, 2017,3 the Board and/or Volovnik, Nyman, or Nietupski made the following comments:
• "The Quarry is regulated by DEP and therefore within the operator's rights;"
• "The Board cannot stop the operations, but they will attempt to control them;"
• "Yes, they have permits and are regulated by the state; they have been there for a very long time; we cannot shut them down;"
• "They are governed by the DEP; they have to go to the state; not us;" and
• "Land development may be preempted by DEP." Id. ¶ 84.
- At a January 23, 2018 Board meeting, Nyman stated "there's a whole act that covers this: the Noncoal Surface Mining Conservation and Reclamation Act; every quarry has to develop a specific plan to be approved by DEP for that specific site." Id. ¶ 87.
- At a July 24, 2018 Board meeting, Nyman further stated that "the Pennsylvania Department of Environmental Protection controls quarrying operations; the Township does not." Id. ¶ 88.
Based on these various statements, Pierson and Hanson maintain that township officials acted based on "political and personal reasons or animus unrelated to the merits of the use or any requirements of law." Id. ¶ 97. They further contend that local political pressure motivated the Township and its officials to attempt to regulate quarry operations despite knowing that such regulation is preempted under the Pennsylvania Mining Act. Specifically, they argue that the Township rejected the 2018 Zoning Permit Application only "because Pierson seeks to increase the Quarry's operations." Id. ¶ 99. Finally, Pierson asserts that Counterclaim Defendants Volovnik, Nyman, Nietupski, and Morano acted intentionally and improperly to interfere with Pierson's ability to perform the Turnpike Project contract.
II. Legal Standard
Fowler v. UPMC Shadyside ,
III. Discussion
A. Substantive Due Process
Hanson and Pierson urge that the Township's efforts to regulate the quarry and asphalt plant violated Hanson and Pierson's Fourteenth Amendment substantive due process rights. To properly allege a violation of substantive due process, a plaintiff must show (1) a property interest protected by the Fourteenth Amendment
The Third Circuit expressly adopted the shocks the conscience standard for land use actions in United Artists Theatre Circuit, Inc. v. Township of Warrington , repudiating the "less demanding improper motive test" that had previously governed such cases.
What shocks the conscience "varies depending on the factual context,"
Numerous district courts in this circuit have concluded that even official actions alleged to be wrong, unfair, taken in bad faith, or intended to delay do not suffice to shock the conscience, and in each instance these decisions were affirmed. See Dev. Grp., LLC. v. Franklin Twp. Bd. of Supervisors ,
Even where a plaintiff alleges corruption, such conduct may not shock the conscience if it relates to a legitimate government purpose. See Thornbury Noble, LTD. v. Thornbury Twp. ,
Several courts in this Circuit have concluded that any relationship between the challenged action and a legitimate government purpose prevents a finding that the conduct shocks the conscience. See Good ,
The facts alleged in the Counterclaim do not demonstrate a lack of a legitimate government purpose, nor do they advance any claims of corruption or self-dealing. The crux of the complaint is that when East Rockhill officials denied the zoning permit and demanded compliance with additional requirements, they knew they lacked the authority to regulate the quarry and acted improperly in response to local residents' opposition. I cannot conclude that such action is unrelated to any legitimate government goal, because responding to citizen concerns about maintaining current land use in the face of proposed changes falls well within the realm of legitimate government goals. See Corneal ,
*501The Counterclaim further fails to allege any corruption, self-dealing, bias, or intent to interfere with constitutionally-protected activity. The statements cited in the counterclaim show, at most, an awareness that "DEP supersedes a lot of Township regulations for the Quarry," Defs.' Counterclaim ¶ 83, and that the Township was without power to "shut them down" altogether. Id. ¶ 84. They do not demonstrate that the Township believed it was totally without power to take steps to limit an increase in operations or restrict installation of an asphalt plant, and they certainly do not show that it took such action for personal gain, out of bias, or with other corrupt motives. See Eichenlaub
Against this battery of precedent, Hanson and Pierson seek to rely upon a non-precedential decision, Lonzetta Trucking and Excavating Co. v. Schan ,
Hanson and Pierson also observe that many of the decisions involving substantive due process in land use cases were rendered at the summary judgment stage and argue that this Motion is premature. But decisions reached at the summary judgment stage establish the governing legal standard for what constitutes a plausible claim of denial of substantive due process. Where, as here, a plaintiff's factual allegations-accepted as true-fall well short of the minimum legal requirements to state a claim, dismissal on a 12(b)(6) motion is appropriate. See Perano ,
Accordingly, I will dismiss the substantive due process claim for failure to state a claim.
B. Tortious Interference with a Contractual Relationship
Pierson separately claims that Township officials Volovnik, Nyman, Nietupski, and Morano tortiously interfered with its contractual relations. Under Pennsylvania *502law, a claim for tortious interference with contractual relations requires a showing that: "(1) a contractual or prospective contractual relationship existed between plaintiff and a third party; (2) defendant took purposeful action, intended to harm that relationship; (3) that no privilege or justification applies to the harmful action; and (4) damages resulted from the defendant's conduct." Intervest Fin. Servs., Inc. v. S.G. Cowen Sec. Corp. ,
Defendants argue that Pierson has failed to show they acted without privilege or justification, as required under the third element. In Pennsylvania, the plaintiff must demonstrate a lack of privilege or justification as part of the prima facie case, and failure to do so results in dismissal of the claim. See Thompson Coal Co. v. Pike Coal Co. ,
"What is or is not privileged conduct in a given situation is not susceptible *503of precise definition," and the propriety of an interference must be considered in terms of "the 'rules of the game' which society has adopted." Glenn v. Point Park Coll. ,
Applying the Restatement factors to the facts alleged here, I cannot conclude that Township officials acted improperly. First, the nature of their conduct-"a chief factor" in determining propriety-was proper for zoning board officials. See Restatement (Second) of Torts § 767 comment c (Am. Law Inst. 1979); Crivelli v. Gen. Motors Corp. ,
Pierson contends that the Township officials' actions were nonetheless improper and not privileged because the officials were aware that their authority was preempted. The averments cited in the Counterclaim demonstrate that the Board members were aware of significant limitations on their authority, specifically that DEP superseded the Township's authority to regulate the quarry in many areas and that the Township lacked the authority to prohibit quarry operations. Defs.' Counterclaim ¶ ¶ 83, 84. They do not show that Volovnik, Nyman, Nietupski, or Morano believed the Township to be entirely without power to address the concerns of residents. Taking into account that the quarry had been dormant for some 30 years and the fact that the character of the surrounding area had changed, I cannot conclude that it was improper for Township officials to explore the limits of their regulatory authority. Furthermore, in bringing an enforcement action in court, the Township sought only to enjoin the operation of the asphalt plant, and I have separately held that, on balance, Pennsylvania law favors the Township's position that it has the power to limit such use. East Rockhill Twp. ,
As to the Township officials' motives-the second Restatement factor-Pierson affirmatively pleads that they acted in response to local residents' complaints. I cannot fault government officials for responding to constituent concerns. Pierson's allegations that the Township officials acted in violation of state law are insufficient to call into question whether they were motivated by genuine public concerns. My assessment of motive is related to my consideration of the fourth factor-interests advanced by the officials' conduct-and one aspect of the fifth factor-the social interests in protecting the officials' freedom of action. See Restatement (Second) of Torts § 767 comment d (Am. Law Inst. 1979). I conclude that the Township officials have a strong interest in advocating for the community's well-being and giving voice to local residents' views on land use policy. Representative government requires that officials consider and respond to the concerns of citizens, and officials' freedom to serve their constituents without fear of repercussions (except from the electorate) is of great social utility. See
I conclude that the actions of Township officials are privileged even as I also acknowledge the social interest in protecting Pierson's contractual rights-the third Restatement factor-and Pierson's direct interest in reaping the benefits of his contract with the Turnpike Commission-an element of the fifth Restatement factor. For that matter, the Turnpike Project itself serves a social interest. But the question before me is "whether, upon a consideration of the relative significance of the factors involved, the conduct should be permitted without liability, despite its effect of harm to another." Triffin ,
Pierson therefore has not stated a claim for tortious interference with contractual relations, and I will grant the Motion to Dismiss with respect to this claim as well.
Both remaining counts of the Counterclaim will be dismissed with prejudice.
A more detailed recitation of the facts is set forth in my opinion addressing equitable relief. See
Under Pennsylvania law, a permit may be maintained as "active" so long as a certain minimal cottage is extracted each year, even if the quarry is not marketing its product to the public.
The Counterclaim indicates that these statements were made at a meeting on December 2, which I assume is a typographical error. Counterclaim Plaintiffs' Response also states that the comments were made at a December 27 board meeting, but all other references to such a board meeting-elsewhere in the Counterclaim, in the Motion to Dismiss, and elsewhere in the Response-indicate that it occurred on December 26.
There is no dispute here that Hanson and Pierson have a protected property interest.
See also Lindquist v. Buckingham Twp. ,
See also Keystone Outdoor Advert. Co., Inc. v. W. Whiteland Twp. ,
Because Counterclaim Plaintiffs have failed to allege a violation of their substantive due process rights, I need not address the defense of qualified immunity.
The Court may properly determine whether conduct is privileged. See Windsor Sec., Inc. v. Hartford Life Ins. Co. ,
The failure to state a claim for an intentional tort also ensures that immunity applies to Counterclaim Defendants Volovnik, Nyman, Nietupski, and Morano under Pennsylvania law. The Pennsylvania Subdivision Tort Claims Act (PSTCA) extends to employees of local agencies the same immunities afforded to the agencies themselves.
Pierson's assertion that immunity does not apply because the individual defendants were sued in their personal rather than official capacities has no merit under Pennsylvania law, because Pierson has asserted a tort claim, subject to the provisions of the Political Subdivision Tort Claims Act set forth above.
The final two factors-the proximity of the conduct to the interference and the relation between the parties-do not tip the balance in either direction on these facts. The denial of the permit pending additional approvals rendered Pierson temporarily but not permanently unable to carry out its contract, although such a result was possible. See Restatement (Second) of Torts § 767 comment h (Am. Law Inst. 1979). The relation between the parties typically refers to whether parties are competitors or in another business relationship and does not seem to contemplate action by government officials. See
Reference
- Full Case Name
- EAST ROCKHILL TOWNSHIP, Plaintiff/Counterclaim v. RICHARD E. PIERSON MATERIALS CORP. d/b/a R.E. Pierson Materials, Inc. and Hanson Aggregates Pennsylvania, LLC, Defendants/Counterclaim Richard E. Pierson Construction Co., Inc., Additional Counterclaim v. East Rockhill Township Board of Supervisors, Gary Volovnik, David Nyman, Jim Nietupski, and Marianne Morano, Additional Counterclaim
- Cited By
- 16 cases
- Status
- Published