1 Introduction
This book presents a collection of significant concepts in land use law. I have written this book to be a useful tool for all of attorneys, professional planners, and students.
I have included cases from federal and Florida courts to present U.S. Constitutional issues, Florida common law, and Florida statutory issues. Although this text focuses on Florida land use law, most states have comparable laws. In every jurisdiction, always consult state and local government laws.
In addition to cases and explanatory materials, I have included hypothetical land use conflicts. I wrote these fact patterns to provide you with an opportunity to test your learning.
Florida has its own legal framework for regulating how people may use land. An ever-growing population, booming real estate development, and the lure of a beautiful-but-fragile environment have defined the Sunshine State for more than a century. These factors have led to constant change in Florida communities and to chronic concern about the repercussions of real estate development. The state and local governments have responded in part by creating a unique system to regulate and manage growth.
While this text focuses on land use regulation, Florida has also served as a laboratory for city design and development. From Henry Flaglerâs railroad opening the Atlantic Coast to Walt Disneyâs global tourist attraction, Floridaâs industry has been the business of building itself.
Although the sixteenth-century establishment of St. Augustine seems distant from modern Florida, the city illustrates the relationship between real estate, land use regulation, and community. St. Augustine began as a planned community, designed according to the Laws of the Indiesârules prescribing the form of Spanish settlements in the Americas.1 Land use rules determined St. Augustineâs original design, including its main square, streets, and building sites. Centuries later, people continue to live in the place shaped by those rules. This is the essence of land use regulation: rules combine with urban design and the business of real estate development to build the places people live, likely for generations to come.
In Florida, examples of the relationships between law, design, and business abound. For example, developer and politician George E. Merrick developed Coral Gables in 1921. His business venture failed, brought down by the cost of providing public infrastructure.2 But Coral Gables has since become its own city and succeeded as an enduring community, beloved for its beauty.
Some Florida developers, pursuing short-term profit over a legacy of town-building, created zombie subdivisions.3 Local governments continue to struggle to provide public services to these subdivided but largely undeveloped tracts of land. Consider Lehigh Acres in Lee County, where 62,000 acres (or 97 square miles) of land subdivided in the 1950s and 1960s consists of single-family homesites remote from other land uses or urban services.4 It remains sparsely populated, a failure as a community even if initially profitable.
Other large-scale developments, such as the Arvida Corporationâs City of Weston, were successful business ventures and have become functioning cities that efficiently provide services to residents.5 But they are banal, lacking charm and vibrant public spaces.
In recent decades, perhaps learning from past mistakes, some Florida developers have refocused on designing and building complete communities. This movement, called the New Urbanism, sees many social, civic, and environmental problems as symptoms of poor urban design. Robert Davis, the developer of the new urban Seaside, helped begin this trend not just in Florida, but in the United States. Town planners Andres Duany and Elizabeth Plater-Zyberk designed Seaside and credit Davis with prioritizing place over profit.6 Yet Seaside and the surrounding developments it inspired have succeeded financially.
Land use law lies at the intersection of community needs and preferences for the character of communities, the real estate market, and private property rights. This is the field that determines how we will build and maintain the places in which people will live their lives for generations to come.
Consider a built place you love. This may be your childhood home. It may be an open space in the neighborhood where you work. It may be a civic space in a favorite city you have visited. In any case, real estate development built these places and a local governmentâs regulations undoubtedly impacted their character. Land use law matters because where and how we live matter.
Land use as a practice area
Generally, land use law is the field of law answering the question, âHow may a person use this real property?â Land use law differs from real estate law in that real estate law answers the question, âWho owns this real property?â Land use has at least three characteristics that color the routine work of the land use practitioner: land use decisions are based in local government and politics; land use practice is interdisciplinary; and land use law regulates real estate development. This list is written from an attorneyâs perspective, rather than from that of a professional planner. But planners should consider these characteristics to help them relate to a lawyerâs perspective on land use.
Land use is local government and local politics
Land use law is based in local government and local politics.7 This has two implications for the practice area. First, decision-makers are typically laypeople. The legislators adopting the ordinances with which land use practitioners work are local government officialsâsometimes elected from a pool of just a few hundred registered voters.
Moreover, the decision-makers applying those rules to determine whether a property owner may take a certain action are often volunteersâserving on a board like an historic preservation board, a development review board, or a board of adjustment. A land use lawyer might corral the expert opinions of trained architects, planners, and engineers only to provide them to a laypersonâlike a neighborhood activistâwho has no professional training that gives context to the information the attorney seeks to provide.
Second, because land use is political, the decision-makersâwhether they admit it or notâ pay attention to the identity of applicants and of parties opposed to applicants. Are people with opinions about a land use matter voters or donors to political campaigns? Does a particular developer have a good or bad track record? Is a neighborhood association opposed to a project also politically active, holding an influential candidate forum?
In local government, elected officials and applicants often have close personal relationships. And few elected officials or lay decision-makers will be as skilled at focusing on the relevant facts and the applicable law as are judges.
Land use practice is interdisciplinary
Land use practitioners work with professionals in many other disciplines. Land use lawyers and planners work together. And both work with architects, engineers, financiers, and environmental scientists. To succeed, a land use practitioner must be able to communicate with these other professionals about their areas of expertise.
Working collaboratively through an application process is likely to be a more valuable skill to a practicing land use attorney than prowess in civil litigation. Of course, this does not mean that a land use practitioner needs to be an expert in any other subject matter. Still, a working knowledge of the issues with which these experts deal and how they approach problems is essential. A land use practitioner must understand enough about these related fields to know what questions to ask and to appreciate what he or she doesnât know.
Land use law regulates real estate development
Land use law regulates the business of real estate development. As a result, time matters. If a requested development approval is litigated, rather than reaching final disposition quickly before a local government, the applicant may lose because of the delayâregardless of the ultimate outcome.
At least two reasons make timely approval significant. One reason is that markets change over time. Real estate developers formulate projects for the market at a specific point in time considering the prices at which they can sell or lease space. If a development project is delayed several years, other developers may fulfill that market demand. Because supply and demand are constantly in flux, undue delays can change the economic feasibility of a development proposal.
Another reason time matters is that keeping a potential real estate development in play costs money over time. Most real estate developers do not propose projects for land they own outright. Instead, developers and landowners are often separate parties.
When a developer does not own the property he or she seeks to develop, that developer will secure a contract with the owner of the real estate, giving the developer the option to purchase the property for a set period of time, pending development approval. Even when a developer does own land, that property is often encumbered with debt. In either case, the developer must pay over time to keep the land available for development.