Heard v. Prince George's Cnty.

Bradley E. Heard v. County Council of Prince George’s, et al., No. 1794, Sept. Term 2022.
Opinion filed on February 2, 2024, by Wells, C.J.

ZONING – STANDING – AGGRIEVEMENT

A protestant has standing under Maryland Code Annotated, Land Use (“LU”) Article
section 22-407(a)(1) to seek judicial review of a final zoning decision so long as the
protestant satisfies each of the criteria listed there. Additionally, the protestant must
demonstrate aggrievement, meaning that the decision will adversely affect the protestant’s
interests in a personal and specific manner not shared by the public. The proximity of the
protestant to the affected area is the most important factor in establishing aggrievement.

Here, the County Council for Prince George’s County, acting as the county’s zoning
authority, the District Council, passed CB-42-2021, which changed the Table of Uses in an
R-55 residential zone to allow an eleemosynary entity to operate in a defunct public school.
Appellant Bradley Heard has demonstrated that he lives approximately 800 feet from the
subject property. Additionally, Heard has shown under the “non-demanding” statutory
requirements of LU § 22-407 that he and other neighboring county residents would suffer
a pecuniary loss because of the District Council’s decision. He, therefore, has standing to
contest the District Council’s passage of CB-42-2021.

ZONING – REGIONAL DISTRICT ACT – COUNTY CHARTER

Prince George’s and Montgomery Counties are parties to the Maryland-National Capital
Park and Planning Commission (M-NCPPC), a legislatively created body that administers
certain park development, as well as planning and zoning functions in those counties. The
Maryland-Washington Regional District Act (RDA), embodied in LU § 22-104(a),
authorizes the Prince George’s District Council, through the M-NCPPC, to adopt, amend
and administer zoning laws within the county. Because the RDA is the “exclusive source
of zoning authority in those areas of Prince George’s County which it covers,” we hold that
the zoning provisions of the county’s Charter have been superseded by the RDA.
Consequently, assent from the County Executive and any charter-related time constraints
are inapplicable to zoning actions such as CB-42-2022.

ZONING – SPOT ZONING – VALID PUBLIC PURPOSE
“Spot zoning occurs when a small area in a [zone] district is placed in a different zoning
classification than the surrounding property.” Here, the District Council did not rezone the
subject property but changed the Table of Uses for the R-55 residential zone to allow a
charitable organization to redevelop and then operate out of a long-shuttered public school.
Further, a use permitted in a small area, which is not inconsistent with the use to which the
larger surrounding area is restricted, although it may be different from that use, is not
“spot zoning” when it does not conflict with the comprehensive plan. In this case, the
proposed use of the defunct school was consistent with the county’s comprehensive plan
and was for a valid public purpose and, therefore, does not constitute spot zoning.
Circuit Court for Prince George’s County
Case No. CAL21-08992
REPORTED

IN THE APPELLATE COURT

OF MARYLAND

No. 1794

September Term, 2022
______________________________________

BRADLEY E. HEARD

v.

COUNTY COUNCIL OF PRINCE
GEORGE’S COUNTY, SITTING AS
DISTRICT COUNCIL, ET AL.
______________________________________

Wells, C.J.,
Nazarian,
Tang,

JJ.
______________________________________

Opinion by Wells, C.J.
______________________________________

Filed: February 2, 2024

2024-02-02
10:18-05:00
This appeal arises from a judgment of the Circuit Court for Prince George’s County

dismissing appellant Bradley Heard’s petition for judicial review of co-appellee Prince

George’s County Council’s 1 enactment of zoning bill CB-42-2021—an ordinance that

amended the R-55 (single-family detached residential) zone to allow for the adaptive reuse

of an abandoned public-school building by the Mission of Love Charities, the other

appellee (for convenience both appellees will be referred to as “the District Council”). The

circuit court did not reach the merits of Heard’s claims finding that he lacked both property

owner and taxpayer standing to challenge the passage of the bill.

Heard asks us to resolve three questions, which we have rephrased: 2

1. Does Heard have standing to challenge the District Council’s enactment of CB-
42-2021?

1
Under the Maryland Regional District Act (“RDA”), the County Council, sitting
as the District Council, has the authority to review and decide zoning and land use matters
for most of Prince George’s County.
2
Heard’s verbatim questions to us read:

1. Did the Circuit Court err in finding that Appellant lacked standing to seek
judicial review of the District Council’s legislative enactment of CB-42-
2021?

2. Did the District Council’s enactment of CB-42-2021 constitute a valid and
enforceable local zoning law within the meaning of the Regional District Act,
given that (a) the enacted legislation was neither presented to nor approved
by the County Executive in accordance with Section 411 of the Prince
George’s County Charter, and thus never became a local law, or (b) the
enacted non-emergency legislation was designated to take effect “on the date
of its adoption,” rather than 45 calendar days after it became law, in violation
of Section 318 of the Prince George’s County Charter?

3. To the extent that the District Council’s enactment of CB-42-2021
constitutes a facially valid local zoning law within the meaning of the
Regional District Act, is the regulation nevertheless ultra vires and
unenforceable, given that it constitutes unlawful spot zoning?
2. Did the District Council legally enact CB-42-2021?

3. Even if CB-42-2021 was validly enacted, did the District Council exceed its
authority because the ordinance constitutes “spot zoning?”

For the reasons that we discuss, we reach a different conclusion from the circuit court and

determine that Heard has standing to challenge the District Council’s passage of CB-42-

2021. On the merits, we conclude the legislation was legally enacted and does not

constitute spot zoning. The ordinance is, therefore, valid and enforceable within the

meaning of the RDA.

BACKGROUND

On June 8, 2021, six members of the Prince George’s County Council proposed and

presented the first draft of CB-42-2021 to the District Council. 3 It provided:

(E) A former public-school building, currently or previously located
in a Development District Overlay Zone, where the building is greater than
10,000 sq. ft in gross floor area and the building is situated on a lot or parcel
exceeding 2 acres, can be adaptively reused primarily by an eleemosynary,
philanthropic or non-profit institution, established prior to (date) and whose
previous office headquarters was within 150 yards of the school building.
The adaptive user can also operate, sell or lease space within the building to
an entity or entities in any use permitted in the CSC zone. (Emphasis added)

The property at issue is known as the Lyndon Hills School located at 6181 Old Central

Avenue. The school has sat unused and vacant for several years.

On June 17, 2021, the Prince George’s County Planning Board 4 submitted written

comments on the first draft of the bill. The Planning Board noted that the bill would run

3
They were Councilmembers Streeter, Davis, Ivey, Franklin, Taveras, and Glaros.
4
The Prince George’s County Planning Board, together with the Montgomery
County Planning Board, makes up the Maryland-National Capital Park and Planning
Commission (M-NCPPC)—a bi-county agency that acquires, develops, maintains and
administers parks and plans for land use in both counties, respectively.

2
counter to the 2000 Addison Road Metro Approved Sector Plan and Sectional Map

Amendment because the property was subject to a Development District Overlay Zone

(DDOZ), which has its own separate process to amend the table of uses in the DDO Zone. 5

In its report, the Planning Board noted “there is an existing process where a property owner

can request an amendment to permit use in a DDOZ.”

On July 1, 2021, before the County Council sitting as the Committee of the Whole

(“COW”), 6 the bill’s principal sponsor, then-councilmember Rodney Streeter, noted that

this legislation was critical to the continued operation of the Mission of Love Charities,

Inc., a small nonprofit human services organization located directly across the street from

the old Lyndon Hill School property at 6180 Old Central Avenue.

To address the Planning Board’s concern about the DDOZ, Councilmember Streeter

moved to amend CB-42-2021. The amendment provided:

(E) Eleemosynary or Philanthropic Institution. Notwithstanding any
provision to the contrary in Section 27- 548.22, or any general provisions of
Part 10A, Division 3 of the Zoning Ordinance, the adaptive reuse of a former
public school building, currently or previously located in a - 10 -
Development District Overlay Zone, where the building is greater than
10,000 sq. ft in gross floor area and the building is situated on a lot or parcel
exceeding 2 acres, and can be adaptively reused primarily by an
eleemosynary, or philanthropic institution, providing social services to the
community and whose previous office headquarters was within 150 yards of
the school building with a validly issued occupancy permit prior to May 1,
1999. The use is permitted by right and the operator can also sell or lease no

A Development District Overlay Zone (“DDO Zone”) is a mapped zone that is
5

superimposed over one or more designated development districts by a Sectional Map
Amendment to ensure that the development meets the goals established in a Master Plan,
Master Plan Amendment, or Sector Plan. Accordingly, a DDO Zone may modify
development requirements within the underlying zones. Prince George’s County Code of
Ordinances (“PGCC”) § 27-548.19.

Items referred to the Committee of the Whole are considered, and a
6

recommendation is then made to the full District Council.

3
more than 49% of the space within the building to an entity or entities to
engage in any use permitted by right in the CSC zone. (Emphasis added).

Put differently, the bill amended the table of permitted uses for the R-55 (residential single-

family detached) zone to allow for the adaptive reuse of a former public-school building

that is:

(1) currently or previously located in a Development District Overlay
Zone;
(2) where the building is greater than 10,000 sq. ft. in gross floor area;
(3) is situated on a lot or parcel exceeding 2 acres;
(4) can be adaptively reused primarily by an eleemosynary, or
philanthropic institution 7, providing social services to the community; and

(5) whose previous office headquarters was within 150 yards of the
school building with a validly issued occupancy permit prior to May 1, 1999.

The amendment adds that “this use is permitted by right and the operator can also sell or

lease no more than 49% of the space within the building to an entity or entities to engage

in any use permitted by right in the CSC [commercial shopping center] zone.” 8

Prior to a vote on the amendment, staff attorney for District Council, Karen

Zavakos, the Acting Director of Prince George’s County’s Department of Planning,

Housing & Economic Development, provided the following explanation for the

amendment:

Thank you, Mr. Chair, Members of the Council. I bring this Amendment No.
1 explanation to you by way of a quick introductory explanation. One, this

An eleemosynary or philanthropic institution is defined, in relevant part, as “any
7

facility operated by a private, nonprofit organization offering religious, social, physical,
recreational, emergency, or benevolent services, and which is not already specifically
allowed in the various zones.” PGCC § 27-107.01(a)(82).
8
PGCC § 27-441(b).

4
bill went straight to introduction. So, as sometimes, you know, when we get
into a situation where time is of the essence, we have in the past gone straight
to introduction which means that no further amendment may be made to the
bill without readvertising it. So, remember, this bill didn’t go to committee,
and it came out no recommendation 10-0.

The reason for this is because we could not get, not yet, as Councilmember
Streeter explained, put together an Amendment No. 1 which is not an
amendment of substance. So, what the Amendment No. 1 does, this appears
on page 128 of your virtual binder. The change is simple. It seeks to replace
wholesale the proposed new footnote to the use tables.

What you have here is property that, as Mr. Horne explained, is desirous of
continuing its use; but it is within a Development District Overlay Zone. The
reason I bring that up is because, as you know, your new ordinance will
extinguish the Overlay Zones. So, this bill, while Mr. Horne absolutely point
out, is helpful to this particular project, it could potentially be helpful to other
projects that are subject to the Development District Overlay Zone without
having unintended consequences.

So, specifically what the next text of proposed Subsection E in the table will
do is it clarifies that this is notwithstanding any provision to the contrary of
how the Development District Overlay work, and this is a signal that this is
going to be the way that the ordinance will work when the new zoning
ordinance takes effect.

The District Council voted to unanimously adopt the amendment. There was also a motion

to make the bill effective on the date of adoption, which also carried unanimously. Finally,

the bill was unanimously enacted.

Heard filed a petition for judicial review of District Council’s actions in the Circuit

Court for Prince George’s County and alleged his standing as follows:

Petitioner avers that the District Council’s enactment of CB42-2021 was
illegal or ultra vires, and that the action may injuriously affect Petitioner’s
property and that of other Prince George’s County taxpayers, inasmuch as
the legislation reasonably may result in a pecuniary loss to Petitioner and
other taxpayers, or in an increase in their taxes. Accordingly, Petitioner is
aggrieved by the District Council’s action.

In his Memoranda in Support of his Petition, Heard further advanced standing, as follows:

5
Petitioner is a taxpayer, property owner, local community activist, lawyer,
blogger, and nonprofit executive who resides nearby to the former Lyndon
Hill School property. *** Petitioner has averred that the District Council’s
enactment of the challenged legislation may injuriously impact Petitioner’s
property and that of other Prince George’s County taxpayers, inasmuch as
the legislation reasonably may result in a pecuniary loss to Petitioner and
other taxpayers, or in an increase in their taxes.

Heard argued that the bill was an invalid and unenforceable local zoning law because, first,

it was enacted in contravention of the county charter. This was because, Heard asserted,

the bill was never presented to the County Executive and therefore never became a local

law. Second, Heard contended CB-42-2021 constitutes unlawful “spot or contract

zoning,” 9 because it allows for eleemosynary and philanthropic uses in a detached, single-

family residential zone, and it was clearly crafted solely for the benefit of Mission of Love.

In their joint answer to the petition for judicial review, the District Council asserted

that Heard had no standing. It argued that taxpayer standing was inapplicable to final

actions of the Prince George’s County District Council. Instead, Maryland Code

Annotated, Land Use (LU) Article § 22-407 and assorted appellate authority holds that LU

§ 22-407 provides the grounds to seek judicial review, abrogating the common law ground

9
In his memorandum in support of judicial review Heard argued that:

Spot zoning occurs when a small tract of land is treated differently than a
larger tract of adjacent land. Spot zoning is unlawful where it is arbitrary and
unreasonable, made for the sole benefit or private interests of a property
owner and is inconsistent with the governing comprehensive plan. Id.
Contract zoning occurs where an agreement is reached between a property
owner and the zoning authority to determine how the subject property will
be zoned, in derogation of the otherwise applicable legal prerequisites for the
zone.

(Citations omitted.)
6
of taxpayer standing. Further, under LU § 22-407, it argued Heard is not specially

aggrieved because he cannot offer “‘plus factors’ supporting injury.”

If the circuit court found that Heard was aggrieved and had standing, the District

Council argued that Heard’s petition still had to fail. First, it asserted that CB-42-2021 was

lawfully enacted in accordance with the RDA and the Zoning Ordinance and was not

subject to the county’s charter, as Heard claimed.

Second, it maintained that CB-42-2021 did not constitute spot or contract zoning.

The bill did not engage in spot zoning because the District Council did not place the Lyndon

Hills School property in a different zoning classification from the surrounding area.

Instead, the District Council only amended the table of uses for the R-55 (residential) zone

to allow the abandoned school to be used for charitable purposes within that zone. Further,

it argued the enactment of CB-42-2021 did not constitute contract zoning, 10 principally

because Heard offered no evidence to suggest the District Council and Mission of Love

Charities entered into an agreement about how the Lyndon Hills School property would be

zoned.

After a hearing on February 11, 2022, the circuit court issued a memorandum and

order on November 30, 2022. The court reserved the bulk of the discussion in its

memorandum to the issue of Heard’s standing. While the court acknowledged the two

10
In their memorandum, the District Council state:

Contract zoning occurs “when an agreement is entered between the
ultimate zoning authority and the zoning applicant/ property owner which
purports to determine contractually how the property in question will be
zoned, in derogation of the legal prerequisites for the grant of the desired
zone.”

(Emphasis in the original. Citation removed.)
7
principal means a challenger to a zoning ordinance may establish standing, either as a

property owner or taxpayer, the court determined that Heard had not established standing

under either theory. As for property owner standing, the court found that Heard had not

proven that he was prima facie aggrieved because his home did not touch or abut the

Lyndon Hills School property as required. Further, the court declared that Heard had not

established that he was “almost prima facie aggrieved,” a second way to establish property

owner standing, the court found though Heard lived close to the Lyndon Hills School

property, he didn’t prove any “plus factors” suggesting aggrievement.

“Plus factors,” as we will discuss in detail later, are considerations aside from living

close to the disputed property, that would give a litigant a personal stake in the outcome of

the zoning decision. Examples of “plus factors” include allegations the enactment would

reduce property values, or create excessive and unsafe vehicular traffic, hazardous water

runoff, excessive sewage disposal, over-crowded schools, and the like. See generally Ray

v. Mayor and City Council of Baltimore, 430 Md. 74, 84–85 (2013). As the court saw it,

the first plus factor that Heard claimed was that the redevelopment of the school property

could reduce the value of his home and surrounding property. An allied plus factor that

Heard argued was that the property could be better developed to benefit everyone in the

surrounding area. Citing Ray, 430 Md. at 83, the court acknowledged that a property

owner’s lay opinion of decreased property values could suffice as a plus factor to support

a claim of special aggrievement. But the court rejected Heard’s “forecast” or “potential”

that his and his neighbors’ property values would be reduced because the court found that

property had not been re-zoned and the that the “future prospect” of decreased property

values was too speculative and that proof would have required expert testimony.

8
As a prelude to its findings on taxpayer standing, the court rejected the District

Council’s contention that LU § 22-407 offered the only basis for Heard to challenge the

District Council’s passage of CB-42-2021. After considering the Supreme Court of

Maryland’s decision in Chaney, the circuit court concluded:

This [c]ourt interprets Chaney 11 to have simply found property owner
standing as applicable in that case, because the facts and circumstances of
that case, satisfied the requirements of property owner standing, as opposed
to taxpayer standing. Therefore, this Court does not believe that based upon
Chaney, that [Heard’s] options were limited. In fact, [Heard] had the option
to challenge any alleged illegal or ultra vires legislative enactment relating
to land, by way of property owner or taxpayer standing, assuming that the
facts and circumstances allowed it.

Consequently, the court turned to Heard’s assertion of taxpayer standing.

The circuit court found that Heard had not established the grounds to prove taxpayer

standing. Essentially, the court concluded that Heard had not adequately demonstrated that

the passage of CB-42-2021 would result in a pecuniary loss or an increase in taxes to him

or others who lived nearby. The court concluded that Heard’s claims were “conclusory,

vague[,] and speculative.” Further the court determined that Heard’s opinions about how

the land should be developed, and concerns about the impact of the planned development,

were unsupported by expert testimony. As a result, the court dismissed Heard’s petition.

Heard filed a timely appeal. Additional facts will be included as needed.

STANDARD OF REVIEW

When acting in its zoning capacity, the District Council acts as an administrative

agency. Grant v. Cnty. Council of Prince George’s Cnty., 465 Md. 496, 503 (2019); Cnty.

Council of Prince George’s Cnty. v. Brandywine Enters., Inc., 350 Md. 339, 342, (1998).

11
Cnty. Council of Prince George’s Cnty. v. Chaney Enters. Ltd. P’ship, 454 Md.
514 (2017).
9
“When we review the final decision of an administrative agency, . . . we look through the

circuit court’s . . . decisions, although applying the same standards of review, and evaluate

the decision of the agency.” Heard v. Prince George’s Cnty., 256 Md. App. 586, 609

(2022) (citing People’s Counsel for Balt. Cnty. v. Loyola College, 406 Md. 54, 66-67

(2008)). When an administrative agency (such as the District Council) is acting in a manner

that may be considered legislative in nature (i.e., quasi-legislative), the scope of review of

that particular action is limited to assessing whether the agency was acting within its legal

boundaries. See Town of Upper Marlboro v. Prince George’s Cnty. Council, 480 Md. 167,

180–81 (2022). Once a reviewing court has satisfied itself that the agency was acting within

the scope of its authority and not otherwise contrary to law, its review ends. Lewis v.

Gansler, 204 Md. App. 454, 483 (2012). As will be discussed, we hold that CB-42-2021

was in the nature of a legislative action.

Under LU § 22-407(e)(3)(i-vi), the circuit court may only reverse or modify the

District Council’s decision “if the substantial rights of the petitioner have been prejudiced

because the district council’s action is:”

(i) unconstitutional;
(ii) in excess of the statutory authority or jurisdiction of the district council;
(iii) made on unlawful procedure;
(iv) affected by other error of law;
(v) unsupported by competent, material, and substantial evidence in view of the
entire record as submitted; or
(vi) arbitrary or capricious.

We review legislative decisions only for legality, which implicates only provisions (i)

through (iv) of the list above. Town of Upper Marlboro, 480 Md. at 180-81. Review for

legality “is an even more limited standard than the already narrow review for arbitrary and

10
capricious action, or for action unsupported by substantial evidence.” Talbot Cnty. v. Miles

Point Prop., LLC, 415 Md. 372, 393 (2010).

DISCUSSION

I. Heard Has Standing to Contest the District Council’s Passage of CB-42-
2021.

Before we address the merits of Heard’s two claims, we first consider the issue of

standing. Heard asserts standing under a variety of theories, including property owner and

taxpayer standing, as well as by virtue of LU § 22-407. On the other hand, the District

Council maintains that Heard has not proven standing under any of the theories named.

A. Land Use Article § 22-407

We begin our discussion of standing with Heard’s assertion that LU § 22-407 grants

him standing to seek judicial review of the District Council’s passage of CB-42-2021. The

District Council does not disagree but argues that, because the statute is the exclusive

means by which challengers like Heard may obtain judicial review, taxpayer standing is

now closed as an avenue of seeking redress and we should therefore not consider Heard’s

argument that he has taxpayer standing. More importantly, it asserts that, under the statute,

Heard is required to show that he is “especially aggrieved” which it claims he cannot do.

For our purposes, the important part of LU § 22-407 is subsection (a)(1) which

reads:

(a)(1) Judicial review of any final decision of the district council,
including an individual map amendment or a sectional map amendment,
may be requested by any person or entity that is aggrieved by the
decision of the district council and is:
(i) a municipal corporation, governed special taxing district, or person in
the county;
(ii) a civic or homeowners association representing property owners
affected by the final decision;
(iii) the owner of the property that is the subject of the decision; or
11
(iv) the applicant.

(Emphasis added). No one disputes that the District Council’s actions here constitute a

“final decision.” The record reflects Heard is a resident of Prince George’s County and

owns property there. He must also show that he is “aggrieved.”

Generally, a party is deemed aggrieved if the party can demonstrate that the decision

will adversely affect the party’s interest in a personal and specific manner, not shared by

the general public. See Ray, 430 Md. at 81. There are three ways a party may prove

standing: (1) proximity; (2) special aggrievement; or (3) direct and specific harm. See id.

at 85–86. “A protestant is prima facie aggrieved when his proximity makes him an

adjoining, confronting, or nearby property owner.” Id. at 85. A protestant is specially

aggrieved when the party is farther away than an adjoining, confronting, or nearby property

owner, but “still close enough to the site” to be considered “almost prima

facie aggrieved, and offers ‘plus factors’ supporting injury.” Id. Finally, a protestant who

is far removed from the subject property may still have standing if the party can show “his

personal or property rights are specially and adversely affected by the board’s

action.” Id. at 85–86.

Where standing is at issue in contesting a zoning decision, “proximity is the most

important factor to be considered.” Id. at 82–83. While there is “no bright-line rule for

exactly how close a property must be in order to show special aggrievement[,]” generally,

a protestant must demonstrate that they live no more than 1,000 feet from the subject

property and offer “plus factors” such as “an owner’s lay opinion of decreasing property

values and increasing traffic[.]” Id. at 83–85, 91–92.

12
In his petition for judicial review and in a letter Heard sent to then-Council chair,

Calvin S. Hawkins, II, in opposition to CB-42-2021, Heard lists his address as 415 Zelma

Avenue, Capitol Heights, Maryland. The District Council does not dispute that Heard lives

at that address. Additionally, in its memorandum and order of November 30, 2022, the

court found that Heard lives approximately 800 feet from the Lyndon Hill School property.

There is no reason to dispute that determination. Thus, Heard has demonstrated that he

lives close enough to the contested site to qualify for special aggrievement based on

proximity.

In addition, Heard offers as a plus factor that passage of CB-42-2021 “may

injuriously impact [Heard’s] property and that of other Prince George’s County taxpayers,

inasmuch as the legislation reasonably may result in a pecuniary loss to [him] and other

taxpayers, or increase their taxes.” In a footnote, Heard also describes how the use of the

Lyndon Hill school site would stymie the full development of the area. Further, he suggests

how the site might be better developed. The District Council claims that Heard offers no

plus factors. They say his allegation concerning the potential economic loss that the

property would have to him and other residents as well as the potential for increased taxes,

go to taxpayer standing, which the District Council says LU § 22-407 preempted.

The Supreme Court of Maryland’s (at the time called the Court of Appeals) decision

in Chatham Corp. v. Beltram, 252 Md. 578 (1969), is helpful. In Chatham, two

homeowners opposed the Zoning Board of Howard County’s approval of a decision

reclassifying a residential zoning district to permit apartments. Id. at 579–80. Both

homeowners testified that their property was approximately 1,000 feet from the subject

property and that they believed the rezoning would depreciate the value of their

13
property. Id. at 580. In light of this testimony, the Court held that the homeowners were

specially aggrieved. Id. at 584.

We conclude by observing that Heard’s assertions in his written comments opposing

CB-42-2021 and in his motion for judicial review are no different from the homeowners’

assertions in Chatham. Evidence in the record shows that Heard lives approximately 800.5

feet from the subject property, well within the 1,000-foot threshold limit. Further, he has

credibly alleged a pecuniary loss to himself because he asserts that passage of CB-42-2021

would mean increased taxes for him and other Prince George’s County residents. Our

conclusion in this case is consistent with the observation the Supreme Court of Maryland

made in Chaney: namely, that citizens who seek judicial review under LU § 22-407 should

be able to do so, as long as they satisfy its “‘non-demanding’ statutory standing

requirements.” Chaney, 454 Md. at 535 (quoting Cnty. Council of Prince George’s Cnty.

v. Billings, 420 Md. 84, 97–98 (2011)). Therefore, Heard is aggrieved under LU § 22-407

and has standing to pursue judicial review in this case.

Because we determine that Heard has statutorily conferred standing to challenge

CB-42-2021, we need not reach the subsidiary issues that both Heard and the District

Council raise. Specifically, the District Council argues that Heard may not raise taxpayer

standing as an additional basis to challenge the legislation. Heard asserts that LU § 22-

407’s factors “restores common law theories of standing to judicial review claims in Prince

George’s County.” We are satisfied that Heard has standing under the statute and decline

to opine about the impact the statute has on these other theories of standing.

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II. The District Council legally enacted CB-42-2021.

Heard’s first assignment of error challenges the way in which CB-42-2021 was

passed and enacted. Heard argues CB-42-2021 cannot constitute a valid and enforceable

local zoning law within the meaning of the RDA, given that (a) CB-42-2021 was neither

presented to nor approved by the Prince George’s County Executive in accordance with

Section 411 of the Prince George’s County Charter, 12 and thus never became a local law,

or (b) CB-42-2021 is non-emergency legislation but was designed to take effect “on the

date of its adoption,” rather than forty-five calendar days after it became law, in violation

of Section 318 of the Prince George’s County Charter. 13 Heard contends that the District

Council exceeded its authority and calls the bill’s passage an invalid action.

12
Section 411 of the Prince George’s County Charter states:
Upon the enactment of any bill by the Council, with the exception of such measures
made expressly exempt from the executive veto by this Charter, it shall be presented to the
County Executive within ten days for their approval or disapproval. Within ten days after
such presentation, they shall return any such bill to the Council with their approval
endorsed thereon or with a statement, in writing, of their reasons for not approving the
same. Upon approval by the County Executive, any such bill shall become law. Upon veto
by the County Executive, their veto message shall be entered in the Journal of the Council,
and, not later than at its next legislative session-day, the Council may reconsider the bill.
If, upon reconsideration, two-thirds of the members of the full Council vote in the
affirmative, the bill shall become law. Whenever the County Executive shall fail to return
any such bill within ten days after the date of its presentation to them, the Clerk of the
Council shall forthwith record the fact of such failure in the Journal, and such bill shall
thereupon become law. In the case of budget and appropriation bills, the County Executive
may disapprove or reduce individual items in such bills, except where precluded by State
law. Each item or items not disapproved or reduced in a budget and appropriation bill shall
become law, and each item or items disapproved or reduced in a budget and appropriation
bill shall be subject to the same procedure as any other bill vetoed by the County Executive.
13
Any law, except an emergency law, shall take effect forty-five calendar days after
it becomes law, unless by a provision of the law it is to take effect at a later date, or unless
it is petitioned to referendum as provided in Section 319 of this Charter.
15
The District Council, citing several appellate authorities, essentially argues that,

under the RDA, zoning enactments of the District Council are not subject to the county

charter. Rather, the District Council’s authority to enact text amendments such as CB-42-

2021 is subject to the provisions of the Zoning Ordinance, not the charter. The Council

contends that, acting in accordance with its authority under the RDA, it lawfully passed

and enacted the legislation.

Zoning in much of Prince George’s County is governed by the RDA. In 1927, Prince

George’s and Montgomery Counties formed the Maryland-National Capital Park and

Planning Commission (M-NCPPC):

The General Assembly originally created the Commission by Chapter
448 of the Laws of 1927 (Chapter 448). By this extensive statute, the
Commission administered certain park development, planning and zoning
functions within those portions of Prince George’s and Montgomery
Counties adjoining the District of Columbia. The Commission was given the
power to sue and be sued, issue bonds, implement land use and subdivision
regulations and generally effectuate the purpose of Chapter 448, which was
the “coordinated, comprehensive, adjusted, systematic and harmonious
development of the (Metropolitan) District.” Exclusive power
over planning and zoning was vested in the Commission and the Boards of
County Commissioners of the two counties.

Prince George’s Cnty. v. Md. Nat’l Cap. Park and Plan. Comm’n, 269 Md. 202, 206

(1973).

The General Assembly passed the Maryland-Washington Regional District Act

(RDA) in 1939, Chapter 714 of the Laws of 1939, separating the M-NCPPC’s parks and

planning functions. Id. In 1959, the General Assembly consolidated all of the provisions

relating to the Commission by enacting Chapter 780 of the Laws of Maryland. Today,

16
under LU § 22-104(a), 14 the RDA authorizes the Prince George’s Council to adopt, amend

and administer zoning laws within the county. See Grant, 465 Md. at 503

(“For Prince George’s County, the State Regional District Act (‘RDA’), authorizes the

District Council to adopt, amend and administer zoning laws within the county.”) In short,

the RDA “regulates planning and zoning within the Regional District, which includes most

of Prince George’s and Montgomery Counties.” Cnty. Council of Prince George’s Cnty. v.

Zimmer Dev. Co., 444 Md. 490, 504 (2015).

At issue in this case is the interaction of the RDA with the Prince George’s County

Charter. Article VII of the Charter concerns itself with zoning issues and is subdivided into

fifteen sections, 701 through 715, which set out the authority and process for, among other

things, approving and adopting the general plan and master plans, zoning ordinances,

amendments, exceptions, as well as the procedure for hearing zoning cases and for judicial

review.

The District Council relies on Prince George’s County v. Maryland National

Capital Park and Planning Commission, 269 Md. at 202, for the proposition that Article

VII of the Prince George’s County Charter, requiring a forty-five-day delay before the

enactment of zoning legislation and for the county executive’s assent to zoning enactments,

has been effectively displaced by the RDA which gives all zoning authority to the District

Council. In Prince George’s County v. Maryland National Capital Park and Planning

14
(a) The Montgomery County district council or the Prince George’s County
district council, in accordance with the requirements of this division as to the portion of
the regional district located in the respective county, may:
(1) by local law adopt and amend the text of the zoning law for that county; and
(2) by local law adopt and amend any map accompanying the text of the zoning
law for that county.

17
Commission, a dispute arose between the county and the M-NCPPC over whether the

county could pass conditional zoning legislation. The circuit court addressed the

controversy by issuing three declarations: (1) the M-NCPPC had standing to bring suit; (2)

there was in fact a controversy ripe for resolution; and (3) the RDA was a public general

law and thus subject to amendment or could be superseded by the Prince George’s County

Charter. Id. at 225.

The court’s analysis of Declarations 1 and 2 do not concern us. Declaration 3,

however, does. The controversy centered upon whether the District Council had the

authority to pass conditional zoning legislation. In other words, whether the District

Council could zone under certain restrictions. Id. at 220. But the county’s charter prohibited

conditional zoning. Id. The Prince George’s County Attorney advised the County

Executive that the County Charter, not the RDA controlled, thus setting up the controversy.

“[T]he County alleges that the provisions of the Charter in regard to planning and zoning

supersede or amend inconsistent provisions under Chapter 780 [the RDA].” Id. at 225.

Our Supreme Court resolved this dispute by looking at the provisions in Section 2

of the Express Powers Act, which states:

Sec. 2. And be it further enacted, that in so far as the provisions of this
subsection may be inconsistent with or contrary to the provisions of the
Maryland-Washington Regional District Act, . . . the provisions of this sub-
section shall have no application so long as such District Act is in force and
effect and nothing contained herein shall be deemed or construed to affect
the validity or operative effect, of said (District Act), which established City
and Regional Planning in Montgomery and Prince George’s Counties within
the limits of the Maryland-Washington Regional District as said District is
now or shall hereafter be defined by law.

The Court concluded that “the Charter, adopted pursuant to the provisions of the Express

Powers Act and Article XI-A of the Constitution of Maryland, is not ‘applicable’ to the

18
provisions of Chapter 780 [the RDA].” Id. at 226. The Court concluded, saying, “This

does not mean that the provisions of the Charter are invalid or illegal. They are effective in

those portions, if any, of Prince George’s County not included in the Regional

District.” Id.; see Zimmer Development Co., 444 Md. at 524–26 (discussing how the RDA

has “primary legislative authority” to adopt or amend zoning ordinances and zoning maps

within RDA affected sections of Montgomery and Prince George’s Counties); Cnty.

Council of Prince George’s Cnty. v. Dutcher, 365 Md. 399, 425 (2001).

Based on the histories of the M-NCPCC, the RDA, and the appellate authority cited,

we conclude that the District Council is correct. The RDA was enacted to specifically give

the district councils of Montgomery and Prince George’s Counties the exclusive authority

to enact zoning ordinances such as CB-42-2021. Cnty. Council of Prince George’s Cnty.

v. Brandywine Enters., Inc., 350 Md. 339, 342 (1998) (The RDA is “the exclusive source

of zoning authority in those areas of Prince George’s County which it covers.”). Contrary

to what Heard argues, we hold that the District Council did not have to obtain the County

Executive’s assent before the bill was enacted under Charter Section 411, nor was the

District Council required to delay adoption of the bill by forty-five days as prescribed by

Charter Section 318. The RDA does require the petitions for judicial review of any final

act of the District Council within thirty days, however, under LU § 407(a)(2), which no

one disputes Heard did. This would be the only delaying mechanism to the ultimate

enactment of a final decision of the District Council.

III. The District Council Did Not Engage in Spot Zoning in Adopting CB-42-
2021.

Heard’s next assignment of error goes to the heart of why he thinks the District

Council’s adoption of CB-42-2021 was a “giveaway” to the Mission of Love Charities. In
19
his opinion, the legislation constitutes illegal spot zoning, which essentially occurs when

an authority changes the zoning character for a small parcel of land but does not change it

for the surrounding area. The District Council denies that it engaged in spot zoning to

benefit the charitable organization to the detriment of Heard or his neighbors. 15

The District Council argues, first, that CB-42-2021 cannot be spot zoning because

the zone for the area remains residential (R-55). Second, it argues the bill amended the

Table of Uses for R-55 zones to allow for the functioning of an eleemosynary or

philanthropic entity to operate based on certain criteria, which is in keeping with the overall

comprehensive development plan. Heard argues that this is all semantics because the effect

of CB-42-2021 is spot zoning, citing in support Modak-Truran v. Johnson, 18 So.3d 206

(Miss. 2009).

We have held that “[s]pot zoning occurs when a small area in a [zone] district is

placed in a different zoning classification than the surrounding property.” Tennison v.

Shomette, 38 Md. App. 1, 8 (1977). The Supreme Court of Maryland invalidated a zoning

ordinance as spot zoning in Cassel v. Mayor and City Council of Baltimore, 196 Md. 348,

352 (1950). There, the area at issue had been zoned as a residential district. The Baltimore

City Council rezoned a single lot within the residential zone into a commercial district to

allow the property owner to operate a funeral home. In its analysis, the Court described

spot zoning as

the arbitrary and unreasonable devotion of a small area within a zoning
district to a use which is inconsistent with the use to which the rest of the
district is restricted, has appeared in many cities in America as the result of
pressure put upon councilmen to pass amendments to zoning ordinances
solely for the benefit of private interests. . . . It is, therefore, universally held

15
We note that Heard abandoned his argument that the passage of CB-42-2021 also
constituted contract zoning as his brief did not address that allegation.
20
that a “spot zoning” ordinance, which singles out a parcel of land within the
limits of a use district and marks it off into a separate district for the benefit
of the owner, thereby permitting a use of that parcel inconsistent with the use
permitted in the rest of the district, is invalid if it is not in accordance with
the comprehensive zoning plan and is merely for private gain.

Id. at 355–56. But the Court noted a permitted use, though different but still consistent with

restrictions in the surrounding area, does not amount to spot zoning when

it does not conflict with the comprehensive plan but is in harmony with an
orderly growth of a new use for property in the locality. The courts have
accordingly upheld the creation of small districts within a residential district
for use of grocery stores, . . . and even gasoline filling stations, for the
accommodation and convenience of the residents of the residential district.

Id. Nonetheless, the Court concluded the City Council’s rezoning of a single property

constituted illegal spot zoning and invalidated the ordinance because it was “an arbitrary

and unreasonable devotion of a small area to a use inconsistent with the uses to which the

rest of the district [was] restricted, made for the sole benefit of the private interests of the

owner and not in accordance with [the] comprehensive plan”). Id. at 357–58; see also

Mayor and Council of Rockville v. Rylyns Enters., Inc., 372 Md. 514, 546 (2002) (quoting

Tennison, 38 Md. App. at 8); Hewitt v. Cnty. Comm’rs of Baltimore Cnty., 220 Md. 48

(1959).

The District Council’s enactment of CB-42-2021 was “in the nature of” a legislative

action. MBC Realty, LLC v. Mayor and City Council of Balt., 192 Md. App. 218, 234

(2010) (holding that a text amendment is “in the nature of a legislative action”); see Md.

Overpak Corp. v. Mayor of Balt., 395 Md. 16, 35 (2006). Legislative action enjoys a strong

presumption of validity; we do not substitute our policy judgments for those of the

legislature, and we assume as the action’s basis any reasonably conceived state of facts that

would sustain it. See Rylyns, 372 Md. at 535, 542–43 (“Because special exceptions [and

21
conditional uses] are legislatively-created[,] . . . they enjoy the presumption of

correctness[.]”); Anderson House, LLC v. Mayor and City Council of Rockville, 402 Md.

689, 723–24 (2008) (discussing the presumption in the context of original zoning and

comprehensive rezoning). The challenger to the law or regulation “carries the heavy burden

of establishing, by clear and affirmative evidence” the invalidity of the action. Anderson

House, 402 Md. at 724.

Heard favorably cites MBC Realty for the proposition that even though the District

Council did not rezone the Lyndon Hills School site, but rather, changed the table of uses

for the residential zone (R-55), that act still constitutes spot zoning because the effect is the

same. While it is true, as Heard argues, that this issue is discussed in MBC Realty, the

opinion does not stand for the proposition that Heard claims. The crux of our holding in

MBC Realty was that an action by the District Council, which might otherwise constitute

spot zoning, is valid where it “bears a substantial relationship to the public health, safety,

and welfare.” 192 Md. App. at 239.

In Cassel, our Supreme Court clarified that spot zoning involves rezoning a parcel

so that a zoning ordinance

which singles out a parcel of land within the limits of a use district and marks
it off into a separate district for the benefit of the owner, thereby permitting
a use of that parcel inconsistent with the use permitted in the rest of the
district, is invalid if it is not in accordance with the comprehensive zoning
plan and is merely for private gain.

Cassel, 195 Md. at 355 (citations omitted). But, significantly, “a use permitted in a small

area, which is not inconsistent with the use to which the larger surrounding area is

restricted, although it may be different from that use, is not ‘spot zoning’ when it does not

conflict with the comprehensive plan.” Id.

22
As the District Council correctly points out, in this case, CB-42-2021 did not change

the underlying zoning. The zoning for the entire area remained the same, only the table of

permitted uses was changed within the area to allow a defunct school to be adapted for use

by a charitable community organization, the Mission of Love Charities. However, even

assuming that the District Council’s enactment of CB-42-2021 was the functional

equivalent of spot zoning, we hold that Heard failed to establish that the bill was not in

accordance with the county’s comprehensive zoning plan and was merely for private gain.

Cassel, 195 Md. at 355. Indeed, as we explain next, the ordinance is consistent with the

County’s comprehensive plan and, the record establishes that the bill served a public

purpose.

A. CB-42-2021 was consistent with the comprehensive plan.

In its appellate brief, the District Council maintains that changing the table of uses

in CB-42-2021 does not constitute spot zoning because the adaptive reuse of the Lyndon

Hills school is consistent with the county’s comprehensive development plan. We agree.

In 2019, the county adopted a five-year plan, part of an overall revitalization effort

known as Plan 2035. 16 The goal of Plan 2035 is to foster a sustainable living and working

environment throughout the county, part of which the planners hope to achieve through

focus on growth and the evolution of “local centers” and “regional transit districts.” Capitol

Heights, in which both the Lyndon Hills School and Mission of Love Charities are located,

16
Vision, PGC PLAN 2035, MD, http://planpgc2035.org/135/Vision
[https://perma.cc/7BCJ-KPMQ].

23
is designated as one of the local centers, and is served by the Addison Road Metro stop.17

Policies Eight and Nine of the “Land Use” component of the Plan 2035 are:

Policy 8
Strengthen and enhance existing residential areas and neighborhoods
in the Plan 2035 Established Communities.

Policy 9
Limit the expansion of new commercial zoning outside of the
Regional Transit Districts and Local Centers to encourage reinvestment and
growth in designated centers and in existing commercial areas.

Land Use, PGC PLAN 2035, MD, http://planpgc2035.org/196/Land-Use

[https://perma.cc/57YW-KCKN]. It seems to us that turning an unused school in a

residential neighborhood into the location of a community service organization, while

different from the operation of a school, is within keeping of the community and promotes

the overall harmony and goals of the comprehensive plan.

We stress that Heard has not shown how this adaptive reuse conflicts with the

overall plan. In his brief Heard complains the bill constituted spot zoning because, in his

view, it is “arbitrary and unreasonable” because it conflicted with the DDOZ overlay zone

for the Addison Road Approved Sector Plan. But the District Council specifically resolved

that problem by not changing the zone but by amending the table of uses for the zone.

Further, as Ms. Zavakos, the acting director of the County’s Office of Planning, Housing

and Economic Development explained to the District Council at the July 13, 2021 public

hearing on the bill, CB-42-2021 was “a signal” that the District Council planned to do away

with overlay zones with the adoption of a new zoning ordinance. Finally, Heard complains

the bill was crafted solely for the Mission of Love Charities. Although Mission of Love

PGC PLAN 2035, MD, http://www.planpgc2035.org/DocumentCenter/View/
17

134/Growth-Policy-Map-Update-SVG [https://perma.cc/XHE4-6WJ8].
24
was named as the likely user of the subject property that factor is not dispositive for the

reasons we shall discuss.

B. CB-42-2021 served a valid public purpose.

MBC Realty concerned an ordinance that the Baltimore City Council enacted that

had the effect of prohibiting the use of billboards within the City. At different times

thereafter, the City Council passed three bills permitting billboards at public-owned stadia

and arenas creating exceptions to the moratorium. Opponents of the ordnances challenged

them; one avenue of attack was that the ordinances were nothing more than illegal spot

zoning. Much like the District Council in this case, the City Council in MBC Realty did not

change the zoning for the arenas affected by the ordinances allowing for billboards. Instead,

the ordinance amended where billboards could be placed by enacting a conditional use of

billboards for stadia and arenas within the City.

As does Heard, the opponents of the City’s billboard ordinances favorably cited a

Mississippi case, Modak-Truran, previously cited, which concerned a house located in a

historic residential area of the City of Jackson. The house was surrounded by residences

on three sides and a zoned commercial district on the fourth. The owners were permitted

to operate the house as a “Bed and Breakfast Inn, Class B.” The owners wanted to start

serving meals to the general public at the Inn, in addition to serving meals to their boarders.

Despite opposition from their neighbors, the Inn’s owners succeeded in obtaining from the

local legislative body an amendment to the language of the zoning ordinance that added

“Bed and Breakfast Inn Class B with Restaurant,” as a use in the residential zone and

provided that the use would be permitted for any existing Class B bed and breakfast upon

election, without the need to obtain a permit. “Because the [Inn] was the only Class B bed

25
and breakfast in the city, this amendment effectively exempted [it] from having to obtain a

new use permit in order to operate a restaurant.” Id. at 208.

The Inn’s neighbors challenged the amendment, arguing it “would effectively

rezone the Inn from residential to commercial,” without its meeting the requirements for

rezoning, thus constituting illegal “spot zoning.” Id. at 209. The Supreme Court of

Mississippi agreed. It held that the local legislature’s act of amending its zoning ordinance

to allow the Inn to engage in a commercial use permitted in a commercial zone but not in

a residential zone was tantamount to reclassifying the Inn to the commercial zone. Echoing

the same principles that underlie piecemeal zoning, the Court observed:

There can be no dispute that the amendment was designed to favor the
Inn, and such preferential treatment constitutes illegal spot zoning because
the City has not demonstrated “substantial evidence of change in the
neighborhood in order to justify the rezoning of a small tract as an
amendment in keeping with the comprehensive plan.”

Id. at 209–10 (quoting 2 E.C. Yokley Zoning Law and Practice § 13–4 (4th ed. 2003)).

In MBC Realty, we held that Modak-Truran was distinguishable from the City’s

billboard case, however. We noted in Modak-Truran other zones existed—primarily

commercial zones—that permitted the Inn owners to use their property as a restaurant. The

Jackson zoning ordinance amendment took only the Inn’s residentially zoned property and

allowed it to operate a restaurant as if it were zoned commercial, even though it remained

zoned residential.

But in the case of the City, we concluded the zoning character did not change.

Certain venues could apply for exceptions to the moratorium. Consequently, such an

ordinance was permissible and did not constitute spot zoning. Our rationale was

there never were, and still are not, any zoning districts in Baltimore City in
which new billboards were (are) permitted uses. The Billboard Moratorium
26
removed new billboards as conditional uses in the districts that had allowed
them. As the City Council had done for bus shelters, one year after the
Billboard Moratorium was adopted, it made an exception to the City-wide
ban, this time by enacting a conditional use for publicly-owned stadia or
arenas in the B–5 district. To take advantage of the exception, such a property
would have to satisfy the conditional use criteria we have discussed
above. Thus, the local legislative body in this case was not treating the Arena
property as if its zoning classification had been changed; it was adopting a
zoning vehicle for the owner of the property to use to seek to obtain an
exception from the Billboard Moratorium.

Id. at 241. We concluded that the facts in Modak-Truran and the billboard exception

ordinances were simply not the same. Perhaps more importantly, MBC Realty reiterated

that spot zoning is “not illegal per se:”

It only is illegal if it is an arbitrary and unreasonable devotion of the small
area at issue to a use that is inconsistent with the uses to which the remainder
of the district is restricted and is done for the sole benefit of the private
interests of the owner. If the zoning of the small parcel is in accordance and
harmony with the comprehensive plan and is done for the public good, and
thus bears a substantial relationship to the public health, safety, and welfare,
it is valid.

192 Md. App. at 239 (citing Rylyns, 372 Md. at 546) (cleaned up).

Even if we assume the District Council’s amendment of the table of uses to allow

the functioning of an eleemosynary in a residential area, is spot zoning by another name,

we determine the critical difference is that while the Inn in Modak-Truran operated solely

for its own gain, the Mission of Love would be operating a “philanthropic or non-profit

organization” for the benefit the of the citizens of the neighborhood and the county at-large.

In this case, CB-42-2021 would not constitute spot zoning because the overall effect of the

legislation would yield a public benefit, not a private one. See Rylyns, 372 Md. at

546; Tennison, 38 Md. App. at 8.

27
C. Applying the Supreme Court of Maryland’s analytical framework for uniformity
challenges, the District Council approved CB-42-2021 for a proper public
purpose.

We are further encouraged in our view that CB-42-2021 served a valid public

purpose after reading the majority’s reasoning in Prince George’s County Council v.

Concerned Citizens of Prince George’s County, 485 Md. 150 (2023). Although our

Supreme Court analyzed the requirement of uniformity in Concerned Citizens, the Court’s

reasoning may be applied to the analogous issue of spot zoning Heard raises here. Citing

Cassell and Hewitt, the Court noted, “Spot zoning cases, which typically involve

uniformity or uniformity-like challenges to piecemeal rezonings, are also instructive.” Id.

at 180–81. The Court saw the parallels between uniformity and spot zoning stating that

“singling out” and “uniformity” are allied concepts to spot zoning. Id. at 180 n.18 (footnote

and accompanying text).

1. Background

In Concerned Citizens, a group of Prince George’s County citizens filed a petition

for judicial review of a District Council bill amending a zoning ordinance’s table of uses

to exempt Freeway Airport, an accident-plagued small private airport, from housing and

development density restrictions generally applicable to properties in residential-

agricultural (R-A) zone. Instead of spot zoning, the citizens group challenged the ordinance

because it allegedly violated LU § 22-201(b)(2)(i), which mandates that zoning laws “be

uniform for each class or kind of development throughout a district or zone.” Id. at 161–

62.

In Concerned Citizens, as is the case here, the District Council proposed bill CB-

17, which amended the table of uses in affected R-A zone specifically to permit

28
“Townhouse and One-family detached dwelling uses in the R-A (Residential Agricultural)

Zones of Prince George’s County, under certain circumstances.” Even though the bill was

facially neutral in its application, the Planning Board opposed the bill, as was the case here.

Specifically, the Planning Board argued that an R-A zone was designed for large-lot one-

family detached residential subdivisions, not townhouses. Further, without the bill’s

requirement that a property be a “former airport,” the Planning Board noted that 262

properties in the county would meet the bill’s requirements. With the “airport” language,

only Freeway Airport met those requirements. The County’s Office of Law concurred,

stating the proposed bill could “be subject to challenge as it appears to be drafted for a

specific parcel.” The Planning Board and the Office of Law maintained the same objections

after two amendments to the bill were proposed. But neither the Board nor the Office of

Law noted a violation of the uniformity requirement. Id. at 166. Both the Board and the

Officer of Law opposed two subsequent versions of the bill for the reasons stated. Id. at

166, 169–70. But after a public hearing and an amendment, the District Council approved

the third version of CB-17 “permitting townhouses and single-family detached homes in

the R-A Zone at up to 4.5 dwelling units per acre” consistent with certain enumerated

conditions. Id. at 171–72. Concerned Citizens then sought judicial review in the circuit

court, citing among other issues, the uniformity requirement. The circuit court affirmed the

District Council.

Concerned Citizens sought further judicial review in this Court. In a reported

opinion, we sided with Concerned Citizens, holding that CB-17 violated the uniformity

requirement. In re Concerned Citizens of Prince George’s Cnty. Dist. 4, 255 Md. App.

106 (2022). We concluded that CB-17 was “tailor-made for Freeway Airport” and that the

29
record did not show “any public purpose for creation of this special high-density area

within an R-A zone[.]” Id. at 124.

The Supreme Court of Maryland granted the District Council’s petition for certiorari

to resolve the question of whether “CB-17 violates uniformity because the Council

narrowly tailored it to single out the Freeway airport as the only qualifying property.” Id.

at 179–80. The Court ultimately held that the legislation did not violate uniformity because

(1) it was adopted to further a valid public purpose and (2) did not discriminate against

similarly situated properties. Id. at 162. We apply the same standard here to support our

analysis of whether CB-42-2021 served a valid public purpose.

2. Public Purpose

Explaining that “[a] valid public purpose promotes uniformity by not favoring one

party over another,” and, citing Montgomery County v. Woodward & Lothrop, Inc., 280

Md. 686, 720 (1977) and Anderson House, 402 Md. at 719, the Concerned Citizens Court

held that the regulation at issue served a valid public purpose:

Here, CB-17 furthers a public purpose by incentivizing the redevelopment of
land currently used for a nonconforming and dangerous airport. Eliminating
the risk of plane crashes, particularly in a residential area, without question
furthers an interest in public safety, and Concerned Citizens has not argued
otherwise. Moreover, some constituents and at least one local association
supported CB-17 because they expected townhouse development would
benefit the local economy.

Id. at 150, 181–83.

The Supreme Court noted that zoning legislation has been held invalid when a

private purpose, rather than a valid public purpose, is served. Id. at 182 (citing Cassel, 195

Md. at 358; Hewitt v. Cnty. Comm’r of Balt. Cnty., 220 Md. 48, 62–63 (1959) (zoning map

amendment reclassifying two properties in a large residential area to business zoning held

30
illegal when the only evidence of a public benefit was deemed too vague)). However, a

mere showing that zoning legislation had a “‘site-specific’ intent or effect,” without more,

will not sustain a uniformity violation on grounds of an impermissible private purpose. Id.

at 190 (“That a regulation affects only one or a few properties, though relevant to our

uniformity analysis, is not dispositive.”).

In support of that premise, the Supreme Court discussed our holding in MBC Realty,

where, as previously discussed in this opinion, we sustained the City Council of

Baltimore’s enactment of a text amendment allowing new billboards in a manner that

would render only the First Mariner Arena eligible, holding that we “[do] not impose a []

knowledge limitation upon the legislative act.” Concerned Citizens, 485 Md. at 192 (citing

MBC Realty, 192 Md. App. at 236). We thereby sustained an amendment “solicited by a

private interest and targeting one property both in intent and effect.” Id.

Additionally, the Supreme Court dismissed Concerned Citizens’ argument that CB-

17 evinced an illicit relationship between the Council and the airport, noting that nothing

in the record supported that view. Id. at 186–87 (“The record provides no reason to think

the Council would not have passed CB-17 if some other party owned or intended to develop

the airport.”).

Here, CB-42-2021’s sponsors noted in the original and subsequent drafts of the bill

that the purpose of the legislation was to permit the long-abandoned and decommissioned

Lyndon Hill School to “be adaptively reused primarily by an eleemosynary, or

philanthropic institution, providing social services to the community.” Then-Councilman

Streeter, the bill’s primary sponsor, addressed the public benefit of the bill:

MR. STREETER: Yeah, thank you, Mr. Chair; and thank all my colleagues
for a willingness to sign on to this piece of legislation as it is very important
31
for Mission of Love who has been a pillar in our community and provided
great service to some of our most vulnerable citizens.

The Committee Report on CB-42-2021, dated July 1, 2021, echoed the Council member’s

comments. And Arthur Horne, attorney for the Mission of Love testified at the public

hearing:

For the record, Arthur Horne, again, here on behalf of the Mission of Love.
As you all know, the Mission of Love is operating, and has been operating,
in this area for a long time. They now need to relocate their offices and what
this bill does is simply allows them to move about 150 yards from where they
are now across the street into a, an old, abandoned school building.

To be sure, the record could be more substantive in describing exactly what services

Mission of Love Charities provides to the community, but there does not seem to be any

dispute that those services have been provided, are valued, and relied on by the community.

The record is clear enough for us to conclude that even if CB-42-2021 was crafted

specifically for Mission of Love Charities, it does not constitute spot zoning because the

legislation provides an overall benefit to the community rather than a financial opportunity

for the Mission of Love Charities. Further, this purpose seems consistent with the overall

plan of developing the community in an orderly and community-spirited way. For these

reasons, the ordinance would not constitute spot zoning. MBC Realty, 192 Md. App. at

239. Rylyns, 372 Md. at 546; Tennison, 38 Md. App. at 8.

While we understand that one of Heard’s concerns is that the District Council simply

gave publicly owned land to a favored constituent, as was also alleged in Concerned

Citizens, our review of the record yields no evidence from which we can draw the same

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conclusion. 18 Far from being a “giveaway,” which seems to connote an action solely to

benefit the recipient, here, though CB-42-2021 was clearly intended for Mission of Love

Charities, the testimony from the public hearing of the testimony in favor of the bill (which

no one opposed on the record), would provide a valid public benefit for the community.

Though Concerned Citizens portrays the Council’s “site-specific” efforts as alarming, such

amendments are not unusual and are often initiated by private interests. “That a legislature

may contemplate a specific property does not prove the absence of a public purpose, or

arbitrary or invidious discrimination; we do not require legislatures to conceive of

legislation “as an abstraction” without any actual properties in mind.” Concerned Citizens,

485 Md. at 150 (citing MBC Realty, 192 Md. App. at 236).

Given the undisputed evidence that the District Council acted to serve a public

purpose in enacting CB-42-2021, and the lack of countervailing evidence of any

impermissible private purpose, our application of uniformity analysis supports the

conclusion above that CB-42-2021 served a public purpose sufficiently to survive Heard’s

claim of illegal spot zoning.

3. Similarly Situated Properties

The majority in Concerned Citizens held that “[a] finding that a regulation furthers

a public purpose does not mark the end of our uniformity analysis”; we must also consider

“whether it discriminates between properties in a reasonable manner.” Concerned Citizens,

485 Md. at 193 (cleaned up). Discrimination between properties does not necessarily

18
Indeed, we previously noted that Heard has not pursued his argument that CB-42-
2021 constitutes contract zoning, meaning zoning resulting from an illicit agreement
between the parties, see Rylyns, 372 Md. at 547, despite having raised that objection before
the circuit court.
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violate uniformity, but it will do so where the regulation singles out a property for different

treatment from others that are “similarly situated”; two properties are similarly situated

“when there is no reasonable basis to treat them differently.” Id. at 194.

This factor is relevant in a spot zoning context as well. Discrimination between

similar properties is inherent in spot zoning; even where a public purpose is served by spot

zoning, it may be found impermissible where the spot zoning allows use inconsistent with

the treatment of similar properties. See Cassel, 196 Md. at 357–58 (use “inconsistent with

the uses to which the rest of the district [was] restricted” constitutes spot zoning).

In Concerned Citizens, the plaintiff failed to set forth evidence that the District

Council discriminated against similarly situated property:

Here, CB-17 discriminates between properties, but Concerned Citizens has
not shown that CB-17 discriminates between similarly situated properties.
Concerned Citizens has not identified any actual, or even hypothetical,
properties similarly situated to the Freeway airport that the qualifying criteria
of CB-17 excluded from higher-density development opportunities.

Concerned Citizens, 485 Md. at 197.

As in Concerned Citizens, in this case, there is simply nothing in the record from

which we might determine that the District Council improperly discriminated against

similarly situated properties. Heard did not present that argument on judicial review before

the circuit court, 19 and we find nothing in the record to suggest that this issue came before

the District Council or circuit court.

19
While we note that Heard included some discussion of CB-42-2021’s impact upon
similarly situated taxpayers in support of his standing argument, both before the circuit
court and in his opening brief in this court, he made no mention of similarly situated
properties.
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Discrimination therefore bears no weight in our determination of whether CB-42-

2021 constituted illegal spot zoning. However, we include discussion of this factor to note

that, where evidence appears in the record that tends to suggest that a regulation

unreasonably discriminates against similarly situated properties, it would be a proper

consideration in determining whether alleged spot zoning served a valid public purpose.

CONCLUSION

Heard has standing to contest the Prince George’s County District Council’s passage

of CB-42-2021. We hold that the legislation was properly enacted pursuant to the RDA,

and we find nothing in the record to suggest that its enactment constituted illegal spot

zoning. Therefore, we affirm the circuit court, albeit on different grounds.

JUDGMENT OF THE CIRCUIT COURT
FOR PRINCE GEORGE’S COUNTY
AFFIRMED. APPELLANT TO PAY THE
COSTS.

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