KENNETH MACDONALD & Another v. KRISTEN KAZOKAS & Another.

NOTICE: Summary decisions issued by the Appeals Court pursuant to M.A.C. Rule
23.0, as appearing in 97 Mass. App. Ct. 1017 (2020) (formerly known as rule 1:28,
as amended by 73 Mass. App. Ct. 1001 [2009]), are primarily directed to the parties
and, therefore, may not fully address the facts of the case or the panel's
decisional rationale. Moreover, such decisions are not circulated to the entire
court and, therefore, represent only the views of the panel that decided the case.
A summary decision pursuant to rule 23.0 or rule 1:28 issued after February 25,
2008, may be cited for its persuasive value but, because of the limitations noted
above, not as binding precedent. See Chace v. Curran, 71 Mass. App. Ct. 258, 260
n.4 (2008).

COMMONWEALTH OF MASSACHUSETTS

APPEALS COURT

22-P-656

KENNETH MACDONALD & another1

vs.

KRISTEN KAZOKAS & another.2

MEMORANDUM AND ORDER PURSUANT TO RULE 23.0

The plaintiff, Kenneth MacDonald,3 appeals from a decision

of a Superior Court judge affirming a decision of the board of

health of Littleton (board) granting a permit and variance for

construction of a new subsurface disposal system (septic permit)

to the defendant, Kristen Kazokas. We affirm the judgment.

Background. Septic systems in the Commonwealth are

regulated by 310 Code Mass. Regs. § 15.000, known as Title 5,

and local approving authorities are charged with issuing

disposal system construction permits. See 310 Code Mass. Regs.

§ 15.003(2) (2014). "Local approving authorities may enact more

1 Jodi MacDonald.
2 Board of Health of Littleton.
3 Although the notice of appeal identifies both Kenneth and Jodi

MacDonald as appellants, Jodi MacDonald has not entered her
appeal and has not participated in this appeal.
stringent regulations to protect public health, safety, welfare

and the environment." 310 Code. Mass. Regs. § 15.003(3). Here,

regulations adopted by the board in 2013 include regulation 27,

a local, "more stringent" regulation, which provides that "[n]o

portion of a fill requirement for a subsurface sewage disposal

system shall be within 10 feet of a property line." The focus

of this appeal is on whether the board properly granted Kazokas

a variance from regulation 27.

Kazokas's parcel contains six acres and abuts MacDonald's

parcel. The current structure on Kozakas's property is served

by an outhouse. In 2014, the board granted Kazokas a septic

permit and a variance from regulation 27 for a four-bedroom home

on the property; there was no appeal from the board's 2014

decision.

In 2017, Kazokas obtained an order of conditions from the

conservation commission for installation of a septic system, an

upgrade to the existing driveway, and possible further expansion

of the existing cottage, based on a plan dated July 24, 2017.

When the commission's decision was appealed, however, Kazokas

sought and received a one-year extension of the 2014 septic

permit, extending its expiration date to September 16, 2018.4 A

4 Although the local regulations are silent as to the expiration
of a disposal system construction permit, 310 Code Mass. Regs.
§ 15.020(2) (2014), provides that such permits expire if

2
few days before that date, Kazokas sought a "stay" of the septic

permit from the board, at its September 11, 2018, meeting. The

board's chair had notified MacDonald in advance of that meeting

that Kazokas was on the agenda; MacDonald could not attend but

urged the board in writing not to allow the permit extension.5

At the September 11, meeting, after a discussion with Kazokas

and her attorney, the board indicated it had no power to issue a

stay, but suggested Kazokas file a new application for a septic

permit -- relying on the same 2014 plan. Kazokas did so and on

September 25, 2018, there was a public hearing on the request.

Her application requested a variance from regulation 27,

stating:

"[t]he area on my property suitable for a soil absorption
system is constrained by the presence of wetlands and Fort
Pond. The soil absorption system has been located to be
offset from the wetlands which require it to be 17.6' from
the property line. Offsetting the system from the
estimated seasonable high groundwater requires fill and a
wall to be located within 10 feet of the property line."

construction is not completed and a certificate of compliance
obtained within three years of issuance of the final approval.
A single one-year extension may be granted on the applicant's
written request outlining the facts that prevented timely
completion. 310 Code. Mass. Regs. § 15.020(3).
5 MacDonald's written submission urging the board not to allow a

permit extension indicated that due to changes in the wetlands
delineation, Kazokas had submitted a new engineering plan to the
Department of Environmental Protection (DEP), which "alter[ed]
the location of the fill and retaining wall" compared to the
2014 plan.

3
Under local regulations, the board may grant a variance

from its regulations when, in the opinion of the board, "the

enforcement thereof would do manifest injustice, and the

applicant has proven that the same degree of public health and

environmental protection required under these regulations can be

achieved without strict application of a particular

provision(s)."6 The board's agent, whose comments were read

aloud at the September 25, 2018, public hearing on the new

permit application, wrote:

"The permit for the septic system has expired and the
applicant has reapplied to obtain a new permit for the
site. I reviewed the plans and find they are in compliance
with Title 5 and your regulations, except the design
proposes fill within the 10 feet of the lot line and
proposes the use of retaining wall and barrier to contain
the fill.

"I don't have an issue with the request as the use of the
retaining wall will allow the surface runoff from the site
grading to be directed onto the applicant's property."

At the hearing, MacDonald spoke. He contended that the

wetlands survey was off by eight to twelve feet and asked that

the board defer its decision until the hearing at the DEP the

following month. The board responded that the conservation

commission was concerned with the wetlands boundaries, and the

board could only act on the information it had from the

6 The board's regulations require variance requests to be in
writing to the board and provides that the board "shall grant,
modify, or deny a variance in writing."

4
conservation commission -- and the information the board had

received was that the wetlands delineation remained the same.

MacDonald also argued that Kazokas had not shown that

enforcement of regulation 27 "would do manifest injustice to

prevent her from substantially all beneficial use of the subject

property." One board member indicated that the manifest

injustice would be to deny a variance when it had previously

been granted. MacDonald also argued that the limits of work had

not been delineated in accordance with regulation 23B. At the

end of the hearing, the board voted to approve the variance and

the permit.

The MacDonalds sought review in the Superior Court pursuant

to G. L. c. 249, § 4, arguing that the board's decision was not

based on substantial evidence because the applicant did not

present the 2018 plan, and also that the board did not consider

whether enforcement of regulation 27 would cause manifest

injustice or whether the proposed plan achieved the same degree

of public health and environmental protection. The judge

rejected those arguments, denied the MacDonalds' motion for

judgment on the pleadings, and affirmed the variance. This

appeal followed.

Discussion. Appeal from a board of health's decision on a

septic permit application is by certiorari. Robinson v. Board

of Health of Chatham, 58 Mass App. Ct. 394, 395 n.4 (2003).

5
Pursuant to G. L. c. 249, § 4, a Superior Court judge may

"correct only a substantial error of law, evidenced by the

record, which adversely affects a material right of the

plaintiff." Macero v. MacDonald, 73 Mass. App. Ct. 360, 366

(2008), quoting Carney v. Springfield, 403 Mass. 604, 605

(1988). "The judge in this case was to determine if the board

committed error of law that 'resulted in manifest injustice to

the plaintiff.' . . . Our role in this appeal is to decide

whether the judge correctly determined that the administrative

record showed no error of law that adversely affected

[MacDonald's] material rights" (citation omitted). Macero,

supra. We give "no special deference" to the judge's decision.

Id. "[O]ur review is limited at most to whether the [board]'s

decision is supported by substantial evidence in the

administrative record, whether the [board]'s action was

arbitrary and capricious, and whether the [board] committed an

abuse of discretion or other error of law." Delapa v.

Conservation Comm'n of Falmouth, 93 Mass. App. Ct. 729, 733-734

(2018).

On appeal, MacDonald makes three arguments: (1) the judge

disregarded substantial evidence in the record; (2) Kazokas

failed to demonstrate that she met the requirements for a

6
variance under the local regulations;7 and (3) the judge

impermissibly substituted his own reasoning for that of the

board.

MacDonald's first argument centers on what he sets forth as

irregularities in the proceedings. He contends that Kazokas was

allowed unlimited time and access to the board at the September

11, meeting and, in essence, was able to garner the sympathy of

the board -- as evidenced by some members' statements that they

would like to help her out and she should submit a new

application. One member said that because the variance had been

approved before, "it would likely be approved again."8

Nonetheless, the board declined to issue a stay and told Kazokas

that she would have to apply for a new permit. The board

offered no procedural shortcuts and made no promises.

7 Certiorari is "available to persons, including abutters, who
can establish 'injury to a protected legal interest.'" Walpole
Country Club v. Board of Health of Sharon, 72 Mass. App. Ct.
913, 914 (2008), quoting Friedman v. Conservation Comm'n of
Edgartown, 62 Mass. App. Ct. 539, 543 (2004). See Hickey v.
Conservation Comm'n of Dennis, 93 Mass. App. Ct. 655, 657
(2018). Kazokas did not challenge MacDonald's standing;
MacDonald contends in his reply brief that stormwater will be
directed onto his property and ultimately to Fort Pond. Given
the result we reach, we assume without deciding that MacDonald
has standing to challenge the variance. But see Walpole Country
Club, supra (abutters failed to make sufficient showing that
siting of septic system threatened their protected interest or
material rights).
8 We agree that a board member calling Kazokas "honey" was

inappropriate and caution against use of such terms in
governmental proceedings.

7
MacDonald contends that the subsequent public hearing on

the new application was tantamount to a formality and that the

board had already decided to issue the permit as suggested by

the tenor of the September 11, meeting. In our view, it was not

unreasonable for the board to suggest that if the property had

qualified in 2014, it was likely to qualify in 2018.9 Further,

to be sure, the board expressed sympathy for Kazokas because her

2014 sewer permit would expire during the course of a different

administrative appeal. The board's collective instinct that

there was something unfair about Kazokas's predicament finds

some support in the case law where, in certain circumstances,

when "delays clearly attributable to others have hampered the

holder's efforts to obtain a building permit," the expiration

date of a zoning variance has been equitably tolled. Cornell v.

Board of Appeals of Dracut, 453 Mass. 888, 893 (2009). We do

not go so far as to say that equitable tolling could or should

have applied here, particularly where Kazokas did not seek an

order of conditions for over two years after she received the

septic system permit and variance; we simply point out that our

law is not completely insensitive to the difficulties in

obtaining multiple local and State permits, and we cannot expect

9 There is no suggestion that the criteria for a variance had
changed between 2014 and 2018.

8
the board to avoid all expression of sympathy at what can be

lengthy and difficult governmental processes.

Despite statements of sympathy, however, the board declined

to grant a stay and specifically refused to vote on any topic

because its "discussion" did not occur in a public hearing. The

board required Kazokas to submit a new application and go

through the public hearing process at which MacDonald could and

did participate. We agree with the judge that "isolated

comments are not sufficient to rebut the 'presumption in favor

of the honesty and sufficiency of the motives actuating public

officers in actions ostensibly taken for the general welfare,'"

quoting LaPointe v. License Bd. of Worcester, 389 Mass. 454, 459

(1983).

We have reviewed the transcript and notes from the public

hearing closely. Although MacDonald asserted that the 2018 plan

differed from the 2014 plan, he did not offer the 2018 plan to

the board, and it is not in the record before us. And, although

he argued that the wetlands delineation had changed, the board

noted that the "Conservation Commission shared that the wetlands

line on their plan is what had been approved by them . . . and

is the same as . . . the Board of Health plan currently up for

consideration." Perhaps most importantly, it is the 2014 plan

that was approved by the board. To the extent the design or

location of the retaining wall differs significantly between the

9
2014 plan and the 2018 plan or the 2018 plan differs in other

material ways, the board approved the location of components in

the 2014 plan; Kazokas may not relocate septic components or

otherwise deviate materially from the 2014 plan without the

board's approval. See 310 Code Mass. Regs. § 15.020.

MacDonald next asserts that Kazokas did not prove that she

was entitled to a variance; that is, she did not show manifest

injustice from enforcement of regulation 27 and did not show

that the same level of protection has been provided. The

record, however, contains the 2014 discussions of alternative

locations for the septic system, and no feasible location was

identified that would not also require a variance. In addition,

in both 2014 and 2018, the board's agent expressed his

satisfaction with the plan because the retaining wall would keep

surface waters on the Kazokas property. The board's implicit

conclusions that manifest injustice would result from

enforcement of regulation 27 and the system achieves the same

degree of public health and environmental protection was

supported by substantial evidence and not arbitrary or

capricious. See Delapa, 93 Mass. App. Ct. at 733-734.10

10MacDonald has not suggested that Kazokas's septic system would
cause a private nuisance or trespass, though those avenues of
relief potentially would be available should such injuries occur
in the future. See Rattigan v. Wile, 445 Mass. 850, 856 (2006)
(private nuisance); Amaral v. Cuppels, 64 Mass. App. Ct. 85, 91
(2005) (trespass).

10
Finally, MacDonald argues that the judge substituted his

analysis for the board's -- that the board concluded that the

applicant was entitled to a variance simply because she had

qualified for one in 2014. While we agree that a standard that

would allow granting a variance because a variance had been

granted previously is untenable as it would in effect negate the

expiration date mandated by State regulations, in the absence of

material change in facts or law, it is in fact likely the

applicant would again qualify. Acknowledging this reality does

not mean that the board predetermined the outcome. Substantial

evidence existed in the record to support the board's decision.

Judgment affirmed.

By the Court (Massing,
Henry & Brennan, JJ.11),

Clerk

Entered: November 22, 2023.

11 The panelists are listed in order of seniority.

11