|
Town of Baldwin v. Carter
Download as PDF
Back to the Opinions page
MAINE SUPREME JUDICIAL COURT Reporter of Decisions
Decision: 2002 ME 52
Docket: Cum-01-44
Argued: October 11, 2001
Decided: April 8, 2002
Panel:SAUFLEY, C.J., and CLIFFORD, RUDMAN, DANA, ALEXANDER, and CALKINS, JJ.
TOWN OF BALDWIN
v.
KARI CARTER
CLIFFORD, J.
[¶1] Kari Carter appeals from a judgment entered in the District Court
(Bridgton, Powers, J.) in favor of the Town of Baldwin, concluding that Carter
violated the Town's Barking Dog Ordinance. Carter contends that the
ordinance is unconstitutionally vague because it fails to provide sufficient
notice to dog owners about the degree of barking that constitutes a violation.
We are unpersuaded by Carter's contention and affirm the judgment.
[¶2] The facts are not in dispute. The Town enacted its Barking Dog
Ordinance in 1997, which provides as follows:
No owner or keeper of any dog kept within the legal limits of the
Town of Baldwin shall allow such dog to unnecessarily annoy or
disturb any person by continued or repeated barking, howling, or
other loud or unusual noises anytime day or night.
Baldwin, Me., Barking Dog Ordinance 1 (Mar. 8, 1997).{1}
[¶3] Carter held a valid license from the Town to operate a kennel and
had sixteen dogs on her property. The dogs were kept in an outdoor caged
kennel as well as an interior space. The Town received several complaints
about Carter's dogs and sent Carter a notice of complaint by certified letter in
July of 2000 stating that the Town would take action if the continual barking
was not corrected within ten days. Neighbors, who resided 300 to 800 feet
away from Carter's home, made additional complaints against Carter for
continual dog barking in violation of the ordinance in September and October
of 2000. One neighbor submitted a thirty minute long video tape on which dog
noises coming from Carter's kennel about 800 feet away could be heard inside
the neighbor's house.
[¶4] After receiving a telephone call from a neighbor complaining about
Carter's barking dogs, whose barking he could hear over the telephone, the
Town's animal control officer investigated and concluded that a violation had
occurred. The Town brought a complaint pursuant to M.R. Civ. P. 80H alleging
that Carter violated the Barking Dog Ordinance.
[¶5] At her trial, Carter argued that she did not have proper notice of the
charges against her because the ordinance is unconstitutionally vague. The
court rejected her contention and held that the ordinance "places an owner
sufficiently on notice that significant, ongoing noise may be a violation of the
statute if it is unnecessary noise and further disturbs or annoys someone at
any time." The court concluded that intermittent or short term dog noises do
not constitute violations of the ordinance and the plain meaning of "continued
or repeated" is understandable by a dog owner of reasonable intelligence. The
court further reasoned that the use of the word "unnecessary" sufficiently
limited the ordinance to situations where the barking was not necessary, such
as "a natural response to a particular stimulus, or for instance, a warning to
occupants of a burning building."
[¶6] After deciding that the ordinance was not vague, the court found
that "the barking went on for a period of minutes to a period of hours" on
various occasions. It concluded that Carter kept dogs which barked and
howled unnecessarily for continual and repeated durations, and disturbed and
annoyed neighbors on numerous occasions after Carter had been given written
notice to cease the unlawful barking. The court fined her $50 and awarded the
Town $3,524.33 in attorney fees. This appeal by Carter followed.
[¶7] Carter challenges the constitutionality of the Town's Barking Dog
Ordinance on the grounds of vagueness. Although she does not assert that the
ordinance is unconstitutionally vague as applied to her, she contends that the
ordinance is impermissibly vague on its face because there are no objective
standards for determining whether a dog's barking is "unnecessary" or
"continued or repeated" or "annoys or disturbs" a person.{2}
[¶8] A facial challenge in this context means that Carter is claiming
that the ordinance is "invalid in toto-and therefore incapable of any valid
application." Steffel v. Thompson, 415 U.S. 452, 474 (1974). When reviewing a
facial challenge to an ordinance, if the ordinance implicates no
constitutionally protected fundamental liberties, such as freedom of speech or
religion, courts "should uphold the challenge only if the enactment is
impermissibly vague in all of its applications." Village of Hoffman Estates v.
Flipside, Hoffman Estates, Inc., 455 U.S. 489, 495 (1982). Because none of
Carter's fundamental liberties are implicated by this ordinance, we review the
constitutionality of the ordinance to see if it can apply under any set of
circumstances.{3} See id. at 495-97 (if the ordinance can be properly applied to
anyone, even if only in one particular, discrete situation, then the ordinance is
constitutional). We conduct this limited review de novo. See State v. Weeks,
2000 ME 171, ¶¶ 7-10, 761 A.2d 44, 46-47 (considering a vagueness challenge
without deference to the conclusion of the trial court).
[¶9] "A statute is presumed to be constitutional and the person
challenging the constitutionality has the burden of establishing its infirmity."
Kenny v. Dep't of Human Servs., 1999 ME 158, ¶ 7, 740 A.2d 560, 563. If at all
possible, we will construe the statute to preserve its constitutionality. Maine
Milk Producers, Inc., v. Comm'r of Agric., 483 A.2d 1213, 1218 (Me. 1984); see
also State v. Cropley, 544 A.2d 302, 304 (Me. 1988) ("this Court is bound to
avoid an unconstitutional interpretation of a statute if a reasonable
interpretation of the statute would satisfy constitutional requirements")
(quoting Bossie v. State, 488 A.2d 477, 479 (Me. 1985)). In order to succeed in
her appeal, Carter must prove that "no logical construction can be given to the
words of [the Barking Dog Ordinance] that will make it constitutional." Maine
Milk Producers, Inc., 483 A.2d at 1218.
[¶10] Concepts of due process flowing from both the Fourteenth
Amendment of the United States Constitution and Article I, § 6-A, of the Maine
Constitution, require that those subject to sanction by law be given "fair notice
of the standard of conduct to which they can be held accountable." Weeks, ¶
7, 761 A.2d at 46 (quoting United States v. Robinson, 137 F.3d 652, 653 (1st Cir.
1998)); Maine Real Estate Comm'n v. Kelby, 360 A.2d 528, 531 (Me. 1976)
(applying void-for-vagueness doctrine to civil regulation of conduct). An
ordinance is improperly vague "when its language either forbids or requires the
doing of an act in terms so vague that people of common intelligence must
guess at its meaning," City of Portland v. Jacobsky, 496 A.2d 646, 649 (Me.
1985), or if it authorizes or encourages arbitrary and discriminatory
enforcement, Grayned v. City of Rockford, 408 U.S. 104, 108-09 (1972).
[¶11] We find persuasive the reasoning of the Court of Appeals of
Arizona in State v. Singer, 945 P.2d 359 (Ariz. Ct. App. 1997). In Singer, the
defendant claimed that a dog barking ordinance providing that "[n]o person
shall keep a dog within the City limits which is in the habit of barking or
howling or disturbing the peace and quiet of any person within the City" was
unconstitutionally vague because it did not provide objective standards for
determining if a violation had occurred, id. at 361-62 (emphasis added), the
same argument that Carter makes in this case. The Singer court gave the
ordinance a reasonable construction that made it constitutional. Id. at 362.
The court found inherent in the phrase "any person" a "presumption that such
person be a reasonable one." Id. Construing the ordinance in this manner
rendered it constitutional, because the offensive barking was now capable of
objective measurement. Id. See also Hernandez v. Richard, 772 So.2d 994, 997
(La. Ct. App. 2000) (construing noise ordinance to proscribe only objectively
unreasonable noises to overcome constitutional infirmity of being vague); State
v. Friedman, 697 A.2d 947, 950 (N.J. Super. Ct. App. Div. 1997) (upholding a
noise ordinance against a facially unconstitutional vagueness challenge, by
interpreting the statute as proscribing only objectively unreasonable noises).{4}
[¶12] As in Singer, the Town's ordinance in this case can be construed to
be constitutional by importing a reasonable person standard into its language.
See State v. Davenport, 326 A.2d 1, 5-6 (Me. 1974) ("[c]ourts must construe
legislative enactments so as to avoid a danger of unconstitutionality"). We
interpret the Town's ordinance in this case to mean that continuous or
repeated dog barking that is unnecessary is actionable only if it is
unreasonable. The ordinance only proscribes barking that disturbs the comfort
of ordinary people to an unreasonable extent. The inquiry must determine
whether the noise would disturb a person of ordinary sensibilities; that is, the
barking, or howling, or other loud or unusual noise must be annoying or
disturbing to a reasonable person, not merely to some supersensitive or
hypercritical individual.
[¶13] "Reasonableness" is a well defined concept under the common law.
Tri-State Rubbish, Inc., 634 A.2d at 1287 ("'Reasonable' compliance is not an
unconstitutionally vague concept. If it were, most tort law doctrines and a
host of other legal standards would be invalid-the reasonable person, beyond
reasonable doubt, reasonable good faith efforts, etc."); State v. Sylvain, 344
A.2d 407, 409 (Me. 1975) (holding that statute was not impermissibly vague
because its proscription against objectionable and unreasonable noise was
"framed in words of common use and understanding. Only . . . noises . . .
[that] offend the sensibilities of the hearing public to an unreasonable degree
are prohibited"); Charlton v. Town of Oxford, 2001 ME 104, ¶ 36, 774 A.2d 366,
377 (that the "interference . . . was of such a nature, duration or amount as to
constitute unreasonable interference" is a necessary element of the common law
cause of action for private nuisance) (quoting W. Page Keeton et al., Prosser
and Keeton on the Law of Torts § 87, at 622-23 (5th ed. 1984)) (emphasis
added). Because "reasonableness" is well defined under the common law the
Town's ordinance is not vague. See Davenport, 326 A.2d at 6 (when the
meaning of the words used in a statute can be fairly ascertained by reference to
the common law and to judicial determinations the ordinance is not void for
vagueness).
[¶14] Moreover, the ordinance contains three other restrictions which
add clarity to its meaning and set forth an ascertainable standard of guilt. The
phrase "continued or repeated" means something more than incidental
barking.{5} Intermittent or short term dog noises do not constitute violations of
the ordinance. The barking has to occur over a sustained duration, or over and
over again for a sustained period of time. See City of Lebanon v. Wergowske,
590 N.E.2d 902, 904 (Ohio Ct. App. 1991) (upholding ordinance prohibiting
persons from keeping a dog which causes annoyance to the neighborhood
because the ordinance also contained "qualifying words 'loud,' 'frequent' and
'habitual,' which clarify the ordinance"). The word "unnecessary" also aids in
defining the standard of guilt under the ordinance. In Sylvain, we explained
that the statute in that case "recognize[d] the occasional necessity of highway
noise of such unusual and unpleasant intensity" by proscribing only
"unnecessary" signaling and braking. 344 A.2d at 408-09. Like in Sylvain, the
Town's ordinance recognizes the occasional necessity of "continued or
repeated" dog barking and howling that will disturb a reasonable person. The
use of the word "unnecessary" is an accommodation of the public interest in
freedom from unreasonable barking with the occasional necessity of barking
under some circumstances. For example, a dog may bark to alert an occupant
of a burning building, and this barking is not proscribed by the ordinance.
Furthermore, that the Town gives warning to the dog owner before seeking a
court order enforcing the ordinance affords the owner an additional procedural
protection.
[¶15] "[T]he familiar language employed in the [Town's Barking Dog
Ordinance] conveys a sufficiently accurate concept of what is forbidden." Id. at
409. The ordinance is not unconstitutionally vague.{6}
The entry is:
Judgment affirmed.
Attorneys for plaintiff:
David A. Lourie, Esq. (orally)
189 Spurwink Avenue
Cape Elizabeth, ME 04107
Ronald J. Graff, Esq.
Steeves & Graff
P O Box 1815
Standish, ME 04084-1815
Attorneys for defendant:
John C. Bannon, Esq. (orally)
Timothy H. Boulette, Esq.
Murray Plumb & Murray
P O Box 9785
Portland, ME 04104-5085
FOOTNOTES******************************** {1} . The ordinance further provides
that: Upon written complaint by the person disturbed, . . . any . . . duly
qualified . . . person acting in that capacity of the Town of Baldwin may
investigate and may give written notice to the owner or keeper of such dog
that such annoyance or disturbance must cease. . . . Thereafter, upon continuance
of such annoyance or disturbance, such owner shall be guilty of a civil
violation and upon conviction thereof shall be punished by a fine of $50
for the first offense. . . . All fines so assessed and attorney fees shall
be recovered for the use of the Town of Baldwin through District Court.
Baldwin, Me., Barking Dog Ordinance 1 (Mar. 8, 1997). {2} . In support of
her claim, Carter refers to the ordinance challenged in People v. Frie,
646 N.Y.S.2d 961 (N.Y. Dist. Ct. 1996), as the ideal barking dog ordinance.
In that case, the court upheld as constitutionally sound a provision prohibiting
a "noise disturbance from a barking dog," which was in turn defined
as "a dog barking for fifteen (15) minutes in any one-hour interval."
Id. at 963-64. Carter asserts that the Town's ordinance can only be saved
by objectively quantifying the phrases "unnecessarily annoy any person"
and "continued or repeated." We disagree. Objective quantification,
mathematical certainty, and absolute precision are not required by either
the United States Constitution or Maine Constitution. Davis v. Sec'y of
State, 577 A.2d 338, 341 (Me. 1990). Although it is preferable that a legislative
body "speak in precise and pellucid language, failure to meet that
Olympian standard does not make its enactments void for vagueness."
Maine Milk Producers, Inc. v. Comm'r of Agric., 483 A.2d 1213, 1221 (Me.
1984). See, e.g., Town of Pownal v. Emerson, 639 A.2d 619, 621 (Me. 1994)
(refusing vagueness challenge for failure of statute to define term "unserviceable");
Tri-State Rubbish, Inc., v. Town of New Gloucester, 634 A.2d 1284, 1287
(Me. 1993) (refusing to find provision in ordinance requiring "reasonable
compliance" as unconstitutionally vague); Gorham v. Town of Cape Elizabeth,
625 A.2d 898, 900-01 (Me. 1993) (ordinance that allowed conditional use
permit as long as proposed use did not "adversely affect" value
of adjacent properties was not unconstitutionally vague); Maine Real Estate
Comm'n v. Kelby, 360 A.2d 528, 532 (Me. 1976) (holding regulation of standards
of conduct for real estate professionals not unconstitutionally vague for
lack of delineation of precise instances of proscribed conduct). Given the
nature of the subject matter, formulating a specific and precise ordinance
regulating annoying dog barking is a difficult task. So long as the ordinance
notifies the public of the conduct it proscribes, an ordinance regulating
this nuisance may utilize general language. {3} . Because Carter asserts
"that the law is impermissibly vague in all of its applications,"
she has standing to make this challenge. Village of Hoffman Estates, 455
U.S. at 947. {4} . Carter Relies on City of Edina v. Dreher, 454 N.W.2d
621 (Minn. Ct. App. 1990), People v. Donato, 684 N.Y.S.2d 394 (N.Y. Civ.
Ct. 1998), People v. Kleber, 641 N.Y.S.2d 488 (N.Y. Civ. Ct. 1996), City
of Spokane v. Fischer, 754 P.2d 1241 (Wash. 1988), and State v. Ferraiolo,
748 N.E.2d 584 (Ohio Ct. App. 2000), as support for her position. In each
of these cases, the courts held that the ordinance in question was impermissibly
vague because the determination as to whether a violation of the ordinance
occurred was left to the subjective determination of a particular citizen
or group of citizens. Dreher, 454 N.W.2d at 623-24; Donato, 684 N.Y.S.2d
at 397; Kleber, 641 N.Y.S.2d at 498; Fischer, 754 P.2d at 1243; Ferraiolo,
748 N.E.2d at 586-88. Although there are similarities in the ordinances
reviewed in those cases with the ordinance in this case, those decisions
are unpersuasive. The courts in those cases did not give the ordinance being
reviewed a construction that would have allowed the ordinance to overcome
its constitutional infirmity, where such a construction possibly existed.
See Ferraiolo, 748 N.E.2d at 586-88 (did not consider saving); Donato, 684
N.Y.S.2d at 396-98 (same); Kleber, 641 N.Y.S.2d at 498 (finding the ordinance
unsusceptible of an interpretation that could overcome its constitutional
infirmities); Fischer, 754 P.2d at 1241-43 (did not consider saving); Dreher
454 N.W.2d at 623-24 (same). We will strike down an ordinance for being
impermissibly vague only if no logical construction can be given the words
of the statute that will make it constitutional. Maine Milk Producers, Inc.,
483 A.2d at 1218. Because the Town's ordinance is capable of being interpreted
so as to overcome its infirmities we give it that construction. {5} . In
general the word "continued" means "an act or event that
is uninterrupted . . . enduring." Black's Law Dictionary 316 (7th ed.
1999). Repeated means "renewed or recurring again and again."
Webster's Third New International Dictionary 1924 (1981). {6} . Because
Carter only asserts that the ordinance is facially vague, we do not need
to determine whether the ordinance was properly applied to her. Nonetheless,
it was not unreasonable of Carter's neighbors to be annoyed by the continued
and unnecessary barking of her dogs. Carter housed sixteen dogs whose barking
could be heard by neighbors 800 feet away uninterrupted for hours at a time.
An investigator could even hear the barking over the telephone while speaking
with a complainant. This clearly is enough to offend the sensibilities of
a reasonable person.
|