Lead Opinion
Plaintiff appeals as of right the trial court’s order granting summary disposition in favor of defendants. We affirm.
Defendant Thomas Donall is the president of defendant 1247 Center Street, LLC, a company that owns X-Cel, a nightclub located in the city of Lansing. Plaintiff owns a building containing residential and commercial units immediately adjacent to X-Cel. According to plaintiff, X-Cel plays music at levels that exceed those allowed by local ordinances and, among other things, constitutes a nuisance and interferes with plaintiffs right to the quiet enjoyment of its property. Plaintiff initiated this action seeking an abatement of the alleged nuisance or to enjoin defendants from operating X-Cel in violation of the applicable city ordinances. Defendant essentially denied the allegations and brought a counterclaim against plaintiff for tortious interference with
Although defendants’ motion for summary disposition was premised on MCR 2.116(C)(8), the court looked beyond the pleadings in granting the motion. We will thus treat the motion as having been alternatively granted under MCR 2.116(C)(10). Sharp v City of Lansing,
A grant of summary disposition based on a failure to state a claim is reviewed de novo on appeal. Maiden v Rozwood,
“Summary disposition is appropriate under MCR 2.116(C)(10) if there is no genuine issue regarding any material fact and the moving party is entitled to judgment as a matter of law.” West v Gen Motors Corp, 469
Plaintiff first contends that the trial court erroneously dismissed its complaint in that it did not accept the factual statements in the complaint as true. Plaintiff specifically asserts that the trial court should have accepted as true that defendants were violating local ordinances as alleged in the complaint. However, whether defendants violated a local ordinance is not a “fact” or even a reasonable inference drawn from the facts; it is a conclusion of law. A statement of plaintiffs conclusions, unsupported by allegations of fact, does not suffice to state a cause of action. See Churella v Pioneer State Mut Ins Co (On Remand),
Plaintiff also directs us to several paragraphs in its complaint, which it asserts, when taken as true, properly plead causes of action for nuisance. For example, plaintiff alleged in its complaint that “defendants’ noise production at decibel levels above those [permitted] by
Plaintiff also asserts that it stated a claim for public nuisance in alleging that “defendants are interfering with the public’s health, safety, peace, comfort, and convenience by producing noise in excess of 55 decibels” and “defendants’ noise pollution is known or should have been known to defendants to be of a continuing nature that produces a permanent or long-lasting, significant effect on the public’s health, safety, peace, comfort, and convenience.”
Public nuisance is defined in Cloverleaf Car Co v Phillips Petroleum Co,
The term “unreasonable interference” includes conduct that (1) significantly interferes with the public’s health,*428 safety, peace, comfort, or convenience, (2) is proscribed by law, or (3) is known or should have been known by the actor to be of a continuing nature that produces a permanent or long-lasting, significant effect on these rights. A private citizen may file an action for a public nuisance against an actor where the individual can show he suffered a type of harm different from that of the general public. [Id. (citation omitted).]
We agree that plaintiffs complaint set forth sufficient allegations of fact that, when taken as true, constitute a public nuisance. As previously indicated, plaintiff alleged that defendant’s production of noise at levels in excess of 55 decibels interfered with the public health and that plaintiffs tenants, who resided next to defendants’ club, have suffered significant “physical, emotional and financial harms” as a result of the noise level. Plaintiff also alleged that defendants knew or should have known that its production of noise at the level that was produced would cause a significant, long-lasting effect on the public’s health, safety, peace, comfort, or convenience. Contrary to defendants’ argument otherwise, these allegations are not dependent on a finding that the noise level violated local ordinances. Plaintiff alleged, in generic terms throughout the complaint, that the noise level interfered with its tenants’ rights and that they suffered harm as a result. Defendants have directed us to no law that requires a showing of an ordinance violation with respect to noise levels in order to state a cause of action for public nuisance. Regardless of the precise decibel level, the level of noise that constitutes a nuisance is largely a subjective matter. Plaintiff having sufficiently alleged an action for public nuisance, this claim survives summary disposition under MCR 2.116(C)(8).
The same is true with respect to plaintiffs claim of private nuisance. One is subject to liability for a private nuisance if
*429 (a) the other has property rights and privileges in respect to the use or enjoyment interfered with, (b) the invasion results in significant harm, (c) the actor’s conduct is the legal cause of the invasion, and (d) the invasion is either (i) intentional and unreasonable, or (ii) unintentional and otherwise actionable under the rules governing liability for negligent, reckless, or ultrahazardous conduct [Cloverleaf Car Co, supra at 193.]
Plaintiff alleged in its complaint that it owned property adjacent to defendants’ property and that plaintiff and its tenants had rights and privileges with respect to the use and enjoyment of plaintiffs property. Plaintiff further alleged that it and its tenants suffered physical, emotional, and financial harm as a result of defendants’ noise production. Plaintiff also alleged that defendants’ conduct was intentional and reckless. Accepting these allegations as true, as we are required to do when considering a motion premised on MCR 2.116(C)(8), plaintiff properly pleaded a cause of action for private nuisance. Defendant has provided no authority suggesting that, absent an ordinance violation, a certain noise level could not be considered a nuisance. Thus, irrespective of an ordinance violation, plaintiff may claim the existence of a nuisance.
That plaintiff has sufficiently alleged claims of public and private nuisance does not, however, end our inquiry. In ruling on plaintiffs motion to abate the alleged nuisance, the trial court specifically stated:
There are elements of a public nuisance, and those have to be met. And one of them is, it significantly interferes with the public’s safety, peace, comfort or convenience. And Plaintiff, at least in the Plaintiffs brief, points to all the other people who own residences or commercial property in the area.... But there is lack of any evidence as to other people in general being or having their safety, peace, comfort or convenience interfered with. Furthermore, because this is zoned G-l for business, it’s not evidence that*430 loud music is going to interfere with other people’s safety, peace, comfort or convenience in the area. I’ve heard about other businesses in the area, Brannigan’s The Firm, Kelly’s, Decker’s ... it’s not people trying to sleep.”
In essence, the trial court determined that there were no questions of material fact concerning the existence (or, more accurately, the nonexistence) of a public nuisance. Before deciding defendants’ motion for summary disposition, the trial court conducted a rather lengthy evidentiary hearing on plaintiffs motion to abate the alleged nuisance. The trial court, therefore, had already been presented with considerable evidence concerning whether the complained-of noise constituted a nuisance as a matter of fact. We agree with the trial court that the prior evidence, taken with the additional evidence offered in support of the summary disposition motion (and response), establishes no question of material fact concerning the claim of a public nuisance.
Nuisance-abatement proceedings brought in the circuit court are generally equitable in nature. MCL 600.2940(5). Equitable decisions are reviewed de novo, but the findings of fact supporting those decisions are reviewed for clear error. Yankee Springs Twp v Fox,
As stated previously, a public nuisance involves unreasonable interference with public rights and an unreasonable interference is conduct that (1) significantly interferes with the public’s health, safety, peace, comfort, or convenience, (2) is proscribed by law, or (3) is known or should have been known by the actor to be of
The trial court also determined that defendant’s actions did not constitute a private nuisance:
There is also an argument made that it’s a private nuisance, and that also has elements that have to be met. One of them is the invasion resulting in significant harm.... Property depreciation alone is not enough to constitute a nuisance. .. . Now, I understand there are tenants, two of whom we have heard from, that are suffering as a result of the noise. But his is an action with the property owner, and the issue is whether there could be a private nuisance. So it’s harm to the property owner for terms of a private nuisance, and not to tenants who testified... again, having covered this is a business district, it is to be an expected noise that will occur late into the nighttime.... I can’t find, on this record, that the requirement of a private nuisance is met.
The elements of a private nuisance are satisfied if (a) the other has property rights and privileges in respect to the use or enjoyment interfered with, (b) the invasion results in significant harm, (c) the actor’s conduct is the legal cause of the invasion, and (d) the invasion is either
In the instant case, plaintiff has not proven either significant harm or unreasonable interference. The harms alleged are financial in nature: plaintiff has not been able to obtain rental rates at market prices for its property. However, evidence of the market rates for rental property connected to a nightclub were not established to show a loss of value. Secondly, the rental value of plaintiffs property had not been established because the nightclub was operating long before plaintiff converted a portion of the property into apartments. Consequently, it is difficult to discern if plaintiffs rentals had lost value. Further, our Supreme Court has held that property depreciation alone is insufficient to constitute a nuisance. Adkins v Thomas Solvent Co,
The circuit court also found that the noise produced by defendant was intentional, but not unreasonable. In the context of nuisance, “unreasonable” does not refer to defendants’ conduct; it means that the interference with plaintiffs rights must be unreasonable. Id. at 305.
Plaintiff next asserts that the trial court erred in ruling that Lansing Ordinances, § 654.07(h), is inapplicable to defendants. A trial court’s interpretation of an ordinance is a question of law that is reviewed de novo. Brandon Charter Twp v Tippett,
Section 654.07(h) of the codified ordinances of Lansing prohibits sound levels in excess of 55 decibels in certain circumstances:
Places of Public Entertainment. Operating or playing or permitting the operation or playing of any radio, television, phonograph, drum, musical instrument, sound amplifier or similar device which produces, reproduces or amplifies sound in any place of public entertainment so as to produce a maximum sound level of fifty-five dBA on a residential real property boundaryL]
Plaintiff asserts that defendants’ music produced sound at prohibited decibel levels, as measured by its sound expert and a tenant, across the boundary between the dance club and plaintiffs apartments, a residential real property boundary. Defendants’ position is, and the trial court agreed, that the residential real property boundary in the ordinance refers only to boundaries in areas zoned for residential use. As plaintiff and defendants are both located in a district zoned for business, defendants’ music did not intrude upon a residential boundary. On its face the ordinance is
The rules of statutory construction also apply to ordinances. Goldstone v Bloomfield Twp Pub Library,
Section 654 provides definitions for “real property” and “residential area”:
Real property means an imaginary line along the ground surface, and its vertical extension, which line separates the real property owned by one person from that owned by another person, but not including intra-building real property divisions.
Residential area means any area designated as an A, A-l, B, C, DM-1, DM-2, DM-3 or DM-4 Zoning District, pursuant to the Zoning Code or upon any plan or district map promulgated thereunder. [Lansing Ordinances, § 654.03.1
If the statute defines a term, that definition controls. Haynes v Neshewat,
Further, the provisions of a statute must be read in the context of the entire statute so as to produce a harmonious whole. People v Couzens,
The making, creation or maintenance of such excessive, unnecessary, unnatural or unusually loud noises, which are prolonged, unusual and unnatural in their time, place and use, effect and are a detriment to the public health, comfort, convenience, safety, welfare and prosperity of the residents of the City. [Lansing Ordinances, § 654.01(b).]
The ordinance was intended to address noises that are unusual and unnatural in their time, place, and use. Certainly, a dance club playing loud music at night at an entertainment destination in a business district is an anticipated and expected time, place, and use of musical noise. In contrast, music played loudly at a party in a residential area, where the city residents would not naturally and usually expect it, is the type of harm that the ordinance seems to address.
Plaintiff also contends that defendants violated another section of the noise ordinances, 654.07(a), which provides:
Sound Production and Reproduction Systems. The playing, using or operating, or permitting the playing, using or operating, of any television or radio receiving set, musical instrument, phonograph or other machine or device for producing, reproducing or amplifying sound in such a*436 manner as to create a noise disturbance, or at any time with a louder volume than is necessary for convenient hearing for the persons who are in the room, chamber, vehicle or other place in which such an instrument, machine, set or device is operated and who are voluntary listeners thereto. The operation of any such television or radio receiving set, instrument, phonograph, machine or device between 11:00 p.m. and 7:00 a.m. of the following day in such a manner as to be plainly audible at a distance of fifty feet from the building, structure, vehicle or other place in which it is located shall be prima-facie evidence of a violation of this section. This subsection shall not apply to noncommercial speech.
The circuit court, while not specifically stating findings regarding this ordinance provision, did state that “the applicable section is paragraph H, places of public entertainment, which is the very specific section that would apply to the more general warnings that come before that.”
Arguably, the plain language of § 654.07(a) could be considered to apply to defendant’s nightclub so that plaintiff would have stated a claim simply by indicating that defendants played music in the nightclub at a louder than necessary volume. Again, however, statutory language “ ‘must be read in context with the entire act, and the words and phrases used there must be assigned such meanings as are in harmony with the whole of the statute ....’” G C Timmis & Co v Guardian Alarm Co,
Affirmed.
Concurrence Opinion
(concurring in part and dissenting in part). Although I do not join in the majority’s reasoning, I agree with its conclusion that the trial court properly granted summary disposition of plaintiff Capitol Froperties Group, LLC’s (Capitol), complaint to the extent that it stated claims based on an ordinance violation and public nuisance. However, because I conclude that Capitol established a question of fact regarding whether defendants’ operation of the club at issue substantially and unreasonably interfered with Capitol’s use and
It is well-settled that a property owner’s unreasonable generation of noise can constitute a nuisance. See Smith v Western Wayne Co Conservation Ass’n,
No one is entitled, in every location and circumstance, to absolute quiet, or to air utterly uncontaminated by any odor whatsoever, in the use and enjoyment of his property; but when noises are unreasonable in degree, considering the neighborhood in which they occur and all the attending circumstances, or when stenches contaminate the atmosphere to such an extent as to substantially impair the comfort and enjoyment of adjacent premises, then an actionable nuisance may be said to exist; and in applying these tests the question presented is one of fact rather than law. [de Longpre v Carroll,331 Mich 474 , 476;50 NW2d 132 (1951).]
As the majority notes, Capitol adequately stated a claim for relief premised on private nuisance. Nevertheless, the majority concludes that the trial court properly dismissed that claim, given the trial court’s factual findings concerning the harm to Capitol and whether the level of noise was reasonable. I do not agree that the trial court could properly grant summary disposition based on its factual findings. Capitol presented evidence that, if believed, demonstrates that defendants’ operation of the club caused both substantial and unreason
Moreover, it appears that the trial court erroneously determined that Capitol failed to make out a claim for nuisance based on noise because the noise did not interfere with its use, but rather interfered with its tenants’ use. Capitol leases its property to commercial and residential tenants — that is, its use and enjoyment is derived from its ability to make its property attractive to potential and current tenants. Capitol presented evidence that its current tenants are not happy about the volume of noise coming from defendants’ property and that this interfered with Capitol’s ability to satisfy its tenants’ needs. Capitol also presented evidence that, because of the noise, it cannot lease its property at the going market rate. Although it is true that a mere depreciation in property value is insufficient to constitute a nuisance, this is because the diminution in value does not normally constitute interference with the use and enjoyment of property. See Adkins v Thomas Solvent Co,
The trial court also appears to have erroneously determined that Capitol could not make out a claim for nuisance because a club had existed at that location for some time and — presumably—had always generated noise. Capitol presented evidence from which a trier of fact could conclude that the noise generated by the club is excessive under the totality of the circumstances. See de Longpre,
The trial court erred when it granted summary disposition of Capitol’s complaint to the extent that it stated a claim based on private nuisance. Capitol has adequately alleged and supported that claim and, for that reason, is entitled to have a trier of fact determine whether defendants’ operation of the club has substantially and unreasonably interfered with Capitol’s use of the property after a full trial on the merits. For these reasons, I would reverse the trial court’s order granting summary disposition and remand for trial on the merits consistent with this opinion.
