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
23-P-612
THOMAS J. HUTTON & another1
vs.
BOARD OF HEALTH OF NANTUCKET.
MEMORANDUM AND ORDER PURSUANT TO RULE 23.0
The plaintiffs, through a trust, own a 16,000 square foot
parcel, including a three-bedroom seasonal dwelling, on Smith
Point, located at the southwest tip of Nantucket. After being
notified that their conventional septic system had failed and
needed to be replaced, the plaintiffs applied to the Nantucket
board of health (board) for approval of an
innovative/alternative (I/A) system that, they asserted,
satisfied the Department of Environmental Protection's (DEP)
Title 5 regulations, 310 Code Mass. Regs. §§ 15.000, as well as
the board's regulations. The board denied the application and
required the plaintiffs to install a more burdensome and
1 Susan Hutton.
expensive "tight tank" system.2 The plaintiffs filed an action
for certiorari review in the Superior Court, arguing that the
board's denial of their application was arbitrary and capricious
and seeking declaratory relief. A Superior Court judge affirmed
the board's decision. We reverse the Superior Court judgment,
vacate the board's decision, and remand for further proceedings.
Background. Smith Point's sole connection with the rest of
the island of Nantucket is a small wooden span known as Millie's
Bridge, which carries Ames Avenue over a portion of Hither
Creek. The Madaket area of Nantucket in which Smith Point is
located lacks a connection to the town's water and sewer
services and instead relies on individual wastewater disposal
systems and public or private wells. Nitrogen runoff from
conventional on-site septic tanks has degraded the water quality
in the Madaket Harbor area. To protect this environmentally
fragile region, the board established the Madaket Harbor
Watershed Protection District (watershed district). Zones A and
B of the watershed district include virtually all of Madaket;
Smith Point is located within Zone A. Board Regulation 51
states that any property owner in Zone A or B whose conventional
septic system requires repairs or upgrades must replace it with
2 A tight tank is a "water tight vessel having an inlet to
receive raw sewage but no outlet and which is designed and used
to collect and store sewage until it is removed for disposal."
310 Code Mass. Regs. § 15.002 (2014).
2
either a tight tank or a DEP-approved nitrogen-reducing
wastewater disposal system.
In addition, in local Regulation 49 the board designated
the Smith Point area over Millie's Bridge, where the plaintiffs'
property is located, as the "Madaket Tight Tank District" (tight
tank district). The board found that the tight tank district's
coastal ecosystem is even more sensitive to nitrogen runoff than
the rest of the watershed district and is prone to severe
erosion and high velocity flooding. Regulation 49 was prepared
and submitted to the DEP in 2015 as an addendum to Nantucket's
comprehensive wastewater management plan (CWMP) and was
subsequently adopted following notice and comment.
In November 2020, the town health department informed the
plaintiffs that their septic system was in "technical failure"
and that Regulation 51 required them to install a DEP-approved
I/A septic system "with nitrogen reduction of at least 19 mg/l"
within twelve months. The plaintiffs hired an engineer to
prepare an application for the board's approval of an I/A system
that, the plaintiffs contended, would reduce nitrogen effluent
flows to acceptable levels. Early in the application process,
however, a health department official informed the engineer by
email that the board intended for all properties across Millie's
Bridge to install tight tanks under Regulation 49. In October
2021, the board held a public hearing on the plaintiffs'
3
application. The plaintiffs urged the board to approve their
proposed I/A system because it satisfied DEP's requirements, was
"largely compliant" with Regulations 49 and 51 and was similar
to I/A systems installed on the other side of the bridge, also
affecting the watershed district. Considering the plaintiffs'
application as a request for a variance from Regulation 49's
tight tank requirement, the board voted to deny it because the
proposed I/A system would cause more nitrogen runoff than a
tight tank, which would produce none.
The plaintiffs filed a complaint in the Superior Court for
certiorari review of the board's decision and for declarations
that the board's interpretation and application of Regulation 49
was unlawful, invalid, and violated their due process and equal
protection rights. Acting on cross motions for judgment on the
pleadings, the judge affirmed the board's decision. This appeal
followed.
Discussion. The plaintiffs assert several interrelated
reasons why the board's denial of their application was
arbitrary and capricious. They argue that decision violated
their due process rights because the regulation under which the
board acted was void for vagueness; that by interpreting the
regulation to require tight tanks in all instances, the board
impermissibly amended the regulation without following the
procedures required under G. L. c. 111, § 31; and that decision
4
was arbitrary and capricious because the board did not consider
the merits of their application.3
Certiorari review under G. L. c. 249, § 4, "is limited to
correcting substantial errors of law that affect material rights
and are apparent on the record" (quotation and citation
omitted). Gloucester v. Civil Serv. Comm'n, 408 Mass. 292, 297
(1990). "Certiorari review is calibrated to the nature of the
action for which review is sought, and thus may involve either
the substantial evidence standard or the arbitrary and
capricious standard" (quotation and citation omitted). Perisho
v. Board of Health of Stow, 103 Mass. App. Ct. 593, 597 (2023).
We review the board's decision de novo. See Fieldstone Meadows
Dev. Corp. v. Conservation Comm'n of Andover, 62 Mass. App. Ct.
265, 267 (2004) ("Our review gives no special weight to the view
of the Superior Court judge").
3 The plaintiffs also argue that Regulation 49 is invalid
because the board failed to file a copy with DEP as required by
G. L. c. 111, § 31. Even if the board neglected to file an
attested copy of the regulation after it was adopted, this
failure does not invalidate the regulation. General Laws
c. 111, § 31, has no language, such as appears in G. L. c. 30,
§ 37, and G. L. c. 30A, § 5, that specifically makes filing a
condition precedent for a regulation to become effective
thereunder. It does not impose a time limit for filing an
attested copy. And the purpose of filing with the department --
after the fact, for maintenance in a central registry for
convenience of the public -- is divorced from any substantive
review or approval process. Moreover, the plaintiffs had actual
notice of the regulation, and its absence from the central
registry caused them no harm.
5
The plaintiffs contend that Regulation 49 is
unconstitutionally vague because it failed to inform them of
what they must do to obtain approval for a septic system and
provided the board with unlimited discretion to arbitrarily deny
all applications for I/A systems in the tight tank district.4 "A
fundamental principle in our legal system is that laws which
regulate persons or entities must give fair notice of conduct
that is forbidden or required." Federal Communications Comm'n
v. Fox Tel. Stations, Inc., 567 U.S. 239, 253 (2012). A statute
or regulation is void for vagueness when people "of common
intelligence must necessarily guess at its meaning and differ as
to its application, thereby allowing untrammeled
[administrative] discretion . . . and arbitrary and capricious
decisions" (quotations and citation omitted). Daddario v. Cape
Cod Comm'n, 56 Mass. App. Ct. 764, 770 (2002), cert. denied, 540
U.S. 1005 (2003). See Caswell v. Licensing Comm'n for Brockton,
387 Mass. 864, 873 (1983) ("Vague laws violate due process
because individuals do not receive fair notice of the conduct
proscribed by a statute . . . and because vague laws that do not
limit the exercise of discretion by officials engender the
4 The plaintiffs raised this claim in opposition to the
board's cross motion for judgment on the pleadings, which is not
the equivalent of raising it for the first time in a reply
memorandum or brief. The claim was adequately raised in the
Superior Court and preserved for appellate review.
6
possibility of arbitrary and discriminatory enforcement"). As
this case does not implicate free speech concerns or criminal
conduct, we consider only whether Regulation 49 "is
unconstitutionally vague as applied in this case." Id.
Regulation 49 is not unconstitutionally vague. We read the
regulation against the backdrop of DEP's Title 5 regulations,
which strongly disfavor tight tanks. Putting aside an exception
not here applicable,5 tight tanks are prohibited except where
needed "to eliminate a failed on-site system when no other
feasible alternative to upgrade the system in accordance with
[DEP regulations] exists." 310 Code Mass. Regs. § 15.260(1)
(2014). When the board submitted Regulation 49 for review in
connection with the town's CWMP, DEP commented that the
regulation allowed for "a limited number of tight tanks" in the
"small tightly defined area" of the tight tank district.
Acknowledging that tight tanks are disfavored, Regulation
49 states repeatedly that tight tanks may be required in lieu of
conventional or I/A systems only as a "last resort." For
example, the regulation states that tight tanks will not be
permitted "for new construction or increases in design flow, but
rather only as a last resort." If the board determines that a
septic system "requires an upgrade" under Title 5, it "may"
5 That exception applies to existing seasonal-use
residences. See 310 Code Mass. Regs. § 15.260(8) (2014).
7
require the property owner to install a tight tank as "a last
resort alternative." In the case of a "failed" septic system,
the board may require it to be replaced with a tight tank. The
regulation also limits the circumstances under which the board
may exercise its discretion to require a tight tank: when "no
other feasible available alternative for wastewater disposal as
determined by the [b]oard" exists.6 The use of the words
"require" and "requirements" in the regulation -- which are
consistently prefaced with permissive language -- do not
establish an across-the-board tight tank mandate, as the board
contends.
Accordingly, the regulation provides sufficient standards
to guide the board's discretion to determine when a tight tank
might be required. The use of the vagueness doctrine to
invalidate land use decisions is reserved for "truly horrendous
situations" (citation omitted). Daddario, 56 Mass. App. Ct. at
771. This is not one of them.
In the minutes of the public hearing on the adoption of
6
Regulation 49, a staff member stated that it "is a set
regulation dependent upon the size of the property and bedroom
count. 90% of the properties north of Millie's Bridge are
extremely small and would automatically require tight tank
installation." The plaintiffs claim that their property is
within the ten percent of larger properties not subject to the
automatic requirement. However, the terms of the regulation do
not include any distinctions based on property size.
8
Having set forth standards in Regulation 49 to guide its
discretion, however, the board was obliged to apply those
standards fairly and consistently in its decision-making. It
was not free to act "for reasons that are extraneous to the
prescriptions of the regulatory scheme." Fafard v. Conservation
Comm'n of Reading, 41 Mass. App. Ct. 565, 568 (1996). The
plaintiffs assert that the board instead based its decision on
"an unannounced, de facto amendment." We agree.
The plaintiffs attempted to comply with the board's
regulations by proposing a "feasible" I/A system, given the size
of their property, that would sufficiently reduce nitrogen
levels such that a tight tank was not necessary as a "last
resort." As the minutes of the hearing made clear, however, the
board did not consider the merits of the plaintiffs' proposal.
Rather, the board had adopted an internal interpretation of
Regulation 49 that required all properties in the tight tank
district to upgrade or replace their septic systems with tight
tanks, without exception. The board did not treat the tight
tank requirement as a last resort, and it made no determination
whether an I/A system might be feasible for the plaintiffs'
property. Accordingly, the board's "denial of [the plaintiffs']
application was improperly based on a policy existing outside of
the regulatory framework." Fieldstone Meadows Dev. Corp., 62
Mass. App. Ct. at 267. "The decision to deny the permit on the
9
basis of such a policy was therefore arbitrary." Id. at 268.
See also Hercules Chem. Co. v. Department of Envtl. Protection,
76 Mass. App. Ct. 639, 643 (2010), quoting Long v. Commissioner
of Pub. Safety, 26 Mass. App. Ct. 61, 65 (1988) ("Arbitrary and
capricious action is that which is taken 'without consideration
and in disregard of facts and circumstances'").7
Conclusion. The judgment of the Superior Court is
reversed. An order shall enter vacating the board's denial of
the plaintiffs' application and remanding the plaintiffs'
application to the board for further consideration consistent
with this decision.
So ordered.
By the Court (Milkey,
Massing & Neyman, JJ.8),
Assistant Clerk
Entered: April 16, 2024.
7 To the extent the board intended to implement an across-
the-board tight tank policy, it could do so only through the
regulatory process set forth in G. L. c. 111, § 31. Cf. Carey
v. Commissioner of Correction, 479 Mass. 367, 371-372 (2018),
quoting G. L. c. 30A, § 1 (5) (under State Administrative
Procedure Act, rules of "general application and future effect"
must be promulgated as regulations); Water Dep't of Fairhaven v.
Department of Envtl. Protection, 455 Mass. 740, 749 (2010) ("If
the department wishes to require registrants to take specified
conservation measures, it must do so by regulation").
8 The panelists are listed in order of seniority.
10