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Harold A. Storer vs. Jeremiah F. Downey

Massachusetts Supreme Judicial Court1913-06-18
215 Mass. 273

Summary

Holding. The court dismissed the petition for mandamus. A mayor's veto of an order granting garage construction authorization is valid when stated in writing, even if based on policy considerations rather than legal defects, and the board of aldermen must affirmatively override the veto for the order to take effect.

A landowner sought a writ of mandamus to compel the superintendent of public buildings to allow construction of a garage after the city's board of aldermen granted his petition but the mayor vetoed the order. The court upheld Cambridge's ordinance requiring board authorization before erecting or converting buildings to garage use as a valid exercise of police power, given the fire and safety hazards associated with storage and use of flammable materials like gasoline and oil in such structures.

The court rejected the petitioner's argument that the mayor's veto was invalid. The mayor had provided written objections as required by statute, stating his concerns about garage placement in residential districts and opposition from neighboring property owners. The court held that the statute does not require the mayor's reasons to be legally sound or satisfy any external standard—only that he state them in writing. The board of aldermen is then responsible for determining whether to override the veto. Here, the board did not override the mayor's veto, so the order became ineffective.

Summary generated by law.co from the public-domain opinion. The opinion text itself is public domain.

Key issues

  • Validity of municipal ordinance regulating garage construction and use as police power
  • Scope and standards for mayoral veto authority
  • Whether written statement of reasons limits or validates a veto

Procedural posture

The petitioner filed for a writ of mandamus in the Supreme Judicial Court of Massachusetts against the superintendent of public buildings to challenge a mayoral veto of the board of aldermen's order authorizing garage construction.

Authorities cited

No cited authorities resolved to law.co cases yet.

Opinion

majority opinion

Rugg, C. J.

This is a petition for a writ of mandamus by a landowner against the superintendent of public buildings of Cambridge.

An ordinance of the city of Cambridge (passed under the authority of R. L. c. 104, § 1), provides that “No building shall be erected for or converted to use as a garage unless such use is previously authorized by the board of aldermen.” This is a valid exercise of the police power. The disagreeable incidents of a garage are well known. They have been adverted to frequently in recent decisions of this court. See, for example, Riverbank Improvement Co. v. Bancroft, 209 Mass. 217, 223; Noyes v. Cushing, 209 Mass. 123, 126, and cases cited. Oil and gasoline, almost inevitably stored and used in them, are so highly inflammable and explosive that they may increase the danger of fire, no matter how carefully the building be constructed nor how non-combustible its materials. Although lawful and necessary buildings, they are of such character that regulation of the place of their erection and use is well within settled principles as to the police power.

The ordinance in its terms differs in no essential particular from many others which have been sustained. Salem v. Maynes, 123 Mass. 372. Commonwealth v. Hubley, 172 Mass. 58. Newton v. Joyce, 166 Mass. 83. Worcester Board of Health v. Tupper, 210 Mass. 378. The case is plainly distinguishable from Commonwealth v. Maletsky, 203 Mass. 241, and Goldstein v. Conner, 212 Mass. 57, and the cases collected in each of these opinions, where either an innocuous matter has been made utterly dependent upon the action of a public board or a possibly harmful business upon that of a subordinate officer, or the ordinance has been broader than the statute authorized. /Here the public board itself is empowered to deal with a subject which may endanger the safety of persons and property, and the ordinance does not exceed the scope of the statute.

The petitioner duly presented a petition to the board of aldermen, which passed an order granting him authority to erect the garage. The mayor vetoed the order, giving as his reason “not because it appears to be necessary ... for the prevention of fire and the preservation of life,” but because he thought some policy respecting garages in residential districts should be adopted by the city and because he was opposed to their establishment in residential districts contrary to the sentiment of abutting property owners: It is contended that a veto for such reasons is a nullity and that the order of the board, of aldermen is effective notwithstanding the attempted veto. This contention cannot be sustained. The mayor stated his objections in writing at some length as required by St. 1907, c. 565, § 3. Hence the difficulty which was held fatal in Mayor of Lowell v. Dadman, 191 Mass. 370, does not exist. There is no requirement that his objections shall be based upon any defect in law in the order, nor that they shall be such as may commend themselves to any outside tribunal. The object of the statute is that the mayor shall state his reasons in order that they may be weighed by the body passing the order, upon whom alone rests the duty of deciding whether they are sound. The objections urged by the mayor in the present case are riot whimsical or absurd, but obviously grounded upon what seemed to him a wise municipal policy. They were such as might rightly be considered by the board of aldermen, and their failure to pass the order, the mayor’s objections to the contrary notwithstanding, rendered the order nugatory.

Petition dismissed without costs.