Neighbors win appeal; ZBA overturns approval of senior residence

Norwalk Planning and Zoning Director Steven Kleppin listens to West Norwalk resident Mark Lorusso during Thursday’s Zoning Board of Appeals hearing in City Hall.


Updated, July 14: Ferone can appeal. Updated, 7:11 a.m.: Copy edits, new headline

NORWALK, Conn. — The Zoning Board of Appeals Thursday overturned a controversial permit for a senior living facility in West Norwalk.

Planning and Zoning Director Steve Kleppin issued a permit earlier this year for a single-family residence at 7 Forest Hill Road to house up to five unrelated senior citizens who would each rent space and share a common kitchen and other facilities.  Two caregivers would assist residents during the day and one at night.

Neighbors Mark and Patricia Lorusso appealed, arguing that the proposal was congregate housing, which, like a boarding house, is not permitted in a Triple A residential neighborhood.

“The way I read the regulations for a Triple A zone in Norwalk is it does not intend for a commercial business to be allowed to operate,” Lorusso said at the hearing. “If you look at the intent of this business, published by the owner and by reference seeing how they are advertising, I don’t see how it can be described as anything but a commercial business.”

“They are intending to run a commercial enterprise under the guise of a single-family dwelling,” Lorusso said.

“I think what we have here is an opportunity for a property owner to get approval based on what I think is probably a very broad based and perhaps ambiguous or outdated definition,” Lorusso said, later asserting that approving the home might lead to the “degradation or deterioration of what many think, including me, is a triple a zone in Norwalk.”

“I think this was one of those decisions that on the surface we would rather have been on the neighbors’ side and said, ‘Yeah, we don’t think this is right,’ but unfortunately we have to abide by the wording in the regulations,” Kleppin told board members, defending his decision to issue the permit. “In this case, the definition of family to me trumps pretty much everything else that’s in the regulations, in terms of rooming house, boarding house, whatsoever.”

Gary Ferone, left, talks to the Norwalk Zoning Board of Appeals on Thursday as Mark Lorusso, right, listens.

Gary Ferone of Fairfield Family Care LLC also defended the facility, pointing out that he doesn’t own the home but would run it.

“The law clearly states that the home itself cannot provide any care. The homeowner cannot provide any care, that’s against the law. But there is nothing to say in the law you can’t purchase a home… and rent it out. This is not a commercial business that is being run,” he said.

“I don’t think the regulations prohibit commercial uses in residential zones,” Kleppin said. “… It doesn’t prohibit people from renting out their house.”

In his presentation to the ZBA, Lorusso read the Zoning regulation’s definition of “family:”

“One (1) or more persons occupying a single dwelling unit, provided that unless all members are related by blood or marriage (or adoption), no such family shall contain more than five (5) persons, but further provided that domestic servants employed on the premises may be housed on the premises without being counted as a ‘family’ or families.”

The regulation dates to 1974, when the term “assisted living didn’t barely exist,” he said.

“They are not providing medical care. It is a fine line and a loophole, but they are not providing medical care,” Kleppin said to the ZBA, explaining that it doesn’t meet the definition of a nursing home.

“This arrangement has been reviewed and accepted by other municipalities as a viable and acceptable means of providing living options to seniors. Three such homes currently exist in Stamford,” Attorney Joseph Capalbo wrote to Assistant Planning and Zoning Director Mike Wrinn in February in support of the proposal.

Lorusso argued that the Stamford situation was different – the permit there had been granted and the business up and running before neighbors became aware, so it never went before the Stamford ZBA, he said.

“They were powerless to do anything but go along with what the building department had permitted because they didn’t have the power to overturn it,” Lorusso said. “…I don’t believe it fits before you in the definition of family as intended.”

Planning and Zoning alerted the Forest Hill neighbors because it didn’t want a repeat of what happened on Quintard Avenue, Kleppin said, referring to the outcry over a federal prisoners halfway house.

“That in essence gave them the opportunity to appeal. Had we just issued the permit, they wouldn’t have had the opportunity to appeal,” Kleppin said.

Residents spoke at the hearing in support of the appeal.  “One of the principals of this town is to protect our residential communities. This is a real breakthrough if you permit something like this to take place in a residential community,” David Davidson said.

Harold Barnes said he and his wife bought their Forest Hill home in 1993 or 1996.

“I never thought that we would be facing this, especially on our road, Triple A area. Here we are talking about a boarding house or whatever you want to call it,” he said. “… The way I feel, I love Norwalk. But Norwalk let us down, or will let us down if this goes through.”

“I think we are all very sensitive,” Richard Koch said. “You know, West Norwalk is a very fragile place. It’s a very beautiful place and we love being here. But there are economic impacts. When you start to let a cancer get into a neighborhood you don’t know where it’s going to go and what else is going to happen to West Norwalk. If you open the door to this, how many other people are going to be adversely impacted?”

“I don’t understand… why if there is a close proximity to a couple of definitions in the regulations … why does family trump boarding house?” he asked. “If it meets the definitions, why does he default to ‘family’?”

Zoning Board of Appeals Chairman Joe Beggan, left, and ZBA member Lee Levey listen to testimony Thursday in City Hall.

ZBA member Lee Levey recounted the time when there was trouble on Comstock Hill Road when a home was rented to five former state prisoners.

ZBA Chairman Joe Beggan said he’d studied the website promoting the senior home, describing “around the clock care included but not limited to bathing,” which he said meant the caregivers would be cooking and providing other services.

He called it a nursing home.

There’s no medical care, Kleppin said.

“They have walked the fine line, working through the minefield very carefully, where they have five people and they have a common caretaker,” Kleppin said. “So again, they have manipulated the system a little bit and worked it into the definitions.”

ZBA’s unanimous decision in favor of Lorusso’s appeal hinged on the Zoning regulations’ definition of “family” and “boarding house.”

“I think you could squeak by on our stupid definition of a family but given that they are not independent, they are being serviced, I think it follows that it’s a boarding house,” Conroy said.

“I do not think that because they were able to convince people in Stamford that they are something other than that this can have any effect at all on what I think for Norwalk,” Beggan said, when the ZBA moved toward a vote.

“I turned around completely on this, based on this hearing. It’s a boarding house,” Levey said, with Beggan agreeing, “The use of the premises falls more in line with the definition of boarding house than it does a family of five living together.”

“I am the first to admit that, and no offense to anybody, I am not trying to offend, but the Norwalk Zoning regulations are, it’s not the best document in the world,” Planning and Zoning Director Steven Kleppin said. “It’s not the best set of regulations I have come across and it needs a top to bottom overhaul. I have been here about 18 months now. We have addressed a lot of things in that time along that front.”

The Zoning Commission “has put forward amendment to definition of family and definition of boarding house to try to make them align because there is a lot of conflict,” Kleppin said.  He also noted that the Commission is considering lowering the number of unrelated people who can live together as a family to three.

On Saturday, Norwalk Assistant Corporation Counsel Brian McCann said that Ferone can challenge the ZBA’s decision in court.

“I imagine he will, although I have not heard either way.  He has 15 days from publication of the decision,” McCann wrote.

NancyOnNorwalk called Ferone on Friday, but has not gotten a reply.


alan mcnichols July 13, 2018 at 7:18 am

Too bad Stamford did not have the guts to take a stand!
Congratulations to the Lorusso’s and Nancy on Norwalk for looking out for the best interests of homeowners!!
Very nice work.

Jackson R July 13, 2018 at 7:27 am

The takeaway here is the city’s legal department is in desperate need of talent. This should have been rejected day 1 and never have been permitted to go in front of the ZBA. Please take note Mr. mayor.

alan mcnichols July 13, 2018 at 7:58 am

The operation, run by Mr.Ferone, works below the radar and in the dark of night.
NoN shed light on this and residents got a fair ruling.
Rejected on Day One? Yes, but the reality is that it is very difficult to expose situations like this until after the fact. Be happy that neighbors and NoN made folks aware. Stamford let it happen with nothing but a whimper.
GREAT work by the Lorusso’s, NoN and the ZBA!!

Another Opinion July 13, 2018 at 9:17 am

Agree – Nancy is a tremendous asset to the community and one of the most talented reporters. I thank her for reporting on stories like. Contributing to the publication is an investment in the community – readers take note.

Isabelle Hargrove July 13, 2018 at 9:57 am

“I am the first to admit that, and no offense to anybody, I am not trying to offend, but the Norwalk Zoning regulations are, it’s not the best document in the world,” Planning and Zoning Director Steven Kleppin said. “It’s not the best set of regulations I have come across and it needs a top to bottom overhaul.”

What is Mayor Rilling waiting for? How many neighborhoods and families have to go through the pain of defending themselves because our archaic code doesn’t protect them? How many lawsuits must the city defend against and spend precious $ on before Mayor Rilling wakes up?

Our taxes keep rising, while our property values stagnate or actually decrease. The city’s grand list remains close to stagnant, despite many new developments. The city’s budget keeps growing without any meaningful betterment of services. Our school system struggles to implement its much needed strategic plan and move kids out of pest-infected, makeshift classrooms because it lacks proper funding.

We need to act. Modernize the code and our charter. Enough with the excuses and the finger pointing between the common council and the mayor’s office. One party is completely in charge, you would think something meaningful could be accomplished. Unfortunately, it would take the right priorities and a vision. Both seem lacking.

Bob Welsh July 13, 2018 at 10:16 am

@Another Opinion


Your tax-deductible monthly donation to NoN is an investment in your community.

Please click the “Monthly” tab in the “Donate Today!” box in the right hand column.

Consider the value of your home, your schools, and your quality of life, and then enter whatever amount you can afford to protect them.

Please do it now – it’s so important!

Wineshine July 13, 2018 at 1:22 pm

It should not have had to come this far, but finally, a decision in favor of the taxpaying citizens of Norwalk.

Patrick Cooper July 13, 2018 at 1:43 pm

Bravo! @Isabelle Hargrove – you caught the same passage I did – Mr. Kleppin’s reluctant confession that present day Norwalk has what can aptly be described as WTF Zoning regulations.

5 years and counting – still waiting on this Mayor to take a single step in the direction of his initial campaign promise – to clean-up planning and zoning. That includes the RDA. To all of his ardent supporters – I ask for a single scrap of evidence that he has lifted so much as a finger to address this cluster-mush.

As for the cheers – really? Has it come to this? We applaud when they finally do the right thing? Failure has become so commonplace, that when our blind squirrel finds a nut – we put out a press release. This victory, important indeed – won’t stop the predatory practices – it’s just another loophole closed. What a concept that we should proactively fix them before we must reflexively react – to another Firetree, car wash, etc.

alan mcnichols July 13, 2018 at 4:14 pm

I generated a check and I do not even live in Norwalk!! The donation button, while easy,makes a bit of money for the credit card company.
Besides…it is fun to get a check in the mail!
A free press is not exactly free,folks!

Nancy on Norwalk
PO BOX 525
NORWALK, CT. 06852

Keep up the great work Nancy!

Claire schoen July 13, 2018 at 6:25 pm

@alan mcnichols – on behalf of the Nancy on Norwalk board, thank you! We rely primarily on donations such as yours to ‘keep the lights on’ as they say. This story is a perfect example of why hyperlocal journalism is so critical – Nancy continues to shine a light on just what’s going on in city government and community affairs.

Cecila Andy July 14, 2018 at 7:28 am

While a victory, P&Z/Code Enforcement must monitor this address to ensure no backdoor operation is being conducted on the premise. My understanding is there has already been extensive modifications and significant investment to retrofit the home into a boarding house. Please stay vigilant on this one and make sure this abomination infecting the residential neighborhood is permanently shut down!

alan mcnichols July 14, 2018 at 9:09 am

Be aware that state law mandates that his business is supposed to be on public water and sewer. That was not the case in at least two of the Stamford properties but city officials gave him the nod anyway. One property stinks to high heaven at times…
This house is probably on a very old septic system so whatever he does with it should probably include a new septic system.

Rosemary July 14, 2018 at 3:01 pm

Hip Hip…Horray! Mr. Ferone has been stopped from opening another money maker for himself without regard to the proper care for the seniors residing under his “Sunshine Senior Homes”. His past track record speaks for itself. It is unbelievable and concerning how an individual with a criminal background owns and operates a business which cares for vulnerable seniors with dementia by unlicensed and untrained/inexperienced staff. His brochures on his home care agency and the homes are misleading. He should be held to false advertising among other inappropriate conduct.

Good work to all who followed through with this appeal! Now, Stamford should take notice of the three homes Mr. Ferone owns and operates there. Hopefully, the neighbors in Stamford will bring to light Mr. Ferone’s group homes there are inappropriate and not equipped to care for its residents who are in need of something much greater than his accomondations provides!

niz July 15, 2018 at 12:23 am

well zoning matters, correction? is anyone in town hall gonna speak up? or do citizens sue their city who uses their tax dollars to fight them.. . its so deplorable. ugh

Rosemary July 18, 2018 at 7:06 pm

Have FAITH “Niz”! The homework has been done and will continue to expose Gary Ferone’s business. The findings will continue to support that the Board’s recent decision was the best one and put this baby to rest.

Luke Thorman September 16, 2018 at 9:19 am

This action by the ZBA is blatant discrimination on the basis of age. The residents of Norwalk should be ashamed of themselves. What if an owner wanted to rend to five African American fraternity owners. Would you take the same discriminatory position? The ZBA’s action is clearly in violation of Federal and CT fair housing laws and should be disregarded by the responsible officials of the Town of Norfolk,

foresthillappeal November 6, 2018 at 4:15 pm

ZBA action is an interpretation of the zoning regulations for the city of Norwalk and appropriate in this case. There is nothing discriminatory at all about this appeal. It was and is based solely on the Norwalk zoning regulations and what is legal versus illegal under local Norwalk law. One can be passionate about following the rules and also have compassion towards the group of people these rules affect. I have a family member that had Alzheimer’s. She would have loved to have been in one of these homes instead of a large facility. I would of been less expensive also. That’s not the issue here. Simply stated the business just does not fit within the zoning regulations as currently in force for a AAA zone in Norwalk CT.

Rosemary January 7, 2019 at 8:00 pm

To the individual above who states her aunt with Alzheimer’s would have loved a home like that in question. As a healthcare professional, I can assure you that him would not have new appropriate fpr your aunt with such a serious illness. I did research. “Landlord”. He does not offer professions licensed staff qualified to care for such illnesses. Medications cannot be ask administered by patients do their disease. Mr Ferone states his model is like a bunch of people living together with a cook and housekeeper basicly. Sounds like a high risk situation for such ill elderly population.

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