Originally posted by @Gerald Beck:
Has anyone heard of the board of appeals in a city going against the zoning law or allowing special permission for a particular use? Is this common?
The answer is YES, it's called granting a variance, and is common but hard to get because it often gets into a political mess. Where I am, a two-family residential zone, building a new church require a variance.
My wife majored in urban planning, and worked for a city planning department, which in most political jurisdictions include zoning. Issues that go into these decisions includes whether the area has adequate power grid, enough water and sewer services, parking, traffic issues, capacity of schools. These issues are often bought up in opposition to granting zoning variances.
I had run into these problems and employed the use of "expeditors" who are often architects by trade, but not a requirement, and would help if they know local zoning officials who has their own unwritten rules unavailable to the public.
It was many years that I used them, but they charged $150 to do a walk through back then and go into building codes as well as zoning issues. I had a legal duplex with an illegal basement third unit. Because the building codes are different for a triplex to a duplex, requiring sprinklers, fire escapes, concrete enclosed furnace rooms, etc. legally converting the building to a triplex is a no-no financially.
The bigger issue for me was an order to demolish the unit completely which I used for a business office and storage. They would require me to demolish, file plans, get it approved, and build it again from scratch as a business office, and 20 years ago would cost me in excess of $35K. Why? It's to punish landlords from building illegal units and profiting from them.
My expeditor met with the assistant building commissioner, a friend of his, and had the order reversed. The reason given, I bought the building at an auction, never rented it out, therefore never profited, and saved the building from falling into disrepair, thus benefiting the community. A decision was reached where I only had to file plans for what I have, take out the bathtub and kitchen appliances, which cost me $6K including expeditor fees and drafting plans. It was done with my expeditor taking his friend to lunch.
Find out what the "as of right zoning" for the property and if the former zoning can be grandfathered. A neighbor of mine, who had a duplex with the illegal addition cited, and his legal 2BR/1ba unit connected to the illegal 1BR/1ba unit, combined, so his duplex now consists of a 3BR/2Ba unit, in addition to original 3BR/2ba owner unit and doing very well.
In your case, I would try to find an expeditor familiar with local zoning, building codes, as well as the politics of the area. There should be a path through the confusing zoning, building codes, and political process to get it done. This process goes beyond a land-use person. Google for an "expeditor" in your area.