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DISTRICT OF COLUMBIA COURT OF APPEALS

No. 18-AA-730

PAL DC STORAGE, LLC, PETITIONER,

V.

DISTRICT OF COLUMBIA

ZONING COMMISSION, RESPONDENT.

Petition for Review of an Order of the

District of Columbia Zoning Commission

(ZC No. 17-17)

(Argued May 7, 2019 Decided June 18, 2020) 

Meridith Moldenhauer, with whom Samantha Mazo, and Eric J. DeBear

were on the brief, for petitioner.

Graham E. Phillips, Assistant Attorney General, with whom Richard S. 

Love, Senior Assistant Attorney General, Karl A. Racine, Attorney General for the 

District of Columbia, Loren L. AliKhan, Solicitor General, and Caroline S. Van 

Zile, Deputy Solicitor General, were on the brief, for respondent.

Before GLICKMAN and THOMPSON, Associate Judges, and GREENE,

* Senior 

Judge. 

 

*

 Sitting by designation pursuant to D.C. Code § 11-707(a) (2012 Repl.).
2

GREENE, Senior Judge: Petitioner PAL DC Storage, LLC (PAL) argues in 

this zoning map amendment case that the Zoning Commission erred in conducting 

its proceedings as “rulemaking” rather than “contested-case” proceedings in 

downzoning a parcel of property. Because we conclude that (1) the Commission

properly processed this case as a rulemaking case, and (2) this court does not have 

direct review jurisdiction over rulemaking cases, we dismiss the petition.

I. Procedural History 

A. Background

In August 2017, PAL obtained a building permit from the District’s 

Department of Consumer and Regulatory Affairs for the construction of a storage 

facility at 1401 22nd Street S.E. in the District of Columbia.1 On September 27, 

2017, Advisory Neighborhood Commission (ANC) 8A filed an application/petition 

 

1 On June 14, 2017, before PAL obtained its building permit, Fairlawn 

Citizens Association, Inc. sent a letter opposing the permit and the construction of 

a storage facility, pointing out that it would be located “within 50 yards of Orr 

Elementary School,” would “lead to an increase in commercial activity that would 

be to the detriment of the residential character of this part of the Fairlawn 

community,” and would lead to “added traffic” that would “cause a public safety 

issue as it clashes with the volumes of foot, bicycle, and vehicular traffic using 

Anacostia Park.” 
3

to amend the zoning map where the property is located. As part of ANC’s

downzoning request, ANC Commissioner Holly Muhammad explained that the 

property’s commercial zoning (C-M-1) was “obsolete and inconsistent with the 

current surrounding residential R-5-B zoning,” inconsistent with “future [land use] 

policies as outlined by the Office of Planning Far Northeast & Southeast Area 

Element guidelines,” and incompatible with “the surrounding neighborhood which 

consist[s] of housing, an elementary school and the gateway to Anacostia Park.” 

On September 27, 2017, District of Columbia Ward 8 Councilmember 

Trayon White sent a letter to the District Department of Transportation (DDOT) 

opposing the development of a storage facility on the property because it would 

“destroy our only recreational park area in Ward 8, . . . destroy the character of our 

residential neighborhood, increase safety concerns for our pedestrians and cyclers 

in the neighborhood, [and] cause an added safety hazard to our children en-route to 

and from Orr Elementary School and the Anacostia Park.”

On October 5, 2017, the Zoning Commission notified ANC 8A and 

Commissioner Muhammad that it accepted the petition for processing, and a week 

later the Office of Planning recommended “setting down” the proposed 
4

downzoning amendment from Production Distribution and Repair (PDR-1) to 

Residential Apartment-2 (RA-2),2finding that the amendment would be consistent 

with (1) the Future Land Use Map (FLUM) for the District of Columbia, which 

designates the property where PAL sought to build its storage facility as “Moderate 

Density Residential,” (2) the FLUM policies of “Conserving of Low Density 

Neighborhoods,” conserving “Row House Neighborhoods,” and linking 

neighborhoods of the Far Northeast and Southeast to the Anacostia River through 

trail, path, transit and road improvements, and (3) “Citywide Elements” policies 

that “prevent the encroachment of inappropriate commercial uses in residential 

areas,” “encourage the private sector to provide new housing to meet the needs of 

present and future District residents at locations consistent with District land use 

policies and objectives,” and “[s]trongly encourage the development of new 

housing on surplus, vacant and underutilized land in all parts of the city.” 

 

2

 PDR-1 zones permit moderate-density commercial and production 

distribution and repair activities employing a large workforce and requiring some 

heavy machinery, while RA-2 zones permit urban residential development and 

compatible institutional and semi-public buildings. Although a storage facility 

would be permitted in a PDR-1 zone, such a facility would constitute a 

nonconforming use in an RA-2 zone.
5

At its October 16, 2017 meeting, the Zoning Commission voted five to zero

to set down the case as a rulemaking case. In its subsequent notice of public 

hearing, which was initially to be held on February 15, 2018, the Commission 

indicated once again that this would be a rulemaking case. 

On February 2, 2018, the DDOT submitted its analysis of the proposed 

downzoning, noting that it did not object to the proposed amendment. In addition 

to highlighting the decreased maximum density available for development, the 

DDOT noted how fewer vehicle trips would occur if the lot was downzoned. 

On February 5, 2018, the Office of Planning3issued a hearing report again

recommending that the Zoning Commission approve the proposed downzoning,

because “[t]he proposed map amendment reflects the anticipated land use on the 

Comprehensive Plan Future Land Use Map.”

On February 6, 2018, PAL requested a postponement of the scheduled 

February 15, 2018 hearing, pointing out, inter alia, that ANC 8A would not be 

 

3

 The Office of Planning’s views “are statutorily entitled to ‘great weight.’ 

D.C. Code § 6-623.04 (2012 Repl.).” Barry Farm Tenants and Allies Ass’n v. 

District of Columbia Zoning Comm’n, 182 A.3d 1214, 1227 (D.C. 2018).
6

prejudiced by a postponement, given that the proposed restrictive zone controlled 

while the case was pending, and that the building permit for the site already was

vested.4 Thereafter, the hearing was postponed until March 19, 2018.

B. Contentions of the Parties

The substantive issues relating to the proposed map amendment were briefed 

by the parties before the Zoning Commission.

PAL opposed the map amendment, and the processing of ANC 8A’s petition 

as a rulemaking case, rather than a contested case. In asserting that the map 

 

4

 As an e-mail from the District Zoning Administrator to PAL’s counsel on 

February 7, 2019 confirmed, 

Pursuant to Subtitle A § 301.5(a), if a permit application for new 

construction is filed “on or before the date on which the Zoning 

Commission makes a decision to hold a hearing on the amendment” 

then . . . “processing of the application and completion of the work 

shall be governed by Subtitle A § 301.4,” [which] . . . states that “any 

construction authorized by a permit may be carried to completion 

pursuant to the provisions of this title in effect on the date that the 

permit is issued.” . . . The date for vesting under Subtitle A § 301.5(a) 

is the date on which the Building Permit was processed as “Project 

Dox Under Review.” For the subject Building Permit, that date is 

August 31, 2017, which occurred in advance of the October 16, 2017 

setdown hearing in the MAP Amendment.

(Emphasis in original.) 
7

amendment request should be denied, PAL argued, inter alia, that: (1) the 

proposed downzoning was inconsistent with the Comprehensive Plan and other 

adopted public policies, including the Plan’s specification that industrially zoned 

land within the District should be preserved; (2) a mixed-use district would allow 

the self-storage facility to flourish with the surrounding neighborhood; (3) even 

though the FLUM designates the property as moderate density residential, the 

industrial land study indicates that a mixed-use area not involving heavy industrial 

uses could be a benefit to the neighborhood; and (4) the downzoning would have 

adverse effects on PAL’s interests, hindering its ability to augment or renovate the 

facility or to rebuild it in the event of a fire, collapse, explosion, or act of God, thus 

adversely affecting the value of its investment. 

ANC 8A argued in support of the map amendment and in opposition to

PAL’s request that the case be heard as a contested case instead of a rulemaking 

proceeding. In addition to noting that the case did not present an issue of “illegal 

spot zoning,”

5 ANC 8A argued that the Commission was simply being asked to 

 

5 This court has defined “spot zoning” as “the ‘wrenching’ of a small parcel 

from its environment for the benefit of a single owner and without benefit to the 

public at large or the area affected, and we have adopted a two-pronged test: To 

constitute illegal spot zoning, the Commission's action (1) must pertain to a single 

parcel or a limited area -- ordinarily for the benefit of a particular property owner 

(continued...)
8

evaluate whether the downzoning proposal complied with a general policy, not to 

depart from such a policy. With respect to compliance with the Comprehensive 

Plan, ANC 8A adopted the Office of Planning’s analysis that supported the 

downzoning. ANC 8A also asserted that PAL’s focus on discrete provisions of the 

Comprehensive Plan was misguided, particularly because rezoning of some 

industrial lands is accepted in certain situations. With regard to any potential harm 

to PAL, ANC 8A asserted that not only was any claim of economic hardship 

purely speculative at this time, but that petitioner assumed the risk in making such 

an investment. Finally, ANC 8A argued that petitioner’s request for a contested 

case hearing was untimely and prejudicial. In ANC 8A’s view, PAL’s 

postponement request and its unproductive community meeting demonstrated 

PAL’s use of these tactics to prepare for a contested case instead of a genuine 

interest in productive discourse.

 

(...continued)

or specially interested part[y] -- and (2) must be inconsistent with the city's 

comprehensive plan, or if there is none, with the character and zoning of the 

surrounding area, or the purposes of zoning regulation, i.e., the public health, 

safety, and general welfare. Citizens Ass'n of Georgetown [v. District of Columbia

Zoning Comm’n, 402 A.2d 36,] at 39-40 [(D.C. 1979)]. Petitioners have the 

burden of showing that both prongs of the spot zoning test are met.” Daro Realty, 

Inc. v. District of Columbia Zoning Comm’n, 581 A.2d 295 at 299-300 (D.C. 

1990).
9

We express no view here regarding the merits of the arguments of the parties 

before the Zoning Commission with regard to the map amendment, or the merits of 

the Commission’s decision to downzone the property. The only issue before us is 

whether the Commission permissibly treated the matter before it as a rulemaking 

proceeding; finding that it did, we are without jurisdiction to resolve other issues 

raised by PAL before us.

C. The Zoning Commission Hearing

The Zoning Commission heard the case on March 19, 2018. The 

Commission received letters of support and opposition from community members. 

In explaining why the case was being conducted as a rulemaking instead of a 

contested case, Chairman Anthony Hood said, “[t]his is not about any particular 

case or project. This is a policy [question] whether or not the FLUM, the future 

land use map, is inconsistent with the zoning.” Chairman Hood also stated, 

“[w]e’re here to talk about a policy question. We’re here to talk about a rezoning, 

changing the zoning, not about any project, who wants to do what, who didn’t do 

what.”

ANC 8A zoning consultant Laura Richards, ANC Commissioner 

Muhammad, and other interested residents provided testimony in support of the 

downzoning. Commissioner Muhammad asserted that “Allowing for the PDR-1 
10

zone to remain in this area will permit the encroachment of an inappropriate 

commercial use in residential areas. The PDR-1 zoning allows development that 

will destroy the walkability of the community adjacent to a national park and 

causes a pedestrian safety hazard.” A commissioner from a nearby single member 

district, who referenced PAL’s plan for the property, testified:

[W]e have a homeless population that has been becoming 

more popular in the Anacostia park area. And I also 

know that storage facilities like this are often used as 

homes for homeless people. . . . I support the rezoning, 

because I don’t want to see that population continue to 

grow and the kids decide to make those shelter[s] their 

home. 

A few residents testifying in support of the downzoning also referenced the 

proposed storage facility. One local homeowner said, “the storage unit . . . the 

project would be a huge eyesore. . . . this particular situation could bring crime, 

rodents, abandonment, squatters, lights blaring all night, movements all type of 

hours.” Another Fairlawn community resident said, “Two years ago we said ‘no’ 

to the storage facility. We have not changed our minds. We still say no.” 

PAL’s founder and managing partner began his testimony by informing the 

Commission, “I want to provide some background and my company’s plans for the 

property including an explanation as to the benefits a self-storage facility would 

have for the community and the negative impact the proposed downzoning could 
11

have on Palatine and its investors.” Chairman Hood interrupted this testimony, 

stating “we’re not talking about a project so if you can leave out self-storage, no 

storage, whatever storage. Let’s talk about the map amendment. Let’s talk about 

what’s being proposed to rezone.” PAL’s founder responded, “[s]elf-storage is a 

PDR use. It’s an allowable use in the PDR zone. The Zoning Commission should 

not evaluate this map amendment in a vacuum. . . . A map amendment would not 

be consistent with the Comp[prehensive] Plan policy because it will create a nonconforming use.” When a member of PAL’s investment team spoke about the 

benefits of a self-storage facility, Chairman Hood reiterated the Commission’s 

position: “This is a rulemaking. This is not a contested case. . . . If you want to 

talk about a self-storage, no storage, whatever, go right ahead because I can 

guarantee you . . . we’re going to stick with the issue.” Following comments by 

the Commission’s Vice Chair and the other Commissioners, the Commission 

unanimously voted to approve the downzoning, pending a 30-day comment period. 

D. Post-Hearing Developments

Following its public hearing on March 19, 2018, the Zoning Commission 

issued a notice of proposed rulemaking to amend the map from PDR-1 to RA-2. 

On March 20, 2018, the Commission referred the proposed action to the National 

Capital Planning Commission for review and comment. On April 26, 2018, 
12

petitioner PAL submitted its comments on the proposed rulemaking, and repeated 

its request for a contested case proceeding, given that the Zoning Commission 

would be making a decision about a single piece of property that PAL owns. PAL

also reiterated that the map amendment was inconsistent with the Comprehensive 

Plan, particularly the provisions that encourage the maintenance of industrially 

zoned property. 

On May 14, 2018, the Zoning Commission took final action to approve the 

map amendment from PDR-1 to RA-2, concluding that conducting the case as a 

rulemaking was proper because the facts were legislative in nature bearing on 

general facts, not limited to the details of a given project. The Commission also 

determined that the map amendment was consistent with the District’s 

Comprehensive Plan, especially in light of the FLUM designation of the property 

as moderate-density residential use. The order became final on June 15, 2018, and 

this petition for review followed. 

II. Analysis

A. Contentions on Appeal

PAL argues on appeal that this court has jurisdiction to review the Zoning 

Commission’s decision with respect to the merits of the downzoning here because 

the downzoning was a contested case under the District of Columbia 
13

Administrative Procedure Act (“DCAPA”). In support of this argument, PAL 

contends that the two-pronged test set out in Donnelly Associates v. District of 

Columbia Historic Preservation Review Bd., 520 A.2d 270 (D.C. 1987), used for 

determining whether this Court has contested case jurisdiction, is satisfied since

“(1) an administrative hearing [was] either statutorily or constitutionally compelled 

and (2) such a hearing is adjudicatory, as opposed to legislative, in nature.” Brief 

for Appellant at 20 (emphasis added).

With regard to the first prong, PAL argues that the hearing required by D.C. 

Code § 6-641.03, and subsequently held by the Commission, satisfied the 

statutorily-compelled proceeding requirement of the first prong. It further

contends that the matter had contested case status by virtue of the Zoning 

Regulations. While the Commission does not contend that the first prong was not 

met, the Commission asserts that the matter did not have contested case status by 

virtue of the Zoning Regulations and that PAL, in making this argument, relied on

a “scrivener’s error.” We believe the Commission is correct in this regard, and that 

a hearing is compelled by statute only in a contested case.6 

 

6

In its brief, the Commission, argued that

(continued...)
14

With regard to the second prong, PAL argues that the proceeding was 

adjudicative in nature because (1) the ANC, in petitioning for the downzoning, did 

so with the intent of impeding the project, and (2) the Commission was required to 

weigh information and make a decision directed at the rights of PAL. The 

Commission argues, to the contrary, that it properly treated the downzoning as a 

rulemaking because the proceeding was legislative in nature. In addition, the 

Commission contends that (1) the ANC’s alleged intent in filing the petition for 

downzoning is of no consequence, and (2) the downzoning of a single property 

does not grant the matter contested case status.

 

(...continued)

a trial-type hearing is required only in contested cases. Compare 11-Z 

DCMR § 408 with id. § 506. PAL contends otherwise; relying on an 

obvious scrivener’s error, it argues that 11-Z DCMR § 100.6, which 

confirms the Commission’s authority to hear rule-making cases, “itself 

empowers the Commission to process a rulemaking case under the 

DCAPA contested case procedures.” . . . It is true that 11-Z DCMR § 

100.6 provides that the Commission “is empowered to hear rule-making 

cases, as defined in D.C. Official Code § 2-509(7),” but D.C. Code § 2-

509 – which deals with contested cases – has no subsection (7). Instead, 

11-Z DCMR § 100.6 obviously refers to the definitions section of the 

DCAPA, D.C. Code 2-502, which does have a subsection (7) and does 

define “the term rulemaking.” A single broken cross-reference in a 

regulation cannot reasonably be read to rewrite the many other legal 

provisions governing rulemakings. Read reasonably, a hearing is 

compelled by statute only if it is a contested case. See Brief for 

Appellee, 18-19. 
15

PAL’s second argument – that on the merits the Commission abused its 

discretion in its decision to downzone the property – is an issue beyond the 

jurisdiction of this court to consider if we conclude that the Commission’s decision 

to conduct this case as a rulemaking rather than an adjudicatory proceeding was 

proper. Schneider v. District of Columbia Zoning Comm’n, 383 A.2d 324, 329-30 

(D.C. 1978).

B. Jurisdiction

“Every court has judicial power to decide all questions, whether of law or 

fact, the decision of which is necessary to determine the question of jurisdiction 

. . . . [J]urisdictional and merits issues, on occasion, may turn out to be 

coextensive.” Timus v. District of Columbia Dep’t of Human Rights, 633 A.2d 

751, 758 (D.C. 1993) (citations and internal quotation marks omitted). This court

has direct review jurisdiction over contested cases decided by the Zoning 

Commission, but we do not have such review authority over rulemaking cases the 

Commission decides. Citizens Ass’n of Georgetown, Inc. v. Zoning Comm’n of 

District of Columbia, 392 A.2d 1027, 1029 n.3 (D.C. 1978); Schneider v. District 

of Columbia Zoning Comm’n, 383 A.2d at 325; Citizens Ass’n of Georgetown, Inc. 

v. Washington, 291 A.2d 699, 703 (D.C. 1972).
16

We define a contested case as “a proceeding before the Mayor or any agency 

in which the legal rights, duties, or privileges of specific parties are required by 

any law (other than this subchapter), or by constitutional right to be determined 

after a hearing before the Mayor or before an agency.” D.C. Code § 2-502(8)

(2016 Repl.) (emphasis added).

Because we conclude that the Zoning Commission’s decision to conduct this 

case as a rulemaking case was proper, we lack jurisdiction to further review the 

matter. Schneider v. District of Columbia Zoning Comm’n, 383 A.2d at 329-30.7 

C. The Essentially Legislative Purpose of the Commission Hearing

“Where a statute has required some kind of hearing, we have gone on to 

determine whether or not the proceeding involved was adjudicatory or legislative 

in nature . . . which we have further refined into a question of whether the 

proceeding at issue involved adjudicative or legislative facts.” Donnelly

Associates, Ltd. v. District of Columbia Historic Preservation Review Bd., 520 

A.2d at 277-78 (holding that proceeding was not a contested case, and 

 

7 PAL conceded at oral argument that if we concluded that this matter was 

properly conducted as a rulemaking case, we would not have jurisdiction to review 

the underlying merits.
17

consequently this court did not have jurisdiction). Professor Kenneth Davis stated 

the oft-cited8explanation for differentiating between adjudicative and legislative 

facts: 

Adjudicative facts are the facts about the parties and their 

activities, businesses, and properties. Adjudicative facts 

usually answer the questions of who did what, where, 

when, how, why, with what motive or intent; adjudicative 

facts are roughly the kind of facts that go to a jury in a 

jury case. Legislative facts do not usually concern the 

immediate parties but are general facts which help the 

tribunal decide questions of law and policy and 

discretion. 

Dupont Circle Citizen’s Ass’n v. District of Columbia Zoning Comm’n, 343 A.2d 

296, 300 (D.C. 1975) (deciding that because the proceeding involved legislative

facts, we lacked jurisdiction to review the proceedings) (emphasis added). 

The fact that a rezoning involves a proposed project on a single piece of land 

is not dispositive in characterizing the type of hearing conducted by the Zoning 

 

8 See, e.g., Euclid St., LLC v. District of Columbia Water and Sewer Auth., 

41 A.3d 453, 458 (D.C. 2012); Chevy Chase Citizens Ass’n v. District of Columbia 

Council, 327 A.2d 310, 314 (D.C. 1974); Hotel Ass’n of Washington, D.C. v. 

District of Columbia Minimum Wage and Indus. Safety Bd., 318 A.2d 294, 306 

(D.C. 1974); Citizens Ass’n of Georgetown, Inc. v. Washington, supra, 291 A.2d at 

704 n.14; Capitol Hill Restoration Soc. v. Zoning Comm’n, 287 A.2d 101, 105 n.16 

(D.C. 1972).
18

Commission. “Once a single parcel of land is rezoned it necessarily affects the 

surrounding area since a use previously prohibited in an area is now allowed. Thus 

the decision, while affecting the individual landowner who proposes [or opposes] 

the amendment, is basically one of policy which takes into consideration the needs 

of the area as a whole.” W. C. & A. N. Miller Dev. Co. v. District of Columbia 

Zoning Comm’n, 340 A.2d 420, 424 (D.C. 1975) (emphasis added).

The Commission, in setting down this matter for a proceeding, unanimously 

voted to set the case down as a rulemaking case. In its subsequent notice of public 

hearing, the Commission indicated once again that this would be a rulemaking case 

and advised that the hearing “w[ould] be conducted in accordance with the 

rulemaking case provisions of the Zoning Commission’s Rules of Practice and 

Procedure.” 9

Subsequently, the content of the proceeding primarily involved evidence and 

issues legislative in nature. The Chairman emphasized at the outset of the hearing 

that the proceeding “was not about any particular case or project,” but involved a 

policy question of “whether or not the FLUM . . . is inconsistent with the 

 

9 See Part I.A., supra.
19

zoning.”10 Numerous persons who wrote to, or appeared before, the Commission 

expressed concerns that downzoning was essential to preserve the “character of the 

residential neighborhood” in which petitioner’s parcel was located, and to avoid 

“an added safety hazard to . . . children en-route to and from Orr Elementary 

School and Anacostia Park.” The Office of Planning testified that the FLUM had 

identified the property parcel as “moderate density residential” since 1985. The 

Office of Planning accordingly testified that the downzoning would be consistent 

with the FLUM, and opined, in a report admitted as an exhibit, that the 

downzoning would also be consistent with FLUM policies of conserving low 

density neighborhoods, and “Citywide Elements” policies to prevent 

“encroachment of inappropriate commercial uses in residential areas.”

Moreover, the procedures implemented throughout the proceeding were 

consistent with the procedures required in a rulemaking hearing. See 11-Z DCMR 

§ 506. The legislative nature of the proceeding is not undermined by ANC’s 

alleged intent to initiate the downzoning with the purpose of preventing the selfstorage facility from being built at the property. ANC’s impetus for filing the 

petition for a map amendment “is of no consequence in determining whether a 

 

10 See Part I.C., supra.
20

particular proceeding constitutes a ‘contested case.’” Schneider v. District of 

Columbia Zoning Comm’n, 383 A.2d at 329. “[T]he DCAPA’s provision regarding 

public participation in rulemaking, [D.C. Code § 2-505(b)], specifically allows that 

‘[a]ny interested person may petition the Mayor or an independent agency, 

requesting the promulgation, amendment or repeal of any rule.’” Id. at 329 n.17. 

“Given this provision, it would be incongruous to conclude that whenever a person 

exercises this statutory right a ‘rulemaking’ proceeding becomes subject to the 

‘contested-case’ requirement of the DCAPA.” Id.

Nor is the fact that a rezoning involves a proposed project on a single piece 

of land dispositive in characterizing the type of hearing conducted by the 

Commission. The Commission’s rezoning authority is not solely limited to the 

rezoning of multiple properties. Instead, the Commission may rezone a single 

property as long as doing so does not constitute spot zoning. See note 5, supra.

Thus, the Commission proceeding was essentially “a quasi-legislative 

hearing conducted for the purpose of obtaining facts and information, and views of 

the public pertinent to the resolution of a policy decision.” W. C. & A. N. Miller 

Dev. Co. v. District of Columbia Zoning Comm’n, 340 A.2d at 424 (quoting 

Citizens Ass’n of Georgetown, Inc. v. Washington, 291 A.2d at 705).
21

We are persuaded on the record before us that the Commission made a 

determination that was essentially one of “law and policy and discretion” that 

“[took] into consideration the needs of the area as a whole.” Id. The Commission 

unanimously determined that the proposed downsizing should be set down as a 

rulemaking case. Numerous persons who wrote to, or appeared before, the 

Commission expressed concerns that downzoning was essential to preserve the 

“character of the residential neighborhood” in which petitioner’s parcel was 

located, and to avoid “an added safety hazard to . . . children en route to and from 

Orr Elementary School and Anacostia Park.” The Office of Planning opined that 

the downzoning would be consistent with the Future Land Use Map (FLUM) for 

the District of Columbia, FLUM policies of conserving low density 

neighborhoods, and “Citywide Elements” policies to prevent “encroachment of 

inappropriate commercial uses in residential areas.” And the Commission 

Chairman emphasized at the outset of the hearing that the proceeding “was not 

about any particular case or project,” but involved a policy question of “whether or 

not the FLUM . . . is inconsistent with the zoning.” See parts I.A and I.B, supra.

Because we conclude that the proceeding before the Zoning Commission in 

this matter was a legislative hearing and not a contested case, we do not address 
22

the merits of the Zoning Commission’s decision; rather, we dismiss the petition for 

want of jurisdiction to review the Commission’s decision. 

So ordered.