Case Name: The State of Washington, et al, Respondents, v. The City of Seattle, et al, Appellants
Court: Washington Supreme Court
Jurisdiction: Washington
Decision Date: 1980-08-14
Citations: 94 Wash. 2d 162
Docket Number: No. 45866
Parties: The State of Washington, et al, Respondents, v. The City of Seattle, et al, Appellants.
Judges: 
Reporter: Washington Reports
Volume: 94
Pages: 162–170

Head Matter:
[No. 45866.
En Banc.
August 14, 1980.]
The State of Washington, et al, Respondents, v. The City of Seattle, et al, Appellants.
Douglas N. Jewett, City Attorney, and Ellen D. Peterson, Assistant, for appellants.
Slade Gorton, Attorney General, and James B. Wilson, Senior Assistant, for respondents.
Paul Silver and Barbara Hoffman on behalf of Washington Trust for Historic Preservation and Allied Arts of Seattle, amici curiae.

Opinion:
Utter, C.J.
The University of Washington Board of Regents sought declaratory and injunctive relief against the City of Seattle to prevent Seattle's Landmarks Preservation Board from nominating or designating any buildings as landmarks within the University's Metropolitan Tract. On cross motions for summary judgment, the trial judge ruled in favor of the University and on appeal, we granted direct review.
The legal issue dispositive of the case is whether the city ordinance conflicts with a general state law and is thus unconstitutional as applied under Const, art. 11, § 11. We hold that it is and affirm the trial court.
The City of Seattle enacted a Landmarks Preservation Ordinance, No. 106348 (1977), which created a Landmarks Preservation Board (Board). It also established procedures for nominating, designating, and preserving both areas of the city and individual structures as landmarks. The procedure established is that after a site or structure is nominated for preservation as a landmark, the Board reviews the proposal to determine if specified criteria are met. If the Board approves the nomination, it then negotiates with the owner as to controls to be placed on the site or structure to preserve the significant features. The parties also negotiate application of any economic incentives such as tax relief, or grants-in-aid which may be available. If agreement on controls cannot be reached, a hearing examiner makes a recommendation, which is appealable to the city council. Finally, the city council designates a structure or site as a landmark, specifying the controls imposed. Once nominated, and pending designation, written authorization must be obtained from the Board prior to any significant change.
The University's Metropolitan Tract (Tract) is the original 10-acre parcel of land endowed to Washington Territory to establish a university, and now lies in the center of downtown Seattle. This Tract is no longer used directly for educational purposes, but is leased by the University to private parties. Part of the Tract is leased to the Olympic Hotel Company, and the remaining portion to University Properties, Inc. Both lease agreements provide that the University retains final authority as to major alterations.
On April 5, 1978, the Board approved the nomination of portions of buildings on the Tract as landmarks. The Board nominated the exterior of the Skinner Building, and the interior surfaces and fixtures of the lobby and auditorium of the Fifth Avenue Theater, which is located within the Skinner Building. Under the city ordinance, nomination triggered the requirement that the University obtain Board approval prior to any significant change.
Historical value of the nominated structures is conceded, and counsel for the University stated in oral argument that it has no present demolition plans. However, decisions as to whether to preserve, alter, or destroy Tract buildings are claimed by the University to rest with the Board of Regents, and it urges that the City has no power to regulate the Tract.
Power to enact landmark preservation legislation is derived by the City from the delegation of police power found in Const, art. 11, § 11. Cf. Ithaca v. County of Tompkins, 77 Misc. 2d 882, 355 N.Y.S.2d 275 (1974) (city acts under historic preservation enabling act). Article 11, section 11 grants to cities the power to make and enforce within its limits all such local police, sanitary and other regulations as are not in conflict with general laws.
Municipal police power is as extensive as that of the legislature, so long as the subject matter is local and the regulation does not conflict with general laws. E.g., Petstel, Inc. v. King County, 77 Wn.2d 144, 159, 459 P.2d 937 (1969). The scope of police power is broad, encompassing all those measures which bear a reasonable and substantial relation to promotion of the general welfare of the people. See, e.g., Markham Advertising Co. v. State, 73 Wn.2d 405, 439 P.2d 248 (1968). While the University does not contest the City's general power to preserve landmarks, it does contend that the City's power does not extend to structures owned by the State.
The legislature has given the Board of Regents "full control of the university and its property of various kinds." RCW 28B.20.130. The Board of Regents is specifically empowered to lease the Tract, RCW 28B.20.382, and upon the expiration of the leasehold or acquisition by the University, it has the power
(i) to construct new buildings on, or
(ii) to raze, reconstruct, alter, remodel or add to existing buildings on, or
(iii) to otherwise improve, the university tract,. . .
(Italics ours.) RCW 28B.20.392(2)(b). These laws governing the Tract are general laws. They apply to all things within the class — the Tract properties — and the classification of Tract properties as distinct from other properties is appropriate. See Aetna Life Ins. Co. v. Washington Life & Disability Ins. Guar. Ass'n, 83 Wn.2d 523, 539, 520 P.2d 162 (1974).
Const, art. 11, § 11 requires that when a state statute and municipal regulation on the same subject cannot be harmonized, the municipal regulation must yield. E.g., Spokane v. J-R Distribs., Inc., 90 Wn.2d 722, 730, 585 P.2d 784 (1978). The city's landmarks ordinance as applied cannot coexist with RCW 28B.20.392(2)(b)(ii). The effect of applying the landmarks ordinance to the Tract would be to forbid alterations of the nominated properties without Board approval and subject designated structures to controls imposed by the city council, while RCW 28B.20.392(2)(b)(ii) expressly permits the Board of Regents to alter and even demolish Tract buildings. See Bellingham v. Schampera, 57 Wn.2d 106, 111, 356 P.2d 292, 92 A.L.R.2d 192 (1960). The legislature has clearly shown its intent that the decision-making power as to preservation or destruction of Tract buildings rests with the Board of Regents. See Lend v. Seattle, 63 Wn.2d 664, 388 P.2d 926 (1964). See also South Hill Sewer Dist. v. Pierce County, 22 Wn. App. 738, 591 P.2d 877 (1979). Edmonds School Dist. 15 v. Mountlake Terrace, 77 Wn.2d 609, 465 P.2d 177 (1970).
The University contends that a blanket rule of immunity applies to exempt state property from municipal regulations unless the legislature specifically provides otherwise. See Kentucky Inst. for Blind v. Louisville, 123 Ky. 767, 97 S.W. 402 (1906); 2 R. Anderson, American Law of Zoning § 12.06 (2d ed. 1968). Since the University is a state agency and no statute expressly provides that the Tract is subject to local laws, the University argues that the Tract is immune from the city's landmarks ordinance. .
We decline to apply a rule of immunity, and find it unnecessary to express an opinion on the validity of such a rule. See Brown v. Kansas Forestry, Fish & Game Comm'n, 2 Kan. App. 2d 102, 576 P.2d 230 (1978); Rutgers Univ. v. Piluso, 60 N.J. 142, 286 A.2d 697 (1972); 8 E. McQuillin, Municipal Corporations § 25.15 (3d rev. ed. 1976); Note, Governmental Immunity from Local Zoning Ordinances, 84 Harv. L. Rev. 869 (1971).
The City of Seattle has no power to nominate or designate any buildings as landmarks within the University's Metropolitan Tract, and we affirm the trial court.
Stafford, Wright, Brachtenbach, Horowitz, Hicks, and Williams, JJ., and Cochran, J. Pro Tern., concur.