Opinion ID: 1304167
Heading Depth: 1
Heading Rank: 2

Heading: The Intent of the Code's Drafters

Text: Mall further argues that its interpretation of the code should be adopted because it is the interpretation most consistent with the drafter's intent. Mall argues that the purpose of the code's FAR regulations is to control bulk and density within each given block. The density within block 19, in which Mall's property is located, would be no greater after construction of a 35-story building than the density permitted in all other square city blocks. The fact that block 19 is now intersected by Westlake Avenue, Mall argues, should not prevent it from being developed to the same density as all other city blocks. [4] We agree with Mall that it can be helpful to construe the code as a whole with regard to its drafter's intent. See Dando, at 603. As this court has often recognized, a literal reading must sometimes give way to the spirit or intent of the legislation to avoid unlikely, strained or absurd consequences which could [otherwise] result. Alderwood Water Dist. v. Pope & Talbot, Inc., 62 Wn.2d 319, 321, 382 P.2d 639 (1963); accord, State v. Keller, 98 Wn.2d 725, 728, 657 P.2d 1384 (1983). Yet, we cannot accept Mall's contention that the inclusion of streets within lot area is consistent with the code's demonstrated intent. To the contrary, the language throughout the code demonstrates a legislative intent to separate streets from lots. For instance, SMC 24.46.110(A), prescribing the rules for calculating FAR, specifically notes that commonly owned lots which are adjacent or across an abutting alley may be linked for purposes of computation. Alleys, like streets, are normally created as easements to which the abutting landowners possess an underlying fee. Burmeister v. Howard, supra . Naturally, if the landowner's fee interest in an abutting alley were automatically included within his lot area under the code, no special provision for alleys would be needed. SMC 24.46.110(A) makes no special provision for property abutting streets. The expression of one thing in a legislative enactment excludes others not expressed. Dominick v. Christensen, 87 Wn.2d 25, 26, 548 P.2d 541 (1976). Therefore, SMC 24.46.110(A) should be read to preclude the inclusion of street property in one's lot area. Reference to the code's residential zone regulations is also instructive. Certain provisions, meant to ease hardship to some lots, permit reference to abutting streets for computation of lot area, as follows: 24.62.050 Lot area modifications. In the case of a corner lot, or a lot a side lot line of which abuts upon a street, place, or alley, the width of the lot may be increased by one-half (1/2) the width of the abutting side street, place, or alley, for the purpose of computing the number of dwelling units permitted in multiple dwellings of more than three (3) units, provided that no lot width used in such computation shall exceed seventy-five feet (75') and that no lot area used in such computation shall exceed by more than twenty-five percent (25%) the actual net area of such lot. 24.62.170 Lot coverage  Exceptions for corner lots. In the case of a corner lot or a lot, a side lot line of which abuts upon a street, place, or alley, the width of the lot may be increased by one-half (1/2) the width of the abutting side street, place or alley for the purpose of computing the lot coverage only, provided that no lot area used in such computation shall exceed by more than twenty-five percent (25%) the actual net area of such lot. The inclusion of these exceptions in residential but not in other zones demonstrates a conscious legislative intent to exclude streets from lot area computation in the Metropolitan Business Zone. It further demonstrates a general legislative scheme to use street lot lines as a means of prescribing bulk and density limitations. The overriding purpose of the code's zoning scheme is to promote the public health, safety, and general welfare through means of bulk and density controls and certain use requirements. These controls are designed to ensure, among other things, the provision of adequate light, air, access, and space. SMC 24.06.020. Although there are no express open space or setback requirements in the Metropolitan Business Zone, the FAR requirements help to ensure the preservation of open space by regulating development density within each lot. As the code was enacted with the existing network of streets in mind, FAR regulations were clearly designed to ensure adequate open space on private land in addition to, and in relation to, that already provided by the public streets. The code's FAR bonus system, SMC 24.46.110(B), helps demonstrate this purpose. The bonus system allows the construction of additional floor space to developers who will develop plazas, arcades, and voluntary setbacks on their property. These public amenities must not only exist within the lot area at a specified range of distance from the abutting street, see SMC 24.08.020(A)(8) and 24.08.230(V)(2), but also are evaluated to ensure that they relate well to the street and contribute to a desirable street environment. SMC 24.46.110(B)(1)(b). The FAR bonus system refutes Mall's assertion that the code drafters intended every square block in the downtown area to be of uniform density. Rather, the code, construed as a whole, makes it clear that downtown densities will vary depending on the differing size and shape of properties cut by the intersecting streets and according to what additional open space the developer will provide. In any event, including Westlake Avenue within Mall's lot area would not promote uniform density; it would permit an unjustifiable increase in building density on Mall's triangular block.