Primark, Inc. v. Burien Gardens Associates

• Citation: 63 Wn.App. 900,823 P.2d 1116
• Decision Date: 13 January 1992
• Docket Number: No. 27303-5-I,27303-5-I
• Parties: In re Petition to Declare County Road. PRIMARK, INC., Respondent, v. BURIEN GARDENS ASSOCIATES, Appellant.
• Court: Washington Court of Appeals

Page 900

63 Wn.App. 900

823 P.2d 1116

In re Petition to Declare County Road PRIMARK, INC., Respondent, v. BURIEN GARDENS ASSOCIATES, Appellant.

No. 27303-5-I.

Court of Appeals of Washington Division 1.

Jan. 13, 1992.

Publication Ordered Feb. 5, 1992.

Lauren Studebaker, Issaquah, for appellants.

Alan Froelich, Seattle, for respondent.

BAKER, Judge.

Burien Gardens Associates, intervenor below and owner of property adjacent to the subject property, appeals an order granting Primark Corporation's petition under RCW 36.75.080 and RCW 2.28.150 to declare the subject property a county road. We affirm.

I.

The subject property is a 30-foot wide strip lying south of a trailer park owned by Burien Gardens. On its western end, the subject property abuts a gate at the entrance to property owned by Anthony Scheda. East of this 30-foot strip, King County has a 60-foot right-of-way and improved roadway known as South 144th Street, which extends from Des Moines Way South to 12th Place South. West of 12th Place South, the King County right-of-way is reduced to a 30-foot strip directly south of the subject property.

After this action was commenced, the county installed asphalt in its 30-foot right-of-way west of 12th Place South. The asphalt is 20 to 21 feet wide and extends southerly from the north line of the King County right-of-way, which is the south line of the subject property.

Primark Corporation (Primark) is the purchaser of the Scheda property. Closing of the sale is contingent upon Primark obtaining a building permit from King County for a multiple unit dwelling complex on the Scheda property. Under King County road standards, a 30-foot right-of-way would not be sufficient for access to the planned development. The required right-of-way would be between 48 and 60 feet, with a standard minimum right-of-way of 56 feet. ¹

The record title holder of the subject property is George F. Horton. A default order was entered against him. Horton originally owned the subject property and the parcel to the north which is now the Burien Gardens trailer park. In 1943, Horton transferred his ownership of the future trailer park property "less the south 30 feet thereof for road purposes". Later in 1943, Horton's grantee conveyed to a bank the same premises with the same exception, "less the south 30 feet thereof for road". In 1959, P.G. Lund, the developer of the trailer park, purported to grant to King County 25 feet of the subject property for use as a public road, though by virtue of the above exceptions, Lund apparently never had title to it. Lund declared that at the time he developed the park and until he sold the property in 1969, he assumed that the subject property was dedicated to the public. He observed a narrow, primitive road that was used by Scheda and the park residents.

Since 1946, Scheda used the subject property for access to his fields for the cutting and hauling of hay. He also boarded horses in that field. The road was gravelled and was sometimes rough, but was passable year around.

Scheda never asked permission of anyone to use the subject property. He believed it belonged to the trailer park owners, since he observed persons residing in the trailer park using the road. After 1946, the roadway was wide enough for two cars to pass. Trucks bringing supplies into Scheda's lower field used the road. Persons for whom he boarded horses used the road. He also observed cars parking on the road at night, as in a lover's lane use. Once for a period of approximately 1 year, a revival assembly group set up its tent on the property where the trailer park is now. Visitors to the revival assembly used the road.

In 1973, a sewerline was installed on the subject property pursuant to a King County permit.

Alvin Bennett currently lives on the Scheda property, and has lived in the neighborhood since 1979. He has assisted Scheda with haying operations on the Scheda property, and has driven on the road in that connection. In 1979 it was a level gravel road, with deep potholes. It was sufficiently wide for two lanes of traffic, and he had seen three vehicles abreast on it at times. He always believed it was a county road and never asked anyone permission to use it. He has seen many vehicles from the trailer park using the road.

Richard Schneider, a photogrammetric expert, reconstructed the width of the road based on a series of aerial photographs dating from 1966. In 1966, the road was "primitive" and was 5 to 14 feet in width. Encroachment into the subject property from the King County right-of-way varied between 2 and 10 feet. In 1974, the encroachment on the most heavily travelled portion of the road varied between 9 1/2 feet and 13 feet. The encroachment on a less heavily travelled section varied between 18 and 19 feet. In 1977, the encroachment varied between 9 and 13 feet. In 1989, the encroachment varied between 11 and 13 feet. All of Schneider's measurements were subject to a variation plus or minus of approximately 1 foot.

Silvia D. White, a resident of the trailer park for 16 years, testified that most tenants in the park used the driveway, and that it was also used as a lover's lane. She testified that the road was wide enough for two cars and straddled what is now the northern edge of the asphalted portion within the King County right-of-way.

Robert Kruger, managing partner of Burien Gardens Associates, acquired the trailer park in 1984. An anchoring guywire on a telephone pole within the subject property is approximately 16 feet from the north edge of the asphalted King County right-of-way. The guywire anchor to the telephone pole was installed in 1977. A ditch running along the roadway in the subject property is approximately 13 to 14 feet from the north edge of the asphalt. There has been no change in the roadway edge since he has been the owner of Burien Gardens. His objection to the declaration of the county road is the increased traffic it would bring.

The trial court held that by operation of RCW 36.75.080 and by implied dedication and acceptance by the public, a county road had come into existence.

II.

Burien Gardens first contends that this action should have been brought by the County pursuant to RCW 36.75.110 and .120, rather than by a private citizen under RCW 36.75.080.

RCW 36.75.110 provides that when a county declares a resolution that the "true location, course, or width of any county road is uncertain and that the same should be determined," it shall direct the county road engineer to survey the area. RCW 36.75.120 provides that when the true location of a county road has been appropriately surveyed, the county shall file an action in the superior court to determine the true location of the road, joining all persons affected.

These two statutes are inapplicable to the present action. There was testimony by a county engineer to the effect that there was no uncertainty with regard to the location, course, or width of the county right-of-way in the area.

The action was properly brought under RCW 36.75.080 which provides for the establishment of public highways by prescription. Under that statute, "[a]ll public highways in this state, outside incorporated cities and towns and not designated as state highways which have been used as public highways for a period of not less than ten years are county roads". That public highways can be so created in a period equal to that for quieting title to land has long been the law in this state, see, e.g., Seattle v. Smithers, 37 Wash. 119, 123, 79 P. 615 (1905), In re Twenty-Second Ave. SW, 72 Wash. 99, 102, 129 P. 884 (1913), and the enforcement of that law has not been restricted to public entities. See, e.g., Foster v. Bullock, 184 Wash. 254, 50 P.2d 892 (1935); Thorsteinson v. Largaud, 155 Wash. 341, 284 P. 92 (1930); Smith v. Mitchell, 21 Wash. 536, 58 P. 667 (1899). At least one more recent case decided after the enactment of the statute in a form close to its current one was indeed brought by a municipality, see, King Cy. v. Hagen, 30 Wash.2d 847, 194 P.2d 357 (1948), but the statute contains no restriction on the rights of private citizens to enforce it.

Thus, this action was brought under the proper statute.

III.

Burien Gardens next argues this action should have been brought as a declaratory judgment under RCW 7.24.110 rather than as an action under the implied powers provision of RCW 2.28.150.

RCW 2.28.150 provides:

When jurisdiction is, by the Constitution of this state, or by statute, conferred on a court or judicial officer all the means to carry it into effect are also given; and in the exercise of the jurisdiction, if the course of proceeding is not specifically pointed out by statute, any suitable process or mode of proceeding may be adopted which may appear most conformable to the spirit of the laws.

Although this action could have been brought as a declaratory judgment, proceeding under the implied powers act was not inappropriate. Jurisdiction to enforce RCW 36.75.080 is conferred on the superior courts of this state. However, this particular statute fails to set forth a specific procedure for its enforcement. Thus, the trial court properly proceeded under its implied powers. See In re Cross, 99 Wash.2d 373, 378-80, 662 P.2d 828 (1983).

IV.

Burien Gardens next contends that Primark should have joined Scheda and property owners to the south of the King County right-of-way. Its argument is based on the assumption that the action should have been brought under RCW 36.75.120 and the declaratory judgment act, which requires that all persons having interests which would be affected by a declaration shall be made parties. See RCW 7.24.110.

Reliance on the terms of the declaratory judgment act in this context is not necessary. However, it is not unwise to look to the act and cases construing it for a determination of what parties should be joined.

Generally, joinder of interested parties in a declaratory judgment action...