Source: https://law.justia.com/cases/california/court-of-appeal/3d/48/534.html
Timestamp: 2019-12-06 16:41:51
Document Index: 607043868

Matched Legal Cases: ['§ 115', '§ 27424', '§ 27404', '§ 7006', '§ 27400', '§ 27104', 'art 3']

Aries Dev. Co. v. California Coastal Zone Conservation Com. :: :: California Court of Appeal Decisions :: California Case Law :: California Law :: US Law :: Justia
Justia › US Law › Case Law › California Case Law › Cal. App. 3d › Volume 48 › Aries Dev. Co. v. California Coastal Zone Conservation Com.
Aries Dev. Co. v. California Coastal Zone Conservation Com.
These are appeals from actions of the superior court on a petition for writ of mandate filed by Aries Development Company (Aries) to review and set aside a decision of the California Coastal Zone Conservation Commission (Commission) denying Aries' claim of exemption from the permit requirements of the California Coastal Zone Conservation Act of 1972 (Coastal Act). [48 Cal. App. 3d 538]
On October 11, 1972, the planning commission approved the use permit application, site plan, and tentative tract map. [48 Cal. App. 3d 539]
Actual construction of the condominiums commenced on or about April 13, 1973, and continued until the Regional Coastal Commission demanded Aries either secure a coastal permit or an exemption. [48 Cal. App. 3d 540]
From the analysis which follows, we have concluded: (1) The Charles have standing to attack the judgment for errors of law and (2) the trial [48 Cal. App. 3d 541] court erred in determining Aries was exempt from the permit requirements of the Coastal Act.
[1] One who is legally aggrieved by a judgment may, though not initially a party to the action, become a party of record and obtain a right to appeal from the judgment by moving to vacate the judgment pursuant to Code of Civil Procedure section 663. (County of Alameda v. Carleson, 5 Cal. 3d 730, 736 [97 Cal. Rptr. 385, 488 P.2d 953]; Luckenbach v. Laer, 190 Cal. 395 [212 P. 918]. See Eggert v. Pac. States S. & L. Co., 20 Cal. 2d 199, 201 [124 P.2d 815]; Elliott v. Superior Court, 144 Cal. 501, 509 [77 P. 1109]; 6 Witkin, Cal. Procedure (2d ed. 1971) Appeal, § 115, p. 4115.) A person whose rights or interests are injuriously affected by the judgment is a person aggrieved. (County of Alameda v. Carleson, supra, at p. 737.)
[2] As property owners residing in the immediate vicinity of the proposed development, the Charles have an interest in the enforcement of land use laws affecting the quality of the neighborhood. (See Scott v. City of Indian Wells, 6 Cal. 3d 541 [99 Cal. Rptr. 745, 492 P.2d 1137]; Residents of Beverly Glen, Inc. v. City of Los Angeles, 34 Cal. App. 3d 117 [109 Cal. Rptr. 724]; Tustin Heights Assn. v. Bd. of Supervisors, 170 Cal. App. 2d 619, 636 [339 P.2d 914].) The Charles were parties to the proceedings before the Commission and successfully opposed Aries' claim of exemption. Had the Commission decision been adverse to them, the Charles would have had the right to a judicial review of that decision. (§ 27424. fn. 4 See Tustin Heights Assn. v. Bd. of Supervisors, supra, at p. 636.) Clearly they were injuriously affected by the judgment annulling the favorable Commission decision. We find no merit in Aries' contention that, although the Charles might have had standing if the issue had been its right to a permit, they have no standing on the issue of exemption. Indeed, given the greater potential for injury, their interests intensify where the issue is one of total exemption from the Coastal Act rather [48 Cal. App. 3d 542] than entitlement to a permit. (See Pettitt v. City of Fresno, 34 Cal. App. 3d 813, 822-823 [110 Cal. Rptr. 262].)
Aries contends that the notice of appeal filed by the Commission after the Charles' motion to vacate was filed, but before it could be heard, deprived the Charles of the right to appeal. The contention is without merit. The Charles having become parties of record by filing their motion to vacate, their right of appeal could not be destroyed by the fact that a subsequent event over which they had no control may have divested the court of jurisdiction to rule on the merits of the motion. The right accrued when the motion to vacate was ordered off calendar on the ground the movants lacked standing to bring the motion. Code of Civil Procedure section 902 provides that "[a]ny party aggrieved may appeal." Being a remedial statute, the section should be liberally construed and any doubts resolved in favor of the right to appeal. (Koehn v. State Board of Equalization, 50 Cal. 2d 432, 435 [326 P.2d 502].) When the appellant is acting in good faith, the right should not be denied on purely technical grounds.
The Coastal Act requires the Commission and Regional Commissions to develop a Coastal Zone Conservation Plan for submission to the [48 Cal. App. 3d 543] Legislature no later than December 1, 1975. To prevent irreversible commitment of valuable coastal resources to uses inconsistent with the plan ultimately developed, the Coastal Act provides for an interim permit system for any development in the permit area.
There are two bases for exemption from the permit provisions of the Coastal Act. One is the vested right exemption expressly recognized by section 27404 and the other derives from the rule enunciated in San Diego Coast Regional Com. v. See The Sea, Limited, 9 Cal. 3d 888 [109 Cal. Rptr. 377, 513 P.2d 129]. We shall analyze those exemptions and show that the facts in the case at bench do not bring Aries within either of them.
[3] In this state, one who in good faith reliance upon a building permit performs substantial work and incurs substantial liability in connection therewith acquires a vested right to complete construction notwithstanding an intervening change in the law that would otherwise preclude construction. (Russian Hill Improvement Assn. v. Board of Permit Appeals, 66 Cal. 2d 34, 39 [56 Cal. Rptr. 672, 423 P.2d 824]; County of San Diego v. McClurken, 37 Cal. 2d 683, 691 [234 P.2d 972]; Brougher v. Board of Public Works, 205 Cal. 426, 434 [271 P. 487]; California Central Coast etc. Conservation Com. v. McKeon Constr., 38 Cal. App. 3d 154, 159-160 [112 Cal. Rptr. 903].) The rule is grounded upon the constitutional principle that property may not be taken without due process of law. (See Transcentury Properties, Inc. v. State of California, 41 Cal. App. 3d 835, 844 [116 Cal. Rptr. 487].)
Section 27404 codifies the vested right principle. It provides that if a city has issued a building permit before November 8, 1972, a person shall be deemed to have a "vested right," and hence not be required to obtain a permit, "if, prior to November 8, 1972, he has in good faith and in reliance upon the building permit diligently commenced construction and performed substantial work on the development and incurred substantial liabilities for work and materials necessary therefor." fn. 6 [48 Cal. App. 3d 544]
Although the cases speak of vested rights in terms of reliance upon a building permit (e.g., Brougher v. Board of Public Works, supra, 205 Cal. 426, 434; Spindler Realty Corp. v. Monning, 243 Cal. App. 2d 255, 264 [53 Cal. Rptr. 7]; Anderson v. City Council, 229 Cal. App. 2d 79, 89 [40 Cal.Rptr. 41]), the Attorney General, both in the court below and in his opening brief on appeal, has argued the case on the assumption that a building permit may no longer be a sine qua non of a vested right. fn. 7 He points out that under modern land development practices various governmental approvals are required before the issuance of a building permit, each approval pertaining to different aspects of the project, and suggests that a vested right might arise before the issuance of a building permit if the preliminary permits approve a specific project and contain all final discretionary approvals required for completion of the project.
The trial court based its conclusion that Aries was exempt from the permit provisions of the Coastal Act on the following findings: Prior to November 8, 1972, the City had approved a use permit, specific site plan, tentative tract map and had issued grading permits; the site plan was a detailed and precise plan depicting the exact height and location of the buildings, walkways, recreational facilities, parking structures, etc.; prior [48 Cal. App. 3d 545] to November 8, Aries had received "all necessary discretionary approvals from the City of San Clemente necessary to complete construction of the Development"; and prior to November 8 Aries had "in good faith, and in reasonable reliance on various governmental approvals and permits ... performed substantial lawful work on the Development and incurred substantial liabilities for work and materials necessary therefor."
We are not however, bound by those findings and conclusions. The only evidence received by the trial court was the administrative record consisting entirely of documentary material such as minutes of City council and planning commission meetings, permits, correspondence, Aries' application for exemption, Commission staff recommendations, etc. At the hearing below, there was no basic disagreement as to what was done or when it was done; the only dispute concerned the conclusions to be drawn from the pertinent undisputed facts. [5] Where the facts before the administrative body are uncontradicted, the determination of their effect is a question of law and the findings and conclusions of the trial court, whether the scope of review be the substantial evidence or independent judgment test, are not controlling on appellate review. (David Kikkert & Associates, Inc. v. Shine, 6 Cal. App. 3d 112, 116 [86 Cal. Rptr. 161]. See People ex rel. S. F. Bay etc. Com. v. Town of Emeryville, 69 Cal. 2d 533, 543 [72 Cal. Rptr. 790, 446 P.2d 790]; Automatic Canteen Co. v. State Board of Equalization, 238 Cal. App. 2d 372, 381 [47 Cal. Rptr. 848]; Caro v. Savage, 201 Cal. App. 2d 530, 541-542 [20 Cal. Rptr. 286].) We recognize it has been held that where the undisputed facts bearing on a disputed issue do not point in any one direction an appellate court is bound by an inference drawn by the trial court. (Lacy v. California Unemployment Ins. Appeals Bd., 17 Cal. App. 3d 1128, 1135 [95 Cal. Rptr. 566].) However, that is not the situation here. Resolution of the issues before us does not require the drawing of any purely factual inferences, but rather the application of law to the pertinent uncontradicted facts. Otherwise stated, our function is to determine the proper legal characterization of those facts. [4b] Unlike Lacy, the evidence in the case at bench is neither sparse nor ambiguous. When the appropriate legal standard is applied to the facts in their proper sequence, it is apparent that this is in no sense a borderline case but rather one which may properly be resolved as a matter of law.
(1) Prior to November 8, Aries had not received all discretionary approvals necessary to proceed with construction. [48 Cal. App. 3d 546]
As shown by the minutes, the City council, at its meeting of October 18, 1972, approved Aries' use permit application but deferred action on the tentative tract map despite Aries' plea to approve the map subject to later submission and approval of an EIR. During the meeting the mayor warned Aries that in light of the recent Supreme Court decision (Friends of Mammoth v. Board of Supervisors, 8 Cal. 3d 247 [104 Cal. Rptr. 761, 502 P.2d 1049], Sept. 21, 1972), approval of the map without an EIR might well result in stoppage of the development in midstream.
Approval of an EIR is a discretionary act. (See Friends of Mammoth v. Board of Supervisors, supra, 8 Cal. 3d 247, 263, fn. 8; No Oil, Inc. v. City of Los Angeles, 13 Cal. 3d 68, 79, fn. 8 [118 Cal. Rptr. 34, 529 P.2d 66].) It necessarily follows that approval of the tentative tract map and site plan was not final until the EIR had been considered and approved by the council. So long as the City retained discretion to approve or disapprove the project, prior approval of the tentative map and site plan was not the final exercise of the City's authority over the project. (People v. County of Kern, 39 Cal. App. 3d 830, 838 [115 Cal. Rptr. 67].) Indeed, recent [48 Cal. App. 3d 547] decisions have confirmed the apprehension expressed by the mayor at the October 18 meeting; council approval of the tentative tract map on November 1 without prior consideration of an EIR was invalid. (No Oil, Inc. v. City of Los Angeles, supra, at pp. 79-81; Rosenthal v. Board of Supervisors, 44 Cal. App. 3d 815, 824 [119 Cal. Rptr. 282].) The EIR was a city and state requirement and there was no final approval until its consideration and acceptance on November 15.
Aries' reliance upon People ex rel. S. F. Bay etc. Com. v. Town of Emeryville, supra, 69 Cal. 2d 533, is misplaced. The issue in that case was the meaning of the word "project" as used in the "grandfather clause" of the McAteer-Petris Act; it did not involve the issue of vested rights.
(2) Even if we accept, for the sake of argument, Aries' contention that the November 1 approval of the tentative tract map was a final [48 Cal. App. 3d 548] discretionary approval, Aries did not act in good faith reliance on that approval.
Once a right has vested, its impairment or destruction must comport with constitutional principles. However, acquisition of the right is grounded on equitable principles of estoppel. (See Spindler Realty Corp. v. Monning, supra, 243 Cal. App. 2d 255, 269; Anderson v. City Council, supra, 229 Cal. App. 2d 79, 89.) [6] In other words, an owner of property acquires a vested right to construct a building only where the conduct of the government amounts to a representation that such construction is fully approved and legal, subject only to minor alterations, and in reliance on such representation the owner materially changes position. Good faith reliance on a governmental permit is essential to the acquisition of a vested right. (§ 27404; Russian Hill Improvement Assn. v. Board of Permit Appeals, supra, 66 Cal. 2d 34, 39.)
On November 6, 1972, the City engineer issued a grading permit "only for the parking structure," with the express proviso that it "does not [48 Cal. App. 3d 549] constitute approval of the general development or general grading proposed or to be proposed but recognizes only that the parking structure would be an integral function of any structure constructed on this project" and that "further permits will be required for extension of grading beyond the parking structure area." (Italics supplied.)
On the very day the November 6 grading permit was issued Aries entered in its records a prepayment or liability of $28,300 for grading work thereunder. One who proceeds with "unseemly haste" bears a risk "that his conduct might bear the stigma of bad faith." (Russian Hill Improvement Assn. v. Board of Permit Appeals, supra, 66 Cal. 2d 34, 39; fn. omitted.) Aries' entire conduct bears the indelible stamp of "unseemly haste" and lack of good faith.
The trial court made a general finding that Aries expended and incurred liabilities in the total sum of $353,912.11 before November 8. However, most of that sum was for land purchase, architectural and other planning expenses, demolition of an existing structure, and rough grading. All of those activities were completed before November 1 and are therefore irrelevant for the reason they could not have been undertaken in reliance on a final discretionary government approval yet to be obtained. (See Anderson v. City Council, supra, 229 Cal. App. 2d 79, 89-90.) [7] "[O]ne who is not yet armed with a presently effective municipal license to proceed with construction must assume the risk that, 'before final action [has] been taken on [his] application' [citation], the law might be changed so as to require that his application be denied." (Russian Hill Improvement Assn. v. Board of Permit Appeals, supra, 66 Cal. 2d 34, 40.)
[4d] The only expenditure or liability incurred after the November 1 approval was the $28,300 prepaid or incurred on November 6 under the November 6 grading permit. Even as to that sum, Aries listed it as being for grading work performed between November 6 and November 15. Consequently, only a small portion of the sum could have been allocable to work performed before November 8. Furthermore, all grading performed under the November 6 permit was not lawful. Although the trial court found that between November 6 and November 15 Aries [48 Cal. App. 3d 550] graded 20,000 yards of dirt in preparation for the parking structure and also graded 80 percent of the property removing 40,000 yards of dirt, the November 6 permit was limited to an estimated 15,000 yards of dirt. The permit expressly provided that it was not a general grading permit. Thus, a substantial portion of the $28,300 incurred for grading work between November 6 through November 15 was not for lawful work. For a project estimated to cost $2,263,333, the lawful work performed and liabilities incurred therefor before November 8 were insubstantial as a matter of law.
[8] We next consider whether Aries was exempt from the permit provisions of the Coastal Act under San Diego Coast Regional Com. v. See The Sea, Limited, supra, 9 Cal. 3d 888.
The court declined to interpret section 27404 as requiring all persons not having a vested right before November 8, 1972, to obtain a coastal permit. Rather, it held that the Coastal Act was not intended to operate as a moratorium on all construction lawfully commenced before, but completed after, February 1, 1973, and therefore the language of section 27400 that "any person wishing to perform any development" after February 1, 1973, shall secure a coastal permit refers only to those [48 Cal. App. 3d 551] persons who had not commenced lawful construction on February 1, 1973.
In response to the contention that this would render section 27404 pointless, the court stated: "... the argument misconstrues section 27404. Although that section provides exemption for some not coming within the permit requirement, it also exempts some who do; for example, those who acted in reliance on a building permit obtained prior to the effective date of the act, and demolished structures or incurred substantial expenses and liabilities preparatory to construction." (9 Cal. 3d 888, at p. 893; fn. omitted.) If we understand the decision correctly, it means a person does not qualify for the See The Sea exemption by demolishing buildings or performing work preparatory to construction. One must have actually commenced construction pursuant to a building permit before February 1, 1973.
In any event, the most that Aries would be entitled to perform under its grading permits would be the completion of the work authorized by those permits. (Environmental Coalition of Orange County, Inc. v. AVCO Community Developers, Inc., 40 Cal. App. 3d 513, 523 [115 Cal. Rptr. 59].) Under the express provisions of the Uniform Building Code, a "holder of such permit shall proceed at his own risk without assurance that the permit for the entire building or structure will be granted." (Uniform Building Code, §§ 7006(g) and 302(a).) Work performed under the grading permits before February 1, 1973, does not entitle Aries to go forward with the construction of the project in its entirety.
Judgment is reversed. Appeal from the order on the motion to vacate the judgment is dismissed as moot. fn. 8 [48 Cal. App. 3d 552]
Unless we start with the assumption that all land development is "bad," there is really nothing very startling about the chronology of events outlined in this case. Even before the Coastal Act, building practices had become quite sophisticated and complicated. No longer does the builder simply go to the city hall with his plans and specifications, have them stamped "approved" and begin building. Building today is a long, involved, drawn out process. Yet the majority read the passage of events in this case into a headlong dash to beat the target date of the Coastal Act. [48 Cal. App. 3d 553]
The point of these observations is that this is no trifling matter from a fiscal standpoint. Aries may be a land developer and a soulless corporation, but its stockholders have lost a lot of money -- all expended, the trial court found, in a good faith effort to develop this land with the full approval of the City of San Clemente -- and stopped improperly by the Coastal Commission. The trial court found that prior to November 8, 1972, Aries, in good faith and in justifiable reliance on the approvals and permits from the City, had diligently commenced construction of the development, performed substantial lawful work thereon, and incurred substantial expenses and liabilities for the work and materials necessary for construction, and that as of February 1, 1973, Aries had commenced and performed substantial lawful construction on the development. From this, the trial court concluded that pursuant to sections 27400 and 27404 of the Public Resources Code, and, additionally, pursuant to constitutional and common law principles of vested rights, Aries' development was exempt from the permit requirements of the Coastal Act. [48 Cal. App. 3d 554]
It is true that of the total of $353,912 expended before November 8, 1972, most was spent for land purchase, architectural, engineering and [48 Cal. App. 3d 555] other planning expenses, demolition of the existing structure and rough grading. All of these activities were completed before November 1. However, I think that labeling them as "irrelevant" is a trifle harsh. This was all part of an ongoing program aimed at developing the property. It is true that these expenditures "could not have been undertaken in reliance on a final discretionary governmental approval yet to be obtained." Nevertheless, I do not think we should just disregard them and label them as being irrelevant. They exist, they are part of the overall picture.
Prior to February 1, Aries had submitted and approved a tentative tract map, had received a use permit, a demolition permit, a rough grading permit, a final grading permit, an approval of an EIR and a building permit for the entire development. A home of the approximate value of $60,000 had been demolished. The entire property had been cleared and rough graded, a hole for the parking structure excavated and 20,000 yards of dirt removed and exported. Eighty percent of the dirt on the site was removed and replaced to satisfy soils engineering requirements [48 Cal. App. 3d 556] and to stabilize the site pursuant to the design of the proposed building. Subsurface draining facilities were installed to release any potential ground water and subcharge pressures as requested by the City of San Clemente. Shoring for a 20-foot-high cut to retain the street and protect contiguous property was installed, and the main gas line and water and power facilities were relocated. All of the above had been performed pursuant to various permits and other governmental approvals.
FN 1. Any person wishing to perform any development in the permit area as defined by the Coastal Act must obtain a permit authorizing the development from the regional commission. (Pub. Resources Code, § 27400.) Subject to certain exceptions, the permit area extends seaward to the outer limit of the coastal zone and landward for a distance of 1,000 yards from the mean high tide line. (Pub. Resources Code, § 27104.)
FN 2. Unless otherwise indicated, all statutory references are to the Public Resources Code.
FN 3. Although the Charles raise certain additional points not raised by the Commission, in view of our disposition we need not pass upon their validity.
FN 4. Public Resources Code section 27424 provides: "Any person, including an applicant for a permit, aggrieved by the decision or action of the commission or regional commission shall have a right to judicial review of such decision or action by filing a petition for a writ of mandate in accordance with the provisions of Chapter 2, (commencing with Section 1084) of Title of Part 3 of the Code of Civil Procedure, within 60 days after such decision or action has become final."
FN 5. Code of Civil Procedure section 663a provides:
FN 6. In full, section 27404 provides: "If, prior to November 8, 1972, any city or county has issued a building permit, no person who has obtained a vested right thereunder shall be required to secure a permit from the regional commission; providing that no substantial changes may be made in any such development, except in accordance with the provisions of this division. Any such person shall be deemed to have such vested rights if, prior to November 8, 1972, he has in good faith and in reliance upon the building permit diligently commenced construction and performed substantial work on the development and incurred substantial liabilities for work and materials necessary therefor. Expenses incurred in obtaining the enactment of an ordinance in relation to the particular development or the issuance of a permit shall not be deemed liabilities for work or material."
FN 7. In his closing brief, the Attorney General for the first time urges that we should adhere to the explicit terms of section 27404. The Charles make the same argument in their closing brief, although their opening brief, like the Attorney General's, used the "final discretionary approval" test. Contentions raised for the first time in a reply brief may be disregarded. (Robinson & Wilson, Inc. v. Stone, 35 Cal. App. 3d 396, 414 [110 Cal. Rptr. 675]; Diamond Springs Lime Co. v. American River Constructors, 16 Cal. App. 3d 581, 609 [94 Cal. Rptr. 200].) While the issue is an important one, we are reluctant to reach it with the record in this state.
FN 8. Reversal of the judgment renders moot the question whether the Charles' motion to vacate should have been granted. (Cf. County of Alameda v. Carleson, supra, 5 Cal. 3d 730, 736, fn. 4.)
FN 1. This particular factual situation -- the position of those developing land on the California shoreline at the time of the enactment of the California Coastal Zone Conservation Act of 1972 -- was a matter of considerable import three years ago. Now, except for a few cases laboriously working their way through the appellate process, this is a dead issue.
FN 2. For their efforts Aries now has a piece of land with a hole in it. This land originally cost $225,000 but of that cost $80,000 was for architectural and engineering plans. A $60,000 home had been demolished. So by my primitive arithmetic for their $470,000 expenditure, Aries now have a lot which would be worth about $85,000 without the hole in it.