Stanford Law School - Robert Crown Law Library

Filed 12/21/06

IN THE SUPREME COURT OF CALIFORNIA

CITY OF GOLETA et al.,
Petitioners,
S129125
v.
Ct.App. 2/6 B175054
SUPERIOR COURT OF
SANTA BARBARA COUNTY,
Santa
Barbara
County
Respondent;
Super.
Ct.
No.
01111147
OLY CHADMAR SANDPIPER
GENERAL PARTNERSHIP,
Real Party in Interest.

Here we conclude that a newly incorporated city had discretion to
disapprove a final subdivision map when the vesting tentative subdivision map
had been approved by the county. We also conclude that actions taken by the city
did not divest it of this discretion or subject it to estoppel.
I. FACTS AND PROCEDURAL BACKGROUND
The City of Goleta (Goleta or City) was created from unincorporated
territory within the County of Santa Barbara (County). After the incorporation
process began, Oly Chadmar Sandpiper General Partnership (Sandpiper)
submitted a vesting tentative subdivision map to the County for a multiunit
residential project within Goleta’s proposed boundaries. The County approved the
vesting tentative map after Goleta’s incorporation was approved by the electorate
on November 6, 2001. The sequence of these events is significant because it bears
1

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on whether Sandpiper qualified for the safe harbor provision of Government Code
section 66413.5, subdivision (f). 1 (See post, at pp. 4-7.)
When the incorporation became effective on February 1, 2002, the newly
empowered City Council of Goleta adopted the County ordinances. A newly
created city is required to “adopt an ordinance providing that all county ordinances
previously applicable shall remain in full force and effect as city ordinances for a
period of 120 days after incorporation, or until the city council has enacted
ordinances superseding the county ordinances, whichever occurs first.” (§ 57376,
subd. (a).)
The manner in which the City Council undertook its action is central to this
litigation. The resolution adopting the County ordinances replaced references to
the County and its Board of Supervisors with references to the City and its City
Council. (Goleta Ord. No. 02-01) The parties disagree as to whether, in taking
this action, the City bound itself to approve Sandpiper’s final map. The gist of
Sandpiper’s argument is that, while Goleta would otherwise have had discretion
under section 66413.5 to reject Sandpiper’s final map application, it divested itself
of that discretion by adopting the County ordinances in a way that placed the
Council in the shoes of the Board of Supervisors. Thus, Sandpiper argues, the
City was bound to give its ministerial approval, just as the County would have
been.
The following facts bear on the estoppel claim. On November 28, 2001,
three weeks after the incorporation election, Goleta’s Mayor-elect wrote to the
County Board of Supervisors expressing the City Council-elect’s concerns about
the Sandpiper project. On January 15, 2002, the Board of Supervisors approved
the vesting tentative map. On March 18, 2002, a City consultant notified a County
planning staff member that the City Council wished to be consulted before the

1
Undesignated statutory references are to the Government Code.
2

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County made any other decisions affecting the project. On June 4, 2002, the
interim City Attorney informed the same County staff member that the City’s
concerns were both jurisdictional and substantive. The City states, and Sandpiper
does not deny, that Sandpiper was informed of these communications.
On May 13, 2002, the County approved a coastal development permit for
the project. Three weeks later the City challenged that approval before the
California Coastal Commission. In its letter of appeal, the City stated it had
discretion under section 66413.5 to deny Sandpiper’s final map.2
At several regularly scheduled meetings between August and November
2002, the City Council reviewed Sandpiper’s plan and identified a significant
number of concerns.
On November 26, 2002, the City Surveyor wrote the City Engineer that
Sandpiper’s final map was “technically correct.” The City does not dispute that
the final map was in “substantial compliance” with the vesting tentative map.
However, on January 6, 2003, the City Council denied approval of Sandpiper’s
final map, concluding that the project’s design and improvements would be
inconsistent in specified respects with the general plan being prepared by the
City.3
The trial court granted Sandpiper’s writ petition and ordered the City to
approve the final map. The Court of Appeal reversed the order by writ of
mandate.

2
The Coastal Commission ultimately decided not to determine the
substantive merits of the appeal.
3
Section 65360 provides in pertinent part: “The legislative body of a newly
incorporated city or newly formed county shall adopt a general plan within 30
months following incorporation or formation. During that 30-month period of
time, the city or county is not subject to the requirement that a general plan be
adopted or the requirements of state law that its decisions be consistent with the
general plan, if [specified conditions] are met.”
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We affirm the judgment of the Court of Appeal.
II. DISCUSSION
The Subdivision Map Act (Act) gives local agencies authority to regulate
subdivision development within their boundaries. (§ 66411.) The agencies
exercise their authority by reviewing maps of a proposed subdivision. A tentative
map must, among other things, be consistent with either the general local plan or
an existing specific plan. (§§ 66473.5, 66474.) Generally, a final map must be
approved if it substantially complies with a previously approved tentative map
(§ 66474.1) and meets the requirements applicable to the subdivision when the
tentative map was approved (§ 66473).
“The Subdivision Map Act (Act) permits a subdivider to file a ‘vesting
tentative map’ whenever the Act requires a tentative map. This procedure is
intended to provide greater statutory protection to subdividers than was afforded
under the common law vested rights doctrine. [Citations.]” (Bright Development
v. City of Tracy (1993) 20 Cal.App.4th 783, 792.) This case does not turn on the
fact that Sandpiper filed a vesting tentative map.
A. Section 66413.5
Before enactment of section 66413.5 (Stats. 1988, ch. 1330, § 1, pp. 4396-
4398), it was unclear whether a newly incorporated city had discretion to
disapprove a final map when the tentative map had been approved by the county.
The Attorney General found no case law squarely on point, but concluded a city
did not have such discretion. (Approval of Tentative Subdivision Map, 63
Ops.Cal.Atty.Gen. 844 (1980).) The Legislative Counsel reached the same
conclusion. (Ops. Cal. Legis. Counsel, No. 15919 (July 15, 1985) Vesting
Tentative Maps: Incorporation or Annexation, p. 1.)
By enacting subdivision (a) of section 66413.5 the Legislature specifically
provided that a newly incorporated city must approve a final map where the
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tentative map has been approved by the county and the final map meets all of the
conditions of the tentative map and the requirements of the Act.4
However, subdivision (a) of section 66413.5 is qualified by subdivision (f)
of the same section. Under subdivision (f), the new city is only compelled to
approve a final map if two temporal conditions are met: (1) the application for the
tentative map or vesting tentative map was submitted before the first signature was
placed on the incorporation petition; and (2) the county approved the tentative map
before the incorporation election.5
The original legislation had no time constraints. (Sen. Bill No. 186 (1987-
1988 Reg. Sess.) as introduced Jan. 16, 1987.) However, the Legislature came to
recognize that the prospect of an incorporation often resulted in a “run” on
development rights. To prevent such “runs,” the bill was amended to incorporate
the temporal conditions set out in section 66413.5, subdivision (f). (See, e.g., Sen.

4
Section 66413.5, subdivision (a) now provides: “When any area in a
subdivision or proposed subdivision as to which a tentative map meeting the
criteria of this section has been approved by a board of supervisors is incorporated
into a newly incorporated city, the newly incorporated city shall approve the final
map if it meets all of the conditions of the tentative map and meets the
requirements and conditions for approval of final maps as provided in Article 4
(commencing with Section 66456), and other requirements of this division.”
5
Section 66413.5, subdivision (f) now provides: “Except as otherwise
provided in subdivision (g), this section applies to any approved tentative map or
approved vesting tentative map that meets both of the following requirements:

“(1) The application for the tentative map or the vesting tentative map is
submitted prior to the date that the first signature was affixed to the petition for
incorporation pursuant to Section 56704, regardless of the validity of the first
signature, or the adoption of the resolution pursuant to Section 56800, whichever
occurs first.

“(2) The county approved the tentative map or the vesting tentative map
prior to the date of the election on the question of incorporation.”

Subdivision (g) of section 66413.5 is not applicable here. It provides: “This
section does not apply to any territory for which the effective date of the
incorporation is prior to January 1, 1999.” Goleta’s incorporation became
effective on February 1, 2002.
5

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Com. on Local Gov., 3d reading analysis of Sen. Bill No. 186 (1987-1988 Reg.
Sess.) as amended Aug. 10, 1988.)
The trial court correctly found that the vesting tentative map here did not
satisfy either of section 66413.5, subdivision (f)’s temporal conditions. Therefore,
as Sandpiper concedes, the mandatory approval obligation of subdivision (a) does
not apply.
The Court of Appeal agreed with the City that, under these circumstances,
“the plain language of section 66413.5 gives the City discretion to deny
Sandpiper’s final map.” Sandpiper does not dispute that conclusion.6 However,
it contends that Goleta was, nevertheless, required to approve its final map. It
argues the City surrendered its statutory discretion by adopting a County
ordinance that provided for ministerial approval of a final map that conforms with
an approved tentative map.
B. The Effect of Goleta’s Ordinances
As noted (ante, at p. 2), in compliance with section 57376, subdivision (a),
the Goleta City Council adopted the County’s subdivision ordinances. The
resolution adopting the County ordinances substituted references to the City and
its City Council for references to the County and its Board of Supervisors. (Goleta
Ord. No. 02-01.) The parties disagree on the substitutions’ legal effect.

6
The California Department of Housing and Community Development filed
an amicus curiae brief supporting Sandpiper. It contends that a new city has
discretion to deny a final map when section 66413.5, subdivision (f)’s temporal
conditions have not been satisfied, but only if the new city has enacted an
ordinance governing the exercise of such discretion. We agree with the Court of
Appeal. “There is nothing in section 66413.5 requiring the City to adopt
legislation to implement the statute. It is not the court’s prerogative to add what
the Legislature has omitted. [Citation.]”

In its amicus curiae brief, the Pacific Legal Foundation argues that
development rights should not be “abrogated by a change in governmental
structure.” In enacting section 66413.5, the Legislature gave a nuanced answer to
this assertion, and we are not free to disregard it.
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Sandpiper contends Goleta was obliged by section 21-10 of its adopted
ordinances to give ministerial approval to the final map. Section 21-10 read in
pertinent part: “When the [City] Surveyor is satisfied that the map is technically
correct, conforms to the approved tentative map or any approved alterations
thereof and complies with all applicable laws and regulations, the [City] Surveyor
will notify in writing the licensed land surveyor . . . who prepared the map and
request delivery of the original tracing of the final or parcel map. . . . In the case
of a final map . . . the [City] Surveyor will transmit the same to the Clerk of the
[City Council] for filing and approval. The [City Council] shall approve the map
at its next regular meeting if it conforms with all the requirements of applicable
laws and regulations made thereunder.” (Emphasis added.)
Goleta responds that when section 21-10 of its Municipal Code is read in
light of section 21-6, it is clear that the City was obligated to grant ministerial
approval to final maps only when it, not the County, had given initial approval to
the tentative map. Section 21-6, subdivision (b) identifies the City Council as the
decision maker for all tentative maps submitted to the City for land use projects
within the City’s jurisdiction.7 Section 21-6, subdivision (m) provides that the
decision maker, i.e., the City Council, shall approve, conditionally approve, or
disapprove all tentative and final maps.8
Sandpiper labels Goleta’s position “nonsensical.” It states its argument as
follows. The City’s theory “would require a finding that after February 1, 2002,

7
Section 21-6, subdivision (b) provides: “The [City Council] shall be the
decision-maker for all final maps bearing the [City] surveyor’s statement [and] all
tentative maps including tentative parcel maps which are companion to other
discretionary cases under the approval jurisdiction of the [City Council] . . . .”
8
Section 21-6, subdivision (m) provides: “The decision-maker shall
approve, conditionally approve, or disapprove the subdivision map, both tentative
and final and parcel maps . . . within the time allowed by the applicable provisions
of the California Government Code . . . or within any additional time agreed to by
the subdivider.”
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when the City adopted all [of the] County’s Ordinances and inserted the name
change, there no longer was a vesting tentative map as defined in the City’s
[Subdivision Map Act] ordinances. [¶] The City’s own actions belie its
reasoning. The City’s Resolution concerning the Project . . . states, ‘The City
Surveyor notified the City Engineer of the City of Goleta by letter dated
November 26, 2002, that the proposed Final Map for the Sandpiper Project was
technically correct, consistent with the requirements of the Subdivision Map Act,
and ready for filing with the City Council.’ If the vesting tentative map had never
been approved by an authorized entity, then the final map arising from it was not
consistent with the Subdivision Map Act and not ready for filing with the City.”
Sandpiper’s characterization of the City’s position is overbroad. Sections
21-6 and 21-10 can be reconciled as stating the City’s intention to retain discretion
over final maps when the County approved the tentative maps, but to defer to the
general rule of ministerial approval for final maps when the City, itself, has
approved the tentative maps.
We conclude the City had discretion under section 66413.5 to disapprove
the final map because it had not approved the tentative map.
C. Estoppel
Sandpiper contends in the alternative that the City was estopped from
disapproving the final map.
“The doctrine of equitable estoppel is founded on concepts of equity and
fair dealing. It provides that a person may not deny the existence of a state of facts
if he intentionally led another to believe a particular circumstance to be true and to
rely upon such belief to his detriment. The elements of the doctrine are that (1)
the party to be estopped must be apprised of the facts; (2) he must intend that his
conduct shall be acted upon, or must so act that the party asserting the estoppel has
a right to believe it was so intended; (3) the other party must be ignorant of the
true state of facts; and (4) he must rely upon the conduct to his injury. (City of
Long Beach v. Mansell (1970) 3 Cal.3d 462, 488-489.)” (Strong v. County of
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Santa Cruz (1975) 15 Cal. 3d 720, 725; see Hughes v. Board of Architectural
Examiners (1998) 17 Cal. 4th 763, 794 (Hughes).)
Equitable estoppel “will not apply against a governmental body except in
unusual instances when necessary to avoid grave injustice and when the result will
not defeat a strong public policy. (Bib'le v. Committee of Bar Examiners (1980)
26 Cal. 3d 548, 553; Hock Investment Co. v. City and County of San Francisco
(1989) 215 Cal.App.3d 438, 449.)” (Hughes, supra, 17 Cal. 4th at p. 793.)
Sandpiper has not established the elements of estoppel against a private
party, much less against a governmental body. As the Court of Appeal observed,
“There is no evidence in the record that any official, employee or agent of the City
made any express representation that the City would approve the map. To the
contrary, the undisputed evidence shows that City officials publicly voiced their
concerns about the project both before and after the incorporation became
effective.”
City authorities began voicing concerns about the project from virtually the
moment of the City’s creation. The City Council-elect informed the County Board
of Supervisors of its reservations in November of 2001. After the County
approved the vesting tentative map, City representatives continued to voice
concerns in March and June of 2002. The City appealed the County’s grant of a
coastal development permit, and during the appellate process, asserted the City’s
discretion to withhold final map approval.9 The City Council continued to
identify problems with Sandpiper’s plan at its meetings in August through
November of 2002. In light of this history, the City’s decision to disapprove the
final map should not have come as a surprise to Sandpiper.

9
When the County was considering the vesting tentative map, County
Counsel advised the board of supervisors that any approval would not occur in
time for Sandpiper to qualify for section 66413.5’s safe harbor provision.
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Sandpiper contends that Goleta’s adoption of the County subdivision
ordinances created a reasonable expectation on Sandpiper’s part that its final map
would receive ministerial approval. We conclude above that the City’s action did
not entail this result. (Ante, at pp. 7-9.) Therefore, this lynchpin of Sandpiper’s
estoppel argument fails.
Sandpiper also claims it relied on the fact that Goleta exempted its project
when it extended a moratorium on development. On February 11, 2002, Goleta
adopted an ordinance placing a 45-day moratorium on approval of development
proposals. On March 25, 2002, the City extended the moratorium for the 10
months and 15 days permitted under section 65858, subdivision (a). As a
multifamily housing project, the Sandpiper proposal was exempted from the
moratorium extension by operation of law. The City did not make the finding
required by section 65858, subdivision (c) that continued approval of the project
would have a “specific, adverse impact upon the public health or safety.”10

10
The exemption policy set out in Goleta Ordinance No. 02-15 provided in
pertinent part: “Development projects for which no extension of the 45-day
moratorium imposed by Ordinance No. 02-13 is permitted under the provisions of
California Government Code Section 65858(c)(1).”
Section
65858,
subdivision (c) provides in pertinent part: “[A]ny interim
ordinance adopted pursuant to this section that has the effect of denying approvals
needed for the development of projects with a significant component of
multifamily housing may not be extended except upon written findings adopted by
the legislative body, supported by substantial evidence on the record, that all of the
following conditions exist:

“(1) The continued approval of the development of multifamily housing
projects would have a specific, adverse impact upon the public health or safety.
As used in this paragraph, a ‘specific, adverse impact’ means a significant,
quantifiable, direct, and unavoidable impact, based on objective, identified written
public health or safety standards, policies, or conditions as they existed on the date
that the ordinance is adopted by the legislative body.

“(2) The interim ordinance is necessary to mitigate or avoid the specific,
adverse impact identified pursuant to paragraph (1).

“(3) There is no feasible alternative to satisfactorily mitigate or avoid the
(Footnote Contd. On Next Page)
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Exempting the project from the extended moratorium in this fashion could not
reasonably be understood to imply that it would eventually receive approval.
Finally, Sandpiper claims it relied on the fact that the City “worked
extensively with [Sandpiper] to clear the County-imposed conditions from the
vesting tentative map at considerable expense to [Sandpiper].” However, as the
Court of Appeal held, estoppel may not be based on expenditures made before a
building permit or its functional equivalent has issued. (Shea Homes Limited
Partnership v. County of Alameda (2003) 110 Cal.App.4th 1246, 1269-1270.)

III. DISPOSITION
We affirm the judgment of the Court of Appeal.11
CORRIGAN, J.
WE CONCUR:

GEORGE, C. J.
BAXTER, J.
WERDEGAR, J.
CHIN, J.
MORENO, J.

(Footnote Contd. From Previous Page)

specific, adverse impact identified pursuant to paragraph (1) as well or better, with
a less burdensome or restrictive effect, than the adoption of the proposed interim
ordinance.”
11
Four requests for judicial notice were filed. (1) The request by Sandpiper
filed March 15, 2005 is denied. (2) The request by the City filed April 22, 2005 is
granted. (3) The request by amicus curiae Coalition of Labor, Agriculture, and
Business filed June 7, 2005 is denied. (4) The request by the City filed June 30,
2005 is denied.
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DISSENTING OPINION BY KENNARD, J.
I dissent for the reasons given below.
The majority opinion has three holdings: First, it concludes that under
Government Code section 66413.51 the developer here was not entitled to
approval of its final subdivision map because its application for a vesting tentative
subdivision map was not made within the statutory time constraints. The
developer, however, conceded this point in its opening brief to this court, as it did
below. Accordingly, the majority’s holding pertaining to section 66413.5 is
irrelevant to a resolution of this case.
Second, the majority holds that the city in question is not equitably
estopped by its conduct—participation in and encouragement of the developer’s
efforts to clear conditions imposed on the tentative map—from withholding final
subdivision map approval. Because of my conclusion that the city was required
under section 66474.1 to approve the developer’s final map, I need not reach the
estoppel issue.
Third, the majority concludes that the city, after its incorporation and
notwithstanding its adoption and readoption of the county’s land use regulations,
retained discretion to withhold ministerial approval of the developer’s final
subdivision map. I disagree. In my view, the city lacked such discretion.

1.
All further statutory references are to the Government Code.
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I.

The property in dispute consists of 14.46 acres within the coastal zone of
the County of Santa Barbara (County). In 1993, the County adopted the Goleta
Community Plan, which designated the parcel as lying within an affordable
housing zone. Two years later, the County approved development of the site with
105 residential units, half of them affordable housing. The County prepared and
certified a final environmental impact report for the proposed development. The
proposed development, however, was never built.
In June 1999, Oly Chadmar Sandpiper General Partnership (Sandpiper)
bought the parcel. On July 4, 1999, a petition to incorporate Goleta as a city
received its first signature.
On November 18, 1999, Sandpiper submitted to the County its vesting
tentative map application calling for construction of 109 residential units, with 20
per cent affordable housing. The County deemed the map application complete on
January 1, 2000.
On November 6, 2001, voters residing within the boundaries of the
proposed city passed a measure to incorporate Goleta.
On January 15, 2002, the County board of supervisors approved
Sandpiper’s development plan and its vesting tentative map for the 109-unit
project.
On February 1, 2002, Goleta’s incorporation as a city took effect. Under
section 57376, the County’s subdivision ordinances automatically became the
city’s subdivision ordinances for 120 days. The city council did not adopt
superseding ordinances, and the only textual change it made to the county
ordinances was to substitute “City of Goleta” for “County of Santa Barbara” and
“City Council” for “Board of Supervisors.” Ten days later, the City of Goleta
imposed a 45-day moratorium on approvals of all developments, including this
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one. Thereafter, the City of Goleta, on March 25, 2002, exempted Sandpiper from
the moratorium because its project included affordable housing and based on a
finding that the project posed no threat to public health, safety or welfare.
(§ 65858, subd. (c)(1).)
In June 2002, after the statutory 120 days had elapsed and the City of
Goleta had not enacted its own subdivision ordinances superseding those of the
County, it readopted the County’s subdivision ordinances without change.
(§ 57376.) In November 2002, a County employee acting as the city’s agent
submitted Sandpiper’s final subdivision map to the Goleta City Council for its
approval, having found the map to be technically correct and consistent with the
city’s subdivision ordinance, which provided that the city “shall approve the map
at its next regular meeting.” The city council held four regular meetings, and then
denied final map approval on January 6, 2003. Its resolution denying final map
approval stated, “There is not a reasonable probability that the project will be
consistent with the [city’s] general plan,” then still in preparation.
II.
The issue presented is simple: Did the newly incorporated City of Goleta
have discretion to deny approval of the developer’s final subdivision map that
substantially complied with a tentative vesting map previously approved by the
County? The answer is “No.”
In 1998, the Legislature enacted section 66413.5, as part of the Subdivision
Map Act (§ 66410 et seq.; Map Act), in response to uncertainty as to what rights
were retained by a developer who had obtained county approval of a tentative
vesting subdivision map once the acreage of the proposed subdivision became part
of a newly incorporated city. (Off. of Local Gov. Affairs, Enrolled Bill Rep. on
Sen. Bill No. 186 (1987-1988 Reg. Sess.) Aug. 24, 1988, p. 3; Sen. Coms. on
Local Gov. and Housing & Urban Affairs, Joint Hearing Rep. on New Cities and
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Land Use (Nov. 1987) Background, pp. 24-25.) In 1980, an Attorney General’s
opinion had concluded that under general provisions of the Map Act a new city’s
approval of a final conforming map was a purely ministerial duty. (63
Ops.Cal.Atty.Gen. 844, 848 (1980).) In 1985, the Legislative Analyst reached a
similar conclusion (Legis. Analyst, Vesting Tentative Maps: Incorporation or
Annexation, Opn. No. 15919 (July 15, 1985) p. 8), in an analysis prepared for
Senator Joseph Montoya, who later authored the bill that became section 66413.5.
(Sen. Bill No. 186 (1987-1988 Reg. Sess.) § 1.)
Section 66413.5, as signed into law, only partially addresses the approval
duty a newly incorporated city has as to tentative vesting maps approved by the
county before the city’s incorporation. Under that statute, when the county has
approved a tentative vesting map both before a petition to incorporate a new city
receives its first signature and before an incorporation election has been held, the
newly incorporated city must approve a final conforming map. Section 66413.5
thus provides a so-called safe harbor for only those projects receiving county
approval within a limited time frame. Notably the Legislature did not expressly
state what incorporation meant for projects falling outside the safe harbor of
section 66413.5. (See § 66413 [on annexation to a city of area included in a
tentative vesting map that has not yet received county’s final map approval, “all
procedures and regulations . . . of the annexing city shall be deemed to commence
as of the effective date of the annexation”].) Therefore, section 66413.5 is
irrelevant here, as the developer has consistently maintained.
The majority reasons that because Sandpiper does not come within the safe
harbor created by section 66413.5, Goleta, once its incorporation took effect, had
absolute discretion to deny approval of Sandpiper’s final map even though the
final map conformed to its county-approved tentative vesting map. The majority
reaches that result by relying on the County’s subdivision ordinances as adopted
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by the City of Goleta. I read section 66474.1 to control the application of those
ordinances.
In language that could not be any clearer, section 66474.1 states: “A
legislative body shall not deny approval” of a final subdivision map “if it has
previously approved a tentative map for the proposed subdivision and if it finds”
the final map “is in substantial compliance with the previously approved tentative
map.” When all the conditions pertaining to the tentative map have been met,
approval of the final map is a purely ministerial duty. (Youngblood v. Board of
Supervisors (1978) 22 Cal.3d 644, 648 (Youngblood); Great Western Sav. & Loan
Assn. v. City of Los Angeles (1973) 31 Cal.App.3d 403, 410 [“governing body’s
function is administrative, ministerial and mandatory where the final tract map”
complies with local laws and conditions imposed on tentative map].) In
Youngblood, “we held that a county lacked discretion under the Map Act to deny a
final subdivision map if the application showed the development substantially
conformed to the tentative map and its attendant conditions.” (City of West
Hollywood v. Beverly Towers, Inc. (1991) 52 Cal.3d 1184, 1190-1191.) The
rationale underlying the statutory scheme at issue is that once a “tentative map is
approved, the developer often must expend substantial sums to comply with the
conditions attached to that approval,” which “will result in the construction of
improvements consistent with the proposed subdivision, but often inconsistent
with alternative uses of the land.” (Youngblood, supra, 22 Cal.3d at p. 655.)
The majority here concludes that because it was the County, acting through
its board of supervisors, that approved Sandpiper’s tentative subdivision map,
Goleta’s city council is not subject to section 66474.1’s mandate that “the
legislative body” may not deny approval of a final map “if it has previously
approved a tentative map for the proposed subdivision.” (Maj. Opn. at pp. 6-8.)
The majority’s conclusion might have force had the City of Goleta not put itself in
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the shoes of the County by adopting and readopting the County’s subdivision
regulations as its very own, a point I discuss in detail below.
A newly incorporated city that comprises formerly unincorporated land is
required by statute, “immediately following its organization and prior to
performing any other official act, [to] adopt an ordinance providing that all county
ordinances previously applicable shall remain in full force and effect as city
ordinances for . . . 120 days after incorporation, or until the city council has
enacted ordinances superseding the county ordinances.” (§ 57376.) California’s
Map Act permits local ordinances to supplement its statutory procedures. “Of
course, if a local ordinance supplements procedures in the Map Act, and does not
conflict with them, the local ordinance does not ‘modify’ the Map Act.” (Griffis v.
County of Mono (1985) 163 Cal.App.3d 414, 425, fn. 14, italics omitted.) Here
Goleta, by operation of state law, adopted the County’s subdivision ordinances as
its very own the day after its incorporation as a city took effect. Four months later,
Goleta readopted the County’s subdivision ordinances. When Goleta denied
approval of Sandpiper’s final, conforming subdivision map on January 6, 2003,
some 11 months after Goleta’s incorporation took effect, it had not enacted
subdivision ordinances of its own, as it could have (§ 57376), either to supersede
those it took over from the County or to supplement the state law procedural
requirements imposed by the Map Act.
Nor did the City of Goleta seek to avail itself of an urgency provision in the
Map Act permitting a local public entity that has approved a vesting tentative map
to “condition or deny” final approval on findings that “[a] failure to do so would
place the residents of the subdivision or the immediate community, or both, in a
condition dangerous to their health or safety.” (§ 66498.1, subd. (c)(1), italics
added.)
6

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Only on January 6, 2003, when the City of Goleta denied approval of
Sandpiper’s final subdivision map, did the city council give a nod to this urgency
provision, citing the project’s potential inconsistency with Goleta’s “future general
plan.” Such potential inconsistency, the council concluded, “would be detrimental
to the health, safety, and general welfare of the City of Goleta.” But a mere
assertion of detriment does not comply with the urgency provision’s requirement
of danger to the health or safety of the residents of the subdivision or the
community. Moreover, Goleta’s concern about detriment to the health and safety
of its residents was a complete “about-face.” Nine and a half months earlier, on
March 25, 2002, when the City of Goleta exempted Sandpiper’s project from the
moratorium on development approvals, the city had concluded that the project
posed no threat to public health, safety or welfare.
For the reasons stated above, I would reverse the judgment of the Court of
Appeal.
KENNARD,
J.
7

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See last page for addresses and telephone numbers for counsel who argued in Supreme Court.

Name of Opinion City of Goleta v. Superior Court
__________________________________________________________________________________

Unpublished Opinion

Original Appeal
Original Proceeding
Review Granted XXX 122 Cal.App.4th 1182
Rehearing Granted

__________________________________________________________________________________

Opinion No.

S129125
Date Filed: December 21, 2006
__________________________________________________________________________________

Court:

Superior
County: Santa Barbara
Judge: J. William McLafferty

__________________________________________________________________________________

Attorneys for Appellant:

Julie Hayward Biggs, City Attorney; Burke, Williams & Sorensen, Brian A. Pierik, Geralyn L. Skapik,
Amy E. Morgan; Shute, Mihaly & Weinberger, Rachel Hooper and Ellison Folk for Petitioners.

Meyers, Nave, Ribak, Silver & Wilson, Peters S. Hayes, Amrit S. Kulkami and Kyle W. LaLonde for
League of California Cities and City of Laguna Woods as Amici Curiae on behalf of Petitioners.

Moscone, Emblidge & Quadra, G. Scott Emblidge and Rachel J. Sater for Carmel Valley Association as
Amicus Curiae on behalf of Petitioners.

Law Offices of Donald B. Mooney and Donald B Mooney for Sierra Club, Surfrider Foundation and Santa
Barbara Shores Homeowner’s Association as Amici Curiae on behalf of Petitioners.

__________________________________________________________________________________

Attorneys for Respondent:

No appearance for Respondent.

Allen Matkins Leck Gamble & Mallory, Patrick E. Breen, Anthony J. Oliva, Patrick A. Perry; Hollister &
Brace, Richard C. Monk, Marcus Bird; Lascher & Lascher and Wendy C. Lascher for Real Party in
Interest.

June Babiracki Barlow and Grant Michiaki Habata for California Association of Realtors as Amicus Curiae
on behalf of Real Party in Interest.

Stoel Rives and James P. Corn for Consulting Engineers and Land Surveyors of California as Amicus
Curiae on behalf of Real Party in Interest.

Stephen Shane Stark, County Counsel (Santa Barbara), Alan L. Seltzer, Chief Assistant County Counsel,
and Kelly A. Casillas, Deputy County Counsel, as Amici Curiae on behalf of Real Party in Interest.

---

Page 2 – S129125 – counsel continued

Attorneys for Respondent:

California Rural Legal Assistance and Kirk Ah-Tye for Kathryn Lubahn as Amicus Curiae on behalf of
Real Party in Interest.

James S. Burling for Pacific Legal Foundation as Amicus Curiae on behalf of Real Party in Interest.

Hill & Trager and Russell R. Ruiz for Goleta Water District as Amicus Curiae on behalf of Real Party in
Interest.

Richard Kelton for Bollenbacher & Kelton, Inc. as Amicus Curiae on behalf of Real Party in Interest.

Reetz, Fox & Bartlett and Randall Fox for Coalition of Labor, Agriculture and Business as Amicus Curiae
on behalf of Real Party in Interest.

Nick Cammarota for California Building Industry Association and California Land Surveyors Association
as Amici Curiae on behalf of Real Party in Interest.

Bill Lockyer, Attorney General, Tom Greene, Chief Assistant Attorney General, Mary E. Hackenbracht,
Assistant Attorney General, and Denise Ferkich Hoffman, Deputy Attorney General, for Department of
Housing and Community Development as Amicus Curiae on behalf of Real Party in Interest.

---

Counsel who argued in Supreme Court (not intended for publication with opinion):

Brian A. Pierik
Burke, Williams & Sorensen
3403 Tenth Street, Suite 300
Riverside, CA 92501
(951) 788-0100

Richard C. Monk
Hollister & Brace
P.O. Box 630
Santa Barbara, CA 93102-0630
(805) 963-6711

---

Opinion Information

Date:	Docket Number:
Thu, 12/21/2006	S129125

Disposition
Dec 21 2006	Opinion: Affirmed

Dockets
Nov 9 2004	Petition for review filed   By counsel for RPI {Oly Chadmar Sandpiper General Partnership}.
Nov 9 2004	Record requested
Nov 17 2004	Received Court of Appeal record   one doghouse
Nov 29 2004	Answer to petition for review filed   Petitioiner, The City of Goleta
Dec 8 2004	Record requested   Requested 20 volumes of exhibits to be here by 12/10/04.
Dec 9 2004	Received Court of Appeal record   Two boxes (20 Vols. of exhibits).
Dec 9 2004	Reply to answer to petition filed   By RPI {Oly Chadmar Sandpiper General Partnership}.
Dec 22 2004	Petition for review granted (civil case)   Werdegar, J., was absent and did not participate. Votes: George, C.J., Kennard, Baxter, Chin, Brown, and Moreno, JJ.
Dec 22 2004	Letter sent to:   parties re: Certification of Interested Entities or Persons
Dec 27 2004	Request for extension of time filed   by real party in interest Oly Chadmar Sandpiper General Partnership: requesting a 30-day extension to and including February 20, 2005, to file opening brief on the merits.
Dec 30 2004	Certification of interested entities or persons filed   petitioner City of Goleta
Jan 5 2005	Extension of time granted   To February 20, 2005 to file RPI's Opening Brief on the Merits. No further extensions will be granted.
Jan 6 2005	Certification of interested entities or persons filed   By counsel for RPI.
Feb 17 2005	Opening brief on the merits filed   By counsel for RPI {Oly Chadmar Sandpiper General Partnership}.
Mar 3 2005	Request for extension of time filed   by counsel for petitioner City of Goleta: requesting a 31-day extension to and including April 18, 2005 to file answer brief on the merits.
Mar 9 2005	Extension of time granted   To April 18, 2005 to file petitioner's answer brief on the merits. No further extensions will be granted.
Mar 15 2005	Request for judicial notice filed (granted case)   By RPI {Oly Chadmar Sandpiper General Partnership}.
Apr 18 2005	Answer brief on the merits filed   petitioner CITY OF GOLETA
Apr 22 2005	Request for judicial notice filed (granted case)   petitioner CITY OF GOLETA
Apr 22 2005	Opposition filed   By petitioner to RPI's Request for Judicial Notice.
Apr 29 2005	Received application to file Amicus Curiae Brief   by California Association of Realtors in support of real party in interest
May 6 2005	Received:   RPI's oversized Reply Brief on the Merits.
May 6 2005	Permission to file amicus curiae brief granted   California Association of Realtors in support of RPI.
May 6 2005	Amicus curiae brief filed   California Association of Realtors in support of RPI. Answer is due within twenty days.
May 9 2005	Application to file over-length brief filed
May 10 2005	Received application to file Amicus Curiae Brief   by Consulting Engineers and Land Surveyors of California in support of real party in interest
May 10 2005	Reply brief filed (case fully briefed)   By RPI. Filed w/perm.
May 13 2005	Permission to file amicus curiae brief granted   Consulting Engineers & Land Surveyors of California in support of RPI.
May 13 2005	Amicus curiae brief filed   Consulting Engineers & Land Surveyors of California in support of RPI. Answer is due within twenty days.
May 26 2005	Response to amicus curiae brief filed   ac brief of Calif Assn of Realtors>>petitioners city of Goleta, etal
May 26 2005	Received application to file Amicus Curiae Brief   by Bollenbacher & Kelton, Inc., in support of real party in interest
May 26 2005	Received application to file Amicus Curiae Brief   by Pacific Legal Foundation in support of real party in interest
May 31 2005	Received application to file Amicus Curiae Brief   by Goleta Water District in support of real party in interest
Jun 2 2005	Received application to file Amicus Curiae Brief   by Coalition of Labor, Agriculture and Business in support of real party in interest
Jun 2 2005	Received application to file Amicus Curiae Brief   Kathryn Lubahn in support of RPI (Application included with brief).
Jun 2 2005	Received application to file Amicus Curiae Brief   County of Santa Barbara in support of RPI (Application included with brief).
Jun 2 2005	Response to amicus curiae brief filed   petitioners The City of Goleta et al response to a.c. of Consulting Engineers and Land Surveyors of California
Jun 6 2005	Permission to file amicus curiae brief granted   KATHRYN LUBAHN in support of RPI ( Chadmar) . Answer due within 20 days.
Jun 6 2005	Amicus curiae brief filed   KATHRYN LUBAHN in support of RPI.
Jun 6 2005	Permission to file amicus curiae brief granted   Pacific Legal Foundation in support of RPI.
Jun 6 2005	Amicus curiae brief filed   Pacific Legal Foundation in support of RPI. Answer is due within twenty days.
Jun 6 2005	Permission to file amicus curiae brief granted   Goleta Water District in support of RPI.
Jun 6 2005	Amicus curiae brief filed   Goleta Water District in support of RPI. Answer is due within twenty days.
Jun 6 2005	Permission to file amicus curiae brief granted   Bollenbacher & Kelton, INC., in support of RPI.
Jun 6 2005	Amicus curiae brief filed   Bollenbacher & Kelton, Inc., in support of RPI. Answer is due within twenty days.
Jun 6 2005	Received application to file Amicus Curiae Brief   by California Building Industry Association and California Land Surveyors Association in support of RPI.
Jun 6 2005	Permission to file amicus curiae brief granted   County of Santa Barbara in support of RPI.
Jun 6 2005	Amicus curiae brief filed   County of Santa Barbara in support of RPI. Answer is due within twenty days.
Jun 7 2005	Permission to file amicus curiae brief granted   Coalition of Labor, Agriculture and Business in support of RPI.
Jun 7 2005	Amicus curiae brief filed   Coalition of Labor, Agriculture and Business in support of RPI. Answer is due within twenty days.
Jun 7 2005	Request for judicial notice filed (granted case)   AC Coalition of Labor, Agriculture and Business.
Jun 8 2005	Received application to file Amicus Curiae Brief   by Sierra Club, The Sufrider Foundation and Santa Barbara Shores Homeowner's Association in support of petitioners.
Jun 9 2005	Received application to file Amicus Curiae Brief   (in Sacramento) by California Department of Housing and Community Development.
Jun 9 2005	Received application to file Amicus Curiae Brief   by League of California Cities in support of petitioners.
Jun 9 2005	Received application to file Amicus Curiae Brief   by Carmel Valley Association in support of petitioners.
Jun 10 2005	Permission to file amicus curiae brief granted   League of California Cities in support of petitioner.
Jun 10 2005	Amicus curiae brief filed   League of California Cities in support of Petitioner. Answer is due within twenty days.
Jun 10 2005	Permission to file amicus curiae brief granted   Carmel Valley Association in support of petitioner.
Jun 10 2005	Amicus curiae brief filed   Carmel Valley Association in support of petitioner. Answer is due within twenty days./
Jun 10 2005	Permission to file amicus curiae brief granted   Sierra Club, Surfrider Foundation and Santa Barbara Shores Homeowner's Association in support of petitioner.
Jun 10 2005	Amicus curiae brief filed   Sierra Club, Surfrider Foundation and Santa Barbara Shores Homeowner's Association in support of petitioner. Answer is due within twenty days.
Jun 10 2005	Permission to file amicus curiae brief granted   California Building Industry Association and California Land Surveyors Association in support of RPI.
Jun 10 2005	Amicus curiae brief filed   California Building Industry Association and California Land Surveyors Association in support of RPI. Answer is due wihin twenty days.
Jun 15 2005	Permission to file amicus curiae brief granted   California Department of Housing and Community Development in support of RPI.
Jun 15 2005	Amicus curiae brief filed   California Department of Housing and Community Development in support of RPI. Answer is due within twenty days.
Jun 27 2005	Response to amicus curiae brief filed   counsel for petnrs THE CITY OF GOLETA to a/c brief of COUNTY OF SANTA BARBARA
Jun 30 2005	Response to amicus curiae brief filed   Petnr. City of Goleta answering a.c. of Building Industry Association and California Land Surveyors Assoc.
Jun 30 2005	Filed:   application for permission for petnr CITY OF GOLETA to file combined answer to a/c briefs of Pacific Legal Foundation, Goleta Water District, Bollenacher & Kelton, Coaltion of Labor, Agriculture & Business. (Answer of Petnr. CITY OF GOLETA under seperate cover)
Jun 30 2005	Request for judicial notice filed (granted case)   Petnr. City of Goleta submitted concurrent with response to a.c. brief
Jun 30 2005	Response to amicus curiae brief filed   RPI Oly Chadmar
Jul 5 2005	Response to amicus curiae brief filed   petnr's. City of Goleta to Dept. to Amicus Brief of Housing and Community Development
Jul 11 2005	Response to amicus curiae brief filed   Petitioner ( City of Goleta) one consolidated brief to ac briefs of Pac. Legal, Goleta Water,Bollenbacher, Coalition of Labor,Agriculture & Business, Lubahn.
Sep 5 2006	Case ordered on calendar   October 3, 2006, at 9:00 a.m., in Santa Barbara
Sep 7 2006	Request for Extended Media coverage Filed   by The California Channel.
Sep 7 2006	Request for Extended Media coverage Granted   subject to the conditions set forth in rule 980, California Rules of Court.
Sep 11 2006	Request for Extended Media coverage Filed   Santa Barbara News Press to serve as "pool" photographer.
Sep 14 2006	Request for Extended Media coverage Granted   subject to the conditions set forth in rule 980, California Rules of Court.
Oct 3 2006	Cause argued and submitted
Dec 21 2006	Opinion filed: Judgment affirmed in full   Majority opinion by Corrigan, J. -----------------------joined by George, C.J, Baxter, Werdegar, Chin, Moreno, JJ. Dissent by Kennard, J.
Jan 23 2007	Remittitur issued (civil case)

Briefs
Feb 17 2005	Opening brief on the merits filed
Apr 18 2005	Answer brief on the merits filed
May 6 2005	Amicus curiae brief filed
May 10 2005	Reply brief filed (case fully briefed)
May 13 2005	Amicus curiae brief filed
May 26 2005	Response to amicus curiae brief filed
Jun 2 2005	Response to amicus curiae brief filed
Jun 6 2005	Amicus curiae brief filed
Jun 6 2005	Amicus curiae brief filed
Jun 6 2005	Amicus curiae brief filed
Jun 6 2005	Amicus curiae brief filed
Jun 6 2005	Amicus curiae brief filed
Jun 7 2005	Amicus curiae brief filed
Jun 10 2005	Amicus curiae brief filed
Jun 10 2005	Amicus curiae brief filed
Jun 10 2005	Amicus curiae brief filed
Jun 10 2005	Amicus curiae brief filed
Jun 15 2005	Amicus curiae brief filed
Jun 27 2005	Response to amicus curiae brief filed
Jun 30 2005	Response to amicus curiae brief filed
Jun 30 2005	Response to amicus curiae brief filed
Jul 5 2005	Response to amicus curiae brief filed
Jul 11 2005	Response to amicus curiae brief filed

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