Opinion
Plаintiff, The Habitat Trust for Wildlife, Inc. (Habitat), appeals from a judgment in favor of defendants City of Rancho Cucamonga and city council of the City of Rancho Cucamonga (sometimes City Council otherwise, collectively City) on its petition for writ of mandate. By its petition Habitat sought to force City to set aside a resolution determining that Habitat is not a qualified conservation entity (QCE) and to enter a new resolution based upon substantial evidence and in compliance with California law. Habitat argues that the petition was wrongfully denied by the trial court because it employed the wrong standard of review, because City denied
In a second, related case, plaintiffs Habitat and Spirit of the Sage Council, Inc. (Sage, collectively Habitat/Sage), appeal from a judgment entered in favor of defendants Henderson Creek Properties, LLC (Henderson), SPS Development Services, Inc. (SPS, collectively Henderson/SPS), Rancho 2004, LLC, Granite Homes of California, Inc., Granite Homes, Inc., Granite Construction Services, LP (collectively Granite), and County Service Area 70, Improvement Zone OS-1 (hereinafter sometimes, County) after their motions for summary judgment were granted. Habitat/Sage sought damages for breach of contract, breach of the covenant of good faith and fair dealing and constructive trust. They claim that the trial court erred in granting summary judgment because it exceeded its authority by invading the province of the trier of fact, made findings unsupported by fact or law, improperly struck most of their evidence, failed to consider reasonable inferences that supported a triable issue of material fact and failed to give effect to the contract’s savings clause. Habitat/Sage also challenge the judgment insofar as it was entered against them on Henderson’s cross-complaint for rescission.
In the third appeal Habitat/Sage challenge the postjudgment order awarding Henderson/SPS and Granite their attorney fees and costs. In their opening brief they expressly state that their challenge to these orders is based solely upon their claim that the underlying judgment should be reversed.
We affirm the challenged judgments and orders.
FACTUAL AND PROCEDURAL HISTORY
Henderson sought to develop 65.3 acres of land within the sphere of influence of City into a residential subdivision to be annexed to the City.
2
The draft environmental impact report (EIR) proposed that Henderson convey 58 acres of off-site land to San Bernardino County Special District OS-1 (County Special District) in order to mitigate the potential loss of habitat for sensitive plant and animal species and the loss of raptor foraging land caused by the project. Sage, a nonprofit environmental advocacy group, opposed the project on the grounds that the mitigation required in the draft EIR was inadequate to protect the environment. Sage suggested that Henderson donate mitigation lands to Habitat, a tax-exempt nonprofit land trust created by Sage to own three parcels of mitigation land obtained through litigation over
Sage and Habitat appealed the resolution of the planning commission and informed the mayor and the City Council that they did not agree with the final EIR, which they found deficient in a number of respects. At its meeting on June 16, 2004, the City Council certified the final EIR, denied the appeal of the planning commission resolution, and approved other resolutions related to Henderson’s project. The resolution approving the tentative tract map contained the same land transfer mitigation as required by the planning commission, as quoted above.
City and Henderson entered a development agreement dated July 7, 2004. The agreement provided that “[t]he the City shall not be prevented, in subsequent actions applicable to the Project, from applying new ordinances, rules [,] regulations and policies” so long as they do not conflict with laws existing at the time the agreement was entered. The agreement mirrored the final EIR in that it further provided, “[t]he Property Owner shall transfer to the County of San Bernardino Special District OS-1 or other qualified conservation entity approved by the City, in fee, a minimum of 54-acres of off-site land for permanent open space and habitat preservation; along with funding in an amount to be mutually agreed upon by the Property Owner and the conservation entity, to provide for long-term maintenance of said land.” In addition, with respect to future entitlements (which included all of the conditions and mitigation measures stated in the resolutions of approval made by the planning commission and the City Council) City specifically retained its discretionary review authority. The agreement was specifically made enforceable by the parties. Further, it provided that “[w]here the consent or
In July and August 2004, Sage filed three petitions for writ of mandate against City based upon its certification of documents required by the California Environmental Quality Act (CEQA; Pub. Resources Code, § 21000 et seq.) on three residential development projects. However, in order to prevent a CEQA challenge to the Henderson project based upon inadequate mitigation of environmental impacts, Henderson, Sage and Habitat entered into an agreement, dated July 18, 2004 (Agreement). Henderson agreed to convey a specified parcel of real property consisting of 86 acres to Habitat for conservation purposes, along with providing gates, fences and barriers in an amount not to exceed $15,000, plus $100,000 for administration costs, $25,000 for attorney fees and an endowment of $430,750 ($5,000 per acre for 86.15 acres). It also agreed to let Habitat onto the property to be developed to collect plantlife for conservation purposes prior to grading. Habitat and Sage agreed to withdraw the objections to the Henderson project that they had lodgеd with the City, agreed not to challenge the EIR nor any of the required project approvals, and released Henderson and its assigns and successors from all claims arising out of or related to the Henderson project. The enumerated conditions to the close of escrow on the property to be conveyed to Habitat did not include its approval by City as a QCE. The Agreement was binding on all successors and assigns. The Agreement also stated that all provisions of the contract would remain in effect if any other provision was found illegal or unenforceable and should be interpreted as if mutually prepared.
On September 14, 2004, Larry Henderson, City’s principal planner (Planner), asked a Henderson representative to submit a written proposal that Sage be approved as the receiving entity for the mitigation land, providing documentation on the qualifications of Sage and the reasons for its recommendation. On September 23, 2004, Henderson’s representative requested that Habitat be approved as the QCE to receive the mitigation lands required by BIO-1 of the final EIR and attached copies of documents from Habitat’s Web site, both describing its nature sanctuary in the area and the method by which it seeks donations, and a letter from the Internal Revenue Service, dated October 8, 2003, finding Habitat to be exempt from federal income taxation under Internal Revenue Code section 501(c)(3). In response, City informed Henderson’s representative that the transfer plan would need to be approved by the City Council and listed nine items that would need to be submitted: (1) Habitat’s incorporation papers, (2) its board of directors meeting minutes for the action approving acceptance of the transfer, (3) its bylaws, (4) its most recent auditor’s report, (5) a copy of the habitat resource management plan for the nearest site currently owned by Habitat, (6) a list of its board
On November 3, 2004, Granite sent City a letter informing it that Granite had acquired Henderson’s interest in the Henderson project, and had forwarded the request for information about Habitat on to that entity, which had yet to respond. The letter also informed City that if for any number of reasons the transfer to Habitat did not take place, Granite would transfer property under mitigation BIO-1 to the County.
By December 10, 2004, Granite’s representative informed City that Habitat believed documents it had already submitted addressed all of City’s requirements and requested information regarding the further processing of the land transfer. On December 14, 2004, Planner informed Granite’s representative that City still did not have all of the information requested on Habitat, including audited financial records, a land management plan, “etc., etc. . . .” Granite’s representative responded that the letters that Habitat’s attorney submitted with the materials provided to City explained how the information previously provided addressed those specific requests.
On January 5, 2005, Sage and Habitat filed a complaint against SPS and Henderson for breach of contract and fraud based upon their failure to transfer the land as required by the Agreement. The following day, City sent a letter to Granite’s representative listing the nine items requested by City and outlining its concerns with the items where the responses on Habitat’s behalf were deemed less than adequate. Granite’s representative forwarded City’s letter to Habitat on January 10, 2005. Habitat recorded a notice of pendency of action against four parcels on January 11, 2005.
On January 13, 2005, Habitat’s attorney refused Granite’s offer to allow it to process the land transfer application directly to City. He also forwarded to Henderson’s attorney Habitat’s response to items four through nine of City’s list. He communicated directly with City by letter dated January 31, 2005, demanding that City provide Habitat with due process (notice and an opportunity to be heard) relating to City’s decision to disqualify Habitat from receiving mitigation land in conjunction with the Henderson project, and requesting a continuance of the hearing scheduled for February 2, 2005. On February 2, 2005, Habitat provided City with an operations plan and annual work plan assessment for its currently managed nature sanctuaries. The agenda for the City Council meeting on the same date listed consideration of Granite’s request to have City approve Habitat as the recipient of mitigation lands for the Henderson project. The staff report prepared by Planner recommended that City determine that Habitat had not demonstrated sufficient qualifications to have the mitigation land transferred to it. Specifically,
At the February 2, 2005, meeting, the City Council voted to continue the item to its February 16, 2005, meeting in order to allow Planner to review the additional materials received from Habitat. Planner issued a staff report for the February 16, 2005, meeting, which again recommended that Habitat had not demonstrated sufficient qualifications to accept the land transfer for substantially the same reasons listed previously. On February 16, 2005, Habitat’s counsel faxed City a letter challenging the conclusions reached in the staff report as well as the findings in support of the proposed resolution, and including additional attachments. At the meeting, Planner presented his report advising that he believed the County was “a more appropriate entity to receive the land” based upon its position as a “complete and publicly accountable management entity.” The City Council was informed by the city attorney that as of February 11, 2005, Habitat was suspended as a California corporation. Habitat’s attorney also addressed the City Council. The City Council unanimously adopted the resolution establishing criteria for the designation of conservation entities to manage open space habitat transfer lands and denying Granite’s request to allow the transfer of mitigation lands for the Henderson project to Habitat. The criteria established to determine whether an entity was qualified to accept mitigation lands were: “a. The entity must have fulfilled the legal requirements necessary for the creation of the public or private entity, [f] b. The entity must demonstrate sufficient capability in terms of resources, available staff, and offices to provide sufficient management of the land and to respond in a timely manner to issues that arise thereupon, [f] c. The entity must have proposed a site-specific Habitat Resource Management Plan and an Operations Plan to ensure management and operation of the land in compliance with any applicable mitigations measurеs, [f] d. The entity must be accountable to the members of the immediate community for the entity’s management of the land.”
In the meantime, on February 14, 2005, Granite filed a demurrer to the complaint for breach of contract based on the fact that satisfaction of mitigation condition BIO-1, which had yet to occur, was a prerequisite to a
On February 18, 2005, Henderson/SPS filed their answer to the breach of contract complaint alleging the affirmative defenses of failure of consideration and commercial frustration among others, and also filed a cross-complaint for rescission based upon failure of consideration, mutual mistake and duress. Habitat/Sage’s special motion to strike the cross-complaint under Code of Civil Procedure 3 section 425.16 was denied. They filed their answer to the cross-complaint on May 5, 2005.
Habitat filed a petition for writ of mandate under sections 1085 and 1094.5 on May 17, 2005, challenging City’s determination that it was not a QCE for the purpose of receiving and managing land to mitigate the environmental impacts of projects within the City. On June 27, 2005, Habitat filed a first amended petition alleging that City’s determination that Habitat was not a QCE was not supported by substantial evidence, but instead resulted from collusion between City and Henderson and/or Granite. It also contended that City acted contrary to law. City’s decision allegedly prevented Habitat from conducting and growing its business and damaged Habitat’s reputation as a land trust and thereby deprived it of a fundamental, vested right. In its memorandum of points and authorities filed May 18, 2006, Habitat argued that City unreasonably withheld its consеnt to approval of Habitat as a QCE despite an agreement with Henderson to the contrary, that City exceeded its authority in denying QCE status to Habitat under state and federal statutes, that City’s hearing was arbitrary, unfair and capricious because its criteria were vague and because Habitat was not a part of the proceedings but instead had to rely on the project applicant who made false and inaccurate statements about Habitat’s qualifications, and that City’s findings were not supported by the evidence and some were not legally permissible. City filed an answer and responsive memorandum of points and authorities challenging Habitat’s contentions regarding the proper standard of review and denying that any argument in the petition had merit.
On June 13, 2005, pursuant to motions by Henderson/SPS and Granite the trial court ordered the lis pendens recorded by Habitat expunged. Habitat/Sage’s July 2005 application to file a second lis pendens and for attachment and protective orders was also denied.
Both Henderson/SPS and Granite filed demurrers and motions to strike. The demurrers concern the third cause of action for constructive trust and the fourth cause of action for unjust enrichment. On January 5, 2006, the trial court sustained the demurrers as to the third cause of action without leave to amend and as to the fourth cause of action with leave to amend. It also struck the allegations regarding specific performance from the complaint without leave to amend and struck those regarding Cecil Johnson’s ownership of the land at issue with leave to amend. Habitat/Sage subsequently filed a notice of their election not to amend their first amended complaint, leaving only the causes of action for breach of contract and breach of the covenant of good faith and fair dealing as to moving defendants.
Granite and Henderson/SPS filed answers and County filed a demurrer to the breach of contract and constructive trust causes of action in the first amended complaint. The trial court entered a default against Cecil M. Johnson as trustee of the Cecil M. Johnson Family Trust (Johnson) on March 21, 2006. Later, it sustained County’s demurrer to the first cause of action without leave to amend and to the third cause of action with leave to amend.
On April 11, 2006, Habitat/Sage filed the operative second amended complaint including causes of action for breach of contract and breach of the covenant of good faith and fair dealing against Henderson/SPS and Granite, and a cause of action for constructive trust against Johnson and County. Granite, Henderson/SPS and County answered. On June 23, 2006, Brody McFarland (McFarland) was substituted in as a defendant in place of Johnson, who had passed away. McFarland’s demurrer to the second amended complaint was sustained without leave to amend. Habitat/Sage’s subsequent motion to have McFarland substituted in as successor trustee in place of Johnson was granted and McFarland filed an answer to the second amended complaint.
While the status of the pleadings was being finalized in the contract action, after a hearing at which the trial court took the matter under submission, a
On January 29, 2007, Habitat/Sage filed a motion for summary adjudication of issues regarding certain of Henderson/SPS and Granite’s affirmative defenses and Henderson/SPS’s cross-complaint for rescission. While that motion was pending, County, Henderson/SPS, and Granite filed motions for summary judgment. On April 17, 2007, the trial court denied Habitat/Sage’s motion for summary adjudication of issues in its entirety. After a hearing on June 5, 2007, the trial court granted all three motions for summary judgment. Pursuant to a stipulation and order filed on July 2, 2007, McFarland was dismissed from the action as if he had filed a motion for summary judgment on the same grounds as the moving parties. Judgment was entered in favor of the remaining defendants on July 2, 2007. Habitat/Sage then filed a notice of appeal. It also filed a motion to correct a clerical error in the judgment, which was denied.
The trial court granted in part and denied in part Habitat/Sage’s motion to tax costs claimed by Henderson/SPS. Henderson/SPS and Granite then moved for attorney fees based upon a provision in the Agreement. The trial court granted attorney fees of $666,849.50 to Henderson/SPS and $275,916.75 for attorney fees plus $11,195.68 in costs to Granite. Orders were subsequently filed and Habitat/Sage filed its third notice of appeal.
DISCUSSION
A. Petition for Writ of Mandate
1. Standard of Review
Habitat first argues that because the July 7, 2004, agreement between City and Henderson stated that necessary consent or approvals would not be unreasonably withheld by either party, the standard of review that should be applied to its writ petition is a reasonableness standard. It then argues that because City denied Habitat QCE status for the Henderson project knowing both that a contrаct existed transferring the mitigation land to Habitat and that Habitat had already been deeded mitigation land from City projects, because the denial creates a “stigma” against it, and because City’s resolution was an adjudicatory action, a fundamental right is implicated, which requires an independent review standard.
Generally, the inquiry for the issuance of a writ of administrative mandamus is whether the entity whose decision is challenged committed a prejudicial abuse of discretion by failing to proceed in the manner required by law,
While not terming it precisely as such, Habitat essentially argues that the clause in City’s agreement with Henderson requiring that City not unreasonably withhold approvals should be viewed as a waiver of the general standard of review. “All case law on the subject of waiver is unequivocal: ‘ “Waiver always rests upon intent. Waiver is the intentional relinquishment of a known right after knowledge of the facts.[”] [Citations.] The burden, moreover, is on the party claiming a waiver of a right to prove it by clear and convincing evidence that does not leave the matter to speculation, and “doubtful cases will be decided against a waiver.” ’ [Citations.]”
(DRG/Beverly Hills, Ltd. v. Chopstix Dim Sum Cafe & Takeout III, Ltd.
(1994) 30 CaI.App.4th 54, 60 [
In addition, Habitat has failed to address the clause in the agreement that states that consent will not be unreasonably withheld, “unless the context otherwise indicates . . . .” Although we do not conclude that this clause applies here, Habitat has not attempted to show that it does not. Therefore, on this independent ground we must again conclude it has not met its burden. Consequently the trial court did not err in refusing to apply a reasonableness standard in determining whether the writ should be granted.
Habitat’s argument misperceives the nature of the decision rendered by City. The question under City’s consideration was whether the applicant had sufficiently demonstrated that Habitat met its criteria to be a QCE for mitigation measure BIO-1 for the Henderson project. Simply because Habitat may have had a contract with Henderson/Granite to obtain a specified parcel of land, it does not follow that it had a fundamental, vested right to be found to be a QCE by City. Indeed, Habitat strongly urges in these consolidated appeals that the two questions are completely unrelated.
In addition, even if City’s resolution had directly involved whether Habitat would receive land that it had contracted to obtain, there is no evidence in the record that the contract had been completed at the time of City’s decision. In fact, at the time of City’s decision, there existed a lawsuit wherein Habitat claimed that the contract had been breached because the land had not been transferred as promised. A vested right is one that is either already possessed or legitimately acquired.
(Berlinghieri v. Department of Motor Vehicles
(1983)
Habitat next claims that it had a fundamental vested right to be a QCE because it had already received mitigation lands from prior City development projects. In this regard it attempts to analogize its right to that of licensees. Such cases have distinguished between thе denial of the application for a license, which does not contemplate a vested right, and the suspension or
Next, Habitat claims that City’s denial of QCE status stigmatizes it and it is therefore entitled to independent review. The case that it cites,
Lubey v. City and County of San Francisco
(1979)
None of this discussion affects the standard of review on appeal since, even when the trial court is required to apply the independent judgment standard of review, the standard of review on appeal of the trial court’s determination remains the substantial evidence test.
(Fukuda, supra,
2. Due Process
Habitat next asserts that City engaged in backroom dealing in order to establish criteria that would exclude Habitat as a QCE and then adopted those
The evidence in the record does not support any finding that improper ex parte communications occurred with a view to denying Habitat QCE status with respect to the Henderson project. County Supervisor Paul Biane contacted City in June 2004, requesting that it change its development agreements to indicate a preference for County special districts to receive CEQA mitigation lands because it was accountable to and available to the public, had an approved management plan and had adequate resources. In response, City did not change its development agreement, but adopted a procedure by which the approval of any other QCE would be done by the City Council instead of by Planner. While Habitat ascribes nefarious purposes to this by labeling it a “backroom deal” effected through “ex parte communications” that constituted “foul play,” and decries City’s failure to disclose Supervisor Biane’s letter to it and to the public, it fails to cite any authority that might indiсate any wrongful action by City in this situation. There is no evidence that City attempted to keep Supervisor Biane’s correspondence, or its response thereto, a secret. Further, there is no evidence that this change from approval by Planner to approval by the City Council resulted in any material change to Habitat’s rights. In fact, the record suggests that it was Planner, not the City Council, who suggested criteria for the approval of QCE’s. This, and the fact that Planner recommended that the City Council find that insufficient evidence had been presented to conclude Habitat was qualified strongly suggest that the change in procedure reflected by the memo in response to Supervisor Biane’s letter had no effect whatsoever on Habitat’s rights.
Of course, this discussion assumes that Habitat had any “rights” with respect to the procedure City used to determine that it was a QCE for the Henderson project. The only right that Habitat claims City abridged was its due process right to meaningful notice and an opportunity to be heard prior to City’s resolution. However, Habitat does not explain why it was entitled to due process in the first instance. Article I, section 7, of the California Constitution provides that “[a] person may not be deprived of life, liberty, or property without due process of law . . . .” The Fourteenth Amendment to the United States Constitution provides the same protection. Habitat makes no argument that shows how City’s action deprives it of a liberty or property interest for which due process attaches. Rather, its assertions merely assume that it has a due process right. By failing to demonstrate that it is entitled to the right that it claims, Habitat has not carried its burden on appeal to prove that it is entitled to the relief it seeks.
(State Farm Fire & Casualty Co. v. Pietak
(2001)
Despite that refusal, Habitat began corresponding directly with City on January 31, 2005, demanding notice of City’s proposed findings and an opportunity to be heard. The record demonstrates that City complied with Habitat’s request by sending it a copy of the staff report and continuing its deliberation of the matter so that the materials submitted by Habitat could be considered. City accepted and reviewed documents submitted by Habitat in response to Planner’s staff reports, and counsel for Habitat spoke at the City Council meeting prior to the adoption of the resolution. Thus, Habitat had notice of the specific deficiencies noted by Planner in support of his recommendation not to approve Habitat and had an opportunity to address those issues prior to any action by City. Assuming that Habitat was entitled to due process, a fact that it has not demonstrated, the trial court did not err in concluding that due process had been afforded.
3. Adequacy of City’s Criteria
Habitat argues that the criteria that City established for determining whether an entity is a QCE were improperly adopted, not in a manner required by law, and should be nullified or voided because they are vague and uncertain, and because they conflict with state and federal laws.
Habitat first claims that City’s adoption of criteria to аssess whether an entity would be a QCE for the purpose of obtaining CEQA mitigation lands for which City bore responsibility was improper because the action was akin to legislation. Habitat argues that the item was not on the agenda for the February 16, 2005, meeting, nor was it discussed prior to its adoption by City. Although it does not so state, we presume Habitat’s purpose in citing
Central Manufacturing District, Inc. v. Board of Supervisors
(1960)
Habitat next argues that City’s criteria are unconstitutionally vague and uncertain because it cannot be determined what is necessary in order to comply with them. “It is well settled that ‘a statute which either forbids or requires the doing of an act in terms so vague that [people] of common intelligence must necessarily guess at its meaning and differ as to its application violates the first essential of due process of law.’ [Citations.] This principle applies not only to statutes of a penal nature but also to those prescribing a standard of conduct which is the subject of administrative regulation. [Citations.] The language used in such legislation ‘must be definite enough to provide a standard of conduct’ for those whose activities are prescribed as well as a standard by which the agencies called upon to apply it can ascertain compliance therewith. [Citation.]”
(McMurtry v. State Board of Medical Examiners
(1960)
Specifically, Habitat claims that it does not understand what is meant by the requirement that an entity seeking to hold mitigation land must “demonstrate
sufficient capability
in terms of
resources,
available staff, and offices to provide
sufficient management
of the land and to respond in a
timely manner
to issues that arise thereupon” or by the requirement that it “must be
accountable
to the members of the
immediate community
for the entity’s management of the land” with respect to the italicized terms. (Italics added.) Once again, the problem with this assertion is that it assumes that the analysis of unconstitutional vagueness should apply in the context of City’s resolution without citation to any authority that it should be so. Counsel did not attempt to remedy this problem in his oral argument on this point. The issue is consequently waived.
(Roden, supra,
155 Cal.App.4th at pp. 1575-1576.) In addition, this court has been unable, through its independent research, to find any case wherein a City resolution, as opposed to an ordinance or code section, was analyzed for constitutionality under the standard suggested here by Habitat. Once again we must conclude that Habitat has not carried its burden on appeal to prove that it is entitled to the relief it seeks.
(State Farm, supra,
Given these standards by which we are constrained to test the language chosen by City for its criteria, and given City’s clearly stated purpose to enable it to implement and enforce CEQA mitigation measures by ensuring any QCE would be able to manage the land in conformance with the required mitigation measures, we do not find the italicized terms to be so vague that men of common intelligence would guess at their meanings. All of the complained of terms are sufficiently clear when viewed in terms of City’s stated purpose. (See
Ford Dealers Assn.
v.
Department of Motor Vehicles
(1982)
Finally, Habitat claims that City’s requirements for determining what is a QCE impermissibly conflict with federal and state laws, citing 26 United States Code sections 170, subdivision (h)(1)(B) and 509, subdivision (a)(2), and Civil Code section 815.3, and thereby run afoul of the preemption doctrine. Once again, Habitat assumes that the preemption analysis applies to criteria set out by a local agency in order to adopt a resolution. It has failed to cite any authority for this proposition and has therefore waived the issue.
The United States Constitution allows Congress to preempt state law such that if one conflicts with a federal statute it is “ ‘ “ ' “without effect.” ’ ” ’ ”
(County of San Diego v. San Diego NORML
(2008)
Title 26 of the United States Code, cited by appellants, is the Internal Revenue Code. Section 170, subdivision (h)(1)(B), of that title states that for purposes of qualifying for a tax deduction for a qualified conservation contribution, such a contribution is one that is given to a “qualified organization.” Title 26 United States Code section 509 defines a private foundation and subdivision (a)(2) provides an exception to that definition. The purpose of these statutes is to provide federal tax deductions for contributions of land to, and federal tax-exempt status to, certain organizations such as Habitat. Under none of the four standards enumerated above can it be said that by enacting legislation designed to obtain revenue for the federal government Congress intended to completely and exclusively define what entities a local agency should be required to approve as owners and/or managers of mitigation land under a California statute, CEQA. There is simply no basis for applying federal preemption rules here.
Similarly, any local regulation or ordinance that conflicts with the state’s general laws is preempted and is thus void.
(O’Connell
v.
City of Stockton
(2007)
Civil Code section 815.3 defines who may acquire and hold conservation easements. With respect to entities such as Habitat it states, “A tax-exempt nonprofit organization qualified under Section 501(c)(3) of the Internal Revenue Code and qualified to do business in this state which has as its
Habitat specifically complains that contrary to City’s assertion, state law does not require a charitable trust with gross annual revenue of less than $2 million to provide an annual audit. (Gov. Code, § 12586, subd. (e).) That code section is part of the Supervision оf Trustees and Fundraisers for Charitable Purposes Act, which provides for oversight of fiduciaries of charitable trusts by the Attorney General and requires that such entities file certain reports to be maintained by the Attorney General. (Gov. Code, §§ 12580, 12584.) While Planner asked Henderson/Granite for Habitat’s “most recent auditor’s report” City’s criteria do not require the filing of an audit with the Attorney General. Thus, City’s criteria do not conflict with this law. Further, the purpose of requesting an audit report was to enable City to determine whether Habitat was fiscally responsible and reliable. Independent of the Attorney General’s reporting requirement, it was entirely reasonable for City to require some evidence of Habitat’s financial resources and accountability in determining whether mitigation land should be turned over to its care.
4. City’s Findings Are Supported by Substantial Evidence
Finally, Habitat contends that certain of City’s findings, specifically the second through fourth findings, are not supported by the evidence. As indicated above, the standard of review on appeal of the trial court’s determination is the substantial evidence test.
(Fukuda, supra,
City’s second finding stated that Habitat “has not demonstrated capability to provide sufficient management of the land described in Mitigation Measure BIO-1, or to respond in a timely manner to issues that arise regarding the land.” More specifically, City was concerned that the audit report Habitat provided with respect to its financial condition was a 2002 report from an umbrella organization and was therefore not specific to Habitat. This finding is supported by the record. While Habitat also provided City with a 2003 statement of profit and loss that document does not demonstrate that Habitat is “conducting its financial affairs in compliance with applicable procedures, accounting standards and laws.” City was also concerned that Habitat did not have local staffing adequate to ensure management of the land on an ongoing basis. The record also supports this finding. The information provided by Habitat demonstrated that Habitat’s closest office is located in Pasadena, approximately 40 miles distant. Habitat admitted that it does not have employees but hires consultants as needed and that board members and volunteers are the ones who monitor Habitat’s sanctuary land. Only two board members live in California and neither of those lives in Rancho Cucamonga. When considered with all of the other information in the record it was reasonable for City to reach the conclusion that it did.
City’s third finding stated that Habitat “has not provided the City with a site-specific Habitat Resource Management Plan [or] any Operations Plan, including a maintenance schedule for the land.” City found that the documents provided by Habitat were a generic and incomplete document, adapted from one produced by San Bernardino County OS-1, and an assessment of needs with no indication that the assessment had been or would be adopted by Habitat. The record supports this finding. The management plan does contain blanks, is not site specific, but rather covers the entire area containing presumably similar habitat, and does not attach referred-to maps. The assessment also does not refer to the site in question, but to other parcels already owned by Habitat. And, rather than challenging the findings as unsupported, Habitat tries to explain why City should have found those documents adequate to its purposes. Based upon the evidence before it, City could reasonably have made the finding that it did.
While it is true, as Habitat points out, that certain of City’s specific findings, for example that Habitat failed to provide a list of its offices and that it only had three board members, were incorrect
4
based upon evidence in the record, that does nоt change the outcome of this appeal. Nor do Habitat’s complaints that City’s findings seemed to ignore evidence in the record that might have supported a contrary conclusion. While City could have reached a different conclusion than it did based upon the evidence, that is not our concern.
(Antelope Valley Press
v.
Poizner, supra,
In addition, ultimately, what Habitat seeks is to force City to recognize it as a QCE. However, mandamus will not lie to compel a public official to exercise his or her discretion in a particular manner.
(Young v. Gannon
(2002)
B. Motion for Summary Judgment
1. Standard of Review
The purpose of summary judgment is “to provide courts with a mechanism to cut through the parties’ pleadings in order to determine whether, despite their allegations, trial is in fact necessary to resolve their dispute. [Citations.]”
(Aguilar v. Atlantic Richfield Co.
(2001)
2. The Allegations of the Pleadings
The operative second amended complaint alleges causes of action for breach of contract and breach of the implied covenant of good faith and fair dealing against Henderson/SPS and Granite. The sole cause of action alleged against County is for imposition of a constructive trust. Henderson’s cross-complaint alleges three causes of action for rescission based upon failure of consideration, mutual mistake and duress. However, its motion for summary judgment addressed only failure of consideration and mistake.
Habitat/Sage alleged that Henderson/SPS and Granite breached the Agreement by failing to transfer title to the 86 acres of land, by failing to pay for the promised barriers and endowment, by failing to record the notice of agreement and by failing to allow Habitat/Sage to harvest plantlife from the development site prior to grading. They alleged that Henderson/SPS and Granite breached the covenant of good faith and fair dealing because they knew of and attended a meeting between County Supervisor Biane and County and/or City staff wherein Supervisor Biane raised objections to Habitat’s receipt of mitigation lands and/or wherein opposition to Habitat’s receipt of mitigation land was discussed. They further alleged that Henderson/SPS and Granite influenced City’s decision to change its procedures and its determination that Habitat was not qualified to manage the BIO-1 mitigation land. Finally, Habitat/Sage alleged that a constructive trust should be imposed upon County because it took possession of the land that was the subject of the Agreement knowing that Habitat/Sage had a superior right to it and that the grant deed was invalid because the grantor was mentally incompetent at the time it was executed.
With respect to Henderson’s cross-complaint, “[i]f the consideration for the obligation of the rescinding party, before it is rendered to him, fails in a material respect from any cause” a party may rescind a contract. (Civ. Code, § 1689, subd. (b)(4).) A contract may also be rescinded if the consent of the rescinding party was given by mistake. (Civ. Code, § 1689, subd. (b)(1).) The party attempting to void the contract as a result of mistake must also show that it would suffer material harm if the agreement were enforced, though that
3. Defendants’ and Cross-complainant’s Showing
Henderson/SPS moved for summary judgment of the first cause of action of the second amended complaint on the grounds that Habitat/Sage could not establish that the Agreement was breached because there was an implied condition that was not fulfilled, and based upon the affirmative defenses of commercial frustration and impossibility, failure of consideration and mistake. They moved for summary judgment of the second cause of action on the ground that there was no evidence that they influenced City to find that Habitat/Sage was not qualified to obtain the BIO-1 mitigation land. Henderson also moved for summary judgment on its cross-complaint for rescission on the grounds of failure of consideration and mistake.
Granite’s motion for summary judgment was based on the same grounds as Henderson/SPS’s. However, Granite Homes of California, Inc., Granite Homes, Inc., and Granite Construction Services, LP, also moved for summary judgment on the ground that they were never parties to the Agreement and therefore could not be liable for breach of contract or breach of the covenant of good faith and fair dealing. The trial court granted summary judgment to those entities on that basis. On appeal, Habitat/Sage do not challenge the trial court’s determination that these entities were not parties to the Agreement. Consequently any contention that the trial court erred in making that determination is abandoned and judgment is affirmed in favor of Granite Homes of California, Inc., Granite Homes, Inc., and Granite Construction Services, LP, on this separate and independent basis.
(Bossert v. Stokes
(1960)
The land was to be conveyed to Habitat for “habitat conservation purposes.” Mitigation condition BIO-1 originally required transfer of mitigation property to County. Habitat/Sage objected to the amount of land to be set aside and to it being transferred to County. They threatened to sue Henderson unless it agreed to transfer a larger parcel of mitigation land to Habitat and to pay it in excess оf $570,000. In response, and prior to execution of the Agreement, Henderson representatives met with Planner and asked to have mitigation condition BIO-1 altered to allow transfer of the mitigation land to Habitat. At that time Planner indicated that “approval of the conservation entity was within his discretion and that he perceived no problem with designating Habitat ... as a recipient of the mitigation property in satisfaction of Condition BIO-1.” Planner voiced no objection to Henderson’s plan to transfer the BIO-1 mitigation land to Habitat.
The final EIR, issued on April 30, 2004, prior to the execution of the Agreement, allowed the transfer of the mitigation land under mitigation measure BIO-1 to County “or other qualified conservation entity approved by the City.” In response to the final EIR, and prior to executing the Agreement, Sage’s executive director, Leona Klippstein (Klippstein) wrote to City indicating that Sage and Henderson had agreed that the mitigation land would be transferred to Habitat “rather than the County.” She also stated that while the final EIR changed the language regarding the entity that would receive the mitigation land, Sage was “concerned that it is not specific enough” and requested that it be more specific as to which conservation entity would receive the lands prior to the vote of the planning commission to approve the final EIR. Habitat/Sage urged at oral argument that their objection to the terminology proposed for BIO-1 proves that it did not believe satisfaction of BIO-1 was the essential purpose of the Agreement. On the contrary, if it did not matter to Habitat/Sage whether or not BIO-1 was satisfied, they would never have needed to be involved in City’s approval process at all and Klippstein’s comments would have been unnecessary. Klippstein was aware of the BIO-1 mitigation condition prior to signing the Agreement.
The purchase agreement between Johnson and Henderson, entered into prior to the Agreement, and by which Henderson obtained the right to purchase the mitigation property, stated in its recitals that the purpose of that contract was to convey the property to Sage to fulfill the mitigation requirement imposed
After the Agreement was entered into, counsel for Habitat/Sage confirmed that the purpose of the Agreement was to satisfy mitigation condition BIO-1 when he wrote that certain specific language for conservation and open space deed restrictions should be attached to the grant deed(s) and if Henderson or City required different language, Habitat/Sage would have to approve it. Once again, if compliance with City’s BIO-1 mitigation condition was not contemplated, there would be no reason for Habitat/Sage to be concerned with City’s requesting different language in the deed. Counsel for Habitat/Sage also sent a letter dated January 31, 2005, to City complaining that City’s decision that Habitat was not qualified to hold mitigation land was made with the knowledge that Habitat/Sage had a contract to hold that land in connection with the Henderson development. The letter continued stating that City knew that Habitat and Henderson had entered an agreement to transfer “the subject mitigation land” to Habitat and that City had amended the development agreement with Henderson for that purpose. Finally, the letter accused City of taking intentional action to impair the contract between Habitat/Sage and Henderson. Again, if compliance with City’s BIO-1 mitigation condition was not contemplated then Habitat/Sage would not have cared what action City took.
Since approval of Habitat as an entity qualified to receive the transfer was necessary to fulfill the purpose of the Agreement to satisfy mitigation condition BIO-1 through the transfer of mitigation land to Habitat, approval of Habitat was an implied condition of the contract. Because the implied condition did not come to pass when City determined that Habitat was not a proper entity to receive the mitigation land, Henderson/SPS and Rancho had no duty to perform under the Agreement.
(Platt Pacific, Inc. v. Andelson
(1993)
As to the second cause of action for breach of the implied covenant of good faith and fair dealing, Henderson/SPS and Rancho demonstrated that Habitat/Sage had not produced any evidence to support their theory that Henderson/SPS or Rancho had any influence in City’s decision that Habitat had failed to demonstrate its qualification to hold the mitigation land. Henderson/SPS’s attorney averred that they learned of City’s change in procedure to approve Habitat long after the Agreement was entered and were
Henderson/SPS and Rancho also argued that there were no triable issues of material fact as to their affirmative defenses of impossibility and frustration of purpose. “ ‘A thing is impossible in legal contemplation when it is not practicable; and a thing is impracticable when it can only be done at an excessive and unreasonable cost.’ [Citation.]”
(Mineral Park Land Co.
v.
Howard
(1916)
Finally, Henderson/SPS and Rancho also claimed that there was a mistake of fact in that both parties to the agreement believed at the time of contracting that Habitat was a QCE and would be approved by City. Further because performance would require Henderson/SPS and/or Rancho to convey 86 acres of land and over $570,000 to Habitat without complying with City’s conditions to build the development, enforcement of the agreement would be materially harmful and more onerous than had the facts been as believed by the parties at the time of contracting. Again Henderson argued these facts as grounds for summary adjudication of the second cause of action on its complaint for rescission. In both instances defendants’ and cross-complaint’s showing was adequate to shift the burden to Habitat/Sage to demonstrate the existence of a triable issue of material fact.
4. Habitat/Sage’s Response
Preliminarily wе note that the apparent failure of appellants to recognize the function of the appellate court or the nature of our review of a judgment based upon a summary judgment order, and the reflection of that failure in the effectively disorganized briefing has made our job infinitely more difficult. Nevertheless, we have done our very best to comprehend appellants’ arguments and to apply them to the appropriate causes of action and/or affirmative defenses.
We will first address Habitat/Sage’s assertion on appeal that the trial court wrongfully sustained objections to its evidence posed by Henderson/SPS and Rancho since those rulings bear on Habitat/Sage’s ability to meet their burden.
(Alexander v. Codemasters Group Limited
(2002)
Habitat/Sage claim that the trial court improperly sustained defendants’ objections Nos. 36 and 41. The trial court does not state the grounds for sustaining the objections; therefore, as Habitat/Sage concede, it is presumed that they were sustained on the grounds stated. We arrive at this conclusion by analogy to the well-known rule that when a specific ruling is not requested from the trial court, a challenge to that ruling is waived. (See, e.g.,
City of Long Beach
v.
Farmers & Merchants Bank
(2000)
Henderson/SPS’s objection No. 36 (Rancho joined in Henderson/ SPS’s objections) challenged paragraph 37, lines 17 through 25 of Klippstein’s declaration on the grounds that (1) the statements lacked foundation, (2) the statements were mere legal conclusions or conclusions without factual support, (3) the statements were improper opinion, (4) the statements were nothing more than argument, (5) the declarant failed to establish personal knowledge of the matters stated, and (6) the statements were irrelevant given the essential purpose of the Agreement and the fact that Habitat/Sage’s qualifications were not an issue in the case. On appeal Habitat/Sage fail to address the objections that the challenged statements were conclusions and simple argument. Because argument and conclusory statements are the proper subject of objections
(Winnaman v. Cambria Community Services Dist.
(1989)
Habitat/Sage also argue that the trial court wrongfully struck paragraph No. 6 of Gribin’s declaration. The objections were based upon, and presumably sustained for, lack of foundation, speculation, improper conclusion without factual support and being argument rather than evidence. The only argument raised by appellants as to the trial court’s alleged error in striking this testimony is that it was plausibly relevant to certain issues. The objection was not based upon the relevance of the testimony and appellants have failed to address the grounds upon which the objection was sustained. Therefore, their argument fails.
Having determined what evidence we are constrained to consider, we now turn to the balance of Habitat/Sage’s contentions on appeal. They first assert that the trial court erred in determining that the contract was not an integrated agreement, but was instead ambiguous and subject to interpretation through parole evidence. They also argue that Henderson/SPS and Rancho cannot use parole evidence to interpret the Agreement in a manner inconsistent with its terms and that the trial court improperly inserted into the contract “a term that
Habitat/Sage next assert that Henderson/SPS and Rancho cannot establish the existence of an enforceable implied condition. They argue that implied conditions are not favored and require the following elements: “(1) the implication must arise from the language used or it must be indispensable to effectuate the intention of the parties; (2) it must appear from the language used that it was so clearly within the contemplation of the parties that they deemed it unnecessary to express it; (3) implied covenants can only be justified on the grounds of legal necessity; (4) a promise can be implied only where it can be rightfully assumed that it would have been made if аttention had been called to it; (5) there can be no implied covenant where the subject is completely covered by the contract.”
(Cousins Inv. Co. v. Hastings Clothing Co.
(1941)
Habitat/Sage argue defendants cannot establish that the parties would have agreed to the implied condition if attention had been called to it because Klippstein averred that she would have rejected any proposal that Henderson/SPS’s or Rancho’s obligation be based upon City’s approval of Habitat as a QCE. Habitat/Sage cannot properly make this argument because the evidence to which it cites was excluded as incompetent.
They next argue that the subject of conditions to the transfer of land and payment to Habitat was completely covered by the contract and there can be no implied covenant purporting to state additional conditions. As Henderson/SPS point out, this argument misperceives the issue. Habitat/Sage are correct that the Agreement lists six items as “the only conditions to the [close of escrow].” The implied term required by the purpose of the Agreement as discussed above, to wit, that Habitat had to be approved to have the mitigation land transferred to it, is not a condition to the close of escrow, but a condition to the very existence of an enforceable contract. Unlike the facts in the cases cited by Habitat/Sage
(Agosta
v.
Astor
(2004)
Habitat/Sage complain that in determining the parties’ contractual intent, the trial court improperly gave deference to the evidence presented by Henderson/SPS and Rancho in violation of section 437c, which requires that affidavits in opposition to summary judgment be broadly construed while those in support of summary judgment should be narrowly construed. They complain that the trial court accepted Henderson/SPS’s and Rancho’s evidence regarding all parties’ contractual intent and ignored the contrary evidence Habitat/Sage gave regarding their own intent. They cite
Hoover Community Hotel Development Corp. v. Thomson
(1985)
Habitat/Sage assert that there exist triable issues of material fact regarding the purpose and intent of the contracting parties because the evidence supports inferences that support their point of view. However, “ ‘[i]t is solely a judicial function to interpret a written contract unless the interpretation turns upon the credibility of extrinsic evidence, even when conflicting
Habitat/Sage next argue that the trial court erred in finding that the Agreement could be rescinded on the ground of unilateral mistake because the evidence does not support the trial court’s finding that performance of the Agreement would have been unconscionable. Although the trial court did list the factors for rescission of a contract based on unilateral mistake, we are not convinced that its analysis was based solely upon those factors. In the first instance, neither the cross-complaint nor the motion for summary judgment was based upon a claim of unilateral mistake. Rather, they both alleged mutual mistake. Consequently the trial court had no authority to decide the case based upon unilateral mistake principles.
(City of Morgan Hill
v.
Brown, supra,
Habitat/Sage argue that the trial court’s determination that enforcement of the Agreement would be unconscionable is not supported by the facts because there is no evidence in the record that the additional mitigation land would have been carved out of the land defendants intended to develop. However,
Appellants next assert that the alleged mistake of fact involved a foreseeable prospective occurrence, not the past existence of a thing that has not existed or the present existence of a thing that does not exist as required by Civil Code section 1577, subdivision 2. They do this by altering the nature of the fact upon which the parties were mistaken. They claim the mistake was that City did not approve Habitat as a QCE to receive the mitigation land, an event that occurred months after the Agreement was entered. However, that was not the mistаke alleged, nor the mistake found by the trial court. That mistake was that Henderson/SPS and Habitat/Sage, at the time of contracting, believed that Habitat would qualify as a QCE to receive the mitigation land. Unlike the
Mosher
v.
Mayacamas Corp.
(1989)
Next, Habitat/Sage argue that the affirmative defense and cause of action for rescission based upon failure of consideration were not properly adjudicated because the issue of the materiality of the failed consideration is a question of fact, and not appropriate for resolution on summary judgment. They also assert that the consideration that allegedly failed was not within the power of Habitat/Sage to provide. And finally, they assert that there was no complete failure of consideration because Henderson/SPS received the
Habitat/Sage also complain that the trial court failed to give effect to the savings clause of the Agreement to sever those contractual terms that could not be enforced and to give effect to the remainder. The cases Habitat/Sage cite are inapt since they refer to illegal or legally unenforceable contract terms. That is not what we have here. Rather, the contract has been rescinded. The savings clause is simply a part of the contract, and since the effect of rescission is the extinguishment of the contract (Civ. Code, § 1688), the savings clause is of no effect.
(Tippett v. Terich
(1995)
Habitat/Sage’s only argument concerning the second cause of action for breach of the covenant of good faith and fair dealing comes in a footnote, where they assert that the evidence supports an inference that Henderson/SPS’s and Rancho’s failure to convince City to find Habitat qualified was the result of a concerted effort to avoid their duties under the Agreement. Breach of the covenant of good faith and fair dealing is nothing more than a cause of action for breach of contract.
(Smith v. City and County of San Francisco
(1990)
Finally, the third appeal argues only that if the summary judgment in favor of defendants were reversed, then the order for attorney fees and costs should also be reversed. In light of the fact that appellants have failed to demonstrate that they are entitled to reversal of the judgment, the order for attorney fees and costs is affirmed.
The judgments and orders in each of the three consolidated appeals are affirmed. Respondents are awarded their costs on appeal.
Ramirez, P. J., and McKinster, J., concurred.
Appellant’s petition for review by the Supreme Court was denied September 30, 2009, S175849.
Notes
The Henderson Creek Development Project (Henderson project).
All further statutory references will be to the Code of Civil Procedure unless otherwise indicated.
In its brief Habitat repeatedly cites to a letter, dated January 13, 2005, and its attachment, in support of its claim that the City was aware of certain facts. This letter is addressed to a law firm representing Granite and there is no evidence in the record that it or its attachments was ever received by the City.
We note that there is no competent evidence in the record to suggest that the parties ever made an express decision to omit language regarding Habitat’s qualification to hold the mitigation land from the Agreement and that Civil Code section 1643 contains an exception when interpreting a contract so as to avoid making it inoperative would violate the intention of the parties.
They also argue that the trial court erred because it “granted summary judgment without truly weighing all of the contradictory evidence and reasonable inferences therefrom.” Clearly they have forgotten that the role of the court in summary judgment proceedings is not to weigh the evidence, but to determine whether there exists a triable issue of material fact.
(Kids’ Universe
v.
In2Labs
(2002)