Nollan v. California Coastal Commission

Last updated
Nollan v. California Coastal Commission
Seal of the United States Supreme Court.svg
Argued March 30, 1987
Decided June 26, 1987
Full case nameNollan et ux. v. California Coastal Commission
Citations483 U.S. 825 ( more )
107 S. Ct. 3141; 97 L. Ed. 2d 677; 1987 U.S. LEXIS 2980; 55 U.S.L.W. 5145; 26 ERC (BNA) 1073; 17 ELR 20918
Case history
Prior177 Cal.App.3d 719, 223 Cal.Rptr. 28 (App. 2d Dist. 1986); probable jurisdiction noted, 479 U.S. 913(1986).
Holding
A governmental exaction has to be substantially related to a legitimate government interest and there must be a nexus between the exaction and that interest.
Court membership
Chief Justice
William Rehnquist
Associate Justices
William J. Brennan Jr.  · Byron White
Thurgood Marshall  · Harry Blackmun
John P. Stevens  · Sandra Day O'Connor
Antonin Scalia
Case opinions
MajorityScalia, joined by Rehnquist, White, Powell, O'Connor
DissentBrennan, joined by Marshall
DissentBlackmun
DissentStevens, joined by Blackmun
Laws applied
U.S. Const. amend. V

In Nollan v. California Coastal Commission, 483 U.S. 825 (1987), the United States Supreme Court ruled that a California Coastal Commission regulation which required private homeowners to dedicate a public easement along valuable beachfront property as a condition of approval for a construction permit to renovate their beach bungalow was unconstitutional. The Coastal Commission had asserted that the public-easement condition was a legitimate state interest of diminishing the "blockage of the view of the ocean" caused by the home renovation, even though the easement wouldn't create any additional public view of the ocean. The Court held that in evaluating such claims, there must be an "essential nexus" between a legitimate state interest and the actual conditions of the permit being issued. [1]

Contents

In a 5–4 ruling, the Supreme Court ruled that a requirement by the CCC was a taking in violation of the Takings Clause of the Fifth Amendment, as incorporated against the states by the Fourteenth Amendment.

Facts

The Nollans owned beachfront property in Ventura County, and wished to replace a 504-square-foot (46.8 m2) bungalow which had fallen into disrepair with a 2,500-square-foot (230 m2) house. As a condition for permits to do so, the California Coastal Commission required that the Nollans dedicate for 20 years a strip of land along the beach in front of their house to allow the public the right of pass and re-pass along the beach (to be enacted only when a public agency agreed to accept management of the ambulatory lateral-access easement). 43 neighbors had granted such easements without litigation; the Nollans, however, believed that the demand was an unconstitutional taking of their property without just compensation, and filed a petition for writ of administrative mandamus asking the Ventura County Superior Court to invalidate the easement stipulation. The CCC argued that the new house would increase blockage of the ocean view and contribute to a “wall of residential structures” which would prevent the public “psychologically from realizing a stretch of coastline exists nearby that they have every right to visit". The Nollans could offset this burden to the public, the CCC argued, by providing additional access to the beach in the form of a dedicated access easement along the beachfront side of their property. [2] The Superior Court ruled in favor of the Nollans, declaring “the Commission could impose access conditions on development permits for replacement homes only where the proposed development would have an adverse impact on public access to the sea, and this requirement was not met" (Mandelker 124).

The property in question is located along Faria Beach in Ventura County, which, at the time was sparsely developed (in contrast to the 35-foot (11 m), three-story homes along the Malibu beaches where development of the "psychological impediment to public access" argument first occurred). Article X, Section 4 of the California Constitution guaranteed access to the beaches, but a prospective beach-goer might have difficulty seeing the beach or finding public access to it. The walling-off effect, the argument went, created a psychological impediment to public access ensuring that no members of the public would be able to utilize a public resource (access to which is guaranteed by the state constitution). The development pattern, in effect, took a public resource supposedly available to anyone and turned it into the private enclave of the wealthy property owners whose houses lined the beach.

The "psychological impediments to public access" became a popular finding in staff reports analyzing projects before the California Coastal Commission, particularly when a proposed development had only a minor physical impact to access by the public but required (for legal adequacy for the staff report and California's Environmental Quality Act and Coastal Act) rational bases for imposition of conditions to help make a proposed development consistent with the environmental laws of the state.

The Nollans' property did not present the same conditions found along beaches in Malibu, being less than 4% developed and having smaller, less-intensive development than that along the Malibu shoreline. The condition for approval of the Nollans' Coastal Development Permit was that the applicants record an offer to dedicate a strip of property (generally 25 feet (7.6 m) wide and located landward of the mean high tide)—or, more generally, from the actual edge of the water on any particular day during any given tide along the beach.

Prior procedure

The CCC subsequently appealed to the California Courts of Appeal; the court ruled in its favor, finding “imposition of an access condition on a development permit was sufficiently related to burdens created by the project to be constitutional". The court also held that the Nollans' taking claim failed because the condition did not deprive them of all reasonable use of their property. The Nollans appealed to the United States Supreme Court, raising only the constitutional question.

Issue

The issue before the court was whether the imposition by the CCC of the requirement that the Nollans convey a public easement as a condition for granting a land-use permit constituted a taking.

Reasoning

Justice Scalia delivered the decision of the Court: “The lack of nexus between the condition and the original purpose of the building restriction converts that purpose to something other than what it was...Unless the permit condition serves the same governmental purpose as the development ban, the building restriction is not a valid regulation of land use but an out-and-out plan of extortion".

In writing for the Court's majority, Justice Antonin Scalia derided the concept of psychological impediments to public access; he wrote that if a public agency wishes to place conditions of approval on a permit, that those conditions must bear some relation to the public-policy concerns purported to be resolved through the imposition of conditions of approval. For example, if a project eliminates 120 square feet (11 m2) of public parkland, an appropriate condition would be to require replacement in-kind of the 120 square feet (11 m2) to maintain the size of public parkland. In short, there had to be a nexus between the public-policy issue and the condition of approval which sought to address it. Justice Scalia then pointed out that under the ruling, a public-access condition did not meet that nexus test by compensating for the slight loss of public view across the Nollans' property; he then stated that if loss of public views across the Nollans' property was truly the issue, then an appropriate condition of approval would have been "construction of a public viewing platform on the roof of the Nollans' house".

The public had no right of passage with the existing bungalow in place, so it would be unaffected by the larger structure replacing it. The Court specified that a “close nexus” must be shown between the regulatory condition imposed and the development impacts of concern, and that the regulatory action must “substantially advance legitimate state interests” (AADASDF p 53). Although the case appears to deal primarily with takings, the principles are applied to the exaction and impact-fee debate as well. The Court struck down California’s policy of “anything goes” for exaction requirements, and created the rational-nexus standard for states across America. [3]

Later implications

In Dolan v. City of Tigard , [4] the Court evaluated further the degree of the connection required. In that case, the City of Tigard, Oregon required any business owner seeking to substantially expand onto property adjacent to a floodplain to create a public greenway and bike path from private land in order to prevent flooding and traffic congestion. The Supreme Court ruled that the city’s requirement would be a taking if the city did not show that there was a reasonable relationship between the creation of the greenway and bike path and the impact of the development. "Without question, had the city simply required petitioner to dedicate a strip of land along Fanno Creek for public use, rather than conditioning the grant of her permit to redevelop her property on such a dedication, a taking would have occurred", the Court held. “Such public access would deprive petitioner of the right to exclude others, one of the most essential sticks in the bundle of rights that are commonly characterized as property".

See also

Related Research Articles

In United States constitutional law, a regulatory taking occurs when governmental regulations limit the use of private property to such a degree that the landowner is effectively deprived of all economically reasonable use or value of their property. Under the Fifth Amendment to the United States Constitution governments are required to pay just compensation for such takings. The amendment is incorporated to the states via the Due Process Clause of the Fourteenth Amendment.

<span class="mw-page-title-main">Navigability</span> Capacity of a body of water to allow the passage of vessels at a given time

A body of water, such as a river, canal or lake, is navigable if it is deep, wide and calm enough for a water vessel to pass safely. Such a navigable water is called a waterway, and is preferably with few obstructions against direct traverse that needed avoiding, such as rocks, reefs or trees. Bridges built over waterways must have sufficient clearance. High flow speed may make a channel unnavigable due to risk of ship collisions. Waters may be unnavigable because of ice, particularly in winter or high-latitude regions. Navigability also depends on context: a small river may be navigable by smaller craft such as a motorboat or a kayak, but unnavigable by a larger freighter or cruise ship. Shallow rivers may be made navigable by the installation of locks that regulate flow and increase upstream water level, or by dredging that deepens parts of the stream bed.

Inverse condemnation is a term used in the law to describe a situation in which the government takes private property but fails to pay the compensation required by the 5th Amendment of the Constitution, so the property's owner has to sue to obtain the required just compensation. In some states the term also includes damaging of property as well as its taking. In inverse condemnation cases the owner is the plaintiff and that is why the action is called inverse – the order of parties is reversed, as compared to the usual procedure in direct condemnation where the government is the plaintiff who sues a defendant-owner to take his or her property.

<span class="mw-page-title-main">California Coastal Conservancy</span>

The California State Coastal Conservancy is a non-regulatory state agency in California established in 1976 to enhance coastal resources and public access to the coast. The CSCC is a department of the California Natural Resources Agency. The agency's work is conducted along the entirety of the California coast, including the interior San Francisco Bay and is responsible for the planning and coordination of federal land sales to acquire into state land as well as award grant funding for improvement projects. The Board of Directors for the agency is made up of seven members who are appointed by the Governor of California and approved by the California Legislature, members of the California State Assembly and California State Senate engage and provide oversight within their legislative capacity.

<span class="mw-page-title-main">Public trust doctrine</span>

The public trust doctrine is the principle that the sovereign holds in trust for public use some resources such as shoreline between the high and low tide lines, regardless of private property ownership.

<span class="mw-page-title-main">California Coastal Commission</span> State agency with quasi-judicial regulatory oversight over coastal zone

The California Coastal Commission (CCC) is a state agency within the California Natural Resources Agency with quasi-judicial control of land and public access along the state's 1,100 miles (1,800 km) coastline. Its mission as defined in the California Coastal Act is "to protect, conserve, restore, and enhance the environment of the California coastline".

Dolan v. City of Tigard, 512 U.S. 374 (1994), more commonly Dolan v. Tigard, is a United States Supreme Court case. It is a landmark case regarding the practice of zoning and property rights, and has served to establish limits on the ability of cities and other government agencies to use zoning and land-use regulations to compel property owners to make unrelated public improvements as a condition to getting zoning approval, citing the violation of the Fifth Amendment’s Takings Clause.

Lucas v. South Carolina Coastal Council, 505 U.S. 1003 (1992), was a case in which the Supreme Court of the United States established the "total takings" test for evaluating whether a particular regulatory action constitutes a regulatory taking that requires compensation.

<span class="mw-page-title-main">1996 California Proposition 218</span> Adopted initiative constitutional amendment

Proposition 218 is an adopted initiative constitutional amendment which revolutionized local and regional government finance and taxation in California. Named the "Right to Vote on Taxes Act," it was sponsored by the Howard Jarvis Taxpayers Association as a constitutional follow-up to the landmark property tax reduction initiative constitutional amendment, Proposition 13, approved in 1978. Proposition 218 was approved and adopted by California voters during the November 5, 1996, statewide general election.

An exaction is a concept in US real property law where a condition for development is imposed on a parcel of land that requires the developer to mitigate anticipated negative impacts of the development. The rationale for imposing the exaction is to offset the costs, defined broadly in economic terms, of the development to the municipality. Exactions are similar to impact fees, which are direct payments to local governments instead of conditions on development.

<span class="mw-page-title-main">Shelter Cove, Pacifica, California</span>

Shelter Cove is a 17-acre (6.9 ha) beach neighborhood at the southerly edge of Pacifica, California consisting of seventeen rustic rental cottages.

The Pacific Legal Foundation (PLF) is an American nonprofit public interest legal organization established for the purpose of defending and promoting individual and economic freedom. PLF attorneys provide pro bono legal representation, file amicus curiae briefs, and hold administrative proceedings with the stated goal of supporting property rights, equality before the law, freedom of speech and association, economic liberty, and the separation of powers. Having been founded in 1973, the organization is the first and oldest libertarian public interest law firm.

The Oregon Beach Bill was a piece of landmark legislation in the U.S. state of Oregon, passed by the 1967 session of the Oregon Legislature. It established public ownership of land along the Oregon Coast from the water up to sixteen vertical feet above the low tide mark.

Beverley Beach is an unincorporated community in Anne Arundel County, Maryland, United States.

Lingle v. Chevron U.S.A. Inc., 544 U.S. 528 (2005), was a landmark case in United States regulatory takings law whereby the Court expressly overruled precedent created in Agins v. City of Tiburon. Agins held that a government regulation of private property effects a taking if such regulation does not substantially advance legitimate state interests. Writing for the Court, Justice O’Connor found the test untenable for a number of reasons, but declined to grant Chevron relief because Chevron’s motion before the court was limited to a discussion of the “substantially advances” theory which had just been struck down. The Court remanded to the Ninth Circuit for a determination of whether the statute exacted a taking according to the formula of Penn Central.

Faria, also known as Faria Beach, is an unincorporated community in Ventura County, California, United States. Faria runs 1.32 miles (2.12 km) along the ocean side of California State Route 1, 9 miles (14 km) northwest of Ventura between Ventura and Carpinteria. It is within the Ventura Unified School District and has a Ventura ZIP Code.

Koontz v. St. Johns River Water Management District, 570 U.S. 595 (2013), is a United States Supreme Court case in which the Court held that land-use agencies imposing conditions on the issuance of development permits must comply with the "nexus" and "rough proportionality" standards of Nollan v. California Coastal Commission and Dolan v. City of Tigard, even if the condition consists of a requirement to pay money, and even if the permit is denied for failure to agree to the condition. It was the first case in which monetary exactions were found to be unconstitutional conditions.

California Coastal Comm'n v. Granite Rock Co., 480 U.S. 572 (1987), is a United States Supreme Court case addressing the question of whether United States Forest Service regulations, federal land use statutes and regulations, or the Coastal Zone Management Act of 1972, preempt the California Coastal Commission's imposition of a permit requirement on operation of an unpatented mining claim in a national forest. The court ruled that even if federal land is not included in the Coastal Zone Management Act's interpretation of "coastal zone," the act does not automatically preempt all state regulation of activities on federal lands.

<span class="mw-page-title-main">Big Sur land use</span>

The policies protecting land used in Big Sur are some of the most restrictive local-use standards in California, and are widely regarded as one of the most restrictive development protections anywhere. The program protects viewsheds from the highway and many vantage points, and severely restricts the density of development. About 60% of the coastal region is owned by governmental or private agencies which do not allow any development. The majority of the interior region is part of the Los Padres National Forest, Ventana Wilderness, Silver Peak Wilderness or Fort Hunter Liggett. The area is protected by the Big Sur Local Coastal Plan, which preserves it as "open space, a small residential community, and agricultural ranching." Its intention is "preserving the environment and visual access to it, the policies of the local coastal plan are to minimize, or limit, all destination activities."

<span class="mw-page-title-main">El Sur Ranch</span>

The El Sur Ranch, located on the Big Sur coast of California, has been continuously operated as a cattle ranch since 1834. The approximately 7,100 acres (2,873 ha) ranch straddles Highway 1 for 6 miles (9.7 km) from the mouth of the Little Sur River to the mouth of the Big Sur River and Andrew Molera State Park. Both the ranch and the park originally comprised the Rancho El Sur land grant given in 1834 by Governor José Figueroa to Juan Bautista Alvarado. It has been owned by the Hill family since 1955, who operate a commercial cow-calf operation.

References

  1. Nollan v. California Coastal Commission, 483 U.S. 825 (1987). PD-icon.svg This article incorporates public domain material from this U.S government document.
  2. Myers, David W. (December 14, 1986) "Court to Decide State's Beach Access Issue" Los Angeles Times
  3. Nollan v. California Coastal Commission—Case Brief Retrieved 2011-08-13.
  4. Dolan v. City of Tigard , 512 U.S. 374 (1994).