Lyons v. Santa Barbara County Sheriff's Office

Filed 12/3/14

CERTIFIED FOR PUBLICATION

IN THE COURT OF APPEAL OF THE STATE OF CALIFORNIA

SECOND APPELLATE DISTRICT

DIVISION SIX

KATHLEEN LYONS, 2d Civil No. B256041

(Super. Ct. No. 1439374)

Plaintiff and Appellant, (Santa Barbara County)

v.

SANTA BARBARA COUNTY

SHERIFF'S OFFICE et al.,

Defendants and Respondents.

Kathleen Lyons brings a misguided taxpayer's suit against respondents, Santa

Barbara County Sheriff's Office, Sheriff Bill Brown, Santa Barbara County Clerk Recorder's

Office, County Clerk/Recorder Joseph E. Holland, and county clerk/recorder employees

Melinda Greene and Mary Rose Bryson. Appellant theorizes these entities and individuals

unlawfully participated in a nonjudicial foreclosure and eviction process. The complaint

sounds in the nature of a wrongful foreclosure action. It is brought under the guise of Code of

Civil Procedure section 526a to collaterally attack the trustee's sale and unlawful detainer

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judgment. The trial court sustained a demurrer without leave to amend and dismissed the

matter. We affirm the judgment.

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All statutory references are to the Code of Civil Procedure unless otherwise stated. Section

526a provides in pertinent part: "An action to obtain a judgment, restraining and preventing

any illegal expenditure of, waste of, or injury to, the estate, funds, or other property of a county

. . . may be maintained against any officer thereof, or any agent, or other person, acting in its

behalf, either by a citizen resident therein, or by a corporation, who is assessed for and is liable

to pay, or within one year before the commencement of the action, has paid, a tax therein."

Appellant's condominium was sold at a trustee's sale after she defaulted on a

$502,500 note secured by a deed of trust. Following the sale, a writ of possession issued in an

unlawful detainer action and appellant was evicted. She then filed the instant action alleging

that fraudulent mortgage documents were recorded to foreclose on the property. The

complaint states that the mortgage documents were recorded and judicially noticed in the

unlawful detainer proceeding "to procure a claim of 'perfected' title by a lender" and that

eviction documents were wrongfully issued and executed by the sheriff.

The trial court sustained the demurrer stating that appellant has "no lawsuit

against the sheriff and against the county [recorder's] office because the [recorder's] office is

under a mandatory duty to accept the paperwork that's filed with it. It has no independent duty

to determine whether or not that paperwork is fraudulent. Moreover, when the sheriff serves a

writ of execution that's by order of the court. The sheriff has no discretion to refuse to serve

that order." As we shall explain, the trial court's rationale is, without any doubt, correct. This

appeal, and the similar spate of appeals in the Santa Barbara foreclosure cases, are frivolous.

In the exercise of our discretion, we elect not to impose sanctions against appellant.

Taxpayer Form of Action

We treat the demurrer as admitting all material facts properly pleaded, but not

contentions, deductions or conclusions of fact or law. (Blank v. Kirwan (1985) 39 Cal.3d 311,

318.) Section 526a permits a taxpayer action to enjoin illegal governmental activity or the

illegal expenditure or waste of public funds. (Van Atta v. Scott (1980) 27 Cal.3d 424, 449; see

Blair v. Pitchess (1971) 5 Cal.3d 258, 268 [taxpayer suit to enjoin sheriff from expending

public funds to enforce unconstitutional claim and delivery law].) A taxpayer action does not

lie where the challenged governmental conduct is legal. (Coshow v. City of Escondino (2005)

132 Cal.App.4th 687, 714; Lucas v. Santa Maria Public Airport Dist. (1995) 39 Cal.App.4th

1017, 1027.)

Here the complaint is a misguided section 526a collateral attack on the unlawful

detainer judgment. (4 Witkin, Cal. Procedure (3d ed. 2008) Pleading, § 169, p. 235; Gould v.

People (1976) 56 Cal.App.3d 909, 921-923.) Appellant is precluded from bringing a taxpayer

action to set aside the trustee's sale. (Smith v. Allen (1968) 68 Cal.2d 93, 96 [properly

conducted foreclosure sale is a final adjudication of the rights of borrower and lender].) But

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that is what the complaint prays for, i.e. an order declaring the writ of execution null and void

and a judgment restoring the property to appellant. It prays for an injunction enjoining

respondents from recording, issuing, maintaining, and disseminating fraudulent title documents

that "unlawfully encumbered the title rights of Plaintiff" and "have already been used to oust

Plaintiff from her home without due process of law."

The trial court correctly ruled that a taxpayer's action may not be maintained

where the challenged government conduct is legal. (Humane Soc. of the United States v. State

Board of Equalization (2007) 152 Cal.App.4th 349, 361.) "Conduct in accordance with

regulatory [or statutory] standards 'is a perfectly legal activity' " and beyond the scope of a

section 526a. (Coshow v. City of Escondino, supra, 132 Cal.App.4th at p. 714.)

Sheriff and Recorder Duties

Section 712.010 provides: "After entry of a judgment for possession or sale of

property, a writ of possession or sale shall be issued by the clerk of the court upon application

of the judgment creditor and shall be directed to the levying officer in the county where the

judgment is to be enforced." The clerk of the court has a ministerial duty to issue the writ of

possession. Once the writ of execution issues, the sheriff is statutorily required to levy on it.

(§ 712.030, subd. (a).) The levying officer is immune from liability in the execution of "all

process and orders regular on their face and issued by competent authority, whatever may the

defect in the proceedings upon which they were issued." (§ 262.1; see George v. County of

San Luis Obispo (2000) 78 Cal.App.4th 1048, 1054-1055 [sheriff immune from liability for

wrongful eviction when acting under order and writ of possession issued by bankruptcy

court].) The sheriff is not required to conduct a fraud investigation before obeying a court

order to evict a person from real property.

Appellant's objection to the recordation of the foreclosure documents is without

merit. The county recorder was required, as a matter of law, to record the documents when

presented. Government Code section 27201, subdivision (a) provides: "The recorder shall,

upon payment of proper fees and taxes, accept for recordation any instrument, paper, or notice

that is authorized or required by statute, or court order to be recorded . . . . The county

recorder shall not refuse to record any instrument, paper, or notice that is authorized or

required by statute, or court order to be recorded on the basis of its lack of legal sufficiency."

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(See e.g., Jackson v. County of Amador (2010) 186 Cal.App.4th 514, 520-522 [county

recorder did not violate law by recording a durable power of attorney and quitclaim deeds that

were allegedly fraudulently procured].) The county recorder is not required to conduct a fraud

investigation before recording documents that are valid on their face.

Nonjudicial Foreclosure Is Not State Action

Appellant alleges that Civil Code section 2924, which authorizes nonjudicial

foreclosures, violates the due process clause, appellant's equal protection rights and is a

violation of the takings clause under the federal constitution. The complaint fails because a

nonjudicial foreclosure is not state action or subject to the due process clauses of the federal

and state constitutions. (I.E. Associates v. Safeco Title Ins. Co. (1985) 39 Cal.3d 281, 287;

Garfinkle v. Superior Court (1978) 21 Cal.3d 268, 280-282 (Garfinkle).) In Garfinkle, our

State Supreme Court held that the power of sale arises from contract (the mortgage or deed of

trust provisions), and that the regulation of trustee's sales is designed to restrict creditor

behavior. (Id., at pp. 278-279.) The ministerial role of the county recorder in a trustee's sale is

not state action. (Id., at p. 280.) "The fact that a purchaser who has acquired rights by virtue

of a trustee's deed, like a party who has acquired rights under any other type of contract, may

have a right to resort to the courts in order to enforce such previously acquired contractual

rights when that becomes necessary, is not sufficient to convert the acts creating these

contractual rights into state action. For us to hold otherwise, would be to subject every private

contract to review under the Fourteenth Amendment. [Citation.]." (Ibid.)

California's statutory regulation of nonjudicial foreclosures does not convert the

actor's conduct, i.e., the foreclosing lender, into state action. (See Jackson v. Metropolitan

Edison Co. (1974) 419 U.S. 345, 357 [42 L.Ed.2d 477, 487-488]; Homestead Savings v.

Darmiento (1991) 230 Cal.App.3d 424, 428-429 [Civil Code section 2924 does not violate

debtor's due process rights].) "The decision whether to exercise the power of sale is a

determination to be made by the creditor. The statutes [i.e., Civil Code section 2924] merely

restrict and regulate the exercise of the power of sale once a choice has been made by the

creditor to foreclosure the deed of trust in that manner." (Garfinkle, supra, 21 Cal.3d at pp.

278-279; see also U.S. Hertz, Inc. v. Niobrara Farms (1974) 41 Cal.App.3d 68, 87.)

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Post-Foreclosure Action to Obtain Writ of Possession

Appellant contends that Civil Code section 2924, subdivision (a) requires that the

trustee obtain a court order or judgment before the trustee's sale and that such an

order/judgment is a prerequisite to an unlawful detainer action. This misstates the law.

Section 2924, subdivision (a) provides that a power of sale may not be exercised until the

trustee, mortgagee or beneficiary records a notice of default as specified by law. Excepted

from the notice of default procedure, are mortgages or transfers "made pursuant to an order,

judgment or decree of a court of record. . . ." (Civ. Code, § 2924, (subd. (a); see 27 Cal. Jur.3d.

(2011) Deeds of Trust § 268, p. 304.) For example, an equitable mortgage or mortgage

without a power of sale can only be foreclosed by judicial action. (4 Miller & Starr, Cal. Real

Estate, supra, § 10.1, p. 10-18.) Appellant's deed of trust, however, grants the trustee a power

of sale.

Where the trustor holds over after the trustee's sale, an unlawful detainer action

must be brought to evict the trustor (§ 1161a, subd. (b)(3)). The purchaser must show that

he/she acquired the property at a regularly conducted sale in accordance with Civil Code

section 2924 "and that title under such sale was duly perfected. [Citation.]" (Stephens, Partain

& Cunningham v. Hollis (1987) 196 Cal.App.3d 948, 953; see also Evans v. Superior Court

(1977) 67 Cal.App.3d 162, 169 [unlawful detainer action by subsequent purchaser].) The

allegation that section 2924, subdivision (a) is not being enforced in post-foreclosure unlawful

detainer actions does not state a cause of action. (4 Witkin, Cal. Procedure, supra, Pleading, §

169, p. 235.) "Neither section 526a nor the common law provides a basis for suits by collateral

parties to determine the correctness of a judge's action in a particular case because to do so

would violate the state Constitution. [Citation.] To hold otherwise, would create the absurd

and chaotic situation where an officious and irate stranger to any action with a personal ax to

grind could file a collateral action against a judge under the guise of a taxpayer's suit

contesting the outcome of any civil or criminal action in which he believed the trial court ruled

erroneously." (Gould v. People, supra, 56 Cal.App.3d at p. 922, fn. omitted.)

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Conclusion

Appellant's remaining arguments have been considered and merit no further

discussion. The trial court sustained the demurrer stating, "you're suing the wrong people."

We agree.

The judgment is affirmed. Costs to respondents.

CERTIFIED FOR PUBLICATION.

YEGAN, J.

We concur:

GILBERT, P.J.

PERREN, J.

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James E. Herman , Judge

Superior Court County of Santa Barbara

______________________________

Kathleen Lyons, in pro per, Appellant.

Michael C. Ghizzoni, County Counsel, County of Santa Barbara and Lisa A. Rothstein,

Senior Deputy, for Respondents.

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