Writ of mandate (California)

This article is about the use of the writ of mandate in the U.S. state of California. For the common-law writ of mandamus in general, see Mandamus. For the use of the term mandate instead of mandamus in general, see Writ of mandate.
California law
Great Seal of California
Constitution
Codes
Note: There are 29 California codes.
Courts of record
Areas
Civil procedural law
Tort law
Civil rights law
Criminal law
Laws concerning political subdivisions of the state
Environmental law
Labor law
Family law
Consumer protection law and building codes
Education law
Miscellaneous
Historical laws

The writ of mandate is a type of extraordinary writ in the U.S. state of California.[1][2] In California, certain writs are used by the superior courts, courts of appeal and the Supreme Court to command lower bodies, including both courts and administrative agencies, to do or not to do certain things. A writ of mandate may be granted by a court as an order to an inferior tribunal, corporation, board or person, both public and private.[3] Unlike the federal court system, where interlocutory appeals may be taken on a permissive basis and mandamus are usually used to contest recusal decisions, the writ of mandate in California is not restricted to purely ministerial tasks, but can be used to correct any legal error by the trial court. Nonetheless, ordinary writ relief in the Court of Appeal is rarely granted.

Writs are generally divided into two categories: the most common form of writ petition is ordinary mandate, which is a highly informal process mostly governed by advisory rules of court rather than by strict rules or statutes. A separate and much more formalized procedure called administrative mandate is used to review certain decisions by administrative agencies after adjudicatory hearings, and are distinguished from ordinary writ proceedings by the addition of a panoply of statutory requirements.[4] Despite the name, however, ordinary mandate encompasses a wider variety of administrative appeals than administrative mandate does, and an administrative mandate petition may allege ordinary mandate as another cause of action.[5] Many common writ petitions directed towards administrative bodies, such as actions to compel the disclosure of public records,[6] do not share the requirements of administrative mandate as there is no 'adjudicatory hearing'.

Appellate

Only a few specific orders besides final judgments are subject to appeal in California.[7] As such, the only way for most interlocutory decisions to be reviewed before trial is through ordinary mandate.[8] Most such writ petitions are common-law writ petitions, which are not specifically set out by statute, and do not have a specific statute of limitation. However, courts have generally inferred a prudential, but not jurisdictional, 60-day deadline, by analogy with the amount of time usually allowed for appeals.[9]

Procedure

A litigant begins the process by filing a petition, usually styled as a petition for writ of mandate, prohibition or other extraordinary relief, against the trial court as respondent, naming the other party as the real party in interest.[10] Immediately upon receiving the writ petition, the court may deny the petition, stay the trial court proceedings, issue an alternative writ or an order to show cause, or notify the parties that it intends to issue a peremptory writ in the first instance.[11]

The vast majority of appellate writs are summarily denied without explanation, as, with very few exceptions, they are not a 'cause' which requires an appellate court to make a 'decision in writing with reasons stated', as required by the California Constitution.[12][13]

An alternative writ and order to show cause are identical in effect, but semantically slightly different; an alternative writ directs the trial court either to comply with its terms or show cause why it should not be ordered to do so, while an order to show cause only directs the trial court to show cause why the relief should not be granted. This is the most common way for writ petitions to be granted.[14]

In extraordinary cases, the court may issue a Palma notice, advising the real party in interest that the court is considering granting a peremptory writ in the first instance, i.e. granting the requested relief immediately.[15] This is intended to give the party the opportunity to raise uncertainty in the law or facts and persuade the court to issue an alternative writ instead.[16]

Statutory writs

Certain writs are prescribed by statute. Each statute which specifically allows a writ to be filed comes with a specific statute of limitations, usually 20 days or less. However, statutory writs are still discretionary, with very few exceptions.[17]

In civil cases

  • Grant or denial of motion to disqualify judge[18]
  • Grant or denial of motion to change venue[19]
  • Grant or denial of motion to expunge lis pendens[20]
  • Denial of motion to quash service of process[21]
  • Grant or denial of motion for summary adjudication or denial of motion for summary judgment[22]
  • Grant or denial of motion for good faith settlement determination[23]
  • Denial or partial grant of a special motion to strike in a malicious prosecution action predicated off a lawsuit which was dismissed through a special motion to strike[24]

In criminal cases

  • Grant or denial of motion to disqualify judge[25]
  • Denial of motion to set aside indictment or information[26]
  • Denial of motion to suppress evidence in felony case[27]

As appeals from the outcome of writ petitions in the superior court

  • Grant or denial of petition for writ of mandate or prohibition by the appellate division of a superior court[28]
  • Grant or denial of petition for writ of mandate to compel agency to disclose public records[29]
  • Denial of petition for writ of mandate to compel board to reverse revocation, suspension or restriction of a medical license[30]

Mandatory review

Although writ review is almost always discretionary, there are situations where a writ proceeding is the only way for a final judgment or order to be reviewed on appeal because the decision is not appealable. In those cases, the writ is no longer discretionary and the Court of Appeal must issue a full decision on the issue.[31] For example, a writ petition is the only way for a denial of a Public Records Act lawsuit to be appealed;[32] as such, the petition must be considered in its whole.

Trial court

Writ petitions can also be filed with a superior court in order to compel an administrative agency or other entity, public or private, to perform a duty required by law. Although these petitions can be filed with the court of appeal or Supreme Court in the first instance, they are usually summarily denied without prejudice.[33]

Administrative mandate

Historically, California administrative agency decisions were reviewed by the courts through the issuance of writs of certiorari. In 1936, the Supreme Court of California held that because the state constitution reserves judicial decisionmaking to the judicial branch, it lacked jurisdiction to issue a writ of certiorari to review the decision of a state board unless that board had been expressly authorized by the state constitution to exercise judicial power.[34] The court applied similar reasoning to the writ of prohibition the next year.[34] To avoid the obvious implication that nearly all California government agency decisions were now entirely immune from judicial review, the court held in 1939 that the writ of mandate could be used instead for that purpose.[34] The high court struggled over the next few years, without success, to formulate a coherent standard of review for this new kind of appellate review.[34] Regardless, the state legislature ratified and endorsed the new concept of administrative mandate in 1945 by enacting Code of Civil Procedure section 1094.5.[34]

Administrative mandate lies when the filing party wishes to appeal "any final administrative order or decision made as the result of a proceeding in which by law a hearing is required to be given, evidence is required to be taken, and discretion in the determination of facts is vested in the inferior tribunal".[35] Proceedings subject to review by administrative mandate usually occur before state government agencies, such as the California Unemployment Insurance Appeals Board, the State Hearings Division of the Department of Social Services and the various divisions of the Department of Industrial Relations. Constitutional agencies are subject to both certiorari and administrative mandate; in those cases, a court's review of their factual findings is "limited to a determination whether those findings are supported by substantial evidence in light of the whole record" in deference to their limited judicial powers.[36] Proceedings before local government agencies are also reviewable through administrative mandate.

In general, this type of proceeding is initiated by the timely filing of a petition for administrative mandate in a superior court (that is, a trial court). The petitioner must arrange for the lodging of the administrative record, and then, depending upon local rules, get the petition onto the court's motion calendar for a hearing and ruling on its merits by way of an ex parte application for an order to show cause or a motion for writ of administrative mandate. The superior court either holds oral argument or publishes a tentative ruling followed by hearing oral argument, and then files an order granting or denying the petition. Further appellate relief is pursued on direct appeal before the relevant Court of Appeal (rather than by another writ petition).

Four state government agencies are entirely exempt from administrative mandate. Appellate review of the decisions of the Agricultural Labor Relations Board,[37] the Public Utilities Commission,[38] and the Workers Compensation Appeals Board of the Department of Industrial Relations[39] is available only by petition for writ of review (California's modern term for certiorari) to the relevant California Court of Appeal. Appellate review of the decisions of the Public Employment Relations Board is available only by way of a petition for "extraordinary review" to the relevant Court of Appeal.[40]

References

  1. ^ Cornell Law School Legal Information Institute, Mandamus
  2. ^ Rothschild, Richard. "Writ of Mandate Outline" (PDF). Legal Aid Association of California. Retrieved May 10, 2021.
  3. ^ Cal. Code of Civil Procedure § 1085
  4. ^ Cal. Code of Civil Procedure § 1094.5
  5. ^ Conlan v. Bonta, 102 Cal.App.4th 745, 751 (2002).
  6. ^ Cal. Government Code § 6259 subd. (a)
  7. ^ Cal. Code of Civil Procedure § 904.1 & § 1294
  8. ^ Form APP-150-INFO, California Judicial Council, pg. 5
  9. ^ Volkswagen of America, Inc. v. Superior Court (Adams), 94 Cal.App.4th 695, 701 (2001).
  10. ^ Form APP-150-INFO, California Judicial Council, pg. 2
  11. ^ Form APP-150-INFO, California Judicial Council, pg. 8
  12. ^ Cal. Const. art. VI § 14
  13. ^ Omaha Indemnity Co. v. Superior Court (Greinke), 209 Cal. App. 3d 1266, 1271 (1989) ("Approximately 90 percent of petitions seeking extraordinary relief are denied.").
  14. ^ Form APP-150-INFO, California Judicial Council, pg. 9
  15. ^ Palma v. U.S. Industrial Fasteners, Inc., 36 Cal.3d 171, 180 (1989).
  16. ^ Kernes v. Superior Court (People), 77 Cal. App. 4th 525, 530 (2000).
  17. ^ Peg C. Toledo; C. Athena Roussos. "Statutory Writs" (PDF). The Daily Recorder.
  18. ^ Cal. Code of Civil Procedure § 170.3 subd. (d)
  19. ^ Cal. Code of Civil Procedure § 400
  20. ^ Cal. Code of Civil Procedure § 405.39
  21. ^ Cal. Code of Civil Procedure § 418.10 subd. (c)
  22. ^ Cal. Code of Civil Procedure § 437c subd. (m)(1)
  23. ^ Cal. Code of Civil Procedure § 877.6 subd. (e)
  24. ^ Cal. Code of Civil Procedure § 425.18 subd. (g)
  25. ^ Cal. Code of Civil Procedure § 170.3 subd. (d)
  26. ^ Cal. Penal Code § 999a
  27. ^ Cal. Penal Code § 1538.5
  28. ^ Cal. Code of Civil Procedure § 904.3
  29. ^ Cal. Government Code § 6259 subd. (c)
  30. ^ Cal. Business & Professions Code § 2337
  31. ^ Powers v. City of Richmond, 10 Cal. 4th 85, 133 (1995) ("[W]hen writ review is the exclusive means of appellate review of a final order or judgment, an appellate court may not deny an apparently meritorious writ petition, timely presented in a formally and procedurally sufficient manner, merely because... the petition presents no important issue of law or because the court considers the case less worthy of its attention than other matters.").
  32. ^ Cal. Government Code § 6259 subd. (c)
  33. ^ Maruri, Katya. "California Court Declines to Take Up Case Against Prop 22". February 9, 2021. Government Technology. Retrieved May 10, 2021.
  34. ^ a b c d e Walker, Sam (Spring 1990). "Judicially Created Uncertainty: The Past, Present, and Future of the California Writ of Administrative Mandamus" (PDF). UC Davis Law Review. 24 (3): 783–839. Retrieved 3 April 2022.
  35. ^ Cal. Code of Civil Procedure § 1094.5 subd. (a)
  36. ^ Strumsky v. San Diego County Employees Retirement Assn., 11 Cal. 3d 28, 35.
  37. ^ Cal. Labor Code § 1160.8
  38. ^ Cal. Pub. Util. Code § 1756
  39. ^ Cal. Labor Code § 5950
  40. ^ See, e.g., Cal. Government Code § 3520 (the Ralph C. Dills Act, governing relations with state government employees). The state legislature has granted jurisdiction to PERB over collective bargaining by enacting 15 separate statutes, each of which has its own statutory section authorizing judicial review.