Curiosities: Santa Cruz County's Borders

What is Santa Cruz County? It is perhaps a strange question since it seems easy to answer: Santa Cruz County is an administrative division on the California coast surrounded by Monterey, San Benito, Santa Clara, and San Mateo Counties. But this is the status of the county today. Two of those counties did not exist when California became a state in 1850, and before statehood there were no counties at all! The development of Santa Cruz as a county and its changing borders over the past 175 years are the result of changing politics, culture, business, and many other factors. The origins of Santa Cruz County date back to the origin of Santa Cruz itself, when it was little more than a Spanish colonial outpost on the edge of a globe-spanning empire. 

"Ground plan of [Mission Santa Cruz] and surroundings kindly supplied by General Vallejo," ca 1878. [Courtesy Bancroft Library, University of California, Berkeley]

Santa Cruz began as Mission Santa Cruz when it was first established by a Franciscan missionary group led by Father Fermín Francisco de Lasuén on August 28, 1791. The name itself—meaning Holy Cross—was adopted by Father Juan Crespí on October 18, 1769 as the designation for a creek (now known as Majors Creek) that flowed from Trés Ojos on Mission Hill into Neary Lagoon. At the mission, the Franciscans established a small community of monks and neophytes (Native Americans forcibly removed from their villages and converted to Christianity) that encompassed the Mission Orchard and Potrero to the north, Mission Hill and the flood plain below, and the West Side. On the east side of the San Lorenzo River, meanwhile, a Spanish invalidos (retired soldiers) pueblo known as Branciforte was established by Governor Diego de Borica in 1797. This name came from Miguel de la Grua Talamanco, Marqués de Branciforte, Viceroy of New Spain. The colony had no center and sprawled to the southeast to encompass around a dozen large unrecognized private properties.

"Map of City of Santa Cruz," 1933, by the California Pacific Title Company. [Courtesy Antique Maps Inc.]

When California became a state on September 9, 1850, both Santa Cruz and Branciforte remained distinct. Santa Cruz had ceased to be a monastic community following Mexican land reforms in the 1830s and as such much of its land had been given or sold to various families. By the 1840s, the land on both sides of the river had fallen into private ownership and a crude commercial zone had emerged around the old mission on the Upper Plaza. Following statehood, the commercial district shifted to the Lower Plaza below Mission Hill near the junction of Main Street and Willow Street (now Front Street and Pacific Avenue). On the East Side, commercial and industrial progress was slower with businesses gradually arising along Ocean Street, Soquel Avenue, Water Street, and Broadway. The only notable property development in Branciforte during this period was the establishment of Camp Alhambra, later Seabright, around 1880 as a seaside resort. It was only in 1905 that the area east of the river joined the City of Santa Cruz.

Excerpt from "A Map of the United States of Mexico," 1826, by Henry Schenck Tanner. [Courtesy California State University, Monterey Bay]

For its first 59 years of existence, Santa Cruz was not a recognized political entity. Mission Santa Cruz, like all of the California missions, was a decentralized area bounded only by the vague spheres of influence expressed by the surrounding missions at San Francisco, Santa Clara, San Juan, and Carmel. California went through several different administrative arrangements in the Spanish and Mexican periods but Santa Cruz always remained a part of Alta California, or Upper California, and under whichever governorship that territory fell. Neither the government of New Spain nor Mexico established counties and most daily governance was handled by alcaldes (combination mayor and sheriff) for the pueblos and head priests for the missions. Military affairs were handled from presidios at San Francisco, Monterey, Santa Barbara, and San Diego. Not long after the Spanish government definitively fell to the Mexican government in 1821, monastic institutions were dissolved and land was granted by the governor to private individuals across Alta California. About a third of modern Santa Cruz County was divided into land grants, mostly arranged along the coast. On paper, all of these were beholden to the nearest alcalde for judicial matters but there was little enforcement in this wild northern frontier of Mexico.

Santa Cruz Fourth of July reenactment #2, ca 1875, Romanzo Wood [Courtesy California State University, Chico – colorized using MyHeritage]

Statehood changed everything for Santa Cruz. As host to both a former mission and pueblo, it had a surprisingly large pre-Gold Rush population compared to many other settlements in the state. By this point, several people of America, British, German, French, and even Russian nationality had settled in the county with many marrying into the settled Californio population. To these was added a massive influx of failed gold miners who swarmed into the county as early as 1849 and continued to increase the population over the next decade. Like all states of the United States, California chose to arrange itself by counties. As the territorial government began to organize the state, it initially planned to include Santa Cruz as part of Monterey County since the area's population was only 640 individuals at the time. A group of 19 California residents protested, citing the difficulty of travelling to Monterey from Santa Cruz and the different interest of the two areas. Thus, when the final 27 counties were agreed on February 18, 1850, Branciforte County was created separate from Monterey. Yet again people protested, arguing that the county seat was in Santa Cruz so it made no sense to name the county after the pueblo. The territorial government acceded to the request and renamed it Santa Cruz County on April 5, 1850. California formally became a state on September 9, 1850.

Skyland on the Santa Cruz–Santa Clara County line, ca 1925 [Courtesy University of California, Santa Cruz – colorized using MyHeritage]

While the name was agreed upon, the boundaries of Santa Cruz County have remained a point of contention ever since. Boundaries generally follow either ridgelines or waterways, whenever possible, and for Santa Cruz County it was entirely possible since the county was isolated between the Santa Cruz Mountains and the Pacific Ocean. The ridgeline, therefore, made a lot of sense as the inland boundary and it was established along what is today Skyline Boulevard, Summit Road, Loma Prieta Avenue/Way, and Mt Madonna Road. But waterways as borders make less sense since the peoples on either side of the river or creek often interact regularly. Thus, a major problem quickly became apparent that was not necessarily visible on the concept maps drawn up by the territorial officials in San José: where to draw the northern and southern boundaries of the county?

Map of California, from G. W. Colton, Colton's Atlas of the World (New York: J. H. Colton & Company, 1856).

The petition made in January 1850 had requested that the southern boundary essentially begin in the Gabilan Mountains west of San Juan and continue southwest in a roughly straight line until reaching the vicinity of Moss Landing. This would have placed the entire lower Pajaro Valley, including the area south of the river encompassing modern Pajaro, Aromas, and Las Lomas—about 25,000 acres—within Santa Cruz County. For the northern boundary, the petitioners suggested Point Año Nuevo as the northern boundary, with the line following the ridge to the top of the range. The government rejected both of these boundaries. To the south, the officials illogically drew the line down the middle of the Pajaro River, a body of water that was known for its periodic course changes. To the north, they overshot Año Nuevo completely and continued all the way to San Gregorio Creek, which was followed east until reaching its shared headwaters with San Francisquito Creek (the top of modern-day Page Mill Road). This boundary and the rest of San Francisquito Creek formed the southern boundary of San Francisco County, with Santa Clara County sharing the entire border of Santa Cruz County to the east and Monterey County to the south. The northern area, therefore, encompassed Pescadero, Pigeon Point, and Año Nuevo, as well as several other small coastal and mountain communities.

"Map of the Southern Part of the Rancho Punta Del Año Nuevo, San Mateo County, California," surveyed by W.B. Treadwell and published March 1869. [Courtesy Antique Maps Inc.]

This was the state of the county for nearly two decades...and nobody at the edges liked it. To the north, the area immediately north of Waddell Creek caused endless headaches for people attempting to travel to Santa Cruz to conduct business. For many years there was no formal road here and travelers had to take the beach, which was uncrossable during high tide, storms, rain, or any other number of situations. The same slide activity that impacts that area today also made it treacherous then. In 1861, William Waddell built between his mill on Waddell Creek and the cove southeast of New Years Point, but it was expensive to maintain and not easily used in the winter months. The solution was obvious—separate the inaccessible part of Santa Cruz County and add it to another county that could more easily reach it. In 1856, San Mateo County had been formed out of the southern part of San Francisco County. Listening to petitions from Pescadero residents, the state transferred everything north of the southern border of Rancho Punto del Año Nuevo to San Mateo County on March 16, 1868, taking from Santa Cruz County approximately 90,000 acres of territory. Despite the border being quite clear legally, mapmakers for several more decades often included New Years Point within Santa Cruz County and it also remained the name of the northernmost polling station into the late 1890s.

Map of the Town of Watsonville, 1860, surveyed by James T. Stratton. [Courtesy Santa Cruz GIS]

To the south, farmers in north Monterey County were angry that they had to travel into a different county to sell their goods. While most of the arable land in the Pajaro Valley is within Santa Cruz County, a small portion along the south bank of the Pajaro River running from the vicinity of Aromas to the river mouth is also fertile land. Yet in the 1850s and 1860s, the best port in the Monterey Bay was at Santa Cruz, with additional fair-weather ports at Aptos, Soquel, and Davenport Landing. The only real alternatives for Pajaro Valley residents were Hudson's Landing, an unreliable tidal wharf near the northern headwaters of Elkhorn Slough, or the wharf at Moss Landing. Transportation across the Pajaro River could be quite difficult during the winter and spring, when high water levels made fording the river impossible. Ferries and bridges were attempted in the 1860s with the first permanent structure erected in 1868. Three years later, in 1871, the Southern Pacific Railroad reached the small settlement of Pajaro on the south side of the Pajaro River across from Watsonville.

The Santa Cruz local meets the main Coast Division commuter train at Watsonville Junction, ca 1918 [Courtesy UC Santa Cruz – colorized using MyHeritage]

The arrival of the railroad in northern Monterey County occurred at the precise moment that citizens of Watsonville were agitating to move the county seat south, where the county was most accessible to the outside world via roads across Hecker Pass and through the hamlet of Chittenden, and south down the Salinas Valley. The railroad made the point even more clear that Watsonville was the gateway to Santa Cruz County. Yet to achieve their goal, they knew they needed to annex the rest of the Pajaro Valley. It was certainly not a new idea. In 1856, residents of the Pajaro Valley on both sides of the river, as well as people around Gilroy (the upper Pajaro Valley) and San Juan, petitioned the government to create a new county, with San Juan as the county seat. The legislature was unimpressed and the idea was rejected.

Southern Pacific Railroad tracks passing through Chittenden near the southeastern county line, ca 1900 [Courtesy UC Santa Cruz – colorized using MyHeritage]

In the aftermath of the failed secession scheme, Santa Cruz County was more unified than ever before or after. While some still campaigned for annexation of the valley or secession to Monterey or Santa Clara County, others decided the best option was to convince the San Francisco & San Jose Railroad to extend its track to Watsonville. In 1867, wealthy men from both leading towns of the county joined forced to incorporate the California Coast Railroad, which they hoped would connect Watsonville to Gilroy, where the newly-formed Southern Pacific Railroad planned to run its first line. Indeed, in 1869 that came closer to reality when the Santa Clara & Pajaro Valley Railroad, a subsidiary, extended the track to Gilroy putting a spur of the transcontinental route within reach. Before the partners could act, though, Southern Pacific incorporated the California Southern Railroad in 1870 and began buying land along a right-of-way to Watsonville. The next year, Southern Pacific extended a branch line from its mainline to Hollister to Pajaro. The move, while welcomed, was an insult to the people of Santa Cruz County since the railroad only entered the county briefly at Chittenden before crossing into Monterey (now San Benito) County. It was for this reason that many in Santa Cruz lost faith in Southern Pacific and began organising their own railroads. But the people of Watsonville quickly decided that they did in fact have a railroad, and they had no need for a separate one to Santa Cruz.

Excerpt from "Official Map of Monterey County, California," 1898, surveyed by Lou G. Hare. [Courtesy Library of Congress]

The establishment of San Benito County from the northeastern section of Monterey County on February 12, 1874 as well as the start of construction on the Santa Cruz Railroad around the same time led to a panic among Watsonville's leading citizens. They suddenly realized that they had one last opportunity to seize the county seat from Santa Cruz and annex the rest of the Pajaro Valley, but they had to act fast. Perhaps thinking that the State Assembly was in a mood to shift county boundaries, the city fathers began circulating a petition among the residents of Watsonville and those across the river in Aromas, Pajaro, and the scattered farms south to Elkhorn Slough. At the same time, a vigorous war of letters were raged in the pages of the Santa Cruz Sentinel and Pajaronian. And as a hail mary, Charles Ford placed an injunction on the Santa Cruz Railroad hoping that the project would either go bankrupt fighting a pointless lawsuit or fail to meet the conditions of its contract with the county. None of these plans worked, though: the county boundary stayed put and the railroad continued building its route to the Southern Pacific tracks at Pajaro.

Official Map of Santa Cruz County, by Andrew Jackson Hatch, 1889. [Courtesy Library of Congress]

With one exception relating to the southeast border around Mount Madonna Park in 1976, Santa Cruz County's boundaries have not shifted since 1868, but it wasn't for lack of trying. In 1879, as the financial conditions across the United States continued to stagnate and taxation in Santa Cruz County increased as a result, editor William Richard Radcliff, editor of the Pajaronian, boldly suggested the county be annexed to Santa Clara or Monterey County as a means of reducing debt and lowering taxes. It was not as radical as an idea as it may seem. Neighboring San Mateo County was divided by the Santa Cruz Mountains with only rugged roads binding its two sides together. In 1879, Santa Cruz had a railroad line that linked its leading city to Santa Clara County, as well as several roads through the mountains. Many residents of Santa Clara County also had business interests in Santa Cruz County, with some businessmen travelling between the two counties weekly.

Ruins along upper Pacific Avenue after the April 14, 1894 fire. [Courtesy UC Santa Cruz – colorized using MyHeritage]

This idea went nowhere, especially once the Southern Pacific Railroad took control of all of the county's railroads in 1887. By this point, Santa Cruz was well connected to the state's railroad network even if its route through the Santa Cruz Mountains was of a different gauge than the rest of Southern Pacific's system. On April 14, 1894, though, a massive fire destroyed many buildings in downtown Santa Cruz, including the county court house and other local governmental buildings. Radcliff revived his old proposal to annex the county to Santa Clara. Once more the country was in the midst of a depression and the taxes required to rebuild the destroyed county buildings would be a burden on many. Radcliff's bold plan led to weeks of debate and editorials in the Pajaronian, the Santa Cruz Sentinel, and the Santa Cruz Surf, but in the end nothing happened. Santa Cruz retained the county seat and Santa Cruz County remained separate from its neighbors.

The boundaries of the Pajaro Valley Unified School District, 2024.

More proposals have come and gone over the subsequent 130 years with varying levels of public discourse but no success. Many businesses, organisations, and governmental entities now transcend the Pajaro River, showing that the county line is a little more than an administrative division. This is no more apparent than the Pajaro Valley Unified School District, a Santa Cruz County-centered district that includes two primary schools and a middle school in Monterey County. And as expected, the Pajaro River has shifted its course since 1850 and now around 175 acres of Monterey County sit on the north side of the river while about 110 acres of Santa Cruz County are on the south side. Although the boundary has barely moved since 1868, the bases for those boundaries have and will continue to shift as time moves on. And future political decisions too may lead to further re-drawings of the county line, leading to a larger or smaller county than today, or even no county at all! Only time will tell.

Citations & Credits:

• Clark, Donald T. Santa Cruz County Place Names: A Geographical Dictionary. Second edition. Scotts Valley, CA: Kestrel Press, 2008.
• Lydon, Sandy, "The plan to obliterate Santa Cruz County." The Pajaronian, October 12, 2022.
• Various articles from the Santa Cruz Sentinel, The Pajaronian, and the Santa Cruz Surf.