Banks v. United States

78 Fed. Cl. 603, 2007 U.S. Claims LEXIS 318, 2007 WL 2880263
United States Court of Federal Claims·Decided September 28, 2007·No. Nos. 99-4451L, 99-4453L to 99-4459L, 99-44510L to 99-44512L, 00-365L, 00-379L to 00-401L, 05-1353L, 05-1381L, 060-72L·Published·Cited by 16 cases

Opinion

OPINION1

HEWITT, Judge.

I. Procedural Background

The St. Joseph River enters Lake Michigan between St. Joseph, Michigan, and Benton Harbor, Michigan. Motion to Partially Dismiss and Memorandum in Support Thereof (Motion or Def.’s Mot.), Feb. 26, 2007, 5.2 In the 1830s, the United States Army Corps of Engineers (Corps) re-constructed the mouth of the St. Joseph River and began constructing harbor jetties3 that jutted generally westward into Lake Michigan in order to accommodate commercial shipping traversing the St. Joseph River into Lake Michigan. Id. The Corps lengthened the jetties periodically until they reached their present-day length in the year 1903. Id. From the early 1950s to 1989, the Corps incrementally encased the jetties in steel. Id.

In the 1970s, the Corps instituted a beach nourishment program to mitigate erosion along the shoreline south of the harbor jetties. Banks v. United States (Banks (accrual) 77), 314 F.3d 1304, 1306-07 (Fed.Cir. 2003). “The Corps has provided fine sand nourishment for more than [fifteen] years on feeder beaches, deposited coarser sediments along the shoreline at least five times between 1986 and 1993, and placed barge-loads of large rocks into Lake Michigan in 1995.” Def.’s Mot. 5-6. The Corps issued three technical reports in 1996, 1997, and 1999 (Reports), which “addressed the Corps’ mitigation efforts and collectively concluded that the erosion was permanent and irreversible.” Def.’s Mot. 6; Banks (accmal) II, 314 F.3d at 1307.

Plaintiffs are the owners of property along approximately four and a half miles of the eastern shore of Lake Michigan south of St. Joseph Harbor. Def.’s Mot. 6; Banks (accmal) II, 314 F.3d at 1306. In July of 1999, sixteen of the current plaintiffs filed suit claiming that the Corps’ construction and maintenance of the jetties from 1950 to 1989 caused erosion of their shoreline property. Def.’s Mot. 2, 6; see also Original Complaint of July 9, 1999, 2 (“Plaintiffs are riparian landowners who are uniformly suffering loss of property without just compensation arising out of the Defendant’s construction and maintenance of fifteen jetties along the east coast of Lake Michigan.”). By February 2000, the number of plaintiffs had increased [605]*605to thirty-seven. Def.’s Mot. 2; Banks v. United States (Banks (accrual) I), 49 Fed.Cl. 806, 808 (2001).4

The United States moved to dismiss in February 2001, claiming that plaintiffs’ actions were time-barred under 28 U.S.C. § 2501, which states that claims of which the Court of Federal Claims has jurisdiction must be filed within six years of accrual. Def.’s Mot. 2. The court granted the motion and dismissed plaintiffs’ claims in July 2001. Banks (accrual) I, 49 Fed.Cl. at 826. The court reasoned that plaintiffs’ takings claims were barred by the six-year statute of limitations no later than 1989 because the “gradual process of shoreline erosion set into motion by the government had resulted in a permanent taking and the extent of the damage had become reasonably foreseeable.” Id. at 825.

The United States Court of Appeals for the Federal Circuit (Federal Circuit) reversed and remanded. Banks (accrual) II, 314 F.3d at 1305-06. Because a claim cannot accrue while the damages remain justifiably uncertain, the Federal Circuit stated that “the question is whether the ‘predictability [and permanence] of the extent of damage to the [plaintiffs’] land’ was made justifiably uncertain by the Corps’ mitigation efforts.” Id. at 1309 (citing Applegate v. United States (Applegate I), 25 F.3d 1579, 1583 (Fed.Cir. 1994)). The Federal Circuit held that “[w]ith the mitigation efforts underway, the accrual of plaintiffs’ claims remained uncertain until the Corps’ 1996 Report, 1997 Report, and 1999 Report collectively indicated that erosion was permanent and irreversible.” Id. at 1310. These Reports “brought to an end plaintiffs’ ‘justifiable uncertainty’ which had been created by the Corps’s mitigation efforts about the permanency of erosion.” Def.’s Mot. 4 (quoting Banks (accrual) II, 314 F.3d at 1310). The statute of limitations began to run only after these Reports had been issued, and “[b]ecause the [Rjeports were issued less than six years before plaintiffs filed their complaints, the Federal Circuit viewed each complaint as timely.” Def.’s Mot. 4.5

After remand, the court consolidated the claims of all plaintiffs for the limited purpose of a trial of liability. See Order of Jan. 4, 2007; Order of Mar. 15, 2005; Order of Mar. 17, 2006 (consolidating Frett v. United States, No. 05-1353 (Fed.Cl. filed Dec. 22, 2005) into Banks et al. v. United States).

Defendant filed its Motion on February 26, 2007, Def.’s Mot. 1, arguing that the Federal Circuit’s decision did not apply to fifteen of the plaintiffs (Banks (accmal) II plaintiffs) because these plaintiffs “had no justifiable uncertainty regarding the erosion to their property,” Def.’s Mot. 12. In the time since the Banks (accrual) II decision, defendant alleged, new evidence had come to light; (1) “Some plaintiffs had no knowledge whatsoever of the Corps’ efforts” to mitigate the loss, id., that is, they had no reason to believe that the clearly visible “permanent taking,” Banks (accrual) I, 49 Fed.Cl. at 825, was not permanent, see Banks (accrual) II, 314 F.3d at 1310; and (2) “Others, while aware of the Corps’ efforts, did not believe it would benefit them property,” Def.’s Mot. 12, that is, they were not uncertain at all as to the permanency of the damage. Defendant further alleged that plaintiffs Bodnar and Okonski, who filed their complaints after the Banks (accmal) II decision, were barred by the statute of limitations because they were “on inquiry notice” of their claims and failed to file within the six-year limit. Id. at 19-22.

The court held, in its May 3, 2007, Opinion, that the accrual of a takings claim pursuant to 28 U.S.C. § 2501 was governed by an objective standard. Banks v. United States (Banks (accmal) III), 76 Fed.Cl. 686, 694-95 (2007). Therefore, plaintiffs’ subjective knowledge and interpretations were irrelevant to the question of accrual, and the Federal Circuit’s decision that these plaintiffs’ claims did not accrue until the issuance of the [606]*606Reports — and thus, are not barred by the six-year statute of limitations — still applied to the fifteen Banks (accrual) II plaintiffs. Id. at 696. The court further held that “[a]s landowners when the Reports were issued, the Okonski [and the Bodnar] plaintiffs are in the same position with respect to ownership of them property as the other plaintiffs who are subject to this Motion, that is, they purchased their property when the extent of the damage remained ‘justifiably uncertain.’ ” Id. (citing Banks (accrual) II, 314 F.3d at 1309). The Bodnar plaintiffs were not barred by the statute of limitations because, having filed on December 28, 2005, they clearly fell within the six-year period of accrual that began with the issuance of the last of the Reports, the so-called “1999 Report,” presumably in January of 2000. Id.

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Banks v. United States, 78 Fed. Cl. 603, 2007 U.S. Claims LEXIS 318, 2007 WL 2880263 (uscfc 2007).

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