Stovall v. United States

94 Fed. Cl. 336, 2010 U.S. Claims LEXIS 589, 2010 WL 3199924
CourtUnited States Court of Federal Claims
DecidedAugust 13, 2010
DocketNo. 05-400C
StatusPublished
Cited by25 cases

This text of 94 Fed. Cl. 336 (Stovall v. United States) is published on Counsel Stack Legal Research, covering United States Court of Federal Claims primary law. Counsel Stack provides free access to over 12 million legal documents including statutes, case law, regulations, and constitutions.

Bluebook
Stovall v. United States, 94 Fed. Cl. 336, 2010 U.S. Claims LEXIS 589, 2010 WL 3199924 (uscfc 2010).

Opinion

OPINION

ALLEGRA, Judge.

Michael Stovall (plaintiff), an African-American farmer, brings this action for damages arising out of the alleged breach of his settlement agreement with the Farm Sendee [341]*341Agency (FSA), an arm of the U.S. Department of Agriculture (USDA). Defendant has moved for summary judgment under RCFC 56, admitting that whether this agreement was breached presents questions of fact, but claiming, as a matter of law, that plaintiff has inadequately supported his damage claims. Plaintiff has cross-moved for summary judgment, contending that he is entitled to judgment as a matter of law both as to liability and damages. Following briefing and oral argument, and for the reasons that follow, the court GRANTS, IN PART, and DENIES, IN PART, defendant’s motion for summary judgment and DENIES plaintiffs cross-motion for summary judgment. The court will set this case down for trial at first opportunity.

I. FACTS AND BACKGROUND1

Plaintiff grew up in Alabama, on a family farm, and has long desired to be a full-time farmer. In 1993, he attempted to apply for farm loans through the FSA office in Lawrence County, Alabama, but was denied even an application. In 1994, he received an application form and submitted requests for ownership and farm operating loans, both of which were denied by the FSA office. Plaintiff pursued an administrative appeal, after which the application for the operating loan was approved. In March 1995, those loan funds were disbursed.

After failing to obtain other loans from the FSA, plaintiff, in January 1996, filed an administrative complaint with the USDA’s Office of Civil Rights (OCR), charging FSA with racial discrimination. On February 27, 1998, plaintiff and OCR settled his complaint, memorializing the settlement in a “Resolution Agreement.” In that agreement, Mr. Stovall waived any rights against USDA and its employees arising from his complaint in exchange for USDA’s promises to provide him compensatory damages and “programmatic relief.” The former took the form of a check for $143,000, together with the payment of certain other expenses, reasonable attorney’s fees and costs. The latter took the form of USDA’s agreement to: (i) release plaintiff from liability on his outstanding debt and notify the appropriate credit bureaus of such; (ii) give plaintiff “priority consideration” on any application for inventory property located in certain counties in Alabama and neighboring Tennessee; (iii) give plaintiff “priority consideration” on one farm ownership loan at his election; (iv) view plaintiffs future applications “in a light most favorable” to him, affording him the “most favorable” terms consistent with law; and (v) provide plaintiff with “reasonable technical assistance” in conjunction with any application for a farm ownership or operating loan.

On or about February 27, 1998, plaintiff filed a new application for farm ownership and operating loans with the FSA, as well as a farm and home plan that envisioned his ownership of cows and bulls. In preparing and filing these documents, he obtained the assistance of several USDA employees, including Carolyn Cooksie and Sam Snyder. On March 3, 1998, the OCR formally found that the FSA had discriminated against plaintiff in denying him a 1994 farm ownership loan and a 1995 farm operating loan.2 On March 16, 1998, plaintiff was found eligible to receive loans under the FSA programs. Between March 20, 1998, and April 20, 1998, he pondered whether to purchase farm property in southern Tennessee or Northern Alabama. Plaintiff finally settled on a farm prospect in Lawrence County, Alabama, at which he intended to farm poultry and cows. When plaintiff informed the FSA of his plans, it transferred his file to its office in Lawrence County, Alabama.3 On [342]*342April 28, 1998, after reviewing that file, the Alabama FSA office informed plaintiff that his application was incomplete and that he needed to provide, inter alia, a history of his farming training/experience; a written description of and financial plan for the planned poultry operation; and a commitment from a poultry company to grow poultry. After plaintiff addressed these and other issues raised by the Lawrence FSA office, the FSA, on June 26, 1998, informed him that he met all the applicant eligibility requirements for the loan program.

During July of 1998, plaintiff proceeded with his plans to build and operate a poultry farm (with some cows). To put these plans in perspective, it is helpful to understand how the domestic poultry industry works. That industry is fully integrated in that ownership and control of essentially all aspects of production — from baby chick to processed broilers and poultry products- — -are controlled by poultry companies, commonly known as “integrators.” Such integrators own or control the breeding flock; hatcheries; chicks; the assignment of baby chicks to growers; feed mills and ingredients; the transportation of chicks, feed, and grown chickens; and processing plants. As integrators expand production, they look for potential growers who meet their needs in terms of location, managerial ability and other factors. Such growers are given a “letter of intent” contract that ordinarily allows the grower to obtain bank loans for the construction of broiler feeding houses and associated equipment. Growers usually do not receive an actual contract until their facilities are finished and determined to meet the integrator’s specifications.

On July 9, 1998, Mr. Stovall received a letter of intent from one of these poultry integrators, ConAgra, in which the latter committed to enter into a seven-year broiler feeding agreement with plaintiff upon his construction of two broiler feeding houses that met ConAgra’s specifications. By its terms, this commitment was to expire after 120 days.

On July 14, 1998, FSA informed plaintiff that his application was complete. But a week later, on July 21, 1998, it notified him that his application was being reconsidered in light of a federal tax lien for $7,846 that plaintiff had failed to disclose in his earlier applications. Ultimately, FSA elected to proceed with the loan approval, provided plaintiff satisfied the tax lien by the time his loan closed.4

At or around this time, plaintiff contacted the FSA National Office and requested assistance in solving cash flow problems he was experiencing. On August 6, 1998, plaintiff met with representatives from the Alabama FSA and the FSA National Office. Together, they completed a revised farm and home plan for plaintiff to build and operate a poultry and cattle operation. That plan was filed on August 6, 1998.5 On that day, plaintiff received approval for both a farm ownership loan and an operating loan in the amounts of $199,500 and $165,690, respectively. He was informed of this in a letter sent by the FSA on August 7, 1998. This letter advised Mr. Stovall to refrain from committing with contractors or vendors until loan closing and reminded him of several items that needed to be addressed to facilitate that closing. On November 4, 1998, plaintiffs loan closed and he immediately used part of the proceeds to purchase 159 acres of farmland.6

[343]*343On November 13, 1998, plaintiff contracted with Saylor Construction to construct two poultry houses for $85,340.

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Cite This Page — Counsel Stack

Bluebook (online)
94 Fed. Cl. 336, 2010 U.S. Claims LEXIS 589, 2010 WL 3199924, Counsel Stack Legal Research, https://law.counselstack.com/opinion/stovall-v-united-states-uscfc-2010.