Sutton v. United States Small Business Administration
Opinion of the Court
On March 29, 2001, plaintiffs David and Coleen Sutton (“the Suttons”) filed an amended complaint against the Small Business Administration (“SBA”) on the following five claims: 1) declaratory, injunctive, and monetary relief against the SBA on the ground that its foreclosure on plaintiffs’ property was faulty because the SBA lacked title or interest in the property due to the mortgage having been altered without plaintiffs’ authorization; 2) declaratory and monetary relief against the SBA on the ground that it denied plaintiffs, both of whom are black, equal protection of the law by not accepting their settlement offers while accepting those of white SBA borrowers; 3) injunctive relief preventing First Federal of Michigan from foreclosing on and selling plaintiffs’ property on the ground that the SBA’s foreclosure action and agreement to subordinate its interests to First Federal’s were improper; 4) declaratory and other “agreeable” relief against the SBA on the ground that its foreclosure upon plaintiffs’ proper
I. Procedural Background
SBA moved for dismissal pursuant to Federal Rule of Civil Procedure 12(c), for summary judgment, and to strike plaintiffs’ jury demand. Plaintiffs filed a motion to strike, under Federal Rule of Civil Procedure 12(f), an affidavit that SBA had attached in support of its dispositive motion on the ground that it constituted perjury because it conflicted with an earlier affidavit and also moved for monetary sanctions under Federal Rule of Civil Procedure 56(g). Plaintiffs filed motions for the appointment of counsel and for a continuance, which the district court denied. The district court referred all of the remaining pre-trial proceedings to a magistrate judge. The magistrate judge’s Report and Recommendation advised the district court to deny plaintiffs’ motion for imposition of sanctions and to grant SBA’s motion for summary judgment.
II. Facts
The district court adopted the following facts. On June 2, 1982, the SBA and plaintiffs’ Candy Manufacturing Company (“the Company”) entered into a loan agreement. The Company executed and delivered to the SBA a promissory note in the principal sum of $56,280. The Company promised to pay the principal loan amount plus interest at a rate of 15% percent interest over ten years with equal monthly installments of $951. At that time, plaintiffs executed and delivered to the SBA a guaranty of payment for the Company note, secured by a mortgage on their residence in Detroit, Michigan. In 1988, plaintiffs sought to buy a new home in Oakland County, Michigan; the home lay on land that was located in both Bloomfield Township and the City of West Bloomfield. Discharging the mortgage on the Detroit home, the SBA permitted plaintiffs to use the equity from the sale of that home to purchase the Oakland County home in consideration of plaintiffs providing a substitute mortgage on the new home. Plaintiffs executed the mortgage on May 26,1988. This mortgage, recorded with the Oakland County Registrar of Deed on June 6, 1988, described the property subject to the mortgage as “LOT 228 EXCEPT THAT PART IN BLOOMFIELD TOWNSHIP.”
The parties dispute the events that ensued. According to the SBA, the original recording of the mortgage was based on title work that was, in turn, based upon information that plaintiff David Sutton provided regarding the property’s legal de
The following facts are not in dispute. Both the Company and plaintiffs failed to make many payments under the note and guaranty, respectively. The SBA and plaintiffs reworked the loan on several occasions. Between 1990 and 1999, the SBA and plaintiffs engaged in a number of compromise settlement discussions although they never reached a settlement.
III. Analysis
A. Issues Requiring Review for an Abuse of Discretion
We review the various procedural challenges that plaintiffs raise on appeal for an abuse of discretion. See Roberts ex rel. Johnson v. Galen of Virginia, Inc., 325 F.3d 776, 782 (6th Cir. 2003) (holding that the district court’s decision not to impose sanctions for a violation of Federal Rule of Civil Procedure 26(a) is reviewed for an abuse of discretion); United States v. King, 127 F.3d 483, 486 (6th Cir. 1997) (holding that the district court’s denial of a motion for a continuance is reviewed for an abuse of discretion); Kennedy v. City of Cleveland, 797 F.2d 297, 305 (6th Cir. 1986) (holding that the striking of a pleading under Federal Rule of Civil Procedure 12(f) is reviewed for an abuse of discretion); Henry v. City of Detroit Manpower Dep’t, 763 F.2d 757, 760 (6th Cir. 1985) (holding that the district court’s denial of a motion for appointment of counsel is reviewed for an abuse of discretion). Plaintiff David Sutton
Plaintiff David Sutton likewise maintains that the district court abused its discretion when it denied his motion for a continuance to obtain counsel. In denying this motion, the district court noted that it had denied plaintiffs motion for the appointment of counsel and that plaintiff “had more than sufficient time to obtain counsel on ... [his] own.” In fact, before filing the continuance motion, plaintiff had proceeded in the litigation without obtaining counsel for eleven months. Plaintiff attempts to justify this delay by contending that, after eleven months, he “felt that the truth would more likely be exposed where both sides were represented by counsel.” The district court did not abuse its discretion in denying the motion.
Plaintiffs argue that the district court abused its discretion when it denied plaintiffs’ motion for the imposition of sanctions upon SBA for its use of an allegedly perjured affidavit without holding an evidentiary hearing to determine SBA’s bad faith, pursuant to Federal Rule of Civil Procedure 56(g).
Should it appear to the satisfaction of the court at any time that any of the affidavits presented pursuant to ... [Rule 56] are presented in bad faith ..., the court shall forthwith order the party employing them to pay to the other party the amount of the reasonable expenses which the filing of the affidavits caused the other party to incur, including reasonable attorney’s fees, and ... [may adjudge] any offending party or attorney ... guilty of contempt.
Plaintiffs cite no case law mandating a district court, under Rule 56(g), to hold an evidentiary hearing to determine the bad faith of a party presenting an affidavit. The district court did not abuse its discretion when it denied plaintiffs’ motion for the imposition of sanctions upon SBA without holding an evidentiary hearing into SBA’s bad faith. The district court did not rely on the affidavit in granting SBA’s summary judgment motion and, thus, the affidavit, even if submitted in bad faith, did
Plaintiffs argue that the district court abused its discretion when it denied plaintiffs’ motion to strike the challenged affidavit under Federal Rule of Civil Procedure 12(f). The parties dispute whether Federal Rule of Civil Procedure 12(f), which provides that “the court may order stricken from any pleading any insufficient defense or any redundant, immaterial, impertinent, or scandalous matter,” would permit the district court to strike the affidavit. The district court adopted the magistrate judge’s finding that Rule 12(f) does not apply to an affidavit because it is not a “pleading,” and that plaintiffs should have, instead, challenged the affidavit’s admissibility by filing a notice of objection to it. There is much support for this construction. See, e.g., Fed.R.Civ.P. 7(a); Wimberly v. Clark Controller Co., 364 F.2d 225, 227 (6th Cir. 1966) (observing that Rule 12(f) “specifically relates to matters to be stricken from pleadings but ... make[s] [no] provision for testing the legal sufficiency of affidavits by a motion to strike”); York v. Ferris State Univ., 36 F.Supp.2d 976, 980 (W.D.Mich. 1998) (holding that Rule 12(f) only applies to “pleadings,” which are not affidavits); Morgan v. Sears, Roebuck & Co., 700 F.Supp. 1574, 1576 (N.D.Ga. 1988) (holding that, rather than filing a motion to strike an affidavit under Rule 12(f), one should challenge its admissibility by filing a notice of objection to it, and noting that the district court will consider the objection to the affidavit’s admissibility in ruling on the summary judgment motion’s merits). But see Gilleland v. Schanhals, 55 Fed.Appx. 257, 260 (6th Cir. 2003) (unpublished opinion) (suggesting that plaintiff could have filed a motion to strike an affidavit attached to defendant’s reply memorandum in support of summary judgment under Rule 12(f)). We need not resolve this dispute because plaintiffs suffered no prejudice from the district court’s refusal to strike the affidavit under Rule 12(f). Rather, plaintiffs, in
B. Issues Requiring De Novo Review
On appeal, plaintiffs raise various questions of law that we review de novo. Peabody Coal Co. v. Odom, 342 F.3d 486, 489 (6th Cir. 2003). Plaintiffs contend that the district court committed reversible error when, according to plaintiffs, it designated a magistrate judge to determine a dispositive summary judgment motion in violation of 28 U.S.C. § 636(b)(1)(A).
Plaintiffs argue that the district court committed reversible error by failing to make a de novo determination of those portions of the magistrate judge’s Report and Recommendation to which plaintiffs objected, as § 636(b)(1) requires. In particular, plaintiffs claim that the district court’s determination was not de novo because the court reviewed only the Report and Recommendation, not the underlying evidence, such as transcripts, affidavits, depositions, and mortgage documents. Presumably, plaintiffs draw this inference from the bare fact that the district court adopted the magistrate judge’s Report and Recommendation only one day after plaintiffs filed their objections to it. However, in its order adopting the Report and Recommendation, the district court explicitly stated that it had reviewed both the report as well as the objections to it. Even though the district court’s order did not expressly state that the court conducted the requisite de novo review, we presume that the district court did so because there is no persuasive indication otherwise. See Ivy v. Sec’y of Health and Human Servs., 976 F.2d 288, 289 (6th Cir. 1992) (holding that, regarding social security appeals, appellate court assumes, absent circumstances showing otherwise, that the district court fulfilled its statutory duty to make a de novo determination of those parts of the magistrate’s report to which a party objected where the district court did not expressly state that it did so); Segines v. United States, 201 F.3d 441, 1999 WL 1253099, at *2 (6th Cir. 1999) (applying Ivy’s presumptive rule in the habeas corpus context). Because the district court plausibly could have discharged its statutory duty in the one day between which it received the parties’ objections to the report and issued its order, this length of time alone is insufficient to rebut the presumption that the district court made a de novo determination. Plaintiffs’ suggestion that the district court had a duty to conduct an evidentiary hearing as part of its de novo determination likewise fails. See 28 U.S.C. § 636(b)(1) (providing that, in conducting its de novo determination of those parts of the report to which a party objected, “the judge may also receive further evidence”) (emphasis added); Raddatz, 447 U.S. at 676, 100 S.Ct. 2406 (holding that, in conducting the de novo determination that § 636(b)(1)(B) requires, the district court need not conduct a de novo hearing because Congress, which intentionally used the word determination rather than hearing. “intended to permit whatever reliance a district judge, in the exercise of sound judicial discretion, chose to place on a
1. Appeals of Summary Judgment
a. Claims to which Federal Law Applies
Plaintiffs appeal the district court’s award of summary judgment for SBA on each of their claims. We review the district court’s order granting summary judgment de novo. Williams v. Mehra, 186 F.3d 685, 689 (6th Cir. 1999). Summary judgment is proper “if the pleadings, depositions, answers to interrogatories, and admissions on file, together with affidavits, if any, show that there is no genuine issue of material fact and that the moving party is entitled to a judgment as a matter of law.” Fed.R.Civ.P. 56(c). A “material” fact is one “that might affect the outcome of the suit.” Anderson v. Liberty Lobby, 477 U.S. 242, 248, 106 S.Ct. 2505, 91 L.Ed.2d 202 (1986). A “genuine” issue exists if “the evidence is such that a reasonable jury could return a verdict for the nonmoving party.” Id. We must believe the non-moving party’s evidence, and draw all justifiable inferences in his favor. Id. at 255, 106 S.Ct. 2505. Moreover, we must view the inferences that we draw from those underlying facts in the light most favorable to the non-moving party. Matsushita Elec. Indus. Co. v. Zenith Radio Corp., 475 U.S. 574, 587, 106 S.Ct. 1348, 89 L.Ed.2d 538 (1986).
Plaintiffs appeal the district court’s award of summary judgment to SBA on plaintiffs’ claim that SBA violated plaintiffs’ due process rights by foreclosing upon plaintiffs’ mortgage via Michigan’s advertisement procedure without a prior hearing. We agree with the district court that, as a matter of law, plaintiffs received all of the due process that the Fifth Amendment requires, even if the Due Process Clause were to apply, and we, thus, adopt the district court’s reasoning. Plaintiffs allege neither that SBA’s notice of advertisement was defective under Michigan law nor that Michigan law’s provision of foreclosure by advertisement is itself unconstitutional. See Cheff v. Edwards, 203 Mich.App. 557, 513 N.W.2d 439, 441 (Mich.Ct.App. 1994) (upholding Michigan’s statute permitting foreclosure by advertisement as constitutional.). Plaintiffs contend neither that the foreclosure by advertisement provided inadequate notice nor that they did not have actual notice of the foreclosure. Rather, plaintiffs maintain merely that they had no opportunity to be heard before the foreclosure. In determining the process that the Due Process Clause requires in a particular circumstance, we must consider these three factors: 1) the private interest that the governmental action affects; 2) “the risk of an erroneous deprivation of such interest through the procedures used, and the probable value, if any, of additional or substitute procedural safeguards”; and 3) “the [gjovernment’s interest, including the function involved and the fiscal and administrative burdens that the additional or substitute procedural requirement would entail.” Mathews v. Eldridge, 424 U.S. 319, 335, 96 S.Ct. 893, 47 L.Ed.2d 18 (1976); accord Gilbert v. Homar, 520 U.S. 924, 930-32, 117 S.Ct. 1807, 138 L.Ed.2d 120 (1997) (“[D]ue process, unlike some legal rules, is not a technical conception with a fixed content unrelated to time, place[,] and circumstances”; rather, it “is flexible and calls for such procedural protections as the particular situation demands.”) (internal quotation marks omitted). As to the first factor, plaintiffs clearly have a strong interest in keeping their home. As to the third factor, the SBA has an equally strong interest in ensuring the solvency of the SBA program by being able to collect defaulted loans efficiently. Nevertheless, the second fac
Plaintiffs appeal the district court’s award of summary judgment to SBA on plaintiffs’ claim that SBA denied plaintiffs equal protection of the law by requiring plaintiffs to pay the full loan amount while accepting compromise settlement offers less than the full loan amount from white SBA borrowers. In particular, plaintiffs contend that they created a genuine issue of material fact as to whether they were similarly situated to these white borrowers. Because case law affords little guidance as to how to apply the equal protection doctrine to the government’s settlement of claims, the district court relied on Bunce v. United States, 28 Fed. Cl. 500, 509-10 (1993), aff'd, 26 F.3d 138, 1994 WL 118048 (Fed. Cir. 1994), in which the Court of Federal Claims established an equal protection framework in the context of the Internal Revenue Service’s settlement of tax claims. Following Bunce, to prevail on their equal protection claim, plaintiffs here must show both that: 1) other similarly situated borrowers have received more favorable treatment; and 2) the SBA intentionally singled out plaintiffs based on their race.
Here, we agree with the district court that plaintiffs have failed to show a genuine issue of material fact regarding whether they were similarly situated to white borrowers.
Plaintiffs appeal the district court’s award of summary judgment to SBA on plaintiffs’ claims regarding the validity of SBA’s mortgage and the propriety of the foreclosure-claims one, three, and four-to the extent that they seek monetary damages on the ground that the doctrine of sovereign immunity bars such claims against the SBA, an agency of the federal government.
*124 [T]he district courts ... shall have exclusive jurisdiction of civil actions on claims against the United States, for money damages, ... for injury or loss of property ... caused by the negligent or wrongful act or omission of any employee of the Government while acting within the scope of his office or employment, under circumstances where the United States, if a private person, would be hable to the claimant in accordance with the law of the place where the act or omission occurred.
28 U.S.C. § 1346(b)(1). However, the FTCA further provides that this section “shall not apply to ... [a]ny claim arising out of ... misrepresentation, deceit, or interference with contract rights[.]” 28 U.S.C. § 2680(h). Because plaintiffs’ claims one, three, and four rely on plaintiffs’ allegation regarding the fraudulently altered mortgage, they fall within an exception to the SBA’s waiver of sovereign immunity and, thus, are barred.
b. Claims to which State Law Applies
The district court held that Michigan law governs plaintiffs’ claims concerning the validity of the mortgage and SBA’s foreclosure on plaintiffs’ property. See Butner v. United States, 440 U.S. 48, 55, 99 S.Ct. 914, 59 L.Ed.2d 136 (1979) (observing that state law defines and creates property interests). Neither party contests this determination. Plaintiffs, in effect, appeal the district court’s award of summary judgment for SBA on claim three, which sought injunctive relief preventing First Federal from foreclosing on and selling plaintiffs’ property on the ground that SBA’s agreement to subordinate its interests to First Federal’s was invalid. In particular, plaintiffs maintain that the SBA Could not have subordinated an interest in the property that it did not, in fact, have and that SBA lacked any such interest because plaintiffs never executed the re-recorded mortgage, which was fraudulently altered. However, the district court properly granted summary judgment to the SBA on this claim as it fails as a matter of law. First, because plaintiffs have neither named First Federal as a defendant nor alleged that First Federal and the SBA are privies, a court lacks power to enjoin First Federal’s foreclosure on plaintiffs’ property. See Fed. R.Civ.P. 65(d) (An injunction is “binding only upon the parties to the action, their officers, agents, servants, employees, and attorneys, and upon those persons in active concert or participation with them who receive actual notice of the order by personal service or otherwise.”); Chase Nat’l Bank v. City of Norwalk, Ohio, 291 U.S. 431, 436-37, 54 S.Ct. 475, 78 L.Ed. 894 (1934) (holding that “established principles of equity jurisdiction and procedure” require that an injunction may issue against individuals not named as defendants only where they are in privity with the defendant and where the court has adjudicated their rights “according to law”); Tesmer v. Granholm, 333 F.3d 683, 702-03 (6th Cir. 2003) (holding that Federal Rule of Civil Procedure 65(d) reflects the doctrine that an injunction may only issue against a third party to the action “if that party is identified with the named, enjoined party in interest, in ‘privity’ with it, represented
Plaintiffs appeal the district court’s award of summary judgment for SBA on claim one, which alleges that the SBA’s foreclosure on plaintiffs’ property was faulty because it was based upon a rerecorded mortgage that was altered without plaintiffs’ authorization. In particular, plaintiffs contend that the district court committed reversible error when it upheld the execution of the re-recorded mortgage. However, the SBA ultimately withdrew from its summary judgment motion the argument that the plaintiffs had authorized the amendment of the original mortgage. Thus, the district court clearly did not premise its award of summary judgment to SBA on this issue. Alternatively, we note that, although plaintiffs objected to the findings of the magistrate judge’s Report and Recommendation regarding claim four, which concerns the mortgage’s allegedly defective acknowledgment, plaintiffs likely waived any appellate review regarding the validity of the mortgage’s execution by not specifically objecting to that issue. See Smith, 829 F.2d at 1373.
Plaintiffs further appeal the district court’s award of summary judgment for SBA on claim one to the extent that the district court held that, regardless of whether the plaintiffs had authorized the amendment of the original mortgage, plaintiffs had ratified the amended mortgage. In particular, plaintiffs contend that they could not have ratified the amended mortgage because they had neither the intent to ratify it nor a full knowledge of all the material facts at the time of the alleged ratification. Plaintiffs further maintain that, at a minimum, there is a genuine issue as to whether plaintiffs ratified the amended mortgage. However, in 1994, when the SBA agreed to subordinate its loan so that the plaintiffs could receive an additional line of credit, plaintiffs expressly “ratified] and affirm[ed] all obligations set forth in any and all documents, including ... mortgages ... executed in regard to the loan[.]” Thus, regardless of whether plaintiffs authorized the amendment of the original mortgage, plaintiffs, as a matter of law, explicitly ratified the amended mortgage when they entered into this subordination agreement. Plaintiffs’ subsequent ratification of the amended mortgage renders that mortgage valid and enforceable even if it would not have been enforceable before such ratification. See Heathscott v. NBD Bank, No. 206575, 1999 WL 33441302, at *2-3 (Mich.Ct.App. June 8, 1999) (per curiam) (holding that, despite her purported ignorance, plaintiff ratified a fraudulently executed mortgage, rendering it valid and enforceable, when she signed an amendment that referenced and affirmed that mortgage).
Plaintiffs’ contention that they were unaware of the amendments to the mortgage does not undermine this conclusion. Michigan law “presumes that one who signs a
For the preceding reasons, we AFFIRM the district court’s award of summary judgment for the SBA on all of plaintiffs’ claims.
. Because the parties presented matters outside of the pleadings, the district court properly treated SBA’s dispositive motion solely as one for summary judgment. See Fed.R.Civ.P. 12(c).
. Plaintiff Coleen Sutton did not join in her husband’s motions for the appointment of counsel and for a continuance.
. This statutory provision states: “The court may request an attorney to represent any person unable to afford counsel.”
. We note that plaintiffs moved for in forma pauperis status eleven months after they filed their complaint and, thus, after paying the filing fee and undertaking discovery.
. We disregard plaintiffs' reliance upon 18 U.S.C. § 1621, a criminal perjury statute, as it is inapposite to this civil action; similarly, we disregard plaintiffs' reliance upon Federal Rule of Civil Procedure 11 because plaintiff neither raised that specific objection nor complied with Rule ll’s distinct requirements before the district court.
. Plaintiffs erroneously insist that the bare existence of a perjured affidavit defeats summary judgment; however, where the district court’s disposition of the summary judgment motion does not depend upon the allegedly perjurious affidavit, no “genuine issue of material fact” exists. See Fed.R.Civ.P. 56(c); Anderson v. Liberty Lobby, 477 U.S. 242, 248, 106 S.Ct. 2505, 91 L.Ed.2d 202 (1986).
. We disregard plaintiffs’ argument that the district court also violated Federal Rule of Civil Procedure 53, which pertains to the appointment of a special master, because that rule is inapplicable here.
. In another issue on appeal, plaintiffs contend that the district court failed to conduct the requisite de novo review, which § 636(b)(1) mandates only where the district court employs subparagraph (B), not (A).
. Plaintiffs have neither raised nor briefed this specific issue on appeal.
. The SBA entertained five compromise offers from plaintiffs before the foreclosure and one additional offer after foreclosure.
. Plaintiffs assert that the Bunce test upon which the district court relied and, in particular, its requirement of discriminatory animus is inapposite to plaintiffs' disparate impact theory grounded in SBA’s discretionary settlement processes. However, the equal protection doctrine, unlike Title VII, requires purposeful discrimination. Washington v. Davis, 426 U.S. 229, 238-41, 96 S.Ct. 2040, 48 L.Ed.2d 597 (1976).
. Our analysis likewise assumes, without deciding, that the SBA was acting in a governmental capacity so as to trigger the Fifth Amendment's equal protection component.
. We need not address whether the district court properly granted summary judgment to the SBA on plaintiffs’ due process and equal protection claims to the extent that they seek monetary damages. Plaintiffs did not appeal this issue. In any event, we find that summary judgment was proper on independent grounds.
. The district court was uncertain whether plaintiffs are seeking monetary damages on these claims.
. Although the Small Business Act provides that the SBA Administrator may “sue and be sued in any court of recordf,]” 15 U.S.C. § 634(b)(1), this provision “does not establish a waiver of immunity so as to permit entertainment of [a] damages claim.” Ascot Dinner Theatre, Ltd. v. Small Business Admin.,
Reference
- Full Case Name
- David SUTTON, Jr. and Coleen M. Sutton v. UNITED STATES SMALL BUSINESS ADMINISTRATION
- Cited By
- 24 cases
- Status
- Published