Bathiard v. Islamic Republic of Iran
Bathiard v. Islamic Republic of Iran
Opinion of the Court
On April 18, 1983, a suicide bomber crashed a truck full of explosives into the entrance of the U.S. Embassy in Beirut, Lebanon, setting off a blast that killed 52 people. Among those who died was Cesar Bathiard, a Lebanese citizen working at the Embassy. His widow and daughters have now brought suit against the Islamic Republic of Iran under the Foreign Sovereign Immunities Act, alleging that Iran was responsible for the attack and Bathiard's resulting death. Since Iran has not appeared, the Bathiards now seek a default judgment. But because this suit was not filed within the applicable statute of limitations, the Court will deny their motion and instead dismiss the case.
I. Background
Cesar Bathiard worked at the U.S. Embassy in Beirut for a little over a decade. Mot. Default J. Aff. 1, ¶ 4 (Aff. for Estate of Cesar Bathiard). In April 1983, he was employed by the Department of State as a driver for Robert S. Dillon, then the U.S. Ambassador to Lebanon. Id. On April 18, 1983, Bathiard was in the lobby of the embassy, waiting for Ambassador Dillon to *137come downstairs, when an explosives-laden truck crashed into the building and detonated. Id. ¶ 5. He was killed instantly. Id.
Over thirty years later, in August 2016, Bathiard's widow Marcelle El-Helou and his two daughters Rita Bathiard and Pascale Mazarei (collectively "the Bathiards") filed suit on behalf of themselves and Cesar Bathiard's estate against the Islamic Republic of Iran and the Iranian Ministry of Information and Security (collectively "Iran"). The Bathiards alleged that Iranian military and intelligence operatives financed and directed Hezbollah, the militant group that carried out the embassy bombing. Compl. ¶¶ 6, 10. They claimed that Iran had "complete operational control" of Hezbollah and provided high-level technical support and funding to Hezbollah without which the April 1983 embassy bombing would not have been possible. Id. ¶¶ 6-7. Their suit seeks to hold Iran liable for injuries stemming from Cesar Bathiard's death under a provision in the Foreign Sovereign Immunities Act ("FSIA") that authorizes suits by U.S. citizens or employees and their families against foreign sovereigns who are state sponsors of terrorism for their involvement in acts of terrorism, see 28 U.S.C. § 1605A.
In September 2017, the Bathiards served Iran with process through diplomatic channels. When Iran failed to appear, they obtained a notice of default on November 29, 2017, and subsequently moved for a default judgment. Prior to resolving their motion, however, the Court directed the parties to file supplemental briefing addressing whether this suit was timely under the applicable statute of limitations. The Court now concludes that it was not.
II. Legal Standard
The FSIA provides the sole basis for obtaining jurisdiction over a foreign state in a United States court. The statute generally shields foreign sovereigns from being haled into court, but carves out exceptions allowing certain kinds of lawsuits to proceed. See Bolivarian Republic of Venezuela v. Helmerich & Payne Int'l Drilling Co., --- U.S. ----,
Under the FSIA, a plaintiff may obtain a default judgment when the defendant fails to enter an appearance.
III. Analysis
The Court directed supplemental briefing on the question of whether the Bathiards' suit is timely under the FSIA. In *138their supplemental briefing, the Bathiards argue that their suit is timely either (1) as an original action brought within 10 years of the date their cause of action arose or (2) as an action related to a timely-filed original action involving the same bombing. See 28 U.S.C. § 1605A(b). The Court finds that their suit is not timely under either theory. Before addressing the arguments on timeliness, however, the Court will begin with a threshold argument raised by the Bathiards: whether it is proper for the Court to sua sponte consider whether they filed their suit within the statute of limitations.
A. Consideration of the Statute of Limitations
The statute of limitations is typically an affirmative defense that is waived unless a defendant promptly raises it. See, e.g., Worley v. Islamic Republic of Iran,
That said, the Supreme Court has recognized that in some situations "courts have the discretion, but not the obligation, to raise on their own initiative certain nonjurisdictional barriers to suit." United Student Aid Funds, Inc. v. Espinosa,
First and foremost, this case involves the FSIA and an absent foreign sovereign. As such, unlike a run-of-the-mill civil suit, it implicates international relations and comity-"the spirit of cooperation in which a domestic tribunal approaches the resolution of cases touching the laws and interests of other sovereign states," Societe Nationale Industrielle Aerospatiale v. U.S. Dist. Court for S. Dist. of Iowa,
*139Thus, the statute of limitations encoded in the FSIA serves to protect more than simply the interests of individual litigants; it furthers international relations and "the reciprocal foreign litigation interests of the United States." Clodfelter v. Republic of Sudan,
The Court's conclusion is buttressed by the statutory provision regarding default judgments in FSIA cases. Under the FSIA, before entering a default judgment the Court must determine whether the plaintiff has established her claim or right to relief by satisfactory evidence. See
The Bathiards recognize the foreign relations issues involved here, as well as the fact that the judiciary "has assumed a deferential role in dealing with foreign nations." Pls.' Suppl. Br. at 3. But these factors counsel towards the opposite conclusion, they contend. Had Congress wanted federal courts to "exempt foreign sovereigns from the normal rules of procedure," it would have done so. Id. at 2. Rather, in their view, "Congress extended no special treatment on this issue to a defaulting sovereign and clearly contemplated that none be given." Id. at 3.
The Court is cognizant that federal courts have "traditionally 'deferred to the decisions of the political branches ... on whether to take jurisdiction over actions against foreign sovereigns.' " Rubin,
At the end of the day, sua sponte consideration of affirmative defenses remains a discretionary choice. It may not be appropriate in every FSIA case. But in light of the several decades of time that have passed between the events at issue here and the filing of this suit, combined with the unsettling foreign policy implications of allowing suits and judgments against absent foreign sovereigns without any temporal limitations, the Court in this case will exercise its discretion to consider the statute of limitations sua sponte .
B. Timeliness as a New Action
Having decided to address the timeliness of this suit, the Court turns to the Bathiards' first timeliness argument: that the lawsuit was timely filed under the FSIA as an original action. The relevant provision of the FSIA states that "[a]n action may be brought or maintained ... if the action is commenced ... not later than the latter of (1) 10 years after April 24, 1996; or (2) 10 years after the date on which the cause of action arose." 28 U.S.C. § 1605A(b). The first portion of this provision is irrelevant here, as the Bathiards filed suit well after April 2006. But they argue that their suit is timely under the second provision. They contend that their cause of action arose on January 28, 2008, the effective date of the amendments to the FSIA that gave the Bathiards the ability to file suit as relatives of non-citizen government employees. Because they filed suit within 10 years of that date, they say, the suit is timely.
The D.C. Circuit has not squarely addressed when a FSIA cause of action "arises," though it has characterized the Bathiards' argument as "rather strained," Simon v. Republic of Iraq,
As usual, the Court starts with the text of the statute. The Supreme Court has explained that, as a general matter, the phrase "cause of action arose" "incorporates the standard rule that the limitations period commences when the plaintiff has 'a complete and present cause of action.' " Bay Area Laundry & Dry Cleaning Pension Trust Fund v. Ferbar Corp. of California,
Since a plaintiff can only sue and obtain relief once all the factual elements of her claim are present, the ordinary understanding is that a cause of action arises once the final factual prerequisite to suit is met. For instance, in Bay Area Laundry the Supreme Court held that a statute of limitations in a pension statute did not begin to run on the date that an employer withdrew from a pension plan because employees could not bring suit at that time; rather, they had to wait for several additional factual events-the calculation of a debt and the employer's default on a payment-to occur first.
But wait, the Bathiards say. The Supreme Court in Bay Area Laundry also indicated that a cause of action does not arise until the plaintiff "can file suit."
While this argument is clever, it pulls the Supreme Court's language in Bay Area Laundry entirely out of context. Cases such as Bay Area Laundry and Green typically involve a question as to which of two factual events triggers the statute of limitations-the employer's withdrawal from the pension plan or the employer's default on a payment in Bay Area Laundry; the employee's resignation or the last discriminatory act in Green. The cause of action was complete, the Court held in both cases, when the last factual event necessary to bring suit occurred. The language in Bay Area Laundry thus says nothing about how the existence of a statutory cause of action relates to the running of a statute of limitations.
Moreover, the Bathiards' reading of the statute and the language from Bay Area Laundry would lead to a host of problems. In essence, the Bathiards' argument is that no cause of action ever "arises" until the statute creating the cause of action exists. Consequently, any time that Congress creates a new statutory cause of action with an analogously-worded statute of limitation, any plaintiff with a valid claim can bring it no matter how long ago the relevant conduct occurred .
The Bathiards' reading would effectively give every statute creating a new cause of action and including a similar statute of limitations unlimited retroactive effect. While Congress could do that if it wanted, the Court will not presume that in such statutes Congress intends to open the courthouse doors to any and all claimants regardless of how long ago the relevant *142conduct occurred without at least some indication of that intent. See, e.g., Davis v. U.S. Dep't of Justice,
Even if it were so inclined, other tools of statutory interpretation cut against the Bathiards' reading of the statutory text as well. First, comparing the current statute of limitations with the pre-2008 limitations provision illustrates that Congress did not understand the phrase "date the cause of action arose" to have the meaning advanced by the Bathiards. Like the current version of the statute of limitations, the version in force from 1996 until 2008 provided that suits needed to be "commenced not later than 10 years after the date on which the cause of action arose."
If the phrase "date on which the cause of action arose" had the meaning offered by the Bathiards, it would make the equitable tolling provision unnecessary: if all plaintiffs had a ten-year window to file suit from 1996 because their cause of action did not arise until then, there would have been no need to toll the pre-1996 period when the foreign state had been immune from suit. The Bathiards' interpretation should therefore be avoided. See, e.g., Asiana Airlines v. FAA,
Moreover, Congress knows how to carve out a window allowing for suits that lacked a cause of action prior to the 2008 amendment. It did precisely that in the pre-2008 statute of limitations by providing for equitable tolling, which it did not do in the current version. And it provided for an alternative mechanism in the post-2008 statute of limitations by allowing plaintiff to bring suit within 10 years of a fixed date-1996. Congress's choice not to include language that would clearly have the meaning the Bathiards argue for here indicates that it did not intend to adopt their interpretation. Cf. Advocate Health Care Network v. Stapleton, --- U.S. ----,
Finally, the legislative history, which the Bathiards contend supports their reading, actually undercuts it. The Bathiards point to statements made by Senator Frank *143Lautenberg, the author of the 2008 amendments to the FSIA. In the cited statements, Senator Lautenberg criticized a court decision interpreting the pre-2008 statute of limitations. 154 Cong. Rec. S54 (daily ed. Jan. 22, 2008). He then stated that the intent of the pre-2008 statute of limitations was "to provide a 10-year period from the date of enactment of the legislation for all acts that had occurred at any time prior to its passage in 1996" and "to provide a period of 10 years from the time of any attack which might occur after 1996."
For all these reasons, the Court concludes that the "date the cause of action arose" means the date the factual events giving rise to the claim occurred. In the ordinary case, that will be when the attack at issue occurred. Here, that date was April 18, 1983. Since the Bathiards brought suit far more than 10 years after that date, their claims are untimely as an original action.
C. Timeliness as a Related Action
The Bathiards also contend that even if their action does not comply with the statute of limitations period for a new action, it should still be considered timely as a related action. To prevail on this argument, the Bathiards must satisfy two requirements: (1) that the original action to which their case is related was timely filed under the ten-year statute of limitations provision discussed above and (2) that the related action was filed within the separate statute of limitations period provided in section 1083(c)(3) of the National Defense Authorization Act for Fiscal Year 2008 ("NDAA"). See, e.g., Owens,
The Bathiards claim that their action is related to Dammarell v. Islamic Republic of Iran,
IV. Conclusion
For the foregoing reasons, the Bathiards have failed to establish that their lawsuit was filed within the statute of limitations period. The Court will therefore deny their motion for a default judgment and instead *144dismiss the case. A separate Order shall accompany this Memorandum Opinion.
The Court need not address whether the Bathiards have established that they meet the requirements to bring suit under the FSIA prior to addressing the statute of limitations. The D.C. Circuit has held that whether a plaintiff has met the FSIA's requirements implicates the Court's statutory jurisdiction, not its Article III jurisdiction. See Chalabi v. Hashemite Kingdom of Jordan,
The D.C. Circuit did state in Owens v. Republic of Sudan that "the plaintiffs' causes of action arose on August 7, 1998, the date of the embassy bombings" at issue in that case.
It is an open question in the D.C. Circuit as to whether a related action may be brought only by plaintiffs who previously filed an action under the pre-2008 version of the FSIA as opposed to anyone injured in the same attack. See Owens,
Reference
- Full Case Name
- Rita BATHIARD v. ISLAMIC REPUBLIC OF IRAN
- Cited By
- 4 cases
- Status
- Published