UNITED STATES DISTRICT COURT
FOR THE DISTRICT OF COLUMBIA
)
CAROLINE HERRON, )
)
Plaintiff, )
)
v. ) Civil Action No. 10-943 (RMC)
)
FANNIE MAE, et al., )
)
Defendants. )
)
MEMORANDUM OPINION
This suit arises from the termination of a consulting contract between Caroline Herron
and Fannie Mae. Ms. Herron worked for Fannie Mae as an employee and then as a contractor until
she was terminated in January 2010. She alleges that she was terminated due to her complaints that
Fannie Mae (1) acted improperly in its role assisting the U.S. Department of the Treasury
(“Treasury”) with home loan modifications, (2) wasted public funds, and (3) violated its contract
with Treasury. Compl. [Dkt. 1] ¶ 1. Ms. Herron pleads in the alternative. If Fannie Mae is
considered a private employer, Ms. Herron brings claims of wrongful discharge, tortious
interference, and civil conspiracy under D.C. law. If Fannie Mae is a government actor, Ms. Herron
asserts a First Amendment claim under Bivens.1 Defendants and Intervenor, the Federal Housing
Finance Agency (“FHFA”), move to dismiss the Bivens claim on the ground that Defendants are not
federal actors and thus Bivens is inapplicable. Because Fannie Mae is a private entity and the
1
Bivens v. Six Unknown Named Agents of Federal Bureau of Narcotics, 403 U.S. 388 (1971),
established that an individual may bring a suit for damages against a federal officer, in his individual
capacity, for violation of a constitutional right.
appointment of FHFA as conservator of Fannie Mae did not transform Fannie Mae into a public
agency, the motions to dismiss the Bivens claim will be granted.
I. FACTS
A. Ms. Herron’s History with Fannie Mae
Ms. Herron was employed at Fannie Mae from 2000–2007. At the end of her time
there, she was a vice president. She held a leadership role on many projects and earned high
performance ratings. In 2007, Fannie Mae downsized, and Ms. Herron accepted a buyout. She left
the company on good terms. After FHFA placed Fannie Mae into conservatorship in 2008, an
outside vendor hired Ms. Herron to provide consulting services to Fannie Mae. Ms. Herron’s rapport
with Fannie Mae deteriorated, and the consulting relationship was ended. Ms. Herron contends that
Fannie Mae wrongfully terminated her as a consultant and that thereafter she was “blackballed” from
Fannie Mae and the industry.
As a result, she filed this suit against Fannie Mae and the following Fannie Mae
employees: Eric Schuppenhauer, Senior Vice President of Credit Initiatives; Nancy Jardini, Vice
President of Compliance; Alanna Scott Brown, Ms. Herron’s supervisor; and John Does One through
Four, unnamed Fannie Mae officials. Her Complaint asserts three counts under local law as well as
a Bivens claim under federal law as follows:
Count I – wrongful discharge against Fannie Mae;
Count II – civil conspiracy to terminate employment and impede
future employment against all Defendants;
Count III – tortious interference with prospective contractual relations
against all Defendants; and
Count IV – First Amendment action under Bivens against individual
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defendants Schuppenhauer, Jardini, Brown, and John Does.
See Compl. [Dkt. 1]. Because Fannie Mae is a party to this suit, this Court has jurisdiction. See 12
U.S.C. § 1723a(a) (Fannie Mae has the power to sue and be sued in any court of competent
jurisdiction, state or federal).
B. Background of Fannie Mae
Fannie Mae purchases residential mortgages thereby providing lenders with capital
to fund additional mortgage loans. Also known as the Federal National Mortgage Association or
“FNMA,” Fannie Mae was created in 1968 when Congress partitioned the Federal National
Mortgage Association into two entities: (1) the Government National Mortgage Association
(“Ginnie Mae”), which remained in the government, and (2) Fannie Mae, a private corporation.
Stipulation2 [Dkt. 49] (“Stip.”) ¶ 2 (citing the Housing and Urban Development Act of 1968, Pub.
L. No. 90-448, 82 Stat. 476 (1948), codified in part at 12 U.S.C. § 1716b. The statute that created
Fannie Mae provided:
The purpose of this title includes the partition of the Federal National
Mortgage Association as heretofore existing into two separate and
distinct corporations . . . . One of such corporations, to be know as the
Federal National Mortgage Association, will be a Government-
sponsored private corporation, will retain the assets and liabilities of
the previously existing corporation accounted for under section 1719
of this title, and will continue to operate the secondary market
operations authorized by such section 1719.
12 U.S.C. § 1716b. Fannie Mae was empowered to purchase, sell, and service mortgages. 12 U.S.C.
§ 1717(b). Fannie Mae was privately controlled by a Board of Directors, the majority of whom were
2
Ms. Herron and FHFA agreed to 171 stipulations of fact, without agreeing to their relevance
to the ultimate question of whether Fannie Mae was a public or private entity during the time period
relevant to this suit. See Stipulation [Dkt. 49].
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elected annually by the shareholders. See 12 U.S.C. § 1718(a) (establishing common stock with the
right to vote for directors, and preferred stock on terms and conditions as prescribed by such
directors); id. § 1723(b) (stating that Fannie Mae shall have a board of directors persons who are
elected annually by common stockholders); see also Northrip v. Fed. Nat’l Mortg. Ass’n, 527 F.2d
23, 30 (6th Cir. 1975) (Fannie Mae had 15 board members; 5 were appointed by the President and
10 were elected annually by common shareholders).
Fannie Mae competed with other financial institutions in the mortgage industry.
Historically, Fannie Mae’s competitors included Freddie Mac, Ginnie Mae, financial institutions,
securities dealers, insurance companies, and many others. Stip. ¶ 95 (citing Fannie Mae, Form 10-K
for 2009 at 4344 (Feb. 26, 2010)).
Pre-conservatorship, Fannie Mae’s securities were not guaranteed by the federal
government. Stip. ¶ 16 (citing 12 U.S.C. § 4503). Such securities were required to contain an
express disclaimer, that they were not guaranteed by the United States and that they did not
constitute a debt of the United States. See 12 U.S.C. § 1719(b), (d), (e). Further, Congress
specifically required Fannie Mae to act as a private entity in the hiring and compensation of its
employees. See 12 U.S.C. § 1723a(d)(2).
In 2008, Congress empowered the FHFA to act as conservator or receiver for Fannie
Mae for the purpose of reorganizing, rehabilitating or winding up Fannie Mae’s affairs. Stip. ¶ 34
(citing 12 U.S.C. § 4617(a)(1), (2), part of the Housing and Economic Recovery Act of 2008
(“HERA”), 12 U.S.C. § 4501 et seq.). On September 6, 2008, FHFA placed Fannie Mae into
conservatorship. James Lockhart, FHFA’s Director at the time, issued a statement noting:
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FHFA has placed Fannie Mae and Freddie Mac3 into conservatorship.
That is a statutory process designed to stabilize a troubled institution
with the objective of returning the entities to normal business
operations. FHFA will act as the conservator to operate the
Enterprises until they are stabilized.
Stip. ¶ 46 (quoting Statement of FHFA Director Lockhart (Sept. 7, 2008)).
As conservator of Fannie Mae, FHFA has statutory authority as “(i) necessary to put
the regulated entity in a sound and solvent condition; and (ii) appropriate to carry on the business
of the regulated entity and preserve and conserve the assets and property of the regulated entity.”
Stip. ¶ 51 (quoting 12 U.S.C. § 4617(b)(2)(D)). Further, as conservator, FHFA is empowered to “(i)
take over assets of and operation of [Fannie Mae] with all the powers of the shareholders, the
directors, and the officers of the regulated entity and conduct all business of the regulated entity; (ii)
collect all obligations and money due [Fannie Mae]; (iii) perform all functions of [Fannie Mae] in
the name of [Fannie Mae] which are consistent with the appointment as conservator or receiver; (iv)
preserve and conserve the assets and property of [Fannie Mae]; and (v) provide by contract for
assistance in fulfilling any function, activity, action or duty of the Agency as conservator.” Stip. ¶ 52
(quoting 12 U.S.C. § 4617(b)(2)(B)). FHFA as conservator reconstituted Fannie Mae’s Board of
Directors, who now serve on behalf of FHFA. Stip. ¶ 63 (citing Fannie Mae, Form 8-K filed with
the SEC at 2 (Dec. 24, 2008)); Stip. ¶¶ 75 & 78 (citing Statement of FHFA Director Before the
House Financial Services Comm. Subcomm. on Capital Markets, Insurance and Government
Sponsored Enterprises, “The Present Condition and Future Status of Fannie Mae and Freddie Mac”
at 7-9 (June 3, 2009) (stating that FHFA appointed new CEOs, nonexecutive chairmen, and boards
3
FHFA also placed into conservatorship a similar entity, the Federal Home Loan Mortgage
Corporation, known Freddie Mac.
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of directors to Fannie Mae and Freddie Mac)).
The conservatorship of Fannie Mae has no specified termination date. Stip. ¶ 67
(citing Fannie Mae, Form 8-K filed with the SEC at 2 (Dec. 24, 2008)); see also Stip. ¶ 156 (citing
OMB, Fiscal Year 2012; Analytical Perspectives, Budget of the U.S. Government at 373 (Feb. 14,
2011) (stating that the budget reflects Fannie Mae as a non-budgetary entity in keeping with its
temporary status in conservatorship)). FHFA issued a Fact Sheet regarding the conservatorship of
Fannie Mae that indicated:
Upon the [FHFA] Director’s determination that the Conservator’s
plan to restore [Fannie Mae] to a safe and solvent condition has been
completed successfully, the Director will issue an order terminating
the conservatorship. At present, there is no exact time frame that can
be given as to when this conservatorship may end.
Stip. ¶ 38 (quoting FHFA Fact Sheet: Questions and Answers on Conservatorship at 2 (Sept. 7,
2008)).
At the onset of the conservatorship, Fannie Mae (acting through the conservator)
entered into a Senior Preferred Stock Purchase Agreement (“Stock Agreement”). Under the Stock
Agreement, Treasury committed to provide funding from time to time, provided that the aggregate
funding did not exceed $100 billion. On a quarterly basis, the conservator may draw on the Treasury
commitment to make sure that Fannie Mae’s net worth does not fall below zero. Stip. ¶ 42 (citing
Stock Agreement § 2 (Sept. 7, 2008)). The maximum aggregate funding limit subsequently was
raised.4 The Senior Preferred Stock is not entitled to voting rights; the voting rights of all
4
On May 6, 2009, the Stock Agreement was amended to raise the maximum aggregate
amount of Treasury funding to $200 billion. Stip. ¶ 42 (citing Am. to Stock Agreement at 1-2 (May
6, 2009)). On December 24, 2009, the maximum aggregate amount was further increased to the
greater of $200 billion or $200 billion plus the cumulative amount funded through December 2012
less any surplus determined as of December 12, 2012. Stip ¶ 42 (citing 2d Am. to Stock Agreement
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stockholders are vested in the conservator. Stip. ¶ 55 (citing “Fact Sheet: Treasury Senior Preferred
Stock Purchase Agreements,” at 1-2 (Sept. 7, 2008), available at http://www.treasury.gov/press-
center/press-releases/Documents/pspa_factsheet_090708%20
hp1128.pdf (last visited April 26, 2012)).
After Fannie Mae was placed in conservatorship, Treasury and Fannie Mae (in
conservatorship) entered into a Financial Agency Agreement. Stip 145 (citing Financial Agency
Agreement, Ex. A at 1 (Feb. 18, 2009)). Under the terms of the Financial Agency Agreement,
Fannie Mae (in conservatorship) was appointed as a financial agent of the United States in order to
provide services such as foreclosure prevention, Housing Finance Agency activities, and customer
call centers. Id.; see also Emergency Economic Stabilization Act of 2008, Pub. L. No. 110-343, 122
Stat. 3765 (Oct. 3, 2008).
II. LEGAL STANDARD
A motion to dismiss for failure to state a claim pursuant to Federal Rule of Civil
Procedure 12(b)(6) challenges the adequacy of a complaint on its face. Fed. R. Civ. P. 12(b)(6). A
complaint must be sufficient “to give a defendant fair notice of what the . . . claim is and the grounds
upon which it rests.” Bell Atl. Corp. v. Twombly, 550 U.S. 544, 555 (2007) (internal citations
omitted). Although a complaint does not need detailed factual allegations, a plaintiff’s obligation
to provide the grounds of his entitlement to relief “requires more than labels and conclusions, and
a formulaic recitation of the elements of a cause of action will not do.” Id. To survive a motion to
dismiss, a complaint must contain sufficient factual matter, accepted as true, to state a claim for relief
that is “plausible on its face.” Twombly, 550 U.S. at 570.
at 1-2 (Dec. 24, 2009)).
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A court must treat the complaint’s factual allegations as true, “even if doubtful in
fact.” Twombly, 550 U.S. at 555. But a court need not accept as true legal conclusions set forth in
a complaint. Ashcroft v. Iqbal, 129 S. Ct. 1937, 1949 (2009). In deciding a motion under Rule
12(b)(6), a court may consider the facts alleged in the complaint, documents attached to the
complaint as exhibits or incorporated by reference, and matters about which the court may take
judicial notice. Abhe & Svoboda, Inc. v. Chao, 508 F.3d 1052, 1059 (D.C. Cir. 2007).5
III. ANALYSIS
It is well-settled that pre-conservatorship Fannie Mae was a private actor. Further,
the imposition of conservatorship and the execution of the Financial Agency Agreement did not
transform Fannie Mae into a government actor.
In Lebron v. Nat’l R.R. Passenger Corp., 513 U.S. 374 (1995), the Supreme Court
defined what type of entity constitutes a federal actor for the purpose of a constitutional claim. The
threshold question for invoking constitutional protection is whether a federal actor was involved, as
purely private action does not trigger constitutional protection. San Francisco Arts & Athletics, Inc.
v. U.S. Olympic Comm., 483 U.S. 522, 542 (1987). A corporation is part of the federal government
when Congress created the entity “by special law, for the furtherance of governmental objectives,
and retain[ed] for itself permanent authority to appoint a majority of the directors of that
corporation.”6 Lebron, 513 U.S. at 400. The Supreme Court determined in Lebron that Amtrak was
5
The Court has taken judicial notice of certain public records. See Mem. Op. & Order [Dkt.
69] at 2-3 (taking judicial notice of records attached to Mot. for Judicial Notice [Dkt. 51], Varma
Decl., Exs. 1-12). These records are certain public records of federal agencies.
6
The fact that Fannie Mae was created by statute and that Fannie Mae, like all financial
institutions, has a mission to serve the public is not relevant to the analysis in this Opinion. The
critical issue is whether the government through FHFA permanently controls Fannie Mae. The Court
-8-
a federal entity; it was created by statute for a government purpose and was controlled entirely by
the United States. Amtrak’s board of directors consisted of nine members: the Secretary of
Transportation, five appointed by the President, Amtrak’s president (appointed by the Board), and
two elected by the holders of preferred stock (all of which was owned by the United States). Id. at
385. By way of comparison, the Court noted that the Communications Satellite Corporation
(“Comsat”) was nongovernmental because only three of its fifteen directors were appointed by the
President. Id. at 390.
A. Pre Conservatorship Fannie Mae
When Fannie Mae was created by Congress, the government did not retain the
permanent authority to appoint the majority of its directors. Congress expressly designated Fannie
Mae as a private corporation, see 12 U.S.C. § 1716b, controlled by a Board of Directors elected
annually by Fannie Mae shareholders. See 12 U.S.C. § 1718(a) (providing that common
shareholders have right to vote for directors; id. § 1723(b) (providing that Fannie Mae’s board is
elected annually by common shareholders). Pre conservatorship, Fannie Mae had 15 board
members; of these 15, 5 were appointed by the President and 10 were elected by common
shareholders. Northrip, 527 F.2d at 30 (6th Cir. 1975). Pre conservatorship Fannie Mae, like
Comsat, was a nongovernmental entity under the reasoning set forth in Lebron.7
Since Lebron, no other court has been presented with the issue of whether pre-
conservatorship Fannie Mae was a federal actor. However, the Ninth Circuit held that pre-
concludes it does not.
7
Before Lebron, courts regularly determined that Fannie Mae was not a federal actor subject
to the Fifth Amendment due process clause. See, e.g., Roberts v. Cameron-Brown, Co., 556 F.2d
356, 359 (5th Cir. 1977); Northrip, 527 F.2d at 30.
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conservatorship Freddie Mac, a similar entity, was not a government actor under Lebron. In
American Bankers Mortgage Corp. v. Federal Home Loan Mortgage Corp., 75 F.3d 1401, 1405 (9th
Cir. 1996), American Bankers brought suit asserting that Freddie Mac violated the Fifth Amendment
due process clause when it terminated American Bankers’ status as a mortgage loan seller and
servicer. Because the Fifth Amendment applies only the federal government, Freddie Mac could
only be subject to its limitations if it were part of the federal government. The Ninth Circuit
determined that it was not. Although Congress created Freddie Mac to serve the public interest by
increasing the availability of mortgages for low and moderate income families, Freddie Mac was not
a federal entity that could be liable under the due process clause because it was not controlled by the
United States. Id. at 1409.8 Freddie Mac had a board of directors numbering eighteen, thirteen of
whom were elected annually by the common shareholders and five of whom were appointed by the
U.S. President. There were 60 million shares of common stock in Freddie Mac, which were
publically traded on the New York Stock Exchange. Id. at 1407. Fannie Mae, like Freddie Mac, was
publically traded on the New York Stock Exchange. See Frank v. Bear Stearns & Co., 128 F.3d 919,
923 n.2 (5th Cir. 1997) (Fannie Mae was owned entirely by private stockholders; its stock was traded
on the NYSE). Also, like Freddie Mac, Fannie Mae was controlled by a Board of Directors elected
annually by shareholders. See 12 U.S.C. § 1718(a); id. § 1723(b); see also Northrip, 527 F.2d at 30.
Fannie Mae was a private entity pre conservatorship.
B. Post Conservatorship Fannie Mae
When a federally chartered financial institution (such as a national bank, federal
8
See also Liberty Mortg. Banking, Ltd. v. Fed. Home Loan Mortg. Co., 822 F. Supp. 956,
958-60 (E.D.N.Y. 1993) (pre-Lebron, district court held that Freddie Mac was not a federal actor).
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savings association, or government-sponsored enterprise) encounters financial distress, it does not
go through bankruptcy. Instead, it is placed into federal conservatorship or receivership. The
conservator or receiver takes over the day-to-day operations and assumes the powers of shareholders,
board of directors, and management. The purpose of the conservator or receiver is to restore the
entity to fiscal feasibility or to liquidate and distribute its assets. The conservator or receiver steps
into the private status of the entity. For example, when the Federal Deposit Insurance Corporation
(“FDIC”) takes over as conservator or receiver for a failed bank, it obtains the rights and powers of
the bank’s shareholders, officers, and directors. See 12 U.S.C. § 1821(d)(2)(A). As conservator or
receiver, it may take over the assets and operation of the insured depository institution to conduct
all of the institution’s business, in order to preserve and conserve the assets and property of Fannie
Mae. Id. § 1821(d)(2)(B). FDIC in its role as conservator or receiver is placed “in the shoes of the
insolvent” entity. O’Melveny & Myers v. FDIC, 512 U.S. 79, 86-87 (1994) (examining 12 U.S.C.
§ 1821(d)(2)(A) & (B)). A claim against FDIC as receiver is “a claim against the depository
institution for which the FDIC is receiver.” Am. Nat’l Ins. Co. v. FDIC, 642 F.3d 1137, 1144 (D.C.
Cir. 2011). Further, when acting as receiver, FDIC does not pursue the interests of the government.
Atherton v. FDIC, 519 U.S. 213, 225 (1997). Courts have similarly held that FDIC as conservator
was not acting for the United States. See, e.g., Ameristar Fin. Servicing Co. LLC v. United States,
75 Fed. Cl. 807, 811 (2007).
O’Melveny interpreted the Financial Institutions Reform, Recovery and Enforcement
Act of 1989 (“FIRREA”), 12 U.S.C. 1461 et seq., the statute applicable to FDIC. Section
1821(d)(2)(A) & (B) of FIRREA, regarding the power and rights of conservators and receivers, is
almost identical to § 4617(b)(2)(A) & (B) of HERA. When FHFA steps in as conservator or receiver
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it immediately succeeds to all rights and powers of the stockholders, officers, and directors of the
regulated entity placed into such conservatorship or receivership. 12 U.S.C. § 4617(b)(2)(A). In like
manner, on September 6, 2008, FHFA placed Fannie Mae into conservatorship. As conservator,
FHFA took over the assets and operations of Fannie Mae with all the powers of the shareholders,
officers, and directors to conduct all of Fannie Mae’s business, in order to preserve and conserve the
assets and property of Fannie Mae. See id. § 4617(b)(2)(B). Thus, like FDIC when it serves as a
conservator or receiver of a private entity, FHFA when it serves as conservator “step[s] into the
shoes” of the private corporation, Fannie Mae.9
In such circumstances, the federal agency in its guise as a conservator or receiver of
a private corporation is not a government actor. For example, in United States v. Beszborn, 21 F.3d
62, 67-68 (5th Cir. 1994), the Fifth Circuit held that the Resolution Trust Corporation (“RTC”) as
receiver of a failed bank was not a government actor. The RTC had sued the former officers and
directors of the failed bank in a civil case and obtained a judgment including punitive damages. The
government subsequently brought criminal charges against the officers and directors based on the
same conduct. The officers and directors asserted Double Jeopardy as a defense. The Fifth Circuit
found that the RTC as receiver stood in the shoes of the insolvent bank, i.e., that the RTC was a
private entity and not the government for purposes of the Double Jeopardy clause. 21 F.3d at 68.
9
Ms. Herron fails in her attempt to distinguish O’Melveny. She argues that FHFA should
be treated differently than FDIC because FHFA acts as both regulator and conservator for Fannie
Mae and FDIC only acts as conservator (or receiver). Ms. Herron overlooks critical facts. FDIC also
serves as regulator of state-chartered banks that are not members of the federal reserve system.
Reply [Dkt. 61], Ex. A (excerpts of FDIC 2010 Annual Report) at 27. When one of these banks goes
into conservatorship, FDIC serves as both regulator and conservator. Even with regard to federally
chartered institutions for which the Office of the Comptroller of the Currency has primary regulatory
authority, such institutions must submit to FDIC regulation including FDIC “backup examination
authority.” Id. at 165.
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Similarly, Fannie Mae was not converted into a government entity when it was placed into
conservatorship; instead, FHFA stepped into the shoes of Fannie Mae. FHFA as conservator for
Fannie Mae is not a government actor.10
Ms. Herron avers that Fannie Mae is a federal actor for the purpose of her First
Amendment claim because: (1) the conservatorship is of indefinite duration; (2) FHFA presently
controls Fannie Mae; and (3) Treasury provides financial support to Fannie Mae in exchange for
non-voting Senior Preferred Stock. Ms. Herron draws the wrong conclusion from these three
uncontested facts. Fannie Mae would be a federal actor if the FHFA conservatorship retained for
the government permanent authority to appoint a majority of the corporation’s directors. Lebron,
513 U.S. at 400. To the contrary, the appointment of FHFA as conservator did not establish
permanent government authority to control Fannie Mae.
First, Ms. Herron insistes that there is no date certain when the conservatorship of
Fannie Mae will end,11 and, therefore, she erroneously concludes that FHFA control over Fannie Mae
must be permanent. In order to be a government actor under the Lebron framework, permanent
government control is required. Lebron itself distinguishes permanent from temporary control. The
Supreme Court contrasted Amtrak, which was a federal actor in the permanent control of the
10
Ms. Herron unsuccessfully attempts to distinguish Beszborn, asserting that the RTC in that
case operated to benefit the creditors and stockholders and asserting that FHFA operates Fannie Mae
to benefit the federal government. This reflects an incorrect understanding of the facts. Treasury’s
interest in Fannie Mae is as a shareholder of Senior Preferred Stock. FHFA operates Fannie Mae
to benefit of creditors and shareholders, in the same way that RTC operated the failed financial
institution in Beszborn.
11
See Pl.’s Opp. [Dkt. 55] at 41 (“[T]he record evidence is undisputed that the
conservatorship is of indefinite duration, and that neither FHFA nor Fannie Mae knows when or how
it will end.”)
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government, from “a private corporation whose stock comes into federal ownership,” which is in the
temporary control of the government. Lebron, 513 U.S. at 398. Although the duration of the
conservatorship is indefinite, FHFA’s control over Fannie Mae is temporary. Fannie Mae was not
a federal actor at the relevant time.
Second, Ms. Herron asserts that FHFA’s complete control over Fannie Mae makes
Fannie Mae a federal actor. Congress empowered FHFA to act as conservator of Fannie Mae for the
purpose of reorganizing, rehabilitating, or winding up its affairs. 12 U.S.C. § 4617(a)(2). Thus, the
enabling statute expressly allows FHFA temporary but complete control over Fannie Mae, not
permanent control. See also Stip. ¶ 67 (citing Fannie Mae, Form 8-K filed with the SEC at 2 (Dec.
24, 2008) (conservatorship of Fannie Mae has no specified termination date)); Stip. ¶ 156 (citing
OMB, Fiscal Year 2012; Analytical Perspectives, Budget of the U.S. Government at 373 (Feb. 14,
2011) (budget reflects Fannie Mae as a non-budgetary entity in keeping with its temporary status in
conservatorship)); Stip ¶ 38 (quoting FHFA Fact Sheet: Questions and Answers on Conservatorship
at 2 (Sept. 7, 2008) (there is no exact time frame that can be given as to when the conservatorship
of Fannie Mae might end)). The complete control exercised by FHFA is authorized by statute; it is
how conservatorship is accomplished. Because conservatorship is by nature temporary, the
government has not acceded to permanent control over the entity and Fannie Mae remains a private
corporation.
Finally, Ms. Herron also argues that Fannie Mae was transformed into a federal entity
via (1) Treasury’s appointment of Fannie Mae as administrator of the Home Affordable Modification
Program through the Financial Agency Agreement and (2) Treasury’s entry into the Stock Agreement
with Fannie Mae. With regard to the Financial Agency Agreement, it states that Fannie Mae is
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distinct from the government and must maintain a fiduciary duty of loyalty to the federal
government. Stip. ¶ 146 (citing Financial Agency Agreement at 3-4). The Financial Agency
Agreement also expressly provides that contractors to Fannie Mae (such as Ms. Herron) do not
become subcontractors of the government. Stip. ¶ 147 (citing Financial Agency Agreement §14(B)).
These provisions make it clear that the Financial Agency Agreement did not transform Fannie Mae
into a government entity.
The Stock Agreement did not give the government permanent control over Fannie
Mae. The Stock Agreement provided Treasury with a warrant to purchase 79.9% of the total shares
of Fannie Mae common stock outstanding on the date of exercise at a nominal price. Stip. ¶ 93
(citing Fannie Mae Form 10-K for 2009 at 331-32 (Feb. 26, 2010)). As of this date, Treasury has
not exercised this warrant. The Stock Agreement also required Treasury to provide funding to
Fannie Mae to ensure a positive net worth in exchange for shares of Senior Preferred Stock that pay
a certain dividend. Stip. ¶ 55 (citing Treasury Fact Sheet: Treasury Senior Preferred Stock Purchase
Agreements at 1-2 (Sept. 7, 2008)). Senior Preferred Stock conferred no voting rights. Id. Thus,
Treasury’s warrant to purchase common stock and its ownership of non-voting Senior Preferred
Stock do not give the United States permanent control over Fannie Mae and do not make Fannie Mae
a government entity under Lebron.
Ms. Herron also relies on Brentwood Academy v. Tennessee Secondary Sch. Athletic
Ass’n, 531 U.S. 288 (2001), arguing that the government is so entwined with Fannie Mae as to have
created a public entity subject to constitutional restrictions. Under Brentwood, the Supreme Court
held that an athletic association in which the majority of members were public schools could be
deemed to be a federal actor because the association was pervasively entwined with government
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policies and was managed and controlled by government officials in their government capacity. Id.
at 299-301. Brentwood did not change the law of conservatorship and receivership. As described
above, a conservator or receiver steps into the shoes of the private entity — it assumes the private
status of the entity. See O’Melveny, 512 U.S. at 86-87; Am. Nat’l Ins. Co., 642 F.3d at 1144;
Beszborn, 21 F.3d at 67-68. Fannie Mae was a private entity; when FHFA took over as conservator
of Fannie Mae, it stepped into Fannie Mae’s private role. In sum, FHFA as conservator of Fannie
Mae is not a government actor, and Ms. Herron’s Bivens claim will be dismissed.
IV. CONCLUSION
Accordingly, the motion to dismiss the Bivens claim filed by Intervenor (the Federal
Housing Finance Agency) [Dkt. 50] and the similar motion to dismiss filed by Defendants [Dkt. 52]
will be granted. Count IV (Bivens) of the Complaint will be dismissed. Counts I, II, and III remain.
A memorializing Order accompanies this Memorandum Opinion.
Date: April 30, 2012 /s/
ROSEMARY M. COLLYER
United States District Judge
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