UNITED STATES DISTRICT COURT
FOR THE DISTRICT OF COLUMBIA
In re Federal National Mortgage
Association Securities, Derivative, and MDL No. 1668
"ERISA" Litigation
Federal Housing Finance Agency as Civil Case No. 08-1093 (RJL)
Conservator for the Federal National
Mortgage Association v. Raines, et al.
A nes)
MEMO~M ORDER
(July z:j, 20 I 0) [#77, 83, 87]
Before the Court are two motions, both of which seek dismissal of this case but for
very different reasons. The first motion, which was filed by the plaintiff Federal Housing
Finance Agency ("FHFA") as the conservator for the Federal National Mortgage
Association ("Fannie Mae"), requests voluntary dismissal without prejudice or, in the
alternative, a 180-day stay. FHFA claims that it needs more time to decide whether the
prosecution of this case would advance the statutory purpose of the conservatorship to
preserve and protect the assets of Fannie Mae. Three of the defendants-Franklin D.
Raines, J. Timothy Howard, and Leanne G. Spencer (collectively, "the individual
defendants")-responded with a motion of their own asking for dismissal with prejudice
on the ground that FHFA has failed to prosecute the case with sufficient diligence. For
the following reasons, FHFA's motion is GRANTED, and the individual defendants'
motion is DENIED.
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BACKGROUND
This case, formerly captioned as Agnes v. Raines, is one of four shareholder
derivative actions still pending against a long list of former and then-current officers and
directors of Fannie Mae, as well as other third parties. 1 The case was originally
commenced by L. Jay Agnes on June 25,2008. (See Compi. [#1] ~ 1). His Complaint
alleged, among other things, claims arising from Fannie Mae's accounting practices
("accounting claims") and claims arising from Fannie Mae's participation in the
subprime financing of home mortgages ("subprime claims"). (See id.). Just over two
months later, on September 8, 2008, Fannie Mae, with authorization from its recently-
appointed conservator FHFA, moved to stay all cases related to the Fannie Mae multi-
district litigation. (Mot. for Stay of All Proceedings [#4]). The Court approved the stay
for 45 days. (Order Granting Stay of All Proceedings [#8]). On January 22, 2009, the
Court granted FHF A's Motion to Intervene as Conservator for Fannie Mae, (Minute
Order entered Jan. 22, 2009), and on June 25,2009, the Court granted FHFA's motion to
substitute itself for the shareholder derivative plaintiff, (Mem. Order [#61]). The Court
also ordered FHF A to submit within 30 days a proposed order to sever the plaintiffs
accounting claims from the subprime claims. (Jd.). After the Court denied FHFA's
motion for an extension of time, FHF A submitted the proposed order on July 27, 2009.
(Notice of Filing [#73]). Several days later, on August 4,2009, the Court entered an
order severing the accounting claims from the subprime claims and granting FHF A leave
IThe other cases were originally captioned as Kellmer v. Raines (Civ. No. 07-
1173), Middleton v. Raines (Civ. No. 07-1221), andArthurv. Mudd (Civ. No. 07-2130).
FHF A seeks to dismiss each of these cases without prejudice.
2
to file within 30 days an amended complaint containing the accounting claims and a
separate amended complaint containing the subprime claims. (Order [#74]). Rather than
filing the amended complaints, FHFA moved to dismiss the case without prejudice under
Federal Rules of Civil Procedure 23.1(c) and 41(a). In the alternative, FHFA requested a
180-day stay so that it may have additional time to determine whether the continued
prosecution of the case comports with the statutory purpose of the conservatorship. In
response, the individual defendants moved to dismiss the case with prejudice under Rule
41 (b) on the ground that FHF A has failed to prosecute the lawsuit diligently. 2
DISCUSSION
A derivative action may be "voluntarily dismissed ... only with the court's
approval." Fed. R. Civ. P. 23.1(c). Voluntary dismissal by court order is without
prejudice unless the court states otherwise. Fed. R. Civ. P. 4l(a)(2). These dismissals
are generally "granted in the federal courts unless the defendant would suffer prejudice
other than the prospect of a second lawsuit or some tactical disadvantage." Conafay v.
Wyeth Labs., 793 F.2d 350, 353 (D.C. Cir. 1986). Unlike Rule 41(a)(2), Rule 41(b)
provides for involuntary dismissal if the plaintiff "fails to prosecute" its case. Fed. R.
Civ. P. 41 (b). Local Civil Rule 83.23 further provides that "[a]n order dismissing a claim
for failure to prosecute shall specify that the dismissal is without prejudice, unless the
Court determines that the delay in prosecution of the claim has resulted in prejudice to an
opposing party." LCvR 83.23. Whether the Court should deny FHFA's Motion for
2For his part, plaintiff Agnes, along with another derivative plaintiff in a related
case, James Kellmer, filed a Motion for Leave of Court to Appear as Amici Curiae. This
motion is DENIED.
3
Approval of Voluntary Dismissal without Prejudice and grant the individual defendants'
Motion to Dismiss the Accounting-Related Claims with Prejudice for Failure to
Prosecute thus depends on whether the individual defendants can show that FHF A "has
not manifested reasonable diligence in pursuing the cause," Bomate v. Ford Motor Co.,
761 F.2d 713, 714 (D.C. Cir. 1985), and that the resulting delay has caused them
prejudice.
To say the least, I am not convinced that FHFA has failed to exercise reasonable
diligence in prosecuting its derivative claims. FHF A did not formally replace the original
derivative plaintiff until as late as June 2009, and since then, its conduct has not been so
"dilatory or contumacious" as to justify the stiff penalty of dismissal with prejudice. See
Bristol Petroleum Corp. v. Harris, 901 F.2d 165, 167 (D.C. Cir. 1990). Indeed, FHFA
has responded to all of the Court's orders in a reasonable fashion, and it certainly has not
disobeyed any Court order. Furthermore, FHFA's motion comes less than a mere three
months after FHF A officially replaced the original plaintiff. It is also significant that no
dispositive motions have been filed, 3 nor is the case on the eve of trial.
3 In this respect, this case is different from Kellmer v. Raines (Civ. No. 07-1173)
and Middleton v. Raines (Civ. No. 07-1221), in which the Court denied FHFA's Motion
for Approval of Voluntary Dismissal partly because Fannie Mae had already filed a
dispositive motion to dismiss, which the individual defendants had joined. Although the
individual defendants have not yet had an opportunity to file a motion to dismiss in this
case, the Court is mindful that, should FHF A refile Agnes's accounting-related claims,
the individual defendants intend to move for dismissal based on claim preclusion. (See
Defs.' Response to Status Report and Notice of Filing by FHFA [#75] at 4). To the
extent that the Court dismissed Kellmer on claim preclusion grounds, ifFHFA were to
file this case again in the future, it would likely meet a similar fate.
4
The real issue, therefore, is not whether FHF A's conduct until now has been
dilatory (it has not) but whether FHFA's decision to dismiss its claims with the option of
bringing them again in the future is itself so dilatory as to warrant dismissal with
prejudice. The defendants contend that in moving for voluntary dismissal FHF A has
stubbornly refused to make known its intention whether or not it will proceed with its
derivative action against the individual defendants and that this intentional delay justifies
involuntary dismissal with prejudice. It goes without saying that a decision to move for
voluntary dismissal cannot-by itself-be a basis for granting involuntary dismissal.
Were that so, then voluntary dismissal under Rule 41(a)(2) would be a nUllity. The
question then is whether FHFA's motion to dismiss without prejudice is an unwarranted
deferral of a decision FHF A was obligated to make. If so, then the Court may properly
deem FHF A's motion as an obstinate refusal to prosecute and thereby dismiss the case
with prejudice.
The individual defendants' suggestion that the Court required FHF A to decide
once and for all whether it would prosecute the derivative claims and that it refused to do
so is not correct. I did not direct FHFA to state whether it intended to proceed with the
derivative action or face dismissal with prejudice. To the contrary, I merely granted
FHFA leave to file an amended complaint within 30 days. (Order [#74] ~ 2). FHFA
opted not to file an amended complaint and instead filed a motion for voluntary
dismissal, as it was permitted to do under Rule 41(a)(2). That is hardly the sort of
egregiously dilatory conduct that constitutes failure to prosecute and that justifies the
harsh penalty of involuntary dismissal with prejudice. Indeed, given Congress's decision
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to extend the statute of limitations as long as three years for tort claims and six years for
contract claims from the date of the conservator's appointment, see 12 U.S.c. §
4617(b )(12), FHFA's decision to withdraw its claims with the option of bringing them
later is not wholly unreasonable. By extending the limitations period, Congress
acknowledged that FHF A might need more time to decide whether and how to pursue the
claims it inherited as Fannie Mae's newly-appointed conservator. Furthermore, because
the Court never warned FHF A that failure to file an amended complaint could result in
dismissal with prejudice, it would "upset[] notions of fundamental fairness" for this
Court, "in response to [FHFA's] request for dismissal without prejudice," to dismiss the
case with prejudice, "while failing to give [FHFA] notice of its inclination to impose this
extreme remedy." Andes v. Versant Corp., 788 F.2d 1033, 1037 (4th Cir. 1986). In
short, I will not penalize FHF A so harshly for deferring a decision that I never expressly
required FHF A to make.
Even were I to conclude that FHFA's decision to seek voluntary dismissal
constituted dilatory conduct, the individual defendants, nevertheless, have failed to show
that they would suffer the sort of prejudice that would justify dismissal on the merits.
The defendants point to three consequences that, they believe, constitute severe prejudice.
They claim that further delay will prolong the hardship under which they have labored
since allegations of wrongdoing first arose over five years ago. They also claim that
FHFA's refusal to announce whether it intends to pursue the derivative action will disrupt
their discovery strategy in the consolidated Fannie Mae litigation. Lastly, they claim that
dismissal without prejudice will undermine the efficiencies sought to be achieved by
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consolidating the Fannie Mae cases and that, should FHF A decide to relitigate this
4
derivative action, more depositions of individuals already deposed will have to be taken.
There is little doubt that these consequences are burdensome to the individual defendants.
Nevertheless, they do not cause the sort of prejudice that would justify the extraordinary
remedy that the defendants seek. Surveying the case law, our Circuit Court has observed
that dismissals without prejudice are generally granted "unless the defendant would
suffer prejudice other than the prospect of a second lawsuit or some tactical
disadvantage." Conafay, 793 F.2d at 353. Here, the individual defendants do not claim
anything more than that they will be inconvenienced by future relitigation of this case
(should it come to pass) and that their discovery strategy in the consolidated Fannie Mae
litigation will be disrupted. Because the individual defendants have not shown that they
would suffer something more prejudicial than the burden of a second lawsuit or of some
tactical disadvantage or inconvenience, the individual defendants' Motion to Dismiss
with Prejudice for Failure to Prosecute is DENIED, and FHFA's Motion for Approval of
Voluntary Dismissal without Prejudice is GRANTED.
***
Accordingly, it is hereby
ORDERED that FHFA's Motion for Approval of Voluntary Dismissal without
Prejudice [#77] is GRANTED; it is further
4 The individual defendants' argument that further delay will cause memories to
fade and evidence to go stale is ultimately unavailing given that Congress has made the
considered judgment to extend the limitations period for any claims brought by FHF A as
Fannie Mae's conservator.
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ORDERED that Defendants Franklin D. Raines's, J. Timothy Howard's, and
Leanne G. Spencer's Motion to Dismiss the Accounting-Related Claims with Prejudice
for Failure to Prosecute [#83] is DENIED; it is further
ORDERED that the Motion of Shareholders James Kellmer and Jay Agnes for
Leave of Court to Appear as Amici Curiae [#87] is DENIED; and it is further
ORDERED that the case is DISMISSED without prejudice.
SO ORDERED.
I
2w.J'~I~
RICHARDJ.
United States District Judge
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