United States Court of Appeals
FOR THE DISTRICT OF COLUMBIA CIRCUIT
Argued January 5, 2009 Decided March 17, 2009
No. 07-5399
CHEYENNE ARAPAHO TRIBES OF OKLAHOMA,
APPELLANT
v.
UNITED STATES OF AMERICA, ET AL.,
APPELLEES
Appeal from the United States District Court
for the District of Columbia
(No. 06cv00519)
Richard J. Grellner argued the cause for appellant. With
him on the briefs was John P. Racin.
Mary Gabrielle Sprague, Attorney, U.S. Department of
Justice, argued the cause for federal appellees. With her on
the brief were James M. Upton, William Lazarus, and
Elizabeth A. Peterson, Attorneys. R. Craig Lawrence,
Assistant U.S. Attorney, entered an appearance.
Before: SENTELLE, Chief Judge, and ROGERS and
GRIFFITH, Circuit Judges.
Opinion for the Court filed by Circuit Judge GRIFFITH.
2
GRIFFITH, Circuit Judge: This appeal involves disputed
rights to land originally designated as part of a reservation for
the Cheyenne Arapaho Tribes of Oklahoma and later set apart
by executive order as a U.S. military installation. The district
court dismissed the Tribes’ action to quiet title to the land for
lack of subject matter jurisdiction. The Tribes argue that the
court erred in dismissing the case prematurely without
allowing for jurisdictional discovery. Because the Tribes fail
to specify what facts discovery could produce that would alter
the jurisdictional analysis, we hold that the district court did
not abuse its discretion in denying the Tribes’ discovery
request.
I.
The train of events from which this appeal arises was set
in motion nearly 140 years ago. In 1869, President Ulysses S.
Grant designated more than five million acres in north-central
Oklahoma as a reservation for the Cheyenne Arapaho Tribes
of Oklahoma. Exec. Order (Aug. 10, 1869), reprinted in 1
INDIAN AFFAIRS: LAWS AND TREATIES 841 (Charles J.
Kappler ed., 1904). In 1883, President Chester A. Arthur
carved out 9493 acres from within the reservation “for the
post of Fort Reno,” which was to be used “for military
purposes exclusively.” Exec. Order (July 17, 1883), reprinted
in 1 INDIAN AFFAIRS, supra, at 842–43. The Tribes claim this
stipulation gave them a reversionary interest that would vest if
the land was used for anything other than military purposes.
See Appellant’s Br. at 2.
After the cavalry abandoned Fort Reno in 1908, the
Army used the post as a remount service depot, breeding and
training horses and mules for military use. The Army’s use of
Fort Reno waned in the 1930s as motor vehicles began to
replace horses and mules as the predominant form of military
3
transportation. In 1937, Congress transferred 1000 acres of
Fort Reno land to the Department of Justice for use by the
Bureau of Prisons as a federal reformatory. Act of May 24,
1937, Pub. L. No. 75-103, 50 Stat. 200. In 1948, Congress
transferred the remaining 8493 acres to the Department of
Agriculture (USDA) for “livestock and agricultural”
purposes, Act of Apr. 21, 1948, Pub. L. No. 80-494, 62 Stat.
197, and the following year USDA began a cooperative
research program at Fort Reno studying the selective breeding
of beef cattle and swine. Pursuant to an agreement with
USDA, the Army continued to use approximately 600 acres at
Fort Reno until 1954 to raise and train horses for the Turkish
army. See J.A. at 55.
The Tribes allege that the acreage transferred to USDA
in 1948 was placed on military “standby status” as part of a
classified agreement with the Army in 1954. Appellant’s
Reply Br. at 5. The government disputes the confidential
nature of this arrangement, noting that several newspaper
articles from 1954 reported that the Army asked USDA to
keep the buildings and pasture acreage previously used for the
Turkish aid program ready for possible needs in connection
with the “Indo China crisis.” See, e.g., Army Asks for
Retention of Fort Reno by Government for Possible Military
Need, EL RENO AM., May 20, 1954.
In 1890, the Tribes entered a Cession Agreement, ratified
by Congress the next year, in which they agreed to relinquish
their interest in the reservation, subject to the allotment of
160-acre tracts to individual members of the Tribes. By the
terms of the agreement, the Tribes agreed to “cede, convey,
transfer, relinquish, and surrender forever and absolutely,
without any reservation whatever, express or implied, all their
claim, title and interest, of every kind and character, in and
to” specified lands, as well as to “all other lands or tracts of
4
country in the Indian territory to which they have or may have
set up or allege any right, title, interest or claim whatsoever.”
Cession Agreement, art. II, 26 Stat. 989, 1022–23 (1891). The
agreement made no mention of any reversionary interest the
Tribes might have in the Fort Reno land.
In 1958, the Tribes filed suit with the Indian Claims
Commission (ICC),1 arguing they had received an
unconscionably small consideration for the cession of
reservation lands, asserting a claim to the reasonable value of
the 9493 acres of Fort Reno, and seeking “reasonable and fair
damages for the failure of the Secretary of the Interior to
require the return of said lands to the use and benefit of [the
Tribes].” J.A. at 264–65. The claims went to trial in 1965, but
the Tribes settled for $15 million before the ICC could render
a decision. See Cheyenne-Arapaho Tribes v. United States, 16
Ind. Cl. Comm. 162 (1965). The settlement agreement
contained several finality clauses, including one that read:
“Entry of final judgment in said amount shall finally dispose
of all rights, claims or demands which the petitioner has
asserted or could have asserted with respect to the subject
matter of these claims.” Id. at 171–72 (quoting Stipulation for
Entry of Final Judgment).
In 2006, the Tribes brought suit in district court to quiet
title to the Fort Reno land, claiming the property was outside
the scope of the 1891 Cession Agreement and that they held a
reversionary interest, which vested when the land ceased to be
used exclusively for military purposes. The United States
1
Congress established the ICC in 1946 as a quasi-judicial body
with authority to determine the merits of all Indian claims against
the United States that accrued prior to its establishment. See Act of
Aug. 13, 1946, Pub. L. No. 79-726, 60 Stat. 1049. The ICC had
only a temporary mandate and was abolished in 1978. See Act of
Oct. 8, 1976, Pub. L. No. 94-465, 90 Stat. 1990.
5
moved to dismiss for lack of subject matter jurisdiction on the
ground that the Tribes’ claim was barred by the twelve-year
statute of limitations in the Quiet Title Act, 28 U.S.C.
§ 2409a(g) (2000). The United States moved, in the
alternative, for summary judgment on its affirmative defense
that the 1965 settlement of the Tribes’ ICC suit precludes a
later quiet title action. The Tribes subsequently filed a motion
under Federal Rule of Civil Procedure 56(f), arguing that the
district court should not decide the statute of limitations issue
without first permitting discovery regarding the date on which
military use of Fort Reno ended and the Tribes’ alleged claim
to beneficial title accrued.
The district court denied the Tribes’ Rule 56(f) motion,
concluding that they failed to “show that additional discovery
would be beneficial to . . . establishment of jurisdiction.”
Cheyenne-Arapaho Tribes v. United States, 517 F. Supp. 2d
365, 374 (D.D.C. 2007) (quoting Med. Solutions, Inc. v. C
Change Surgical LLC, 468 F. Supp. 2d 130, 135–36 (D.D.C.
2006)). The court granted the government’s motion to
dismiss, identifying several points in time—each more than
twelve years prior to the suit—at which the Tribes “should
have been reasonably aware” that the United States had taken
action adverse to their alleged reversionary interest in the Fort
Reno land. Id. at 371. In a footnote the Court accepted the
government’s alternative argument that the Tribes lost the
right to assert their claim under the terms of the 1965
settlement of their ICC suit. Id. at 372 n.3.2
2
The Tribes moved to alter or amend this portion of the judgment
pursuant to Federal Rule of Civil Procedure 59(e), arguing that the
ICC lacked jurisdiction over their claims and that the record
showed the land set aside for Fort Reno was not subject to the ICC
settlement. The district court denied the motion. Cheyenne-Arapaho
Tribes v. United States, No. 06-0519 (D.D.C. Nov. 8, 2007).
6
This appeal followed. The Tribes argue that the district
court erred in denying their request for discovery to identify
continuing military activity at Fort Reno and in concluding
that the settlement of their ICC suit precludes the present
quiet title action. We have jurisdiction under 28 U.S.C.
§ 1291 and review the district court’s denial of the Tribes’
discovery request for abuse of discretion. See FC Inv. Group
LC v. IFX Markets, Ltd., 529 F.3d 1087, 1091 (D.C. Cir.
2008). Because we conclude that the district court did not
abuse its discretion in denying jurisdictional discovery and
that it properly dismissed the case for lack of subject matter
jurisdiction, we need not consider the Tribes’ arguments
about the ICC settlement agreement.
II.
A.
The Quiet Title Act, 28 U.S.C. § 2409a, which waives
the United States’ sovereign immunity for certain quiet title
actions, is the “exclusive means by which adverse claimants
[may] challenge the United States’ title to real property.”
Warren v. United States, 234 F.3d 1331, 1335 (D.C. Cir.
2000) (alteration in original) (quoting Block v. North Dakota,
461 U.S. 273, 286 (1983)). Of dispositive relevance here, the
Act provides that “[a]ny civil action under this
section . . . shall be barred unless it is commenced within
twelve years of the date upon which it accrued,” 28 U.S.C.
§ 2409a(g). An action accrues “on the date the plaintiff or his
predecessor in interest knew or should have known of the
claim of the United States.” Id. We apply a “test of
reasonableness” to determine whether a plaintiff “knew or
should have known” of a federal claim to real property. D.C.
Transit Sys., Inc. v. United States, 717 F.2d 1438, 1441 (D.C.
Cir. 1983). “Knowledge of the claim’s full contours is not
7
required. All that is necessary is a reasonable awareness that
the Government claims some interest adverse to the
plaintiff’s.” Warren, 234 F.3d at 1335 (quoting Knapp v.
United States, 636 F.2d 279, 283 (10th Cir. 1980)).
The Tribes contend that the Act’s statute of limitations
begins to run only when their reversionary interest in the land
is triggered, which, according to their theory of the case,
occurs when the government ceases to use Fort Reno
exclusively for military purposes. The Tribes do not challenge
directly the district court’s finding that, on the record before
it, they knew or should have known more than twelve years
prior to their suit that the United States claimed the right to
use Fort Reno land without limitation. Instead, the Tribes
argue that the district court abused its discretion by refusing to
allow jurisdictional discovery, which “could well show
continuing military status in the lands of Fort Reno, such that
the Tribes’ claimed reversionary interest may not yet have
accrued.” Appellant’s Br. at 17. The Tribes requested a
continuance to pursue discovery under Federal Rule of Civil
Procedure 56(f), which provides that a district court may
allow for discovery if a party opposing summary judgment
“shows by affidavit that, for specified reasons, it cannot
present facts essential to justify its opposition.”3 The Tribes’
supporting affidavit identifies recently declassified documents
that suggest “the Army fully intended to make continued use
of the lands for military purposes,” and asserts that further
discovery could undermine “the Government’s argument the
Tribe has long been on notice of all the facts relating to their
claimed reversionary interest in Fort Reno.” J.A. at 356.
3
Although Rule 56(f) formally applies only in the context of a
motion for summary judgment, its discovery standards are also
appropriate for parties responding to a Rule 12(b)(1) motion to
dismiss. See Gordon v. Nat’l Youth Work Alliance, 675 F.2d 356,
360 (D.C. Cir. 1982).
8
We hold that the district court did not abuse its discretion
in denying jurisdictional discovery given the absence of any
specific indication from the Tribes regarding “what facts
additional discovery could produce that would affect [the
court’s] jurisdictional analysis,” Mwani v. bin Laden, 417
F.3d 1, 17 (D.C. Cir. 2005) (quoting Goodman Holdings v.
Rafidain Bank, 26 F.3d 1143, 1147 (D.C. Cir. 1994)). The
Tribes failed to specify how the requested discovery would
alter the court’s determination that the statute of limitations
had long since run and extinguished their claim. See Byrd v.
EPA, 174 F.3d 239, 248 n.8 (D.C. Cir. 1999) (noting that
conclusory assertions about the potential value of discovery
are insufficient unless supported by specific discoverable
facts). The Tribes sought discovery to bring to light any
“continuing military uses” on the Fort Reno land. J.A. at 357.
But the Tribes “knew or should have known,” 28 U.S.C.
§ 2409a(g), that the United States had used the land for
nonmilitary purposes from actions taken by Congress in 1937
and 1948 that transferred sections of Fort Reno from the
Department of War to the Departments of Justice and
Agriculture. These transfers put the Tribes on notice that the
government continued to claim the land even though it was no
longer being used for “military purposes exclusively,” in
direct conflict with the Tribes’ alleged reversionary interest
under the 1883 executive order. See Warren, 234 F.3d at 1336
(finding notice of the government’s claim to real property
when the President issued a proclamation declaring an island
reserved for certain uses inconsistent with private
ownership).4 At either of those points in time, the Tribes
4
Moreover, the Tribes’ 1961 Severed Petition to the Indian Claims
Commission, in which they asked the ICC to “set[] aside the
jurisdiction of the Department of Agriculture conferred by the Act
of April 21, 1948,” J.A. at 70, shows that the Tribes had actual
knowledge of the 1948 transfer of Fort Reno land to USDA.
9
should have known of the government’s adverse claim, and
the statute of limitations began to run. Any additional
information or documentation regarding partial military uses,
or suggestion that the land might be used for future military
purposes, would not change the court’s jurisdictional analysis.
The Tribes seek to avoid the force of the Quiet Title
Act’s statute of limitations on the slender reed that their
alleged reversionary interest in the land accrues only when
Fort Reno is used for something other than military purposes.
Putting aside any doubts about whether they in fact possess
such a reversionary interest, even by its own terms the Tribes’
statute of limitations argument fails because the United States
long ago abandoned exclusive military use of the land. The
statute of limitation for the Tribes’ claims, if they had any,
began to run as soon as the government used Fort Reno for
something other than a military purpose. More than twelve
years have since elapsed and the Tribes’ quiet title action is
therefore time-barred.
B.
The Tribes also suggest, albeit in a footnote, that even if
their original quiet title action accrued no later than when
Congress transferred jurisdiction over Fort Reno to the
Departments of Justice and Agriculture, discovery might
show that the United States later abandoned its adverse claim
by once again devoting Fort Reno to military uses. See
Appellant’s Br. at 17 n.7. In such circumstances, according to
the Tribes, a new limitations period would begin to run if and
when the government subsequently reasserted a claim adverse
to the Tribes’ reversionary interest. In support of this theory,
the Tribes cite Shultz v. Department of Army, 886 F.2d
1157 (9th Cir. 1989), in which the Ninth Circuit held that “[i]f
the government has apparently abandoned any claim it once
10
asserted, and then it reasserts a claim, the later assertion is a
new claim and the statute of limitations for an action based on
that claim accrues when it is asserted,” id. at 1161. The Shultz
court suggested that if, after physically restricting access to a
roadway running through part of a military installation, the
Army thereafter failed for several years to restrict access,
members of the public who used the road during that time
might reasonably “believe that the government did not
continue to claim an interest in the roadway.” Id. Subsequent
efforts to restrict access would constitute a new claim for
which a fresh statute of limitations period would only then
begin to run. Id.
The Tribes fail to mention that the Ninth Circuit later
limited its abandonment-and-new-claim holding to “claim[s]
of an easement,” concluding that “a reasonable plaintiff could
not believe that the United States had abandoned its claim of a
possessory interest in public lands merely because it failed to
enforce restrictions upon public access,” Kingman Reef Atoll
Invs., LLC v. United States, 541 F.3d 1189, 1199 (9th Cir.
2008) (“It is well established that the United States does not
abandon its claims to property by inaction.”). The Eighth
Circuit has likewise concluded that the United States does not
abandon a claim to property for purposes of § 2409a(g) unless
it “clearly and unequivocally abandons its interest” through
some official action. Spirit Lake Tribe v. North Dakota, 262
F.3d 732, 739 (8th Cir. 2001). This standard is supported by
the Quiet Title Act itself, which established a method for the
United States to disclaim its interest in real property by filing
a formal disclaimer with the court. See 28 U.S.C. § 2409a(e).
The Tribes’ assertion that further discovery might show
express abandonment of the government’s claims to Fort
Reno is unavailing because the materials the Tribes seek
would not demonstrate abandonment of the United States’
11
interest in the land. The only document to which the Tribes’
discovery affidavit specifically refers is a transcript of 1954
hearings conducted by two congressmen in El Reno,
Oklahoma. The Tribes suggest the transcript might show that
the congressmen either made representations contrary to the
United States’ continuing adverse interest in the property or
“obscured the actual nature and status of the Fort Reno
lands.” J.A. at 357. But nothing said by government
representatives during such hearings, which were open to
tribal members and the subject of several newspaper reports,
could undermine the official actions taken by Congress in
1937 and 1948 demonstrating the United States’ property
interest in Fort Reno. See Kingman Reef, 541 F.3d at 1200
(holding that one may not reasonably decide whether the
United States has abandoned a claim to property on the basis
of informal remarks of government officials); cf. Warren, 234
F.3d at 1338 (noting that in many circumstances “the
Government cannot abandon property without congressional
authorization”).5
The United States asserted claims to Fort Reno that were
adverse to the Tribes’ alleged reversionary interest in the land
by acts of Congress transferring parts of the property to
5
Similarly, the type of internal agency documents upon which the
Tribes rely, see, e.g., Appellant’s Reply Br. at 4–6, are insufficient
to indicate abandonment of government claims of interest in
property. See Kingman Reef, 541 F.3d at 1200 (“[W]here the
United States’s claim of interest in property stems from formal
actions of the legislative or executive branch, a person could not
reasonably conclude that . . . internal agency memoranda could
eliminate the cloud upon the property’s title.”); Spirit Lake Tribe,
262 F.3d at 740–42 (holding that an internal memorandum authored
by an Associate Solicitor in the Department of Interior could not
establish abandonment of property because “intra-office
memoranda do not bind the government”).
12
nonmilitary entities and uses. The Tribes fail to show that
jurisdictional discovery would (or could) uncover specific
evidence of official abandonment unavailable through other
means. The district court thus was well within its discretion to
deny the Tribes’ discovery request.
III.
We affirm the district court’s denial of the Tribes’
motion for a continuance to permit discovery. Because the
district court correctly determined that it lacked subject matter
jurisdiction over the Tribes’ claims, we do not reach the
court’s alternative conclusion that the 1965 settlement of the
Tribes’ ICC suit also bars their present action.
So ordered.