Portsmouth Harbor Land Hotel Co v. United States

• Decision Date: 04 December 1922
• Docket Number: No. 97,97
• Citation: 43 S.Ct. 135,260 U.S. 327,67 L.Ed. 287
• Parties: PORTSMOUTH HARBOR LAND & HOTEL CO. et al. v. UNITED STATES
• Court: U.S. Supreme Court

260 U.S. 327

43 S.Ct. 135

67 L.Ed. 287

PORTSMOUTH HARBOR LAND & HOTEL CO. et al.

v UNITED STATES.

No. 97.

Argued Nov. 15, 1922.

Decided Dec. 4, 1922.

Mr. Chauncey Hackett, of Washington, D. C., for appellants.

Mr. Solicitor General Beck, of Washington, D. C., for the United states.

Mr. Justice HOLMES delivered the opinion of the Court.

This is a claim in respect of land which, or an interest in which, is alleged to have been taken by the United States Government. Similar claims in respect of the same land based upon earlier acts of the Government have been made before and have been denied. Peabody v. United States, 231 U. S. 530, 34 Sup. Ct. 159, 58 L. Ed. 351; Portsmouth Harbor Land & Hotel Co. v. United States, 250 U. S. 1, 39 Sup. Ct. 399, 63 L. Ed. 809. But it is urged that the cumulative effect of later acts added to those that have been held not enough to establish a taking leads to a different result. The land is on Gerrish Island, lying east of the entrance to Portsmouth Harbor, and borders on the ocean. Its main value is for use as a summer resort. Adjoining it to the north and west lies land of the United States upon which the Government has erected a fort, the guns of which have a range over the whole sea front of the claimants' property. In the first case it was decided that the mere erection of the fort and the fact that guns were fired over the claimants' land upon two occasions about two years and a half before the suit was brought, coupled with the apprehension that the firing would be repeated, but with no proof of intent to repeat it other than the facts stated, did not require the finding of an appropriation and a promise to pay by the United States. The second case was like the first except for 'some occasional subsequent acts of gun fire,' 250 U. S. 2, 39 Sup. Ct. 399, 63 L. Ed. 809, and finding of the Court of Claims for the United States again was sustained.

The present case was decided upon demurrer. The question therefore is not what inferences should be drawn from the facts that may be proved but whether the allegations it proved would require or at least warrant a different finding from those previously reached. There is no doubt that a serious loss has been inflicted upon the claimant, as the public has been frightened off the premises by the imminence of the guns; and while it is decided that that and the previously existing elements of actual harm do not create a cause of action, it was assumed in the first decision that——

'If the Government had installed its battery, not simply as a means of defence in war, but with the purpose and effect of subordinating the strip of land between the battery and the sea to the right and privilege of the Government to fire projectiles directly across it for the purpose of practice or otherwise, whenever it saw fit, in time of peace, with the result of depriving the owner of its profitable use, the imposition of such a servitude would constitute an appropriation of property for which compensation should be made.' 231 U. S. 538, 34 Sup. Ct. 160, 58 L. Ed. 351.

That proposition we regard as clearly sound. The question is whether the petition before us presents the case supposed.

It is alleged that after dismounting the old guns for the purpose of sending them to France during the late war, the United States has set up heavy coast defence guns with the intention of firing them over the claimants' land and without the intent or ability to fire them except over that land. It also, according to the petition, has established upon that land a fire control station and service, and in December, 1920, it again discharged all of the guns over and across the same land. The last fact, although occurring after this petition was filed, may be considered as bearing on the intent in establishing the fire control. If the United States, with the admitted intent to fire across the claimants' land at will should fire a single shot or put a fire control upon the land, it well might be that the taking of a right would be complete. But even when the intent thus to make use of the claimants' property is not admitted, while a single act may not be enough, a continuance of them in sufficient number and for a sufficient time may prove it. Every successive trespass adds to the force of the evidence. The establishment of a fire control is an indication of an abiding purpose. The fact that the evidence was not sufficient in 1905 does not show that it may not be sufficient in 1922. As we have said the intent and the overt acts are alleged as is also the conclusion that the United States has taken the land. That we take to be stated as a conclusion of fact and not of law, and as intended to allege the actual import of the foregoing acts. In our opinion the specific facts set forth would warrant a finding that a servitude has been imposed.

It very well may be that the claimants will be unable to establish authority on the part of those who did the acts to bind the Government by taking the land, United States v. North American Transportation & Trading Co., 253 U. S. 330, 40 Sup. Ct. 518, 64 L. Ed. 935. But as the allegation is that the United States did the acts in question, we are not prepared to pronounce it impossible upon demurrer. As the United States built the fort and put in the guns and the men, there is a little natural unwillingness to find lack of authority to do the acts even if the possible legal consequences were unforeseen. If the acts amounted to a taking, without assertion of an adverse right, a contract would be implied whether it was thought of or not. The repetition of those acts through many years and the establishment of the fire control may be found to show an abiding purpose to fire when the United States sees fit, even if not frequently, or they may be explained as still only occasional torts. That is for the Court of Claims when the evidence is heard.

Judgment reversed.

Mr. Justice BRANDEIS dissenting, with whom Mr. Justice SUTHERLAND concurs.

I agree that, in time of peace, the United States has not the unlimited right to shoot from a battery over adjoining private property, even if no physical damage is done to it thereby; that a single shot so fired may, in connection with other conceivable facts, justify a court in finding that the government took, by eminent domain, the land or an easement therein; and that such taking, if made under circumstances which give rise to a contract implied in fact to pay compensation, will entitle the owner to sue in the Court of Claims. But the question here is not whether the facts set forth in the petition would alone, or in connection with other evidence, justify the court in finding such a taking and the implied contract. The case was heard on demurrer to the petition; the facts therein set forth must, therefore, be taken as the ultimate facts; and they must be treated as are the findings of fact made by the Court of Claims. These are treated like a special verdict and not as evidence from which inferences may be drawn. Rule 1 of this court, relating to appeals from the Court of Claims; Crocker v. United States, 240 U. S. 74, 78, 36 Sup. Ct. 245, 60 L. Ed. 533; Brothers v. United States, 250 U. S. 88, 93, 39 Sup. Ct. 426, 63 L. Ed. 859. Unless, therefore, the petition sets forth facts well pleaded, which, if found by the lower court would as matter of law entitle the claimants to a judgment, the lower court was, in my opinion, right in dismissing the petition.

Appropriation by the United States of private property for public use, without instituting condemnation proceedings, does not entitle the owner to sue under the Tucker Act (Judicial Code, § 24, par. 20 [Comp. St. § 991]), unless the taking was made under such circumstances as to give rise to a contract express or implied in fact to pay compensation. Hill v. United States, 149 U. S. 593, 13 Sup. Ct. 1011, 37 L. Ed. 862; Schillinger v. United States, 155 U. S. 163, 168-171, 15 Sup. Ct. 85, 39 L. Ed. 108; Belknap v. Schild, 161 U. S. 10, 17, 16 Sup. Ct. 443, 40 L. Ed. 599; John Horstmann Co. v. United States, 257 U. S. 138, 146, 42 Sup. Ct. 58, 66 L. Ed. 80. Hence this action must rest on a contract, express or implied in fact. Harley v. United States, 198 U. S. 229; 25 Sup. Ct. 634, 49 L. Ed. 1029; United States v. Buffalo Pitts Co., 234 U. S. 228, 232, 34 Sup. Ct. 840, 58 L. Ed. 1290; William Cramp & Sons v. Curtis Turbine Co., 246 U. S. 28, 40, 41, 38 Sup. Ct. 271, 62 L. Ed. 560. There is no suggestion of an express promise; and there is not to be found in the petition, or in the exhibits incorporated by reference, a single allegation, however general, of an implied contract. This omission would not be fatal, if the petition set forth the facts essential to the existence of the cause of action. But it does not. An appropriation of private property will not entitle the owner to recover if made by mistake or if made under a claim of right, although the claim is later shown to be unfounded. Tempel v. United States, 248 U. S. 121, 130, 131, 39 Sup. Ct. 56, 63 L. Ed. 162. And, if the appropriation was made by an officer without authority, the claimant is likewise without this remedy against the government. United States v. North American Transportation & Trading Co., 253 U. S. 330, 333, 40 Sup. Ct. 518, 64 L. Ed. 935. The essentials of a recovery are a taking on behalf of the United States, made by officials duly authorized, and under such conditions that a contract will be implied in fact. The petition fails to set out such facts. Indeed, the facts which are set out make it clear that what was done did not constitute a taking; that the officers of the Government in doing what they did, had no intention of subjecting it to any liability; that they were not authorized to take the land or an easement therein; and that they consistently denied that claimants were entitled to compensation. Implied contracts in fact do not arise from denials and...