Lead Opinion
¶ 1. This is а review of a published court of appeals' decision,
¶ 2. We must decide whether Coakley timely filed its complaint for relocation assistance and benefits under Wis. Stat. §§ 32.19 and 32.195 (2003-04).
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¶ 3. On January 30, 2002, the City acquired property from Roadster LLC. The property at issue here was a parking lot that Roadster LLC leased to Coakley. On
¶ 4. Roadster LLC and Coakley appealed the circuit court's grant of the writ of assistance and its finding that Coakley was not a "displaced person." On appeal, Coakley argued that it was a "displaced person" and thus, before the writ of assistance could be granted, Coakley should have had "a comparable replacement property [made] available" to it. Coakley argued that the trial court erred in granting the writ without requiring the City tо make available comparable replacement property under Wis. Stat. § 32.05(8). On May 13, 2003, the court of appeals reversed the circuit court. It concluded that Coakley was a "displaced person" that was entitled to comparable replacement property before the writ was granted. City of Milwaukee v. Roadster
¶ 5. Between late 2003 and early 2004, the City and Coakley apparently discussed Coakley's desirе for parking, i.e., comparable replacement property. On October 22, 2003, Coakley and the City entered into a stipulation to dismiss without prejudice the case— Roadster — that the City initiated in the circuit court to obtain a writ of assistance. On October 5, 2004, the City made a $30,000 settlement offer to Coakley for the lease of comparable replacement property. The offer letter stated, "[t]his payment would be the maximum under Wis. Stat. § 32.19(4m) for a tenant-occupied business replacement." However, Coakley rejected that offer.
¶ 6. On December 13, 2004, representatives from Roadster and Coakley signed a "Release of Claims." In relevant part, both parties released the City "from any and all claims for attorney fees, appraisal and expert fees, costs and disbursements, and also from any and all litigation and other expenses claimable under Wis. Stat. § 32.28 and Wis. Stat. Ch. 814, arising out of, or relating to," the Roadster decision. However, the release did "not include аny relocation benefits under Wis. Stat. § 32.19 to which Coakley may be entitled under law as a result of' the Roadster decision.
¶ 7. Also on December 13, 2004, Coakley sent a letter to the City, which, pursuant to Wis. Stat. § 893.80(1), provided the City with an "Itemized Statement of Relief Sought." In short, Coakley sought money for moving to a new location, building costs, relocation benefits pursuant to Wis. Stat. § 32.19(4m), compensation for wrongful loss of premises, compensation for
¶ 8. On September 29, 2005, Coakley filed a formal complaint against the City. In its complaint, Coak-ley sought the following: (1) declaratory and injunctive relief pursuant to Wis. Stat. § 806.04; (2) damages for failure to provide relocation benefits; and (3) damages for wrongful ejectment. On November 11, 2005, the City filed a motion to dismiss Coakley's complaint. On January 18, 2006, the circuit court, in an oral decision, granted in part and denied in part the City's motion to dismiss.
¶ 9. The circuit court concluded that "[t]o the extent that the complaint asserts a claim for itemized damages under [§] 32.19 or [§] 32.195, such claims, are barred by [§] 32.20." However, the circuit court determined that to the extent the complaint asserts damages pursuant to other statutes, e.g., Wis. Stat. § 32.25, which the circuit court concluded was not limited by Wis. Stat. § 32.20, the motion to dismiss was denied.
¶ 10. On February 3, 2006, Coakley filed an amended complaint setting forth the following causes of action: (1) possession of the "Third Street Parcel," i.e., the parking lot, because the City violated Wis. Stat. § 32.05(8)(b) and (с); (2) damages for failure to make available a comparable replacement property within the meaning of § 32.05(8)(b) and (c); (3) damages for wrongful ejectment; (4) declaratory and injunctive relief pursuant to Wis. Stat. § 804.06 because no replacement property was made available and no relocation assistance and benefits were provided; and (5) declaratory relief in that the City should be estopped from asserting Wis. Stat. § 32.20 in order to bar Coakley's Wis. Stat. §§ 32.19 and 32.195 claims.
[T]he writ of assistance] statute, grants no rights, no substantive rights, beyond what the legislature has authorized in the relocation assistance statutes thаt are a part of Chapter 32.
This basic ruling was a part of my decision the first time around. ... [T]he writ of assistance statute grants no rights in and of itself....
¶ 12. With regard to the fifth claim for declaratory relief, the circuit court rejected the claim and concluded that it was an attempt to revive the expired statute of limitations. In addition, the court concluded that in the event the fifth claim asserted a different argument or claim for relief, it was also rejected. Therefore, the circuit cоurt determined that the amended complaint failed to state a claim that could survive the "Bassinger rule"
II.
¶ 14. This case requires us to review the circuit court's decision to grant the City's motion to dismiss, and in so doing, we must undertake statutory interpretation. Both are questions of law, which we review de novo but benefiting from the lower courts' analyses. Megal Dev. Corp. v. Shadof,
III.
¶ 15. Coakley argues that after the Roadster decision, it is entitled to comparable replacement property
¶ 16. The case at hand requires us to interpret a number of Wisconsin Statutes. "[T]he purpose of statutory interpretation is to determine what the statute means so that it may be given its full, proper, and intended effect." State ex rel. Kalal v. Circuit Court for Dane County,
¶ 17. Context and structure of a statute are important to the meaning of the statute. Id., ¶ 46. "Therefore, statutory language is interpreted in the context in
¶ 18. Wisconsin Stat. § 32.05(8), "Occupancy; writ of assistance; waste," provides thе following:
(a) In this subsection, "condemnor" has the meaning given in s. 32.185.
(b) No person occupying real property may be required to move from a dwelling or move his or her business or farm without at least 90 days' written notice of the intended vacation date from the condem-nor. . .. The condemnor has the right to possession when the persons who occupied the acquired property vacate, or hold over beyond the vacation date established by the condemnor, whichevеr is sooner, except as provided under par. (c). If the condemnor is denied the right of possession, the condemnor may, upon 48 hours' notice to the occupant, apply to the circuit court where the property is located for a writ of assistance to be put in possession. The circuit court shall grant the writ of assistance if all jurisdictional requirements have been complied with, if the award has been paid or tendered as required and if the condemnor has made a comparable replacement property available to the occupants, except as provided under par. (c).
(c) The condemnor may not require the persons who occupied the premises on the date that title vested in the condemnor to vacate until a comparable replace*468 ment property is made available. This paragraph does not apply to any person who waives his or her right to reсeive relocation benefits or services under s. 32.197 or who is not a displaced person, as defined under s. 32.19(2)(e), unless the acquired property is part of a program or project receiving federal financial assistance.
¶ 19. The court of appeals interpreted the above statute in Bassinger. Of relevance in Bassinger, as in this case, was the language that provides that a "displaced person" must have "comparable replacement property made available" to it. The court of appeals concluded that the legislature's intent bеhind this language was "to provide, as one of the three conditions precedent to issuance of a writ of assistance, that a person displaced by a condemnation have comparable replacement property made available to the extent required by the relocation assistance law." City of Racine v. Bassinger,
¶ 21. Rather than rely on Wis. Stat. § 32.05(8), Coakley must instead invoke the relocation assistance law, i.e., Wis. Stat. §§ 32.19 and 32.195.
Claims for damages itemized in ss. 32.19 and 32.195 shall be filed with the condemnor carrying on the project through which condemnee's or claimant's claims arise. All such claims must be filed after the damages upon which they are based have fully materialized but not later than 2 years after the condemnor takes physical possession of the entire property acquired or such other event as determined by the department of commerce by rule. . ..
(Emphasis added.)
¶ 23. Under Wis. Stat. § 32.20, the legislature specifically stated that the statute of limitations was to begin once the condemnor took "physical possession." This legislative directive is clear. In the case at hand, it is undisputed that the City took physical possession on October 14, 2002. Therefore, Coakley should have filed
¶ 24. Coakley argues that possession should be defined as "correct" possession, and it argues, citing generally to Hansen v. A.H. Robins, Inc.,
A law limiting the time for commencement of an action is tolled by the commencement of the action to enforce the cause of action to which the period of limitation applies. The law limiting the time for commencement of the action is tolled for the period from the commencement of the action until the final disposition of the action.
(Emphasis added.)
¶ 26. We rely on the emphasized portion of the above argued statute for our conclusion: "A law limiting the time for commencement of an action is tolled by the
¶ 27. In this case, the law limiting the time for commencement оf an action is Wis. Stat. § 32.20. Under § 32.20, claims pursuant to Wis. Stat. §§ 32.19 and 32.195 must be filed within two years after the condem-nor takes physical possession. However, in this case, Coakley did not file a claim for relocation benefits under §§ 32.19 and 32.195 until after the two-year statute of limitations had expired. Therefore, in this case, Wis. Stat. § 893.13(2) does not toll the limitations period.
¶ 28. The appeal in Roadster does not toll the statute of limitations for Coakley. The Roadster decision is of no relevance to Wis. Stat. § 893.13(2) because that appeal was of the circuit court's decision to grant the City a writ of assistance pursuant to Wis. Stat. § 32.05(8). In Roadster, the City filed a lawsuit to oust Coakley under § 32.05(8). In response, Coakley argued, but did not formally plead, that it was a "displaced person" and thus the City was obligated to make available "comparable replacement property" in order to obtain a writ. Coakley defended against the issuance of the writ by arguing that since Coakley was not offered comparable replacement property from the City, the writ should not be issued.
¶ 29. However, the record before this court is devoid of any indication that in Roadster, Coakley also initiated a claim for relocation assistance under Wis. Stat. §§ 32.20, 32.19, or 32.195. At most, in Roadster, Coakley received the determination that it was a "displaced person." Here, Coakley's argument in defense to ouster is distinct from its duty to formally plead a cause of action for relocation assistance under §§ 32.20, 32.19, and 32.195 or formally defend on that basis. In fact, the release of claims document in Roadster specifically excluded § 32.19 claims for relocation benefits to which
¶ 30. Coakley had two years from the time the City took physical possession to make its claim. The City took physical possession of the property on October 14, 2002. Coakley first filed a notice of claim on December 13, 2004. It did not file its first complaint until September 29, 2005. Therefore, Wis. Stat. § 893.13(2) could not have tolled the statute of limitations because Coakley first filed a claim for relocation benefits under Wis. Stat. §§ 32.19 and 32.195 after the statute of limitations had already expired. In Roadster, Coakley did not formally plead that it had a right to relocation benefits pursuant to §§ 32.19 and 32.195. Therefore, the Roadster case does not toll the time for Coakley to bring its action under §§ 32.20, 32.19 and 32.195.
IV
¶ 31. We conclude that the two-year statute of limitations in Wis. Stat. § 32.20 bars Coakley's claims for relocation benefits because although the City took physical possession of the relevant property on October 14, 2002, Coakley did not file a notice of claim until December 13, 2004, and it first filed a formal complaint on September 29, 2005. We further conclude that Wis. Stat. § 893.13(2) does not toll the two-year statute of limitations in this case.
By the Court. — The decision of the court of appeals is affirmed.
Notes
C. Coakley Relocation Sys., Inc. v. City of Milwaukee,
The relevant statutory texts can be found in section III of this opinion. All subsequent references to the Wisconsin Statutes are to the 2003-04 version unless otherwise indicated.
City of Milwaukee v. Roadster LLC,
City of Racine v. Bassinger,
Dotty Dumpling's Dowry, Ltd. v. Community Dev. Auth. of the City of Madison,
In Bassinger, the court of appeals concluded that Wis. Stat. § 32.05(8) does not provide any substantive rights to have comparable replacement property made available independent
While Coakley asserts that it is not seeking a new substantive right, it seeks a remedy undеr Wis. Stat. § 32.05(8) despite the fact that precedent dictates that Coakley must invoke Wis. Stat. §§32.19 and 32.195 in order to obtain a remedy.
Under the facts of this case, a government entity's right to have a claim presented before litigation could be satisfied through a notice of claim or by actual notice if the claimant shows that no prejudice to the government entity exists. See Wis. Stat. § 893.80(l)(a).
The court of appeals' decision, in this case, stated, "to stop this time limit from beginning to run, the condemnee must avoid giving physical possession of the property to the condem-nor." C. Coakley Relocation Sys., Inc.,
See State ex rel. Kalal v. Circuit Court for Dane County,
Concurrence Opinion
¶ 32. {concurring). I join the majority opinion in all respects.
City of Milwaukee v. Roadster LLC,
