Louise Agnes BARKANIC, Individually and as Personal
Representative of the Estate of Peter Patrick Barkanic,
Deceased; Gladys Patricia Fox, Individually and as Personal
Representative of the Estate of Donald Branford Fox,
Deceased, Plaintiffs-Appellants,
v.
GENERAL ADMINISTRATION OF CIVIL AVIATION OF THE PEOPLE'S
REPUBLIC OF CHINA, also known as Civil Aviation
Administration of the People's Republic
of China, or CAAC, Defendant-Appellee.
No. 562, Docket 90-7641.
United States Court of Appeals,
Second Circuit.
Argued Nov. 26, 1990.
Decided Jan. 14, 1991.
Daniel F. Hayes, Mineola, N.Y., for plaintiffs-appellants.
John K. Weir, New York City (Louis R. Martinez, Patrick E. Bradley, Haight, Gardner, Poor & Havens, of counsel), for defendant-appellee.
Before OAKES, Chief Judge, CARDAMONE and McLAUGHLIN, Circuit Judges.
OAKES, Chief Judge:
Representatives of the estates of Peter Barkanic and Donald Fox appeal from a judgment of the United States District Court for the Eastern District of New York, Arthur D. Spatt, Judge, entered on the basis of a memorandum and order of Charles P. Sifton, Judge, that limited the liability of defendant General Administration of Civil Aviation of the People's Republic of China ("CAAC") to the $20,000 maximum allowed under Chinese law. Because we conclude that the Foreign Sovereign Immunities Act ("FSIA"), Pub.L. 94-583, 90 Stat. 2891 (codified as amended in scattered sections of 28 U.S.C.), requires us to apply the choice of law rules of the forum state, and that, under New York's choice of law analysis, Chinese law is controlling, we affirm.
FACTS
The facts of this case are set out more fully in our prior opinion, Barkanic v. General Administration of Civil Aviation,
On January 18, 1985, Peter Barkanic and Donald Fox, citizens of the District of Columbia and New Hampshire, respectively, were killed in the crash of a Chinese plane en route from Nanjing to Beijing, China. Representatives of their estates brought this wrongful death action against CAAC, an agency of the Chinese government that provides domestic and international air services to passengers traveling to or from airports within China.
On October 17, 1986, the district court dismissed the case for lack of subject matter jurisdiction under the FSIA. We reversed that decision, based on our finding that a significant nexus existed between CAAC's commercial activities in the United States and the accident that occurred in China. See
On remand, CAAC moved for partial summary judgment limiting its liability to $20,000. It based this motion on Chinese law, which limits an airline's liability for the wrongful death of a non-citizen to $20,000.1 The district court granted CAAC's motion, on the theory that the FSIA directs courts to apply the choice of law rules of the place where the "act or omission" occurred, and that, under the facts of this case, Chinese choice of law rules required the application of Chinese law.
On appeal, appellants challenge the district court's conclusion that the FSIA directs courts to apply the choice of law rules of the place of the act or omission. Citing the language and history of the FSIA, appellants claim that Congress intended federal district courts to apply the choice of law rules of the states in which they sit--in this case, the choice of law rules of New York. Had the district court correctly applied New York's choice of law rules to the facts of this case, appellants maintain, it would have concluded that the laws of decedents' domiciles, rather than Chinese law, govern the issue of damages.
DISCUSSION
As an initial matter, we agree with appellants that the district court's interpretation of the FSIA was erroneous. In our view, rather than directing courts to apply the choice of law rules of the place of the act or omission, the FSIA implicitly requires courts to apply the choice of law provisions of the forum state with respect to all issues governed by state substantive law. However, because we believe that, under the facts of this case, New York's choice of law rules would lead to the application of Chinese law, we affirm the entry of partial summary judgment in CAAC's favor.
1. Choice of Law Under the FSIA.
The district court's interpretation of the FSIA was based on an analogy between the FSIA and the Federal Tort Claims Act ("FTCA"), ch. 646, 62 Stat. 983 (codified as amended in scattered sections of 28 U.S.C.). The court first observed that, under Richards v. United States,
It is true that the FSIA and the FTCA contain similar language. Specifically, the FTCA states:
If ... the law of the place where the act or omission complained of occurred provides ... for damages only punitive in nature, the United States shall be liable for actual or compensatory damages ... in lieu thereof.
28 U.S.C. Sec. 2674 (1988). The FSIA, in almost identical language, provides:
If ... the law of the place where the action or omission occurred provides ... for damages only punitive in nature, the foreign state shall be liable for actual or compensatory damages.
28 U.S.C. Sec. 1606 (1988). By its terms, however, the language of these provisions relates only to the issue of punitive damages, not to the general question of choice of law. With respect to choice of law, the FTCA contains additional language providing that the United States shall be liable "in accordance with the law of the place where the act or omission occurred." 28 U.S.C. Sec. 1346(b) (1988). It was this general choice of law provision, and not the provision on punitive damages, that was the basis for the Supreme Court's determination that the FTCA requires courts to apply the law of the place of the act or omission. See Richards,
Because the FSIA does not contain an express choice of law provision, we must infer from the statutory language a choice of law analysis that best effectuates Congress' overall intent. Of particular significance in this regard is language providing that "the foreign state shall be liable in the same manner and to the same extent as a private individual under like circumstances." 28 U.S.C. Sec. 1606 (1988). Based on this language, the Supreme Court has held that, as a general matter, state substantive law is controlling in FSIA cases. See First National City Bank v. Banco Para El Comercio Exterior De Cuba,
Our conclusion that forum law provides the proper choice of law rules for FSIA cases is supported by the statute's legislative history. As we noted in Verlinden B.V. v. Central Bank of Nigeria,
CAAC suggests that application of the forum state's choice of law rules is inappropriate in FSIA cases because jurisdiction is based on the existence of a federal question, rather than on diversity of citizenship. This argument, we believe, misconstrues the scope of a federal court's power to choose between state and federal law. To be sure, federal courts are required to apply state choice of law rules only when the issues before it are governed by state substantive law under Erie R.R. Co. v. Tompkins,
CAAC also argues that applying the choice of law rules of the forum state would conflict with the United States' obligations under international treaties. First, it points to a bilateral air treaty executed between the United States and the People's Republic of China, in which the parties agree to comply with the laws and regulations of the country in which an airline is located. See Agreement Between the Government of the United States and Government of the People's Republic of China Relating to Civil Air Transport, Sept. 17, 1980, United States-People's Republic of China, T.I.A.S. No. 10326, art. 5. This provision, however, indicates only that a United States airline must respect Chinese laws when operating within Chinese territory; it does not establish the governing law for wrongful death actions brought in response to accidents occurring on Chinese soil.
CAAC also relies on the Convention on International Civil Aviation of December 7, 1944, 61 Stat. 1180, T.I.A.S. No. 1591 (the "Chicago Convention"), which provides that "[t]he contracting States recognize that every State has complete and exclusive sovereignty over the airspace above its territory." Id., art. 1. Application of the choice of law principles of the forum state, however, in no way implies disrespect for China's sovereignty, even if those principles sometimes call for the application of non-Chinese law. See Note, Constructing the State Extraterritorially: Jurisdictional Discourse, the National Interest, and Transnational Norms, 103 Harv.L.Rev. 1273, 1301 (1990) (rejecting the notion that the application of laws extraterritorially is "simply imperialism dressed in a transnational outfit," and arguing that "significant, transnational values" may warrant application of the law of one jurisdiction to events that transpired in another).
Because we conclude that the FSIA requires courts to apply the choice of law rules of the forum state, we turn now to New York's choice of law methodology.
2. New York's Choice of Law Analysis.
Appellants rely heavily on a line of cases beginning with Kilberg v. Northeast Airlines, Inc.,
In Kilberg, the representative of a New York domiciliary who had been killed in an airline accident in Massachusetts sued the airline for wrongful death in New York state court. Massachusetts, the place of the accident, set strict limits on damages in wrongful death cases. New York, the decedent's domicile and the forum state, had a strong public policy--indeed a constitutional prohibition--against such limitations. Characterizing the Massachusetts statute as "procedural," and noting New York's policy against damage limitations, the court refused to apply the Massachusetts law. Although Kilberg was decided before New York adopted an "interest analysis" approach to choice of law questions in Babcock v. Jackson,
Chief Judge Fuld's landmark decision in Neumeier v. Kuehner,
"1. When the guest-passenger and the host-driver are domiciled in the same state, and the car is there registered, the law of that state should control and determine the standard of care which the host owes to his guest.
2. When the driver's conduct occurred in the state of his domicile and that state does not cast him in liability for that conduct, he should not be held liable by reason of the fact that liability would be imposed upon him under the tort law of the state of the victim's domicile. Conversely, when the guest was injured in the state of his own domicile and its law permits recovery, the driver who has come into that state should not--in the absence of special circumstances--be permitted to interpose the law of his state as a defense.
3. In other situations, when the passenger and the driver are domiciled in different states, the rule is necessarily less categorical. Normally, the applicable rule of decision will be that of the state where the accident occurred but not if it can be shown that displacing that normally applicable rule will advance the relevant substantive law purposes without impairing the smooth working of the multi-state system or producing great uncertainty for litigants."
The question whether the Neumeier rules apply to damage limitations in wrongful death actions is crucial to the choice of law problem we confront today. If Neumeier does apply, under the second rule, China's damage limitation is controlling: CAAC's conduct occurred within its domicile, and the law of that domicile serves to limit CAAC's liability.5 If Neumeier is limited to the question of foreign guest statutes, however, under Kilberg, the laws of the decedents' domiciles--here, New Hampshire and the District of Columbia--would govern and would preclude enforcement of the Chinese law.
In the years directly following Neumeier, the New York Court of Appeals was silent on the scope of the Neumeier rules. When faced with that issue in Rosenthal v. Warren,
The New York Court of Appeals' recent decision in Schultz v. Boy Scouts of America, Inc.,
We are aware that some of the lower state and federal courts have continued to apply the law of the plaintiff's domicile to the issue of damages despite the New York Court of Appeals' holding in Schultz. For example, in Scharfman v. National Jewish Hospital,
Appellants attempt to avoid the implications of Schultz on the ground that damage limitations in wrongful death actions are somehow different from other loss distribution rules, and that New York courts will refuse to apply such limitations if they are "unjust or anachronistic." Essentially, appellants are asking us to invoke the same public policy against damage limitations that we found dispositive in Rosenthal. See
3. Federal Policy Against Damage Limitations.
Lastly, appellants argue that applying China's limitation on damages would contravene important policies of the federal government. In support of this claim, they rely on a number of cases that have criticized the damage limitations of the Warsaw Convention. See, e.g., In Re Korean Air Lines Disaster of September 1, 1983,
Accordingly, the judgment of the district court is affirmed.
Notes
Appellants do not dispute CAAC's interpretation of Chinese law
The precise issue before the Banco Para El Comercio Court was whether a Cuban bank was an alter-ego of the Cuban government, a question related to "the attribution of liability among entities of a foreign state."
CAAC points to additional language in the legislative history that reflects an intent to promote "uniformity of decision" in FSIA cases, see, e.g., H.R.Rep. No. 94-1487, 94th Cong., 2d Sess. 13, reprinted in 1976 U.S.Code Cong. & Ad.News 6604, 6611 (indicating that federal courts were vested with broad jurisdiction under the FSIA in part to promote uniformity of decision in cases involving foreign sovereigns), and argues that this language militates against applying the choice of law rules of the various states. However, the statute itself expressly embraces the goal of holding foreign states liable "in the same manner and to the same extent as a private individual under like circumstances," 28 U.S.C. Sec. 1606, and, as discussed above, other portions of the legislative history underscore the importance of that goal to the FSIA's drafters. Under these circumstances, we do not believe that Congress intended to achieve "uniformity of decision" by applying different choice of law standards to foreign defendants and private parties
So-called "guest statutes" were passed in the 1920s and 1930s to eliminate the liability of motor vehicle drivers to their passengers except in cases of gross or willful negligence. They were much criticized, however, and several states declined, on the basis of public policy, to apply the guest statute of the place where the accident occurred. See, e.g., Mellk v. Sarahson,
We note that, unlike the third rule, the relevant portions of the second rule are phrased in non-discretionary terms, which unambiguously call for application of locus law
Appellants' reliance on O'Rourke v. Eastern Air Lines, Inc.,
We note that appellants do not rely on the public policies of either New Hampshire or the District of Columbia, and we do not believe that New York courts would consider the public policies of jurisdictions other than New York in choice of law decisions. In any event, it is clear that, at least in New Hampshire, there is no public policy against damage limitations in wrongful death cases, as the New Hampshire legislature has itself limited the damages recoverable in certain types of wrongful death actions. See N.H.Rev.Stat.Ann. Sec. 556:13 (1989)
Appellants also claim that the $20,000 limit under Chinese law is really a compulsory insurance scheme, rather than a limitation on damages, and that the collateral source rule precludes consideration of this insurance policy in awarding damages for liability in tort. This argument is without merit. The collateral source rule prohibits courts from considering benefits received from third parties in determining the extent of the plaintiff's recovery. See Salcer v. Envicon Equities Corp.,
