Oyens Feed & Supply, Inc. v. PrimebankOyens Feed & Supply, Inc. v. Primebank
We are asked to interpret an Iowa statute enacted in the depths of the 1980s farm crisis to help debt-laden farmers buy livestock feed on credit to continue operations. Our answer is sought to resolve a dispute between two creditors in a bankruptcy proceeding with competing liens on the same hogs. A hog producer with outstanding loans to Primebank went deeper into debt by purchasing feed on credit from Oyens Feed & Supply to fatten the hogs to market weight. We answer a certified question from the federal district court by holding Primebank’s prior perfected security interest in the hogs is trumped by Oyens Feed’s agricultural supply dealer lien under Iowa Code section 570A.5(3) (2009) to the extent of the enhanced value of the livestock presumptively attributable to the feed — even though the bank received no certified request under section 570A.2 before the feed was sold on credit. Our interpretation effectuates the legislative intent to protect suppliers whose feed enhances the value of livestock while honoring the security interest of the earlier lеnder in the original value.
I. Background Facts and Proceedings.
This dispute between Oyens Feed and Primebank arises through Crooked Creek Corporation’s chapter 12 bankruptcy in the United States Bankruptcy Court for the Northern District of Iowa. Crooked Creek is a farrow-to-finish hog producer located in Plymouth County, Iowa. Both Prime-bank and Oyens Feed claim liens on the proceeds of the sale of Crooked Creek’s hogs. Primebank had a perfected article 9 security interest in the hogs to secure two promissory notes predating Oyens Feed’s perfected section 570A.5(3) agricultural supply dealer lien in the hogs. The proceeds from the sale of the approximately 7500 hogs are insufficient to satisfy both parties’ liens. Oyens Feed claims its lien trumps Primebank’s security interest as to $358,841.10 of the sale proceeds. That amount is in escrow.
Crooked Creek filed an adversary proceeding to determine the priority of the liens, without taking a position as to which creditor should prevail. Oyens Feed filed an answer asking the bankruptcy court to deem its lien paramount to Primebank’s interest. Primebank cross-claimed, аsserting its perfected security interest in the hogs had priority. Primebank’s cross-claim sought declaratory relief and damages. Primebank moved for partial sum
Oyens Feed appealed the bankruptcy court’s ruling to the United States District Court for the Northern District of Iowa. The Honorable Donald E. O’Brien sua sponte certified this question of law to our court:
Is the special priority afforded agricultural supply dealer liens for livestock feed underIowa Code § 570A.5(3) susceptible to the affirmative defense afforded financial institutions under § 570A.2(3), or does§ 570A.5(3) instead operate independently of оr as an exception to § 570A.2(3), so as to allow an agricultural supply dealer supplying livestock feed to obtain a lien that, pursuant to§ 570A.5(3) , has priority over a financial institution’s prior perfected security interest in the same collateral to the extent of the difference between the acquisition price of the livestock and the fair market value of the livestock at the time the lien attaches or the sale price of the livestock, whichever is greater, without the dealer having complied with the requirements imposed by § 570A.2(1) and contemplated under § 570A.2(3)?
II. Our Discretion to Answer Certified Questions.
Iowa Code section 684A.1 allows this court to answer questions of Iowa law certified to us by a federal court that concludes controlling precedent is lacking when the answer may be determinative of the federal proceeding. See Foley v. Argosy Gaming Co.,
III. Construction of Chapter 570A.
Chapter 570A creates an agricultural supply dealer lien. It was enacted in 1984. 1984 Iowa Acts ch. 1072, § 1. According to the senate file “Explanation,” it sought “to ereate[] a lien against all livestock consuming feed, to secure payment of the retail cost of the feed that was furnished.” S.F. 510 Explanation, 70th G.A. (Iowa 1984). Other legislative history is sparse. As with most Iowa statutes, there are no committee hearings or floor debates to review. Commentators contemporaneous to the chаpter’s enactment, however, noted, “It is generally believed that the enactment of chapter 570A of the Iowa Code was in response to the farm debt crisis” this state suffered in the 1980s. Thomas E. Salsbery & Gale E. Juhl, Chapter 570A Crop and Livestock Lien Law: A Panacea
Chapter 570A defines “agricultural supply dealer” or “dealer” as “a person engаged in the retail sale of agricultural chemicals, seed, feed, or petroleum products.”
The specific provisions at issue are
A. Framing the Statutory Dispute. Iowa Code
For an agricultural supply dealer lien that is perfected under section 570A.4, all of the following shall apply:
1. The lien shall have priority over a lien or security interest that applies subsequent to the time that the agricultural supply dealer lien is perfected.
2. Except as provided in section 570A.2, subsection 3, the lien shall have equal priority to a lien or security interest which is perfected prior to the time that the agricultural supply dealer lien is perfected. However, a landlord’s lien that is perfected pursuant to section 570.1 shall have priority over a conflicting agricultural supply dealer lien as provided in section 570.1, and a harvester’s lien that is perfected pursuant to section 571.3 shall have priority over a conflicting agricultural supply dealer lien as provided in section 571.3A.
3. A lien in livestock feed shall have priority over an earlier perfected lien orsecurity interest to the extent of the difference between the acquisition price of the livestock and the fair market value of the livestock at the time the lien attaches or the sale pnce of the livestock, whichever is greater.
(Emphasis added.)
Section 570A.2 details the certified request process. Section 570A.2(3) provides a financial institution an affirmative defense to a dealer’s enforcement of its lien. Section 570A.2(3) states:
Upon an action to enforce a lien secured under section 570A.3 against the interest of a financial institution secured to the same collateral as that of the lien, it shall be an affirmative defense to a financial institution and complete proof of the superior priority of the financial institution’s lien that the financial institution either did not receive a certified request and a waiver signed by the farmer, or received the request and a waiver signed by the farmer and provided the full and complete relevant financial history which it held on the farmer making the purchase from the agricultural supply dealer on which the lien is based and that financial history reasonably indicated that the farmer did not have a sufficient net worth or line of credit to assure payment of the purchase price.
A “certified request ... state[s] the amount of the purchase and the terms of sale and [is] accompanied by a waiver of confidentiality signed by the farmer, and a fifteen dollar fee.”
B. The Arguments of the Parties and Iowa Institute for Cooperatives. Oyens Feed argues its livestock lien trumps Pri-mebank’s security interest under
Oyens Feed argues a “contrary rule would give a windfall to the lender who is not extending new value to pay for necessary feed.” Livestock must be fed to mature and increase in value. According to Oyens Feed, the legislature did not intend the secured lender to improve its position through the increased value of the livestock collateral without extending additional credit for the feed that enhanced the livestock’s value. The Iowa Institute for Cooperatives elaborates by arguing livestock feed suppliers are not required to comply with the certified request process because “[i]t goes without saying the livestock feed is necessary to keep livestock alive. While crop inputs are necessary for crop production, crops are not animаls that will suffer and/or perish without daily feeding.” Accordingly, burdening credit feed sales with procedural requirements poses harm not present in chemical, seed, and petroleum sales.
Primebank contends chapter 570A as a whole creates a uniform, balanced scheme that protects lenders and dealers through its certified request and superpriority rules. Primebank relies on the broad declaration in
C. The Split in Authority Among Courts Considering the Issue. Iowa appellate courts have not squarely decided this issue. A 1994 opinion of this court suggested, without analysis, that a feed dealer must comply with
The trial courts reaching the precise statutory question are divided in their resolution.
To this court, it doesn’t make any sense that if the provisions of§ 570A.2(3) apply to all of the special priority rules set out in subsections 1, 2, and 3 of§ 570A.5 , why did the legislature expressly reference§ 570A.2(3) [only in subsection 2].... If the provisions of§ 570A.2(3) had the breadth as argued by the bank, it would not be necessary to specifically reference§ 570A.2(3) in§ 570A.5(2) .
Doon Elevator Co. v. Am. State Bank, Sioux County No. LACV022572 (Iowa Dist.Ct. March 29, 2010). Judge Acker-man concluded:
[T]he legislature intended to give a more protected status to the livestock feed sellers over the retailers of seed, chеmicals, and petroleum. The priority status given to sellers of livestock feed as opposed to the equal priority given to other agricultural supply dealers and the legislature’s failure to make the feed sellers’ hen subject to the provisions of§ 570A.2(3) evidences that intent.
Id.
Similarly, the United States District Court for the Eastern District of North Carolina concluded:
[Tjhis court agrees with the appellant that if the Iowa legislature had wanted to subject the priority rule stated in§ 570A.5(3) to the affirmative defense created by§ 570A.2(3) , it is clear they knew how to do that. Where the legislature includes particular language in one section of a statute but omits it in another section of the same Act, it is generally presumed that [the legislature] acts intentionally and purposely in the disparate inclusion or exclusion.... The omission of the affirmative defense language from§ 570A.5(3) must be presumed to be intentional, and leads to the conclusion that§ 570A.5(3) was not intended to be subject to the affirmative defense in§ 570A.2(3) .
Farmers Coop. Soc’y of Sioux Center v. First Nat’l Bank of Omaha, No. 7:10-CV-202-H (E.D.N.C. Sept. 15, 2011) (appeal pending).
[T]he Court believes thatIowa Code § 570A.5(S) cannot stand or be read alone. The rules of statutory construction require the Court to read the statute as a whole and give effect to the plain meaning of the statute, where the meaning of the statute is plain. Taken as a whole, this statute is a well organized scheme for the creation, perfection, priority and enforcement of liens to secure the sale of agricultural supplies in Iowa.
In re Coastal Plains Pork, LLC,
D. Construction. In resolving statutory disputes, “our ultimate goal is to ascertain and give effect to the intent of the legislature.” Iowa Comprehensive Petroleum Underground Storagе Tank Fund Bd. v. Mobil Oil Corp.,
“[LJegislative intent is expressed by omission as well as by inclusion of statutory terms.” Freedom Fin. Bank v. Estate of Boesen,
The phrase “[e]xcept as provided in subsection 570A.2” would be redundant or surplusage if
In Boesen, we found the legislature’s selective inclusion of the phrase “not necessary for the payment of debts and charges” to be dispositive in resolving whether an intestate surviving spouse receives real property free and clear of her husband’s debts. Boesen,
Another principle of statutory construction buttresses our conclusion. “To the extent ‘there is a conflict or ambiguity between specific and general statutes, the provisions of specific statutes control.’” Boesen,
It makes sense the legislature would give superpriority status to livestock feed suppliers limited to the new value created, without requiring compliance with the certified request procedure. Livestock feed is often supplied on an ongoing basis, and it would be impractical and cumbersome to require serial certified requests with ever-changing dollar amounts and recurring fees. Livestock feed is grown and sold by farmers. The legislature presumably sought to encourage a fluid feed market without burdening cooperatives and farmers with the certified request process. By contrast, sales of crop seed, herbicides, and fertilizer are more often bulk transactions by large vendors for whom the certified request process is less cumbersome.
Importantly, the superpriority provision only allows feed suppliers to trump perfected secured lenders to the extent the acquisition value of the livestock is exceeded by the livestock’s value at the time the lien attaches or its ultimate sale price. Accordingly, the secured lender generally retains its secured position up
IV. Conclusion.
We hold
CERTIFIED QUESTION ANSWERED.
Notes
. The article was coauthored by counsel to the Iowa Farm Bureau Federation, an organization actively involved in the legislative process that led to the enactment of chapter 570A.
. The amendment’s primary effect was to synchronize the lien’s perfection procedures with the financing statement requirements in article 9. Article 9 expressly states "agricultural liens" are governed by state statutory law. See
. See Farmers Coop. Soc'y of Sioux Center v. First Nat’l Bank of Omaha, No. 7:10-CV-202-H (E.D.N.C. Sept. 15, 2011) (ruling in favor of feed supplier) (appeal pending); In re Coastal Plains Pork, LLC,
. Coastal Plains Pork, LLC was a North Carolina company that operated a farrow-to-finish farm that produced swine in several states, including Iowa, where it had a hog-growing operation. First National Bank of Omaha provided Coastal Plains a loan for the Iowa operations and perfected a security interest in the livestock. Coastal Plains also purchased feed from two Iowa feed suppliers. It filed for bankruptcy protection in the Eastern District of North Carolina. In an adversary proceeding, First National Bank of Omaha and the feed suppliers disputed their lien priority in the livestock. Accordingly, the dis
. Other state legislatures have chosen a different policy for their state. See, e.g.,