Shirley E. Melton, et al. v. Vanderburgh County Commissioners, et al.Shirley E. Melton, et al. v. Vanderburgh County Commissioners, et al.
Case Summary
[1] Shirley E. Melton, Michael Melton, and Jason Melton (collectively, the Meltons) filed suit against Vanderburgh County and the Vanderburgh County Commissioners (collectively, the County) based on the County‘s placement of a barrier – a guardrail – at the dead end of Bayshore Drive in the Blue Heron Estates Subdivision (the Subdivision). The Meltons alleged that this barrier prevented them frоm accessing their farmland (the Farmland) and that the plat map of the Subdivision (the Plat) establishes that they have an easement onto Bayshore Drive and throughout the Subdivision. The Meltons filed claims against the County for declaratory judgment, unlawful trespass, and judicial review.
[2] On the County‘s motion and after hearings on the matter, the trial court dismissed the action concluding that the claims were barred by the statute of limitations and that certain claims were nonjusticiable and the court lacked subject matter jurisdiction. The Meltons appeаl arguing that the trial court improperly dismissed each of their claims against the County.
[3] We affirm in part, reverse in part, and remand.
Facts & Procedural History
[4] In May 2004, Shirley sold a portion of her Vanderburgh County farmland to Blue Heron Development, LLC for the purpose of creating the Subdivision.
[5] The Plat contains certain streets that were to be developed within the Subdivision and dedicated for public use. Below is a portion of the Plat relevant to our review which shows interior streets and their relation to Lots 1, 2, and 81, which are highlighted:
[6] In June 2011, the County accepted the dedication of the Subdivision‘s interior streets for purposes of maintenance. Notably, the end of Bayshore Drive stopped twenty-four feet short of the Subdivision‘s property line. Then in 2015, the County installed a traffic bаrrier/guardrail at the end of Bayshore Drive, as pictured below:
Exhibits Vol. 3 at 3. Though aware of the installation of this barrier, according to the Meltons, “Shirley opted not to do anything” because “the Meltons at that time had an alternative route available via Millersburg Road to service their crops.” Appellants’ Appendix Vol. II at 76.
[8] On October 7, 2024, the Meltons petitioned the County to remove the barrier at Bayshore Drive so they could utilize their purported easement. On November 12, 2024, the County denied this request, which denial the Meltons claim has “effectively landlocked the [Farmland] from access.” Id. at 94.
[9] On December 9, 2024, thе Meltons filed this action against the County, claiming the Plat shows that Shirley “retained an easement right throughout the Subdivision providing access to her remaining farmland immediately to the east via the abutting Bayshore Drive.” Id. at 13. In the complaint, the Meltons asserted three claims against the County: 1) declaratory judgment regarding existence of an easement; 2) unlawful trespass; and 3) judicial review of the County‘s executive decision to deny the Meltons’ request to remove the barrier. With respect to the trespass claim, in addition to damages, thе Meltons asked the trial court to order the County to remove the barrier and to “pave the twenty-four (24) feet at the end of Bayshore Drive” that abuts the Farmland. Id. at 15. The Meltons attached the Plat to the complaint.
[11] On March 10, the County also filed a motion to dismiss pursuant to
- Plaintiffs failed to satisfy a condition precedent of serving a Notice of Tort Claim prior to filing thе Complaint and within the statutory time frame;
- Plaintiffs’ Complaint and claims are barred by the applicable statute of limitations;
Plaintiffs failed to state a claim upon which relief can be granted; - This Court lacks jurisdiction over the subject matter; and
- Plaintiffs failed to join indispensable parties and real parties of interest.
Appellants’ Appendix Vol. II at 42. The County filed a brief in support of its motion to dismiss.
[12] On May 23, 2025, the Meltons filed a motion for leave to amend their complaint. While the substance of the complaint was unchanged, the Meltons noted in the motion that they had served the Cоunty with a notice of tort claim on February 13, 2025, and thus “the 90 day requirement has been met.”3 Appellants’ Appendix Vol. II at 65. On May 23, the Meltons also filed a brief in opposition to the County‘s motion to dismiss.
[13] In June 2025, following a hearing, the trial court denied the motion to amend the complaint. The court then set the matter for a hearing on the motion to dismiss, which was held on July 16. The trial court took the matter under advisement after the hearing and two days later issued an order summarily granting the motion to dismiss without prejudice.
[15] After a response from the County and a hearing, on August 25, 2025, the trial court issued an amended order, clarifying the bases of the dismissal: “The Plaintiffs’ claims are barred by the statute of limitations. In addition, certain counts of Plaintiffs’ claims are nonjusticiable and the court lacks subject-matter jurisdiction.” Appellants’ Appendix Vol. II at 114. Accordingly, the court dismissed each of the counts, denied the motion to correct error, and dismissed the amended complaint.
[16] The Meltons now appeal the dismissal of their amended complaint. Additional information will be provided below as needed.
Standard of Review
[17] Under
[18] With respect to
[19] Further, it is well established that we may affirm a dismissal if the decision is sustainable on any basis in the record. Stone v. Wright, 133 N.E.3d 210, 215 (Ind. Ct. App. 2019). That is, we are not confined to the bases upon which the trial court dismissed the claims.
Discussion & Decision
The Tort Claim
[20] We turn first to the tort claim asserted by the Meltons against the County. In their amended complaint, they alleged that the County is “an unlawful trеspasser upon the ingress/egress rights owned by the Meltons, specifically that unimproved portion of what exists at the end of the dedicated Bayshore Drive and the eastern property line of [the Subdivision].” Appellants’ Appendix Vol. II at 70. The Meltons further alleged that “the barrier and concrete pad that [the County] decided to put on that twenty-four (24) foot area … constitute an illegal trespass upon the Meltons’ private rights of which [the County] has no right to claim.” Id.
[21] Aside from exceptions not applicable here, the ITCA bars tort claims against a political subdivision of the State unless a plaintiff has filed notice of the claim with the entity‘s governing body within 180 days after a loss occurs.4
[22] Compliance with the notice provisions of the ITCA is a procedural precedent that the plaintiff must prove, and the trial court must determine this prior to trial. Id. That is, if a governmental defendant raises noncompliance with the notice provisions as a defense, the plaintiff bears the burden of proving compliance. Id. The determination of compliance is a question of law, and the political subdivision is entitled to dismissal if the plaintiff failed to provide notice as required by the ITCA. See Town of Cicero v. Sethi, 189 N.E.3d 194, 204 (Ind. Ct. App. 2022), trans. denied; Stone, 133 N.E.3d at 217.
[23] Here, the Meltons failed to show compliance with the ITCA. It was undisputed below that the County placed the barrier – thus allegedly becoming a trespasser interfering with the easement – in 2015 and that the Meltons did not file a notice of tort claim with the County until many years later. They petitioned the County for removal of the barrier in October 2024 and filed their notice of tort claim in February 2025. The Meltons claim that they were entitled to a fresh 180 days to provide notice once the County denied their request to remove the barrier on November 12, 2024, because before that time they “had not discovered the trespass was permanent.” Appellants’ Reply Brief at 5. The Meltons provide no authority for the proposition that the notice requirement begins to run only upon discovery that the trespass is permanent.
[25] For similar reasons, the tort claim would also fail on statute of limitations grounds. The limitations period applicable to civil trespass claims is six years. See Stickdorn v. Zook, 957 N.E.2d 1014, 1022 (Ind. Ct. App. 2011) (citing
[26] The Meltons acknowledged below that Shirley knew of the barrier‘s placement in 2015, more than six years before this action was filed. On appeal, though, they briefly assert two alternative arguments: (1) the barrier constituted “an
The Declaratory Judgment Claim
[27] The Mеltons also filed a claim against the County seeking a declaratory judgment that they have an easement to access the public streets in the Subdivision at the point where Bayshore Drive abuts the Farmland. They allege that the Plat expressly establishes such an easement. In the alternative, they argue that an easement should be implied based on “the understanding of the
[28] The County argues that the complaint failed to state a claim upon which relief can be granted because the Plat establishes as a matter of law that the Meltons do not have an express or implied easement. We address each type of easement in turn.
[29] Express easements are specifically granted in a deed or written contract. Morehouse v. Dux North LLC, 226 N.E.3d 758, 763 (Ind. 2024). “[I]n an instrument creating an express easement, the dominant and servient tenement should be described with reasonable certainty.” Larry Mayes Sales, Inc. v. HSI, LLC, 744 N.E.2d 970, 973 (Ind. Ct. App. 2001) (observing that while the document need not use the terms “dominant estate” and “servient estate,” it must adequately describe those estates with reasonable certainty); see also Lennertz v. Yohn, 79 N.E.2d 414, 417 (Ind. Ct. App. 1948) (“A reservation of an easement is not operative in favor of land not described in the conveyance.“).
[30] The Meltons’ claim of an express easement is based solely upon the Plat, but the Plat clearly and unambiguously does not create an express easement in their favor.6 It makes no reference to the Farmland, to the creation of an easement
[31] The Meltons also generally claim that an easement may be shown by considering the understanding of the parties at the time of the sale. For example, they note that they intend to call as witnesses the engineers and surveyors who designed and drew the Plat and that these witnesses would testify that the easement in question was “intended … from the get-go[.]” Transcript Vol. 2 at 33. The Meltons do not cite authority for their proposition that such evidence can be used to refute an unambiguous document. Cf. Oakes, 631 N.E.2d at 952 (“We refuse Big Ten‘s invitation to look beyond the deeds because the terms are plain and unambiguous; no dominant tenements are identified.“).
[32] Of course, an easement may be implied by necessity, a basis upon which the Meltons allege in their amended complaint.7
To establish an easement of necessity, the owner of the dominant estate must prove that (1) the servient and dominant properties had a common owner (unity of ownership); (2) the unity of ownership was severed when the common owner conveyed one of the parcels (severance); (3) this severance made an easement
necessary for the owner of the dominant estate to access a public road (necessity at severance); and (4) the easement‘s necessity remained after severance (continuing necessity).
Morehouse, 226 N.E.3d at 766 (emphasis added).
[33] The rub here for the Meltons is that they can only establish an easement by necessity if at the time of severance – when Shirley sold the subdivided land to the developer – the Farmland was “legally landlocked with no public road abutting contiguous property.” Id. at 768. In practical effect, this would require that the Meltons, at that time, could not access the Farmland from Millersburg Road through Lot 2 (or Lots 1 and 2). The Plat plainly shows otherwise, and it is of no moment that subsequent transfers of property by the Meltons have caused the Farmland to become landlocked. The law is clear that necessity can never be shown when a public road abuts the property directly or through contiguous parcels at the time of severance. See id. at 767-70. The Meltons’ access to the Farmland through Lot 2, as reflected in the Plat, prevented the establishment of an easement by necessity as a matter of law. Accordingly, we affirm the dismissal of the declaratory judgment claim, as the Meltons failed to state a claim on which relief could be granted.
The Judicial Review Claim
[34] The Meltons’ final claim asked the trial court to review the November 2024 decision by the Vanderburgh County Commissioners (the Commissioners) denying their request to remove the barrier. They allege that they were aggrieved by this decisiоn and that the decision was arbitrary and capricious.
[36] Our Supreme Court has adopted a four-factor test in determining whether an action is judicial in nature:
While it is difficult, if not impossible, to define quasi-judicial power and to discriminate between judicial and administrative acts in a way which will be applicable to every case, we find that it is the nature, quality, and purpose of the act performed, rather than the name or character of the officer or board which performs it, which determines its character as judicial. Generally, the judicial function consists of: (1) the presence of the parties upon notice; (2) the ascertainment оf facts; (3) the determination of the issues; and (4) the rendition of a judgment or final order regarding the parties’ rights, duties, or liabilities.
Id. at 641-42 (quoting Lincoln v. Bd. of Comm‘rs of Tippecanoe Cnty., 510 N.E.2d 716 (Ind. Ct. App. 1987), abrogated in part on other grounds by McDillon v. N. Ind. Pub. Serv. Co., 841 N.E.2d 1148 (Ind. 2006)).
[37] “As a general proposition, the party challenging subject matter jurisdiction carries the burden of establishing that jurisdiction does not exist.” GKN Co. v. Magness, 744 N.E.2d 397, 404 (Ind. 2001). The party is relieved of this burden “only if a lack of jurisdiction was apparent upon the face of the complaint.”
[38] Here, we cannot say that lack of jurisdiction is apparent on the face of the amended complaint. The amended complaint refers generally to a petition made by the Meltons to the Commissioners to remove the barrier and a denial about a month later. As the County notes, the amended complaint did not include any records, minutes, or other documents related to the decision by the Commissioners. And the County did not fill these gaps in the record for the trial court or this court to make an informed judgment regarding jurisdiction based on the four factors listed above. We do not know the process the Commissioners used in determining whether to grant or deny the Meltons’ request (for example, was notice given, were there opposing parties, and was evidence presented) or the reasons for the ultimate denial.
[39] On a
We note that Indiana has recognized a constitutional right to judicial review of administrative actions. Petitioners correctly point out that they are entitled to review of governmental action which was arbitrary, capricious, and/or violative of their constitutional rights. Such action presents a “judicial question” regardless of the nature of the Board‘s action.
Vranicar v. Bd. of Comm‘rs of Brown Cnty., 730 N.E.2d 752, 756 (Ind. Ct. App. 2000) (citations omitted); see also A.B. v. State, 949 N.E.2d 1204, 1217 (Ind. 2011) (“[A]n arbitrary or capricious decision by an administrative body would call for judicial action, even if there is no statute authorizing an appeal.“). Again, on the bare record here, dismissal of the judicial review claim would be premature.
Conclusion
[41] We affirm the dismissal of the tort claim and the declaratory judgment claim. The former is barred due tо the Meltons’ failure to comply with the notice requirements of the ITCA, and the latter fails to state a claim upon which relief can be granted because the unambiguous Plat does not establish an express easement and it shows that there was no easement by necessity at the time of severance. The claim for judicial review, however, does survive at this stage due to the County‘s failure to supplement the record and establish a lack of
[42] Judgment affirmed in part, reversed in part, and remanded.
Brown, J. and DeBoer, J., concur.
ATTORNEYS FOR APPELLANTS
Yvette M. LaPlante
Evansville, Indiana
Terry A. White
Evansville, Indiana
ATTORNEYS FOR APPELLEES
Jeffrey W. Ahlers
Craig R. Emig
Evansville, Indiana