Title: State ex rel. Wasserman v. City of Fremont

State: ohio

Issuer: Ohio Supreme Court

Document:

[Until this opinion appears in the Ohio Official Reports advance sheets, it may be cited as 
State ex rel. Wasserman v. Fremont, Slip Opinion No. 2014-Ohio-2962.] 
 
 
 
 
 
NOTICE 
This slip opinion is subject to formal revision before it is published in 
an advance sheet of the Ohio Official Reports.  Readers are requested 
to promptly notify the Reporter of Decisions, Supreme Court of Ohio, 
65 South Front Street, Columbus, Ohio 43215, of any typographical or 
other formal errors in the opinion, in order that corrections may be 
made before the opinion is published. 
 
SLIP OPINION NO. 2014-OHIO-2962 
THE STATE EX REL. WASSERMAN ET AL., APPELLEES, v. THE CITY OF  
FREMONT ET AL., APPELLANTS. 
[Until this opinion appears in the Ohio Official Reports advance sheets,  
it may be cited as State ex rel. Wasserman v. Fremont,  
Slip Opinion No. 2014-Ohio-2962.] 
Mandamus—Alleged unconstitutional taking of real property—Easement over city 
property for drainage of relators’ farmland—City charged with violating 
easement by unilaterally rerouting drainage tiles, allegedly causing 
improper drainage and damage to relators’ land—Relators failed to show 
violation of easement as city retained right to change route of drainage 
tiles—Writ to compel city to commence appropriation proceedings denied. 
(No. 2013-0535—Submitted February 25, 2014—Decided July 8, 2014.) 
APPEAL from the Court of Appeals for Sandusky County,  
No. S-10-031, 2013-Ohio-762. 
_____________________ 
 
 
SUPREME COURT OF OHIO 
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Per Curiam. 
{¶ 1} In this appeal of an action in mandamus alleging an 
unconstitutional taking, we deny the motion for oral argument and reverse the 
judgment of the Sixth District Court of Appeals. 
{¶ 2} Relators-appellees, Stanley and Kathryn Wasserman, own 
farmland in Sandusky County, Ohio.  They are successors in interest to an 
easement created in 1915 for the purpose of draining what is now their farmland 
over land now owned by respondent-appellant city of Fremont. 
{¶ 3} The Wassermans and Fremont cooperated in replacing an old 
drainage tile with two eight-inch plastic drainage tiles across the easement in 
2005.  A tile is a tube or pipe used to drain land.  However, in 2009, in 
preparation for constructing a reservoir, Fremont replaced the two eight-inch tiles 
on its property with a single 12-inch drainage pipe.  In laying the pipe, the city 
rerouted the pathway of the drainage system so that it bordered the project site 
rather than ran through it.  Although the Wassermans apparently knew about the 
new pipe, they were not consulted about its installation or the reroute.  They sued 
in mandamus, alleging an unconstitutional taking. 
{¶ 4} The court of appeals held that Fremont had violated the easement 
by unilaterally replacing the eight-inch tiles and rerouting the drainage pathway.  
That court also held that the increase, if any, of water accumulation on the 
Wassermans’ land is relevant to damages only; an increase in flooding is not 
evidence that a taking occurred. 
{¶ 5} We find that the express easement language gave the owner of the 
original servient estate the right to determine the lines by which the drainage 
system should run through the land.  The easement extends to the heirs and 
assigns of the original parties, and as Fremont is now the owner of the servient 
estate, it has the right to determine those lines. The current system continues to 
January Term, 2014 
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serve the original purpose of the easement: draining the Wassermans’ land.  We 
therefore reverse. 
Facts 
{¶ 6} In 2002, Fremont purchased 146 acres of land for construction of a 
reservoir. This purchase made Fremont subject to a drainage easement in favor of 
the Wassermans’ property dating back to October 15, 1915.  The easement gave 
the Wassermans, through their predecessor in interest, the right to construct and 
maintain a 12-inch “field tile drain” through the land owned by the city’s 
predecessor in interest to a certain discharge point into Minnow Creek. 
{¶ 7} When Fremont bought the land, a 12-inch clay drainage tile 
originated on the Wassermans’ land, ran through the Fremont property, and 
discharged into the creek. Historically, the Wasserman property has had problems 
with flooding, especially after a heavy rain. The easement provided for the use of 
tile to drain water from the Wasserman property through the Fremont property. 
{¶ 8} Sometime between 2002 and 2005, the Wassermans constructed a 
lift station on their property to further assist with drainage by pumping excess 
water into the 12-inch tile.  Even after installation of the lift station, storm water 
commonly accumulated on the property after a heavy rain. 
{¶ 9} In 2005, in cooperation with the Wassermans, Fremont shared the 
cost of replacing the existing 12-inch clay tile with two plastic eight-inch tiles, 
placed in the same location.  Fremont paid $3,824.01 for its share of replacing the 
tile.  The Wassermans were involved in this transaction and opted to use two 
eight-inch corrugated tiles to allow for more cover between the tile and the soil 
surface to protect the tile from heavy equipment operated on Fremont’s property. 
Even after this replacement, storm water continued to accumulate on the 
Wasserman property after a heavy rain. 
{¶ 10} In 2009, Fremont decided that in order to accommodate the 
reservoir project, the drainage pathway had to be rerouted.  Fremont’s city 
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engineer proposed that the two eight-inch tiles be replaced with a single 12-inch 
high-density polyethylene smooth-walled drainage pipe, which would have 12 
percent more drainage capacity than the two 8-inch tiles.  The new pipe would be 
connected to the old tiles at the same point at which the two eight-inch pipes had 
been connected, but it would be rerouted to skirt the edge of the project site rather 
than go through it.  The beginning and ending elevations of the drainage pipe 
remained the same.  The point of discharge into Minnow Creek, according to 
Fremont, is now “a few feet” from where the eight-inch tiles had discharged.  
According to the Wassermans, the pipe was installed 100 to 500 feet north of 
where the two eight-inch tiles had been located. 
{¶ 11} On May 26, 2009, Fremont hired Unilliance, Inc. to replace the 
tiles.  On May 28, while the eight-inch tiles were still in place, about three inches 
of rain fell, causing many areas to flood, including the Wassermans’ property and 
surrounding fields. 
{¶ 12} On June 1, 2009, Unilliance began to replace the eight-inch plastic 
tiles with the 12-inch pipe.  Rick Galford, the project superintendent for the 
replacement, was on site that day and saw the exposed eight-inch tiles and 
concluded that they were intact and functioning properly.  Because Fremont was 
constructing a reservoir, it no longer needed to drain its property.  The old tiles 
were removed from the city’s property, and the new pipe now exclusively drains 
the Wasserman property.  Fremont paid for the new drainage pipe and relocation 
costs entirely. 
{¶ 13} While Stanley Wasserman was present on the project site on 
several occasions in mid-May and early June 2009, he was apparently not there 
when the new pipe was being installed, nor did he object to the installation of the 
pipe. On June 19, 2009, Fremont paid Unilliance $17,855 for the replacement of 
the two eight-inch tiles with the 12-inch pipe and installation of a catch basin. 
January Term, 2014 
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{¶ 14} Fremont asserts that throughout the installation of the new pipe it 
made sure that it maintained and preserved the integrity of the Wassermans’ 
easement.  It constructed a catch basin at the connection point to allow the flow of 
water from the Wassermans’ property to be monitored.  Fremont asserts that the 
12-inch pipe has been working properly to drain storm water from the Wasserman 
property across Fremont’s property.  The project manager states that he personally 
observed the water discharging into the creek after a heavy rain, consistent with 
the water flow into the catch basin.  He has observed the 12-inch pipe working 
properly to drain water on several occasions. 
{¶ 15} On the other hand, the Wassermans’ witness states that because of 
the new arrangement, “the ability of the Wassermans to drain their property has 
been significantly diminished.” 
{¶ 16} The Wassermans filed a petition for a writ of mandamus on June 
25, 2010, naming Fremont and its mayor (collectively, “Fremont”) as 
respondents.  The Wassermans alleged that in May 2009, the excavation process 
for the reservoir permanently damaged their eight-inch tiles, resulting in improper 
drainage of their property.  Moreover, they alleged that due to Fremont’s posting 
of “no trespassing” signs, they have been denied access to the Fremont property to 
repair and maintain the tiles as provided by the 1915 easement.  On the basis that 
these actions constitute a taking of their property, the Wassermans requested that 
Fremont be compelled to commence eminent-domain proceedings to compensate 
them for their loss. 
{¶ 17} The parties filed merit briefs, and the court of appeals held that the 
Wassermans were entitled to a writ ordering Fremont to file an eminent-domain 
action to determine whether a taking had actually occurred and, if so, how much 
compensation is due.  State ex rel. Wasserman v. Fremont, 6th Dist. Sandusky 
No. S-10-031, 2011-Ohio-1269.  Fremont appealed, and we held that the 
Wassermans had to establish, rather than just allege, a taking before being able to 
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compel an eminent-domain action.  State ex rel. Wasserman v. Fremont, 131 Ohio 
St.3d 52, 2012-Ohio-27, 960 N.E.2d 449. 
{¶ 18} On remand, the parties submitted evidence in support of their 
positions. The court of appeals ruled on February 13, 2013, that a taking had 
occurred when Fremont unilaterally removed the two eight-inch drainage tiles and 
destroyed the pathway of the 1915 easement to construct the reservoir.  The court 
granted the writ and ordered Fremont to commence eminent-domain proceedings.  
Fremont appealed. 
Legal Analysis 
Oral argument 
{¶ 19} Fremont has moved for oral argument. 
{¶ 20} In cases in which oral argument is not mandatory—such as cases 
originating in this court or direct appeals from cases originating in a court of 
appeals—we have discretion to grant oral argument, and “ ‘in exercising this 
discretion, we consider whether the case involves a matter of great public 
importance, complex issues of law or fact, a substantial constitutional issue, or a 
conflict among courts of appeals.’ ”  State ex rel. Jean–Baptiste v. Kirsch, 134 
Ohio St.3d 421, 2012-Ohio-5697, 983 N.E.2d 302, ¶ 10, quoting State ex rel. 
Davis v. Pub. Emps. Retirement Bd., 111 Ohio St.3d 118, 2006-Ohio-5339, 855 
N.E.2d 444, ¶ 15. 
{¶ 21} Although, as Fremont points out, this case involves the 
constitutional issue of a taking of property, we find that the parties’ briefs and 
evidence are sufficient to resolve the issues raised in this appeal.  State ex rel. 
Swanson v. Maier, 137 Ohio St.3d 400, 2013-Ohio-4767, 999 N.E.2d 639, ¶ 19.  
Therefore, we deny oral argument and proceed to the merits. 
Mandamus 
{¶ 22} “ ‘Mandamus is the appropriate action to compel public authorities 
to institute appropriation proceedings where an involuntary taking of private 
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property is alleged.’ ” State ex rel. Gilbert v. Cincinnati, 125 Ohio St.3d 385, 
2010-Ohio-1473, 928 N.E.2d 706, ¶ 14, quoting State ex rel. Shemo v. Mayfield 
Hts., 95 Ohio St.3d 59, 63, 765 N.E.2d 345 (2002).  To be entitled to a writ, the 
Wassermans must establish a clear legal right to compel Fremont to start an 
eminent-domain action, a legal duty on the part of Fremont to start such an action, 
and the lack of an adequate remedy in the ordinary course of law.  Gilbert at ¶ 15, 
citing State ex rel. Shelly Materials, Inc. v. Clark Cty. Bd. of Commrs., 115 Ohio 
St.3d 337, 2007-Ohio-5022, 875 N.E.2d 59, ¶ 15. 
{¶ 23} Moreover, “[t]he Wassermans must establish their entitlement to 
the writ by clear and convincing evidence.”  State ex rel. Wasserman v. Fremont, 
131 Ohio St.3d 52, 2012-Ohio-27, 960 N.E.2d 449, ¶ 4, citing State ex rel. Doner 
v. Zody, 130 Ohio St.3d 446, 2011-Ohio-6117, 958 N.E.2d 1235, paragraph three 
of the syllabus. 
The Wassermans are not entitled to a writ ordering an eminent-domain 
action 
{¶ 24} The court of appeals held that a taking had occurred because 
Fremont had unilaterally destroyed and rerouted the original pathway of the 1915 
drainage easement.  Fremont appealed this holding. 
{¶ 25} The court of appeals held that its conclusion that a taking had 
occurred had nothing to do with the fact that Fremont replaced the two eight-inch 
tiles with the single 12-inch pipe, stating that “[s]uch actions, and any subsequent 
increase in water accumulation on [the Wassermans’] land as a result, go to the 
issue of damages and not whether a taking occurred.”  2013-Ohio-762, at ¶ 23.  
The Wassermans did not cross-appeal this holding.  Therefore, the Wassermans 
have relinquished any argument that excess water on their land itself constituted a 
taking. 
{¶ 26} The court of appeals also held that the evidence supporting the 
taking does not include the no-trespassing signs placed by Fremont at the entrance 
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to the reservoir property, because the Wassermans “presented no evidence, 
beyond speculation, that respondents intend to exclude them from entering onto 
the property.” Id., fn. 2. The Wassermans did not cross-appeal this holding either.  
They therefore are precluded from arguing that they cannot enter the property to 
inspect and maintain the new 12-inch pipe. 
{¶ 27} Therefore, the question remaining here is a narrow one:  Did 
Fremont violate the easement so as to effect a taking by rerouting the original 
pathway of the 1915 easement, thereby justifying an eminent-domain action?   
{¶ 28} The answer to the question depends first on the language of the 
original easement.  An easement is “the grant of a use on the land of another.” 
Alban v. R.K. Co., 15 Ohio St.2d 229, 231-232, 239 N.E.2d 22 (1968). When an 
easement is created by an express grant, as here, the extent of and limitations on 
the use of the land depend on the language in the grant. Id. at 232. When the terms 
in an easement are clear and unambiguous, a court cannot create a new agreement 
by finding an intent not expressed in the clear language employed by the parties. 
See Alexander v. Buckeye Pipe Line Co., 53 Ohio St.2d 241, 246, 374 N.E.2d 146 
(1978). The language of the easement, considered in light of the surrounding 
circumstances, is the best indication of the extent and limitations of the easement. 
Lakewood Homes, Inc. v. BP Oil, Inc., 3d Dist. Hancock No. 5-98-29, 2 (Aug. 26, 
1999), citing Apel v. Katz, 83 Ohio St.3d 11, 17, 697 N.E.2d 600 (1998). 
{¶ 29} Neither side in this dispute focuses on the express language of the 
easement in the briefs.  The Wassermans concentrate on Fremont’s alleged 
“obliteration” of the easement when it destroyed the eight-inch drainage tiles and 
rerouted the drainage lines. 
{¶ 30} Fremont relies not on the easement language, but on case law 
permitting the rerouting of easements for ingress and egress to public roads.  
Neither cited case relies on the language of the easement. State ex rel. Preschool 
Dev., Ltd. v. Springboro, 99 Ohio St.3d 347, 2003-Ohio-3999, 792 N.E.2d 721; 
January Term, 2014 
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State ex rel. Noga v. Masheter, 42 Ohio St.2d 471, 330 N.E.2d 439 (1975).  
Reference to the language of the easement in these cases was not necessary to 
their resolution.  Ingress and egress to the road in each case were simple matters 
of access.  Rerouting did not destroy the easement; access was retained, but by a 
different path.  Drainage is a more complicated proposition.  Rerouting may have 
destructive consequences. 
{¶ 31} Here, the easement has several express terms pertinent to the 
dispute:   
 
[The Wassermans’ predecessor in interest] may construct 
and maintain a twelve (12) inch field tile drain from the west line 
of said lands of [Fremont’s predecessor in interest] through her 
said lands on lines and at a depth to be fixed by her or her agents, 
and emptying into [Minnow] creek at a point about fifty (50) feet 
south east of the point where said creek crosses said right of way 
and enters her lands; that of the cost of the tile and construction of 
such tile ditch the said [Fremont’s predecessor] shall pay $118.00 
and after the same has been constructed the cost of maintaining 
and keeping the same in repair and any damages arising to the 
lands of [Fremont’s predecessor] or to crops growing thereon from 
defects therein shall be borne and paid by the parties hereto as 
follows: 
[Wasserman predecessor] two-thirds (2/3) thereof. 
[Fremont predecessor] one-third (1/3) thereof. 
* * * 
This contract shall extend to the heirs and assigns of the 
parties hereto and shall continue in force forever unless terminated 
as in herein before provided. 
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{¶ 32} The pertinent features of the easement are, first, that the 
Wassermans’ predecessor had the right to “construct and maintain” a drainage 
tile, but that Fremont’s predecessor had the right to determine the path of the 
drainage tile “on lines and at a depth to be fixed by her.”  Second, the end point of 
the drainage tile was to empty into the creek about 50 feet southeast of where the 
creek enters Fremont’s land.  Finally, the easement “shall extend to the heirs and 
assigns of the parties.” 
{¶ 33} Under the express terms of the agreement, Fremont’s predecessor 
had the right to fix the line and depth of the original drainage tile.  The question 
here is whether the right to fix the line and depth means that the servient estate 
holder retained the right to change that path or whether once set, the path was to 
remain fixed.  The terms of the easement are not clear on this point.  An easement 
should be interpreted to give effect to the language used in the instrument and to 
carry out the purpose for which it was created.  1 Restatement of the Law 3d, 
Property, Servitudes, Section 4.1 (2000).  The purpose of the easement in this 
case was and remains to drain water from the Wasserman property into Minnow 
Creek.  If the rerouted pipe still accomplishes that purpose, the rerouting does not 
violate the purpose of the easement. Therefore, we hold that the right of 
Fremont’s predecessor to fix the line and depth of the tile remained with the heirs 
and assigns, and that right includes the right to reroute the line as long as the line 
continues to fulfill its primary purpose, which is to drain the Wassermans’ land. 
{¶ 34} Despite complaints by the Wassermans to the contrary, the 
evidence does not show that the new arrangement fails to drain the land.  Fremont 
provided the affidavit testimony of various engineers and others who worked on 
the project rerouting the drainage.  They testify that (1) the Wasserman property 
was always prone to flooding during and after heavy rains, and in fact the 
Wassermans had installed a lift station to force water from their land into the 
January Term, 2014 
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drainage tiles, (2) the new 12-inch pipe carries more water than the two eight-inch 
pipes, and the 12-inch pipe is devoted exclusively to draining the Wassermans’ 
land instead of draining both properties as the previous arrangement had done, 
and (3) on multiple inspections after installation, the 12-inch pipe was seen to be 
functioning properly and discharging water from the Wasserman property. 
{¶ 35} The Wassermans provided photographs of Fremont’s construction 
of the reservoir, photographs of the destroyed eight-inch tiles, and a photograph 
“depicting the poor drainage on the Wassermans’ farmland during the City’s 
reservoir construction.”  The photographs of the flooded farm land were taken on 
May 29, 2009, one day after a heavy three-inch rain, and before the eight-inch 
tiles had been removed and replaced. If anything, these photographs show how 
flood-prone the land is and how poorly the eight-inch tiles and the lift station were 
working to drain the land.  The Wassermans also provide photographs of the 12-
inch pipe partly submerged and discharging water. 
{¶ 36} None of this evidence proves that the new 12-inch pipe is draining 
the land less well than the previous eight-inch tiles did, but only that the 
Wassermans’ flood-prone land is still flood-prone, despite the lift station and 
additional capacity from the 12-inch pipe.  The main evidence they have that the 
new arrangement is not draining their land as well as the eight-inch tiles is the 
affidavit of Joseph Picciuto, a surveyor and estimator who had mapped the 
installation of the original eight-inch tiles in 2005.  He visited the reservoir 
property once in 2012.  He states that based on his experience, the 12-inch pipe is 
not draining the land as well as the previous arrangement. 
{¶ 37} The Wassermans also submitted a handwritten document setting 
out damage figures, asserting, for instance, that the lift-station pump had to work 
more days in 2010 and 2011 than in previous years.  If true, this assertion shows 
only that the Wassermans had to pump more water from their land into the pipe, 
not that the drain pipe itself was not working or could not accommodate the extra 
SUPREME COURT OF OHIO 
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water.  Moreover, there is no indication in the record of the total rainfall in those 
years compared with previous years.  Without that information, it is impossible to 
know whether the extra pumping was caused by the change in the drainage 
system or just excess rainfall and flooding. 
{¶ 38} In short, the testimony of at least two engineers connected with the 
project is that the 12-inch pipe has more capacity than the two eight-inch tiles, 
that it was installed properly, and that multiple inspections showed that it was 
working properly after installation and rerouting.  This cumulation of evidence 
outweighs the statement of a surveyor who inspected the site only once after the 
installation of the 12-inch pipe and opined that it does not work as well as the 
eight-inch tiles. 
{¶ 39} Therefore, the Wassermans have failed to show by clear and 
convincing evidence that the rerouting of the easement violated the terms of the 
easement or interfered with the easement’s primary purpose: to drain the 
Wasserman land. 
{¶ 40} The second pertinent feature of the express easement is that the tile 
must empty into the creek “at a point about fifty (50) feet south east of the point 
where said creek crosses said right of way and enters” what is now the Fremont 
property.  Thus, the easement specifies where the tile or pipe is to discharge water 
into the creek.  However, neither party has provided any evidence of exactly 
where that point was in 1915 or is on the current landscape or whether the two 
eight-inch tiles placed in 2005 discharged at or near that point.  If the Wassermans 
had shown that the eight-inch tiles discharged at the point described in the 1915 
easement and that Fremont’s rerouting of the drainage pipe changed the discharge 
point significantly, they might have had an argument for violation of the 
easement.  Without such a showing, however, the Wassermans have failed to 
prove a violation of this term of the easement. 
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{¶ 41} We hold that Fremont did not violate the easement, as it retained 
the right to change the route of the drainage tile as long as it continued to drain 
the Wassermans’ land, and the Wassermans knew about the rerouting at the time 
it was happening. 
{¶ 42} The Wassermans also assert a physical taking of their personal 
property, that is, the eight-inch tiles that Fremont removed.  When real property is 
appropriated by eminent domain, damages for loss of personal property may be 
recoverable in an appropriation proceeding if the personal property is so affixed to 
the real property as to be considered a part thereof.  Masheter v. Boehm, 37 Ohio 
St.2d 68, 307 N.E.2d 533 (1974).  But because we decide today that no taking has 
occurred, no appropriation proceeding is required, and the loss is not recoverable. 
While the Wassermans may have a cause of action against Fremont for the loss of 
the tiles (for which they partially paid), the loss cannot be remedied through 
appropriation in this case. 
Conclusion 
{¶ 43} In sum, the Wassermans have failed to show by clear and 
convincing evidence that a taking of their property has occurred.  The servient 
estate, now owned by Fremont, retained the right to fix the route of the drainage 
easement, and therefore had the right to change it.  We therefore reverse. 
Judgment reversed. 
O’CONNOR, C.J., and LANZINGER, J., concur. 
KENNEDY and FRENCH, JJ., concur in judgment only. 
PFEIFER, O’DONNELL, and O’NEILL, JJ., dissent. 
____________________ 
PFEIFER, J., dissenting. 
{¶ 44} The majority opinion states that “[t]he purpose of the easement in 
this case was and remains to drain water from the Wasserman property into 
Minnow Creek.  If the rerouted pipe still accomplishes that purpose, the rerouting 
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does not violate the purpose of the easement.”  Majority opinion at ¶ 33.  But if 
the rerouting causes the pipe to carry water less quickly, then the purpose of the 
easement has been violated. 
{¶ 45} It is obvious that when all other factors (pressure, friction, etc.) are 
the same, but the length of pipe is increased, the water will drain more slowly.  In 
my opinion, the rerouting has diminished the usefulness of the drainage, thereby 
affecting the purpose of the easement. 
{¶ 46} I would affirm the judgment of the court of appeals.  I dissent. 
O’DONNELL and O’NEILL, JJ., concur in the foregoing opinion. 
____________________ 
 
Cheetwood, Davies, Ruck & Speweik, Ltd., Corey J. Speweik, and 
Theresa A. Charters, for appellees. 
James F. Melle, Law Director, for appellants. 
_________________________