UNPUBLISHED

UNITED STATES COURT OF APPEALS

FOR THE FOURTH CIRCUIT

JOHN B. BOLLECH, Trustee; KENNETH 

A. HAAPALA, Trustee; DANIEL C.

MEISINGER, Trustee; DENNIS WINSON,

Trustee,

Plaintiffs-Appellants,

v.

CHARLES COUNTY, Maryland;  No. 01-2385

BOARD OF COUNTY COMMISSIONERS OF

CHARLES COUNTY, MARYLAND;

CHARLES COUNTY PLANNING

COMMISSION; CHARLES COUNTY

DEPARTMENT OF PLANNING AND

GROWTH MANAGEMENT,

Defendants-Appellees. 

Appeal from the United States District Court

for the District of Maryland, at Greenbelt.

Deborah K. Chasanow, District Judge.

(CA-01-38-DKC)

Argued: June 3, 2003

Decided: July 10, 2003

Before WILKINSON and MOTZ, Circuit Judges,

and Robert R. BEEZER, Senior Circuit Judge of the United States

Court of Appeals for the Ninth Circuit, sitting by designation.

Affirmed by unpublished per curiam opinion. 
COUNSEL

ARGUED: Robert Henry Freilich, FREILICH, LEITNER & CARLISLE, Kansas City, Missouri, for Appellants. Kurt James Fischer,

PIPER RUDNICK, L.L.P., Baltimore, Maryland, for Appellees. ON

BRIEF: Marta D. Harting, PIPER RUDNICK, L.L.P., Baltimore,

Maryland; Roger Lee Fink, County Attorney, COUNTY COMMISSIONERS OF CHARLES COUNTY, La Plata, Maryland, for Appellees. 

Unpublished opinions are not binding precedent in this circuit. See

Local Rule 36(c). 

OPINION

PER CURIAM: 

Appellants Bollech, Haapala, Mesisinger and Winson (the "Trustees") own land on which they planned to develop residential units. In

1989, the Trustees entered into a Development Agreement with

Charles County and the Cliffton Potomac Associates Ltd. Partnerships I-X (the "Newburg Station Owners") for the residential development of land. 

The Development Agreement’s purpose was to assure the timely

and orderly provision of water and sanitary sewer facilities to support

(1) the proposed residential development on the Trustees’ land (the

"Potomac Cliffs") and land owned by the Newburg Station Owners

(the "Newburg Station"), and (2) a portion of existing developments

on adjacent land. The Trustees and the Newburg Station Owners (collectively, the "Property Owners") were allowed under the Development Agreement to develop residential units in prescribed stages. In

return, the Property Owners agreed to construct, within a certain

amount of time, adequate public facilities (including upgrading,

repairing and expanding the existing sewer plant) to serve the proposed residential development and a portion of the existing development on adjacent property. 

2 BOLLECH v. CHARLES COUNTY
In 1999, the Trustees submitted an application for a preliminary

plan for development. The County refused to accept the application

because amendments to the local zoning regulations prevented the

County from approving the application. The Trustees claim the

Development Agreement provides that the Trustees may develop the

residential units on their land irrespective of changes in County land

use regulations. In response, the County claims that the County is no

longer obligated under the Development Agreement to approve the

Trustees’ development applications for building permits. 

The Trustees brought suit against the County for (1) impairment of

the obligation of contract in violation of the Contracts Clause, U.S.

Const. Art. I, § 10, cl. 1; and (2) breach of contract. The district court

entered an order granting the County’s motion for summary judgment

and denying the Trustees’ cross-motion for summary judgment. In a

memorandum opinion, the district court stated that the Development

Agreement no longer imposed an enforceable obligation on the

County because the Trustees did not ensure the provision of adequate

sewer and water facilities within the time period required by the

Development Agreement. 

We AFFIRM the district court’s decision. 

I

A district court’s grant of summary judgment is reviewed de novo.

Shaw v. Stroud, 13 F.3d 791, 798 (4th Cir. 1994). Summary judgment

is proper where there is no genuine issue of material fact. Fed. R. Civ.

P. 56(c); Anderson v. Liberty Lobby, Inc., 477 U.S. 242, 248 (1986).

We look at the undisputed facts and draw all reasonable inferences in

favor of the non-moving party. See Miller v. Leathers, 913 F.2d 1085,

1087 (4th Cir. 1990). When both parties file summary judgment

motions, as was done in this case, the district court rules on each

motion on an individual and separate basis. See Mingus Const., Inc.

v. United States, 812 F.2d 1387, 1391 (Fed. Cir. 1987) (stating courts

evaluate each party’s motion on its own merits, taking care in each

instance to draw all reasonable inferences against the party whose

motion is under consideration). 

BOLLECH v. CHARLES COUNTY 3
II

The Contracts Clause states that "No State shall . . . pass any . . .

Law impairing the Obligation of Contracts." U.S. Const. Art. I, § 10,

cl. 1. In order to prove a violation of the Contracts Clause, a plaintiff

must first prove that there is an enforceable contract that the government has impaired in some manner. See United States Trust Co. of

New York v. New Jersey, 431 U.S. 1, 17 (1977); Allied Structural

Steel Co. v. Spannaus, 438 U.S. 234, 244 (1978). If there is no

enforceable contract, there is no violation of the Contracts Clause. See

City of Charleston v. Public Service Com’n of West Virginia, 57 F.3d

385, 391 (4th Cir. 1995). 

If there is an enforceable contractual obligation that has been

impaired, the plaintiff must prove that the impairment was substantial.

Baltimore Teachers Union v. Mayor and City Council of Baltimore,

6 F.3d 1012, 1014-15 (4th Cir. 1993). If the impairment is substantial,

the court then determine if the government action giving rise to the

substantial impairment was reasonable and necessary to protect an

important public interest. Id. 

A

The County claims there was no enforceable contractual obligation

to the Trustees at the time of the alleged impairment, 1999. Whether

there is an enforceable contractual obligation is a question of contract

interpretation. Maryland applies the principle of objective interpretation of contracts, which means that "where language employed in a

contract is unambiguous, a court shall give effect to its plain meaning

and there is no need for further construction by the court." Wells v.

Chevy Chase Bank, 768 A.2d 620, 630 (Md. 2001). "If a court properly determines that the contract is unambiguous on the dispositive

issue, it may then properly interpret the contract as a matter of law

and grant summary judgment because no interpretive facts are in genuine issue." World-Wide Rights Ltd. v. Combe Inc., 955 F.2d 242, 245

(4th Cir. 1992) (citations omitted). 

The language of the Development Agreement indicates (1) that the

Trustees had an obligation to expand and repair the existing sewage

treatment plant as a predicate for development of the proposed resi4 BOLLECH v. CHARLES COUNTY
dential units and (2) that the development of Potomac Cliffs was to

take place by a specified date in 1994. In return, the County promised,

among other things, to issue building permits upon application and

upon compliance with applicable regulations, in accordance with the

schedule set out in the Development Agreement. 

The Development Agreement unambiguously imposes obligations

on the Trustees. For instance, the Development Agreement states in

§ 4.1:

The development of the property shall be supported by adequate levels of public facilities, including sanitary sewer

facilities, water facilities, roadway facilities, stormwater

management facilities . . . . All public facilities necessary to

meet adequacy requirements shall be provided and initially

financed by the property owners. Owners . . . of the Potomac Cliffs Tract generally are responsible for providing

public facilities to be situated on that tract. 

Under § 4.2.3 of the Development Agreement, the Newburg Station Owners had primary responsibility for the construction of sewer

and water facilities, but § 4.2.2(c) states that the Trustees had responsibility for the construction of the facilities if the Newburg Station

Owners failed to construct the facilities and the Trustees still planned

to develop Potomac Cliffs. 

In addition, § 3.2 of the Development Agreement requires the property owners to develop their property in phases. Section 3.2(a) details

the schedule of construction phases in which Potomac Cliffs was to

be developed. Full development of Potomac Cliffs by the Trustees

was scheduled to be completed in 1994. 

There is no factual dispute as to whether the Trustees developed

Potomac Cliffs by 1994; not only had the Trustees failed to develop

Potomac Cliffs by the specified date, but the Trustees failed to ensure

the development of adequate sewer and water facilities as required by

the Development Agreement in Section 4.2.6(a), which states, in part:

"Construction of the additional capacity [to the existing sewer facility] shall be pursued in a timely and reasonable manner, subject to

BOLLECH v. CHARLES COUNTY 5
timely approval by the appropriate authorities, so as to meet the

schedule for development set forth in Section 3.2 of this Agreement."

The Trustees’ failure to meet their obligation under the Development Agreement released the County from the County’s obligations

under the Agreement. See Wilcom v. Wilcom, 502 A.2d 1076, 1081

(Md. 1986) (citing Restatement (Second) of Contracts § 237). A

material failure to perform by one party "prevents performance of [the

other party’s remaining duties] from becoming due, at least temporarily, and it discharges those duties if it has not been cured during the

time in which performance can occur." Restatement (Second) of Contracts § 237 cmt. a. The County was discharged from any enforceable

contractual obligation after the Trustees failed to perform within the

time period specified in the Development Agreement. 

B

The Trustees make the following arguments: (1) the district court

erred in finding that the Development Agreement imposes a six-year

termination date; (2) the district court erred in not finding the Trustees

entitled to summary judgment because the County allegedly impaired

the obligations of the Development Agreement by enacting intervening regulatory changes; (3) the district court erred because there are

material factual disputes and the district court erroneously considered

extrinsic evidence; (4) the district court improperly relied on affidavits which do not comply with Rule 56; and (5) res judicata bars the

County from arguing a defense of termination of contract based on

the Trustees’ breach of contract. None of the Trustees’ arguments

alter the conclusion that the County was released from its obligations

to the Trustees upon the Trustees’ failure to perform within the specified time. 

1

The Trustees argue that the district court erred in finding that the

Development Agreement imposes a six-year termination date. The

Trustees point out that the Development Agreement expressly

required construction to extend over a period of ten years. In addition,

the Trustees argue that because the Development Agreement had no

express termination date, the Development Agreement is valid for a

6 BOLLECH v. CHARLES COUNTY
reasonable amount of time. See Goldman, Skeen & Wadler, P.A. v.

Cooper, Beckman & Tuerk, L.L.P., 712 A.2d 1, 9 (Md. App. 1998)

(stating that in the in the absence of a specific termination date, a contact is valid for a reasonable period of time). 

The district court did not find that the Development Agreement terminated after six years. The district court recognized that the Trustees

were obligated to develop the residential units on their property

within the time specified in the Development Agreement under § 3.2.

Section 3.2(a) requires that the Potomac Cliffs area be developed by

August 12, 1994. In addition, § 4.2.6(a) requires the construction of

additional capacity at the existing sewer facility in time to meet the

schedule in Section 3.2. Section 4.2.6(a) also requires that the design

documents for the construction of additional capacity be submitted for

approval to the appropriate authorities no later than six months after

the effective date of the Agreement. The Trustees did not meet their

obligations within the specified time periods. The Trustees’ failure to

perform released the County from the County’s obligations after the

specified time periods elapsed. See Wilcom, 502 A.2d at 1081;

Restatement (Second) of Contracts § 237 cmt. a. 

The reference to the ten year construction period does not extend

the period in which the Trustees can perform. Section 3.2 states that

"[t]he construction schedule shall extend over a period of a minimum

of ten (10) years, commencing, for the purpose of this Agreement,

August 12, 1988." This language applies to the development of both

Potomac Cliffs and Newbury Station as a unit. Section 3.2 lays out

the phases, within the ten year period, in which each property must

be developed. Section 3.2(a) lays out the plan for Potomac Cliffs,

which involves five phases, the last ending in August 1994. Section

3.2(b) lays out the plan for Newbury Station, which involves nine

phases, the last ending in August 1998. 

The County’s obligation to the Trustees were discharged after

August 1994. The district court correctly held that there was no

enforceable contract obligation between the County and the Trustees

at the time the alleged violation occurred. 

2

The Trustees argue that the district erred in not finding the Trustees

entitled to summary judgment because the County allegedly impaired

BOLLECH v. CHARLES COUNTY 7
the obligations of the Development Agreement by enacting regulatory

changes which precluded the Trustees from obtaining approval for its

preliminary plan in 1999. The lack of a contractual obligation in 1999

precludes this argument. See City of Charleston, 57 F.3d at 391

("Only if there is a contract, which has been substantially impaired,

and there is no legitimate public purpose justifying the impairment,

is there a violation of the Contract Clause.") (emphasis added). 

3

The Trustees claim that there are material facts in dispute and that

the district court erroneously considered extrinsic evidence. The

Trustees demonstrate that the district court’s memorandum opinion

relies primarily on the County’s facts in presenting the history and

context out of which the Development Agreement arose. The Trustees

do not demonstrate that the district court relied on a factual finding

where the fact was actually the subject of genuine dispute. In addition, the Trustees did not identify any extrinsic evidence actually used

by the district court in interpreting the contract. The district court’s

decision relied on the unambiguous terms of the contract to resolve

the legal question whether the County was bound by an enforceable

contractual obligation. The district court’s grant of summary judgment was proper because no interpretive facts are in genuine issue.

World-Wide Rights Ltd., 955 F.2d at 245. 

4

The Trustees argue that the County’s motion for summary judgment lacked support because the County’s affidavits do not comply

with Fed. R. Civ. P. 56(e). Rule 56(e) states: 

Supporting and opposing affidavits shall be made on personal knowledge, shall set forth such facts as would be

admissible in evidence, and shall show affirmatively that the

affiant is competent to testify to the matters stated therein.

. . . When a motion for summary judgment is made and supported as provided in this rule, an adverse party may not rest

upon the mere allegations or denials of the adverse party’s

pleading, but the adverse party’s response, by affidavits or

as otherwise provided in this rule, must set forth specific

8 BOLLECH v. CHARLES COUNTY
facts showing that there is a genuine issue for trial. If the

adverse party does not so respond, summary judgment, if

appropriate, shall be entered against the adverse party. 

The affidavits cited by the district court were used to provide history and background; the affidavits were not used to interpret the

Development Agreement. The district court relied exclusively on the

terms of the Development Agreement in reaching its decision. We

need not decide whether the affidavits supplied by the County were

defective because the district court did not rely on facts contained in

the affidavits in reaching its legal conclusion. Rather, the court properly determined that the Development Agreement was unambiguous

on the dispositive issue. See World-Wide Rights Ltd., 955 F.2d at 245.

5

The Trustees claim that res judicata bars the County from arguing

a defense of termination of contract based on the Trustees’ breach of

contract. This argument was not raised before the district court and

is waived. Washington Metro. Area Transit Auth. v. Precision Small

Engines, 227 F.3d 224, 227-28 (4th Cir. 2000). 

III

The district court held that there was no breach of contract for the

same reason there was no Contracts Clause violation: at the time of

the alleged violation, there was no enforceable contractual obligation

against the County. The above analysis validates the district court’s

decision. 

IV

Summary judgment for the County was proper. Viewing the evidence in the light most favorable to the Trustees, there was no violation of the Contracts Clause and there was no breach of contract

because the County was no longer under an enforceable contractual

obligation after 1994. None of the arguments raised by the Trustees

on appeal alter the above analysis. 

BOLLECH v. CHARLES COUNTY 9
As summary judgment for the County was proper, the district court

properly denied the Trustees’ cross-motion for summary judgment. 

We affirm (1) the district court’s grant of the County’s motion for

summary judgment and (2) the district court’s denial of the Trustees

cross-motion for summary judgment. 

AFFIRMED

10 BOLLECH v. CHARLES COUNTY