## In the United States Court of Federal Claims

No. 13-590 C

(Filed June 2, 2014)

* * * * * * * * * * * * * * * * * * * * * CARMINE J. PUCCIARIELLO, *

* Plaintiff , *

*

v. *

* THE UNITED STATES, *

* Defendant . *

* * * * * * * * * * * * * * * * * * * * *

Michael Moulis , Fort Lauderdale, FL, for plaintiff.

Russell J. Upton , United States Department of Justice, with whom were Stuart F. Delery , Assistant Attorney General, Bryant G. Snee , Acting Director, and Reginald T. Blades, Jr. , Assistant Director, Washington, DC, for defendant. Bradley J. Preamble , Office of the Chief Counsel, Federal Aviation Administration, Washington, DC, of counsel.

_________________________

OPINION

_________________________

BUSH

, Senior Judge.

Now pending before the court is defendant’s motion to dismiss pursuant to Rules 12(b)(1) and 12(b)(6) of the Rules of the United States Court of Federal Claims (RCFC). That motion has been fully briefed and is ripe for decision. Oral argument was neither requested by the partie s nor deemed necessary by the court. For the following reasons, defendant’s motion to dismiss is granted. Contract; Fifth Amendment Taking; Preemption of Tucker Act Jurisdiction by 49 U.S.C. § 46110 (2006); Jurisdictional

Effect of Failure to Concede

Lawfulness of Government “Taking”; Failure to State a Claim for Money Damages;

No Jurisdiction to Award Equitable Relief under 28 U.S.C. § 1491(a)(2) (2012).2 BACKGROUND 1

In this lawsuit, Plaintiff Carmine J. Pucciariello 2 seeks damages, as well as injunctive and declaratory relief, based upon the Federa l Aviation Administration’s (FAA) decision to terminate plaintiff’s a ppointment as a designated airworthiness representative (DAR). Plaintiff alleges that the FAA, in terminating plaintiff’s appointment, breached a settlement agre ement pursuant to which the FAA had promised to appoint plaintiff as a DAR. In addition, plaintiff alleges that the FAA’s termination decision resulted in an uncompensated taking in violation of the

Fifth Amendment to the United States Constitution.

I. Designated Airworthiness Representatives

Congress has charged the FAA with the re sponsibility to prescribe air safety standards, including certification requireme nts for aircraft, pilots, airports, and airlines, in order to “promote safe flight of civil aircraft in air commerce.” 49 U.S.C. § 44701(a) (2006). To that end, Congress has authorized the FAA to “delegate to a qualified private person” the authority to issue certificates identifying aircraft as airworthy, a nd to conduct inspections, testing, and examinations necessary to issue such ce rtificates. 49 U.S.C. § 44702(d)(1) (2006). Pursuant to its statutory authority, the FAA Administrator has appointed a group of

1 / The facts recounted in this opinion are taken from plainti ff’s complaint and the parties’

submissions in connection with defendant’s moti on to dismiss, including the attachments to plaintiff’s complaint as well as the order dismi ssing Mr. Pucciariello’s previous lawsuit in the

United States District Court for the Southern Distri ct of Florida, which defendant attaches to its

motion to dismiss. See Compl. Attachs. A-B; Def.’s Mot. App. at A18-A19 (Order of Apr. 8, 2013, Pucciariello v. LaHood , No. 12-61675 (S.D. Fla)). In a ddition, the court has considered Mr. Pucciariello’s district court compla int filed August 27, 2012. As explained infra , the court may consider these documents w ithout converting defendant’s motion to dismiss for failure to state a claim pursuant to RCFC 12(b)(6) into a motion for summary judgment pursuant to RCFC 56. Except where otherwise noted, the facts re counted in this opini on are undisputed.

2 / Despite the apparent typographical error in the caption of plain tiff’s complaint, it appears from the record and the pleadings that the proper spelling of plai ntiff’s first name is

“Carmine” rather than “Camine.” See Compl. Attachs. A-B; Def. ’s Mot. App. at A18; Pl.’s Resp. at 1, 5. Therefore, the court adopts the former spelling, as that is the spelling used by the parties throughout the record and their pleadings.3 private individuals, called designated airw orthiness representatives (DARs), to perform these tasks. See 14 C.F.R. § 183.33 (2013). DAR appointments are for one to three years, and are renewable at the discretion of the Administrator. See FAA Order 8100.8D, ¶ 1414 (Oct. 28, 2011), available at http://www.faa.gov/ regulations_policies/orders_notices/inde x.cfm/go/document.information/document

ID/1019601. 3

Under 49 U.S.C. § 44702, the FAA Admi nistrator may rescind, or choose not to renew, a DAR appointment “at a ny time for any reason the Administrator considers appropriate.” 49 U.S.C. § 44702(d )(2). The FAA, in its implementing regulations, has delineated certain “approp riate” reasons justifying termination or nonrenewal of a DAR appointment:

(1) Upon the written request of the representative; (2) Upon the written request of the employer in any case in which the recommendation of the employer is required for the designation; (3) Upon the representative being separated from the employment of the employer who recommended him or her for certification; (4) Upon a finding by the Administrator that the representative has not properly performed his or her duties under the designation; (5) Upon the assistance of the representative being no longer needed by the Administrator; or (6) For any reason the Administrator considers appropriate.

14 C.F.R. § 183. 15(b) (2013); see also FAA Order 8100.8D, ¶ 1105(b) (stating that “[d]esignation is a privilege that conve ys responsibilities, but does not imply

3 / The FAA promulgated Order 8100.8D on Oct ober 28, 2011 to establish “procedures to be used by the Aircraft Certification Service (AIR) and Flight Standards Service (AFS) for managing the FAA’s representatives of the Admi nistrator (designee) program.” FAA Order 8100.8D, ¶ 100. FAA Order 8100.8D is directed to “[a]ll FAA employees who oversee private persons acting as representatives of the Administrator and those pe rsons acting as representatives of the Administrator for the pur pose of aircraft certification.” Id. ¶ 101.4 employment or other rights unrelated to FAA needs,” and incorporating the bases for termination of a DAR appointment as set forth in 14 C.F.R. § 183.15(b)), ¶ 1108(a) (stating that “[a] de signation is a privilege, not a right,” and “therefore[] the Administrator has the authority to te rminate a delegation for any reason”), ¶ 1414 (stating that “renewal of any designee appointment is at the option and sole discretion of the FAA”).

The FAA, however, has developed in ternal procedures to guide the

nonrenewal or termination of DAR appointments. See FAA Order 8100.8D, ¶¶ 1100-1110, 1414-1415. Of particular relevance to this dispute, FAA Order 8100.8D sets forth the procedures for ad ministrative appeals of decisions to terminate a DAR appointment, and provide s that a DAR, upon timely appeal, may request a meeting with the appeal panel a nd the FAA inspector or project engineer

who made the recommendation to te rminate the DAR appointment. See id. ¶ 1108(b)(2).

II. Factual Background

In December 1998, Mr. Pucciariello en tered into a settlement agreement with the FAA to resolve a discrimination complaint filed with the Equal Employment Opportunity Commission (EEOC). 4 Compl. ¶ 7 & Attach. A at 1-3. 5

4 / In his complaint, plaintiff alleges that he and the FAA entered into the settlement agreement “[o]n or about December 1999 .” Compl. ¶ 7 (emphasis added). The reference to “1999” appears to be a typographica l error, however, as the agreement itself indicates that it was signed by Mr. Pucciariello on December 23, 1998. See id. Attach. A at 3.

5 / Plaintiff’s complaint, as originally filed on August 19, 2013, referenced and purported to include two attachments (Attachment A and Attachment B). Compl. ¶¶ 7-8; see Def.’s Mot at 8 (stating that plaintiff’s complaint “includes two a ttachments”). However, the court, in an order dated March 31, 2014, noted that the docket in this matter did not reflect th at plaintiff actually filed any attachments with his complaint. Th e court therefore ordered plaintiff to file Attachment A and Attachment B, as referenced in the complaint, and to certify whether those attachments were identical to pages A6 through A17 of the appendix to defendant’s motion to dismiss, which the government described as Attach ment A and Attachment B to the complaint. On April 3, 2014, in compliance with the court’ s March 31, 2014 order, pl aintiff filed a notice indicating that “there are no apparent differences” between the documents submitted by

defendant and the attachments refere nced in plaintiff’s complaint. See Notice of Apr. 3, 2014, at (continued . . .)5 Under the agreement, Mr. Pucciariello ag reed to retire from employment with the FAA on or before February 28, 1999, in ex change for the FAA appointing him as a

DAR. Id. ¶ 7 & Attach. A at 1-2. In addition, the agreement stated that it “in no manner denies [Mr. Pucciariello] the right of renewal of [his ] DAR [appointment] provided he otherwise satisfi es all regulatory requirements in place or hereafter added to said regulatory requirements, and is otherwise qualified to be the holder

of a DAR.” Id. Attach. A at 2-3. In acco rdance with the agreement, Mr. Pucciariello retired on or before February 28, 1999, and the FAA appointed him as

a DAR. Id. ¶ 8 & Attach. A at 4.

Several years later, on January 25, 2012, the FAA terminated Mr. Pucciariello’s DAR appointment after findi ng that he had not properly performed

his duties as a DAR. See Compl. ¶ 15 & Attach. B at 1 (January 25, 2012 letter stating that Mr. Pucciariello’s DAR appoi ntment was “terminated pursuant to 14 C.F.R. § 183.15(b)(4)” based upon the F AA’s determination that Mr. Pucciariello had failed to adequate ly perform his duties as a DAR) . The events leading to the FAA’s termination of plaintiff’s DAR appointment began on January 8, 2012,

when Mr. Pucciariello contacted the South Florida Flight Standards District Office (FSDO) by e-mail with questions relating to the airworthiness certification of a helicopter scheduled to be exported to Brazil. Id. Attach. B at 1. As a result of additional e-mail correspondence with Mr. Pucciariello over the next two days,

officials at the South Florida FSDO became concerned about Mr. Pucciariello’s competence to handle his DAR functions. Id. On January 10, 2012, Mr.

Pucciariello was instructed to cease all ex port certification activity until a meeting could be held to assess his capabilities and to determine if remedial training was

necessary. Id. ¶ 14 & Attach. B. at 1.

The meeting between FAA personnel an d Mr. Pucciariello took place on January 18, 2012. Compl. Attach. B at 1. According to FAA records, Mr. Pucciariello’s responses to various queri es of FAA personnel during the meeting revealed that plaintiff lacked the requi site knowledge to properly perform his DAR

functions. Id. at 1-2. Specifically, FAA personnel found the documentation provided by plaintiff to be out-of-date or otherwise not in compliance with FAA regulatory guidance. Id. at 1. In addition, alt hough Mr. Pucciariello represented

1. Plaintiff’s notice also include d copies of Attachment A and Attachment B – which the court refers to as “Compl. Attach. A” and “Compl. Attach. B.”6 during the meeting that he had inspect ed the helicopter when it was fully assembled, as required by FAA regula tions, further investigation by FAA personnel revealed that the helicopter was, in fact, disassembled when Mr. Pucciariello performed his inspection. Id. at 2.

Based on these events, on January 25, 2012, Sergio Lopez, manager of the South Florida FSDO, advised Mr. Pucciarie llo by letter that his DAR appointment had been terminated. Compl. ¶ 15 & Attach . B at 1-2. Mr. Lopez’s letter set forth

the bases for termination and also advise d Mr. Pucciariello of his administrative appeal rights. Id. Attach. B at 2 (advising Mr. Pucc iariello that he “may submit a request for appeal in writing to this of fice no later than 14 calendar-days from the date of receipt of this letter”).

III. Procedural History

Mr. Pucciariello submitted a timely administrative appeal on February 6, 2012. Compl. ¶ 16. Thereafter, the FAA Southern Region Office convened an appeal panel to review plaintiff’s termination. Id. ¶ 17 & Attach. B at 3. Upon reviewing the reasons for termination prov ided by the South Florida FSDO, as well as Mr. Pucciariello’s appeal submission, the appeal panel upheld the decision to terminate plaintiff’s DAR appointment. Id. By letter dated March 29, 2012, Thomas A. Winston, division manage r for the FAA Southern Region Office, notified Mr. Pucciariello of the appeal panel’s “final decision” to uphold the termination of his DAR appointment. Id. Attach. B at 3.

Nearly five months later, on August 27, 2012, plaintiff filed a complaint in

the United States District Court for the Southern District of Florida, alleging violations of due process arisin g out of his DAR termination. Pucciariello v.

LaHood , No. 12-61675 (S.D. Fla); see Def.’s Mot. App. at A18. The government

filed a motion to dismiss for lack of s ubject matter jurisdiction, arguing that, pursuant to 49 U.S.C. § 46110 (2006), the Un ited States courts of appeals have exclusive jurisdiction to review the FAA’ s termination of Mr. Pucciariello’s DAR appointment. The district court agreed, hol ding that Mr. Pucciariello’s due process

claims in that forum amounted to a “chall eng[e] [of] the FAA’ s final decision to terminate his DAR status,” over which the United States courts of appeals possessed exclusive jurisdiction. De f.’s Mot. App. at A18-A19 (citing Doe v. Fed.

Aviation Admin. , 432 F.3d 1259, 1263 (11th Cir. 2005)). Accordingly, by order7 dated April 8, 2013, the district court di smissed Mr. Pucciariello’s complaint for lack of subject matter jurisdic tion without leave to amend. Id. In addition, the

district court dismissed Mr. Pucciariello ’s complaint “by default” and “on the

merits” because Mr. Pucciariello never re sponded to the government’s motion to

dismiss. Id. at A18.

On August 19, 2013, Mr. Pucciariello filed a complaint in this court, seeking damages and injunctive and declaratory relief based upon the FAA’s decision to terminate his DAR appointment. 6 Plaintiff characterizes his current challenge to

the FAA’s termination decision as “a n action for 5th Amendment taking of property without just compen sation, and without comply ing with procedural due process and written procedural rules a nd regulations designed to protect the Plaintiff.” Compl. ¶ 1. Additionally, plai ntiff asserts that his current claims “are based on [the] Government’s breach of an explicit written settlement agreement where Plaintiff agreed to retire and th e FAA agreed to a ssign him as an FAA Designated Airworthiness Representative (DAR).” Id.

Plaintiff’s complaint contains two counts. In the first count, plaintiff alleges

that the FAA breached the terms of the December 1998 settlement agreement by terminating Mr. Pucciariello’s DAR appoi ntment “without due process or cause,” and in an “arbitrary” and “capricious” ma nner. Compl. ¶¶ 9-10. In the second count, which plaintiff styles as a claim for “unjust taking without due process,” plaintiff alleges that he possesses a prope rty interest in his DAR appointment by virtue of the settlement agreement, and th at the FAA deprived him of that property interest without adhering to the agency’s internal procedures for appeals from

termination decisions. Id. ¶¶ 11-18. Specifically, plaintiff asserts that the agency failed to honor Mr. Pucciariello’s request fo r a meeting with the FAA appeal panel, as provided for by FAA Order 8100.8D, ¶ 1108(b)(2). See id. ¶¶ 16-17.

As compensation for the FAA’s a lleged wrongdoing, plaintiff requests damages for lost past and future earnings , as well as damages for “loss of earning capacity” and “loss of reputation in th e aviation industry.” Compl. ¶ 19; see also

6 / Plaintiff attempted to file an amende d complaint with the court on August 27, 2013. That document, however, was returned unfiled becau se it contained various defects in violation

of this court’s rules. See Order of Aug. 29, 2013. Plaintiff ne ver attempted to file another amended complaint, and therefore his original comp laint remains the active pleading in this case.8 id. ¶¶ 2, 20-21. In addition to monetary da mages, plaintiff requests “declaratory relief concluding that the United States Government removed him as a DAR in violation of its written agreement and in violation of Plaintiff’s procedural due process rights,” id. ¶ 2, as well as “[i]njunctive relief enjoining the FAA from denying Plaintiff his right to a meeting to appeal [the] termination of his [DAR] designation,” id. ¶ 22.

On November 18, 2013, the government filed a motion to dismiss plaintiff’s complaint pursuant to RCFC 12(b)(1) an d RCFC 12(b)(6). Defendant’s motion presents four jurisdictional arguments. First, the government contends that plaintiff’s claims amount to a challenge to his DAR termination, and that the United States courts of appeals have exclusive jurisdiction to review such challenges pursuant to 49 U.S.C. § 46110. See Def.’s Mot. at 9-10; Def.’s Reply at 8. Second, defendant argues that this court lacks jurisdiction to consider Mr.

Pucciariello’s breach of contract claim becau se plaintiff fails to identify a provision of the settlement agreement that mandates the payment of money in the event of the government’s breach. See Def.’s Mot. at 13-14 (citing, e.g. , Holmes v. United

States , 657 F.3d 1303, 1314-15 (Fe d. Cir. 2011)). Third, defendant argues that plaintiff has failed to establish jurisd iction over his breach of contract claim because the complaint does not identify the substantive provisions of the settlement agreement upon which Mr. Pucciariello relies, as required by RCFC 9(k). See Def.’s Mot. at 14 (citing Kissi v. United States , 102 Fed. Cl. 31, 35 (2011), and Gonzalez-McCaulley Inv. Grp., Inc. v. United States , 93 Fed. Cl. 710, 715 (2010)). Finally, defendant argues that this court l acks jurisdiction to consider plaintiff’s claims for equitable relief because such cl aims are not tied to a money judgment.

See Def.’s Mot. at 14-16 (citing, e.g. , James v. Caldera , 159 F.3d 573, 580 (Fed. Cir. 1998)). 7

7 / The government raises two additional juri sdictional arguments. First, in its opening brief, the government argues that plaintiff’s breach of contract claim and takings claim are, in essence, disguised procedural due process clai ms over which this court lacks jurisdiction. See Def.’s Mot. at 10-11 (citations omitted). The government, in its reply brief, withdrew its contention that plaintiff’s claims are essentially due process claims. See Def.’s Reply at 1 n.1 (stating that plaintiff “clarifies in his response brief that . . . . [h]e is not alleging any form of due process claim,” and therefore the court “need co nsider only whether plaintiff’s two claims [ i.e.

, his breach of contract claim a nd takings claim] survive [RCFC] 12(b)(1) and [RCFC 12(b)](6)”). Despite defendant’s apparent concession that pl aintiff does not assert due process claims, the court notes that certain portions of plaintiff’s complaint may fa irly be read as asserting due (continued . . .)9 The government also seeks dismissal of plaintiff’s complaint pursuant to RCFC 12(b)(6). With respect to plaintif f’s breach of contract claim, defendant argues that plaintiff has failed to allege sufficient facts from which the court may reasonably infer that the FAA breached the settlement agreement by terminating Mr. Pucciariello’s DAR appointment. See Def.’s Mot. at 16-17; Def.’s Reply at 4- 6. With regard to plaintiff’s takings cl aim, the government contends, first, that plaintiff has failed to allege facts plausi bly suggesting that Mr. Pucciariello has a cognizable property interest in his DAR appointment that could be the subject of a valid takings claim under the Fifth Amendment. See Def.’s Mot. at 18-19; Def.’s Reply at 6. In addition, defendant argues that, even if the court were to conclude that plaintiff sufficiently pleaded a cognizable property interest in his DAR appointment, plaintiff’s takings claim s hould nevertheless be dismissed because it is premised upon allegedly unlawful governmental action. 8 See Def.’s Mot. at 19- 20; Def.’s Reply at 6.

process claims. See Compl. ¶¶ 1-2, 4-5, 9, 12, 17-18. In add ition, in his response brief, plaintiff cites several cases addressing the procedural due process protections afforded to federal employees. See Pl.’s Resp. at 13 (citing Fed. Deposit Ins. Corp. v. Henderson , 940 F.2d 465, 474-75 (9th Cir. 1991), Polos v. United States , 621 F.2d 385, 389-90 (Ct. Cl. 1980), and Terry v.

United States , 499 F.2d 695, 702 (Ct. Cl. 1974)). To the exte nt that plaintiff’s complaint may be construed as asserting due process claims, thos e claims must be dismissed because, as the government correctly notes, due process claims are beyond this court’s Tucker Act jurisdiction.

Smith v. United States , 709 F.3d 1114, 1116 (Fed. Cir. 2013) (citing LeBlanc v. United States , 50 F.3d 1025, 1028 (Fed. Cir. 1995)); see Def.’s Mot. at 11.

Second, in its reply brief, defendant contends that plaintiff has faile d to establish this court’s jurisdiction over his breach of contract claim and takings claim because Mr. Pucciariello, by his own admission, never presented those claims at the administrative level. See Def.’s Reply at 7-8 (citing Air Line Pilots Ass’n v. Fed. Aviation Admin. , 454 F.2d 1052, 1055 (D.C. Cir. 1971), and Pl.’s Resp. at 8). This argument, presented for the fi rst time in defendant’s reply brief, is not properly before the court and therefore will not be considered. See, e.g.

, Survival Sys., USA, Inc. v. United States , 102 Fed. Cl. 255, 262 (2011) (“A party’ s reply brief ‘repl[ies] to arguments made in the response brief’; it does not provide ‘the moving party with a new opportunity to present yet a nother issue for the court’ s consideration.’” (quoting Novosteel SA v.

United States , 284 F.3d 1261, 1274 (Fed. Cir. 2002))).

8 / As additional bases for dismissal pu rsuant to RCFC 12(b)(6), the government advances several arguments based upon the doctrin es of res judicata, or claim preclusion, and collateral estoppel, or issue preclusion. See Def.’s Mot. at 11-12; Def.’s Reply at 7. Because, as (continued . . .)10 DISCUSSION

I. Standards of Review

A. RCFC 12(b)(1)

The relevant issue in a motion to dismiss under RCFC 12(b)(1) “‘is not whether a plaintiff will ultimately prevail but whether the claimant is entitled to offer evidence to support the claims.’” Patton v. United States , 64 Fed. Cl. 768, 773 (2005) (quoting Scheuer v. Rhodes , 416 U.S. 232, 236 (1974), abrogated on other grounds by Harlow v. Fitzgerald , 457 U.S. 800 (1982)). In considering the issue of subject matter jurisdiction, this court must presume all undisputed factual allegations to be true a nd construe all reasonable in ferences in favor of the plaintiff. Scheuer , 416 U.S. at 236; Reynolds v. Army & Air Force Exch. Serv.

, 846 F.2d 746, 747 (Fed. Cir. 1988) (citations omitted).

Where the court’s jurisdiction is challe nged, the plaintiff bears the burden of establishing subject matter jurisdiction by a preponderance of the evidence and by presenting competent proof. Alder Terrace, Inc. v. United States

, 161 F.3d 1372, 1377 (Fed. Cir. 1998) (citing McNutt v. Gen. Motors A cceptance Corp. of Ind. , 298 U.S. 178, 189 (1936)); Reynolds , 846 F.2d at 748 (citations omitted). If the plaintiff fails to meet his burden, and juri sdiction is therefore found to be lacking, the court must dismiss the action. RCFC 12(h)(3).

In considering a motion to dismiss for lack of subject matter jurisdiction which challenges the truth of jurisdictional facts alleged in the complaint, the court may make findings of fact pert inent to its jurisdiction. Ferreiro v. United States

, 350 F.3d 1318, 1324 (Fed. Cir. 2003) (citing Moyer v. United States , 190 F.3d 1314, 1318 (Fed. Cir. 1999), and Reynolds , 846 F.2d at 747); Rocovich v. United

States , 933 F.2d 991, 993 (Fed. Cir. 1991) (“In determining whether a motion to dismiss should be granted, the Claims Co urt may find it necessary to inquire into jurisdictional facts that are disputed.”). In making findings of fact pertinent to its jurisdiction, the court is not restricted to the face of the pleadings, but may review

explained infra , the court finds that plaintiff’s compla int must be dismissed pursuant to RCFC 12(b)(6) on other grounds, the court does not r each defendant’s claim preclusion and issue preclusion arguments.11 evidence extrinsic to the pleadings, including declarations or affidavits. Rocovich

, 933 F.2d at 994 (citing Land v. Dollar , 330 U.S. 731, 735 n.4 (1947), and Reynolds , 846 F.2d at 747).

B. RCFC 12(b)(6)

It is well-settled that a complaint should be dismissed for failure to state a claim under RCFC 12(b)(6) “when the facts asserted by the claimant do not entitle him to a legal remedy.” Lindsay v. United States , 295 F.3d 1252, 1257 (Fed. Cir. 2002). To survive a motion to dismiss under RCFC 12(b)(6), “a complaint must allege facts ‘plausibly suggesting (not merely consistent with)’ a showing of

entitlement to relief.” Kam-Almaz v. United States , 682 F.3d 1364, 1367 (Fed. Cir. 2012) (quoting Bell Atl. Corp. v. Twombly

, 550 U.S. 544, 557 (2007)). In order to meet the requirement of facial plausibility , the plaintiff must plead “factual content

that allows the court to draw the reasona ble inference that the defendant is liable for the misconduct alleged.” Ashcroft v. Iqbal , 556 U.S. 662, 678 (2009) (citing Twombly , 550 U.S. at 556). Determining whethe r a complaint states a plausible claim for relief is a “context-specific task that requires the reviewing court to draw on its judicial experience and common sense.” Id. at 679 (citation omitted).

When considering a motion to dismi ss under RCFC 12(b)(6 ), the court is bound to accept the well-pleaded factual allegations of the complaint as true. Iqbal , 556 U.S. at 678. However, the court is not bound to accept as true mere

“‘labels and conclusions’” or “‘a formulaic recitation of the elements of a cause of

action.’” Id. (quoting Twombly , 550 U.S. at 555).

Although the court primarily examines th e allegations in the complaint when considering a motion to dismiss pursuant to RCFC 12(b)(6), it may also consider “‘matters incorporated by reference or in tegral to the claim, items subject to judicial notice, [and] matte rs of public record.’” A&D Auto Sales, Inc. v. United

States , No. 2013-5019, 2014 WL 1345499, at *1 (Fe d. Cir. Apr. 7, 2014) (quoting 5B Charles Alan Wright & Arthur R. Miller, Federal Practice and Procedure § 1357 (3d ed. 2004)); see also DeKalb Cnty. v. United States , 108 Fed. Cl. 681, 692 (2013), appeal dismissed , No. 13-5074 (Fed. Cir. Sept. 26, 2013); Toon v. United

States , 96 Fed. Cl. 288, 298-99 (2010); Stocum v. United States , 85 Fed. Cl. 217, 221 (2008); Kawa v. United States , 77 Fed. Cl. 294, 306 (2007).12 Plaintiff attaches to his complaint several documents, which include the settlement agreement at issue as well as correspondence between Mr. Pucciariello and FAA personnel regarding the FAA’s d ecision to terminate Mr. Pucciariello’s DAR appointment. See Compl. Attachs. A-B. Those documents, which are incorporated by reference into the complain t and are integral to plaintiff’s claims, may properly be considered by the court without converting defendant’s motion to dismiss into one for summary judgment. E.g.

, Toon , 96 Fed. Cl. at 298-99. Likewise, the court may consider pub lic court documents filed in Mr. Pucciariello’s district court action, incl uding Mr. Pucciariello’s complaint and the district court’s order dismissing that lawsuit. E.g.

, DeKalb , 108 Fed. Cl. at 692.

II. Analysis

A. The Court Lacks Subject Matter Jurisdiction over Plaintiff’s

Claims

Pursuant to the Tucker Act, the Unite d States Court of Federal Claims has jurisdiction “to render judgment upon any claim against the United States founded either upon the Constitution, or any Act of Congress or any regulation of an executive department, or upon any express or implied contract with the United States, or for liquidated or unliquidated da mages in cases not sounding in tort.” 28 U.S.C. § 1491(a)(1) (2012). The Tucker Act, howev er, “does not create any substantive right enforceable against th e United States for money damages” but “merely confers jurisdiction . . . when ever the substantive right exists.” United

States v. Testan , 424 U.S. 392, 398 (1976) (citation omitted). A plaintiff coming before this court, therefore, must iden tify a separate provision of law conferring a substantive right for money damages against the United States. Id. ; see also Fisher

v. United States , 402 F.3d 1167, 1172 (Fed. Cir. 2005) (citing United States v.

Mitchell , 463 U.S. 206, 216 (1983), and Testan , 424 U.S. at 398); Todd v. United

States , 386 F.3d 1091, 1094 (Fed. Cir. 2004) (citing Testan , 424 U.S. at 398). In other words, the source underlying the caus e of action must be money-mandating, in that it “‘can fairly be interprete d as mandating compensation for damages sustained as a result of the breach of the duties [it] impose[s].” Fisher v. United

States , 402 F.3d 1167, 1173 (Fed . Cir. 2005) (quoting Mitchell , 463 U.S. at 217)).

To establish Tucker Act jurisdicti on, a plaintiff need only make a “nonfrivolous allegation that it is within th e class of plaintiffs entitled to recover13 under the money-mandating source” identified in the complaint. Jan’s Helicopter Serv., Inc. v. Fed. Aviation Admin. , 525 F.3d 1299, 1309 (Fed. Cir. 2008). “There is no further jurisdictional requirement that the court determine whether the additional allegations of the complaint st ate a nonfrivolous claim on the merits.”

Id.

Here, the alleged money-mandating sources of law identified by Mr. Pucciariello are: (1) the Takings Clau se of the Fifth Amendment; and (2) his settlement agreement with the FAA. 9 See Compl. ¶¶ 1-3, 6, 9- 11; Pl.’s Resp. at 9- 12. As set forth below, the court conclude s that although both sources can fairly be interpreted as mandating the payment of money, and therefore would normally be sufficient to establish Tucker Act jurisd iction, neither source provides a basis for Tucker Act jurisdiction in this case becau se a separate statutory provision – 49 U.S.C. § 46110 – bars this court from ex ercising jurisdiction over plaintiff’s

claims.

1. Plaintiff’s Fifth Amendment Takings Claim

The first money-mandating source of law alleged by plaintiff is the Takings

Clause of the Fifth Amendment. “It is undisputed that the Takings Clause of the Fifth Amendment is a money-mandating source for purposes of Tucker Act jurisdiction.” Jan’s Helicopter , 525 F.3d at 1309 (citing Moden v. United States

, 404 F.3d 1335, 1341 (Fed. Cir. 2005)). Because plainti ff, having alleged a taking of his property by the government, is within the class of plaintiffs entitled to recovery if a Fifth Amendment takings claim is established, the court would normally have Tucker Act jurisdiction over plaintiff’s takings claim. See id. ; Compl. ¶¶ 1, 11-18.

2. Plaintiff’s Breach of Settlement Agreement Claim

The second alleged money- mandating source of law identified in plaintiff’s complaint is his settlement agreement, wh ich plaintiff alleges was breached by the

9 / Also, as previously noted, plaintiff a ppears to rely upon the Fifth Amendment Due

Process Clause. See Compl. ¶¶ 1-2, 4-5, 9, 12, 17-18; Pl.’s Re sp. at 13. However, as explained

supra , the Fifth Amendment Due Process Clause is not a sufficient basis for Tucker Act jurisdiction because it does not mandate payment by the government. See supra note 7.14 FAA when the agency termin ated his DAR appointment. See Compl. ¶¶ 1-2, 6, 9- 10. As set forth below, the court conc ludes that the settlement agreement can fairly be interpreted as mandating the payment of mone y, and thus would normally be sufficient to confer Tucker Act jurisd iction over plaintiff’s breach of contract

claim.

The term “contract,” for purposes of the Tucker Act’s grant of jurisdiction over claims based “upon any express or imp lied contract with the United States,” 28 U.S.C. § 1491(a)(1), include s settlement agreements, see, e.g. , Lutz v. U.S.

Postal Serv. , 485 F.3d 1377, 1381 (Fed. Cir. 2007); Greco v. Dep’t of the Army

, 852 F.2d 558, 560 (Fed. Cir. 1988) (“It is ax iomatic that a settlement agreement is a contract.”). When the substantive source of law identified as the basis for Tucker Act jurisdiction is an express or implie d contract with the United States, the money-mandating requirement for Tucker Act jurisdiction ordinarily is satisfied. See Bank of Guam v. United States , 578 F.3d 1318, 1325 (Fed. Cir. 2009) (“A well pleaded allegation of a breach of either an express or implied-in-fact contract is sufficient to overcome challenges to jurisdiction.” (citing Trauma Serv. Grp. v.

United States , 104 F.3d 1321, 1325 (Fed. Cir. 1997))). That is because monetary damages “are always the default remedy for breach of contract.” United States v. Winstar Corp. , 518 U.S. 839, 885 (1996) (citations omitted); see Holmes , 657 F.3d at 1314 (noting that “‘[i]n the area of government contracts, as with private agreements, there is a presumption in th e civil context that a damages remedy will be available upon the breach of an agreement’” (quoting Sanders v. United States

, 252 F.3d 1329, 1334 (Fed. Cir. 2001))). As a general matter, therefore, a suit seeking money damages for the alleged brea ch of a settlement agreement with the government falls within this court’s jurisdiction under the Tucker Act.

Despite this general pronouncement, how ever, it is well-settled that “[t]he government’s consent to suit under the Tucker Act does not extend to every

contract.” Rick’s Mushroom Serv., Inc. v. United States , 521 F.3d 1338, 1343 (Fed. Cir. 2008) (citations omitted). This court woul d not, for example, have Tucker Act jurisdiction over a claim allegi ng the breach of a settlement agreement that expressly provides that damages ar e not an available re medy for its breach.

See Holmes , 657 F.3d at 1314 (noting that “[a] contract expressly disavowing money damages would not give rise to Tucker Act jurisdiction”). Nor would Tucker Act jurisdiction extend to a claim for breach of an agreement providing for “purely nonmonetary relief.” Id. at 1315.15 In Holmes , the United States Court of Ap peals for the Federal Circuit resolved a split of authority in this c ourt over whether Tucker Act jurisdiction extends to a claim alleging breach of an agreement to settle an action under Title VII of the Civil Rights Act of 1964, 42 U.S.C. § 2000e et seq. (2012). The majority view at the time wa s that the Court of Federal Claims lacked jurisdiction

over such claims because Title VII estab lished an integrated and comprehensive scheme providing for exclusive review of Title VII actions in district courts. See

Holmes , 657 F.3d at 1311 (citing cases). Rejec ting that view, the Federal Circuit

in Holmes held that a suit against the governme nt alleging breach of a settlement agreement is fundamentally a suit to enfo rce a contract and th erefore within the reach of this court’s Tucker Act jurisdiction. Id. at 1312.

At the same time, however, the Federal Circuit in Holmes cautioned that the alleged breach of a settlement agreement doe s not necessarily give rise to Tucker Act jurisdiction. 657 F.3d at 1315. Due to the particular nature of Title VII settlement agreements, which the Federa l Circuit noted “could involve purely nonmonetary relief – for example, a transf er from one agency office to another,” the court held that any plaintiff seeki ng damages under such an agreement must establish that the agreement could “fairl y be interpreted as contemplating money damages in the event of breach.” Id.

Applying that standard to the Title V II settlement agreements at issue in

Holmes , the Federal Circuit concl uded that the plaintiff in Holmes had demonstrated that the agreements in th at case could fairly be interpreted as contemplating money damages in the even t of breach, and the Federal Circuit

therefore reversed this court’s dismissal of the complaint for lack of jurisdiction.

See id. at 1315-16. The plaintiff in Holmes alleged that the Department of the Navy (Navy) had breached two agreements settling Title VII employment actions. Under the terms of the settlement agre ements, the Navy agreed to expunge a suspension letter from Mr. Holmes’ personne l file and to document that he had resigned for personal reasons. Id. at 1315. The Navy also agreed to provide Mr.

Holmes with a “neutral reference” in res ponse to inquiries from future employers.

Id. at 1316. Based on those terms, which the Federal Circuit found to “inherently relate to monetary compen sation through relationship to . . . future employment,” the court held that the settlement agreements in Holmes could fairly be interpreted as mandating the payment of money in the event of the government’s breach. Id.16 The court also noted that “there is no la nguage in the agreements indicating that the parties did not intend for money dama ges to be available in the event of

breach.” Id.

In Cunningham v. United States , No. 2013-5055, 2014 WL 1377792 (Fed. Cir. Apr. 9, 2014), the Fede ral Circuit, in a preced ential opinion, expanded the jurisdictional holding of Holmes to a “substantially similar” claim for breach of an agreement settling the plaintiff’s discri mination claim arising under the Civil Service Reform Act of 1978 (CSRA), P ub. L. No. 95-454, 92 Stat. 1111 (codified

as amended in scattered sections of Title 5 of the United States Code). See 2014 WL 1377792, at *5. The settleme nt agreement at issue in Cunningham , similar to the agreement in Holmes , limited what information the Office of Personnel Management (OPM) could disclose regarding the circumstances of Mr. Cunningham’s departure from employment with OPM. Id. The agreement also required OPM to remove Mr. Cunningham’ s termination letter from his personnel

file. Id. Based on those similarities to the settlement agreements in Holmes , the Federal Circuit held that the agreement in Cunningham “‘could fairly be interpreted as contemplati ng money damages in the even t of a breach’” because the agreement inherently relate d to monetary compensation through relationship to Mr. Cunningham’s future employment. Id. (quoting Holmes , 657 F.3d at 1315).

Citing Holmes , the government in the present case contends that plaintiff has failed to establish Tucker Act jurisdic tion over his breach of contract claim because he has not identified any provisi on in the settlement agreement that mandates the payment of money in th e event of the government’s breach. See Def.’s Mot. at 12-14 (citing, e.g. , Holmes , 657 F.3d at 1314-15); De f.’s Reply at 1- 3. Plaintiff, also relying upon Holmes , responds by noting th at money damages are presumptively available as a remedy for br each of a government contract and, in any event, the settlement agreement at issu e can fairly be inte rpreted as mandating the payment of money because it pr ovided for Mr. Pucciariello’s DAR appointment and therefore contempl ated monetary compensation. See Pl.’s Resp. at 11 (“At least some term of employme nt was contemplated when the parties drafted the agreement; accordingly some future compensation was contemplated by the parties at the time of drafting.”).

The court agrees with plaintiff th at Mr. Pucciariello’s EEOC settlement agreement, like the settlement agreements in Holmes and Cunningham , can fairly17 be interpreted as contempl ating money damages under the standards established by

the Federal Circuit in those cases. Under plaintiff’s agreement, the FAA agreed to appoint Mr. Pucciariello as a DAR. Compl. Attach. A at 1-2. Although, as noted, DAR appointments are terminable at the discretion of the FAA Administrator, see 49 U.S.C. § 44702(d)(2); 14 C.F.R. § 183.15(b); FAA Order 8100.8D, ¶¶ 1105(b), 1108(a), 1414, plaintiff is correct that at least “some future compensation was contemplated by the parties at the ti me of drafting” of the agreement, see Pl.’s Resp. at 11. Although DARs are not federa l employees, they are paid for their services by applicants for airworthiness certificates, who may elect to use DARs to inspect their aircraft at their own cost or choose instead to allow FAA personnel to inspect their aircraft in accord ance with existing FAA practice. See, e.g.

, Charlima, Inc. v. United States , 873 F.2d 1078, 1081 (8th Cir. 1989) (citing Designated Airworthiness Representatives Final Rule, 48 Fed. Reg. 16176, 16179 (Apr. 14, 1983)). Accordingly, a brea ch of Mr. Pucciariello’s settlement agreement with the FAA could give rise to a claim for compensation because the agreement, like those in Holmes and Cunningham , contemplates at least some monetary compensation throug h relationship to Mr. Pucciar iello’s future service as

a DAR. See Cunningham , 2014 WL 1377792, at *5; Holmes , 657 F.3d at 1316. Additionally, like the agreements in Holmes and Cunningham , Mr. Pucciariello’s settlement agreement does not contain language indicati ng that monetary damages

are not available. See Cunningham , 2014 WL 1377792, at *5; Holmes , 657 F.3d at

1316.

The government’s attempts to distinguish this case from Holmes and Cunningham are unavailing. Defendant argue s that plaintiff’s settlement agreement is unlike the agreement in Holmes because it “did not provide a guarantee of a perpetual DAR appointment ,” nor did it specifically require the payment of any wages to Mr. Pucci ariello. Def.’s Mot. at 13; see also Def.’s Reply at 2-3 (asserting that “the se ttlement agreement did not guarantee any amount of wages”). Yet neither did the settlement agreements in Holmes or Cunningham . The Federal Circuit found the agreements in Holmes and Cunningham to inherently relate to future compensation not because the agreements guaranteed any future term of employment or mandated the payment of wages, but because the agreements placed restrictions on the personnel information

available to Mr. Holmes’ and Mr. Cunni ngham’s prospective employers, thereby positively affecting Mr. Holmes’ and Mr. Cunningham’s future employment

prospects. See Cunningham , 2014 WL 1377792, at *5; Holmes , 657 F.3d at 1316.18 The purpose of such an agreement was not to guarantee future employment or compensation, but “‘to prevent [the plaintiff] from being denied future employment based on his record as the [agency] maintained it prior to the agreement[].’” Cunningham , 2014 WL 1377792, at *5 (quoting Holmes , 657 F.3d at 1316).

Defendant also contends that plain tiff’s EEOC settlement agreement cannot fairly be interpreted as contemplati ng money damages because the standard remedy for breach of a settlement agreemen t resolving an employment dispute is

enforcement of the settlement terms or re scission of the settlement agreement and reinstatement of the underlying action. See Def.’s Mot. at 13-14; Def.’s Reply at 1-2. As support for this argument, the government cites the EE OC regulation at 29 C.F.R. § 1614.504 (2013), which provides that a complainant alleging breach of an EEOC settlement agreement “may request that the terms of [the] settlement agreement be specifically implemented or, alternatively, that the complaint be reinstated for further processing.” 29 C.F.R. § 1614.504(a); see Def.’s Mot. at 13. However, as the Federal Ci rcuit specifically found in Holmes , 29 C.F.R. § 1614.504(a) does not deprive the Court of Federal Claims of subject matter jurisdiction over suits seeking damages for an alleged breach of an EEOC settlement agreement. See Holmes , 657 F.3d at 1316 (“Without diminishing the force of this regulation, we see no reas on for § 1614.504(a) to preclude a suit for money damages in the event of breach that is separate from, or in addition to, the relief the regulation provides.”). In subse quent cases, this court has adhered to the

Federal Circuit’s view. See, e.g.

, Mata v. United States , 107 Fed. Cl. 618, 623 (2012) (holding that a negotiated settleme nt agreement, whic h contained language nearly identical to 29 C.F.R. § 1614.504( a), could fairly be interpreted as mandating the payment of money under the standard announced in Holmes because the agreement “does not contain any langua ge limiting the remedies available to Mr. Mata”).

Defendant also relies, unpe rsuasively, on dicta in a single footnote in the

Holmes decision in which the Federal Circu it noted that “money damages appear not to be the routine remedy for the breac h of a settlement agreement involving an employment dispute.” 657 F.3d at 1315 n.8 (citing Harris v. Brownlee , 477 F.3d 1043, 1047 (8th Cir. 2007)); see Def.’s Mot. at 13-14. The government asserts that this footnote “effectively rebuts” the pr esumption that a damages remedy will be available upon the breach of a g overnment settlement agreement. See Def.’s Reply19 at 2. Defendant’s strained interpretation of this single footnote runs headlong into the holding of Holmes . Contrary to the government’s reading of Holmes , the Federal Circuit’s acknowledge ment that monetary dama ges are not the standard remedy for breach of a settlement agreemen t resolving an employment dispute is not dispositive of the issue at bar. A ccordingly, the court concludes that Mr. Pucciariello’s settlement agreement with the FAA can fairly be interpreted as requiring the payment of money.

3. Preemption of Tucker Act Jurisdiction by 49 U.S.C. § 46110

Unfortunately for plaintiff, althoug h his breach of contract and takings

claims would otherwise be within this co urt’s Tucker Act jurisdiction, a separate statutory provision bars jurisdiction. Spec ifically, defendant asserts that pursuant to 49 U.S.C. § 46110, “[t]he United States Court of Appeals for the District of Columbia Circuit, or for the circuit in which Mr. Pucciariello resides, possess[es] exclusive jurisdiction to review Mr. Pucciariello’s DAR termination and any

related constitutional claims.” Def.’s Mot. at 9; see also id. at 10; Def.’s Reply at 8. The government contends that the FAA’s decision to terminate Mr. Pucciariello’s DAR appointment was an order subject to 49 U.S.C. § 46110, and that plaintiff’s sole avenue of relief from that order was to file a petition for review in a federal court of appeals. See Def.’s Mot. at 9-10; Def.’s Reply at 8. For the following reasons, the cour t agrees with defendant.

49 U.S.C. § 46110 provides, in pertinent part, that

a person disclosing a substantial interest in an order issued by . . . the Administrator of the Federal Aviation Administration with respect to aviation duties and powers designated to be carried out by the Administrator[] in whole or in part under [Title 49, Subtitle VII, Parts A or B of the United States Code] may apply for review of the order by filing a petition for re view in the United States Court of Appeals for the District of Columbia Circuit or in the court of appeals of the United States for the circuit in which the person resides or has its principal place of

business.20 49 U.S.C. § 46110(a). Under 49 U.S.C. § 46110, any petition for review of an administrative order subject to that section “must be filed not later than 60 days

after the order is issued.” Id. When such a petition is filed with a federal court of appeals, the court receiving the petition “has exclusive jurisdiction to affirm, amend, modify, or set aside any part of the order.” Id. § 46110(c).

The court’s analysis of the jurisdic tional impact of 49 U.S.C. § 46110 begins

with a determination of whether the FAA’ s termination of Mr. Pucciariello’s DAR appointment falls within the ambit of 49 U.S.C. § 46110. If the answer to that initial query is “yes,” then the court must determine whether plaintiff may nevertheless bring his claims before this court notwithstanding the applicability of 49 U.S.C. § 46110.

a. The FAA’s Terminatio n of Plaintiff’s DAR Appointment Is an Order Subject to the Exclusive Review Mechanism Set Forth in 49 U.S.C. § 46110

By its terms, 49 U.S.C. § 46110 applies if the FAA’s termination of Mr. Pucciariello’s DAR appointment constitutes an “order issued by . . . the [FAA]

Administrator . . . with re spect to aviation duties a nd powers designated to be carried out by the Administrator[] in whole or in part under [Title 49, Subtitle VII,

Parts A or B of the United States Code ].” 49 U.S.C. § 46110(a). Because the authority to terminate Mr. Pucciariello ’s DAR appointment is conferred by 49 U.S.C. § 44702(d)(2), 10 which is located within Title 49, Subtitle VII, Part A of the United States Code, the FAA’s termination decision is clearly within the scope of agency actions covered by 49 U.S.C. § 46110. Consequently, if the FAA’s

termination decision is an “order” with in the meaning of 49 U.S.C. § 46110, then the federal courts of appeals would have ex clusive jurisdiction to review that order.

Although the court has not identified any reported decisions of the United States Supreme Court or the Federal Circuit applying 49 U.S.C. § 46110, 11

10 / As previously noted, 49 U.S.C. § 44702(d )(2) provides that th e FAA Administrator may rescind, or choose not to renew, a DAR appointment “at any time for any reason the

Administrator consider s appropriate.”

(continued . . .)21 numerous decisions of other federal courts of appeals have inte rpreted and applied 49 U.S.C. § 46110, 12 as well as its predecessor, 49 U.S.C. § 1486(a). 13 In the

11 / The court’s research has revealed only one , non-precedential, Federal Circuit decision applying 49 U.S.C. § 46110. In BFI Waste Systems of North America, Inc. v. Garvey , 243 F.3d 565 (Fed. Cir. 2000) (table), the Federal Circui t, citing 49 U.S.C. § 46110, concluded that it lacked jurisdiction to consider a petition for re view of an unspecified FAA order, and granted BFI’s motion to transfer its peti tion for review to the United St ates Court of Appeals for the

District of Columbia Circuit.

This court’s precedent applying 49 U.S.C. § 46110 is nearly as sparse. In Crane Helicopter Services, Inc. v. United States , 45 Fed. Cl. 410 (1999), the court noted that “the various United States Courts of Appeals have exclusive jurisdiction to review FAA Orders” pursuant to 49 U.S.C. § 46110, but the court conc luded that 49 U.S.C. § 46110 did not apply in that case because neither party ch allenged a decision of the FAA. See 45 Fed. Cl. at 436 n.27. Rather, the plaintiff in Crane Helicopter asserted that the United States Forest Service had breached a forest fire suppressi on contract, and the government a sserted counterclaims alleging that the plaintiff had falsely represented its aircra ft as a civilian aircraft in order to obtain a necessary FAA certification. Id. In that procedural context, the court concluded that “FAA Orders are not the focus of review,” a nd therefore 49 U.S.C. § 46110 did not apply. Id. Perhaps the most directly applicable decision of this court is Mike’s Contracting, LLC v. United States

, 92 Fed. Cl. 302 (2010), which involved a helicopter owner’s constitutional and tort claims challenging the FAA’s decision to suspend an airwor thiness certificate for one of the plaintiff’s helicopters based upon the agency’s determina tion that the helicopte r posed an “ongoing and unacceptable risk to aviation safety.” 92 Fed. Cl. at 305. In a footnote, th e court noted that, to the extent that the helicopter owner’s claims c ould be construed as challenging the FAA’s safety determination, this court lacked jurisdiction to consider any such claims because 49 U.S.C. § 46110 vested exclusive jurisdiction in the United States courts of a ppeals over any direct challenge to the FAA’s safety determination. See id. at 309 n.12.

12 / See, e.g.

, Lacson v. U.S. Dep’t of Homeland Sec. , 726 F.3d 170 (D.C. Cir. 2013); Blitz v. Napolitano , 700 F.3d 733 (4th Cir. 2012); Jones v. United States , 625 F.3d 827 (5th Cir. 2010); St. John’s United Church of Christ v. City of Chicago , 502 F.3d 616 (7th Cir. 2007); Americopters, LLC v. Fed. Aviation Admin. , 441 F.3d 726 (9th Cir. 2006); Merritt v. Shuttle,

Inc. , 245 F.3d 182 (2d Cir. 2001); Aviators for Safe & Fairer Re gulation, Inc. v. Fed. Aviation

Admin. , 221 F.3d 222 (1st Cir. 2000); City of Pierre v. Fed. Aviation Admin. , 150 F.3d 837 (8th Cir. 1998); Aerosource, Inc. v. Slater , 142 F.3d 572 (3d Cir. 1998).

13 / 49 U.S.C. § 1486(a) originally provided that

[a]ny order, affirmative or nega tive, issued by the . . . [FAA] Administrator under this chapter . . . shall be subject to review by (continued . . .)22 absence of applicable binding authority, the decisions of other courts of appeals are helpful aids to this court’s analysis.

The term “order,” for purposes of 49 U.S.C. § 46110, has been given “‘expansive construction’” by the Unite d States courts of appeals. Ligon v.

LaHood , 614 F.3d 150, 154 (5th Cir. 2010) (quoting Atorie Air, Inc. v. Fed.

Aviation Admin. , 942 F.2d 954, 960 (5th Cir. 1991)); accord Gilmore v. Gonzales

, 435 F.3d 1125, 1132 (9th Cir. 2006) (“Courts have given a broad construction to the term ‘order’ in Section 1486(a) [4611 0’s predecessor].”) (alteration in original) (citation and internal quot ation marks omitted); Green v. Brantley , 981 F.2d 514, 519 (11th Cir. 1993) (stating that “other circ uits have . . . noted that ‘[t]he term order in [49 U.S.C. § 1486, the predecessor to 49 U.S.C. § 46110,] has been given expansive construction’” (quoting Atorie Air , 942 F.2d at 960)). However, to be reviewable pursuant to 49 U.S.C. § 46110, an agency order must be final, and the agency record must be adequate to enable judicial review. See, e.g.

, Ligon , 614 F.3d at 154 (citing Atorie Air , 942 F.2d at 960). To be sufficiently final, an order “need only be an agency decision which im poses an obligation, denies a right, or fixes some legal relationship.” Id. (citation and internal quot ation marks omitted).

Defendant asserts, and plaintiff does not contest, that the FAA’s March 29, 2012 “final decision” to uphold the termination of Mr. Pucciariello’s DAR appointment constitutes an appealable or der within the meaning of 49 U.S.C. §

46110. See Def.’s Mot. at 4-5; Pl.’s Resp. at 8 (characterizing Mr. Pucciariello’s

the courts of appeals of the Un ited States or the United States Court of Appeals for the District of Columbia upon petition, filed within sixty days after the entr y of such order, by any person disclosing a substantial inte rest in such order.

Sutton v. U.S. Dep’t of Transp. , 38 F.3d 621, 624 (2d Cir. 1994) (quoting 49 U.S.C. § 1486(a) (1994)); see also Suburban O’Hare Comm’n v. Dole , 787 F.2d 186, 192 (7th Cir. 1986). Congress revised and recodified that section in July 1994. See Act of July 5, 1994, Pub. L. No. 103-272, sec. 1(e), § 46110, 108 Stat. 745, 1230. The intended purpose of the Act of July 5, 1994, as reflected in the House report pertaining to th at statute, was to “restate in comprehensive form, without substantive change , certain general and permanent laws related to transportation and . . . to make other technical improveme nts in the Code.” H.R. Rep. No. 180, 103d Cong., 2nd Sess. 1 (1993) (emphasis added), reprinted in 1994 U.S.C.C.A.N. 818, 818; see also id. (“As in other codification bills enacting titles of th e United States Code into positive law, this bill makes no substantive change in the law.”), reprinted in 1994 U.S.C.C.A.N. at 822.23 previous district court lawsuit as “an a ppeal from the administrative level of the

Federal Aviation Administration that was decided on March 29, 2012”). The court agrees. The March 29, 2012 letter announ ced that the FAA appeal panel had “determined [that] the facts . . . suppor t[ed] the managing office’s decision to terminate [Mr. Pucciariello’s] authority to act as a representative of the Administrator.” Compl. Attach . B at 3. That letter clea rly denied a right and fixed a legal relationship between Mr. Pucciar iello and the FAA by terminating his ability to issue airworthiness certificates and to conduct inspections, testing, and examinations necessary to issue such cert ificates. Therefore, the FAA’s March 29, 2012 “final decision” possesses the requisite finality to be an “order” within the meaning of 49 U.S.C. § 46110.

Furthermore, although the entire extent of the administrative record is unknown, it is evident from the complaint a nd the parties’ briefs that the record contains not only the settlement agreement itself, which sets forth the basis for Mr. Pucciariello’s DAR appointment, but also correspondence from the FAA to Mr. Pucciariello explaining the process by whic h the agency decided to terminate Mr. Pucciariello’s DAR appointment as well as the agency’s asserted bases for

termination. See Compl. Attachs. A-B; Def.’s Mo t. at 1-4. In his complaint, plaintiff challenges both the merits of th e FAA’s termination decision as well as the procedures used by the agency in arriving at that decision. See Compl. ¶¶ 9-10 (alleging that the FAA’s termination deci sion was “without due process or cause” and was “arbitrary, capricious and otherwise in violation of the law”). The record herein, which sets forth the reasons supp orting the FAA’s termination decision and describes the procedures afforded to Mr . Pucciariello, is sufficient to allow a reviewing court to make an informed decision on plaintiff’s claims. See Green

, 981 F.2d at 519 (holding that an administrative record consisting of documents describing the FAA’s investigation of a lleged misconduct by plaintiff, a former designated pilot examiner, as well as related corresponde nce between plaintiff and FAA personnel, “would allow a reviewing c ourt to make an informed decision of the procedure afforded and the reasons supporting” the FAA’s revocation of plaintiff’s certificate of authority); see also Gilmore , 435 F.3d at 1133 (noting that “[a]n adequate record [under 49 U.S.C. § 46110] . . . may consist of ‘little more’ than a letter” (quoting San Diego Air Sports Ctr., Inc. v. Fed. Aviation Admin. , 887 F.2d 966, 969 (9th Cir. 1989))).24 The court therefore concludes that the FAA’s March 29, 2012 “final decision” to uphold the termination of Mr . Pucciariello’s DAR appointment was an order subject to 49 U.S.C. § 46110. Accord ingly, pursuant to the plain terms of that statute, the United States courts of appeals have jurisd iction over any review of the FAA’s termination decision, and a ny petition for review of that decision had

to have been filed within si xty days of March 29, 2012. See 49 U.S.C. § 46110(a), (c).

b. 49 U.S.C. § 46110 Provides a Specific and Comprehensive Scheme of Judicial Review that Preempts Tucker Act Jurisdiction

Mr. Pucciariello never filed a petition fo r review of the FAA’s order with a United States court of appeals. Instead, he chose to file suit in the United States

District Court for the Southern District of Florida, alleging that the FAA’s termination of his DAR appointment violat ed his due process rights under the Fifth

Amendment. Pucciariello v. LaHood , No. 12-61675 (S.D. Fla filed Aug. 27, 2012). Then, after his claims in that foru m were dismissed for lack of jurisdiction pursuant to 49 U.S.C. § 46110 as well as on the merits by default, see Def.’s Mot. App. at A18-A19, Mr. Pucciariello filed su it in this court, alleging that the FAA’s termination of his DAR appointment breached his December 1998 settlement agreement and effected an uncompensat ed taking in violation of the Fifth

Amendment.

The question that remains is whether Mr. Pucciariello may bring his claims in this court pursuant to the Tucker Act, thereby ci rcumventing the exclusive jurisdiction of the United States courts of appeals under 49 U.S.C. § 46110. For the following reasons, the court concludes that he may not.

It is fundamental that all federal courts, except the Supreme Court, are creatures of statute established by Congress, and therefore possess only the jurisdiction granted to them by Congress. In re United States , 877 F.2d 1568, 1571 (Fed. Cir. 1989) (citing U.S. Const. art. I, § 1). Congress, acting within its constitutional powers, may freely choose th e court in which judicial review of

administrative orde rs may occur. See City of Tacoma v. Taxpayers of Tacoma , 357 U.S. 320, 336 (1958) (“It can hardly be doubt ed that Congress, acting within its25 constitutional powers, may prescribe the procedures and conditions under which, and the courts in which, judicial review of administrative orders may be had.”).

As a court established by Congress under Article I of the United States Constitution, the Court of Federal Claims “enjoys only so much judicial power as Congress expressly permits.” Cent. Ark. Maint., Inc. v. United States , 68 F.3d 1338, 1341 (Fed. Cir. 1995) (citations omitted). Although Congress, via the Tucker Act, has granted broad authority to this court to adjudicate “any claim against the United States founded either upon the Constitution, or any Act of Congress or any regulation of an execu tive department, or upon any express or implied contract with the United States, or for liquidated or unliquidated damages in cases not sounding in tort,” 28 U.S.C . § 1491(a)(1), Congre ss may withdraw any grant of Tucker Act jurisdiction, see Tex. Peanut Farmers v. United States , 409 F.3d 1370, 1373 (Fed. Cir. 2005) (citing, e.g. , Ruckelshaus v. Monsanto Co. , 467 U.S. 986, 1016-17 (1984)).

The Federal Circuit has consistently found preemption of Tucker Act jurisdiction where Congress has enacted a precisely drawn, comprehensive, and

detailed scheme of review in another forum. See, e.g.

, Texas Peanut Farmers , 409 F.3d at 1373 (finding preemption of Tucker Act jurisdiction over claims for breach of a crop insurance contract, where Congre ss granted the district courts exclusive jurisdiction over claims against the Federal Crop Insurance Corporation); Wilson v.

United States , 405 F.3d 1002, 1009 (Fed. Cir. 2005) (holding that Congress, by enacting the Medicare Act, withdrew Tu cker Act jurisdiction over claims for Medicare benefits); Folden v. United States , 379 F.3d 1344, 1357 (Fed. Cir. 2004) (affirming dismissal of implied-in-fact c ontract claims and constitutional claims by applicants for cellular licenses because Congress, in the Communications Act, reserved judicial review of Fede ral Communications Commission licensing decisions exclusively in the United States Court of Appeals for the District of Columbia Circuit); Vereda, Ltda. v. United States , 271 F.3d 1367, 1375 (Fed. Cir. 2001) (holding that Tucker Act jurisdiction over plaintiff’s takings claim was preempted by the “specific and comprehe nsive scheme for administrative and judicial review” enacted by Congress in the Controlled Substance Act) (citation and internal quotation marks omitted); Massie v. United States , 166 F.3d 1184, 1188 (Fed. Cir. 1999) (“[A] contract will not fall within the purview of the Tucker Act if Congress has placed juri sdiction over it elsewhere.”).26 The court concludes that 49 U.S.C. § 46110 provides such a specific and comprehensive scheme with respect to judi cial review of FAA orders. In reaching that conclusion, the court has no reason to look beyond the plain text of the 49 U.S.C. § 46110, in which Congress clearly e xpressed its intention that the federal courts of appeals would have “exclusive jurisdiction to affirm , amend, modify, or set aside any part of” an FAA order. 49 U.S.C. § 46110(c). Applying this clear language, several fe deral courts of app eals have held that the judicial review scheme set forth in 49 U.S.C. § 46110 (and its predecessor, 49 U.S.C. § 1486(a)) is

exclusive. See, e.g.

, Blitz , 700 F.3d at 740 (concluding that, by enacting 49 U.S.C. § 46110, “Congress clearly expr essed its intention that any legal challenge to a § 46110 order . . . be brought in the firs t instance in a court of appeals”); Americopters , 441 F.3d at 732 (noting that the federal courts of appeals’ jurisdiction to review FAA orders pursu ant to 49 U.S.C. § 46110 is “exclusive”); Clark v. Busey , 959 F.2d 808, 811 (9th Cir. 1992) (concluding that pursuant to 49 U.S.C. § 1486, “the court of appeals’ jurisd iction is exclusive with regard to review of final FAA actions”) (citations omitted); Suburban O’Hare Commission , 787 F.2d at 192 (same) (citations omitted). The court finds the reasoning of these decisions to be persuasive, and conc ludes that the specific and exclusive jurisdictional authority granted to the fe deral courts of appeals in 49 U.S.C. § 46110 controls and takes precedence over the general and non-exclusive jurisdictional authority afforded by the Tucker Act.

c. Plaintiff’s Claims Are Ines capably Intertwined with a Challenge to the FAA’s Termination of Plaintiff’s DAR Appointment

The court’s analysis does not end here, however, because plaintiff’s complaint does not seek to “amend, modify , or set aside any part of” the FAA’s termination order, see 49 U.S.C. § 46110(c), but rather seeks monetary damages based upon the FAA’s alleged breach of a settlement agreement and alleged uncompensated taking in violation of th e Fifth Amendment – claims over which this court would normally posse ss Tucker Act jurisdiction. See Americopters , 441 F.3d at 736 (noting that “[i]n principle, a district court may decide a claim for damages because § 46110 does not grant the court of appeals jurisdiction over this form of relief” (citing Mace v. Skinner , 34 F.3d 854, 858 (9th Cir. 1994)). The question remains, therefore, whether 49 U.S.C. § 46110 precludes this court’s jurisdiction over plaintiff’s Tucker Act cl aims for monetary damages. For the27 following reasons, the court concludes that Mr. Pucciariello’s monetary claims are, in essence, challenges to the FAA’s te rmination of his DAR appointment, and therefore are subject to the exclusive jurisdictional scheme set forth in 49 U.S.C. §

46110.

Several United States courts of appeal s, including the Federal Circuit, have recognized that statutes such as 49 U.S.C . § 46110 that vest judicial review of administrative orders exclusively in the c ourts of appeals also extend to monetary claims that are “inescapably intertwi ned” with review of such orders. See, e.g.

, Pines Residential Treatment Ctr. v. United States , 444 F.3d 1379, 1381 (Fed. Cir. 2006) (affirming dismissal of a breach of settlement agreement claim brought by former operator of a mental health tr eatment facility becau se the claim was “inescapably intertwined” with a claim for Medicare benefits, over which Congress had preempted Tucker Act jurisdiction (citing Heckler v. Ringer , 466 U.S. 602, 614 (1984))); Doe , 432 F.3d at 1263 (holding that airc raft mechanics’ due process claims challenging the FAA’s planned re examination of plaintiffs’ airmen competency “necessarily require a review of the procedures and actions taken by the FAA with regard to th e mechanics’ certificates” a nd therefore fell within the exclusive scheme of judicial review set forth in 49 U.S.C. § 44709 (citing Green

, 981 F.2d at 520)); Merritt v. Shuttle, Inc. , 187 F.3d 263, 271 (2d Cir. 1999) (holding that a commercial airline pilo t’s due process claims based upon the FAA’s suspension of plaintiff’s flight pr ivileges were “inescap ably intertwined” with review of the FAA’s suspension orde r and were therefore subject to 49 U.S.C. § 46110); Jones , 625 F.3d at 829-30 (holding that plaintiff’s retaliation claims challenging the FAA’s denial of plaintiff’s application for an appointment as a designated engineering representative we re “inescapably intertwined with a challenge to the procedure and merits of that final order” and therefore were impermissible collateral a ttacks barred by 49 U.S.C. § 46110) (citations omitted). As recognized by the Ninth Circuit, the pur pose of this “inescapably intertwined” doctrine is “to prevent litigants from using a damages claim as a collateral attack on a pending FAA order and to allow courts to identify and dismiss damages

claims that are actu ally thinly disguised attemp t[s] at an end-run around the jurisdictional limitation impos ed by [49 U.S.C. § 46110].” Americopters , 441 F.3d at 736 (citations and internal quotation marks omitted).

The court’s review of the complaint and the parties’ briefs confirms that Mr.

Pucciariello’s claims are ines capably intertwined with a challenge to the procedure28 and merits surrounding the FAA’s order terminating his DAR appointment. As noted, the complaint alleges a number of procedural improprieties with the FAA’s

decision to terminate Mr. Pucci ariello’s DAR appointment. See Compl. ¶¶ 1-2, 4- 5, 9, 12, 17-18. It also challenges the merits of the FAA’s termination by alleging that the agency’s decision was wit hout “cause” and was “arbitrary” and “capricious.” Id. ¶¶ 9-10; see also id. ¶ 18 (asserting that “[ t]he FAA’s alleged

reasons for the termination of Plaintiff’s DAR are without merit” ). Therefore, a consideration of plaintiff’s claims woul d necessarily require a review of the procedures used and actions taken by th e FAA with regard to the agency’s termination of Mr. Pucciariello’s DAR appointment, and would also require a review and balancing of th e same evidence used by th e agency to support its decision in that regard. The exclusive sche me of judicial review of FAA orders set forth in 49 U.S.C. § 46110 bars such a colla teral attack, and plaintiff’s attempt to repackage what are essentially challenges to an FAA orde r into breach of contract and Fifth Amendment takings claims must fail. See, e.g.

, Pines Residential

Treatment Center , 444 F.3d at 1381.

Accordingly, the court concludes th at it lacks jurisdiction to consider plaintiff’s breach of contr act claim and his Fifth Amendment takings claim because those claims are subject to the exclusive jurisdictiona l scheme set forth in 49 U.S.C. § 46110. Both claims must theref ore be dismissed for lack of subject matter jurisdiction. 14

14 / As previously noted, defendant also argues, as an additional basis for dismissal of plaintiff’s breach of contract claim pursuant to RCFC 12(b)(1), that the complaint fails to identify the relevant substantive provisions of the settlement agreement, as required by RCFC 9(k). See Def.’s Mot. at 14. The court rejects that argument. RCFC 9(k) provides that a party, in pleading a claim founded on a contract, must “identify the substantive provisions of the contract . . . on which the party relies.” The ru le also provides, however , that “[i]n lieu of a description, the party may annex to the complaint a copy of the contract or treaty, indicating the relevant provisions.” RCFC 9(k); see Huntington Promotional & Supply, LLC v. United States

, 114 Fed. Cl. 760, 766 (2014). Here, plaintiff atta ched a copy of the relevant settlement agreement to his complaint. See Compl. Attach. A at 1-3. Alt hough the complaint itself did not identify the specific provisions of the settlement agreement that plainti ff alleges were breached, plaintiff provided such informa tion in his response brief. See Pl.’s Resp. at 11-12 (asserting that the FAA breached the provision of the settlement agreement stating that the agreement “in no manner denies [Mr. Pucciariello] the right of renewal of [his] DAR [a ppointment] provided he otherwise satisfies all regulatory requirements in place or hereafter added to said regulatory (continued . . .)29 4. No Jurisdiction to Award Plaintiff’s Requested Injunctive and Declaratory Relief

Defendant next argues that the cour t lacks jurisdiction to award the injunctive and declaratory relie f requested by plaintiff. See Def.’s Mot. at 14-16. The court agrees.

The Court of Federal Claims may award equitable relief in only very limited, statutorily defined, circumstances. See United Keetoowah Band of Cherokee Indians of Okla. v. United States , 480 F.3d 1318, 1326 n.5 (Fed. Cir. 2007) (citation omitted); Kanemoto v. Reno , 41 F.3d 641, 644-45 (Fed. Cir. 1994) (“The remedies available in [the Court of Fede ral Claims] extend only to those affording monetary relief; the court cannot entertai n claims for injunctive relief or specific performance, except in narrowl y defined, statutorily provided circumstances . . . .”). One such circumstance, and the only one that is potentially relevant to this case, is when the requested equitable re lief is “tied and subordinate to a money judgment.” James , 159 F.3d at 580 (citation and internal quotation marks omitted); see also 28 U.S.C. § 1491(a)(2) (allowing equitable relief that is “an

incident of and collateral to” a money judgment in or der to “provide an entire remedy and to complete the relief a fforded by the judgment”). In that circumstance, the court may “issue orders directing restoration to office or position, placement in appropriate duty or retirement status, and correction of applicable records.” 28 U.S.C. § 1491(a)(2).

The government contends that equita ble relief is “the primary goal of [plaintiff’s] lawsuit,” and therefore by defi nition cannot be tied and subordinate to any award of monetary damages. See Def.’s Mot. at 16 (citing, e.g. , Thorndike v.

United States , 72 Fed. Cl. 580, 583 (2006), and Rice v. United States , 31 Fed. Cl. 156, 164 (1994)). Although the court fi nds this assertion to be unfounded inasmuch as plaintiff’s complaint clearly and rep eatedly requests monetary damages in the form of lost past and fu ture earnings, “loss of earning capacity,” and “loss of reputation in the aviation industry,” see Compl. ¶¶ 2, 19-21, the court

nevertheless concludes that it lacks au thority under 28 U.S.C. § 1491(a)(2) to provide the equitable relief requested by plaintiff.

requirements, and is otherwise qualified to be the holder of a DAR” (citing Compl. Attach. A at 2-3)). Plaintiff has therefore substantially complied with the require ments of RCFC 9(k).30 First, as noted supra , plaintiff’s requested injunction would “enjoin[] the FAA from denying Plaintiff his right to a mee ting to appeal [the] termination of his [DAR] designation.” Compl. ¶ 22. This injunction would not be merely incidental to an award of lost earnings, “loss of ear ning capacity,” and “loss of reputation in the aviation industry,” see id. ¶ 19, but rather would be separate from, and in addition to, such requested damages. 15 Moreover, even if plaintiff’s requested injunction were merely incidental to th e damages requested in his complaint, it does not fall within the narrow group of or ders specified in 28 U.S.C. § 1491(a)(2) because it does not “direct[] restorati on to office or position, placement in appropriate duty or retirement status, [or] correction of applicable records.”

Furthermore, and most fundamentally, because the court concludes that it lacks jurisdiction over plaintiff’s monetary claims, see supra , and that plaintiff has failed in any event to state a claim for damages, see infra , the court has no basis upon which to exercise jurisdiction over plaintiff’s claims for injunctive or declaratory relief. See, e.g.

, Legal Aid Soc’y of New York v. United States , 92 Fed. Cl. 285, 301 (2010) (holding that jurisdiction was lacking with respect to plaintiff’s equitable claims under 28 U.S.C. § 1491(a)(2 ) because plaintiff failed to state a claim for money damages); Flowers v. United States , 80 Fed. Cl. 201, 217, 223 (2008) (holding that “plaintiff does not have a claim for presently due money damages,” and therefore the co urt lacked jurisdiction to consider plaintiff’s claims for equitable relief), aff’d , 321 Fed. Appx. 928 (Fed. Ci r. 2008). Thus, the court cannot consider plaintiff’s claims fo r injunctive or declaratory relief.

15 / In contrast, plaintiff’s requested de claration – that the FAA terminated Mr. Pucciariello’s DAR appointment “in vi olation of its written agreement,” see Compl. ¶ 2 – would merely serve as the substantive basis for an award of monetary damages. See Pauley Petroleum

Inc. v. United States , 591 F.2d 1308, 1315 (Ct. Cl. 1979) (expla ining that “[e]quitable doctrines can be employed incidentally to th is court’s monetary jurisdiction either as equitable procedures to arrive at a money judgment or as substantiv e principles on which to base the award of a money judgment”) (citations omitted). Ultimately, however, the court lacks jurisdiction to award plaintiff’s requested declarator y relief because, as explained infra , plaintiff has failed to state a claim for money damages.31 B. Plaintiff Has Failed to State a Claim upon which Relief Can Be

Granted

The court has dismissed all of plaintif f’s claims for lack of subject matter jurisdiction. Nevertheless, in the interests of judicial economy, the court considers, in the alternative, defendant’s RCFC 12(b)(6) arguments. Specifically, the government argues that even if the cour t were to assume jurisdiction over plaintiff’s claims, his claims must nevert heless be dismissed fo r failure to state a claim upon which relief can be granted. The court agrees, for the following

reasons.

1. Plaintiff Has Failed to State a Claim for Breach of the Settlement Agreement

The government argues that plaintiff has failed to allege facts that, if true, would allow the court to reasonably infe r that the FAA breached plaintiff’s settlement agreement. See Def.’s Mot. at 16-17; Def.’s Reply at 4-6. In that regard, defendant notes that under the settlement agreement which plaintiff attached to his complaint, Mr. Pucciariello agreed to retire from employment with the FAA on or before February 28, 1999 a nd the FAA agreed to appoint him as a

DAR. See Def.’s Mot. at 16 (citing Compl. ¶ 7 & Attach. A at 1-2). Defendant asserts that, accepting as true the allegati ons of the complaint, both parties fulfilled their respective obligations under the se ttlement agreement when Mr. Pucciariello retired on or before February 28, 1999 a nd the FAA appointed him as a DAR. See

id. at 16-17 (citing Compl. ¶ 8 & Attach. A at 4). In addition, defendant asserts that the settlement agreement “did not provide a guarantee of a perpetual DAR appointment,” and therefore plaintiff has failed to make a plausible demonstration

that the FAA’s termination of Mr. Pucci ariello’s DAR appointment resulted in a breach of the agreement. See id. at 17.

In response, plaintiff asserts that the FAA, in terminating his DAR appointment, breached the provision of the settlement agreement stating that the agreement “in no manner denies [Mr. Puccia riello] the right of renewal of [his] DAR [appointment] provided he otherwise satisfies all regulatory requirements in place or hereafter added to said regulator y requirements, and is otherwise qualified

to be the holder of a DAR.” Compl. Attach. A at 2-3; see Pl.’s Resp. at 12. Plaintiff interprets this provision of the agreement as imposing a “for-cause”32 limitation on the FAA’s ability to terminate or refuse to renew Mr. Pucciariello’s DAR appointment. See Pl.’s Resp. at 12 (stating that the agreement “clearly states

that the FAA had to renew Plaintiff’s DAR upon Plaintiff’s request ‘provided he otherwise satisfies all . . . regulatory requirements in place’ and was otherwise qualified to hold a DAR appointment” (quoti ng Compl. Attach. A at 2-3)). In plaintiff’s view, the FAA’s termination of Mr. Pucciariello’s DAR appointment breached the agreement because Mr. Pucciari ello “had at all times satisfied the applicable regulatory requirements and wa s otherwise qualified to hold the DAR.”

See id. In addition, plaintiff asserts th at the FAA “breached the settlement agreement by failing to give Plaintiff an ad equate hearing at which he could refute

the basis for his DAR non-renewal.” Id.

In order to state a claim for breach of the settlement agreement, Mr. Pucciariello must allege fa cts plausibly suggesting: (1) a valid contract between the parties; (2) an obligation or duty arisi ng out of the contract; (3) a breach of that duty; and (4) damages caused by the breach. San Carlos Irrigation & Drainage

Dist. v. United States , 877 F.2d 957, 959 (Fed. Cir. 1989). Interpretation of the settlement agreement, as with any contr act, begins with the agreement’s plain language. See, e.g.

, Coast Fed. Bank v. United States , 323 F.3d 1035, 1038 (Fed. Cir. 2003) (en banc); United Int’l Investigative Servs. v. United States , 109 F.3d 734, 737 (Fed. Cir. 1997). In addition, th e agreement should be interpreted as a whole and in a manner which gives “‘reas onable meaning to all its parts.’” Northrop Grumman Corp. v. Goldin , 136 F.3d 1479, 1483 (Fed. Cir. 1998) (quoting Gould, Inc. v. United States , 935 F.2d 1271, 1274 (Fed. Cir. 1991)).

For three reasons, the court concludes th at plaintiff has failed to state a claim for breach of the settlement agreement. Fi rst, as a preliminary matter, the court does not agree with plaintiff’s interpre tation of the settlement agreement as guaranteeing the continuation of Mr. Pucc iariello’s DAR appointment absent a showing of “cause” for termina tion or nonrenewal. As noted supra , 49 U.S.C. § 44702 and the regulatory scheme promulga ted thereunder vest plenary discretion

in the FAA Administrator to termin ate, or choose not to renew, DAR appointments. See 49 U.S.C. § 44702(d)(2) (providi ng that the FAA Administrator “may rescind a delegation under this subs ection” – including a DAR appointment – “at any time for any reason the Administrator considers appropriate”); 14 C.F.R. § 183.15(b) (FAA’s implementing regulations setting forth the bases for termination

or nonrenewal of DAR a ppointments, including, inter alia , “[f]or any reason the33 Administrator considers appropriate”); FAA Order 8100.8D, ¶ 1105 (b) (stating that “[d]esignation is a privilege that conve ys responsibilities, but does not imply employment or other rights unrelated to FAA needs,” and incorporating the bases for termination of a DAR appointment as set forth in 14 C.F.R. § 183.15(b)), ¶ 1108(a) (stating that “[a] de signation is a privilege, not a right,” and “therefore[] the Administrator has the authority to te rminate a delegation for any reason”), ¶ 1414 (stating that “renewal of any designee appointment is at the option and sole discretion of the FAA”).

The provision of the settlement agreem ent upon which plaintiff relies cannot be read as divesting the FAA Administra tor of his statutorily-conferred discretion

to decide whether to terminate or not re new Mr. Pucciariello’s DAR appointment. That provision stated that the settlement agreement “in no manner denies [Mr. Pucciariello] the right of renewal of [his] DAR [appoint ment] provided he otherwise satisfies all regulatory requireme nts in place or hereafter added to said regulatory requirements, and is otherwise qualified to be the holder of a DAR.” Compl. Attach. A at 2-3. Far from impos ing a “for-cause” limitation on the FAA’s

discretion to terminate or not renew Mr . Pucciariello’s DAR appointment, this provision simply alluded to two of the non-exclusive bases for termination or nonrenewal of DAR appointments set forth in the FAA’s implementing regulations – namely, “[u]pon a finding by the Administ rator that the representative has not properly performed his or her duties under the designation,” or “[f]or any reason the Administrator considers appropriate.” See 14 C.F.R. § 183.15(b)(4), (6). To interpret this provision as guarant eeing Mr. Pucciariello a perpetual DAR appointment subject only to a finding of “cause” for termination would be unreasonable, particularly where, as here, such an interpretation would contradict the clear congressional grant of discreti on with respect to the termination or nonrenewal of DAR appointments. See Capital Props., Inc. v. United States , 56 Fed. Cl. 427, 434 (2003) (“The ru le that contract terms w ill be given their ordinary meaning is particularly app licable where the contract language is easily construed in harmony with the pertinent statute.” (citing, e.g. , Am. Science & Eng’g, Inc. v.

United States , 663 F.2d 82, 88 (Ct. Cl. 1981))), aff’d , 89 F. App’x 262 (Fed. Cir. 2004).

Second, even if the settlement agreem ent could reasonably be interpreted as imposing a “for-cause” limitation on the F AA’s ability to terminate or not renew Mr. Pucciariello’s DAR appoint ment, plaintiff has failed to allege facts plausibly34 suggesting that the FAA lack ed cause to terminate th at appointment. As the government correctly notes, plaintiff a ttached to his complaint Mr. Lopez’s January 25, 2012 letter. See Compl. Attach. B at 1-2. That letter, which is incorporated by reference into the comp laint and may be considered without converting defendant’s RCFC 12(b)(6) mo tion to dismiss into a motion for summary judgment, see Toon , 96 Fed. Cl. at 298-99, set forth the agency’s justification for terminating Mr. Pucciar iello’s DAR appointment. The agency’s

bases for termination included its dete rmination that Mr. Pucciariello had demonstrated during a meeting with F AA personnel on January 18, 2012 that he lacked understanding of FAA regulations and regulatory guidance pertaining to the inspection and testing of civilian aircraft, which resulted in his failure to properly discharge his DAR duties relating to th e export of a helicopter to Brazil. See Compl. Attach. B at 1-2.

Plaintiff alleges no facts from which th e court can reasonably infer that the FAA’s stated reasons for terminating Mr . Pucciariello’s DAR appointment, as set forth in Mr. Lopez’s January 25, 2012 lette r, were incorrect or pretextual. Although plaintiff alleges, in paragraph 18 of his complaint, that “[t]he FAA’s alleged reasons for the term ination of Plaintiff’s DAR are without merit,” that allegation is no more than a “label” or “conclusion” that is not entitled to the presumption of truth afforded to well-pleaded factual allegations. Iqbal , 556 U.S. at 678 (citation omitted). The same is tr ue of plaintiff’s bald and unsupported assertion, in his response brief, that he had “at all times satis fied the applicable regulatory requirements and was othe rwise qualified to hold the DAR.” See Pl.’s Resp. at 12.

Finally, with respect to plaintiff’s argument that the FAA “breached the settlement agreement by failing to give Plai ntiff an adequate hearing at which he could refute the basis for his DAR non-renewal,” see Pl.’s Resp. at 12, plaintiff has not identified any provision of the agreem ent requiring the FAA to utilize certain procedures in terminating Mr. Pucciarie llo’s DAR appointment, nor did plaintiff allege the existence of any such provision in his complaint. Mr. Pucciariello has therefore failed to allege facts plausibl y suggesting any contractual obligation on the part of the FAA to afford Mr. Pucciarie llo the particular procedural protections he alleges were due him.35 For all of the foregoing reasons, the cour t concludes that plaintiff has failed to state a claim upon which relief can be granted with respect to his claim for breach of the settlement agreement. Th at claim must therefore be dismissed pursuant to RCFC 12(b)(6), even if the c ourt were to assume jurisdiction over the

claim.

2. Plaintiff Has Failed to State a Claim for a Fifth Amendment Taking

The government also contends that Mr. Pucciariello’s takings claim should

be dismissed for failure to state a claim. In that regard, defendant first argues that plaintiff has failed to allege sufficient facts from which the court may reasonably infer that Mr. Pucciariello has a cogni zable property interest in his DAR appointment that could be the subject of a valid takings claim under the Fifth

Amendment. See Def.’s Mot. at 18-19; Def.’s Repl y at 6. In addition, defendant argues that, even if the court were to conc lude that plaintiff sufficiently pleaded a cognizable property interest in his DAR appointment, plaintiff’s takings claim

should nevertheless be dismissed because it is premised upon allegedly unlawful governmental action. See Def.’s Mot. at 19-20; Def. ’s Reply at 6. The court agrees, as set forth below.

The court evaluates whether plaintiff has stated a Fifth Amendment takings claim under a two-part test. First, the co urt must determine whether plaintiff has established a property interest for purposes of the Fifth Amendment. E.g.

, Acceptance Ins. Cos. v. United States , 583 F.3d 849, 854 (Fed. Cir. 2009). As to this first question, “‘existing rule s and understandings’ and ‘background principles’ derived from an independent sour ce, such as state, federal, or common law, define the dimensions of the re quisite property rights for purposes of establishing a cognizable taking.” Id. at 857 (quoting Conti v. United States , 291 F.3d 1334, 1340 (Fed. Cir. 2002)). Because the existence of a cognizable property interest is a threshold requirement for a va lid takings claim, “[i]f the claimant fails to demonstrate the existence of a legally cognizable property interest, the court[’]s

task is at an end.” Am. Pelagic Fishing Co. v. United States , 379 F.3d 1363, 1372 (Fed. Cir. 2004) (citation omitte d). Only if the court concludes that a cognizable property interest exists does it then pr oceed to the second step, which is to determine whether the governmental action at issue amounts to a compensable taking of that property. Acceptance Insurance , 583 F.3d at 857.36 In this case, the court need not proceed past the first step, as plaintiff has failed to establish a cognizable property in terest. To have a property interest cognizable under the Fifth Amendment, a plaintiff “‘must have more than a unilateral expectation . . . . He must , instead, have a legitimate claim of

entitlement . . . .’” Members of Peanut Quota Hold ers Ass’n v. United States , 421 F.3d 1323, 1330 (Fed. Cir. 2005) (quoting Bd. of Regents of State Colls. v. Roth

, 408 U.S. 564, 577 (1972)). Here, Mr. Pucciarie llo asserts a property interest in his DAR appointment. See Compl. ¶ 11 (alleging that “[t]he settlement agreement

between Plaintiff and Defendant created a property right and property interest in Plaintiff’s DAR”). Yet, as recognized by at least two federal courts of appeals as well as this court, designations of authority by the FAA under 49 U.S.C. § 44702 do not create cognizable property intere sts under the Fifth Amendment because they are terminable at the discre tion of the FAA Administrator. See Lopez v. Fed.

Aviation Admin. , 318 F.3d 242, 249 (D.C. Cir. 2003) (holding that an engineer had no property right in his appointment by the FAA as a designated engineering representative) (citation omitted); Fried v. Hinson , 78 F.3d 688, 692 (D.C. Cir. 1996) (holding that a pilot examiner had no cognizable property interest in the renewal of his pilot examiner designation); Greenwood v. Fed. Aviation Admin. , 28 F.3d 971, 976 (9th Cir. 1994) (same); Mike’s Contracting , 92 Fed. Cl. at 307-10 (holding that a helicopter owner lacked a cognizable property interest in his airworthiness certificate for purposes of a Fifth Amendment takings claim); see also 49 U.S.C. § 44702(d)(2) (stating that the FAA Administrator may rescind, or choose not to renew, appointments under th at section “at any time for any reason the Administrator considers appropriate”) . As such, designees under 49 U.S.C. §

44702 serve at the FAA’s discretion and ther efore have no more “‘than a unilateral expectation’” of renewal. Lopez , 318 F.3d at 249 (quoting Roth , 408 U.S. at 577).

Any doubt that DARs lack a property inte rest in their designation is clarified by the FAA’s regulatory guidance, which states that “[a] designation is a privilege, not a right,” and “therefore[] the Admini strator has the authority to terminate a delegation for any reason.” FAA Order 8100.8D, ¶ 1108(a); see also id. ¶ 1414 (stating that “renewal of any designee appointment is at the option and sole discretion of the FAA”). Based upon thes e background principles of law, the court

concludes that Mr. Pucciariello has no co gnizable property interest in his DAR appointment.37 In an attempt to distinguish the authorities holding that designations pursuant to 49 U.S.C. § 44702 are not cognizable property interests under the Fifth Amendment, plaintiff contends that his DAR appointment is different because it was conferred by his settleme nt agreement, which plaintiff asserts prohibited

termination or nonrenewal except for “cause.” See Pl.’s Resp. at 12. Yet, as the court has already found, the settlement ag reement cannot reason ably be read as displacing the statutory and regulatory framework vesting in the FAA

Administrator unfettered discretion to terminate or refuse to renew DAR appointments. Moreover, plaintiff cites no authority, and the court has found none, supporting the notion that designations of authority under 49 U.S.C. § 44702 are converted from privileges to rights merely because they are conf erred by contract.

Plaintiff has therefore failed to establis h a cognizable property interest under the

Fifth Amendment. 16

Furthermore, the court agrees with de fendant that even if plaintiff could demonstrate a cognizable property inte rest in his DAR appointment, he nevertheless fails to state a valid takings claim because his claim is premised upon the FAA’s alleged violation of its regulati ons. The gravamen of plaintiff’s takings claim is his allegation that the FAA unl awfully terminated his DAR appointment

16 / In support of his contenti on that he possesses a cognizable property interest in his DAR appointment for purposes of a Fifth Amendm ent takings claim, Mr. Pucciariello cites to several precedential and non-prec edential decisions addressing the procedural due process protections afforded to federal employees with “for-cause” employment contracts. See Pl.’s Resp. at 13 (citing Fed. Deposit Ins. Corp. , 940 F.2d at 474-75, Polos , 621 F.2d at 389-90, and Terry , 499 F.2d at 702). However, as explained supra and as demonstrated by numerous federal

court decisions cited in defendant’s reply brief, see Def.’s Reply at 3- 4, DARs are not federal employees, see, e.g. , Charlima , 873 F.2d at 1081 (citation omitted ). Moreover, the court has already found that plaintiff’s settlement agreem ent does not contain a “for-cause” limitation on

the termination or nonrenewal of Mr. Pucciariello’s DAR appointm ent. Therefore, plaintiff’s reliance upon decisions involving “for-caus e” employment contracts is unavailing.

Plaintiff also relies upon several distri ct court decisions addressing whether FAA designees possessed cognizable property interests in their certificates of authority for purposes of procedural due process claims. See Pl.’s Resp. at 13-14 (citing Green v. Brantley , 719 F. Supp. 1570, 1575-76 (N.D. Ga. 1989), and White v. Franklin , 637 F. Supp. 601, 610 (N.D. Miss. 1986)). Those cases are likewise in apposite because, as explained supra , this court lacks Tucker Act jurisdiction over such due process claims. See, e.g.

, Smith , 709 F.3d at 1116 (citing LeBlanc

, 50 F.3d at 1028).38 by failing to follow applicable regulations and internal procedures governing the termination of such appointments. See Compl. ¶¶ 11-18; see also id. ¶ 1 (asserting that “[t]his is an action for 5th Ame ndment taking of property without just compensation, and without complying w ith procedural due process and written procedural rules and regulations designed to protect Plaintiff”), ¶¶ 9-10 (alleging

that the FAA terminated Mr. Pucciar iello’s DAR appointment “without due process or cause,” and in an “arbitrary” and “capricious” manner). The Federal Circuit has held that such allegations do not state a claim fo r a Fifth Amendment taking. See Acadia Tech., Inc. v. United States , 458 F.3d 1327, 1330-31 (Fed. Cir. 2006) (stating that “plaintiff’s assertion that [the U.S. Customs Service’s] actions

ran afoul of the Customs statutes . . . does not form the basis for a legal claim under the Takings Clause of the Fifth Amendment”) (citation omitted); Lion Raisins, Inc. v. United States , 416 F.3d 1356, 1369 (Fed. Cir. 2005) (“We have made clear that a claim premised on a re gulatory violation does not state a claim for a taking.” (citing Rith Energy, Inc. v. United States , 247 F.3d 1355, 1366 (Fed. Cir. 2001))).

In sum, because plaintiff has failed to establish a cognizable property

interest under the Fifth Am endment, and because his ta kings claim is premised upon allegedly unlawful governmental action, his takings claim must be dismissed pursuant to RCFC 12(b)(6) for failure to state a claim, ev en if the court were to assume jurisdiction over that claim.

CONCLUSION

For all of the foregoing reasons, the c ourt concludes that it lacks subject matter jurisdiction over plaintiff’s claims. In addition, the court concludes that even if it did possess jurisdiction, plain tiff has failed to state a claim upon which relief can be granted. Plai ntiff’s complaint must ther efore be dismissed.

Accordingly, it is hereby ORDERED that

(1) Defendant’s Motion to Dismis s, filed November 18, 2013, is

GRANTED ;

(2) The Clerk’s Offi ce is directed to ENTER final judgment in favor of defendant, DISMISSING the complaint without prejudice; and39 (3) Each party shall bear its own costs.

/s/Lynn J. Bush

LYNN J. BUSH Senior Judge