Opinion ID: 772696
Heading Depth: 5
Heading Rank: 4

Heading: Fluctuation of water level and other hydraulic characteristics.

Text: 28 (2) Physical characteristics of the obstruction, including cargo (if any exists). 29 (3) Possible movement of the obstruction. 30 (4) Marine activity in the vicinity of the obstruction. 31 (a) Type of commercial and recreational vessel traffic. 32 (b) Density of commercial and recreational vessel traffic. 33 (c) Trends of waterway use. 34 (5) Location of obstruction with respect to existing aids to navigation. 35 (6) Prevailing and historical weather conditions. 36 (7) Length of time the obstruction has been in existence. 37 (8) History of vessel accidents involving the obstruction. 38 The thrust of appellants' claim of error is that section 5(b)(4), which requires an owner to immediately mark a hazard to navigation, applies to the United States and is a mandatory rule or policy that prescribes a fixed course of conduct, requiring no element of judgment or choice. Thus, the failure to adhere to this provision is not protected by the discretionary function exception. See Berkovitz, 486 U.S. at 536, 108 S. Ct. at 1958. Section 5(b)(4) provides: 39 Marking Issues. In every case where an obstruction is declared to be a hazard to navigation, the location will be marked immediately by the owner. In the event that the owner cannot be identified, refuses to mark the obstruction, inadequately marks the obstruction, or is otherwise unable to properly mark it, the Coast Guard has authority under 14 U.S.C. [] 86 to take appropriate action. 40 Appellants focus on the phrase in every case and the absence of any express language that the MOA does not apply to government owned structures to support their assertion that this is a mandatory non-discretionary requirement applicable to the United States. On the other hand, we note that the MOA also does not expressly state that it does apply to government owned structures. Shilling testified that the MOA only applied to privately owned structures, but that the Corps and the Coast Guard considered the same factors listed in the MOA to determine the appropriate course of action with respect to government owned obstructions or hazards to navigation. Appellants presented no contradictory evidence to support their position other than the agreement itself. 41 We agree with the interpretation adopted by the district court and supported by Shilling's testimony that the MOA and specifically section 5(b)(4) applies only to privately owned structures. This interpretation is consistent with an overall reading of the document. Numerous references to the owner of an obstruction or sunken vessel are made throughout the agreement. In each case, the logical reading is that the referenced owner is a private third party other than the Corps, the Coast Guard, or any other government agency. For example, section 5(b)(4) refers to the Coast Guard's authority under 14 U.S.C. 86 to mark the obstruction if the owner cannot be identified or fails to adequately mark the hazard. Section 86 not only gives the Coast Guard authority to mark obstructions, but also makes the owner liable to the United States for the costs of marking the hazard. See 14 U.S.C. 86. When both provisions are read in context, it does not make sense for the term owner to also refer to the United States. The issues of identification of the owner, refusal to mark, inability to mark, or inadequate marking mentioned in section 5(b)(4) are only pertinent to private owners. Additionally, Shilling's testimony that this provision is directed primarily at sunken vessels or other privately owned obstructions that are not shown on the authorized navigational charts supports the conclusion that this provision applies only to private owners. 42 Moreover, even if the MOA is interpreted to apply to government owned structures as well, notwithstanding section 5(b)(4), marking the location of a hazard to navigation is not a mandatory corrective action. As discussed above, section 7(a) lists the alternative options once the Corps and Coast Guard decide that an object is a hazard to navigation. Marking is only one of the options and is not mandated. Thus, we conclude that MOA does not apply to government owned structures or hazards, nor is physically marking the location of a hazard to navigation a mandatory requirement. That being the case, the decision of whether or not to physically mark the sill's location clearly involved an element of judgment or choice. As Shilling testified, the Corps considers the same options and factors outlined in the MOA to determine the appropriate course of action for notifying the public of the existence of a hazard to navigation. Marking is only one of the available options. Other options include charting, removal, dissemination of navigational safety information, redefinition of the navigational waterway, no action, or any combination. The Corps must clearly use its judgment to choose among the available alternatives and determine the appropriate course of action. 43