Professional Documents
Culture Documents
Cy Prés Comme Possible and The University Museum: Dana Elizabeth Rowland
Cy Prés Comme Possible and The University Museum: Dana Elizabeth Rowland
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1
Lacking foresight to predict future conditions of charitable institutions, donors
often exclude provisions in their donative instrument pertaining to economic distress that
might preclude the charity from carrying out their wishes in the future. Long ago, cy prés
doctrine arose in the legal system to deal with these difficult situations. Cy prés comme
possible, translates to ‘as near as possible’ and grants courts the power to interpret the
donative instrument when it deems the donor’s original wishes “illegal, impracticable, or
impossible.”1
accountable in their charge to uphold donor intent.2 This places a difficult burden on the
donor, which could end up devastating future gifts. Tax benefits granted to the donor are
honor their wishes they will likely no longer reap tax benefits.3 This paper draws upon
relevant portions of recent litigation surrounding both Fisk and Brandeis University in
1
Martin Morse Wooster, The Great Philanthropists & The Problem of Donor Intent, Second (Washington
DC: Capitol Research Center, 1998), 71.
2
For discussion of this topic see Karen Donavan, "Driven to Defy Donor Intent," Trusts & Estates, March
2009: 58-59. Donor ”restrictions may not be worth more than the paper they’re printed on.”
3
Charitable giving without restrictions would also still be an option, but this paper will deal exclusively
with restricted giving.
4
Since both the cases at hand are universities that is the word that I will use to represent the higher
educational bodies overseeing art collections.
2
Declines in charitable giving and drastic endowment losses place a heavy
financial burden on universities. Looking for ways to mitigate losses, some schools seek
cy prés relief from the courts to sell off or de-accession portions of donated artworks and
missions of a university and its museum or art collection has recently ended up in court
leaving judges to decide how to equitably balance donor intent with the needs of a
university. It is incumbent upon the courts to correctly apply cy prés: first by determining
“if it is no longer possible to honor a donor’s wishes exactly” and then how to proceed in
whether or not cy prés relief will be made available to a struggling charitable institution,
has often boiled down to the definition of specific or charitable intent within the donative
instrument.
FISK UNIVERSITY
In the 1940s and 50s Georgia O’Keeffe gifted 101 artworks to Fisk University.
university asked the court for permission to sell or de-accession some artwork, as per cy
which the Georgia O’Keeffe Foundation (Museum) alleged that Fisk, in seeking cy prés,
5
N.Y. CLS Educ. Law § 233-a (1)(b) The term "deaccession" shall mean the permanent removal or
disposal of an object from the collection of the museum by virtue of its sale, exchange, donation or transfer
by any means to any person. 2. The deaccessioning of property by the museum must be consistent with the
mission of the museum. 3. Prior to the acquisition of property by gift, the museum shall provide the donor
with a written copy of its mission statement and collections policy, which shall include policies and
procedures of the museum relating to deaccessioning. The second tenet of this definition emphasizes the
mission of the museum, but when it comes to university art collections there are two missions to consider.
6
Wooster: 71.
3
was in breach of conditions of contract as per the original donative instrument.7 The
substantive issue at hand was whether or not Ms. O’Keeffe had given the artworks with
general or specific charitable intent. 8After much deliberation, in 2009 the Court of
Appeals partially reversed the ruling of the Trial Court stating that cy prés relief might be
available to Fisk in light of a trend towards clarifying the elusive nature of general intent.
Judge Frank G. Clement, Jr. cited a recent restatement of trusts “which replaces the
requirement of ‘general intent’ with a less elusive prerequisite that ‘unless the terms of
“Painting No. 3”, together appraised at approximately $ 8.5 million, sit at the center of a
battle between fiscal woes and donor intent. O’Keeffe donated the paintings among
others to the Fisk University in 1949 “on the condition that they never be sold.”10 The
court found that the donative instrument of Ms. O’Keeffe lacked an “express divesting
condition” and was therefore void of specific intent.11 Upon this consideration, the court
remanded the case back to the Trial Court to determine whether or not the second part of
BRANDEIS UNIVERSITY
7
Georgia O Keeffe Foundation (Museum) v. Fisk University, 2009 No. M2008-00723-COA-R3-CV
(Tenn. Ct. App., 2009)
8
The Appeals Court also determined that the Georgia O’Keeffe Foundation (Museum) lacked standing to
contest the sale. The issue of standing will by outside of the scope of this paper given that it is largely a
procedural hold up to the substantive issues at hand.
9
Restatement (Third) of Trusts § 67(2003)
10
Corey Dade, "O'Keeffe Painting is at the Center of a Modern Fight; Fisk University Could Use the
Money, but Tennesse Delays a Deal to Sell," Wall Street Journal, February 16, 2009: A1.
11
Georgia O Keeffe Foundation (Museum) v. Fisk University, 2009 No. M2008-00723-COA-R3-CV at
*44 (Tenn. Ct. App., 2009)
4
Deaccessioning or selling artwork from a traditional museum is complicated
enough; but when the collection stems from a university, the number of interested parties
and challenges increase with dramatic results. The January 2009 Brandeis University
announcement from trustees granting permission “to take the necessary steps to transition
the University’s Rose Art Museum to a teaching center and exhibition gallery…
(including an) orderly sale or other disposition of works from the University’s collection”
was met with outrage and disbelief.12 Family members of major donors of the Rose are
attempting to uphold original donor intent and have filed a complaint to “allege that the
establishment of the Rose Art Museum in 1961 and all gifts given thereafter were
specifically given to the Art Museum and not to Brandeis in general…(and) that Brandeis
Brandeis responded to the outcry by filing a motion to dismiss the claims of the
plaintiffs citing their lack of standing. To date, a Probate Court judge has “issued a
preliminary injunction prohibiting Brandeis University from selling any art from the Rose
Art Museum…and den(ied) the university’s motion to dismiss the suit.”14 In order to
redirect funds from the Rose Art Museum, Brandeis will need to seek cy prés relief from
the courts.
12
Future of the Rose Committee, "The Future of the Rose Committee Interim Report," Brandeis
University, April 30, 2009,
http://www.brandeis.edu/provost/adhoc/Rose_Committee_Interim_Report_043009.pdf (accessed
November 14, 2009). They also mention that a “review by the Office of the Attorney General of the
Commonwealth and court approval” would be necessary.
13
Anonymous, "Members of Rose Art Museum Board of Overseers File Suit Against Brandeis," Business
Wire, July 28, 2009. See also: Meryl Rose, Jonathan O. Lee, and Lois Foster v. Brandeis University and
Hon. Martha Coakley, Attorney General of the Commonwealth, Complaint for Declatory Judgment
Concerning the Rose Art Museum, filed 7/27/09 (Mass.)
14
Ariel Wittenberg, "Judge Denies Motion to Dismiss," The Brandeis Hoot, October 16, 2009,
http://thehoot.net/articles/6780 (accessed November 22, 2009). This only applies to 500 out of the 7,813
works of art in the museum that were given with alleged restrictions.
5
Cy prés Relief
1.HISTORICALLY
From the onset, trusts and donor intent were problematic in America. Cy prés lay
at the heart of the early debate “before 1860 fifteen states had considered cases whether
cy prés might be invoked, and in ten states the courts had rejected cy prés as
testator intent in cases where the original wishes were no longer viable, it fell to the states
charitable institutions. 16 Conservative minded “19th century judges believed that an estate
was private property, and property was something that must be preserved,” but as the
country’s political mood liberalized so too did the application of cy prés. 17 The 20th
century gave rise to an expanded use of the doctrine and courts began “to divert wills
from uses thought insufficient.” 18 Cy prés doctrine has burgeoned into a patchwork of
legal precedent with a lack of clarity over the legality and extent to which deviation from
2. TODAY
Cy prés and equitable deviation allow for a modification of the original purpose
6
charitable organization must first prove that it is eligible under the three-prong test and
then the proposed alterations must be approved.20 The burden of proof falls on the
charitable organization to demonstrate that their situation meets the three prongs of cy
prés by first establishing that the nature of the gift is charitable, that “current or changed
circumstances…frustrate the settlor's specific charitable intent” and lastly that the
charitable intent is general and not specific.21 Only after completion of these first three
prongs establishes that cy prés relief might be available will the proposed reforms be
analyzed to determine if they are as close ‘as possible to the original’ stipulations of the
donor.
The second prong, in relation to universities, can also generally be easily verified, as they
would not be in the position of liquidating assets if they were not in dire financial straits.
As a member of the nations’ historically black colleges and universities, Fisk is overly
Brandeis has been a victim of its own financial planning as they eagerly sought to
7
redirect giving towards an endowment. Facing a 25% loss in this recently acquired
endowment and diminishing donor prospects the fact that “Massachusetts law doesn’t let
endowments spend the original principal, just income and capital gains” places Brandeis
in a difficult situation. 25
It is the third and final prong of the test, the question of general charitable intent,
that usually determines the availability of cy prés. Traditionally, the burden has fallen
upon charitable organizations to prove “from the language in the donative instrument
that, in addition to the precise purpose specified there, the donor had a broader charitable
intent in making the gift…implicitly consent(ing) to the change the charity wants to
make.” 26 Some have argued that in addition to the three traditional reasons for seeking
should also be considered. This would allow charitable organizations to present their case
for relief as “to continue pursuing (the original wishes of the testator), represents
More recently, courts have taken a broader stance on general charitable intent. As
was the case in Georgia O’Keeffe Foundation (Museum) v. Fisk University, when the
donative “instrument is silent as to what happens upon failure of the gift or indicates no
preference for one purpose over another so long as it was possible to apply the property
to that specified purpose, courts are likely to find that the donor’s expressed a general
25
Felix Salmon, Why Brandeis is Closing the Rose Art Museum, February 1, 2009,
http://www.portfolio.com/views/blogs/market-movers/2009/02/01/why-brandeis-is-closing-the-rose-art-
museum (accessed November 14, 2009).
26
Iris J. Goodwin, "Donor Standing to Enforce Charitable Gifts: Civil Society vs. Donor Empowerment,"
Vanderbilt Law Review 58, no. 1093 (May 2005) 1132.
27
Goodwin:1133.
8
charitable intent.” 28 However the law still dictates, “the controlling consideration in
determining the meaning of a donative document is the donor’s intention” and should be
The attorney of one of the plaintiffs argues in the complaint filed against Brandeis
University that “all endowments established by the Fosters at Brandeis University for the
Rose Art Museum were predicated on the understanding that it would always be a full
fledged art museum.” 30 But, this understanding appears nowhere in writing except
perhaps a 1968 letter from the museum’s founding donor Edward Rose (the donative
instrument) discussing the establishment of an endowment fund and the limitation of use
income and proceeds from sale of items of the museum collection.31 Signed and agreed to
by the then President of Brandeis Abram L. Sachar, but seven years after the museum
opened and after a large part of the collection was amassed.32 The interpretation of this
one letter will be at the heart of determining if cy prés relief will be available. As courts
increase their willingness to find towards a general charitable intent they should bear in
mind the repercussions of doing so, namely, the loss of donor faith that their gift will be
used as directed.
CONFLICTING MISSIONS
28
Ibid:1133.
29
Ibid:1143.
30
Greg Cook, "Key Weaknesses in the Rose Suit," The New England Journal of Aesthetic Research, July
31, 2009, http://gregcookland.com/journal/2009/07/key-weaknesses-in-rose-suit.html (accessed November
14, 2009).
31
Meryl Rose, Jonathan O. Lee, and Lois Foster v. Brandeis University and Hon. Martha Coakley,
Attorney General of the Commonwealth, Complaint for Declatory Judgment Concerning the Rose Art
Museum, filed 7/27/09 (Mass.) Exhibit B.
32
Greg Cook, "Key Weaknesses in the Rose Suit," The New England Journal of Aesthetic Research, July
31, 2009, http://gregcookland.com/journal/2009/07/key-weaknesses-in-rose-suit.html (accessed November
14, 2009). “Even if the 1968 letter does restrict sales from the collection—which is debatable—it post-dates
the Mnuchin gift which funded the acquisition of the heart of the collection.”
9
Generally questions of deaccessioning are legally challenged “on the grounds that
trustees have failed to act in good faith, were not acting in the public’s best interest, or
did not administer the trust as a manager of ordinary prudence would under similar
circumstances.” 33 In the case of university art collections and universities there are two
boards of trustees the former of which takes precedence over the latter. University
trustees argue deaccessioning works from art collections is a beneficial and prudent
collection and universities abound. As the umbrella institution, the university, and the
trustees that govern it must place the educational mission above any other. The museum
and its governing trustees have a subsidiary relationship to their parent institution.
Museum trustees must “weigh their fiduciary duties to the museum and their ethical
obligations to the public against their more immediate responsibilities (including the)
broader role the museum plays within the cultural life of a community or university.” 34
Both museums and universities, as non-profit 501 C(3) organizations granted tax breaks
as a result of their status, carry a “duty of loyalty and the duty of care…both trustees and
directors fulfill these duties in light of a fiduciary relationship with the public.” 35 Many
charge that this duty limits the ability to deaccession artwork because as source of a tax
deduction artworks should remain in the public trust and not be allowed to fall into
private hands. 36
33
Derek Fincham, "Navigating the Deaccessioning Crisis," Social Sciene Research Network, September
2009, http://papers.ssrn.com/sol3/papers.cfm?abstract_id=1470211 (accessed November 15, 2009) 42.
34
Fincham: 25.
35
Ibid:12.
36
Ibid:18. Public trust doctrine the public has an interest “must preserve the public’s right to access and
use.”
10
Although donors might intend for gifts to be given to a university museum as a
distinct body, they must also recognize that part of the museum’s mission lay within the
scope of the governing university. The relationship between the Rose and Brandeis
University demonstrates the power struggle as they “receiv(e) almost no money from
addition if “the museum spends any of the money it raises, 15 percent of it must be paid
to the university.”38 It seems like an unbalanced relationship, but without the parent
institution the Rose would not exist at all. If Brandeis were allowed to fail, it would bring
1. EXTERNAL
The legal standard for upholding restricted charitable gifts falls within the domain
of state attorney generals. This “arrangement…recognizes the publics role as the ultimate
beneficiary of any public charity,” but also places regulation of deaccessioning on a long
docket where it is likely to fall near the bottom on a scale of importance. 39 Also, as
37
Roberta Smith, In the Closing of Brandeis Museum, a Stark Statement of Priorities, February 2009,
2009, http://www.nytimes.com/2009/02/02/arts/design/02rose.html (accessed November 14, 2009). See
also: Ariel Wittenberg, The Brandeis Hoot, July 28, 2009, <http://thehoot.net/articles/6334>. (accessed
November 14, 2009). The University’s council argues that “The Rose Art Museum is a part of Brandeis
University and represents four tenths of one percent of the University budget. Their endowment is part of
the Brandeis endowment.”
38
Roberta Smith, In the Closing of Brandeis Museum, a Stark Statement of Priorities, February 2009,
2009, http://www.nytimes.com/2009/02/02/arts/design/02rose.html (accessed November 14, 2009). “In
return for this Brandeis pays for the Rose’s light and heat.”
39
Goodwin: 1094. See also:1138. Inadequacies of attorney general oversight of charitable trusts including
but not limited to “underfunded, understaffed, ill equipped to monitor” as well as having a host of “more
pressing concerns.”
11
2. INTERNAL
written and enforced by membership in their accrediting bodies. The two primary
museum organizations, the American Association of Museums and the Association of Art
Museum Directors have established strict policies on deaccessioning in regards to the use
organizations may exert their own internal pressure to promote compliance” including
31
rescinding membership, refusing to loan works, and ostracization from the community.
There is in a sense a double standard one the legal standard and the other an
ethical standard.41 The courts may overlook the ethical or internal regulatory standard in
regard to deaccessioning by coming to the “conclusion that some museums are primarily
schools and may not be subject to many of these codes.” 42 It is even easier to free art
collections owned and managed by a University from internal regulatory codes. 43 Many
saw the attempt to close the Rose by Brandeis as a “way to avoid the messy legalities of
organizations that monitor and weigh in on sales.”44 Doling out internal punishments,
40
Including within this a stringent prohibition of use of funds on anything besides the acquisition of more
art.
41
Roberta Fre Gilboe, "Report to the Deaccessioning Task Force of the Registrars Committee of AAM," in
A Deaccession Reader, ed. Stephen E. Weil, 237 (Washington, D.C,: American Association of Museums,
1997) 40.
42
Fincham: 31.
43
Association of College & University Museum & Art Galleries, "ACUMG Responds to the Closure of
the Rose Art Museum, Brandeis University," News and Views, Winter 2009,
http://www.acumg.org/files/BrandeisStatement.pdf (accessed November 22, 2009). To bridge the gap, a
third accrediting body has arisen, the Association of College & University Museum& Art Galleries. This
organization has publically weighed in on the situation at Brandeis charging, “to capitalize that which is
related directly to learning and sell it off to fund general operations or to bolster waning endowments is…
myopic.”
44
Roberta Smith, In the Closing of Brandeis Museum, a Stark Statement of Priorities, February 1, 2009,
http://www.nytimes.com/2009/02/02/arts/design/02rose.html (accessed November 14, 2009). “If there is no
12
does not affect the university art collection in the same way they might a traditional
museum because educational institutions have separate accreditation bodies that weigh
IMPLICATIONS
Tax breaks, a major incentive for gifts to charitable organizations and trusts are
“struggle…to fund their core operations many are looking to a rich pool of so-called
how their money should be spent.”45 Directed or restricted gifts “hover somewhere
between a gift and a contract” dependent upon the language regarding the rights of the
testator in the case of failure or cancellation of such gift. 46 As courts move towards
interpreting general charitable intent absent any express divesting clause there is a
potential that donors will have no choice but to either give a gift free and clear of
restrictions or accept that in order to uphold their restrictions they might not receive the
same tax benefits. The answer may be the inclusion of a “power to redirect the gift to
another charity willing to abide by the restrictions” along with insurance by courts that
this would fulfill the requirements of specific charitable intent therefore severely limiting
13
One commentator notes “You can’t really evaluate whether a sale is justified until
you fully come to grips with the costs of not selling,” but what if in the long run
mechanisms of charitable giving are allowed to fail?48 Fisk and Brandeis University are
not alone in their consideration of liquidating art collections to survive severe economic
challenges. Both argue that deaccession might preferable to any more cuts that detract
from the educational mission of their organizations.49 Despite this, courts should be
hesitant to offer deaccession through cy prés too liberally. It might be a quick fix with
lasting implications. What will happen to charitable institutions if private donations are
no longer made available? If donors lose faith that their wishes will be upheld absent any
express divesting clause or reversionary right that would limit the appealing tax benefits
of giving charitable giving, institutions including higher educational bodies will not
survive.
http://www.abanet.org/rppt/meetings_cle/2008/jointfall/Joint08/ExemptOrgCharitablePlanOrganGroup/U
MIFAandUPMIFA.pdf (accessed November 19, 2009).
48
Donn Zaretsky, On Purity, October 5, 2009, http://theartlawblog.blogspot.com/2009/10/on-purity.html
(accessed November 14, 2009).
49
Christopher R. Beha, "Voodoo Academics," Harper's Magazine, November 2009: 52-53. “This spring,
Brandeis suspended payments to all faculty retirement accounts and enacted a 6 percent staff cut.” See
Also: Dade, C. (2007, February 16). O'Keeffe Painting is at the Center of a Modern Fight; Fisk University
Could Use the Money, but Tennessee Delays a Deal to Sell. Wall Street Journal , p. A1. “The whole
collection was valued at $33 million…more than the total endowment of Fisk”
14
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15
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16
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17
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18