Case 5:16-cv-10444-JEL-EAS ECF No. 2008, PageID.

69537 Filed 11/10/21 Page 1 of 178

UNITED STATES DISTRICT COURT

EASTERN DISTRICT OF MICHIGAN
SOUTHERN DIVISION

In re Flint Water Cases. Judith E. Levy

United States District Judge
________________________________/

This Order Relates To:

ALL CASES

________________________________/

OPINION AND ORDER GRANTING FINAL APPROVAL OF A

PARTIAL SETTLEMENT, GRANTING CERTIFICATION OF A
SETTLEMENT CLASS, GRANTING APPOINTMENT OF
SETTLEMENT CLASS COUNSEL [1794], DENYING
OBJECTIONS, AND ADOPTING THE REPORT AND
RECOMMENDATION [2006]

Before the Court is a motion for final approval of a partial

settlement that provides compensation to tens of thousands of people who

were impacted by exposure to lead, legionella, and other contaminants

from the City of Flint’s municipal water supply system during the events

now known as the Flint Water Crisis. The settlement resolves thousands

of claims pending in this Court, the Genesee County Circuit Court, and

the State of Michigan Court of Claims. The settlement involves both class

action and non-class action lawsuits. The portion of the $626.25 million
Case 5:16-cv-10444-JEL-EAS ECF No. 2008, PageID.69538 Filed 11/10/21 Page 2 of 178

settlement to be paid by the State of Michigan is one of the largest

settlements in the State’s history.1

The settlement reached here is a remarkable achievement for many

reasons, not the least of which is that it sets forth a comprehensive

compensation program and timeline that is consistent for every

qualifying participant, regardless of whether they are members of a class

or are non-class individuals represented by their own counsel. For the

reasons set forth below, the objections to the settlement are denied, and

final approval of the settlement is granted. Plaintiffs’ motion for attorney

fees will be addressed in a separate opinion and order.

1 See, e.g., Michigan S. Fiscal Agency, FY 2018-19 Status of Lawsuits Involving

the State of Michigan, 4 (July 2020),
https://www.senate.michigan.gov/sfa/publications/lawsuit/lawsuit_mostrecent.pdf
[https://perma.cc/W3ZQ-X7RK] (showing, at Table 3, that the maximum settlement
amount for all combined lawsuits against the State over a ten-year period did not
exceed $76,308,820).

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Table of Contents

I. BACKGROUND ................................................................................... 6
A. The Negotiation Process ............................................................... 10
B. The Amended Settlement Agreement (“ASA”)............................. 16
C. Registration Forms and Objections Received by the March 29,
2021 Deadline ....................................................................................... 27
D. Fairness Hearing .......................................................................... 32
E. Other Matters Post-Fairness Hearing ......................................... 36
II. LEGAL STANDARD..................................................................... 37
III. DISCUSSION ............................................................................... 44
A. Non-Class Portion of the Settlement ........................................... 44
B. Class Plaintiffs’ Portion of the Settlement................................... 59
1. Likelihood of Success on the Merits .......................................... 60
2. Class Representatives and Class Counsel Representation ...... 64
3. Arm’s Length Negotiations and No Evidence of Collusion or
Fraud .................................................................................................. 65
4. Adequate Relief ......................................................................... 66
5. Whether Class Members Are Treated Equitably Relative to
Each Other ......................................................................................... 70
6. The Amount of Discovery Conducted ........................................ 72
7. Opinions of Class Counsel and Class Representatives and
Reaction of Absent Class Members ................................................... 73
8. Public Interest ........................................................................... 76
9. Incentive Awards ....................................................................... 76
C. Notice to the Class and Due Process ............................................ 78
D. Certification of the Settlement Class ........................................... 81
E. Appointment of Co-Lead Class Counsel and the Executive
Committee as Class Counsel for Settlement Purposes ....................... 95

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F. Report and Recommendation on Late Registrants ...................... 96

IV. OBJECTIONS ............................................................................... 96
A. Objections Based On Compensation Grid .................................... 98
1. Objections Related to Bone Lead Level Testing ....................... 98
a. Objections to the Use of the Thermo Fisher Manufactured
Hand-Held XRF Device on Humans .......................................... 101
b. Objections Regarding The Napoli Program’s Regulatory
Compliance and Legality ............................................................ 119
c. Objections to XRF Bone Lead Level Testing Because It Has
No Medical Purpose .................................................................... 124
d. Objections Arguing that the Napoli Program Constitutes an
Undisclosed Research Project ..................................................... 127
e. Objections Claiming that Bone Lead Level Testing is the
“Main Method” of Recovery Under the ASA .............................. 130
f. Objections Asserting That Bone Lead Level Testing At Mt.
Sinai and Purdue University Were Unavailable to Objectors... 133
g. Objections Related to the Unavailability for Non-Client Bone
Lead Level Test Appointments with the Napoli Program ......... 138
h. Objections Related to the Napoli Program’s Requirement that
Participants Sign a Liability Release......................................... 143
i. Objections Related to the $500 Cost of a Bone Lead Level Test
with the Napoli Program ............................................................ 145
j. Arguments Related to Bone Lead Level Testing Submitted
After the March 29, 2021 Deadline for Filing Objections .......... 146
2. Objection Related to Blood Lead Level Test Results.............. 148
3. Objections to Cognitive Deficit Testing Settlement Category
Requirements ................................................................................... 149
4. Objection Related to the Miscarriages and Fetal Blood Lead
Level Test Results Settlement Category ......................................... 154
5. Objections to the Compensation Grid’s Requirements of Proof of
Galvanized Steel Service Lines ....................................................... 155
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6. Objections Related to the Compensation Grid’s Failure to

Include Additional or Different Categories ..................................... 158
7. Objections Related to the Overall Allocation of Funds for
Minors Versus Adults ...................................................................... 160
8. Objections Related to the $1,000 “Cap” in the Compensation
Grid for Property Owners and Renters ........................................... 162
9. Objections Arguing that the Overall Settlement is Unfair,
Unreasonable, and Inadequate to Homeowners ............................. 163
B. Objections Related to the ASA’s Requirements for Registration
and Objections .................................................................................... 165
1. Arguments that Registration Deadline Was Too Short ......... 165
2. Objection to Providing the Claims Administrator With PII for
Registration Purposes...................................................................... 166
3. Objection Arguing that, at the Time of Registration,
Participants Did Not Know the Final Amount of their Monetary
Award ............................................................................................... 167
4. Objections that Individual and Class Counsel Who Are Listed
in Exhibit 17 of the ASA Did Not Represent Individual Objectors At
the Fairness Hearing ....................................................................... 169
5. Objections related to Using Zoom to Communicate With their
Attorneys .......................................................................................... 171
C. Objections Related to COVID-19 ................................................ 172
D. Objections to the Notice’s Content ............................................. 173
E. Objections to Class Representative Payment ............................ 174
V. CONCLUSION ........................................................................... 175

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I. BACKGROUND

Plaintiffs are tens of thousands of Minors,2 Adults, individuals and

entities who owned or leased residential property, and individuals and

entities who owned or operated a business, all of whom allege that they

suffered losses and damages resulting from Defendants’ roles in the Flint

Water Crisis. The Defendants participating in the settlement (the

“Settling Defendants”) are not all of the Defendants involved in the Flint

Water litigation, and accordingly, this settlement is only a partial

settlement of the Flint Water cases.3

The Settling Defendants include: the State of Michigan and its

individual officials, which are collectively referred to as the “State

2 Unless otherwise defined, capitalized terms in this Opinion and Order, such
as “Minor,” have the same meaning as defined in the Amended Settlement
Agreement. For reference, Minor is defined in the Amended Settlement Agreement
as “any Claimant participating in the Settlement program that will be less than
eighteen (18) years of age at the time an election is made by a Next Friend from the
options on how a Monetary Award should be distributed as set forth in Paragraph
21.28 [of the Amended Settlement Agreement].” (ECF No. 1394-2, PageID.54132.)
3 The remaining non-settling Defendants are engineering firms that provided
services to the City during the Flint Water Crisis. Plaintiffs and these remaining
Defendants continue to actively litigate, and the first bellwether trial is scheduled to
begin in February 2022.

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Defendants”;4 the City of Flint, its City Emergency Managers, and

several City employees, collectively referred to as the City Defendants;5

McLaren Health Care Corporation, McLaren Regional Medical Center,

and McLaren Flint Hospital, collectively referred to as the McLaren

Defendants; and Rowe Professional Services Company, referred to as

Rowe.

The settlement reached between Plaintiffs and the Settling

Defendants is in a document entitled the Amended Settlement

Agreement (“ASA”). (ECF No. 1394-2.) The Court discussed the facts

leading up to and resulting in the settlement in its January 21, 2021

Opinion and Order Granting Plaintiffs’ Motion to Establish Settlement

Claims Procedures and Allocation and for Preliminary Approval of Class

Settlement Components. See In re Flint Water Cases, 499 F. Supp. 3d 399

4 The State Defendants are: the State of Michigan, Michigan Department of

Environmental Quality (now known as Michigan Department of Environment, Great
Lakes, and Energy), Michigan Department of Health and Human Services, Michigan
Department of Treasury, former Governor Richard D. Snyder, Governor Gretchen
Whitmer, the Flint Receivership Transition Advisory Board, Lianne Shekter Smith,
Daniel Wyant, Stephen Busch, Patrick Cook, Michael Prysby, Bradley Wurfel, Eden
Wells, Nick Lyon, Nancy Peeler, Robert Scott, Adam Rosenthal, Dennis Muchmore,
Kevin Clinton, Linda Dykema, and Andy Dillon.
5The City Defendants are: The City of Flint, Howard Croft, Michael Glasgow,
Dayne Walling, Daugherty Johnson, Gerald Ambrose, Edward Kurtz, Darnell Earley,
and Michael Brown.
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(E.D. Mich. 2021) (the “Preliminary Approval Order”). The relevant facts

from that Order are as follows:

In January 2018, the Court appointed two mediators

pursuant to E.D. Mich. Local Rule 16.4 – former United States
Senator Carl Levin and former Wayne County Circuit Court
Judge Pamela Harwood – to facilitate settlement discussions.
(ECF No. 324, PageID.11687–11693.) In July 2018, under
Federal Rule of Civil Procedure 53, the Court appointed
Deborah E. Greenspan to serve as a Special Master to assist
with certain pretrial matters and to manage aspects of the
settlement process. (ECF No. 544, PageID.16581–16590.)
Also, in September 2019, the Court appointed Subclass
Settlement Counsel to represent six subclasses of Plaintiffs in
settlement allocation discussions. (ECF No. 937,
PageID.24430–24433.)

Sen. Levin and Ret. Judge Harwood reported to the Court

periodically regarding the status of settlement negotiations.
Additionally, beginning in September 2018, Special Master
Greenspan began collecting data regarding potential
claimants across all Flint Water Cases. (ECF No. 519,
PageID.15988; ECF No. 563, PageID.17097.) The primary
purpose of the data collection was to understand the scope and
nature of the claims, to facilitate and inform the parties’
settlement discussions, and to develop a settlement structure.
(ECF Nos. 614, 673.) Every forty-five days since December 28,
2018, counsel provided Special Master Greenspan with the
Court-ordered data. (ECF No. 673.) Special Master
Greenspan has filed three interim reports to the Court
regarding the data. (ECF Nos. 772, 949, 1105.) She also
collected Time and Expense Common Benefit Data. Data

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collection is ongoing in light of the proposed settlement. (See

ECF No. 1254.)

The negotiations on behalf of the Plaintiffs were conducted by

Co-Liaison Counsel and Co-Lead Class Counsel appointed by
the Court for this purpose, among other responsibilities. The
Subclass Settlement Counsel later appointed by the Court
participated in negotiations along with Co-Liaison Counsel
over how to allocate any settlement funds among the various
categories of claimants. These negotiations occurred under
the auspices of the Court and the supervision of the Court-
appointed Special Master.

In August of 2020, Plaintiffs and the State Defendants

announced that they had reached an agreement to settle their
claims for $600 million. In October of 2020, Plaintiffs and the
City Defendants preliminarily agreed to a $20,000,000
settlement, which required approval from the Flint City
Council on or before December 31, 2020. The Flint City
Council voted to join the settlement on December 21, 2020.
(ECF No. 1357, PageID.42106.) Plaintiffs and the McLaren
Defendants also agreed to settle for $20 million, and Plaintiffs
and Rowe agreed to settle for $1.25 million.

Id. at 411. Additional facts regarding the settlement are set forth below.

These include details on the negotiation process, the terms of the ASA,

the period after the Preliminary Approval Order was entered, the three-

day final fairness hearing that began on July 12, 2021, and the

registration and objections period.

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A. The Negotiation Process

Sen. Levin and Ret. Judge Harwood indicate in a declaration filed

through Special Master Greenspan on July 11, 2021 that they devoted

over 2,000 hours to mediating this case. (ECF No. 1885, PageID.66211–

66213.) They conducted numerous telephonic and in-person meetings

that were attended by up to fifty lawyers and client representatives.6 (Id.)

Both Sen. Levin and Ret. Judge Harwood attest that the aggregate

settlement amounts were achieved “through lengthy arms-length

negotiations in which, in our view as mediators, the plaintiffs obtained

the maximum amount of compensation that the settling defendants were

able and willing to offer.” (Id. at PageID.66212.) The declaration

concludes with Sen. Levin and Ret. Judge Harwood stating that “we

support the settlement amount pending before the Court. We believe it is

the product of informed, arms’ length negotiations by the parties,

represented by experienced and competent counsel, with due recognition

6 Sen. Levin, who was the longest-serving United States Senator in the State
of Michigan, died on July 29, 2021. His contribution to this case and to the settlement
cannot be overstated. A footnote in a judicial opinion hardly seems enough to
acknowledge and honor the loss of someone who made such a meaningful contribution
to our country, our state, and to the resolution of this case. May he rest in peace.
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of the complexity of the facts and legal issues in this litigation.” (Id. at

PageID.66212–66213.)

At the final approval and fairness hearing in July 2021, Special

Master Greenspan provided an oral report to the Court detailing her

involvement in over two years of vigorous settlement negotiations. (See

ECF No. 1904, PageID.66658–66669.) She indicated that the mediators

became involved in the negotiations in January 2018 and that the parties

identified the types of claims and issues that they considered essential

requirements for an eventual settlement. (Id. at PageID.66659.) This

aspect of the negotiations lasted several months. It was not until October

2018 that the parties were ready to begin developing the structural

elements of the settlement with the assistance of the Special Master. (Id.)

This part of the negotiation process took more than two years. (Id.)

According to the Special Master, “the two-year period was not the result

of taking a lot of breaks in the negotiation process. It was that hard. The

negotiation was that complicated. There are many, many issues that had

to be resolved.” (Id.)

During her oral report at the hearing, Special Master Greenspan

described thousands of hours, communications, meetings, drafts,

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proposals, counterproposals, and compromises that all of the parties

made throughout the entire negotiation process. (Id. at PageID.66659–

66660.) She indicated that over fifty lawyers participated in the

settlement discussions, and that the parties had “widely different views

about a multitude of issues.” (Id. at PageID.66660.) The Special Master

stated that by April 2019, Plaintiffs and the State Defendants agreed to

some basic settlement principles, but even then, both sides still had many

more issues to resolve before reaching an agreement. (Id. at

PageID.66662.)

The Special Master reported that after the basic elements of the

agreement were identified, the parties began negotiations on what would

become Exhibit 8 to the ASA, which is entitled the “Flint Water Cases

(FWC) Qualified Settlement Fund Categories, Monetary Awards, and

Required Proofs Grid (11/11/20)” (the “Compensation Grid”). (Id. (see also

ECF No. 1319-2, PageID.40789).) The Special Master described the

Compensation Grid negotiations as “very lengthy, very arduous, [and]

very substantive.” (Id. at PageID.66665.) For example, in late 2019, there

were six subclass counsel negotiating the allocation and distribution of

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funds on the class side of the settlement. (Id. at PageID.66663.) The

subclass allocation negotiations continued into 2020. (Id.)

The settlement was announced to the public in August 2020, and,

at that stage, the Compensation Grid was still not completely finalized.

(Id.) The parties continued negotiating aspects of the Compensation Grid

and other details between August and November 17, 2020, when the

motion for preliminary approval was filed. (Id.) During those months,

three additional Defendants (the City Defendants, the McLaren

Defendants, and Rowe) joined the settlement.

Special Master Greenspan emphasized in her report that the

settlement negotiations and ultimate agreement were “not dictated by

any one party. This was not the product of one side or another

determining what they thought would be the best settlement. This

reflects a compromise. It reflects dedication to the process. It reflects

extensive research and analysis and discussion. It reflects engagement of

the parties.” (Id. at PageID.66666.) She summed up the negotiations as

follows:

This may be one of the longest and most complicated

settlement negotiations I’ve ever been involved in. It has been
– and for several, several reasons including just the nature of
the claims here and the nature of the parties involved. But I
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think that the process was one that reflects exactly what you
want to have in a settlement negotiation. It was arm’s length.
It was hard fought. And everyone made appropriate
compromises in order to achieve what everyone believed was
a correct, reasonable, and fair goal.
(Id. at PageID.66668.)

The Special Master also discussed the active role the State of

Michigan played in the negotiations, which was echoed by Margaret

Bettenhausen, counsel for the State Defendants, at the final fairness

hearing. (ECF No. 1904, PageID.66543.) Bettenhausen stated that when

negotiating settlements in large and complex litigation such as this,

typically the Defendants’ sole focus is on how much money they will pay;

the Defendants often believe that after that amount is determined, their

role ends. But in this case, the State Defendants “negotiated with

literally dozens of different plaintiffs’ attorneys for well over a year and

many all day and late night face-to-face meetings . . . involve[ing]

hundreds of hours and thousands of written, verbal follow-up . . .

communications.” (Id. at PageID.66544–66545.) Bettenhausen also noted

that the State Defendants’ “goal and interest in this settlement has never

been just to pay money and walk away from the City of Flint. Very much

the opposite.” (Id. at PageID.66545.)

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These sentiments are echoed by the sworn statements of appointed

interim subclass settlement counsel. For example, Larry E. Coben,

Interim Subclass Settlement Counsel for the Children’s Injury Subclass,

was appointed by the Court in August 2019 to negotiate on behalf of

Minors. (ECF No. 929.) Coben, through Co-Lead Class Counsel,

submitted a declaration in support of final approval of the settlement

indicating that the negotiations he engaged in “with respect to how an

aggregate settlement amount paid by the Settling Defendants would be

allocated” were conducted at arm’s length. (ECF No. 1319-5,

PageID.41253–41254.) He states that in his independent determination,

the ASA is “fair and in the best interests of the minors participating in

the settlement.” (Id. at PageID.41254.) Reed Colfax, Interim Subclass

Settlement Counsel for Older Children’s Injury (ages 7-17) Subclass,

concurs. (ECF No. 1319-6.) As does Seth R. Lesser, Interim Subclass

Settlement Counsel for a Future Manifesting Injury Subclass (ECF No.

1319-7), Sarah R. London, Interim Subclass Settlement Counsel for a

Property Damage Subclass (ECF No. 1319-8), Dennis C. Reich, Interim

Subclass Settlement Counsel for a Business Economic Loss Subclass

(ECF No. 1319-9), and Vincent J. Ward, Interim Subclass Settlement

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Counsel for an Adult Injury Subclass. (ECF No. 1319-10.) These

individuals, representing separate subclass interests, all attest that the

negotiations regarding the aggregate settlement amount and its

allocation between the various proposed subclasses were vigorous, were

conducted at arm’s length, and achieved a fair result. (See ECF Nos.

1319-5, 1319-6, 1319-7, 1319-8, 1319-9, and 1319-10.)

B. The Amended Settlement Agreement (“ASA”)

The ASA contains provisions that apply to Minors, Legally

Incapacitated Individuals (“LIIs”), Future Minor Claimants, Adults,

property owners and renters, and business owners and operators. (ECF

No. 1394-2.) In addition, the ASA addresses funding for Programmatic

Relief, which will provide special education services for qualifying

individuals.7 (Id. at PageID.54149–54150.) The basic components of the

ASA, as well as the processes and procedures that ensure multiple layers

of oversight and integrity in the decisions made under the ASA, are

discussed below.

7 In its Preliminary Approval Order, the Court discussed in detail the ASA’s
terms and the provisions that apply to Minors, LIIs, and Future Minor Claimants, as
well as the provisions that relate to Programmatic Relief. See Preliminary Approval
Order, 499 F. Supp. 3d at 412–19.
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The ASA provides that the Settling Defendants are to deposit their

agreed-upon Settlement Amounts in the established FWC Qualified

Settlement Fund. (Id. at PageID.54138–54140.) The State Defendants

are obligated to pay $600,000,000; the Flint Defendants are obligated to

pay $20,000,000; the McLaren Defendants are obligated to pay

$5,000,000;8 and Rowe is obligated to pay $1,250,000. (Id. at

PageID.40338.)

The ASA appoints Archer Systems, LLC as the Claims

Administrator. The Claims Administrator has many important roles,

which include: (1) reviewing registration and claims submissions in a

timely and accurate fashion; (2) setting up a secure database with

claimant information; (3) coordinating and communicating with the

parties; (4) providing monthly reports to counsel; and (5) establishing

evidentiary review procedures to prevent fraud. (Id. at PageID.54160.)

The Court oversees and retains jurisdiction over the Claims

Administrator and may request reports or other information from the

Claims Administrator at any time. (Id. at PageID.54163.)

8 The McLaren Defendants’ payment obligations are discussed further below.

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The Special Master oversees various aspects of the settlement

pursuant to the ASA. Her duties include: (1) consulting with the Claims

Administrator and making decisions regarding registration and

participation; (2) considering and deciding, in a timely fashion, any

appeals taken by participants (which is discussed further below); and (3)

handling any disputes that arise involving the ASA. (Id. at

PageID.54163–54174.)

In addition, the ASA provides for a Settlement Planning

Administrator (“SPA”). (Id. at PageID.54164–54165.) The SPA’s role

relates only to claims made by Minors. (Id.) The SPA is charged with

ensuring the efficient and timely funding of Special Needs Trusts and

Settlement Preservation Trusts and providing appropriate

documentation of Structured Settlements. (Id.) The SPA is overseen and

supervised by both the Master Guardian Ad Litem (“Master GAL”)

Miriam Wolock and the Special Master. (Id.) Accordingly, there are

multiple levels of protection over the settlement funds and its

administrators.

The ASA establishes a registration process. It requires all members

of the Settlement Class and all Individual Plaintiffs who wish to

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participate in the settlement to submit a Registration Form to the Claims

Administrator no later than March 29, 2021. See Preliminary Approval

Order, 499 F. Supp. 3d at 433 (indicating the deadline for registration).

The ASA specifies a process and procedure for the Claims Administrator

to follow after the registration period closes. The Claims Administrator

must review the information and proofs provided on the Registration

Forms and must consult with the Special Master on any discretionary

decisions that need to be made during the review.9 (ECF No. 1394-2,

PageID.54150–54151.) The ASA also allows individuals who failed to

submit all required information upon their initial registration to re-

submit their materials. (Id. at PageID.54142.) Therefore, no one is

excluded from participating in the settlement merely because they

initially submit an incomplete or incorrect Registration Form.

The ASA provides that after the Claims Administrator has

reviewed the Registration Forms, the Claims Administrator will post a

9 Although the ASA states that the Claims Administrator must review every
Registration Form within fourteen days of receipt (ECF No. 1394-2, PageID.54142),
in practice, this process was much more complicated. The Special Master addressed
this in a report regarding the status of registrations as of May 27, 2021 (ECF No.
1790, PageID.64246–64250) and again on October 27, 2021. (ECF No. 2005,
PageID.68708–68717.)
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list of “all persons and entities who have registered and been found

eligible to participate as a Claimant in the Settlement Program.” (Id.)

The posting of this list triggers two events: first, it triggers the start of

the Claims Process, and second, it triggers the Settling Defendants’

Walk-Away Rights under the ASA. (Id.)

As to the Claims Process, eligible participants on the Claims

Administrator’s list are required to submit their Claim Materials to the

Claims Administrator within a specified time.10 (Id. at PageID.54141–

54142.) The Claims Materials include the documents listed on the Claim

Form (see ECF No. 1319-2, PageID.40740–40745), a fully executed

Release (see id. at PageID.40784–40787, 41223–41227, 41248), and the

applicable Lien Disclosure Form (see id. at PageID.40844–40846). (ECF

No. 1394-2, PageID.54142–54143.) Claimants who deliver proper,

complete, and fully executed Claim Materials by the deadline are eligible

to receive a Monetary Award, as discussed further below. (Id.)

Regarding the Walk-Away Rights triggered by the Claims

Administrator’s posting of the eligible registrant list, each Settling

10 Due to the delays reported by the Special Master, the deadline for submitting
Claims Materials to the Claims Administrator set forth in the Preliminary Approval
Order is inoperative.
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Defendant has the right to “walk away” from the ASA in its sole

discretion, but only for the reasons specified in the ASA, as applicable to

each Settling Defendant. (Id. at PageID.54181–54182.) Settling

Defendants have thirty days after the receipt of the final registrant list

to exercise their right to walk away from the ASA. (Id. at PageID.54182.)

Once the Claims Process begins, the Claims Administrator’s focus

shifts to determining Monetary Awards. (Id. at PageID.54143–54149.)

On the Claim Form, a Claimant may select the Settlement Category that

they believe is applicable. (Id. at PageID.54143.) The FWC Qualified

Settlement Fund is divided into six Sub-Qualified Settlement Funds

which are:

 Minors six years old or younger on the date the individual was first
exposed to Flint Water;

 Minors age seven to eleven years old on the date the individual was
first exposed to Flint Water;

 Minors age twelve to seventeen years old on the date the individual
was first exposed to Flint Water;

 Adults age eighteen and over on the date the individual was first
exposed to Flint Water;

 Residential Property Owners/Renters; and

 Businesses that experienced property and economic losses.

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(Id. at PageID.54146.)

The net funds11 available from the FWC Qualified Settlement Fund

for payments to Claimants are allocated into the Sub-Qualified

Settlement Funds as follows:

 Minor children age six or younger (the “Minor Child Sub-Qualified

Settlement Fund”) receive 64.5% of the net funds;

 Minor children age seven to eleven (the “Minor Adolescent Sub-

Qualified Settlement Fund”) receive 10% of the net funds;

 Minor children age twelve to seventeen (the “Minor Teen Sub-

Qualified Settlement Fund”) receive 5% of the net funds;

 $35,000,000 of the net funds are set aside for Future Minor
Plaintiffs, as described in the Preliminary Approval Order, 499 F.
Supp. 3d at 417;

 Adults receive 15% of the net funds;

 Property owners and renters receive 3% of the net funds;

 Business owners and operators receive 0.5% of the net funds; and

 2% of the net funds are set aside for the Programmatic Relief
portion of the settlement, which was described in the Preliminary
Approval Order, 499 F.Supp.3d at 417–18.

(Id.)

The net funds are calculated by subtracting the costs, attorney fees, and
11

expenses from the gross amount of money in the FWC Qualified Settlement Fund.
(ECF No. 1394-2, PageID.54146.)
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Accordingly, those who qualify as a Minor Child, Minor Adolescent,

and Minor Teen under the ASA receive the largest proportion, or 79.5%,

of the net funds.

There are thirty Settlement Categories presented in the

Compensation Grid, which is attached to the ASA as Exhibit 8. (ECF No.

1319-2, PageID.40789–40831.) The Settlement Categories include:

individuals of any age with lead levels in their blood or bone; Minor

Children, Minor Adolescents, and Minor Teens with cognitive deficits;

Minor Children who were born preterm or with a low birth weight; Minor

Children who were formula fed; Minor Children, Minor Adolescents, and

Minor Teens who lived in a residence with residential water with a

specified level of lead or with lead or galvanized steel service lines; Minor

Children, Minor Adolescents, and Minor Teens who were exposed to Flint

Water during the Flint Water Crisis but have none of the proofs of

exposure set forth above; Minor Children, Minor Adolescents, and Minor

Teens who were exposed to Flint Water after July 31, 2016; Adults with

serious personal injuries; Adults with physical injuries; Adults exposed

to Flint Water after July 31, 2016 and with a lead level or physical injury;

women who suffered from miscarriages; individuals who were diagnosed

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with legionnaires disease, resulting in illness or death; individuals who

owned or rented residential property; and businesses that suffered from

property damage or economic loss. (See ECF No. 1319-2, PageID.40789–

40831.) These Settlement Categories are discussed further below. Each

one provides for a different level of compensation; however, all Claimants

who qualify for the same Settlement Category are compensated under

the Compensation Grid equally. In other words, every Claimant in a

certain Settlement Category receives an identical amount of

compensation as all other Claimants in that Category. But the actual

compensation these Claimants receive may vary because each Claimant’s

outstanding liens (if any) are deducted from the individual award. (ECF

No. 1394-2, PageID.54146–54147.) Liens are addressed separately below.

These Settlement Categories are the only distinction between

Claimants’ Monetary Awards in the ASA. Accordingly, individuals are

treated the same in terms of their eligibility to qualify for a Settlement

Category, regardless of whether they are represented by their own

counsel or whether they are members of the Settlement Class proceeding

with or without the assistance of a lawyer. Individuals who might

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otherwise be barred from bringing a claim by the statute of limitations or

statute of repose would not be barred from recovering under the ASA.

With respect to Liens, the ASA provides that Claimants are

responsible for informing the Claims Administrator and the Lien

Resolution Administrator of all known Liens with claims against their

monetary award. (Id. at PageID.54172.) The Claims Administrator is

authorized under the ASA to establish procedures and protocols to

resolve certain liens on behalf of Claimants.12 (Id.) In this way, the ASA

streamlines the lien-satisfaction process and maximizes the possibility

that Claimants’ liens could be satisfied at a discount, which has been

achieved in other settlements nationwide. See, e.g., In re N.F.L. Players’

Concussion Inj. Litig., 307 F.R.D. 351, 367 (E.D. Pa. 2015) (noting similar

programs where a lien satisfaction discount was negotiated in “the Vioxx,

Avandia, Zyprexa, and Deepwater Horizon settlements”).

The ASA provides for a reconsideration process for Claimants to

undertake if they disagree with a decision by the Claims Administrator

12 The State of Michigan has agreed not to pursue certain Medicaid liens
incurred as a result of injuries caused from ingestion of Flint water during the
relevant time period. (ECF No. 1394-2, PageID.54171.) This is potentially a
significant benefit to many Claimants.
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the Claims Administrator, such as the determination of their Settlement

Category on the Compensation Grid. Participants in the reconsideration

process may submit a Reconsideration Request and, if the dispute

remains, they may submit an appeal to the Special Master. (ECF No.

1394-2, PageID.54168–54170.) In addition, the ASA sets forth a thorough

dispute resolution procedure for disputes involving “the meaning of,

compliance with, and/or implementation of the Settlement Agreement.”

(Id. at PageID.54170.) This dispute resolution procedure is the “exclusive

mechanism to resolve disputes and disagreements arising under the

Settlement Agreement.” (Id. at PageID.54170–54171.)

In exchange for participating in the settlement, Claimants provide

the Settling Defendants with Releases and Covenants Not to Sue

(“Releases”). The Releases release the Settling Defendants from: (1) all

claims, notices, demands, suits, and causes of action, known and

unknown; (2) damages whenever incurred and liabilities of any nature,

whatsoever; and (3) liability arising from the alleged acts or omissions of

any of the Claimants plead in their complaints. (Id. at PageID.40384–

40385.) Individuals who sign the Releases (“Releasors”) agree not to

initiate, continue, or help with any proceeding against the Settling

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Defendants and agree not to challenge the validity of the Releases.

Releasors acknowledge that they waive all future claims against the

Settling Defendants. (Id. at PageID.54176–54177.) Further, the ASA

separately provides that the Settling Defendants release one another

from any claims they have now or in the future arising out of the Flint

Water Crisis. (Id. at PageID.54177–54178.)

C. Registration Forms and Objections Received by

the March 29, 2021 Deadline

The Court issued its Preliminary Approval Order on January 21,

2021 and the Order took effect on January 27, 2021. Preliminary

Approval Order, 499 F. Supp. 3d at 433. (See ECF No. 1399.) Since then,

public response to the settlement has been overwhelmingly positive.

Special Master Greenspan reported that over 85,000 Registration Forms

were submitted to the Claims Administrator by the March 29, 2021

registration deadline and that at least 50,614 of those registrations are

unique claims.13 (ECF No. 1790, PageID.64248; see also ECF No. 1394-2,

13 The Special Master is working with counsel to help to assure coordination

among law firms that represent the same individual and to thereby avoid as much as
possible duplicate claim submissions. The Claims Administrator will also be able to
identify duplicate claimants once claim forms are submitted. It is likely that the
number of unique registrants will exceed the previously reported number.
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PageID.54141 (establishing the registration deadline in ¶ 3.12).) This is

particularly remarkable because the City of Flint’s population is

estimated to be less than approximately 100,000, so this means that over

half of the current population of Flint is participating in the settlement.

See Quick Facts Flint City, Michigan, United States Census Bureau,

https://www.census.gov/quickfacts/flintcitymichigan

[https://perma.cc/6LQ6-4H76].

Pursuant to the ASA, the March 29, 2021 registration deadline is

also the deadline for filing objections. Preliminary Approval Order, 499

F. Supp. 3d at 433. (See also ECF No. 1394-2, PageID.54184–54185.) As

set forth in the ASA, a registered Claimant who does not submit a written

request to be excluded from the Settlement Class is permitted to “present

written objections, if any, explaining why he or she believes the

Settlement Agreement should not be approved by the Federal Court as

fair, reasonable, and adequate.” (Id. at PageID.54184.)

The ASA imposes additional requirements for objections, including

that objectors, whether represented by counsel or not: (1) file their

written objection on the docket in this case no later than the March 29,

2021 deadline; (2) include in the objection a “detailed written statement”

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explaining the basis of each objection, “as well as specific reasons, if any,

for each such objection, including any evidence and legal authority the

Claimant wishes to bring to the Federal Court’s attention” (id.); (3)

include in the objection “the Claimant’s printed name, address, telephone

number, and date of birth, [and] written evidence establishing that the

objector is a Claimant” (id.); (4) submit any other supporting papers,

materials, or briefs the Claimant wishes the Federal Court to consider

when reviewing the objection” (id.); and (5) sign the objection themselves

(not through their counsel). Under the ASA, individuals who fail to

comply with these requirements waive and forfeit all rights to object to

the settlement; however, it is up to the Court to determine whether any

Claimants who fail to follow these procedures waive these rights. (Id. at

PageID.54184–54185.)

The Court received 106 timely objections from registered

individuals who are unrepresented by counsel (“Unrepresented

Objectors”).14 There are counselled objections from only one attorney on

14 Unrepresented Objectors were required to mail their objections to the Clerk

of the Court for docketing. Due to the COVID-19 pandemic and delays in the U.S.
Postal Service, the Court accepted all objections, even those postmarked after the
March 29, 2021 deadline. The Court received and docketed twenty-three objections
from self-represented individuals who were later verified as non-registrants to the
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behalf of his clients.15 Attorney Mark Cuker, who represents just under

1,000 participants in the settlement, filed twelve objections on behalf of

settlement. (ECF Nos. 1561, 1566, 1567, 1602, 1617, 1626, 1627, 1640, 1648, 1654,
1658, 1659, 1667, 1672, 1683, 1691, 1706, 1750, 1752, 1753, 1757, 1758, 1759.)
Accordingly, these objections need not be considered because they fail to meet the
requirements than an objector be a registered Claimant.

The Court received and docketed thirteen objections that were later withdrawn
by objectors’ counsel. (See ECF No. 1767 (withdrawn, ECF Nos. 1886, 1892); ECF No.
1763 (withdrawn, ECF Nos. 1886, 1892); ECF No. 1748 (withdrawn, ECF Nos. 1886,
1892); ECF No. 1639 (withdrawn, ECF No. 1805); ECF No. 1673 (withdrawn, ECF
Nos. 1886, 1892); ECF No. 1661 (withdrawn, ECF No. 1803); ECF No. 1688
(withdrawn, ECF Nos. 1886, 1892); ECF No. 1680 (withdrawn, ECF No. 1879); ECF
No. 1629 (withdrawn, ECF Nos. 1886, 1892); ECF No. 1616 (withdrawn, ECF No.
1804), ECF No. 1615 (withdrawn, ECF No. 1886); ECF No. 1560 (withdrawn, ECF
No. 1882); ECF No. 1629 (withdrawn, ECF Nos. 1886, 1892).) Accordingly, these
objections need not be considered.

The Court also received two additional objections from self-represented but
unregistered, individuals. Unlike the previous twenty-three, however, by the time the
two objections were received, the Court was able to verify that the objectors were not
registered Claimants before they were docketed. Accordingly, those two objections
were not docketed and will not be considered.
15 There were originally three attorneys who filed objections on behalf of their
clients. Attorney for the Washington Plaintiffs, Stephen Monroe, filed, and later
withdrew, ten objections on behalf of his clients. (See ECF No. 1855 (withdrawing
ECF No. 1506); ECF No. 1856 (withdrawing ECF No. 1507); ECF No. 1866
(withdrawing ECF No. 1508); ECF No. 1867 (amended notice withdrawing ECF No.
1509); ECF No. 1875 (withdrawing ECF No. 1510); ECF No. 1858 (withdrawing ECF
No. 1511); ECF No. 1863 (withdrawing ECF No. 1512); ECF No. 1862 (withdrawing
ECF No. 1513); ECF No. 1859 (withdrawing ECF No. 1514); and ECF No. 1874
(withdrawing ECF No. 1515).)

Additionally, Valdemar Washington filed one objection on behalf of one of his

clients, Dr. Lawrence Reynolds. (See ECF Nos. 1436 (Objection), 1437 (Notice), 1444
(Notice), and 1445 (Certificate of Service).) Washington later withdrew from
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eighteen of his clients. (See ECF No. 1904, PageID.66627 (stating that

Cuker has approximately 980 clients registered in the settlement).)

These objectors are referred to as the “Chapman/Lowery Objectors.”16

(See ECF Nos. 1463, 1471 (correcting ECF No. 1469), 1484, 1485, 1488,

1489, 1492, 1493, 1534, 1436, 1537, and 1538.)

Assuming that the final number of unique registrations is equal to

or greater than the conservative estimate of 50,164, the total number of

objectors represents approximately 0.002% of the unique registrants.

Therefore, the total number of objectors to the ASA is exceedingly small

in comparison to the overwhelming number of non-objecting participants.

The substance of all objections will be discussed in Section IV below.

The Court also received several objections related to Plaintiffs’

motion for attorney fees. These will be discussed in a separate opinion

and order.

representing Dr. Reynolds, which is discussed further in footnote 17, below. (See ECF
No. 1898 (Order granting ECF No. 1891).)
16The Chapman/Lowery objections overlap almost verbatim, and, accordingly,
the Court cites to only one representative objection when discussing them.

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D. Fairness Hearing

On July 12, 13, and 15, 2021, the Court held a fairness hearing on

the final approval motion and Plaintiffs’ request for attorney fees and

expenses. (ECF Nos. 1794, 1795, and ECF No. 1458 (as supplemented by

ECF No. 1796).)

The Court held the hearing for two reasons: first, because part of

the settlement is class-based, and Federal Rule of Civil Procedure 23(e)

requires a hearing before deciding whether to approve a class-based

settlement; second, because the largest portion of settlement funds is

allocated to persons who are Minors and settlements with Minors require

supervision. The standard for approval of a settlement under Rule 23 is

set forth in greater detail below. In general, the fairness hearing permits

the parties to “proffer sufficient evidence to allow the district court to

review the terms and legitimacy of the settlement.” Int’l Union, United

Auto., Aerospace, & Agric. Implement Workers of Am. v. Gen. Motors

Corp., 497 F.3d 615, 635 (6th Cir. 2007) (internal citations omitted). The

hearing also permits the Court to hear from objectors to the settlement.

See id.

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The Court has “wide latitude” in determining the procedural

safeguards of the hearing. Id. The Court “may limit the fairness hearing

to whatever is necessary to aid it in reaching an informed, just and

reasonable decision and need not endow objecting class members with

the entire panoply of protections afforded by a full-blown trial on the

merits.” Id. (internal citations omitted). In this case, however, due to the

complexity of the ASA and the objections, the Court did not limit the

amount of time the parties had to make their presentations. The hearing

lasted six hours and forty minutes on July 12, 2021, three hours and four

minutes on July 13, 2021, and five hours and forty-four minutes on July

15, 2021.

On July 12, 2021, the Court heard arguments in support of final

approval of the settlement from Co-Lead Class Counsel, Co-Liaison

Counsel for Individual Plaintiffs, and counsel for the State Defendants.

It received oral reports from Special Master Deborah Greenspan and the

Master GAL Miriam Wolock. Master GAL Wolock also filed a written

report. (ECF No. 1896.) Finally, the Court heard argument on counselled

objections, which were presented by counsel for the Chapman/Lowery

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Objectors and by Dr. Lawrence Reynolds.17 The content of these

objections and the Court’s rulings on them are discussed below.

On July 13, 2021, the Court sat on the bench at the Genesee County

Circuit Court in Flint, Michigan, along with Judge Joseph J. Farah of

that court. Judge Farah presides over the Genesee County Circuit Court

civil Flint Water Cases docket. Together, the Undersigned and Judge

Farah heard from fifteen Unrepresented Objectors18 (ECF No. 1905

(transcript)): (1) A.C. Dumas (ECF No. 1603 (written objection)); (2) Eric

Mays (ECF No. 1686 (written objection)); (3) James Moore (ECF No. 1749

(written objection)); (4) Diane Fletcher (ECF No. 1684 (written

objection)); (5) Claire McClinton (ECF No. 1696 (written objection)); (6)

Chris Del Morone (ECF No. 1627 (written objection)); (7) Autrice Young

(ECF No. 1694 (written objection, docketed under the name Autrice

17 Dr. Reynolds’ objection was originally filed through his then-counsel

Valdemar Washington. As a result, argument on Dr. Reynolds’ objection was
scheduled to be heard on July 12, 2021, the date set aside for hearing counselled
objections. Washington later withdrew his representation of Dr. Reynolds, but Dr.
Reynolds remained on the July 12, 2021 hearing schedule, as set forth in the Court’s
hearing notice. (See ECF No. 1814, PageID.64773.)
18 The Court served the hearing notice on all Unrepresented Objectors via U.S.
Mail on June 4, 2021. (ECF No. 1814, PageID.64777.) The Notice contained specific
instructions for Unrepresented Objectors who wished to speak at the hearing to sign
up to be heard. (Id. at PageID.64774–64776.)
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Battiste)); (8) Audrey Young-Muhammed (ECF No. 1693 (written

objection)); (9) Freelon Threlkeld (ECF No. 1699 (written objection)); (10)

Anita Smylor (ECF No. 1741 (written objection)); (11) Karen Weaver

(ECF No. 1656 (written objection)); (12) Claudia Perkins-Milton (ECF No.

1604 (written objection)); (13) Deborah Holmes (ECF No. 1813 (written

objection)); (14) Virginia Murphy (ECF No. 1766 (written objection)); and

(15) Joelena Freeman (ECF No. 1652 (written objection)). The content of

these objections (as well as the objections filed by the remaining

Unrepresented Objectors who did not sign up to speak at the hearing)

and the Court’s rulings on them are discussed below.

At the end of the hearing on July 13, 2021, the Court heard from

attorney Bettenhausen for the State Defendants. She briefly addressed

the State of Michigan’s inspection of the bone lead level testing office,

which was established in Flint, Michigan, by the Napoli Shkolnik law

firm. The Napoli Shkolnik bone lead level testing program is addressed

in detail below in Section IV.

On July 15, 2021, the Court heard argument and objections

regarding Plaintiffs’ motion for attorney fees and expenses. Special

Master Greenspan provided an oral report on the work she performed

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pursuant to the Case Management Order Regarding Time and Expense

Procedures. (See ECF No. 507.) Additionally, the Special Master

submitted data obtained pursuant to that Order to the Court in camera

in advance of the hearing and the Undersigned has spent a great many

hours reviewing these submissions. The Court then heard a presentation

from Co-Liaison Counsel regarding the motion for attorney fees, followed

by presentations by counsel for the Hall Objectors, the Chapman/Lowery

Objectors, the Anderson Plaintiffs, and Plaintiff Brown. (ECF No. 1814,

PageID.64776–64777 (see also Text-Only Order (June 10, 2021)).) At the

end of the hearing on July 15, 2021, the Court heard briefly from William

Kim, counsel for the City Defendants. (ECF No. 1906, PageID.67101.)

Kim reiterated to the Court that on Marcy 22, 2021 the City passed a

Resolution Calling for Transparency in the Review of Attorney Fees and

Reimbursement of Expenses for the Flint Water Litigation Settlement.

(ECF No. 1555-1, PageID.60401.) The substance of the parties’ positions

are set forth in a separate opinion and order.

E. Other Matters Post-Fairness Hearing

On October 20, 2022, the Court issued a Stipulated Order amending

the ASA to allow the McLaren Defendants to waive their Walk-Away

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Rights under Paragraph 18.2 in exchange for their continued

participation as a Settling Party and allowing the McLaren Defendants’

total contribution to the FWC Qualified Settlement Fund to be

$5,000,000. The reasons for this amendment and for the stipulation are

set forth in the Court’s Opinion and Order Granting Plaintiffs’, State

Defendants’, Rowe’s and the McLaren Defendants’ Stipulation. (See ECF

Nos. 1993, 1996.)

II. LEGAL STANDARD

As noted, the ASA resolves claims in class action and non-class

action lawsuits. And in the non-class actions, Minors and LIIs, as defined

under Michigan law, are parties. The Court plays a different role when a

settlement is reached in each of these kinds of cases. In non-class action

cases, the parties may settle the case and stipulate to its dismissal

without obtaining court approval. See Fed. R. Civ. P. 41(a)(1)(A)(ii). But

if Minors and LIIs are parties to a non-class action, as they are here, the

Court has a duty to evaluate whether there are adequate protective

measures in the settlement that comply with Michigan law to protect

these individuals’ rights. See, e.g., Mich. Ct. R. 2.201(E)(1)(6) (requiring

that a “competent and reasonable person” be appointed as Next Friend

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for Minors and LIIs); Mich. Ct. R. 5.125 and 2.420 (setting forth the State

of Michigan’s probate procedures applicable to Minors and LIIs).

Meanwhile, claims in a class action “may be settled . . . or compromised

only with the court’s approval.” Fed. R. Civ. P. 23(e).

Rule 23, which applies to class actions, provides that if a proposed

settlement or compromise:

would bind class members, the court may approve it only after
a hearing and only on finding that it is fair, reasonable, and
adequate after considering whether:
(A) the class representatives and class counsel have
adequately represented the class;
(B) the proposal was negotiated at arm’s length;
(C) the relief provided for the class is adequate, taking
into account:
(i) the costs, risks, and delay of trial and appeal;
(ii) the effectiveness of any proposed method of
distributing relief to the class, including the
method of processing class-member claims;
(iii) the terms of any proposed award of attorney’s
fees, including timing of payment; and
(iv) any agreement required to be identified under
Rule 23(e)(3);19 and

19 Rule 23(e)(3) states that “[t]he parties seeking approval must file a
statement identifying any agreement made in connection with the proposal.” Fed. R.
Civ. P. 23(e)(3).

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(D) the proposal treats class members equitably relative

to each other.

Fed. R. Civ. P. 23(e)(2).

The Sixth Circuit also lists factors to guide the Court’s inquiry into

whether a proposed class action settlement is fair, reasonable, and

adequate.20 They are:

(1) the risk of fraud or collusion; (2) the complexity, expense,

and likely duration of the litigation; (3) the amount of
discovery engaged in by the parties; (4) the likelihood of
success on the merits; (5) the opinions of class counsel and
class representatives; (6) the reaction of absent class
members; and (7) the public interest.

20 The Sixth Circuit set forth these factors in International Union v. General
Motors Corp., 497 F.3d 615 (6th Cir. 2007) before Rule 23(e) was amended in 2018 to
codify many of the same factors. The Advisory Committee’s note to this amendment
states that:

The central concern in reviewing a proposed class-action settlement is

that it be fair, reasonable, and adequate. Courts have generated lists of
factors to shed light on this concern. Overall, these factors focus on
comparable considerations, but each circuit has developed its own
vocabulary for expressing these concerns. In some circuits, these lists
have remained essentially unchanged for thirty or forty years. The goal
of this amendment is not to displace any factor, but rather to focus the
court and the lawyers on the core concerns of procedure and substance
that should guide the decision whether to approve the proposal.

Fed. R. Civ. P. 23(e)(2) Advisory Committee’s Note to 2018 Amendments. Judges in

the Eastern District of Michigan consider the Sixth Circuit factors in addition to the
Rule 23 factors. Therefore, the Court will do the same.

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Int’l Union, 497 F.3d at 631 (citations omitted). “Of the [International

Union] factors, ‘[t]he most important of the factors to be considered in

reviewing a settlement is the probability of success on the merits.’” Doe

v. Déjà Vu Consulting, Inc., 925 F.3d 886, 894 (6th Cir. 2019) (quoting

Poplar Creek Dev. Co. v. Chesapeake Appalachia, L.L.C., 636 F.3d 235,

245 (6th Cir. 2011)).

In addition to the seven International Union factors, “in evaluating

the fairness of a settlement, [the Sixth Circuit has] also looked to whether

the settlement gives preferential treatment to the named plaintiffs while

only perfunctory relief to unnamed class members.” Vassalle v. Midland

Funding LLC, 708 F.3d 747, 755 (6th Cir. 2013). Inequities in treatment

may “make a settlement unfair.” Id.

The Court must determine whether the notice to the class satisfies

due process. Due process “does not require the notice to set forth every

ground on which class members might object to the settlement;” rather,

“[a]ll that the notice must do is ‘fairly apprise the prospective members

of the class of the terms of the proposed settlement.’” Vassalle, 708 F.3d

747, 759 (6th Cir. 2007).

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The Court must decide whether to certify the class for settlement

purposes. To certify a class for settlement purposes, the Court must find

that the class satisfies all of the requirements of Federal Rule of Civil

Procedure 23(a) and one of the requirements of Rule 23(b). Rule 23(a)

states:

One or more members of a class may sue or be sued as

representative parties on behalf of all members only if:
(1) the class is so numerous that joinder of all
members is impracticable;
(2) there are questions of law or fact common to the
class;
(3) the claims or defenses of the representative
parties are typical of the claims or defenses of the
class; and
(4) the representative parties will fairly and
adequately protect the interests of the class.

Fed. R. Civ. P. 23(a). And Rule 23(b) states:

A class action may be maintained if Rule 23(a) is satisfied and

if:
(1) prosecuting separate actions by or against individual class
members would create a risk of:
(A) inconsistent or varying adjudications with
respect to individual class members that would
establish incompatible standards of conduct for
the party opposing the class; or

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(B) adjudications with respect to individual class

members that, as a practical matter, would be
dispositive of the interests of the other members
not parties to the individual adjudications or
would substantially impair or impede their ability
to protect their interests;
(2) the party opposing the class has acted or refused to act on
grounds that apply generally to the class, so that final
injunctive relief or corresponding declaratory relief is
appropriate respecting the class as a whole; or
(3) the court finds that the questions of law or fact common to
class members predominate over any questions affecting only
individual members, and that a class action is superior to
other available methods for fairly and efficiently adjudicating
the controversy. The matters pertinent to these findings
include:
(A) the class members’ interests in individually
controlling the prosecution or defense of separate
actions;
(B) the extent and nature of any litigation
concerning the controversy already begun by or
against class members;
(C) the desirability or undesirability of
concentrating the litigation of the claims in the
particular forum; and
(D) the likely difficulties in managing a class
action.

Fed. R. Civ. P. 23(b).

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Federal Rule of Civil Procedure 23(g) requires a court certifying a

class to appoint class counsel. The Court may only appoint an applicant

that is “adequate under Rule 23(g)(1) and (4). Fed. R. Civ. P. 23(g)(2).

Rule 23(g)(1) requires that the Court:

(A) must consider:

(i) the work counsel has done in identifying or
investigating potential claims in the action;
(ii) counsel’s experience in handling class actions,
other complex litigation, and the types of claims
asserted in the action;
(iii) counsel’s knowledge of the applicable law; and
(iv) the resources that counsel will commit to
representing the class;
(B) may consider any other matter pertinent to counsel’s
ability to fairly and adequately represent the interests of the
class;
(C) may order potential class counsel to provide information
on any subject pertinent to the appointment and to propose
terms for attorney’s fees and nontaxable costs;
(D) may include in the appointing order provisions about the
award of attorney's fees or nontaxable costs under Rule
23(h);21 and

21 Rule 23(h) states “[i]n a certified class action, the court may award
reasonable attorney’s fees and nontaxable costs that are authorized by law or by the
parties’ agreement.” Fed. R. Civ. P. 23(h). It then describes the procedures that apply
to the claim for an award, objections by class members, that a hearing may be held,
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(E) may make further orders in connection with the

appointment.
Fed. R. Civ. P. 23(g)(1). Rule 23(g)(4) states that “[c]lass counsel must

fairly and adequately represent the interests of the class.” Fed. R. Civ. P.

23(g)(4).

Finally, when evaluating a proposed class action settlement, the

Court must bear in mind “the federal policy favoring settlement of class

actions.” Int’l Union, 497 F.3d at 632; see also Albert Conte & Herbert

Newberg, Newberg on Class Actions § 11.41 (4th ed. 2002) (“Newberg”)

(“By their very nature, because of the uncertainties of outcome,

difficulties of proof, length of litigation, class action suits lend themselves

readily to compromise.”).

III. DISCUSSION

A. Non-Class Portion of the Settlement

Co-Liaison Counsel for Individual Plaintiffs filed a Brief in Support

of Final Approval of the Proposed Settlement, in which they address the

non-class portions of the settlement and request that the Court grant

and that the issues may be referred to a special master. See Fed. R. Civ. P. 23(h)(1)-
(4).
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final approval to the non-class portions of the ASA.22 (ECF No. 1795.) As

discussed, the ASA contains provisions related to Minors and LIIs, who

are not part of a Settlement Class, and Michigan law requires the Court

to evaluate those provisions. The non-class portion of the ASA also

applies to represented adults. While the Court does not ordinarily need

to review such settlements, the fact that all the represented adults are

participating in the aggregate settlement is notable. The Court’s

approval of the allocation and Compensation Grid satisfies any issues

that may pertain to the non-class participants. Final approval as to the

non-class portions of the ASA is granted.

In the January 21, 2021 Preliminary Approval Order, the Court

analyzed in detail the ASA’s provisions related to Minors and LIIs and it

granted preliminary approval of the ASA as it relates to these

individuals. See Preliminary Approval Order, 499 F. Supp. 3d at 412–18.

The ASA has not been altered in the interim. The Court therefore adopts

and incorporates the following language from the Preliminary Approval

22 In their brief, Co-Liaison Counsel for Individual Plaintiffs also respond to

objections to the ASA, which will be addressed in Section IV of this Opinion and
Order. (See ECF No. 1795, PageID.64479.)
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Order granting preliminary approval to the portions of the ASA related

to Minors and LIIs:

A. Minors and LIIs

At the preliminary approval stage, the Court must review the

MSA23 to determine whether the processes and procedures
related to Minors’ and LIIs’ claims are fair and in their best
interests. As set forth above, Guardian Ad Litem Miriam Z.
Wolock assisted in this review. Ms. Wolock provided an oral
report to the Court and the parties at the hearing held on
December 21, 2020. For the reasons set forth below, the Court
concludes that the processes and procedures set forth in the
MSA are fair and in the best interests of Minors and LIIs.

The provisions of the MSA applicable to Minors and LIIs are

the following: (1) Article XXI of the MSA (ECF No. 1319-1,
PageID.40393–40400 (as amended, ECF No. 1394-2,
PageID.54185–54192)); (2) the Registration Form (ECF No.
1319-2, PageID.40757–40763 (as amended, ECF No. 1394-3,
PageID.54214–54219)); (3) the Claim Form (ECF No. 1319-2,
PageID.40740–40745 (as amended, ECF No. 1394-5,
PageID.54231–54235)); (4) the monetary awards and proofs
grid (ECF No. 1319-2, PageID.40789–40831); (5) the Case
Management Order (ECF No. 1319-2, PageID.40848–40876
(as amended, ECF No. 1394-9, PageID.54286–54294)); (6)
Plaintiffs’ Fact Sheet (ECF No. 1319-2, PageID.40878–40897,
40899); (7) the Release by the Next Friend (ECF No. 1319-2,
PageID.41223–41227); and (8) the Non-Participation Notice
by Minors or LIIs (ECF No. 1319-2, PageID.41246).

1. Genesee County Circuit Court Assignment and

Appointment of Next Friends

23In the Preliminary Approval Order, the Court referred to the Amended
Settlement Agreement as the Master Settlement Agreement, or “MSA.” They are the
same document. (See ECF No. 1319-2, (as amended, ECF No. 1394-2).)
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First, the MSA provides that the parties will file motions to
permit the Genesee County Circuit Court, specifically Judge
Farah, to exercise the power and jurisdiction of the probate
court for the purposes of: (1) approving the types of
individuals who can act as Next Friends on behalf of Minors
and LIIs under the MSA; and (2) appointing a Master
Guardian Ad Litem (“Master GAL”) and two Panel Guardians
Ad Litem (“Panel GAL”) to supervise submissions by Next
Friends on behalf of Minors and LIIs. (ECF No. 1319-1,
PageID.40393.) This appointment would provide for
consistency in state-court rulings on settlement-related
matters. Moreover, Judge Farah, as a result of managing the
Genesee County Flint Water docket, is familiar with the
unique nature of the claims and parties, including those of
Minors and LIIs.

The MSA provides parameters for those who may be

authorized to act as Next Friends on behalf of Minors and
LIIs. (Id.) The MSA defines both the qualifications and proofs
required for this role. It incorporates Michigan Court Rule
2.201(E), which sets forth the legal parameters applicable to
proceedings involving a minor or incompetent person in
Michigan, including that the person acting as Next Friend be
“competent and responsible.” Mich. Ct. R. 2.201(E)(1)(b).

The MSA contains a proposed Registration Form that

participants in the settlement, including Minors and LIIs,
must complete within sixty days of the entry of an order
granting preliminary approval. [fn 10] (See ECF No. 1319-1,
PageID.40348–40353 (as amended, ECF No.1394-2,
PageID.54140–54145).) Section 3 of the Registration Form,
which is applicable only to Minors and LIIs, identifies the
person submitting the form on behalf of a Minor or LII, and
requires that the individual provide documents proving their
relationship to the claimant. (ECF No. 1319-2, PageID.40759–
40761.) The information sought in Section 3 of the
Registration Form mirrors the requirements set forth in
Michigan Court Rule 2.201. Also, the Claim Form contains

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similar provisions and checkboxes to the Registration Form.

(ECF No. 1319-2, PageID.40740–40745 (as amended, ECF No.
1394-3, PageID.54214–54219).)

[fn 10] As set forth further below, this Order will

be effective on January 27, 2021, and, because
Sunday March 28, 2021 falls on a weekend, the
sixty-day deadline is Monday[,] March 29, 2021.

Ms. Wolock concluded that the Registration Form has a “clear

and understandable application to act as [N]ext [F]riend and
defines a group of individuals who may serve in this capacity,”
and it “tracks all the requirements under Michigan law.”
(ECF No. 1363, PageID.42191.)

After the Registration Form is submitted, the MSA provides

that the Claims Administrator must review and approve the
qualifications of the Next Friend, within a specified time
frame. (ECF No. 1319-1, PageID.40395–40396 (as amended,
ECF No. 1394-2, PageID.54187–54188).) If the Next Friend
does not meet the qualifications or has not submitted the
appropriate proofs, the MSA sets forth a reconsideration and
appeals process, which ultimately involves the Special Master
issuing a written decision. (ECF No. 1319-1, PageID.40396 (as
amended, ECF No. 1394-2, PageID.54188); ECF No. 1391-1,
PageID.40378 (as amended, ECF No. 1394-2, PageID.54170).)
These protections ensure that only authorized individuals
may register and submit claims for Minors and LIIs, and
minimize the opportunity for fraudulent claims to be
submitted.

The MSA also provides for protections for Minors and LIIs
who do not have a Next Friend. As Ms. Wolock explained,

And why is this important? Because a particular

minor or claimant might need a [N]ext [F]riend
who doesn’t neatly fall into the categories
[contained in the Registration Form]. The upshot
is [ ] that no potential claimant is deprived of an
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appropriate representative in the course of this

settlement.

(ECF No. 1363, PageID.42192.)

This protection for Minors and LIIs who do not have an

appropriate representative also tracks Michigan Court Rule
2.201(E)(1)(b), which states, “If a minor or incompetent person
does not have a conservator to represent the person as
plaintiff, the court shall appoint a competent and responsible
person to appear as next friend on his or her behalf.”
Accordingly, the MSA fairly protects Minors and LIIs who do
not currently have a parent or court-appointed guardian at
this time.

The MSA also covers situations where there is a dispute over

who will act as Next Friend for a Minor or LII. (ECF No. 1319-
1, PageID.40396 (as amended, ECF No. 1394-2,
PageID.54188).) If this occurs, the MSA provides a clear
procedure, involving independent review and assistance by
the Master GAL, and, if not resolved by the Master GAL, by
the Special Master. (Id.)

Ms. Wolock stated at the December 21, 2020 hearing that this
process and the time frames for resolving such disputes
constitute “a fair and efficient dispute resolution process.”
(ECF No. 1363, PageID.42192.)

Once an appropriate Next Friend is appointed for the Minor

or LII, the Genesee County Circuit Court (or this Court) will
supervise the Next Friend. (ECF No. 1319-1, PageID.40393–
40394 (as amended, ECF No. [1394-2, PageID.]54185–
54186).)

The establishment of jurisdiction over probate proceedings

with the Genesee County Circuit Court, the procedures for
appointing a Next Friend, and the procedures for resolving
any Next Friend-related disputes are all thorough, clear, and
designed to promote consistency. As Ms. Wolock explained,
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the procedures set forth above for Next Friend appointments

help facilitate “an appropriate financial recovery. [The plan
is] prompt. It’s cost effective. It’s transparent and the
administrative steps really help avoid a protracted and
lengthy court proceeding. And so on this basis it’s fair and in
the best interest of the minors and [LIIs].” (ECF No. 1363,
PageID.42193.)

2. Retention of Counsel

Another provision in the MSA that protects Minors and LIIs

relates to the retention of counsel. Although Minors and LIIs
are not required to retain a lawyer to obtain a monetary
award under the settlement, the MSA provides that counsel,
including Co-Lead Class and Co-Liaison Counsel, are
authorized to assist Minors and LIIs to advise them of their
rights and options under the MSA. (ECF No. 1319-1,
PageID.40394–40395 (as amended, ECF No. 1394-2,
PageID.54186–54187).) These provisions provide an
additional option for Minors and LIIs to have a lawyer to
assist them in their claim submission and determination of
payment distribution.

3. Second Stage Approval Process

The MSA contains provisions outlining what is called the

“Second Stage Approval Process,” which includes added
protections for Minors and LIIs. For example, the Claims
Administrator must first certify that the Minor or LII is
assigned the settlement category that will result in the
highest monetary award possible for that individual. (ECF
No. 1319-1, PageID.40396 (as amended, ECF No. 1394-2,
PageID.54188).) Ms. Wolock indicated that this step “clearly
benefits this population.” (ECF No. 1363, PageID.42193.)

The possible settlement categories are set forth in a

settlement grid, which contains twenty-one categories
devoted to individuals who were minors at the point of first
exposure. [fn 11] While there are different allocations for
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recovery in each of the twenty-one categories, the grid

provides a settlement for all minors, regardless of whether
they have any proof of an injury. (ECF No. 1319-2,
PageID.40790–40818.) The grid provides for different
settlement values based on objective factors such as the age
of the child at first exposure, the evidence of lead exposure,
and the evidence of cognitive impairment related to lead
exposure.

[fn 11] Seven of the twenty-one categories are

devoted to Minors ages six and younger at the time
of their first exposure, seven are devoted to Minors
ages seven through eleven at the time of their first
exposure, and the remaining seven apply to
Minors ages twelve through seventeen at the time
of their first exposure.

As explained by Special Master Greenspan at the hearing, the

grid is set up in a manner such that, “People who were
similarly situated would be treated in a similar way.” (ECF
No. 1363, PageID.42203.) This promotes fairness, particularly
in litigation such as this where there are different levels of
exposure and severity of injury. And Ms. Wolock succinctly
stated,

So the process set forth in the settlement grid or

the required proof grid, I believe, promotes
fairness in as much as it creates a very systematic
approach for remedial relief based on objective
criteria that are set forth in the grid. And each grid
is accompanied by particular proofs that are
required to be submitted. With the result that
[M]inors and LIIs with comparable claims are
intended to receive comparable awards. And I
believe that this is a fair and consistent approach
for similarly situated claimants.

(ECF No. 1363, PageID.42195.)

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Another way in which the Second Stage Approval Process

addresses Minors and LIIs is that it provides that the Claims
Administrator must issue a second notice if a Next Friend
rejects the settlement category or fails to respond within the
prescribed deadlines. (ECF No. 1319-1, PageID.40397 (as
amended, ECF No. 1394-2, PageID.54189).) This second-
chance provision is an additional layer of fairness and
protection for Minors and LIIs.

4. Release by Next Friend

Another key provision in the MSA related to Minors and LIIs

is the Release by Next Friend. (ECF No. 1319-2,
PageID.41223–41227.) Most importantly, the Release states
that the Next Friend releases the Minor’s and LII’s Flint
Water-related claims against the Settling Defendants only.
(Id.) Agreement to a release of claims in exchange for a
monetary award is at the core of any settlement. The release
is clearly written and understandable, and is publicly
available for Next Friends to review and to determine
whether they wish to agree to its terms in exchange for a
monetary award.

5. Reconsideration and Appeal

The MSA also provides a procedure if the Next Friend

disagrees with the settlement category assigned by the
Claims Administrator, or otherwise disagrees with an
unfavorable notice. The MSA contains provisions for
reconsideration, and if the issue is not resolved on
reconsideration, the MSA provides for a process to submit an
appeal to the Special Master. (ECF No. 1319-1, PageID.40398
(as amended, ECF No. 1394-2, PageID.54190).)

If a Minor or LII (1) is not represented by counsel, (2) receives

an Adverse Notice, and (3) does not follow the processes and
procedures set forth in the MSA for reconsideration and
appeal, then there is an additional process for independent
review of the settlement category assigned by the Claims
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Administrator. In these circumstances, the Master GAL

reviews the Adverse Notice to determine whether it is fair and
reasonable. (Id.) If the Master GAL determines it is not fair
and reasonable, they will send the claim back to the Claims
Administrator for reevaluation. (Id.) If the Master GAL
determines that it is fair and reasonable, then the Master
GAL will state their determination in writing and forward the
determination and the Adverse Notice to the Genesee County
Circuit Court for further review and a final determination.
(Id.) All final determinations are made by the Genesee County
Circuit Court.

Ms. Wolock stated in regard to this process that “there are

multiple layers of protection here for the minors and LIIs and
I believe that these procedures provide multiple opportunities
for a meaningful opportunity to be heard in a cost-effective,
transparent and efficient manner.” (ECF No. 1363,
PageID.42195.)

6. Distribution of Monetary Award

The MSA contemplates three options for Minors and LIIs to

receive distribution of their monetary award, if the award
exceeds $5,000: (1) a special needs trust, (2) a settlement
preservation trust, or (3) a structured settlement. (ECF No.
1319-1, PageID.40399–40400 (as amended, ECF No. 1394-2
PageID.54191–54192).)

Michigan Court Rule 2.420 governs the procedure to be

followed for a settlement in a [N]ext [F]riend’s action brought
for a minor or LII. The rule states:

If the settlement or judgment requires payment of

more than $5,000 to the minor either immediately,
or if the settlement or judgment is payable in
installments that exceed $5,000 in any single year
during minority, a conservator must be appointed
by the probate court before the entry of the
judgment or dismissal. The judgment or dismissal
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must require that payment be made payable to the

minor’s conservator on behalf of the minor. The
court shall not enter the judgment or dismissal
until it receives written verification, on a form
substantially in the form approved by the state
court administrator, that the probate court has
passed on the sufficiency of the bond of the
conservator.

Mich. Ct. R. 2.420.

As Ms. Wolock indicated, these three options in the MSA

“protect and preserve” the funds on behalf of the Minor and
LII. (ECF No. 1363, PageID.42196.)

Relevant to this portion of the analysis is that, if a Minor or

LII does not elect the structured settlement option for their
distribution, then a Panel GAL, appointed by the Genesee
County Circuit Court, is assigned to the Minor or LII. The
Panel GAL’s duty is to evaluate whether the settlement
category and monetary award assigned by the Claims
Administrator, and the distribution option selected by the
Next Friend, is fair, reasonable, adequate, and in the best
interests of the particular Minor or LII. If the Panel GAL
agrees with the Claims Administrator’s determination, then
the Panel GAL presents their evaluation to the Genesee
County Circuit Court for approval. (ECF No. 1319-1,
PageID.40399 (as amended, ECF No. 1394-2, PageID.54191).)

If the Panel GAL or Genesee County Circuit Court determines

that the settlement category, monetary award, or elected
option to receive a monetary award is not fair, reasonable,
adequate, or in the Minor or LII’s best interests, the claim will
be sent back for reevaluation to the Claims Administrator or
Next Friend, and the process will repeat until the monetary
award is approved by the Panel GAL and the Genesee County
Circuit Court. (Id.) For these reasons, the process and
procedure is fair and thorough.

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The Court concludes that the MSA’s three options for Minors
and LIIs to receive monetary awards, as well as the multi-
layered review processes, are fair and in the best interests of
Minors and LIIs.

7. Future Minor Claimants

Another way in which the MSA is fair and in the best interests
of Minors is that it does not compel Minors to submit claims
immediately. While it may be in the best interests of most or
all Minors to submit their claims at the earliest opportunity,
the proposed settlement provides a fund for Future Minor
Claimants. A portion of the aggregate settlement fund ($35
million) will be set aside to accommodate Minors who do not
file their claims immediately or who do not finalize their
claims. This means that individuals less than eighteen years
of age on the date they first ingested Flint [W]ater (if ingested
between April 25, 2014 and November 16, 2020), who failed to
register or did not receive a Favorable Notice, can still
participate in the settlement later on, before they turn
nineteen years old, subject to available funds. (ECF No. 1319-
1, PageID.40338[,] 40356–40357 (as amended, ECF No. 1394-
2, PageID.54130[,] 54148–54150).)

As Ms. Wolock explained, the Future Minor Claimant

provisions are “akin to a safe harbor provision so that a minor
has up to age 19 to participate in a program and I believe that
this safe harbor provision gives adequate assurance that the
settlement will be as much as feasibly possible widely
available to this group.” (ECF No. 1363, PageID.42197–
42198.) This safe-harbor provision is fair and in the best
interests of Future Minor Claimants.

8. Programmatic Relief

The MSA includes a provision whereby a portion of the

settlement would be used to enable the local school districts
and public school academies within the Genesee Intermediate
School District to provide special education services for
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qualifying students who resided in the City of Flint during the

April 25, 2014 through November 16, 2020 time period. These
provisions apply whether or not the individuals receiving such
services are also individual claimants under the MSA. This
global provision provides an added education-based benefit to
Minors.

9. Non-Participating Minors and LIIs

Minors and LIIs can also choose not to participate in the

settlement. If they choose not to participate, there is a clear
procedure in the MSA for them to follow if they wish to
proceed with their lawsuits against the Settling Defendants.
(ECF No. 1319-1, PageID.40398 (as amended, ECF No. 1394-
2, PageID.54190).) This procedure includes agreeing to a Case
Management Order (“CMO”), with an accompanying Plaintiff
Fact Sheet, (ECF No. 1319-2, PageID.40848–40876 (as
amended, ECF No. 1394, PageID.54286–54294); ECF No.
1319-2, PageID.40878–40897), and submitting a Notice of
Intent Not to Participate. (ECF No. 1319-2, PageID.41246.)
These documents are all publicly available for review. Minors
and LIIs have the benefit of fully “weigh[ing] the cost benefit
of . . . participating in this settlement or nonparticipation,”
and can make an “informed decision on how to proceed.” ([ ]
ECF No. 1363, PageID.42199.)

10. Conclusions Regarding Minors and LIIs

In sum, for the reasons set forth above, at this stage of the
process, the MSA appears fair and in the best interests of
Minors and LIIs. Ms. Wolock stated at the hearing, “My
conclusion in the report today is that the processes and
procedures set forth in the proposed agreement are fair to the
[M]inors and LIIs. Because those procedures are fair, I also
report to the Court that those fair procedures serve the best
interest of the [M]inors and LIIs.” (ECF No. 1363,
PageID.42190–42191.) The Court agrees for all of the reasons
set forth above. Accordingly, preliminary approval of the MSA
as it relates to Minors and LIIs is granted.
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Id.

As noted above, Master GAL Wolock provided the Court with an

oral report during the final fairness hearing in July 2021. (See ECF No.

1904, PageID.66641–66653.) She discussed the steps that have been

taken since the entry of the Preliminary Approval Order to protect

Minors and LIIs who are participating in the settlement. (Id.) The Master

GAL also filed a written report detailing, among other things, the

processes and procedures for appointing Next Friends under the ASA and

subsequent orders. (ECF No. 1896.)

The Master GAL addressed, in her oral and written reports, that

this Court, and the Genesee County Circuit Court, oversaw the

appointment of Next Friends for the purpose of registering over 2,500

children who are wards of the State for participation in the settlement.

(Id. at PageID.66300.) This enormous undertaking required

implementing a special outreach effort so that the necessary steps could

be completed before the registration deadline. (Id.) This process was, as

stated by the Master GAL, carried out in a “fair and favorable manner.”

(Id.)

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The Master GAL’s oral and written reports also addressed the

protections in the ASA that apply to Future Minor Claimants, how the

ASA’s provisions protect the rights of Minors and LIIs throughout the

Claims Process and the settlement distribution stages, and detailed the

ASA’s mechanism for an individual Minor to recover funds, which will

not jeopardize the recipient’s qualifications for Supplemental Social

Security, Medicaid, and potentially other government benefits. These

protections that maintain eligibility for these government benefits are an

important factor in finding that the provisions of the ASA related to

Minors and LIIs are fair and in their best interests.

Accordingly, for the reasons set forth in the Preliminary Approval

Order and in the Master GAL’s oral and written reports, the Court is

satisfied that the provisions of the ASA relating to Minors and LIIs meet

the requirements of Michigan law for protecting and safeguarding the

rights of these vulnerable populations. Indeed, the steps Master GAL

Wolock has taken in her role have already gone above and beyond

Michigan law’s requirements. This, too, weighs heavily in favor of final

approval.

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In sum, the Court is satisfied that the Individual, non-class

components of the ASA that require Court approval are fair and in the

best interests of Minors, LIIs and, though not required, the represented

adults. Accordingly, final approval is granted as to the non-class

components of the ASA.

B. Class Plaintiffs’ Portion of the Settlement

As discussed above, Federal Rule of Civil Procedure 23(e)(2)

requires that the Court evaluate certain factors before the Court can find

that a settlement is “fair, reasonable, and adequate.” Fed. R. Civ. P.

23(e)(2). Rule 23(e)(2)’s factors overlap with many of the Sixth Circuit’s

International Union factors for determining whether a class settlement

is fair, reasonable, and adequate. See Int’l Union, 497 F.3d at 631.

Because the Sixth Circuit indicates that the likelihood of success on the

merits is the most important factor in this analysis, see Déjà Vu

Consulting, 925 F.3d at 894, that factor will be addressed first. For the

reasons set forth below, the Rule 23(e)(2) and Sixth Circuit factors weigh

in favor of granting final approval.

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1. Likelihood of Success on the Merits

The first factor the Court considers in evaluating whether the

settlement is fair, reasonable, and adequate is Plaintiffs’ likelihood of

success on the merits. See id. at 894. This factor does not require the

Court to “decide the merits of the case or resolve unsettled legal

questions”; however, it recognizes that the Court cannot reasonably

“judge the fairness of a proposed compromise” without “weighing the

plaintiff’s likelihood of success on the merits against the amount and

form of the relief offered in the settlement.” Int’l Union, 497 F.3d at 631.

In evaluating this factor, the Court’s

task is not to decide whether one side is right or even whether

one side has the better of these arguments. Otherwise, we
would be compelled to defeat the purpose of a settlement in
order to approve a settlement. The question rather is whether
the parties are using settlement to resolve a legitimate legal
and factual disagreement.

Id. at 632.

The parties themselves acknowledge in the ASA that the legal

theories underlying the claims involved are numerous, including

“negligence, unjust enrichment, breach of contract, constitutional

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violations, and inverse condemnation.” (ECF No. 1319-1, PageID.40332.)

The parties state in the ASA:

After careful consideration, Plaintiffs, and their respective

counsel, have concluded that it is in Plaintiffs’ best interest to
compromise and settle all Released Claims against the
Released Parties for the consideration reflected in the terms
and benefits of this Settlement Agreement. After arm’s-length
negotiations with counsel for [Settling] Defendants, including
the efforts of the Mediators and Special Master, Plaintiffs
have considered, among other things: (1) the complexity,
expense, and likely duration of the litigation; (2) the stage of
the litigation and amount of fact gathering completed; (3) the
potential for [Settling] Defendants to prevail on threshold
issues and on the merits; and (4) the range of possible
recovery, and have determined that this Settlement
Agreement is fair, reasonable, adequate, and in the best
interests of Plaintiffs.

(Id. at PageID.40333.) The Court has overseen the federal claims in this

litigation for many years and has worked cooperatively with Genesee

County Circuit Court Judge Joseph J. Farah regarding the state-court

claims. The claims in this litigation are, indeed, complex and many of the

claims are novel. There are no other cases that the Court or the parties

can look to that are on all fours with the claims in this litigation to assist

them in predicting the outcome.

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In Olden v. Gardner, the Sixth Circuit reviewed the district court’s

decision to grant final approval of a settlement, specifically its findings

on the “success on the merits” factor. 294 F. App’x 210 (6th Cir. 2008).

The Sixth Circuit found that even a close call can weigh in favor of final

approval.

In Olden, a group of individuals living in Alpena, Michigan, sued

Lafarge Corporation because of pollution emitted by Lafarge’s cement

plant located in Alpena. Id. at 211. The court found that the plaintiffs’

likelihood of success on the merits was not “especially good,” because “[i]t

would have been difficult to prove that any injuries suffered by the class

members were caused by the Lafarge plant rather than one of several

other industrial facilities in the area.” Id. at 217. Still, the court found

that this factor weighed in favor of approving settlement, but “only

marginally.” Id.

Unlike the parties in Olden, who did not conduct discovery before

reaching a settlement, the parties here have engaged in extensive

discovery before and during their settlement negotiations and are

therefore in a better position to evaluate the risks of continuing on to

trial. They are aware that they would face hurdles, particularly in

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establishing causation. One need look no further than the extensive

briefing in the first round of bellwether cases to see that litigating

Plaintiffs’ claims to trial will necessarily involve a hard-fought battle of

experts. (See, e.g., Case No. 17-10444, ECF Nos. 331, 334, 346.) Unlike

Olden, Plaintiffs’ chance for success on the merits here may be more than

“marginal,” but due to the complex and novel issues presented in this

litigation, success is not a guarantee.

The Court is persuaded that the over-$600 million settlement is a

fair and sensible resolution of the claims against the Settling Defendants.

The complexity and volume of this litigation present significant risks and

potentially great expense to all parties if the cases were to be tried. The

Court finds that the “success on the merits” factor weighs in favor of final

approval, and also that “even if this merits question favored one party

over the other, the [Plaintiffs] still would have had ample reason to

control the resolution of this dispute through negotiation today rather

than litigation tomorrow.” Int’l Union, 497 F.3d at 632. And any award

of damages after trial would be vastly diminished in value by the

duration and expense of trial. Accordingly, the settlement is a judicious

result, and this factor weighs in favor of granting final approval.

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2. Class Representatives and Class Counsel

Representation

Rule 23(e)(2)(A) requires that the Court consider whether “the class

representatives and class counsel have adequately represented the class”

before approving the proposed settlement. Fed. R. Civ. P. 23(e)(2)(A). The

Class Plaintiffs’ briefs, and the Court’s finding of adequate

representation by class representatives and class counsel under Rule

23(a)(4) and Rule 23(g) in the Preliminary Approval Order are useful in

the context of evaluating this Rule 23(e) factor. See 4 Newberg § 13:48

(5th ed. June 2021 update). Newberg instructs that “[t]he first of Rule

23(e)(2)’s two procedural concerns—that ‘the class representatives and

class counsel have adequately represented the class’—are redundant of

the requirements of Rule 23(a)(4) and Rule 23(g), respectively. Since the

court either has certified a class or must do so for settlement purposes, it

is unclear that this prong adds anything to that analysis.” Id. (internal

footnote omitted).

For the reasons discussed in the Preliminary Approval Order, the

Class Representatives and Lead Counsel have adequately represented

the Settling Class during this litigation and settlement. Preliminary

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Approval Order, 499 F. Supp. 3d at 422–24. Accordingly, this factor

weighs in favor of granting final approval.

3. Arm’s Length Negotiations and No Evidence of

Collusion or Fraud

Under Rule 23(e)(2)(B) and International Union, the Court must

consider whether the negotiations were conducted at arm’s length with

no evidence of collusion or fraud. See. Fed. R. Civ. P. 23(e)(2)(B); Int’l

Union, 497 F.3d at 631. “Courts presume the absence of fraud or collusion

unless there is evidence to the contrary.” UAW v. Gen. Motors, Corp., 05-

CV-73991-DT, 2006 WL 891151, at *21 (E.D. Mich. Mar. 31, 2006)

(Cleland, J.) (citing Granada Inves., Inc. v. DWG Corp., 962 F.2d. 1203,

1205 (6th Cir. 1992)). No one has supplied the Court with any evidence,

whatsoever, indicating the presence of collusion or fraud.

On the contrary, as set forth above, the settlement negotiations

were ongoing for several years, were arm’s length, were adversarial, and

involved the assistance of third-party mediators and a Special Master.

“[T]here appears to be no better evidence of [a truly adversarial

bargaining process] than the presence of a neutral third party

mediator[.]” 4 Newberg § 13:48 (5th ed. June 2021 update). The highly

experienced mediators here, Sen. Levin and Ret. Judge Harwood,

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provided ample protections in their roles. Additionally, the Special

Master assisted the negotiations from a neutral standpoint and provided

a thorough report at the July 12, 2021 hearing regarding the adversarial

process throughout the negotiations. Accordingly, this factor weighs in

favor of final approval.

4. Adequate Relief

Rule 23(e)(2)(C) requires the Court to consider whether the relief is

adequate, taking into account:

(i) the costs, risks, and delay of trial and appeal; (ii) the
effectiveness of any proposed method of distributing relief to
the class, including the method of processing class-member
claims; (iii) the terms of any proposed award of attorney’s fees,
including timing of payment; and (iv) any agreement required
to be identified under Rule 23(e)(3).24

Fed. R. Civ. P. 23(e)(2)(C). These sub-factors overlap with the

International Union factors requiring that the Court evaluate the

“complexity, expense, and likely duration of the litigation” and the

“likelihood of success on the merits.” Int’l Union, 497 F.3d at 631.

24 Rule 23(e)(3) states “[t]he parties seeking approval must file a statement
identifying any agreement made in connection with the proposal. Fed. R. Civ. P.
23(e)(3).
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As to sub-factor one, the “cost, risks, and delay of trial and appeal,”

this sub-factor weighs in favor of a finding that the relief is fair,

reasonable, and adequate for the reasons set forth in the Court’s analysis

of the likelihood of success on the merits in Section III(B)(1), above.

As to sub-factor two, the “effectiveness of any proposed method of

distributing relief to the class, including the method of processing class-

member claims,” this factor also weighs in favor of finding that the relief

is adequate. As discussed above, every Claimant who timely registers and

qualifies for recovery under the ASA will receive an award that

corresponds to their placement on the Compensation Grid. (See ECF No.

1394-2 PageID.54146.) The Compensation Grid provides detailed

guidance on the compensable conditions, eligibility requirements, and

proof required to achieve compensation. The criteria are objective, not

subjective, and the Claims Administrator must abide by these guidelines.

The use of objective criteria to determine settlement distribution is a

hallmark of fairness. The ASA contains clear processes and procedures

for individuals to register. (See id. at PageID.54140.) The ASA creates

seven Sub-Qualified Settlement Funds, whose purpose is to receive net

funds from the FWC Qualified Settlement Fund for distribution to

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eligible Claimants. (See id. at PageID.54146.) And it sets forth a

procedure for the settlement administrator, the Claims Administrator, to

process and review registrations and claims, as well as procedures for

reconsideration, appeal, and dispute resolution. (See id. at

PageID.54144–54146, 54168–54171.)

Moreover, the ASA provides for efficient and timely methods for

distributing Monetary Awards to Claimants. (See id. at PageID.54146–

54148.) It contains additional protections, processes, and procedures for

Minors and LIIs to receive Monetary Awards, as detailed by the Master

GAL at the July 12, 2021 hearing and in her report. (See ECF No. 1896.)

For all these reasons, this sub-factor weighs in favor of a finding that the

relief is adequate.

Rule 23(e)(2)(C)’s third sub-factor requires the Court to evaluate

the request for attorney fees, including the timing of the request. The

Court is separately required to evaluate the reasonableness of the

attorney fee request under Rule 23(h). That issue will be analyzed in a

separate opinion and order. For the purposes of this sub-factor, however,

the focus is on whether there are signs that “counsel sold out the class’s

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claims at a low value in return for [a] high fee.” 4 Newberg § 13:54 (5th

ed.) There are no such signs here.

As noted above, the settlement negotiations were conducted at

arm’s length with the added protections of neutral mediators, who are

experienced enough to have noticed indicators if they were present.

Additionally, there is no reason to find that the attorney fee award is too

high.

As to the timing of the attorney fee award request, courts are to

consider this to prevent situations in which the request for attorney fees

is unknown and could upset the compensation to claimants at the time of

final approval. The timing of the fee request in this case raises no such

red flags. Counsel moved for an award of attorney fees on March 8, 2021.

(ECF No. 1458.) Co-Lead Class Counsel filed their motion for final

approval of the settlement on May 27, 2021. (ECF No. 1794.) Co-Liaison

Counsel filed a memorandum in support of final approval on the same

day. (ECF No. 1795.) Accordingly, the fee request has been known to

participants of the settlement since before the motion for final approval

was filed, thus providing them notice and an opportunity to object. And,

indeed, there was plenty of time for several objectors to object to the fee

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request between March 8, 2021 and the deadline for submitting

objections on March 29, 2021. The Notice also addressed fees and was

provided well in advance of the deadline. Thus, this sub-factor weighs in

favor of finding the that the result of the settlement is adequate.

As to the fourth sub-factor, that the parties identify any agreements

required to be identified under Rule 23(e)(3), the parties have

persuasively represented to the Court that there are no agreements other

than the ASA relevant to this sub-factor. (See, e.g., ECF No. 1952,

PageID.67995 (finding no evidence of so-called “side settlements” related

to the ASA).) Thus, this sub-factor also weighs in favor of a finding that

the settlement provides adequate relief. In sum, all the sub-factors set

forth in Rule 23(e)(2)(C) weigh in favor of a finding that the relief

provided by the ASA is adequate.

5. Whether Class Members Are Treated Equitably

Relative to Each Other

The last Rule 23(e)(2) factor requires the Court to evaluate whether

the settlement “treats class members equitably relative to each other.”

Fed. R. Civ. P. 23(e)(2)(D). The Advisory Committee Notes to the 2018

amendment codifying this factor states that “[m]atters of concern [with

respect to this factor] could include whether the apportionment of relief

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among class members takes appropriate account of differences among

their claims, and whether the scope of the release may affect class

members in different ways that bear on the apportionment of relief.” Fed.

R. Civ. P. 23(e) Advisory Committee notes to 2018 amendment.

The ASA presents no such concerns. As aptly stated by Class

Counsel in their motion for final approval, the ASA provides for

“‘horizontal equity’ between similarly situated class claimants created by

the categorical award grid[.]” (ECF No. 1794, PageID.64306.) And,

importantly, the ASA treats individuals who are represented by their

own lawyers are treated the same under the ASA as individuals who are

members of the Settlement Class.

The fact that the Compensation Grid distinguishes between those

with certain proofs does not raise concerns and does not change the

analysis. Other class action settlements that provide for a “range of

potential proof, tying the amount of relief to the amount and quality of

evidence presented,” have been approved by other district courts. See In

re Oil Spill by Oil Rig Deepwater Horizon, 295 F.R.D. 112, 157 (E.D. La

2013) (“In re Deepwater Horizon”); see also In re Nat. Football League

Players’ Concussion Inj. Litig., 307 F.R.D. 351, 400–401 (E.D. Pa. 2015)

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(“In re N.F.L.”). Varying levels of proofs and awards are “tied to the

reality of litigating; the greater the proof, the more likely a plaintiff will

recover at trial.” In re Deepwater Horizon, 295 F.R.D. at 157. Accordingly,

this factor favors final approval.

6. The Amount of Discovery Conducted

International Union requires that the Court consider “the amount

of discovery engaged in by the parties” in evaluating the fairness of the

settlement. Int’l Union, 497 F.3d at 631. The Sixth Circuit, in Olden v.

Gardner, instructs that class counsel negotiating a settlement without

engaging in formal discovery, including failing to obtain expert opinions,

can weigh against granting final approval of the settlement. 294 F. App’x

at 218. “Obtaining expert opinions and engaging in formal discovery are

usually essential to establishing a level playing field in the settlement

arena because it enables the class counsel to develop the merits of their

case.” Id. (citing In re Gen. Motors Corp. Pick-up Truck Fuel Tank Prods.

Liab. Litig., 55 F.3d 768, 813–14 (3rd Cir. 1995).)

The circumstances presented here are the opposite of those in

Olden, in which little to no discovery was conducted. As set forth in the

Preliminary Approval Order, and above, discovery in the Flint Water

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Cases has been substantial. Preliminary Approval Order, 499 F. Supp.

3d at 412. The Court has overseen the vigorous discovery process and has

adjudicated discovery disputes at least once each month since 2019. See

id. Accordingly, this factor weighs in favor of granting final approval.

7. Opinions of Class Counsel and Class

Representatives and Reaction of Absent Class
Members

In deciding whether the settlement is fair, reasonable, and

adequate, the Court must look to “the opinions of class counsel and class

representatives.” Int’l Union, 497 F.3d at 631. “The judgment of the

parties’ counsel that the settlement is in the best interest of the settling

parties is entitled to significant weight, and supports the fairness of the

class settlement.” IUE-CWA v. General Motors Corp., 238 F.R.D. 583, 598

(E.D. Mich. 2006) (internal citations omitted).

Co-Lead Class Counsel support the settlement and urge the Court

to grant it final approval. Co-Lead Class Counsel are experienced and

have demonstrated their commitment to their clients over the years of

litigating the case. They have conducted significant discovery and

engaged in vigorous motion practice. The Subclass Settlement Counsel

appointed to represent six separate subclasses for allocation purposes

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also endorse the ASA. (See ECF Nos. 1319-5, 1319-6, 1319-7, 1319-8,

1319-9, and 1319-10.) The Court is satisfied that Co-Lead Class and

Subclass Settlement Counsel’s endorsement of the settlement weighs in

favor of granting final approval.

Likewise, and although not necessary for purposes of Rule 23, the

fact that Co-Liaison Counsel for the Individual Plaintiffs support the

settlement provides additional support for granting final approval. This

is because this settlement applies to their clients’ claims against the

Settling Defendants. These counsel for individual clients determined that

the settlement, including the allocation, the Compensation Grid, and the

method of distribution is fair and acceptable to their clients. The number

of individual Plaintiffs is in the thousands, and this lends strong support

for the conclusion that the ASA is fair.

Moreover, the reaction of absent class members favors approval of

the settlement. In evaluating this factor, “courts often cite to the absence

of opt-outs as evidence in support of settlement approval.” 4 Newberg

§13:58 (5th ed. June 2021 update). As stated in Section I(C) above, over

half of the City’s estimated population registered to participate in the

settlement, and only a very small percentage of the people in that group

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objected to its terms. On October 25, 2021, Special Master Greenspan

provided a report indicating the number of individuals opting out of the

settlement, which is very small in proportion to the number of

registrants:

A total of 195 opt-out forms were submitted timely (i.e.,

received or postmarked on or before March 29, 2021). Of these
timely opt-out forms, 30 were submitted by Individual
Plaintiffs who are not counted as opt-outs under Article [XIX]
of the ASA because they are not class members, and 14 of the
forms do not meet the requirements of a valid opt-out under
the ASA because the individual did not check the box
confirming the desire to opt-out and/or did not sign the opt-
out form.3 Of the remaining 151 individuals who submitted
opt-out forms, 39 advised Class Counsel that they intended to
participate in the settlement and completed the opt-out form
by mistake. Of those 39 individuals, three advised that they
were attempting to register for themselves and their spouse
but mistakenly used the opt-out form and not the registration
form. Some of these individuals also submitted a registration
form and some completed the opt-out form believing it was in
fact a registration form. After accounting for the
circumstances above, there are 112 individuals or entities
that timely completed the opt-out form as required and have
indicated that they intended to opt-out of the settlement class.

(ECF No. 1998, PageID.68632–69633 (footnotes omitted).) This weighs

heavily in favor granting final approval of settlement, too.

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8. Public Interest

Another factor the Court must consider in approving the settlement

is whether granting final approval is in the public interest. See Int’l

Union, 497 F.3d at 631. “[T]here is a strong public interest in encouraging

settlement of complex litigation and class action suits because they are

‘notoriously difficult and unpredictable’ and settlement conserves judicial

resources.” In re Cardizem CD Antitrust Litig., 218 F.R.D. 508, 530 (E.D.

Mich. 2003).

Here, the public interest undoubtedly weighs in favor of granting

final approval. To illustrate, the Carthan Plaintiffs filed this case in 2016

and have been waiting for relief for over five years. And, as Class Counsel

notes, “achieving certainty of settlement is . . . in the public interest,”

given that the State Defendants and the City Defendants are public

entities. (ECF No. 1794, PageID.64303.) Accordingly, this factor weighs

in favor of granting the settlement final approval.

9. Incentive Awards

Along with the International Union factors, the Sixth Circuit

factors requires the Court to carefully review incentive awards for the

named plaintiffs. See Vassalle v. Midland Funding LLC, 708 F.3d. 747,

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755 (6th Cir. 2013). The Sixth Circuit indicates that this analysis involves

looking at “whether the settlement gives preferential treatment to the

named plaintiffs while only perfunctory relief to unnamed class

members.” In re Dry Max Pampers Litig., 724 F.3d 713, 718 (6th Cir.

2013) (quoting Vassalle, 708 F.3d at 755.) “Such inequities in treatment

make a settlement unfair.” Id.

In this case, there are no incentive awards that give preferential

treatment to the class representatives. The ASA allows Class Counsel to

seek an incentive award for each class representative, but they have not

done so. As a result, the “class representatives are receiving the same

amount [of money] as similarly situated members of the Flint

community.” (ECF No. 1794, PageID.64298.) This factor, therefore,

weighs in favor of granting final approval.

For the reasons stated, and because “the federal policy favor[s]

settlement of class actions,” Int’l Union, 497 F.3d at 632, all of the Rule

23(e)(2) and Sixth Circuit factors weigh in favor of granting final

approval.

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C. Notice to the Class and Due Process

To grant final approval, the Court must find that the Notice to the

Class satisfies due process. Due process in this context “requires that

notice to the class be ‘reasonably calculated, under all circumstances, to

apprise interested parties of the pendency of the action and afford them

an opportunity to present their objections.’” Vassalle, 708 F.3d at 759

(quoting Int’l Union, 497 F.3d at 629).

At the preliminary approval stage, the Court found that the

Plaintiffs’ Notice plan satisfied due process. The Court discussed this

finding in the Preliminary Approval Order as follows:

The Court has carefully examined Plaintiffs’ prospective plan

for [c]lass Notice, as well as the declaration of Cameron Azari,
Director of Legal Notice for Hilsoft Notifications, which is the
firm that assisted in designing this particular notice plan.25
(ECF No. 1319-11, “Exhibit K.”) The Court finds that the
Settlement Agreement’s plan for Class Notice is the best
notice practicable under the circumstances and satisfies the
requirements of due process and Rule 23(e)(1) of the Federal
Rules of Civil Procedure. That plan is approved and adopted.
The Court further finds that the Class Notice (attached to
Plaintiffs’ motion as Exhibit K), and the Claim Form included

25 Hilsoft Notifications specializes in “designing, developing, analyzing and

implementing large-scale legal notification plans. (ECF No. 1794, PageID.64337.)
Hilsoft is a business unit of Epiq Class Action and Claims Solutions, Inc. (ECF No.
1794-3, PageID.64337.)
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as part of the Class Notice, comply with Rules 23(e)(1) and

23(c)(2)(B) of the Federal Rules of Civil Procedure.

Preliminary Approval Order, 499 F. Supp. 3d at 426.

The Notice plan took effect on February 26, 2021. (See ECF No.

1399, PageID.54467.) Plaintiffs indicate that following that date, (1) a

“Long Form Notice packet [was] mailed to each Settlement Class member

for which Interim Co-Lead Class Counsel . . . determine[d] a likely

mailing address—a list of over 57,000 addresses—[and] over 90% of [the

mailings] resulted in successful delivery;” (2) notices were emailed “to

addresses that could be determined for Settlement Class members;” and

(3) the “Notice Administrator implemented a comprehensive media

notice campaign.” (ECF No. 1794, PageID.64307–64308.) The media

campaign coupled with the mailing was intended to reach the relevant

audience in several ways and at several times so that the class members

would be fully informed about the settlement and the registration and

objection process.

The media campaign included publication in the local newspaper

(The Flint Journal); local digital banners on Facebook, Instagram, and

the Google Display Network; digital banners on these platforms for

broader geographic areas to account for Settlement Class members who

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no longer in Michigan; television spots aired on six local stations and

radio spots aired on ten local stations every day for two weeks in March

2021; banner notices and radio ads placed on Pandora and SoundCloud;

and video ads placed on YouTube. (Id. at PageID.64308.) Additionally, as

Plaintiffs point out, this settlement has received widespread media

attention from major news outlets nationwide. (Id. at PageID.64309.)

Plaintiffs submitted an affidavit signed by Azari that details the

implementation of the Notice plan. (ECF No. 1794-3, PageID.64337–

64352.) The affidavit is bolstered by several documents attached to it,

such as the declaration of Epiq Class Action and Claims Solutions, Inc.’s

legal Notice Manager, Stephanie J. Fiereck. (Id.) Plaintiffs additionally

provided the Court with copies and screen shots of the Notices

themselves. (Id. at PageID.64353–64360.) Azari declared that Epiq

“delivered individual notice to approximately 91.5% of the identified

Settlement Class” and that the media notice brought the overall notice

effort to “in excess of 95%.” (Id. at PageID.64351.) The Court finds that

the notice plan was implemented in an appropriate manner.

As set forth above, the Court previously approved the content of the

Notice because it “fairly apprise[d] the prospective members of the class

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of the terms of the proposed settlement so that class members [could]

come to their own conclusions about whether the settlement serves their

interests.” Vassalle, 708 F.3d 759; see also Preliminary Approval Order,

499 F. Supp. 3d at 426. Nothing has changed with the content of the

Notice since the Preliminary Approval Order was entered to alter that

decision. In conclusion, the Court finds that the Notice Plan as

implemented, and its content, satisfies due process.

D. Certification of the Settlement Class

Class Plaintiffs seek certification of the Settlement Class, which is

defined in Section 1.72 of the ASA as follows:

[A]ll persons or entities who are or could be claiming personal

injury, property damage, business economic loss, unjust
enrichment, breach of contract, or seeking any other type of
damage or relief because at any time during the Exposure
Period [of April 25, 2014 [through] November 16, 2020] they:
(1) were an Adult who owned or lived in a residence that
received water from the Flint Water Treatment Plant or were
legally liable for the payment of such water; (2) owned or
operated a business including income earning real property
and any other businesses that received water from the Flint
Water Treatment Plant or were legally liable for the payment
for such water; or (3) were an Adult during the Exposure
Period and who ingested or came into contact with water
received from the Flint Water Treatment Plant. [fn 12]

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[fn 12] Excluded from the Settlement Class are: (1)

Defendants; (2) the judicial officers to whom this case is
assigned in federal court, Genesee County Circuit Court,
and the Michigan Court of Claims, as well as these officers’
staff and immediate family members; (3) all Individual
Plaintiffs; and (4) all persons who timely and validly elect
to opt out of the Settlement Class.
(ECF No. 1394-2, PageID.54135.) For the Court to certify a class for

settlement purposes, the parties must show that the requirements of

Federal Rule of Civil Procedure 23(a) and that one of the requirements of

Rule 23(b). See Fed. R. Civ. P. 23(a)-(b); see also Amchem Prods. v.

Windsor, 521 U.S. 591, 614 (1997) (“In addition to satisfying Rule 23(a)’s

prerequisites, parties seeking class certification must show that the

action is maintainable under Rule 23(b)(1), (2), or (3).”).

In the Preliminary Approval Order, the Court preliminarily

approved certification of the Settlement Class because it found that the

prerequisites of Rule 23(a), as well as the requirements of Rule 23(b)(3)

were met. The relevant portion of the Order states:

For the reasons set forth below, the Court finds that Plaintiffs
have preliminarily met the Rule 23(a) numerosity,
commonality, typicality, and adequacy requirements.
a. Numerosity
To satisfy the numerosity requirement, Plaintiffs must
demonstrate that the settlement class is “so numerous that
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Case 5:16-cv-10444-JEL-EAS ECF No. 2008, PageID.69619 Filed 11/10/21 Page 83 of 178

joinder of all members is impracticable.” Fed. R. Civ. P.

23(a)(1). There are “no strict numerical test[s] for determining
impracticability of joinder.” In re Am[.] Medical Sys., Inc., 75
F.3d 1069, 1079 (6th Cir. 1996). Rather, numerosity “requires
examination of the specific facts of each case and imposes no
absolute limitations . . . . When class size reaches substantial
proportions, however, the impracticability requirement is
usually satisfied by the numbers alone.” Id. (quoting Gen[.]
Tel. Co. v. EEOC, 446 U.S. 318, 330 (1980)).
Here, the proposed class comprises a substantial portion of
the population of Flint, Michigan. See Garner Prop. & Mgmt.,
LLC, 333 F.R.D. at 622 (“[A] class of 40 or more members is
sufficient to satisfy the numerosity requirement.”); Davidson
v. Henkel, 302 F.R.D. 427, 436 (E.D. Mich. 2014) (numerosity
is satisfied with a putative class of at least “between 21 and
40” members). Plaintiffs point to the 2010 census finding that
the population of Flint, Michigan at that time exceeded
100,000 people, and the Court infers the Flint population from
2014 through 2020 would be reasonably close to this number.
(ECF No. 1318, PageID.40300 (citing QuickFacts, United
States Census Bureau (Apr. 1, 2010),
http://www.census.gov/quickfacts/fact/table/flintcitymichigan
/PST040219.).) Additionally, Plaintiffs point to an expert
report prepared by regional planner Dr. Robert A. Simons
concluding that approximately 700 business enterprises in
Flint may have been detrimentally impacted by the Flint
Water Crisis. (ECF No. 1208-95, PageID.36139–36140.) The
evidence does not suggest that the several hundred to several
thousand individual lawsuits meaningfully detracts from
either of these numbers.
Accordingly, between the 100,000+ individuals who could
comprise the personal exposure and property damage

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subclasses, and the 700+ business[es] which could comprise

the business economic loss subclass, Plaintiffs have met the
numerosity requirement. Fed. R. Civ. P. 23(a)(1).
b. Commonality
To satisfy the commonality requirement, Plaintiffs must
demonstrate that there are “questions of law or fact common
to the class.” Fed. R. Civ. P. 23(a)(2). Though the rule “speaks
of ‘questions’ in the plural, [the Sixth Circuit has] said that
there need only be one question common to the class.” See
Sprague v. Gen. Motors Corp., 133 F.3d 388, 397 (6th Cir.
1998) (emphasis added). However, this one question must
represent “a common issue the resolution of which will
advance the litigation.” Id.
Plaintiffs have asserted that there are at least four common
questions that satisfy the commonality requirement:
1) Whether the State and City Defendants had
the opportunity to reflect and deliberate before
they acted or failed to act;
2) Whether the conduct of the State and City
Defendants directly and proximately caused the
Flint water system to be contaminated with
corrosive water, lead, and dangerous bacteria,
and/or increased the risk of harm to the Class
and/or Subclasses;
3) Whether the implementation or execution of
a policy statement, ordinance, regulation, or
decision officially adopted and promulgated by the
City of Flint violated Plaintiffs’ fundamental
liberty interest in bodily integrity; and

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4) Whether the actions of the Rowe and

McLaren Defendants—who are not named in the
Class Complaint but who are participating in the
global settlement—violated Plaintiffs’ rights.
(ECF No. 1318, PageID.40302.) After years of litigation, the
Court is intimately familiar with the factual and legal issues
in this case. For purposes of preliminary approval and
conditional certification, the Court need go no further than
the first issue raised: whether the State and City Defendants
had the opportunity to reflect and deliberate before they acted
or failed to act. The premise of this litigation as it pertains to
the governmental defendants is that action or inaction of
certain State and City officials resulted in (1) the decision to
switch the source of Flint’s water; and (2) a failure to address
the consequent contamination of the water, which in turn lead
to exposure and damage. The factual underpinnings that
must be resolved in order to determine liability and damages
to the governmental defendants are common to the class.
There would not and could not be different factual findings in
separate cases.
Thus, the first question constitutes “a common issue the
resolution of which will advance the litigation.” See Sprague,
133 F.3d at 397. Accordingly, Plaintiffs have met the
commonality requirement. Fed. R. Civ. P. 23(a)(2).
c. Typicality
To satisfy the typicality requirement, Plaintiffs must
demonstrate that “the claims or defenses of the representative
parties are typical of the claims or defenses of the class.” Fed.
R. Civ. P. 23(a)(3). A claim is “typical” if “it arises from the
same event or practice or course of conduct that gives rise to
the claims of other class members, and if his or her claims are
based on the same legal theory.” Beattie v. CenturyTel, Inc.,
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Case 5:16-cv-10444-JEL-EAS ECF No. 2008, PageID.69622 Filed 11/10/21 Page 86 of 178

511 F.3d 554, 561 (6th Cir. 2007); see also Sprague, 133 F.3d
at 399 (“The premise of the typicality requirement is simply
stated: as goes the claim of the named plaintiff, so go the
claims of the class.”).
In this case, the representatives of each class—the Adult
Exposure Subclass, the Property Damage Subclass, and the
Business Economic Loss Subclass—satisfy the typicality
requirement, because the representatives’ claims (1) “arise[]
from the same event or practice or course of conduct that gives
rise to the claims of other class members”; and (2) are “based
on the same legal theor[ies]” as other class members’ claims.”
See Powers v. Hamilton Cnty. Pub. Def. Comm’n, 501 F.3d
592, 618 (6th Cir. 2007).
Specifically, the Adult Exposure Subclass Representatives—
Rhonda Kelso, Barbara and Darrell Davis, Tiantha Williams,
and Michael Snyder—are individuals or representatives of
individuals who allege that they resided in Flint, Michigan;
ingested or came into contact with Flint tap water during the
relevant time period; and suffered medical, financial, and/or
emotional damages as a result of [the] Settling Defendants’
actions. (See ECF No. 1318, PageID.40304–40305.) These
claims align with absent Adult Exposure Subclass members
who “ingested or came into contact with water received from
the Flint Water Treatment Plant at any time during the
Exposure Period and who are claiming or could claim a
resulting personal injury.” (ECF No. 1319-1, PageID.40335–
40336 (as amended, ECF No. 1394-2, PageID.54127–54128).)
The Property Damages Subclass Representatives—Elnora
Carthan and David Munoz—are individuals who allege that
they owned homes in Flint during the relevant time period,
who received water from the Flint Treatment Water Plant,
and who suffered diminished property and appliance values
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as a result of [the] Settling Defendants’ actions. (See ECF No.

1318, PageID.40305–40306.) These claims align with absent
Property Damages Subclass members who “owned or were the
lessee of a residential real property that received water from
the Flint Water Treatment Plant, or were legally liable for the
payment for such water, at any time during the Exposure
Period.” (ECF No. 1319-1, PageID.40341 (as amended, ECF
No. 1394-2, PageID.54133).)
Finally, the Business Economic Loss Subclass
Representatives—635 South Saginaw LLC (a/k/a “Cork on
Saginaw”), Frances Gilcreast, and Neil Helmkay—are all
individuals or entities who allege that they owned at least one
commercial property in Flint during the relevant period, and
who suffered diminished profits due to commercial reticence
to patronize Flint businesses as a result of Settling
Defendants’ actions. (ECF No. 1318, PageID.40306.) These
claims align with absent Business Economic Loss Subclass
members who “owned or operated a business, including
income earning real property and any other businesses, that
received water from the Flint Water Treatment Plant at any
time during the Exposure Period and who are claiming or
could claim a resulting business economic loss.” (ECF No.
1319-1, PageID.40336 (as amended, ECF No. 1394-2,
PageID.54128).)
Because the named Plaintiffs’ claims arise from the same
course of [the] Settl[ing] Defendants’ conduct as those of
putative class members, the Court finds that Plaintiffs have
met the typicality requirement for purposes of preliminary
settlement certification. [fn 13]
[fn 13] Plaintiffs also argue that the named minor
plaintiffs, whose representatives participated in
settlement negotiations, typify the claims of
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minors in this lawsuit. (ECF No. 1318,

PageID.40306–40307.) However, because the
portion of the settlement relating to minors is not
a class settlement, the Court need not address
these claims here.
Fed. R. Civ. P. 23(a)(3).
d. Adequacy of Representation
To satisfy the adequacy requirement, Plaintiffs must
demonstrate that the class representatives “will fairly and
adequately protect the interests of the class.” Fed. R. Civ. P.
23(a)(4). “There are two criteria for determining whether the
representation of the class will be adequate: 1) the
representative must have common interests with unnamed
members of the class, and 2) it must appear that the
representatives will vigorously prosecute the interests of the
class through qualified counsel.” Senter v. Gen. Motors Corp.,
532 F.2d 511, 524–25 (6th Cir. 1976). “Thus, the linchpin of
the adequacy requirement is the alignment of interests and
incentives between the representative plaintiffs and the rest
of the class.” Garner Prop. & Mgmt, LLC, 333 F.R.D. at 624
(quoting In re Dry Max Pampers Litig., 724 F.3d 713, 721 (6th
Cir. 2013)).
The first adequacy requirement is easily met here: the named
Plaintiffs in this case all seek to “hold [the] [Settling]
Defendants liable for [damages arising out of] the same
misconduct.” (ECF No. 1318, PageID.40308.) The named
Plaintiffs’ interests are identical to those of the unnamed
members of the class, and the “common interests”
requirement is accordingly met. See Senter, 532 F.2d at 524–
25.

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As to the second adequacy requirement, the Court concludes

that the named Plaintiffs will, through qualified counsel,
“vigorously prosecute the interests of the class.” Id. The Court
has become very familiar with the parties, class
representatives, and Co-Lead Class Counsel and Subclass
Settlement Counsel in this case through the previous four
years of litigation described above. Additionally, when the
Court appointed the Subclass Settlement Counsel in August
2019, the Court found that counsel had “the qualifications and
experience to adequately and fairly represent clients in this
case” and that they were “active litigators [] in mass tort and
other class actions [who] have all declared that they will
devote the time and resources necessary to represent clients
and work on apportionment issues in settlement discussions.”
(ECF No. 929, PageID.24354.) The Court concludes that Co-
Lead Class Counsel, as well as Subclass Settlement
Counsel—who have provided declarations supporting the
allocation and attesting to its fairness—have lived up to their
appointments in vigorously representing Plaintiffs through
the litigation and settlement processes. The Court is confident
that they will continue to vigorously prosecute the interests of
the class.
Accordingly, Plaintiffs have met the adequacy requirement
for purposes of preliminary settlement certification. Fed. R.
Civ. P. 23(a)(4).
3. Plaintiffs Have Preliminarily Satisfied the Rule
23(b) Prerequisites
For the reasons below, the Court finds that Plaintiffs have
preliminarily met the Rule 23(b) predominance, superiority,
and ascertainability requirements. Fed. R. Civ. P. 23(b).
a. Predominance

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To satisfy the predominance requirement, Plaintiffs must

demonstrate that “questions of law or fact common to class
members predominate over any questions affecting only
individual members.” Fed. R. Civ. P. 23(b)(3). “To meet the
predominance requirement, a plaintiff must establish that
issues subject to generalized proof and applicable to the class
as a whole predominate over those issues that are subject to
only individualized proof.” Randleman v. Fidelity Nat’l Title
Ins. Co., 646 F.3d 347, 352–53 (6th Cir. 2011).
At this stage, the analysis of the predominance requirement
must account for the fact that this class is proposed for
settlement purposes only and that the alleged wrongdoing
arises out of a common set of facts. Courts have found that
settlements “obviate[] the difficulties inherent in proving the
elements of varied claims at trial,” and consequently, “courts
are more inclined to find the predominance test met in the
settlement context.” Good v. W. Va. Am[.] Water Co., No. 14-
1374, 2017 WL 2884535, at *12 (S.D.W.V. Jul[y] 6, 2017)
(quoting Sullivan v. DB Invs., Inc., 667 F.3d 273, 304 & n.29
(3d Cir. 2011)).
In certain “mass tort accidents,” plaintiffs may meet the
predominance requirement even if “questions peculiar to each
individual member of the class remain after the common
questions of the defendant’s liability have been resolved . . .
[such a finding] does not dictate the conclusion that a class
action is impermissible.” Sterling v. Velsicol Chem[.] Corp.,
855 F.2d 1188, 1197 (6th Cir. 1988). This is because “[n]o
matter how individualized the issue of damages may be . . .
the factual and legal issues of a defendant’s liability do not
differ dramatically from one plaintiff to the next,” id., and
“[individualized] issues may be reserved for individual
treatment with the question of liability tried as a class action.”

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In re Whirlpool Corp., 722 F.3d at 854 (internal quotations

omitted) (citing id.) (“When adjudication of questions of
liability common to the class will achieve economies of time
and expense, the predominance standard is generally
satisfied even if damages are not provable in the aggregate.”);
see also Good, 2017 WL 2884535, at *12 (collecting cases in
which courts found “predominance in the mass tort arena
when a single common event or common cause gave rise to the
claims of each class member”).
This is one such mass tort accident. The common liability
questions noted above satisfy the predominance requirement
for settlement purposes. See In re [NFL], 821 F.3d 410, 434
(3d Cir. 2016) (finding that [a] mass tort action “presented
predominate factual questions regarding the NFL’s
knowledge and conduct as well as common scientific questions
regarding causation”); see also In re Whirlpool, 722 F.3d at
854; Amchem Products, Inc. v. Windsor, 521 U.S. 591, 625
(1997) (“[M]ass tort cases arising from a common cause or
disaster may, depending on the circumstances, satisfy the
predominance requirement.”).
Accordingly, Plaintiffs have met the predominance
requirement for purposes of preliminary settlement
certification. Fed. R. Civ. P. 23(b).
b. Superiority
To satisfy the superiority requirement, Plaintiffs must
demonstrate that “a class action is superior to other available
methods for fairly and efficiently adjudicating the
controversy.” Fed. R. Civ. P. 23(b)(3). Relevant factors in this
inquiry include: (1) the interests of the class members in
individually controlling separate actions; (2) the extent and
nature of the litigation already begun by members of the class;

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and (3) the desirability of concentrating the litigation in a

particular forum. [fn 14]
[fn 14] Plaintiffs also argue that the named minor
plaintiffs, whose representatives participated in
settlement negotiations, typify the claims of
minors in this lawsuit. (ECF No. 1318,
PageID.40306–40307.) However, because the
portion of the settlement relating to minors is not
a class settlement, the Court need not address
these claims here.
For purposes of settlement, the Court finds that the three
relevant 23(b)(3) factors weigh in favor of the superiority of
class certification. First, the class members’ interest in
individually controlling the litigation weighs in favor of
conditional class certification, because individuals seeking
individualized relief either already chose to file their own
complaints or hire individual counsel to address their
claims—as evidenced by the Individual Cases—or may
eventually seek exclusion from the settlement class. Nor, after
four years of very expensive class discovery, would
individualized litigation be economically preferable for those
plaintiffs who have not already elected to file suit as
individuals. See In re Whirlpool, 722 F.3d at 861 (“Use of the
class method is warranted particularly [when] the cost of
litigation would dwarf any potential recovery.”).
Second, the extent and nature of class members’ litigation in
this case weighs in favor of certification. Class representatives
and class counsel have been litigating this case for nearly five
years in a suit that has involved “extensive motion practice,
numerous appeals, and petitions for certiorari filed with the
United States Supreme Court. The docket on this
consolidated case shows over 1,100 filings and is rising daily.
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[fn 15] This case has been zealously litigated already, by a

team of national and local firms on all sides.” (ECF No. 1207,
PageID.34519–34520.) Such an extensive history supports
the superiority of class certification for the defined adult class
for the purpose of this settlement.
[fn 15] With the entry of this Opinion and Order,
that number has reached 1399 filings. (No. 16-
10444.)
Finally, all federal litigation concerning the Flint Water
Cases has been centralized in the Eastern District of
Michigan, rendering this forum ideal for resolving the
dispute.
Accordingly, Plaintiffs have met the superiority requirement
for purposes of preliminary settlement certification. Fed. R.
Civ. P. 23(b).
c. Ascertainability
In addition to the predominance and superiority
requirements, “Rule 23(b)(3) classes must also meet an
implied ascertainability requirement.” Sandusky Wellness
Ctr., LLC v. ASD Specialty Healthcare, Inc., 863 F.3d 460, 466
(6th Cir. 2017). Under this requirement, Plaintiffs must show
“that the members of the class [are] capable of specific
enumeration.” Cole v. City of Memphis, 839 F.3d 530, 542 (6th
Cir. 2016) (emphasis in original) (internal citations omitted).
Such a showing is required for (b)(3) class certification
because, “unlike (b)(1) and (b)(2) classes, (b)(3) class members
are entitled to notice and are able to opt-out of the class.” Cole,
839 F.3d. at 541. The ascertainability requirement is satisfied
with “a class description [that is] sufficiently definite so that
it is administratively feasible for the court to determine
whether a particular individual is a member.” Id.

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Though Plaintiffs did not discuss the implied ascertainability

requirement, the Court nevertheless concludes that the
proposed class is sufficiently ascertainable to justify
certification. Plaintiffs have argued in other motions that
“[m]embership in the Class and Subclasses is ascertainable
through property or rental records, or through certification by
Flint residents or guardians that they and/or their children
lived in Flint and were exposed to the water during the Class
Period.” (ECF No. 1207, PageID.34471.) The class definitions
in this case are geographically circumscribed to one city in one
state and are based on objective criteria, such as where an
individual resided at a particular time or whether they owned
or rented property.
Accordingly, Plaintiffs have met the ascertainability
requirement for purposes of preliminary settlement
certification. Sandusky Wellness Ctr., LLC, 863 F.3d at 466.

Preliminary Approval Order, 499 F. Supp. 3d at 420–26. The analysis in

the Preliminary Approval Order applied the same Rule 23(a) and (b)

standards that govern the analysis at the final approval stage

Accordingly, the Court finds that Plaintiffs have met the requirements of

Rule 23(a) and (b) for certifying a class for settlement purposes. The

Settlement Class is certified.

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E. Appointment of Co-Lead Class Counsel and the

Executive Committee as Class Counsel for
Settlement Purposes

Under Federal Rule of Civil Procedure 23(g)(1), when the Court

certifies a class, including for settlement, it “must appoint class counsel.”

Fed. R. Civ. P. 23(g)(1). Co-Lead Class Counsel requested appointment of

themselves and the Executive Committee as Settlement Class Counsel in

their motion for final approval. (ECF No. 1794, PageID.64259.)

Over the last four years, the Court has had the opportunity to

evaluate and re-evaluate Co-Lead Class Counsel’s qualifications and

performance and has found both satisfactory. (See, e.g., ECF Nos. 173,

696, 1021.) The Court reviewed Co-Lead Class Counsel’s qualifications in

the Preliminary Approval Order. Preliminary Approval Order, 499 F.

Supp. 3d at 423. Based on that analysis, the Court appoints Interim Co-

Lead Class Counsel and the Executive Committee as Settlement Counsel

under Rule 23(g).26

26 The Court recently issued an Opinion and Order in this case certifying two
classes for litigation purposes. In that Order, the Court formally appointed Co-Lead
Class Counsel and the Executive Committee as Class Counsel under Rule 23(g). The
Court’s analysis in that Order of the same Counsel’s performance is relevant to the
decision made here. See In re Flint Water Cases, No. 16-10444, 2021 WL 3887687
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F. Report and Recommendation on Late Registrants

On November 9, 2021, the Special Master filed a Report and

Recommendation (“R&R”) Regarding Late Registrants. (ECF No. 2006.)

In it, she reported that 1,219 individuals submitted registrations after

the March 29, 2021 deadline and she recommended that the Court permit

“any registrant who registered on or before September 28, 2021 to

participate in the settlement and that any such registration be

considered timely.” (Id. at PageID.68734.) The Special Master provided

the R&R to the Settling Parties, and none objected to her

recommendation. The Court has carefully reviewed the R&R and concurs

in its reasoning and result. The R&R is adopted. Accordingly, any

registration received on or before September 28, 2021 is considered

timely.

IV. OBJECTIONS

As set forth above, the Court has received objections to the

Settlement. Cuker filed twelve Chapman/Lowery objections on behalf of

eighteen Chapman/Lowery Objectors. Additionally, there are 106

(E.D. Mich. Aug. 31, 2021), appeal docketed, No. 21-103 (6th Cir. Sept. 7, 2021). (ECF
No. 1957.)

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objections submitted by Unrepresented Objectors.27 The Court will

address these based on their subject matter, which include the following

topics:

 Objections regarding the Compensation Grid, specifically related

to:
o bone lead level testing;
o blood lead level testing;
o cognitive impairment testing;
o miscarriage fetal tissue testing;
o proof of galvanized steel service lines;
o the Compensation Grid’s failure to include additional
categories, such as a category addressing payment of water
bills, costs of bottled water, medical costs, and loss of trust;
o the overall allocation of funds for children versus adults and
others;
o the “cap” of $1,000 for property owners’ and renters’ recovery;

27 All but two of the Unrepresented Objectors’ objections were filed using a form
that allowed the objector to check boxes next to pre-written objections. An
Unrepresented Objector explained at the July 13, 2021 hearing that this form was
created by a member of the Flint community. (See ECF No. 1905, PageID.66782.) The
two Unrepresented Objectors who did not use the form are Dr. Reynolds (ECF No.
1436) and Diane Fletcher (ECF No. 1684). One Unrepresented Objector, Regina
Nelms, did not sign her objections, which means that they failed to follow the required
format set forth in the ASA. (See ECF No. 1707, PageID.61655 (unsigned form); see
also ECF No. 1394-2, PageID.54184–54185 (ASA sections setting forth requirements
for a valid objection).) However, since Nelms used the form objection described in this
footnote, her objections have been lodged by other objectors so her objections will be
considered and decided.
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 Objections regarding the ASA’s Registration and Objections

Requirements, specifically that:
o the registration deadline was too short;
o individuals should not have to submit personally identifiable
information (“PII”) to participate in the settlement;
o at the time of registering, participants have no way of
knowing their final Monetary Award;
o counsel who signed the ASA were, under the ASA’s terms,
prohibited from representing objectors;
o some objectors were unable to use Zoom
 Objections related to the COVID-19 pandemic;
 Objections to the Notice of settlement’s content;
 Objections related to Class Representatives’ payments; and
 Objections to Plaintiffs’ attorney fee request (which will be
addressed in a separate opinion and order).

A. Objections Based On Compensation Grid

1. Objections Related to Bone Lead Level Testing

The most common objection to the ASA relates to the inclusion of

bone lead level testing28 in the Compensation Grid. Both the

Chapman/Lowery Objectors and Unrepresented Objectors set forth

28 This is sometimes referred to on the record as “bone scanning” or “in vivo

measurement of heavy metal exposure” or “XRF scanning.” For consistency and
clarity, the Court will refer to all such testing as “bone lead level testing” unless the
Court is quoting from another source using a different name.

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several arguments seeking to have the entire settlement rejected as

unfair, unreasonable, and inadequate because of the use of bone lead

level testing as a method for documenting lead exposure and determining

what categories in the Compensation Grid an individual qualifies for.

As noted, the Compensation Grid includes thirty Settlement

Categories, each of which provides for a different level of compensation

depending on the amount of proof a Claimant submits. (ECF No. 1319-2,

PageID.40789–40831.) Those Claimants with proofs that qualify them for

a particular Settlement Category are treated identically to other

Claimants in that same Category, creating horizontal equity among

qualifying participants. Claimants with specific types of proofs can obtain

a larger Monetary Award compared to those with little or no proof. As

discussed above in Section I(B), similar compensation matrices in class

action settlements have been approved by other courts nationwide, and

this Court has carefully analyzed and approved of this structure in this

case.

Co-Liaison Counsel Hunter Shkolnik and Paul Napoli, of the Napoli

Shkolnik PLLC law firm, established a bone lead level testing program

for their clients “under the leadership of Harvard University’s Aaron

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Specht [Ph.D.] and overseen by New York University’s Medical Director

Dr. Michael Weitzman.” (the “Napoli Program”). (ECF No. 1789,

PageID.64052.) The Napoli Program was established at Napoli

Shkolnik’s offices in Flint, Michigan. There, bone lead level testing is

conducted using a piece of equipment known as a hand-held XRF device.

Most of the objections related to the safety and legality of bone lead

level testing through the hand-held XRF device were first brought by Dr.

Reynolds on February 26, 2021, through his then-counsel Valdemar

Washington, who represents the Anderson Plaintiffs, who are a group of

individual plaintiffs who did not object to the settlement. (ECF No. 1436.)

Just days after Dr. Reynolds filed his objection, on March 1, 2021, Co-

Lead Counsel filed a motion for the Immediate Suspension of the Use of

Portable XRF Bone Scanning Tests (ECF No. 1443; ECF No. 1446

(corrected motion)), which they later withdrew. (ECF No. 1499.) This

motion and Co-Lead Counsel’s decision to withdraw it have been the

subject of many motions and hearings, and the issues have been

abundantly addressed and will not be addressed further here, other than

to note that there are no issues presented in the now-withdrawn motion

that have not been raised by other objectors to the ASA.

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a. Objections to the Use of the Thermo Fisher

Manufactured Hand-Held XRF Device on
Humans

The Sources of the Safety-Related Objections

Dr. Reynolds and other objectors to bone lead level testing at the

Napoli Program contend that the hand-held XRF device is “an

unapproved industrial device” and “is not designed to be used on human

beings– at all.” (ECF No. 1436, PageID.55026.) Dr. Reynolds notes that

the manufacturer of the hand-held XRF device, Thermo Fisher

(sometimes referred to as Thermo Scientific), indicates in its purchase

materials that the device, as taken out of the box, should be pointed at a

sample but “never at a person or a body part.” (Id. at PageID.55027.) Dr.

Reynolds argues that Dr. Specht’s use of the Thermo Fisher hand-held

XRF device on humans is therefore improper. But, as discussed below,

Dr. Specht has modified the device so that it can be used safely on

humans.

Following Dr. Reynolds’ objection, many other objectors made

similar objections, arguing that the hand-held XRF device used in the

Napoli Program is unsafe. Some, but not all, of the fifty-four

Unrepresented Objectors who objected to bone lead level testing because

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they had not had an opportunity to obtain one (an objection which is

addressed separately below) checked a box indicating that they objected

to the Settlement because: “the bone lead test has not been approved by

the FDA [Food and Drug Administration] for use in humans.” (See, e.g.,

ECF No. 1689, PageID.61583.) There has been no showing by the

objectors that FDA approval is required for the test, and this is an

otherwise undeveloped argument by Unrepresented Objectors. Indeed,

the only evidence in the record on this issue is the affidavit of Michael

Drues, Ph.D. (ECF No. 1795-3.) Dr. Drues has worked as a regulatory

consultant in the medical device industry for over twenty-five years and

is an internationally recognized expert on medical technologies and

regulatory affairs. (Id. at PageID.64508.) Dr. Drues avers that “the XRF

system does not need FDA clearance or approval when used to detect

environmental lead exposure.” (Id. at PageID.64509.) No evidence has

been submitted to support the contrary. Accordingly, arguments related

to the FDA are rejected. In considering Unrepresented Objectors’

objections, the Court will set aside references to the FDA and will

construe the objections as challenging the safety of the hand-held XRF

device.

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Additional arguments related to the safety and propriety of the

hand-held XRF device were lodged by the Chapman/Lowery Objectors in

their June 10, 2021 reply in support of the motion to extend the deadline

for bone lead level testing (ECF No. 1820), which the Court denied on

other grounds (ECF No. 1845). On June 24, 2021, The Chapman/Lowery

Objectors filed a brief that included arguments related to bone lead level

testing and safety. (ECF No. 1839.) The same day, Anderson Plaintiffs

filed a brief in opposition to Co-Liaison Counsel’s brief that reiterated

many of the points made by Dr. Reynolds in his objection.29 (ECF No.

1840.) Co-Liaison Counsel responded to the arguments related to the

safety of bone lead level testing on several occasions. (See ECF Nos. 1455,

1789, 1795, 1895, 1897, 1923.) As noted above, the Court heard argument

from Dr. Reynolds, counsel for the Chapman/Lowery Objectors, counsel

29 Attorney Washington entitled this filing as the Anderson Plaintiffs’

opposition to the motion for final approval. However, none of the Anderson Plaintiffs
objected to the settlement. The only client Washington represented who filed
objections to the ASA was Dr. Reynolds, whom he no longer represents.
The Anderson Plaintiffs arguably do not have standing to oppose the motion
for final approval because they are non-objectors. Accordingly, the Court is not
obligated to address the arguments made in the Anderson Plaintiffs’ filing at all.
However, given the seriousness of the allegations, the Court is addressing them in
this Opinion and Order.

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for the Anderson Plaintiffs, and Co-Liaison Plaintiffs at the hearing held

on both July 12, and July 15, 2021. Dr. Reynolds filed additional safety-

related objections on July 20 and 21, 2021. (ECF Nos. 1901, 1909, 1910.)

After careful consideration of the objections, responses, and the

evidence in the record related to bone lead level testing safety, the Court

denies these objections for the reasons below.

Objectors’ Position

In his objection, Dr. Reynolds references a Thermo Scientific

publication that is part of the purchase materials for a hand-held XRF

device. The publication is entitled XRF Technology in the Field: XRF

Technology for Non-Scientists that states that the hand-held XRF device,

as sold out of the box, emits radiation “similar to the exposure received

in a normal medical or dental X-ray.” (ECF No. 1436-6, at PageID.55242)

It also states, “care must be taken to always point a handheld XRF

analyzer directly at the sample and never at a person or a body part.” (Id.

emphasis added).)

However, the Napoli Program used the hand-held XRF device in a

manner that is not at odds with the language that appears above. The

device operated by the Napoli Program is not used as sold out of the box;

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rather, the device is modified for safety purposes, as described in greater

detail below.

Months after the March 29, 2021 deadline for filing objections had

elapsed, on June 24, 2021, the Anderson Plaintiffs submitted a letter to

the Court from Thermo Scientific addressed to Barbara Krohmer of

Napoli Shkolnik. (ECF No. 1840-2, PageID.65635.) The letter, dated May

12, 2021, states as follows:

Dear Ms. Krohmer:

I write concerning a Niton™ XL3t 950 GOLDD+XRF analyzer
(the “XL3t”), which the law firm of Napoli Shkolnik &
Associates, PLLC (“Napoli”) has rented from Thermo
Scientific Portable Analytical Instruments Inc. (“Thermo
Fisher”). We have recently learned that Napoli, working in
conjunction with Dr. Aaron Specht, may have been using its
XL3t in a manner inconsistent with the use for which Thermo
Fisher markets the XL3t. Specifically, based on the limited
information available to us concerning the ongoing Flint
Michigan lead litigation (in which we understand Napoli to be
acting as plaintiffs’ counsel,) we believe that Napoli and/or Dr.
Specht may have used the XL3t on human subjects, and in an
effort to analyze said subjects’ levels of lead exposure.
As such, we write to advise you that Thermo Fisher has never
marketed the XL3t for any in vivo diagnostic use (including,
without limitation, any such use to measure bone lead levels
in living persons,) nor have we sought or obtained FDA
approval for such use. While we are aware of a limited number
of occasions on which we have supported academic research

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into the use of Thermo Fisher handheld XRF devices to

measure bone lead, such research was, to our knowledge,
approved by a university IRB [Institutional Review Board] in
each instance. Your use of the XL3t does not appear to arise
in the context of academic research, and we are not aware of
any IRB approval for your activities.
As you are aware, in your rental agreement with Thermo
Fisher, Napoli agreed to be “solely responsible for the safe and
prudent operation of” the XL3t. The safety instructions
contained in the XL3t User’s Guide explicitly instruct all
users to “[n]ever point your analyzer at yourself or anyone else
when the shutter is open.” All users are expected to abide by
these safety instructions, except under specific circumstances
(not present here) that create adequate assurances regarding
safety. We further advise you that Thermo Fisher has not
validated the safety of the XL3t when used in a manner
inconsistent with its safety instructions.
We must respectfully request that you only use the XL3t
instrument in a manner consistent with its product
documentation. Should you have any questions regarding the
proper and intended uses of the XL3t, please do not hesitate
to reach out, and we will be happy to discuss them further.
Very truly yours,
Chloe Hansen-Toone
Vice President and General Manager
(ECF No. 1840-2, PageID.65635.)

The Anderson Plaintiffs argue that this letter demonstrates that

the hand-held XRF device is unsafe, yet they have taken the letter’s

contents out of context and ignored facts related to the safety of the device

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as modified. For example, Dr. Reynolds’ former counsel argues on behalf

of the Anderson Plaintiffs that this letter “validated” Dr. Reynolds’

concerns. (ECF No. 1840, PageID.65619.) The Chapman/Lowery

Objectors argue that this letter “warns against using the devices on living

humans under the circumstances presented here and [the manufacturer]

refuses to sell or lease the machines to anyone it suspects would use it on

living humans when not done subject to approval by a university

Institutional Review Board (‘IRB’).” (ECF No. 1901, PageID.66497.) In

another related but tangential filing, the Chapman/Lowery Objectors

argued that the letter: “admonished Napoli Shkolnik, stating that [the

device] was not ‘safe and prudent’ for use on humans and that ‘adequate

assurances regarding safety’ were ‘not present here’ because the

scanning is not supervised by an IRB of an academic institution.” (ECF

No. 1820, PageID.64807.) These interpretations of the letter are all

inaccurate. The letter is nothing more, or less, than what is stated above.

The Court views the main purpose of this letter as an attempt by Thermo

Fisher to shield itself from litigation that may arise, ironically, because

of the safety-related accusations made by the objectors in this litigation.

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The letter does not “validate” Dr. Reynolds, “admonish” the Napoli

Program, or do anything of the sort.

Thermo Fisher’s letter makes clear that it has never marketed the

hand-held XRF device at issue for any in vivo diagnostic use such as bone

lead level testing. “Market” is the key word. Indeed, Thermo Fisher is

very aware of and has supported research using its hand-held device,

when modified for use on humans, for many years. Thermo Fisher has

worked with Dr. Specht in the past, is aware of his modifications to the

hand-held XRF device for bone lead level testing in humans, including

children, and has endorsed this work.

At the hearing on July 12, 2021, Co-Liaison Counsel presented the

Court with sales orders between Thermo Scientific and Purdue

University, demonstrating Thermo Fisher’s awareness and involvement

in providing hand-held XRF devices to Dr. Specht for human research

purposes, that date back to 2012. (See, e.g., ECF No. 1897-2,

PageID.66388.) Counsel also presented to the Court with 2019 emails

from Bob Gillette, a representative of Thermo Scientific, that expressly

discuss the fact that Thermo Scientific hand-held XRF devices have been

customized and sold to both Purdue University and Harvard University

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for “measurements of Pb [lead] in bone.” (ECF No. 1897-2,

PageID.66389.) Gillette specifically states which model of the hand-held

XRF devices, when customized, would be able to “safely make these

measurements.” (Id.) At no point do these communications show Thermo

Fisher raising a red flag regarding the propriety of using the hand-held

XRF device on humans. Instead, these communications show that

Thermo Fisher knew that the devices would be modified for safety by Dr.

Specht and others before they would ever be used on humans. And surely,

Thermo Fisher must have been aware that these scientists published

their research and specifically state that the research was conducted

using hand-held XRF devices on humans to measure metal levels in

bones. (See, e.g., id. at PageID.66411–66422.)

The May 12, 2021 Thermo Fisher letter to Napoli Shkolnik

discusses an IRB (Institutional Review Board). As background, an IRB is

“a committee of scientists/doctors and non-scientists whose charge is to

oversee the safety and protection of human subjects in research studies.

Governmental regulations and institutional policies exist to protect the

rights and welfare, including privacy/confidentially rights, of all human

research subjects.” Institutional Review Board, Boston University

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Wheelock College of Education and Development,

https://www.bu.edu/wheelock/information-for-research/research-

handbook/pre-award-processes/institutional-review-board/

[https://perma.cc/54RP-8SYS]. Several studies involving the use of hand-

held XRF devices to measure heavy metal exposure on humans conducted

by Boston University were IRB-approved in 2017, 2018, and 2019. (See

ECF No. 1923-2, PageID.67258–67272.) IRB approval would not have

been given if the clinical research were not “conducted according to

corresponding federal regulations, state law, and IRB policies.” BU

Research Support, Institutional Review Board (IRB) Charles River IRB

Office. https://www.bu.edu/researchsupport/profile/institutional-review-

board-irb/ [https://perma.cc/KP2J-K24E]. Additionally, IRB approval has

been given to studies conducted at Purdue University and Harvard

University that used hand-held XRF devices to measure lead in human

bones. (See, e.g., ECF No. 1897-2, PageID.66423–66434.)

To be clear, the Napoli Program is not a research project like the

studies done at Purdue, Harvard, and Boston University (and objections

arguing that research is being conducted will be addressed below). The

Napoli Program was established for settlement and litigation purposes

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only. An IRB is not required for the Napoli Program to conduct bone lead

level testing as part of the settlement in this litigation.30 Co-Liaison

Counsel have submitted enough evidence to support their position that

the Napoli Program conducts tests in the same manner and to the same

standards that the IRB-approved studies were conducted. Also, there is

no evidence in the record, whatsoever, that the Napoli Program was

operated in a manner that counters any of the IRB-approved bone lead

level testing programs using a hand-held XRF device at Purdue

University, Harvard University or Boston University. (See, e.g., ECF No.

1455, PageID.57128.) Nor is there any evidence in the record that

Thermo Fisher only sold devices upon proof of an IRB in the past; that is,

until it learned of the objectors’ position in this litigation and perhaps

became concerned about being brought into a lawsuit related to the use

of the device in this case.

30 The Chapman/Lowery Objectors argue in their opposition to the motion for

final approval that the process should be IRB approved. (ECF No. 1839,
PageID.65413.) But beyond making this general assertion, they provide no support
for their argument and it is rejected because the device was not used as part of a
research study. Rather, it was used to quantify lead exposure for purposes of
qualifying for Monetary Relief in the settlement.
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Radiation Levels Emitted by the Modified Hand-Held XRF Device

Dr. Reynolds asserts that the modified hand-held XRF device

exposes individuals to excessive radiation and is therefore unsafe. He

argues that any level of radiation is a danger to human safety,

particularly when not conducted for the purpose of a medical diagnosis

or treatment. (See ECF No. 1904, PageID.66751–66752.) Dr. Reynolds

indicated at the hearing on July 12, 2021 that the only circumstance in

which he would find a bone lead level test to be acceptable is if the

individual is “an adult who has had an occupational exposure to a toxic

level and . . . ha[s] clinical symptoms.” (Id. at PageID.66751.) However,

even in this circumstance, Dr. Reynolds would not approve of the test

being conducted with a hand-held XRF device.31 (Id. at PageID.66752.)

As a preliminary matter, no one is required to get a bone lead level

test – it is entirely voluntary. As further noted below, there is not a single

recovery Settlement Category in the Compensation Grid that relies

31 Dr. Reynolds’ objection differentiates between the hand-held XRF device

used by the Napoli Program and what he characterizes as “a medical grade XRF
testing device” used at Mt. Sinai Hospital in New York City. (ECF No. 1436,
PageID.55030 n.16 (emphasis in original).) This is not a distinction that is defined by
Dr. Reynolds. Regardless, Dr. Specht has modified the hand-held XRF device for safe
use on humans, and use of the device for this purpose has been IRB-approved many
times.
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exclusively on bone lead level testing to qualify for a Monetary Award in

that Category. For those who do undertake a bone lead level test,

however, the evidence in the record indicates that the level of radiation

exposure is not an unreasonable or unsafe dose for humans.

Co-Liaison Counsel for Individual Plaintiffs submitted the affidavit

of William G. Bithoney, M.D., FAAP. (ECF No. 1789-2.) Dr. Bithoney’s

background is in researching lead poisoning and its effects on children’s

health. (Id. at PageID.64042.) He has served as Chief Medical Officer

(“CMO”) for several health systems such as Mercy Hospital in

Philadelphia, Pennsylvania and Conshohocken, Pennsylvania, and

Sisters of Providence Health Systems of Massachusetts and Connecticut.

(Id.) Although he is not a radiology specialist, he states that he is familiar

with the portable hand-held XRF device and that in his work as the CMO

of various health systems, he was “in charge, along with colleagues in

radiology, of the safety of patients exposed to radiation in [the] radiology

and radiation oncology divisions.” (Id.) Further, Dr. Bithoney indicates

that he has “studied the implementation of the [Napoli Program] and

[has] read the research pertaining to this method of[] XRF scanning for

bone testing for lead in children.” (Id.)

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Dr. Bithoney reviewed the objections to bone lead level testing due

to safety concerns. He states that:

[c]ompared to exposure from x-ray machines, CT scans, and

MRI scans, the exposure to radiation from the XRF device is
negligible and poses negligible risk to humans. To be exact,
exposure to radiation from an XRF scan for bone testing of
lead is measured at a dose of ~3.4 micro sieverts. In
comparison, exposure to radiation from a standard chest x-ray
is 100 micro sievert[s].

(Id. at PageID.64064.) In his opinion, “there is negligible risk of long-term

or short-term effects from exposure to the [~3.4 micro sieverts] of

radiation, which is negligible, in either adults or children.” (Id.)

Dr. Bithoney explains that there are naturally occurring

radioactive materials present around us, every day:

Due to these varying sources of radiation all humans are

exposed to approximately 2400 micro-sievert[]s (2.4 miliSvs)
of radiation per annum. We receive approximately 6.5 micro-
sievert[]s per day of radiation from ambient conditions (living
and breathing). As noted, children of Flint undergoing XRF
evaluation for lead level determination are exposed to
approximately 3.4 microsievert[]s of additional radiation from
the XRF scan for bone lead. Thus, the additional radiation
exposure caused by the XRF bone lead test used to evaluate
lead levels in these children is the equivalent of children
simply living and breathing for 12 hours. The radiation dose
these children receive is less than what they would receive
simply by taking a typical airplane ride, which exposes us to

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approximately 0.003 millisieverts per hour, or about 3.0

micro-sievert[]s per hour, approximately the same amount of
exposure to radiation a child receives during the XRF bone
lead test. The potential damage of this radiation dosage is in
my opinion negligible[.]

(Id. at PageID.64064–60465.) Dr. Bithoney also testifies that “the XRF

test poses negligible risk to a fetus” of a pregnant woman, if she were to

have the test performed during pregnancy. (Id. at PageID.60466.) He

indicates that the radiation exposure is “much less than that of exposure

from CT scans, ultrasounds, or MRIs, which is said to be safe for pregnant

women to undergo by the ACOG [American College of Obstetrics and

Gynecology].” (Id.) No evidence has been submitted by any objector that

challenges Dr. Bithoney’s testimony.

Co-Liaison Counsel also submitted the affidavit of Walter Cofer,

who is a radiation technology and safety specialist. (ECF No. 1789-3.)

Cofer declares that he “disagrees with the [objectors’] assertions” that

bone lead level testing occurring in the Napoli Program is “dangerous and

a risk to the community,” and he believes these claims are “false.” (Id. at

PageID.64097.) Cofer is a certified radiation specialist who has trained

and worked in the field for over thirty years. (Id. at PageID.64098.)

Specifically, he has worked as a consultant in developing radiation safety

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programs, as well as auditing and revising existing programs, including

programs that use hand-held XRF devices. Cofer states that the:

radiation safety program implemented in Flint conforms to

the applicable requirements of the Michigan radiation control
regulations. The x-ray safety program is comprehensive and
applies best safety practices. The program’s custom training
addresses all required topics in an appropriate manner. The
testing component of the training provides a legitimate means
of demonstrating the operators’ understanding of the
radiation hazard, the safety measures in place, and their
competence to use the equipment properly.
(Id. at PageID.64100.) Cofer concludes that:

a. Dr. Specht’s use of XRF technology for lead-in-bone testing

has been approved for use by the Michigan radiation control
program;32

b. As the program’s radiation safety officer, Dr. Specht has

established appropriate work practices to ensure compliance
pertaining to radiation dose limits and other regulatory
requirements;

c. The XRF testing in Flint to measure lead content in bones

exposes the test-recipient to a negligible dose of radiation. The
radiation exposure is so minimal that the risk involved is too
low to be quantifiable; and

32 As the Court understands it, the Michigan Radiation Safety Office (“RSO”)
does not use the term “approve.” However, no evidence has been presented that would
indicate that the RSO found that there are safety issues with the device as it has been
used.
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d. Based on my review of the XRF-based lead testing program

in Flint, I am confident that the radiation safety program
established by Dr. Specht provides a safe and compliant
means of measuring long-term lead exposure, and I have no
reservations regarding continued use of the test methodology.

(Id. at PageID.64101.) The objectors submitted no evidence to challenge

Cofer’s declaration.33

On March 5, 2021, Co-Liaison Counsel submitted a letter to the

Court addressing public allegations in the media that the hand-held XRF

device is unsafe. (ECF No. 1455.) The letter details the protocols used by

the Napoli Program to ensure that the test is conducted safely. (See id.

PageID.57129.)

In sum, the objections related to the safety of bone lead level testing

at the Napoli Program are rejected. To the extent the objections challenge

the safety of bone lead level testing at one of the other available sites for

obtaining such a test, the objections are rejected as well.

33 To clarify, the Court is not suggesting that the objectors or anyone else
should have filed something along the lines of a reply brief to rebut the non-objectors’
position. Rather, under Section 20.1 of the ASA, the objectors have the burden of
persuasion in the first instance that the ASA should not be approved as fair,
reasonable, and adequate. (See ECF No. 1394-2, PageID.54184.)
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Evidentiary Hearing Request

In his objection, Dr. Reynolds seeks to have the Court “(1) appoint

a neutral expert pursuant to Federal Rule of Evidence 706, and/or (2)

hold an evidentiary hearing specifically on the efficacy and safety of the

XRF device at issue in the [A]SA.” (ECF No. 1901, PageID.66497.) The

Court denies this request because it is unnecessary. Dr. Reynolds did not

seek this relief until July 20, 2021, which was after the three-day fairness

hearing had taken place. But even if he had made a timely request, an

evidentiary hearing is not needed. The objections related to the safety of

bone lead level testing and the use of the hand-held XRF device are

entirely unsupported. On the contrary, there is an abundance of evidence

that the tests were being carried out safely.

In the Sixth Circuit, district courts are not required to “conduct a

full evidentiary hearing with live testimony and cross-examination

before approving a settlement.” Int’l Union, 497 F.3d at 636. Rather, the

Court can use its “traditionally broad discretion over the evidence” in

determining fairness. Id. A request for an evidentiary hearing may be

granted if the objectors “can make a colorable claim that the settlement

should not be approved,” but that is not the case here. Id. at 635 (citing

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Geier v. Alexander, 801 F.2d 799, 809 (6th Cir. 1986) (“To allow the

objectors to disrupt the settlement on the basis of nothing more than their

unsupported suppositions would completely thwart the settlement

process . . . [U]nless the objectors have made a clear and specific showing

that vital material was ignored by the District Court[,] [t]here is no need

for the District Court to hold an additional evidentiary hearing on the

propriety of the settlement.”) (internal quotation marks omitted)).

Accordingly, Dr. Reynolds’ request for an evidentiary hearing is denied.

b. Objections Regarding The Napoli

Program’s Regulatory Compliance and
Legality

The Chapman/Lowery Objectors and Anderson Plaintiffs argue

that aspects of the Napoli Program violate the law. For the reasons below,

the allegations regarding the Napoli Program’s lack of regulatory

compliance and legality are rejected.34 When viewing the evidence in the

record, these allegations are unfounded and, unfortunately, have likely

had far-reaching consequences for participants in the settlement who

34 Moreover, these objections are not sufficiently detailed and were not filed
before the March 29, 2021 deadline for filing objections. Therefore, the objections and
arguments are waived and the Court need not consider them. Due to the seriousness
of the allegations, however, the Court will address aspects of them.
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might have wished to obtain a bone lead level test, but were deterred by

counsel’s unfounded claims that the Napoli Program was being conducted

in violation of the law.

Counsel for the Chapman/Lowery Objectors as well as counsel for

the Anderson Plaintiffs asserted at the hearing on July 12 and 15, 2021

that Napoli and/or the Napoli Program had committed a misdemeanor.

The statements made by counsel for the Chapman/Lowery Objectors to

the Court are as follows:

MR. CUKER: [T]here’s a legality issue. I found out to my

astonishment that the clients I sent to be bone scanned on
February 22 I believe were scanned by a device that was
illegal because it wasn’t registered in the State of Michigan.

THE COURT: And tell me what authority do you have . . . that

makes the process illegal? What do you mean – by illegal do
you mean it’s a crime?

MR. CUKER: Yeah, it’s a misdemeanor.

THE COURT: Okay.

MR. CUKER: It’s a misdemeanor to use an unregistered

radiation emitting device in the State of Michigan. I believe
we cited the statute in our paper.

(ECF No. 1904, PageID.66708–66709.) The authority relied upon in the

briefing, however, does not support the claim that the sponsors of the

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Napoli Program committed a crime. The statute Cuker cited states

something else entirely.

In their Brief in Opposition to Co-Liaison Counsel’s Brief In

Support of Final Approval of the Proposed Settlement, the

Chapman/Lowery Objectors cite to Mich. Comp. Laws § 333.2262 for the

proposition that “[u]sing an unregistered radiation machine is a

misdemeanor.” (ECF No. 1838, PageID.65937–65938 (sealed)). However,

§ 333.2262 says nothing of the sort. Section 333.2262 authorizes the

promulgation of “rules to adopt a schedule of monetary civil penalties . .

.” as they relate to the administration of the State of Michigan

Department of Public Health. The Chapman/Lowery Objectors’ also cite

to Mich. Comp. Laws § 333.5031. (ECF No. 1838, PageID.65397 (sealed).)

This is a typographical error; §333.5031 does not exist.

In their opposition to the motion for final approval, the Anderson

Plaintiffs argue that the Napoli Program violated the Michigan

Administrative Code Rule 333.5037, violated 21 U.S.C. §§321(h) and

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331,35 and is involved in a “MIOSHA36 Radiation Safety investigation.”

(ECF No. 1840, PageID.65629–65630.) This last claim is a

mischaracterization, at best. MIOSHA never conducted an

“investigation;” rather, it conducted an inspection to “ensure that the use

of the XRF Scanner was done in accordance with MIOSHA’s rules and

regulations.”37 Department of Labor and Economic Opportunity,

Information on Flint XRF Scanners,

https://www.michigan.gov/leo/0,5863,7-336-94422_11407_35791-

567364--,00.html [https://perma.cc/2UYC-26RV]. Following the

inspection, MIOHSA stated in a press release that media coverage of the

MIOSHA inspection, “unfortunately may have left some readers with the

misunderstanding that use of the XRF scanner exposed individuals to

35 21 U.S.C. § 321(h) contains the definition of the term “device” under the
federal Food, Drug, and Cosmetic Act. It is unclear how the definitions section of the
statute is (or could be) violated by the Napoli Program. 21 U.S.C. § 331 is a multi-
part statutory section containing dozens of acts that are prohibited under the same
statute. The Anderson Plaintiffs’ arguments regarding this statute are cursory at best
and contain no supporting authority. They are rejected.
36 The Michigan Occupational Safety and Health Administration (“MIOSHA”)
is a division of the Michigan Department of Labor and Economic Opportunity.
37 Washington’s argument on July 15, 2021 indicates that MIOSHA’s
inspection may have been initiated by a complaint from Dr. Reynolds. (See ECF No.
1906, PageID.67091.)
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radiation at dangerous or unsafe levels, which is not accurate.”38 Id. It

stated that “there was no indication from MIOSHA’s inspections that an

individual operating these machines or having the machine used on them

was exposed to radiation at dangerous or unsafe levels.” (Id.)

As to the Anderson Plaintiffs’ argument that the Napoli Program

is violating Michigan Administrative Code Rule 333.5037 and is

therefore operating an unsafe or illegal program is similarly misguided.

Rule 333.5037 focuses on registration of a device with the State of

Michigan. Registration— the Anderson Plaintiffs’ arguments

notwithstanding— is an administrative matter, and not a matter of

safety. Registration of a device with the state is in no way related to

whether it is safe or authorized for a particular use.

On September 17, 2021, the Court ordered the Special Master “to

obtain and file as part of the record for purposes of the Court’s review of

the settlement the complete file of the MIOSHA inspection of the

pertinent facility (i.e. a full copy of the records that are referenced in Dr.

38 The Court is aware of counter-accusations in the media by some objectors’

counsel that, somehow, the State Defendants have influenced MIOSHA’s conclusions
in this regard. These accusations are not well taken. They are not founded in any
facts, whatsoever. The Court assumes these baseless accusations were intended to
create the spread of further misinformation and mistrust.
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Reynolds’ motion [to file a sur-reply in support of his original objection])

as well as any statements made by the [MIOSHA] as soon as they are

available.” (ECF No. 1963, PageID.68431–68432.) Due to delays beyond

the control of the Special Master or this Court, the requested documents

have only recently been made available to the Special Master. The Court

may supplement this portion of the Opinion and Order after it receives

and reviews the information obtained by the Special Master, if necessary.

c. Objections to XRF Bone Lead Level Testing

Because It Has No Medical Purpose

Dr. Reynolds argues in his objection that bone lead level testing

(and, in particular, use of the hand-held XRF device utilized by the Napoli

Program), “presents the risks of exposure to radiation without the benefit

of any information that would change the mitigation interventions for a

lead poisoned adult or child.” (ECF No. 1436, PageID.55026–55027

(emphasis added).)

The inclusion of bone lead level testing in this case is for settlement

purposes only and is not intended to provide a medical diagnosis.39 Nor

39 The parties have explained to the Court that the main methods of measuring
lead levels in humans are through blood lead level tests, which must be conducted
close in time to exposure, and bone lead levels, which need not be conducted in such
close proximity. The Compensation Grid reflects this difference in time-period, where
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is the bone lead level testing being performed for the purpose of

“chang[ing] the mitigation interventions for a lead poisoned adult or

child.” (Id.) Instead, it is one method of determining an individual’s

potential recovery on the Compensation Grid, and nothing more. And, as

stated above, no one is required to obtain a bone lead level test to qualify

for recovery, and no one is disqualified for failing to obtain one. If an

individual Claimant does not wish to obtain a bone lead level test for any

reason, including because they believe it should also have a diagnostic

benefit, then they need not obtain a bone lead level test. Accordingly, the

objection that bone lead level testing should not be included in the ASA

because it does not provide a medical benefit, and conversely, the position

that a bone lead level test ought to provide a medical benefit for it to be

included in the ASA, is rejected.

Tort cases commonly require proof of damages to qualify for various

levels of compensation. Take, for example, the compensation grid in In re

N.F.L. There, the settling parties agreed to a monetary award fund that

it provides that a blood lead level test must be conducted between May 16, 2014 and
August 31, 2016, whereas a bone lead level test may occur between May 16, 2014 and
“90 days after the date of the Preliminary Approval Order.” (ECF No. 1319-2,
PageID.40790–40791.)
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provided cash awards for retired football players who had a “qualifying

diagnosis.” 307 F.R.D. at 366. The qualifying diagnoses entitled a retired

player to substantial maximum awards depending on their diagnosis as

defined in the settlement agreement. Id. at 366–67. Each settlement

category had its own set of requirements that the claimants had to satisfy

to qualify for compensation. The district court found “[t]he different

maximum awards that Class Members receive for different Qualifying

Diagnoses reflect the severity of the injury and symptoms suffered by

each Retired Player.” Id. at 378.

Similarly, in In re Deepwater Horizon, a different district court

approved a settlement that was structured to include “standards of proof,

levels of compensation, and conditions to be included in the

[compensation grid] Matrix.” 295 F.R.D. at 119. There, objectors objected

to the various levels of recovery. The court rejected this objection because

linking a class member’s level of proof to their award is “entirely

appropriate” and is “tied to the reality of litigating; the greater the proof,

the more likely a plaintiff will recover at trial.” Id. at 157–58.

Accordingly, there is nothing novel or fundamentally unfair about

the ASA Compensation Grid’s categorization of compensation for

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Claimants based on their level of lead exposure. This objection is

overruled.

d. Objections Arguing that the Napoli

Program Constitutes an Undisclosed
Research Project

Dr. Reynolds also objects to the inclusion of bone lead level testing

in the ASA because, he argues, it is “at best, unauthorized research.”

(ECF No. 1436, PageID.55026.) He argues that the attorneys in the case

are “promoting” this “undisclosed research project” (id.), and he states: “I

repeat in the strongest possible terms, my objection that the use of the

portable XRF in any way to promote the settlement of this litigation, is

an unauthorized/unsupervised research project, masquerading as an

accepted medical procedure, as a condition for compensation to

claimants.” (Id. at PageID.55029.) This objection has absolutely no basis

in fact.

Again, bone lead level testing is included in the ASA as one of many

methods for determining an individual’s potential recovery on the

Compensation Grid. Co-Liaison Counsel’s opposition to Dr. Reynolds’

objection is supported by an affidavit signed by Jon Merz, who is an

Associate Professor in the Department of Medical Ethics and Health

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Policy at the University of Pennsylvania’s Perelman School of Medicine.

(ECF No. 1789-9.) Merz is also “a lawyer and social scientist with broad

research interests in the ethics and conduct of science, including

especially human subjects research and informed consent.” (Id. at

PageID.64185.) Merz, after reviewing documents relevant to the Napoli

Program and reviewing Dr. Reynolds’ objection, concludes: “It is clear

from the Test Protocol that the bone lead level assessment is not being

used for any purpose other than determining . . . exposures for litigation

settlement purposes.” (Id. at PageID.64186.) He states that the bone lead

level testing protocol in this case “includes none of the attributes of

research” and “in no way is designed to be research.” (Id. at

PageID.64188.)

Additionally, Dr. Specht, under whose leadership the Napoli

Program was established, submitted an affidavit as to the research

project arguments, which states:

I understand there is an assertion being made that the

current bone lead testing program that had already
commenced should be considered a “research project.” I
disagree. The work in Flint does not currently meet the
criteria for a research project. There is no generalizable
knowledge being sought out and the measurements are
currently only being used as a method in determining level of

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lead exposure for litigation purposes and in accordance with

an agreed settlement program. In order to be considered a
research project, the project must have a definable research
question. Currently, there is no question being answered by
collecting measurements on the individuals for distribution of
damages in this lawsuit.

(ECF No. 1795-2, PageID.64494.)

Dr. Reynolds submitted several supplemental filings, none of which

contain any rebuttal evidence that the Napoli Program is conducting an

undisclosed research project. (See ECF Nos. 1901, 1909, 1911, 1923,

1959.) Dr. Reynolds also spoke at the fairness hearing on July 12, 2021

but did not provide any evidence for his objection.40 (ECF No. 1940.) Dr.

Reynolds’ assertion that the Napoli Program constitutes unauthorized

and unsupervised research is not supported by any facts or evidence in

the record. The record evidence indicates the opposite: that the program

was not a research project. Accordingly, Dr. Reynolds’ objection is denied.

And further, the arguments set forth by Dr. Reynolds regarding Research

Testing and Clinical Laboratory Improvement Amendments of 1988,

which stem from the supposition that the Napoli Program is conducting

40 When Dr. Reynolds presented his objection to the Court at the hearing on
July 12, 2021, he did so as an individual community member and not as a medical
expert sworn to give expert testimony. (See ECF No. 1904, PageID.66743.)
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research, are also rejected. (ECF No. 1436, PageID.55029–55030.) As

stated by Dr. Specht, “approval under the Clinical Laboratory

Improvement Amendments of 1988 (CILA) is not necessary because the

test is not used as a ‘diagnosis, prevention, or treatment of any disease.’

The sole purpose of the test is to quantify lead exposure.” (ECF No. 1795-

2, PageID.64494.)

e. Objections Claiming that Bone Lead Level

Testing is the “Main Method” of Recovery
Under the ASA

The Chapman/Lowery Objectors argue that the Napoli Program

did not make enough bone lead level testing appointments available to

them, and therefore, the entire settlement is unfair.41 These objections

rely on the false premise that bone lead level testing is the “main” or

“only” method to obtain recovery under the ASA. However, there is not a

single Settlement Category on the Compensation Grid that requires bone

lead level testing as its only qualification. Nor is there a requirement

41 The Chapman/Lowery Objectors are individually represented Claimants

and are not class members. Their standing to object is unclear, as it is not afforded to
them under Rule 23(e)(5), which provides the procedure for class members to object
to a class settlement proposal. The ASA, in Section 20.1, acknowledges non-class
objections and therefore, they are addressed.
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anywhere in the ASA that individuals must obtain a bone lead level test

to qualify for recovery.

For example, Settlement Category 1 of the Compensation Grid,

which contains the highest Monetary Award in the ASA, states the

following requirements for qualification: (1) that the individual’s age

must have been six or younger at the time of their first exposure; (2) that

the individual must have been exposed for at least twenty-one days

during any thirty-day period between April 25, 2015 and July 31, 2016;

(3) that the individual must have resided, dwelled, or attended school or

day care in Flint, or have otherwise been exposed to Flint Water; and (4)

that the individual obtained a blood lead level test during a certain time

frame or a bone lead level test during a broader time frame, that

demonstrates a certain level of lead. (See, e.g., ECF No. 1319-2 at

PageID.40790–40791.) Thus, an individual may qualify for Settlement

Category 1 without having a bone lead level test, and conversely, an

individual who undertook a bone lead level test might not qualify for

Settlement Category 1 if they do not meet its other requirements listed

in that Category.

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Moreover, fully half of the categories on the Compensation Grid do

not include bone lead level testing as a qualification at all. (See, e.g.,

Categories 5–7, 12–14, 19–21, 24, 26–30, ECF No. 1319-2,

PageID.40789–40831.) These categories on the Grid provides other

qualifications for a Monetary Award, including results of blood lead level

tests, cognitive tests, certain medical records, results of residential water

lead level tests, copies of a lease or property ownership demonstrating

residence, and more. (Id.) The Compensation Grid’s inclusion of multiple

options– including bone lead level testing– to qualify for various levels of

recovery is a reasonable and responsible way of determining the

appropriate relief for an individual.

Even if an individual were to obtain a bone lead level test, there is

no guarantee that their results would place them into a higher

Settlement Category on the Compensation Grid. Just as there were

disparities in the level of exposure to Flint Water during the relevant

time, there will be disparities in bone lead level test results. Accordingly,

obtaining a bone lead level test is not a guarantee of higher recovery. This

objection is overruled.

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f. Objections Asserting That Bone Lead Level

Testing At Mt. Sinai and Purdue University
Were Unavailable to Objectors

The Chapman/Lowery Objectors object to the settlement on the

basis that two of the three sites for obtaining a bone lead level test in the

United States– Mt. Sinai Hospital in New York City and Purdue

University in West Lafayette, Indiana– were inaccessible to them. (See

ECF No. 1463, PageID.57608.) The Court rejects these objections for the

reasons below.

With regard to Mt. Sinai Hospital, the Chapman/Lowery Objectors

argue that the settlement should be rejected because they find the

prospect of travelling to New York City “daunting.” (Id.) The Court

disagrees. The notion that Flint residents would be “daunted” by

travelling out of state to obtain a test that could potentially affect their

recovery level is rejected.

The Court recognizes the possibility that out-of-state travel may

impose some degree of hardship due to employment obligations, health

issues, or any number of other valid reasons. However, the

Chapman/Lowery Objectors do not make any such specific arguments.

They only argue that travel is daunting, in general, for the people of Flint.

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The Chapman/Lowery Objectors also argue that the pandemic

played a role in further limiting the availability of bone lead level testing

where they state that travel to New York City, “would be daunting

enough for Flint residents without a pandemic.” (Id.) This fails, too.

The Chapman/Lowery Objectors have not provided any support for,

nor have they fully developed, this objection. The Chapman/Lowery

Objectors’ counsel, Cuker, was aware of the use of bone lead level testing

in lead exposure cases long before the pandemic struck. He had a duty to

develop his clients’ cases with diligence, regardless of what terms would

ultimately be included in a potential settlement, even if doing so required

some financial outlay or risk on his part. Having the test conducted too

soon would not have been an issue; bone lead level testing conducted as

early as May 16, 2014 qualifies for purposes of the ASA. (See ECF No.

1319-2, PageID.40790–40791.) And indeed, COVID-19 was not declared

to be a national emergency until March 13, 2020. See Proclamation on

Declaring a National Emergency Concerning the Novel Coronavirus

Disease (COVID-19) Outbreak, issued March 13, 2020.

https://trumpwhitehouse.archives.gov/presidential-

actions/proclamation-declaring-national-emergency-concerning-novel-

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coronavirus-disease-covid-19-outbreak/ [ https://perma.cc/59VX-4EG9].

Accordingly, the Court rejects the argument that the COVID-19

pandemic is a reason to deny final approval.

With regard to Purdue University, the Chapman/Lowery Objectors

argue that Dr. Linda Nie, who leads the Purdue bone lead level testing

lab, is “not available” to perform tests on Flint residents. (ECF No. 1463,

PageID.57608.) This argument is supported by an email exchange

between Cuker and Dr. Nie. Cuker’s communication, dated November 20,

2020, states:

I am a lawyer representing about 1,300 residents of Flint. I

know you have been approached by other attorneys for Flint
residents about the fact that the lawsuit settlement being
proposed provides for enhanced payments to Flint residents
with bone lead test results. I would like to arrange for such
testing for my clients. Is there any possibility we could make
arrangements to do so with your lab, or anyone affiliated with
your lab?
If not, is there anyone you can recommend? Thanks for your
time responding to this.

(ECF No. 1341-2, PageID.41895–41896.) Dr. Nie responded on November

23, 2020, stating:

I am sorry to tell you that it cannot be done with my lab or

anyone affiliated with my lab, because it is difficult to do it if
it is not research related. As far as I know, there are only 3
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labs in the US which have the capability to make bone lead

testing, one is my lab (with both a stationary KXRF system
and a portable XRF), one is my colleague’s lab at Harvard (Dr.
Aaron Specht, with a portable XRF), and one is at Mount
Sinai (Dr. Andy Todd, with a stationary KXRF system).
I am sorry that I cannot be more helpful.

(Id. at PageID.41895.) The Chapman/Lowery Objectors argue that,

based on this single email, bone lead level testing through Dr. Nie and

Purdue University was foreclosed. The Court disagrees.

The Chapman/Lowery Objectors’ counsel evidently failed to contact

Dr. Nie earlier in the litigation. Perhaps if he had done so, there would

have been a different outcome, or, at the very least, more time to explore

other alternatives.42 Cuker emailed Dr. Nie on November 20, 2020.

However, he first appeared in the Flint Water litigation on August 28,

42 Granted, Dr. Nie does not specifically state that she could or would have
accommodated Chapman/Lowery Objectors’ counsel’s request if it had been made
earlier. But common sense dictates that a professor and researcher at a major
university such as Purdue University could not reasonably be expected to perform
approximately 1,300 bone lead tests when the request was made just days before the
end of classes in the fall 2020 academic calendar. See
https://www.purdue.edu/registrar/documents/calendars/academicCalendars/academi
cCal_20-21.pdf [https://perma.cc/T25Y-4T82]. And, presumably, the
Chapman/Lowery Objectors’ counsel wanted all 1,300 clients’ tests completed before
the ASA’s deadline for doing so, which was April 27, 2021. Further, the email suggests
that Dr. Nie would want University approval to use the University’s equipment and
that process understandably would take some time. Another option that apparently
was not explored was to bring another KXRF machine to Flint.

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2017 in the Carthan case. (ECF No. 195.) He appeared in the Flint Water

Case Gulla v. Wells on the same day. (Case No. 5:17-cv-10709, ECF No.

86, PageID.2422.) He filed a complaint on behalf of his individual clients

in the case Chapman v. Snyder on February 27, 2018. (Case No. 5:18-cv-

10679, ECF No. 1.) Therefore, Cuker was not new to the Flint Water

Cases when he emailed Dr. Nie in late November 2020.

Nor was Cuker new to bone lead level testing in lead exposure

cases. He told the Court at a hearing on October 30, 2020: “I am not a

stranger to XRF testing. I did a Daubert hearing on XRF testing years

ago.” (ECF No. 1312, PageID.39915.) Court records from the Middle

District of Pennsylvania in 1998 confirm that Cuker defended against a

Daubert motion relating to bone lead level testing. See Dombrowski v.

Gould Elec. Inc., No. 3:98-cv-93-0120 (M.D. Pa.). (See ECF No. 1897-2,

PageID.66399.) Thus, Cuker has known about the use of bone lead level

testing in lead exposure litigation since at least 1998. It is inexplicable

that, armed with knowledge of bone lead level testing’s potential

usefulness in lead exposure cases, he waited until the end of 2020 to

contact Dr. Nie about setting up bone lead level testing appointments for

his clients.

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Cuker stated to the Court on October 30, 2020, that he contacted

Dr. Todd at Mt. Sinai Hospital in 2016. (ECF No. 1312, PageID.39915 (“I

got in touch with Mt. Sinai in early 2016 to explore whether it’s feasible

to use it in Flint.”).) But he never explained the outcome of that

communication. When he argues that Dr. Nie was not available, it is

curious why he did not explore these (or other) bone lead level testing

options at the same time that he contacted Mt. Sinai Hospital. The

Chapman/Lowery Objectors’ counsel’s failure to contact other experts

and set up a bone lead level testing program for his clients does not

render the settlement unfair, unjust, or unreasonable.

Accordingly, the Court rejects the Chapman/Lowery Objectors’

objections that bone lead level testing was not available at Mt. Sinai

Hospital or Purdue University.

g. Objections Related to the Unavailability

for Non-Client Bone Lead Level Test
Appointments with the Napoli Program

There is another option for obtaining a bone lead level test in the

United States, which is through Dr. Specht’s bone lead level testing

program, either at Harvard University or through the Napoli Program.

The Chapman/Lowery Objectors argue that Dr. Specht made himself

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unavailable to them. They state that “Dr[.] Aaron Specht of Harvard has

a portable XRF machine; he has been engaged by Liaison Counsel as an

expert on their individual cases . . . . He has refused to respond to

inquiries from other law firms. . . . .” (ECF No. 1463, PageID.57608.)

These objectors ask the Court to reject the settlement because Co-Liaison

Counsel, through the Napoli Program, “has a monopoly on bone lead

testing in Flint” and made slots available to non-clients beginning on

February 21, 2021 “only” on Sundays between 1:00 p.m. and 3:45 p.m.

(Id. at PageID.57609; see also ECF No. 1897-1, PageID.66349.) Objectors

argue that “[a]vailable slots quickly filled up, and many people who

wanted scans could not get them.” (Id.) These objections are rejected. Dr.

Specht’s methodology is set forth in his publications, which any other

qualified expert could use. There is no monopoly here.

Co-Liaison Counsel was not obligated under the ASA or otherwise

to offer bone lead level testing to non-Napoli clients through the Napoli

Program.43 Despite this, the Napoli Program did offer testing for non-

43 Nor was Co-Liaison Counsel obligated to do so merely because of its

appointment as Co-Liaison Counsel in this litigation. The Chapman/Lowery
Objectors’ counsel incorrectly conflated the role of appointed co-liaison counsel in
complex litigation with the notion that they are somehow obligated to disclose to all
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clients and many obtained tests. Between February 21, 2021 and April

25, 2021, the Napoli Program offered three hundred eighty-four time

slots to non-clients. (ECF No. 1895-2, PageID.66293.) Of the three

hundred eighty-four, only three hundred six appointments were made.

And of the three hundred six, one hundred ninety-seven scans were

completed, fourteen individuals declined, and ninety-five individuals did

not show up for their scheduled time slot. (Id. at PageID.66294.) In fact,

other plaintiffs’ counsel how they choose to develop their own cases, where he stated
at the July 12, 2021 hearing:

I just want to say one thing about the obligation of liaison counsel. No,
they don’t have to prepare my cases for me. They’re supposed to tell me
what’s going on. They’re supposed to keep us advised of the material
developments in the litigation for the very reason Your Honor said. You
can’t have every lawyer at the seat of every table at every meeting. So
they’re supposed to keep us informed. All right. And the fact of the
matter is, they were working on bone lead testing and scanning
thousands of their clients beginning August 2019. We did not [kn]ow the
significance of bone lead testing in the settlement until November 2020.
That’s all I have to say.

(ECF No. 1904, PageID.66739–66740.) And again, on July 15, he argued:

So what did [Co-Liaison Counsel] do to protect the interest of my clients?

What did my lawyers do for me in this case? Well, they knew with
certainty, with a hundred per certainty in February of 2020 that bone
scans would be a big issue on distributing money. They were scanning
thousands of their clients. Hundreds of their clients every week. And
didn’t say a word about it to me.

(ECF No. 1906, PageID.67072.) These arguments are rejected. Every counsel has an
independent obligation to diligently develop their own clients’ cases, regardless of
what others are doing.
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thirty-eight of Cuker’s clients obtained tests through the Napoli

Program, two declined, and thirteen failed to show up for their time slots.

Of all of the time slots that were reserved for counselled non-clients of

Co-Liaison Counsel, Cuker’s clients had the highest number of

appointments, at fifty-three.

Non-clients of Co-Liaison Counsel who utilized the Napoli Program

were represented by the following attorneys: Ben Crump (three

scheduled tests), Cohen Milstein Sellers & Toll PLLC (twenty-eight

scheduled tests), Cohen Milstein/Pitt McGee (seven scheduled tests), the

Hamilton Lincoln Law Institute (five scheduled tests), Hertz Schram PC

(two scheduled tests), Neal J. Wilensky PC (nine scheduled tests), Pitt,

McGehee, Palmer, Bonanni & Rivers, P.C. (fifty-one scheduled tests),

Trachelle C. Young & Associates (five scheduled tests), and Valdemar

Washington (one scheduled test). (Id.) Forty-two unrepresented

individuals scheduled tests with the Napoli Program. (Id.)

Two of the attorneys whose clients obtained tests through the

Napoli Program, Ben Crump and Ari Kresh, attested that they were

provided access to bone lead level tests through the Napoli Program and

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that the tests were conducted in a professional manner. (ECF Nos. 1786-

4, 1786-5.)

Indeed, the Napoli Program offered bone lead level testing slots to

non-clients that went unused. Scarcity was not a problem in light of these

numbers. This abundance of unfilled appointments defeats the

Unrepresented Objectors’ arguments that they were “not given an

opportunity to have a bone lead scan test[.]” (See, e.g., ECF No. 1660,

PageID.61439.) These objections are denied.

More importantly, fifty-three of Cuker’s clients scheduled tests,

which undermines the Chapman/Lowery Objectors’ arguments that

testing through the Napoli Program was inaccessible. Further, as noted,

there is nothing that prohibited others from seeking out other

mechanisms to obtain bone lead testing. Accordingly, the

Chapman/Lowery Objectors’ objections that the Napoli Program was

their only option for obtaining a bone lead level test, but that slots were

limited and unavailable, is denied.

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h. Objections Related to the Napoli

Program’s Requirement that Participants
Sign a Liability Release

The Chapman/Lowery Objectors who signed up to receive bone lead

level testing at the Napoli Program argue that they should not have been

required to sign a release of liability before the test was performed. (See,

e.g., ECF No. 1463, PageID.57609.) Specifically, they argue that “[t]he

disclosure which people were asked to sign was confusing and

misleading.” (Id. at PageID.57610.) When counsel for the

Chapman/Lowery Objectors complained to Napoli himself about the

release, Napoli cancelled some of Cuker’s clients’ appointments. (Id.)

The Court will not deny final approval because non-clients of Napoli

Shkolnik were asked to sign a release form before participating in the

Napoli Program. A release is a standard practice and a reasonable

condition to receiving a test on a site maintained by the Napoli Shkolnik

or any other firm. No one was required to obtain a level lead test from

the Napoli Program in the first place. The Napoli Program was not

obligated to offer appointments to non-clients. Individuals who did not

agree with the Napoli Program’s liability release form had the option to

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leave and refuse the test. The Napoli Program was not obligated to make

tests available to individuals who refused to sign a release form.

It appears from the e-mails the Chapman/Lowery Objectors

attached to his clients’ objections that there were efforts made on both

sides to modify the release to satisfy these objectors’ concerns, which

ended in an impasse. (Id. at PageID.57616–57630.) This dispute between

the Chapman/Lowery Objectors’ counsel and Napoli Shkolnik has little

to do with whether final approval of the settlement should be granted or

denied, and the Court will not reject the settlement on the basis that the

Chapman/Lowery Objectors’ counsel and Napoli Shkolnik could not

agree on the content of the Napoli Program’s release form, particularly

when the Chapman/Lowery Objectors’ counsel was threatening

litigation over both the safety and availability of bone lead level testing.

As this drama was unfolding, the Court’s head was spinning. Moreover,

thirty-eight of Cuker’s clients evidently signed the release and obtained

the test, so this objection lacks merit and this objection is rejected.

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i. Objections Related to the $500 Cost of a

Bone Lead Level Test with the Napoli
Program

The Chapman/Lowery Objectors who signed up for bone lead level

testing with the Napoli Program indicate that their appointments were

cancelled and that they “have since been informed that Mr. Napoli

personally ordered my appointment cancelled, because I am a client of

Mark Cuker, and that Mr. Cuker would not agree to pay $500—no

questions asked—for the cost of the test.” (Id. at PageID.57603.) These

objectors argue that there is “no transparency” as to

where the money to pay for [the tests] will go. Napoli told my
lawyer he wanted $500. He told another lawyer he wanted
$350. Either number seems excessive; [e]ach test takes only 3
minutes to run; Dr. Specht charges $200 per hour and can
review multiple tests in an hour. If Napoli is making a profit
on what he is charging other lawyers for these tests, he is also
violating Ethics Rule 1.8.

(Id. at PageID.57610.) Their argument is that the settlement should be

rejected because of the $500 cost of a bone lead level test.

Five hundred dollars is not an unreasonable amount of money for

individuals represented by counsel other than Co-Liaison Counsel to pay

for obtaining a bone lead level test through the Napoli Program. Napoli

Shkolnik undertook the start-up work, including paying the initial costs
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for the program and obtaining the necessary equipment. The firm

employed staff including skilled nursing staff and an office manager. It

rented office space in Flint, paid for cleaning services, and, significantly,

it paid the fees and costs for Dr. Specht to obtain the bone lead level

testing device(s) used at the facility, train individuals in how to conduct

the tests, and interpret the test results. (See ECF No. 1789-9,

PageID.64192, 64194, 64195.) Accordingly, as stated at the July 12, 2021

hearing, from the Court’s perspective, $500 per test is not prohibitive and

is not a reason to reject the settlement. (See ECF No. 1904,

PageID.66603.) That some of the Chapman/Lowery Objectors refused to

pay the $500 fee is also not a reason to reject the entire settlement. And,

once again, thirty-eight of the Chapman/Lowery Objectors’ counsel’s

clients evidently paid the $500 because they had tests performed through

the Napoli Program. Accordingly, this objection is rejected.

j. Arguments Related to Bone Lead Level

Testing Submitted After the March 29, 2021
Deadline for Filing Objections

As set forth above, the deadline for objecting to the ASA was March

29, 2021. But on June 24, 2021, some counsel filed briefs opposing the

motion for final approval that include objections to the settlement. (See,

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e.g. ECF No. 1839.) To the extent that these briefs raise arguments that

were not previously made by the objectors before the March 29, 2021

deadline, or that the Court has decided in its discretion to address herein,

they are rejected.

For example, on June 24, 2021, the Chapman/Lowery Objectors’

counsel filed an opposition brief that adopts and attaches as an exhibit

non-settling Defendants Veolia North America, Inc., Veolia North

America, LLC, and Veolia Water North America Operating Services,

LLC’s (together, “Veolia”) Daubert motion to exclude the testimony of Dr.

Specht. Veolia filed that motion on the docket in the bellwether cases on

May 11, 2021. (ECF No. 1839-2, PageID.65444 (attaching Case No. 17-

10164, ECF No. 343).) Veolia’s motion was filed well after the March 29,

2021 deadline, and they were not mentioned in Chapman/Lowery

Objectors’ objections. The Chapman/Lowery Objectors’ counsel’s alliance

with Veolia—whom his clients have ongoing litigation against—is

troubling. Thirty-eight of Chapman/Lowery Objectors’ counsel’s clients

obtained bone lead level tests that he now argues are both unsafe and

unreliable. Those clients are in an unenviable position now that their

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lawyer is siding with a non-settling Defendant. The arguments in the

Chapman/Lowery Objectors’ post-deadline brief are therefore rejected.

2. Objection Related to Blood Lead Level Test

Results

Dr. Reynolds objects to the ASA’s inclusion of blood lead level test

results. (ECF No. 1436, PageID.55031–55037.) Dr. Reynolds states that

these tests are not routinely ordered, “[u]nless there is an older toddler

or child in the home with an elevated blood lead level or it is known that

the water is contaminated with lead.” (Id. at PageID.55032 (emphasis in

original).) He acknowledges that Medicaid and the State of Michigan

Department of Health and Human Services’ Women, Infants and

Children program (“WIC”) recipients “must be screened for lead” through

a blood lead level test but states that “[t]he notion that every child should

be or should have been tested is incorrect . . . .” (Id. at PageID.55032–

55033.) He indicates that when individuals in Flint did receive a blood

lead level test, “their test results [we]re extremely low.” (Id. at

PageID.55034–55035.) Dr. Reynolds argues that there was no universal

testing of all Flint residents and that the results of testing did not show

higher blood lead levels because both the State and City Defendants

“engaged in a cover up.” (Id. at PageID.55035.)

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These arguments are rejected. Blood lead level tests may not be

universally administered to everyone, but that does not render the entire

settlement unfair or unreasonable. Moreover, the fact that Medicaid and

WIC require blood lead level testing means that individuals enrolled in

those programs are more likely to have a blood lead level test that may

be helpful to their recovery. This does not render the settlement unfair

because there are other methods for showing lead poisoning.

As with bone lead level testing, there is no requirement that an

individual have a blood lead level test to participate in the settlement;

the failure to have obtained one during the relevant time frame does not

shut anyone out of the settlement if they otherwise qualify for

participation. Accordingly, this objection is rejected.

3. Objections to Cognitive Deficit Testing

Settlement Category Requirements

Dr. Reynolds, the Chapman/Lowery Objectors and Several

Unrepresented Objectors object to the inclusion of a “Cognitive Deficit”

Settlement Category that appears in Categories 2 (applicable to Minors,

ages 6 and younger), 3 (applicable to Minors, ages 6 and younger), 10

(applicable to Minors, ages 7–11), and 17 (applicable to Minors, ages 12–

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17) on the Compensation Grid. The Cognitive Deficit category’s

requirements are in relevant part as follows:

(1) For at least 21 days during any 30-day period between

April 25, 2014 and July 31, 2016;

(2) Resided, dwelled, or attended school or day care in Flint,

or were otherwise exposed to Flint water; and

(3) Have a report documenting a full and individual

evaluation dated after May 16, 2014, from a multidisciplinary
evaluation team which shall include a board-certified
pediatrician and neuropsychologist, and which report is based
upon a neurocognitive or neuropsychological assessment
battery of clinical, scientifically validated tests, including the
Cambridge Neuropsychological Test Automated Battery
(CANTAB), determining that the individual has a lead related
cognitive impairment, caused after May 16, 2014, defined as:
Cognitive impairment manifested during the individual’s
developmental period at ages 6 or younger,44 and who was
exposed to Flint water during that period, as determined
through testing and the demonstration of all of the following
behavioral characteristics: [Either] (i) development at a rate
of 2.0 standard deviations or more below the mean as
determined through an assessment of intellectual functioning
domain; [or] (ii) scores approximately within the lowest six
percentiles on a standardized test in reading and arithmetic

44 For Settlement Category 10, the age range in the corresponding section is 7–
11, and on Settlement Category 17, the age range in the corresponding section is 12–
17. (ECF No. 1319-2, PageID.40806, 40814.) For Categories 10 and 17, the finding
under (i) is stated as 1 standard deviation or more below the mean rather than 2
standard deviations below the mean. (Id. at PageID.40796–40797, PageID.40805–
40807 and PageID.40813–40815.)
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(this requirement will not apply if the individual is not of an

age, grade, or mental age appropriate for formal or
standardized achievement tests). [Alternatively, a
demonstration of any two of the following behavioral
characteristics:] (iii) lack of normally accepted development
primarily in the cognitive domain; (iv) impairment of adaptive
behavior; and (v) impairment which adversely affects an
individual’s educational performance. [fn 2] The report
determining that the individual has a cognitive impairment
must be signed and verified as reliable and accurate by a
Ph[.]D[.] and/or M.D. qualified to do so in the appropriate field
of study. The above referenced CANTAB shall include
cognitive end points from: the Reaction Time Test (RTI); the
Spatial Memory Span Test (SSP); the Stockings of Cambridge
Test of problem solving (SOC); and the Dimensional Shift Test
(IED) of attentional control.

[fn 2] Based upon, but adjusted, Michigan

Administrative Rules for Special Education (MARSE) R
340.1705, Cognitive impairment; determination. Rule 5.

(ECF No. 1319-2, PageID.40792–40793 (emphasis in original); as

amended by ECF No. 1941 (amended language of point (3) in brackets).)

Dr. Reynolds objects to the third requirement’s specification that

the evaluation team include both a board-certified pediatrician and a

neuropsychologist. Dr. Reynolds argues that, when a child is evaluated

for an Individualized Education Plan (“IEP”) at school, the school district

typically performs the testing required for the IEP. He argues that the

ASA’s requirements are too stringent in that they differ from those for an
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IEP. (ECF No. 1436, PageID.55041–55042.) He additionally argues that

the resources in Flint for obtaining the testing described in the ASA are

limited. (Id. at PageID.55042–55044.)

The Chapman/Lowery Objectors similarly object, arguing that

“[t]his testing requires 6 hours to complete and is only available in Flint

at the Neurodevelopmental Center for Excellence, which has few, if any,

appointments available.” (ECF No. 1463, PageID.57065–57066.)

In addition, eighteen Unrepresented Objectors checked a checkbox

on their objection form next to the following objections: “My child has not

been given the opportunity to have a neuropsychological test to know if

he/she has suffered a personal injury.” (ECF Nos. 1621, 1631, 1632, 1636,

1641, 1642, 1652, 1653, 1655, 1660, 1668, 1670, 1678, 1681, 1682, 1689,

1692, 1694.)

In response to these objections, Class Plaintiffs argue that Minors

are not part of the Settlement Class, so “the Court need not consider

whether provisions specific to Minors satisfy Rule 23(e).” (ECF No. 1794,

PageID.64302.) Class Plaintiffs are correct. The portions of the ASA

applicable to Minors only– such as the Cognitive Deficit category in the

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Compensation Grid– are not subject to Rule 23 approval. But even if they

were, they are fair and reasonable.

There is no reason why the terms of the ASA should exactly mirror

the terms of IEP qualifications under state and federal law, as Dr.

Reynolds contends. Indeed, the requirements for qualifying in this

Compensation Grid Category of the ASA may not be as high as an IEP

under Michigan law. Moreover, there is nothing in the ASA that would

prohibit a Claimant from submitting their IEP documentation, provided

it contains the results required under the Compensation Grid. A

settlement is a contract between the parties that can include terms that

the parties negotiate and agree to, so long as it is fair.

Since the objections were filed, the Settling Parties stipulated to a

revised definition of Cognitive Deficit that “clarif[ied]” some of the

“confusion” over the requirements. (ECF No. 1941, PageID.67908.) The

amendment revises the required behavioral characteristics for qualifying

for compensation. The new definition lists the various types of tests that

can be used and no longer requires that the submission show results on

all five tests. (ECF No. 1941, PageID.67911–67912.) Among other things,

the amendment gives the Claims Administrator, subject to the

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supervision of the Special Master, the “discretion to obtain information”

about tests that are not specifically identified in the ASA and to evaluate

these tests for their compliance with the Compensation Grid. (Id. at

PageID.67913.) The cognitive deficit testing objections are overruled.

4. Objection Related to the Miscarriages and Fetal

Blood Lead Level Test Results Settlement
Category

Dr. Reynolds objects to Settlement Category 26 of the ASA, which

is entitled “Women Miscarriages”. (ECF No. 1319-2, PageID.40824.) This

category provides for additional funds for women who suffered a

miscarriage during the relevant time and can demonstrate through a

blood lead test that the “mother’s or fetus’ cord BLL [Blood Lead Level]

of 5 mcg/dL or higher.” (ECF No. 1319-2, PageID.40825.) Dr. Reynolds

argues that doctors and other medical professionals do not typically

perform blood lead level testing when a miscarriage occurs. (See ECF No.

1436, PageID.55037–55038.) He also notes that “[m]ore frequently than

not, a woman suffers a miscarriage outside of a medical facility . . . . [and]

they do not bring in the miscarried fetal material for testing.” (Id. at

PageID.55038.) Dr. Reynolds’ objection is denied.

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It is undisputed that most miscarriages occur outside medical

facilities. Undoubtedly, the Settling Parties knew when they negotiated

this term that some women who had a miscarriage during the relevant

time did not obtain a blood lead level test on themselves, or on the fetal

cord, after their miscarriage. But that does not render the settlement

unfair and unreasonable. Those women who did not obtain such tests will

be excluded from this specific Settlement Category, but they will not be

excluded from the settlement entirely.

Moreover, it is possible that some women did obtain blood lead level

testing related to a miscarriage, and those women may potentially

receive a higher Monetary Award. It is fair and reasonable for the ASA

to include this Settlement Category on the Compensation Grid.

Accordingly, this objection is rejected.

5. Objections to the Compensation Grid’s

Requirements of Proof of Galvanized Steel
Service Lines

Dr. Reynolds objects to the compensation categories that relate to

individuals who lived at a residence with a lead or galvanized steel

service line. (Id. at PageID.55035.) The Settlement Categories on the

Compensation Grid, Categories 5, 12, and 19, require the following proof:

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Residence with water lead level of 15 ppb or higher:

Water lead level test from: a laboratory certified by the State
of Michigan; the list on the State of Michigan Flint Water Test
Results website; the United States Environmental Protection
Agency; or Virginia Polytechnic Institute and State
University; with a result of 15 ppb or higher dated between
May 16, 2015 and August 31, 2016.

(ECF No. 1319-2, PageID.40800 (underline in original).) Alternatively,

the following proof can also be used to qualify for Settlement Categories

5, 12, and 19: “Residence with lead or galvanized steel service lines

(‘LSL’): City of Flint Report evidencing that Claimant’s residence had a

LSL at the time of exposure to Flint water between April 25, 2014 and

July 31, 2016.” (Id. at PageID.40800 (underline in original).)

Dr. Reynolds argues that final approval of the settlement should be

denied because these proofs are “unfair.” (ECF No. 1436, PageID.55035.)

He states that Flint residents were told to “flush” their water systems.

And further, he argues that if a person contacts the City to find out if

they had a lead or galvanized steel service line, “they are given a form

that allows city employees to come look at their property. Records were

lost, inaccurate, or illegible.” (Id. at PageID.55037.)

This objection reflects a misunderstanding of the terms of the

settlement. Settlement Categories 5, 12, and 19 provide alternatives. An

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individual who lived at a residence where there were lead service lines,

but where they did not obtain a certified test result, or where the water

may have been flushed resulting in an inaccurate result, can still qualify

under these Settlement Categories. The ASA refers to a “City of Flint

Report” that would evidence lead service lines. This is a report on the

service line replacements that includes the address, date that the repair

crews checked the lines, the composition of the lines, the action taken,

and when the replacement was complete. The report is generally

available and has been provided to the Claims Administrator. The Court

is unaware of any facts supporting Dr. Reynolds’ suggestion that

settlement participants would need to have their property separately

looked at by a City employee to qualify for these Settlement Categories.

Accordingly, this objection is denied.

The Chapman/Lowery Objectors also object to an aspect of the ASA

related to water service lines. They argue that the “first four [Settlement

C]ategories ignore another metric for lead exposure—a finding that the

home was connected to a lead service line or had test results showing lead

in the water at or above 15 ppb, which first appears in Category 5.” (ECF

No. 1463, PageID.57606.) The first four Settlement Categories apply to

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Minor Children, ages 6 and younger, and contain different criteria for

qualification, including bone lead level testing, blood lead level testing,

and cognitive deficit testing. The Chapman/Lowery Objectors rely on

this argument in support of their position that obtaining bone lead level

testing is the “only” way for children to receive higher funds in

Settlement Categories 1–4. The Court has already rejected this

argument. They are, in essence, asking the Court to re-write the criteria

to include the Settlement Category 5 requirements in other Settlement

Categories, which the Court declines to do.

As set forth above, the ASA and the Compensation Grid were

negotiated at arm’s length in an adversarial process, with the guidance

of the Special Master. This Court cannot take a red pen to the ASA, nor

will it, given that the ASA provides for a fair, reasonable, and adequate

result.

6. Objections Related to the Compensation Grid’s

Failure to Include Additional or Different
Categories

Eighty Unrepresented Objectors objected to the settlement because

Compensation Grid does not include a category for water bill

reimbursement. On the form objection that many used, the objection

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states: “The proposed Settlement does not expressly include payment of

water bills by the residents of the [C]ity of Flint during the period of April

25, 2014 to November 16, 2020.” (ECF Nos.1563–1565, 1568, 1570, 1573,

1603–1607, 1609–1614, 1618–1623, 1625, 1627, 1631–1633, 1636, 1641,

1643–1645, 1647, 1649–1653, 1655, 1657, 1660, 1662, 1665, 1666, 1668,

1670–1671, 1674, 1676, 1678–1679, 1681–1682, 1685–1686, 1689–1690,

1692–1694, 1697–1703, 1707, 1741–1743, 1746, 1749, 1760, 1766, 1812–

1813.) Similarly, some Unrepresented Objectors argued that the

settlement does not consider additional categories such as the cost and

time spent obtaining bottled water, the loss of trust in their elected

representatives, and the replacement costs of water-related fixtures in

their homes (for instance, hot water heaters and other appliances). These

objections are denied.

The Settlement Categories and proofs included in the

Compensation Grid are reasonable as they are written. They include

residential property damage and business property damage and losses.

As set forth in In re N.F.L., “[a] settlement need not compensate every

injury to be fair, especially where class members ‘not satisfied with the

benefits provided in the Settlement may opt out of the Settlement.’” 307

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F.R.D. at 405 (citing In re Deepwater Horizon, 295 F.R.D. at 158 (“It is

well established that parties can settle claims without providing

compensation for every alleged injury . . . . Class Members not satisfied

with the benefits provided in the Settlement may opt out of the

Settlement.”)). Accordingly, these objections are denied.

7. Objections Related to the Overall Allocation of

Funds for Minors Versus Adults

Fifty-five Unrepresented Objectors objected to the settlement

because they disagree with the Minors’ allocation on the Compensation

Grid. On the form objection that many used, the objection states: “The

break-down to children is not adequate or fair, and the percentages for

the age classifications appear to be arbitrary and capricious.” (ECF Nos.

1563–1565, 1568–1580, 1604, 1611–1612, 1618–1619, 1621–1622, 1631–

1632, 1636, 1641, 1646–1647, 1649, 1651–1653, 1655–1656, 1660, 1666,

1668, 1670–1671, 1678–1679, 1681–1682, 1685–1686, 1689, 1692–1695,

1697–1701, 1705, 1741–1743, 1746–1747, 1755, 1812.) The

Unrepresented Objectors do not elaborate on this objection with

sufficient detail for the Court to address it. It is not clear whether they

think children in certain age groups and Settlement Categories should

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be allocated more or less, or whether the reference is to Minors’ allocation

overall. It is not up to the Court to guess.

Regardless, however, the Court has analyzed the allocation for

Minors, which represents 79.5% of the net settlement funds (not

including Programmatic Relief and the Future Minor Claimant Fund).

This distribution recognizes that those who were exposed to

contaminated Flint Water at a younger age will experience the more

harm than older people. The World Health Organization states: “Young

children are particularly vulnerable to lead poisoning because they

absorb 4–5 times as much ingested lead as adults from a given source.”

Lead Poisoning and Health, (Aug. 23, 2019) https://www.who.int/news-

room/fact-sheets/detail/lead-poisoning-and-health

[https://perma.cc/2X4P-MCMS]. It is fair, reasonable, and adequate to

award a greater proportion of settlement funds to those who are most

vulnerable to the effects of lead and other contaminants. Accordingly,

this objection is denied.

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8. Objections Related to the $1,000 “Cap” in the

Compensation Grid for Property Owners and
Renters

Ninety Unrepresented Objectors objected to the settlement because

they believe the Compensation Grid’s Residential Property Damage

Category has a maximum recovery that is not enough. On the form

objection that many used, the objection states: “The $1,000.00 cap to

residents who own or rent residential property is too low, and does not

take into consideration the payments of water bills, replacement of hot

water heaters, installation of whole house filters and/or replacement of

appliances due to corroded water.” (ECF Nos. 1563–1565, 1568–1571,

1603–1604, 1606–1607, 1611–1614, 1618–1623, 1625, 1627–1628, 1631–

1634, 1636, 1638, 1641–1647, 1649–1653, 1655–1656, 1660, 1662–1663,

1665–1666, 1668, 1670–1671, 1674–1676, 1678, 1681–1682, 1684, 1686–

1687, 1689–1690, 1692–1694, 1696–1701, 1703, 1705, 1707, 1741–1743,

1746–1747, 1749, 1755, 1760–1761, 1765–1766, 1812–1813.) These

objections are denied.

The underlying basis of these objections– that one aspect of the

allocation is unfair– is rejected for similar reasons that the Court has

stated. The settlement was negotiated at arm’s length. Subclass Counsel

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for property owners participated in the negotiations of the settlement and

allocation of funds. (See ECF No. 1319-8 (affidavit of Sarah R. London,

Interim Subclass Settlement Counsel for a Property Damage Subclass in

which she attests to the “months of vigorous negotiation” between the

parties, guided by mediators, to achieve the settlement).) Additionally,

Co-Liaison Counsels’ clients’ participation in the settlement indicates

that they found the allocation fair for their clients. No one is required to

participate in this settlement if they are not in favor of its terms. If an

individual believes they can successfully recover a higher amount from a

jury, they could opt-out of the settlement and take their case to trial.

Accordingly, this objection is denied.

9. Objections Arguing that the Overall Settlement is

Unfair, Unreasonable, and Inadequate to
Homeowners

Eighty-five Unrepresented Objectors objected to the settlement

because they claim that the overall settlement is unfair to homeowners.

On the form objection that many used, the objection states: “In light of

the harm suffered by homeowners and the extent of Defendants’

wrongdoing, the proposed settlement is not fair, reasonable, and/or

adequate.” (ECF Nos. 1563–1565, 1568, 1570–1574, 1603–1604, 1606–

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1607, 1609, 1611–1612, 1614, 1618–1621, 1625, 1627–1628, 1631–1632,

1634, 1636, 1638, 1641–1642, 1645–1647, 1649, 1651–1653, 1655–1656,

1660, 1662–1663, 1665, 1666, 1668, 1670–1671, 1676–1678, 1681–1682,

1686–1687, 1689–1690, 1692–1694, 1696–1697, 1698–1703, 1705, 1707,

1741–1743, 1746–1747, 1749, 1755, 1761, 1766, 1812–1813.) This

objection lacks specificity. It is a general statement that the Court

interprets to mean that the total FWC Qualified Settlement Fund

amount is too low. As stated by the mediators Sen. Levin and Ret. Judge

Harwood, “the plaintiffs obtained the maximum amount of compensation

that the settling defendants were able and willing to offer,” and

“represents a fair and practical resolution given the risks of prolonged

litigation for so many.” (ECF No. 1885, PageID.66212.) The objection is

overruled.

As set forth above many times over, the record demonstrates that

the negotiations took place at arm’s length. It also demonstrates that two

experienced mediators and the Special Master provided guidance to the

parties during the negotiation process. If a homeowner believes that

going to trial is a better option for a higher recovery, then they were free

to opt-out of the settlement. However, for the reasons analyzed herein,

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there are significant risks involved in going to trial for both sides and no

guarantees of a greater recovery. Accordingly, this objection is denied.

B. Objections Related to the ASA’s Requirements for

Registration and Objections

1. Arguments that Registration Deadline Was Too

Short

Seventy-five Unrepresented Objectors objected to the settlement on

the basis that the registration deadline was too short. On the form

objection that many used, the objection states:

The deadline registration period is too short and will exclude

many Class members to be arbitrarily excluded due to their
inability to submit the necessary paperwork to either opt-in
or opt-out. The U.S. Mail has been slow due to COVID-19, and
not all residents received the necessary paperwork within the
30-60 day period.

(ECF No. 1564–1565, 1568, 1570, 1573, 1603–1604, 1607, 1609, 1611,

1618–1623, 1627–1628, 1631–1633, 1636, 1638, 1641–1642, 1644–1647,

1649–1653, 1655, 1657, 1660, 1662, 1666, 1668, 1670, 1676–1679, 1681–

1682, 1686, 1689–1690, 1692–1694, 1696–1703, 1705, 1707, 1741–1742,

1746–1747, 1749, 1755, 1761, 1766, 1812.) All the Unrepresented

Objectors who lodged this objection, however, registered themselves for

participation in the settlement on time. These objections are therefore

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self-defeating. If the Court were to grant this objection, it would result in

denying all of these timely registrants their recovery under the ASA.

But setting this aside, the Court denies the objection as moot. As

set forth above, the Court adopted the R&R and has permitted late

registrations.

2. Objection to Providing the Claims Administrator

With PII for Registration Purposes

One Unrepresented Objector strenuously objected to providing

personally identifiable information (“PII”) to the Claims Administrator

during the registration process. The objector stated:

There was absolutely no need what so ever [sic] for the court,
the attorneys nor anyone else or the institution to ask the
individual class members for and/or to make a copy of their
Social Security number, or their driver’s license number. This
discourages people and businesses to opt in. No taxes are
being withheld. Has the Court or the attorneys heard of
identity theft?

(ECF No. 1627, PageID.61264.) This objection is denied. The registration

process does not overburden individuals, and it is reasonable. Requiring

registrants to prove their identity protects the substantial amount of

money in the FWC Qualified Settlement Fund from fraudulent claims.

PII is also information that is necessary “to determine that the registrant

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is a Class Member.” In re N.F.L., 307 F.R.D. at 415. The only entity that

maintains the PII for registrants is the Claims Administrator, not the

Court. Such information is not published publicly. A Social Security

number for each participant is necessary for the lien procedures. The

federal government requires that this information be provided to assure

that all government liens due (if any) are paid. Accordingly, the Court

denies this objection.

3. Objection Arguing that, at the Time of

Registration, Participants Did Not Know the
Final Amount of their Monetary Award

Seventy-eight Unrepresented Objectors objected to the settlement

because their final Monetary Award was unknown at the time of

registration. On the form objection that many used, the objection states:

“I have no idea of an estimated amount of my recovery which prevents

me from knowing whether or not this is a matter which I want to pursue.

Further, I have not been explained how it was determined how much I

am entitled to, and the basis for this determination.” (ECF Nos. 1563–

1565, 1568–1571, 1573, 1603–1604, 1606–1607, 1609, 1611, 1618–1619,

1621–1622, 1627–1628, 1631–1632, 1634, 1636, 1638, 1641–1642, 1644,–

1647, 1649–1653, 1655–1656, 1660, 1662–1663, 1665–1666, 1668, 1670,

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1675–1676, 1678–1679, 1681–1682, 1686, 1689–1690, 1692–1694, 1696–

1703, 1705, 1707, 1741–1743, 1746–1747, 1749, 1755, 1761, 1766, 1813.)

This objection is denied.

It is often the case in capped-fund settlements such as this one that

the total amount of recovery will vary depending on how many people

participate. There is simply no way to know the amount of any one

individual’s recovery in the Compensation Grid categories (except for

Settlement Category 27B, which sets forth an exact amount of recovery

for Legionnaires’ death claims) until the total number of participants is

known, the expenses have been paid for the administration of the

settlement, and claims have been submitted and processed.

The presence of subclasses in the class portion of the ASA, however,

provides for structural protection that ensured that the different groups

of individuals were adequately represented in negotiations. The resulting

settlement is one that does not have the typical “problems of ‘splitting

the settlement’” or potential conflicts of interest in the settlement

negotiations that might have been present were subclass counsel not

involved. In re Warfin Sodium Antitrust Litig., 391 F.3d 516, 532–33 (3rd

Cir. 2004) (citing Davis v. Weir, 497 F.2d 139, 147 (5th Cir. 1974)) (noting

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that subclasses are generally utilized to eliminate antagonistic interests

within a class). As set forth above, Subclass Counsel vigorously

negotiated the interests of each subclass and the result is fair, reasonable

and adequate. Accordingly, the Court rejects this objection.

4. Objections that Individual and Class Counsel Who

Are Listed in Exhibit 17 of the ASA Did Not
Represent Individual Objectors At the Fairness
Hearing

Fifty Unrepresented Objectors objected to the settlement because:

“The lawyers for the Class and Plaintiffs will not represent me in my

Objection rights and Fairness Hearing to be held on July 12, 2021.” (ECF

No. 1563–1565, 1568, 1570, 1573, 1603, 1609, 1612, 1618, 1621–1622,

1628, 1631–1632, 1636, 1641, 1644–1646, 1649–1653, 1655–1657, 1660,

1662, 1670, 1674, 1678, 1681–1682, 1686, 1689, 1692–1694, 1696, 1698–

1699, 1702–1703, 1705, 1742, 1746, 1755.) The objections are overruled.

The objections lack specificity and are open to several

interpretations. One interpretation, which the Court will presume is

what the objectors intended, is that a lawyer bound by Article XXII of the

ASA may have declined to represent an Unrepresented Objector because

doing so would create a potential conflict of interest.

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Article XXII of the ASA, which provides that the lawyers listed in

Exhibit 17 to the ASA (many of whom are signatories to the ASA) who

represent any Plaintiffs are to “[r]ecommend to all of their clients that

they register for and participate as a Claimant in the Settlement

Program” and that the lawyers must “[p]ublicly support the approval of

and implementation of the Settlement Program.” (ECF No. 1394-2,

PageID.54192.) A potential conflict arises when a lawyer represents both

objectors and non-objectors because each seeks a different outcome. The

objectors seek to have the entire settlement rejected whereas non-

objectors want the settlement approved as written. A lawyer

representing individuals who hold different positions could potentially be

advancing opposing interests in a single piece of litigation. This is a

conflict that is prohibited by the Michigan Rules of Professional

Responsibility for attorneys.

Article XXII will not be disturbed because it is in line with the

principles of basic contract law that signatories to a contract cannot act

in ways that could potentially breach or contradict their agreement. It is

also consistent with the Michigan Rules of Professional Conduct.

Accordingly, the objections stating that lawyers for the Class and

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Plaintiffs would not represent Unrepresented Objectors in their

objections or at the fairness hearing are denied.

5. Objections related to Using Zoom to

Communicate With their Attorneys

Forty-two Unrepresented Objectors checked a box on the objection

form that states: “As an elderly person with insufficient skills to do zoom,

I was not able to participate in the zoom meetings concerning the

registration process, and allowing communications with attorneys.” (ECF

Nos. 1563–1564, 1568, 1570–1571, 1573, 1609, 1618, 1621–1622, 1627,

1631–1632, 1636, 1641–1642, 1644–1646, 1650–1651, 1655, 1660, 1662,

1666, 1668, 1670, 1674, 1677, 1679, 1686–1687, 1689, 1693, 1694, 1698,

1705, 1741, 1746–1747, 1761.) This objection is overruled because it does

not raise a substantive issue concerning the ASA itself.

As discussed below with respect to the objections related to COVID-

19, the fact that some individuals have difficulty using video

teleconferencing does not render the entire settlement unfair. Zoom is

not part of the settlement at all. The Court understands that some

attorneys turned to video teleconferencing to communicate with their

clients during the pandemic, but Zoom is not the only way in which an

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individual may speak with their attorney and ask questions. Accordingly,

the objection is overruled.

C. Objections Related to COVID-19

Forty-five Unrepresented Objectors objected to the settlement

because COVID-19 affected their ability to meet with their lawyers. On

the form objection that many used, the objection states: “The COVID-19

pandemic shut down of business hindered me being able to meet with

attorneys representing the Class. As a result of the office hours being

almost none, I have had minimum contact with attorneys representing

the Class or Plaintiffs.” (ECF Nos. 1563–1565, 1568, 1570, 1611–1612,

1618, 1621–1623, 1631–1632, 1636, 1638, 1641–1642, 1645– 1647, 1649,

1652–1653, 1655, 1660, 1668, 1670, 1674, 1677–1679, 1681–1682, 1686–

1687, 1689, 1692–1694, 1698, 1705, 1746–1747, 1755, 1766.) Objections

related to COVID-19 concerns are denied.

The objections related to COVID-19 concerns are not objections to

the ASA or its terms. Rather, these objections relates to Unrepresented

Objectors’ relationship to Class Counsel and certain measures taken

during the COVID-19 pandemic, neither of which is within the power of

the Court to control. Nor do either of these issues relate to the fairness of

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the settlement itself. There is nothing about the attorney-client

relationship that could not have been fulfilled in a COVID-safe manner.

Accordingly, this objection is overruled.

D. Objections to the Notice’s Content

Seventy-six Unrepresented Objectors objected to the settlement

because they argue that the Notice is vague. On the form objection that

many used, the objection states: “The Notice of Settlement is vague and

the details have not been easily available for me to have an

understanding of what I am being asked to agree to.” (ECF No. 1563–

1565, 1568, 1570, 1573, 1603–1604, 1606–1607, 1609, 1611–1612, 1618–

1619, 1621–1623, 1627–1628, 1631–1633, 1636, 1638, 1641–1642, 1644–

1647, 1649–1653, 1655–1656, 1660, 1662, 1666, 1668, 1670–1671, 1674,

1676–1679, 1689–1690, 1692–1694, 1696, 1698–1699, 1701–1703, 1705,

1741–1743, 1746–1747, 1749, 1761, 1766, 1812–1813.) This objection is

denied.

The notice “clearly and concisely” states in “plain, easily understood

language” the nature of the action; the class definition; the class claims,

issues, or defenses; the class member’s right to enter an appearance

through an attorney; the right to be excluded from the class and the

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timing related thereto; and the binding effect of a judgment. Fed. R. Civ.

P. 23(c)(2)(B).

Unrepresented Objectors do not specify what aspects of the Notice

are vague. The Notice explains the key elements of the ASA and class

members’ rights and options. (See ECF No. 1319-11, PageID.41353–

41371.) The Notice provides a telephone number to call and website to

visit if a recipient has questions about the Notice and the settlement. (Id.)

Accordingly, the objections related to the content of the Notice are denied.

E. Objections to Class Representative Payment

Seventy-one Unrepresented Objectors objected to the settlement

because they believe that the Class Representatives are being paid too

much. On the form objection that many used, the objection states: “Class

representative (the lead plaintiff) is being paid too much and the

community residents who suffered harm in not being able to utilize the

water are being unreasonably compensated.” (ECF Nos. 1563–1565,

1568, 1570–1571, 1573, 1603–1604, 1607, 1609, 1611–1612, 1618, 1619,

1621–1622, 1625, 1628, 1631–1633, 1636, 1638, 1641, 1644–1647, 1649–

1651, 1653, 1655, 1657, 1660, 1662, 1666, 1668, 1670–1671, 1674, 1676,

1679, 1686–1687, 1689–1690, 1692–1694, 1696–1697, 1699–1703, 1705,

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1741–1743, 1746–1747, 1749, 1755, 1766, 1812.) These objections are

denied because, as discussed, Co-Lead Class Counsel did not seek an

incentive award for the named Plaintiffs. (See ECF No. 1794,

PageID.64298.)

V. CONCLUSION

In conclusion, the Court orders that:

1. The ASA (ECF No. 1394-2), including the Compensation Grid, is

finally approved under Federal Rule of Civil Procedure 23(e) as fair,

reasonable, and adequate.

2. The following Settlement Class and Subclasses are certified

under Federal Rule of Civil Procedure 23(a) and (b)(3):

Settlement Class: all persons or entities who are or could be

claiming personal injury, property damage, business
economic loss, unjust enrichment, breach of contract, or
seeking any other type of damage or relief because at any time
during the Exposure Period they: (1) were an Adult who
owned or lived in a residence that received water from the
Flint Water Treatment Plant or were legally liable for the
payment of such water; (2) owned or operated a business
including income earning real property and any other
businesses, that received water from the Flint Water
Treatment Plant or were legally liable for the payment for
such water; or (3) were an Adult during the Exposure Period
and who ingested or came into contact with water received
from the Flint Water Treatment Plant.
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Excluded from the Settlement Class are: (1) Defendants; (2)

the judicial officers to whom this case is assigned in the
Federal Court, Genesee County Circuit Court, and Court of
Claims, their staff, and the members of their immediate
families; (3) all Individual Plaintiffs; and (4) all persons who
timely and validly elect to opt-out of the Settlement Class.
Adult Exposure Subclass: all persons who were Adults
during the Exposure Period and who ingested or came into
contact with water received from the Flint Water Treatment
Plant at any time during the Exposure Period and who are
claiming or could claim a resulting personal injury. All Adults
listed on Exhibit 1 to the Settlement Agreement are excluded
from this Subclass.
Business Economic Loss Subclass: all individuals or
entities who owned or operated a business, including income
earning real property and any other businesses, that received
water from the Flint Water Treatment Plant at any time
during the Exposure Period and who are claiming or could
claim a resulting business economic loss. Excluded from the
Business Economic Loss Subclass are all local, state, or
federal government offices or entities and any individual or
entity listed on Exhibit 1 to the Settlement Agreement.
Property Damage Subclass: all Adults or entities who
owned or were the lessee of residential real property that
received water from the Flint Water Treatment Plant, or were
legally liable for the payment for such water, at any time
during the Exposure Period. Excluded from the Property
Damage Subclass are all local, state, or federal government
entities which own real property and any individual or entity
listed on Exhibit 1 to the Settlement Agreement.

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3. The following individuals are appointed as Class Representatives

for purposes of Settlement:

a. Rhonda Kelso, Barbara and Darrell Davis, Tiantha

Williams, and Michael Snyder, as personal representative of
the Estate of John Snyder, as representatives of the Adult
Exposure Subclass;
b. Elnora Carthan and David Munoz as representatives of
the Property Damage Subclass; and
c. 635 South Saginaw LLC, Frances Gilcreast, and Neil
Helmkay as representatives of the Business Economic Loss
Subclass.
4. The firms previously appointed as Interim Co-Lead Counsel,

Cohen Milstein Sellers & Toll PLLC, and Pitt, McGehee, Palmer,

Bonanni & Rivers, P.C., and the Executive Committee, are appointed as

Settlement Class Counsel under Federal Rule of Civil Procedure 23(g) to

represent the Settlement Class and Subclasses.

5. Nothing in this Order should be construed as an abrogation of

any immunity available to the State of Michigan or its officers,

employees, or departments.

6. The non-class components of the ASA are approved.

7. All objections are denied.

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8. This Opinion and Order prompts Individual Plaintiffs and Class

Members to file motion(s) related to final orders and judgments, as well

as issues unique to each group to implement the ASA as contemplated by

Article VIII.

IT IS SO ORDERED.

Dated: November 10, 2021 s/Judith E. Levy

Ann Arbor, Michigan JUDITH E. LEVY
United States District Judge

CERTIFICATE OF SERVICE
The undersigned certifies that the foregoing document was served upon
counsel of record and any unrepresented parties via the Court’s ECF System to their
respective email or First-Class U.S. mail addresses disclosed on the Notice of
Electronic Filing on November 10, 2021.
s/William Barkholz
WILLIAM BARKHOLZ
Case Manager

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