267 Conn. 524 | Conn. | 2004
Opinion
Under General Statutes § 14-52,
The following relevant facts and procedural history are set forth in the opinion of the Appellate Court. “The underlying event in this case involved the plaintiff [Roxann Ames] and A.P.L. Auto Consulting, Inc., also known as Discount Auto Sales, a used automobile dealer (dealer). In 1995, the plaintiff purchased a motor vehicle from the dealer. Over protest by the plaintiff, in 1997, the dealer repossessed the vehicle. As a result of the repossession, the plaintiff filed an action [in 1997] against the dealer, alleging, [inter alia], breach of contract and unfair trade practices in violation of the Connecticut Unfair Trade Practices Act (CUTPA), General Statutes § 42-110a et seq. The plaintiff demanded statutory, actual, punitive and treble damages. [In 1998] [t]he
“Subsequently, the dealer went out of business and failed to pay the judgment. Pursuant to § 14-52, however, the dealer had obtained a surety bond for $20,000, which was issued by Western Surety [Company (Western Surety)] ,
“The plaintiff filed a petition for reconsideration, which the commissioner denied. The plaintiff then appealed to the Superior Court pursuant to General Statutes § 4-183.
The plaintiff appealed to the Appellate Court, which affirmed the judgment of the trial court. Id., 804. Specifically, the Appellate Court concluded that the term “any loss,” as used in § 14-52 (b) (4), is “both generalized and ambiguous, and susceptible on its face to several different interpretations.” Id., 798. The Appellate Court examined the legislative history and circumstances surrounding the enactment of the surety bond clause of § 14-52 (b), as well as its relationship to similar legislation, and concluded that the legislature did not intend for the term “any loss” to encompass attorney’s fees and punitive damages. Id. In particular, the Appellate Court noted that the pertinent legislative history indicates an intent by the legislature to provide some, rather than complete, recourse for victims of fraudulent practices by motor vehicle dealers. Id., 798-99. The Appellate Court concluded that such recourse is limited to money that actually is owed to the consumer, and does not include any associated expenses or penalties. Id., 799-800. With regard to the plaintiffs claim for attorney’s fees, the Appellate Court observed that, because Connecticut adheres to the “American rule,” which precludes the recovery of attorney’s fees in the absence
We begin our review of the plaintiffs claim by noting that “the general purpose of a suretyship contract is to guard against loss in the event of the principal debtor’s default. . . . [T]he obligation of a surety is an additional assurance to the one entitled to the performance of an act that the act will be performed. . . . [T]he liability of sureties is to be determined by the specified conditions of the bond .... [W]hen a bond is required by statute, a court will read the statute into the contract between the principal, surety and obligee.” (Citations omitted; internal quotation marks omitted.) Southington v. Commercial Union Ins. Co., 254 Conn. 348, 358-59, 757 A.2d 549 (2000).
Because this issue raises a question of statutory construction, our review is plenary. E.g., Thames Talent, Ltd. v. Commission on Human Rights & Opportunities, 265 Conn. 127, 135, 827 A.2d 659 (2003). As with all such questions, we look first to the language of the statute. Id. General Statutes § 14-52 (b) provides in relevant part that each applicant for a used car dealer’s license shall furnish a surety bond in the amount of $20,000 “as indemnity for any loss sustained by any person by reason of . . . such licensee going out of business. . . .” The bond is to be executed in the name of the state for the benefit of any aggrieved party, and the commissioner shall determine, after a hearing, the amount to which that aggrieved party is entitled under the bond. See General Statutes § 14-52 (b) (4). The plain
We agree with the Appellate Court that the term “any loss,” as used in § 14-52 (b) (4), is facially susceptible to more than one interpretation. See Ames v. Commissioner of Motor Vehicles, supra, 70 Conn. App. 798. “In inteipreting statutes that contain the word ‘any,’ we have recognized that ‘any’ can have a variety of meanings. . . . The word ‘any’ can be used to denote ‘all,’ ‘every,’ ‘some’ or ‘one.’ ” (Citations omitted.) Industrial Risk Insurers v. Hartford Steam Boiler Inspection & Ins. Co., 258 Conn. 101, 117, 779 A.2d 737 (2001). “Its meaning in a given statute depends upon the context and subject matter of the statute.” Stamford Ridgeway Associates v. Board of Representatives, 214 Conn. 407, 428, 572 A.2d 951 (1990). Similarly, “ ‘[l]oss’ has been held synonymous with deprivation, detriment and injury. ... It is a generic and relative term.” (Citation omitted.) Hinchliffe v. American Motors Corp., 184 Conn. 607, 613, 440 A.2d 810 (1981). We therefore must look to the particular statutory context in which the term “any loss” is used.
“A fundamental tenet of statutory construction is that statutes are to be considered to give effect to the apparent intention of the lawmaking body.” (Internal quotation marks omitted.) Winchester Woods Associates v. Planning & Zoning Commission, 219 Conn. 303, 309, 592 A.2d 953 (1991). “The meaning of a statute shall, in the first instance, be ascertained from the text of the statute itself and its relationship to other statutes. If, after examining such text and considering such relationship, the meaning of such text is plain and unambiguous and does not yield absurd or unworkable results, extra-
“The common law rule in Connecticut, also known as the American Rule, is that attorney’s fees and ordinary expenses and burdens of litigation are not allowed to the successful party absent a contractual or statutory exception.” (Internal quotation marks omitted.) Fleming v. Garnett, 231 Conn. 77, 93-94, 646 A.2d 1308 (1994). “Because we must respect the legislative prerogative of choosing the special circumstances under which [attorney’s fees] awards may be made . . .' we require a clear expression of the legislature’s intent to
The plaintiff asserts that § 14-176
First, the plaintiffs contention is contrary to the principle that, “[w]here a statute, with reference to one subject contains a given provision, the omission of such provision from a similar statute concerning a related subject ... is significant to show that a different intention existed. . . . That tenet of statutory construction is well grounded because [t]he General Assembly is always presumed to know all the existing statutes and the effect that its action or non-action will have upon any one of them.” (Internal quotation marks omitted.) M. DeMatteo Construction Co. v. New London, 236 Conn. 710, 717, 674 A.2d 845 (1996). Moreover, as we have explained, the construction of § 14-52 urged by the plaintiff contravenes the principle that, when an entitlement to attorney’s fees is claimed, we require a clear expression of the legislature’s intent to create an exception to our long-standing common-law rule barring the recovery of such fees. E.g., Fleming v. Gar-nett, supra, 231 Conn. 93-94. Finally, it is reasonable to presume that the legislature considered attorney’s
The plaintiff also contends that the Appellate Court’s interpretation of § 14-52 is inconsistent with our holding in Chrysler Corp. v. Maiocco, 209 Conn. 579, 596, 552 A.2d 1207 (1989), in which we concluded that arbitrators have authority to award attorney’s fees under the provisions of Connecticut’s Lemon Law. See generally General Statutes §§ 42-179 through 42-190. The plaintiffs reliance on Maiocco is misplaced. In Maiocco, the issue was not whether attorney’s fees are permitted under the Lemon Law; they clearly are, and we cited to “the four separate statutory areas involved in the overall Lemon Law apparatus that [expressly] authorize payment of attorney’s fees.” Chrysler Corp. v. Maiocco, supra, 586. The sole issue we addressed, rather, was whether a Lemon Law arbitrator is authorized to award such fees in the absence of explicit provisions in the Lemon Law providing such authorization. See id., 580. After reviewing the relevant statutory language, history and purpose, we concluded that the legislature intended to authorize Lemon Law arbitrators to award attorney’s fees. Id., 596. Maiocco is therefore inapposite inasmuch as it involved the question of who is authorized to award attorney’s fees under the Lemon Law rather than whether such an award is authorized thereunder.
Finally, as the Appellate Court explained; see Ames v. Commissioner of Motor Vehicles, supra, 70 Conn.
The plaintiff finally argues that public policy considerations militate in favor of her proposed construction of § 14-52. The plaintiffs primary contention in this regard is that the statutory suretyship created under § 14-52 is intended to protect consumers and, therefore, should be construed broadly to accomplish its purpose. We agree with the plaintiff regarding the beneficent purpose of § 14-52. For the reasons that we already have articulated, however, we are not persuaded that it is susceptible to the interpretation urged by the plaintiff.
In this opinion the other justices concurred.
General Statutes § 14-52 provides in relevant part: “(a) No person, firm or corporation may engage in the business of the buying, selling, offering for sale or brokerage of any motor vehicle or the repairing of any motor vehicle without having been issued either a new car dealer’s, a used car dealer’s, a repairer’s or a limited repairer’s license. . . .
“(b) . . . (2) . . . [EJach applicant for a new car dealer’s or a used car dealer’s license shall furnish a surety bond in the amount of twenty thousand dollars. . . .
“(4) Each such bond . . . shall be conditioned upon the applicant or licensee complying with the provisions of any state or federal law or regulation relating to the conduct of such business and provided as indemnity for any loss sustained by any person by reason of any acts of the licensee
Although § 14-52 was amended in 2002; see Public Acts 2002, 02-70, § 22; those amendments are not relevant to the merits of this appeal. For ease of reference, we refer to the current revision of § 14-52 throughout this opinion.
General Statutes § 52-564 provides: “Any person who steals any property ol' another, or knowingly receives and conceals stolen property, shall pay the owner treble his damages.”
General Statutes § 42-110g (d) provides in relevant part that a party prevailing on a CUTPA claim may be awarded “costs and reasonable attorneys’ lees based on the work reasonably performed by an attorney and not on the amount of recovery. ...”
Western Surety was granted permission to intervene as a party defendant in the present action.
General Statutes § 52-400e provides: “Whenever a judgment in a civil action which relates to activities for which a license is required has been rendered against a business which is licensed by a state or local licensing authority and which remains unpaid for one hundred eighty days after receipt by the judgment debtor of notice of its entry and the judgment has not been stayed or appealed, the state or local licensing authority shall consider such failure to pay, if deliberate or part of a pattern of similar conduct indicating recklessness, as a basis for the revocation, suspension or conditioning of, or refusal to grant or renew such license. Nothing herein shall be construed to preempt an authority’s existing policy if it is more restrictive.”
General Statutes § 4-183 provides in relevant part: “(a) A person who has exhausted all administrative remedies available within the agency and who is aggrieved by a final decision may appeal to the Superior Court as provided in this section. . . .”
General Statutes § 14-176 provides: “If the commissioner is not satisfied as to the ownership of the vehicle or that there are no undisclosed security interests in it, the commissioner may register the vehicle but shall either: (1) Withhold issuance of a certificate of title until the applicant presents documents reasonably sufficient to satisfy the commissioner as to the applicant’s ownership of the vehicle and that there are no undisclosed security interests in it; or (2) as a condition of issuing a certificate of title, require the applicant to file with the commissioner a bond in the form prescribed by the commissioner and executed by the applicant, and either accompanied by the deposit of cash with the commissioner or also executed by a person authorized to conduct a surety business in this state. The bond shall be in an amount equal to twice the value of the vehicle as determined by the commissioner and conditioned to indemnify any prior owner and lienholder and any subsequent purchaser of the vehicle or person acquiring any security interest in it, and their respective successors in interest, against any expense, loss or damage, including reasonable attorney’s fees, by reason of the issuance of the certificate of title of the vehicle or on account of any defect in or undisclosed security interest upon the right, title and interest of the applicant in and to the vehicle. Any such interested person has a right of action to recover on the bond for any breach of its conditions, but the aggregate liability of the surety to all persons shall not exceed the amount of the bond. The bond, and any deposit accompanying it, shall be returned at the end of five years or prior thereto if the vehicle is no longer registered in this state and the currently valid certificate of title is surrendered to the commissioner, unless the commissioner has been notified of the pendency of an action to recover on the bond.”
See footnote 7 of this opinion.
The plaintiff also relies on several cases of this court and the Appellate Court involving uninsured and underinsured motorist coverage to support her contention that attorney’s fees and punitive damages are recoverable under § 14-52. The cases cited by the plaintiff are unavailing, however, because they involve statutory provisions that bear no material similarity to § 14-52.
We note that, at least with respect to her claim for attorney’s fees, the plaintiff relies largely on State ex rel. Webb v. Hartford Casualty Ins. Co., 956 S. W.2d 272 (Mo. App. 1997) (Webb). Unlike § 14-52, however, the Missouri automobile dealer bond statute at issue in Webb required an injured party to obtain a final judgment against the dealer from a court of competent jurisdiction before the bond could be invoked. Id., 275; see Mo. Rev. Stat. § 301.560.1 (4) (Cum. Sup. 1993). In holding that attorney’s fees were recoverable under the Missouri statute, the Missouri Court of Appeals reasoned: “The statute which requires the bond, and specifies what the bond must cover, contemplates that the injured party will necessarily incur attorney fees in obtaining the required judgment against the dealer. . . . Consequently, it is clear that the parties intended that attorney fees be a ‘loss’ subject to the bond’s indemnity.” State ex rel. Webb v. Hartford Casualty Ins. Co., supra, 275. Inasmuch as § 14-52 permits an aggrieved party to raise a claim directly with the commissioner, the plaintiff derives no support from the rationale underlying the court’s conclusion in Webb.
Our interpretation of §' 14-52 also is supported by the Restatement (Third) of Suretyship and Guaranty, § 73, pp. 290-91 (1996) (“[wjhen the secondary obligation is a legally mandated bond, that obligation does not