David S. REYNOLDS, Plaintiff-Appellant, Annette Reynolds; Dale Anderson; Luke Anderson; James Fisher; Janice Beadle; Tammy May; Harold Quarles; Carl Hodge; Edna Davis; Lynn Brown, Plaintiffs-Appellants, Pamela Whelan, Individually and as next friend of Quentin Lucas and Carlton Lucas, Minors; Quentin Lucas, a minor; Carlton Lucas, a minor; next friend Pamela Whelan; Melissa Ann Smith, Intervenor-Plaintiffs, George Edward Callison; John Clayton Cooper, next friend Dianne Cooper, Intervenor-Plaintiffs-Appellants, Dianne Cooper, Intervenor-Plaintiff, Deana Taylor, next friend J.H. Taylor, Intervenor-Plaintiff-Appellant, J.H. Taylor, Intervenor-Plaintiff, Rachel Fisher; Rose Anderson, Intervenor-Plaintiffs-Appellants, Michael Reeves; Helena Reeves; Thomas Barkhimer; Froney Grace; Bessie Phillips, Plaintiffs-Appellants, v. Juanita SPEARS, doing business as White Oak Package Store, Executrix of Estate of Newell Spears; White Oak Package Store, Defendants-Appellees.
No. 95-2071.
United States Court of Appeals, Eighth Circuit.
Decided August 21, 1996.
93 F.3d 428
Submitted May 15, 1996.
CONCLUSION
Despite our disapproval of the agency‘s initial handling of this matter and with the expectation that we shall not see a similar performance again-we must conclude that, as the case comes to us, the Director‘s determination was not arbitrary, capricious, or unreasonable. Accordingly, the judgment of the district court is affirmed.
AFFIRMED.
Allen P. Roberts, Camden, AR, argued, for appellees.
BOWMAN, Circuit Judge.
The plaintiffs in this action appeal from the orders of the District Court1 granting judgment against some of the plaintiffs, and declining to award damages, attorney fees, and costs to another group of plaintiffs in whose favor summary judgment was granted, all the denouement of a civil action based on Title III of the Omnibus Crime Control and Safe Streets Act of 1968,
I.
This is the second lawsuit arising from the facts set forth in Deal v. Spears, 780 F.Supp. 618 (W.D.Ark.1991), aff‘d, 980 F.2d 1153 (8th Cir.1992), facts that we recount briefly here. In 1990, Newell and Juanita Spears owned and operated a package liquor store near Camden, Arkansas, the White Oak Package Store, and lived in a mobile home adjacent to the store.2 Newell Spears, in an attempt to get information about an April 1990 burglary at the store, which he believed to be an inside job, purchased and installed a recording device on the telephone in his residence, which shared a telephone line with the store telephone. The device recorded conversations made from or received on either the residential or the business telephone when either handset was picked up, with no indication to either party that the conversation was being recorded. Calls were taped, if the machine was on and a blank tape was in the machine, from June 27 through August 13, 1990. The tapes of the telephone conversations were seized by a United States deputy marshal on September 3, 1990.
In Deal v. Spears, Sibbie Deal, a White Oak employee, and Calvin Lucas, Deal‘s extramarital lover, recovered $10,000 each from Juanita and Newell Spears individually, a total of $40,000, as well as their attorney fees, in a civil suit for the illegal interception (by Newell) and disclosure (by Juanita) of telephone conversations between Deal and Lucas, recorded while Deal was at work in the store.3 In January 1992, after Deal and Lucas won their judgment in the district court, the plaintiffs here brought this action, contending that their conversations also were intercepted during the relevant period, and they sought $10,000 each from both Juanita and Newell Spears.4 Under federal law, “any person whose wire, oral, or electronic communication is intercepted, disclosed, or intentionally used in violation of this chapter may in a civil action recover from the person or entity which engaged in that violation such relief as may be appropriate.”
The plaintiffs sought summary judgment. As we explain the District Court‘s judgment on that motion, we will sort out how the court ruled on the claim of each of the plaintiffs who is an appellant here. (As noted in the case caption, a handful of the original plain-
II.
The District Court‘s rulings are set forth in a published opinion, Reynolds v. Spears, 857 F.Supp. 1341 (W.D.Ark.1994), and in an unpublished supplemental opinion issued on March 29, 1995.
The court noted that there were no recordings of telephone conversations of the following plaintiffs: Janice Beadle, Carl Hodge, Edna Davis, George Edward Callison, John Clayton Cooper, and Bessie Phillips. The court concluded that these plaintiffs were unable to prove their claims, so summary judgment was denied them, and judgment was entered for Juanita Spears both individually and as executrix of Newell‘s estate.
Luke Anderson also was unrecorded, but there was uncontroverted evidence that Juanita Spears disclosed the contents of a conversation between Anderson and Sibbie Deal. Thus, it was apparent to the court that at least one of Anderson‘s conversations had been intercepted, so he is one of the plaintiffs for whom the court granted summary judgment.
Of the remaining plaintiffs, all of whom apparently had conversations recorded,5 the claims of Rose Anderson, Sibbie Deal‘s sister-in-law, and Rachel Fisher, Deal‘s niece, both of whom moved to intervene on November 8, 1993, were held barred by the statute of limitations, as Anderson and Fisher had “a reasonable opportunity to discover the violation” more than two years before they sought to intervene.
“[D]efendants hav[ing] exhausted all viable defenses against liability,” the District Court granted summary judgment against Juanita Spears, as executrix of Newell‘s estate, in favor of all the intercepted plaintiffs who were not time-barred. Reynolds, 857 F.Supp. at 1347. The court concluded, however, that it had discretion to decline to award statutory damages (no actual damages were sought) and denied such relief. The court also denied a plaintiffs’ motion for attorney fees and costs. Further, the court denied the plaintiffs’ motion for summary judgment against Juanita Spears individually and entered judgment for her in her individual capacity.
Plaintiffs now contend that the court erred in holding that the non-recorded of their number failed to prove their claims and that the claims of Rose Anderson and Rachel Fisher were time-barred. They further argue that the court erred in concluding that Juanita Spears individually was not liable for the interceptions. Plaintiffs also contend that the court had no discretion to decline an award of statutory damages and in any event erred when it refused to award such damages under the facts here. Finally, they challenge the court‘s failure to award attorney fees and costs.
III.
A.
The District Court concluded that some of the plaintiffs made an insufficient showing that their calls were intercepted. By stipulation, the parties agreed that these plaintiffs were not among those whose voices were recorded on the tapes seized from the Spearses. These plaintiffs nevertheless speculate that their conversations were erased or recorded over, and argue that this theory, together with their undisputed claims of having spoken to Sibbie Deal while she
It is uncontroverted that there were times between June 27 and August 13, 1990, when telephone conversations to or from the store were not recorded, although those days and times, and the number and length of those conversations, are unknown. Plaintiffs nevertheless would have us presume that all conversations were recorded, absent evidence to the contrary. We decline to do so, as such a presumption would improperly shift the burden of proof to the defendants. We conclude that as a matter of law the sparse evidence offered by those plaintiffs falls far short of creating a submissible case on their claims of interception.
The District Court properly denied summary judgment to this group.
B.
Rose Anderson and Rachel Fisher argue that the District Court erred in holding their claims barred by the statute of limitations.
Under
We hold that the close relationships of Anderson and Fisher to Deal gave them more than “a reasonable opportunity to discover” any violation of their rights within two years of August 29, 1990, when Deal and Lucas filed suit, and certainly no later than two years after September 3, 1990, when the tapes were seized and the intercepted voices could have been identified. Anderson and Fisher moved to intervene more than a year after their claims were time-barred. We hold that judgment for Juanita Spears on the claims of Anderson and Fisher was proper.
IV.
We now proceed to the arguments of the intercepted plaintiffs, in whose favor judgment was granted against Juanita Spears in her capacity as executrix of Newell Spears‘s estate, but denied in her individual capacity.
A.
The intercepted plaintiffs argue that the District Court erred in concluding that only Newell Spears and not Juanita had intercepted their telephone calls. The facts relating to this issue are undisputed. Juanita knew that Newell planned to record personal telephone conversations made or received by their employees at work, and that he hoped both to learn something about the burglary of the store and to effect some monitoring of employees’ personal use of the store telephone. It is undisputed that Juanita overheard some of the tapes, but that she did not listen to all of them. It is also undisputed that she was not present when the recording device was purchased or installed, and that she did not know how to operate it.
“‘Intercept’ means the aural or other acquisition of the contents of any wire, electronic, or oral communication through the use of any electronic, mechanical, or other device.”
We further hold that the evidence of Juanita‘s involvement in the actual interceptions, that is, in Newell‘s recording of the conversations, is insufficient for liability to attach to Juanita. Juanita‘s acquiescence in Newell‘s plans to tap his own telephone and her passive knowledge of her husband‘s interceptions are insufficient as a matter of law to impute liability to her for those interceptions in addition to Newell‘s liability, and would result in a potential double recovery for what is in reality a single interception.7
In point of fact, the above discussion may be dictum, because plaintiffs do not even argue on appeal that Juanita is liable for the interceptions because she heard some of the taped conversations or because she was herself an interceptor, and thus they have abandoned those arguments. See Jasperson v. Purolator Courier Corp., 765 F.2d 736, 740 (8th Cir.1985). The only arguments on the issue of Juanita‘s individual liability that plaintiffs have raised in their brief are (1) that Juanita is liable as fifty percent owner of the store whose business Newell was attempting to protect with the interceptions, and (2) that she is civilly liable as an aider and abettor just as she would be criminally liable. We do not address these arguments as they are raised for the first time on appeal. See Dorothy J. v. Little Rock Sch. Dist., 7 F.3d 729, 734 (8th Cir.1993). We have considered the unchallenged rationale of the District Court‘s conclusions on this issue only out of an abundance of caution.
Judgment in favor of Juanita Spears individually on the claims of all the plaintiffs is affirmed.
B.
The intercepted plaintiffs urge us to find that the District Court erred in concluding that it had discretion in the award of statutory damages. This issue of law is a question of first impression in this Circuit.
The statutory provision concerning the award of damages in a case such as this one reads as follows:
[T]he court may assess as damages whichever is the greater of--
(A) the sum of the actual damages suffered by the plaintiff and any profits made by the violator as a result of the violation; or
(B) statutory damages of whichever is the greater of $100 a day for each day of violation or $10,000.
Two of our sister circuits have considered the question now before us, reaching different results. The Seventh Circuit thought the word “may” in the statute is ambiguous, and that “[i]t is unclear whether it is intended to grant district courts the discretion to withhold an award of damages in cases in which a violation is found but damages would be inappropriate.” Rodgers v. Wood, 910 F.2d 444, 448 (7th Cir.1990). The court concluded that the statute afforded the district courts no such discretion, relying primarily on its interpretation of Title I of the Electronic Communications Privacy Act of 1986, Pub.L. 99-508, sec. 103, 100 Stat. 1848, 1853-54, which amended
More recently, the Fourth Circuit held that the language change “from the mandatory to the permissive verb form indicates that Congress intended to confer upon district courts the discretion to decline to award damages in applying § 2520(c)(2).” Nalley v. Nalley, 53 F.3d 649, 652 (4th Cir. 1995). We find the rationale of the Nalley court more persuasive than that set forth in Rodgers v. Wood, and now hold that the award of statutory damages under
Initially, we note that the change in language from the mandatory to the permissive is clear. Knowing that “[w]hen Congress acts to amend a statute, we presume it intends its amendment to have real and substantial effect,” Stone v. I.N.S., 514 U.S. 386, 397, 115 S.Ct. 1537, 1545, 131 L.Ed.2d 465 (1995), we ordinarily could end the inquiry here. But the Supreme Court teaches us that the particular verb form here is not always as it seems. “The word ‘may,’ when used in a statute, usually implies some degree of discretion. This common-sense principle of statutory construction is by no means invariable, however, and can be defeated by indications of legislative intent to the contrary or by obvious inferences from the structure and purpose of the statute.” United States v. Rodgers, 461 U.S. 677, 706, 103 S.Ct. 2132, 2149, 76 L.Ed.2d 236 (1983) (footnote and citations omitted). Thus in some unusual circumstances we might be persuaded to impute a compulsory aspect to an ordinarily permissive verb form. We begin with the argument concerning the legislative history of the 1986 amendments, or in this case the lack thereof.
Here we have no legislative history on the language change, except that the Senate Report in describing the legislation parrots the language of the amended section. See S.Rep. No. 541, 99th Cong., 2d Sess. 27 (1986), reprinted in 1986 U.S.C.C.A.N. 3555, 3581. From that silence we are asked to infer that no change was intended. Reluctant as we are to rely on legislative history when it is in conflict with the plain meaning of the statutory language, our hesitation to draw inferences is not assuaged when there is no history at all. See Northern States Power Co. v. United States, 73 F.3d 764, 766 (8th Cir.1996) (“We think that when, as here, the statutes are straightforward and clear, legislative history and policy arguments are at best interesting, at worst distracting and misleading, and in neither case authoritative.“), petition for cert. filed, 65 U.S.L.W. 3034 (July 5, 1996) (No. 96-29). Plaintiffs contend that Congress would not have made so “great a change in the Act” without discussing it in reported legislative history. Brief of Appellants at 17. We find that contention unpersuasive. Congress also increased the permissible statutory damages from $1000 to $10,000, and we see nothing in the legislative history that explains the reason for the ten-fold increase. Yet no one suggests that, because there is no legislative history about the change, the $10,000 is, for example, a typographical error. Because on its face “the language is unambiguous, silence in the legislative history cannot be controlling.” Dewsnup v. Timm, 502 U.S. 410, 419-20, 112 S.Ct. 773, 779, 116 L.Ed.2d 903 (1992).
We look then for “obvious inferences from the structure and purpose of the statute”
Before the 1986 amendments, the maximum statutory (civil) damages that were required to be awarded upon a finding of violation under the Act (if actual damages were not awarded) was the greater of $1000 or $100 per day for each day of violation. In 1986, such damages were increased to the greater of $10,000 or $100 per day of violation, a potential ten-fold increase. We think it logical that Congress chose to make the award of such damages discretionary, given the potential of the law to bring financial ruin to persons of modest means, even in cases of trivial transgressions. Unlike the court in Rodgers v. Wood, we do not think that Congress solved the potential problem that damages easily could be disproportionate to injury and culpability simply by creating a sole exception, not applicable here, prescribing less severe penalties for the interception of certain satellite or radio communications.
The 1986 amendments added the exception, or alternate method, for calculating damages where “the conduct in violation of this chapter is the private viewing of a private satellite video communication that is not scrambled or encrypted or if the communication is a radio communication that is transmitted” on certain frequencies “and the conduct is not for a tortious or illegal purpose or for purposes of direct or indirect commercial advantage or private commercial gain.”
Significantly, under the exception, the statutory damages to be awarded shall be “not less than $50 and not more than $500,”
In sum, then, we have the “crucial fact” that Congress changed the verb from “shall” to “may” in amending the statute in 1986. Rodgers, 461 U.S. at 706. As we have explained, we will not infer that the change was inadvertent merely because the legislative history is silent. Moreover, we see no reason, and none has been pointed out to us, why “literal application of [the] statute will produce a result demonstrably at odds with the intentions of its drafters.” United States v. Ron Pair Enters., 489 U.S. 235, 242 (1989) (quoting Griffin v. Oceanic Contractors, Inc., 458 U.S. 564, 571 (1982)). We therefore conclude that the District Court did not err in holding that it had discretion to decline to award statutory damages.
C.
Plaintiffs argue that, in any event, the court abused its discretion in determining
Although, as it turns out, his actions were unlawful, Newell Spears had a legitimate business interest in recording the telephone conversations of his employees. That is, his store had been burgled, and he believed the burglary to be an inside job. He also was concerned about personal use of the business telephone by employees (and judging by the number of plaintiffs in this case, legitimately so), a violation of store policy. Newell Spears consulted a law enforcement officer who advised him, albeit incorrectly, that there was no problem in tapping one‘s own telephone. In fact, the Spearses’ business and residence telephones shared the same line. Newell Spears was an amateur wiretapper, using unsophisticated equipment. Of course, none of these circumstances is a defense to the violations. Nevertheless, such facts merit consideration in the discretionary award of statutory damages.
There is no evidence of widespread disclosure or use of the plaintiffs’ intercepted conversations,8 and there were no actual damages incurred by the plaintiffs or profits earned by the Spearses from the conversations. The Spearses already have been punished in the previous litigation for the most egregious violations of the Act as a result of the substantial civil penalties, attorney fees, and costs they paid to Sibbie Deal and Calvin Lucas. As the District Court noted, Juanita Spears is in her seventies and retired, with no income other than that derived from the assets she and Newell accumulated during their working lives.
Considering these circumstances, we hold that the District Court did not abuse its discretion in declining to award statutory damages to the intercepted plaintiffs.
D.
Plaintiffs also argue that the District Court abused its discretion in denying their motion for attorney fees and costs. In its decision to deny fees and costs, the court relied on the same reasons enumerated for the denial of statutory damages. The court also considered “that this litigation has been conducted by essentially the same counsel as were involved in the Deal litigation,” and concluded that it would “not punish defendants with two sets of attorney‘s fees and costs when such piecemeal litigation as occurred here could have been easily avoided by diligent review of the evidence.” Reynolds, 857 F.Supp. at 1348. We hold that the District Court did not err in holding that attorney fees and costs were not “appropriate relief,” id., in this case.
V.
The District Court is affirmed in all respects.
Nos. 95-2820, 95-3036.
United States Court of Appeals, Eighth Circuit.
Submitted April 11, 1996.
Decided Aug. 8, 1996.
Rehearings Denied Oct. 22, 1996.
