In November of 1994, plaintiffs Suzanne Hyde and Lynn Meeks filed a class action lawsuit on behalf of themselves and others similarly situated (hereinafter plaintiffs), seeking damages from defendants for alleged violations of North Carolina’s antitrust laws — N.C. Gen. Stat. § 75-1 et. seq. (1994).
Plaintiffs alleged that between 1980 and 1992, defendants violated several of the antitrust laws of this state by “engaging in a continuing conspiracy to fix the wholesale price of infant formula sold within the United States, including North Carolina.” Plaintiffs further alleged that the above illegal conspiracy caused an increase in wholesale prices paid by the parties who purchased the infant formula directly from the manufacturer (hereinafter direct purchasers) above that which the direct purchasers would have paid absent any conspiracy.
*574 Plaintiffs, who are North Carolina residents, are indirect purchasers from the defendant manufacturers because they purchased infant formula through parties other than the manufacturer. Plaintiffs contended that they paid higher prices than they would have paid but for the alleged illegal conduct.
In February of 1995, defendants moved to dismiss plaintiffs’ complaint under N.C. Gen. Stat. § 1A-1, Rule 12(b)(6) (1990), alleging that plaintiffs, as indirect purchasers, lacked standing to bring this action under N.C.G.S. § 75-16. In an amended order filed 27 July 1995, Superior Court Judge Janet Marlene Hyatt agreed, and granted defendants’ motion to dismiss. From this order, plaintiffs appealed.
Prior to oral arguments before this Court, plaintiffs and defendant Abbott Laboratories entered into a tentative settlement agreement which must be approved by the superior court under N.C.R. Civ. P. Rule 23(c) (1996). As a result, plaintiffs and defendant Abbott Laboratories jointly moved for dismissal of the appeal against Abbott Laboratories. We granted that motion. Accordingly, this appeal proceeds against the remaining defendants, Bristol-Myers Squibb and Mead Johnson (hereinafter defendants).
As an initial matter, we note that the record on appeal does not clearly indicate whether the proposed record on appeal was served on 7 September 1995 or 11 October 1995. If service was accomplished on the later date, the proposed record was not timely served and the appeal is subject to dismissal.
Brooks v. Jones,
On appeal, plaintiffs contend that the trial court erred by dismissing their complaint under N.C.R. Civ. P. 12(b)(6) on the grounds that indirect purchasers lack standing under N.C.G.S. § 75-16. We agree, and therefore reverse the order of the trial court.
A Rule 12(b)(6) motion to dismiss presents the question “whether, as a matter of law, the allegations of the complaint, . . . are
*575
sufficient to state a claim upon which relief may be granted . . .
Harris v. NCNB,
N.C.G.S. § 75-16 governs the determination of standing for redress of Chapter 75 violations.
Cf. La Notte, Inc. v. New Way Gourmet, Inc.,
75-16. Civil action by person injured; treble damages.
If any person shall be injured or the business of any person, firm or corporation shall be broken up, destroyed or injured by reason of any act or thing done by any other person, firm or corporation in violation of the provisions of this Chapter, such person, firm or corporation so injured shall have a right of action on account of such injury done, and if damages are assessed in such case judgment shall be rendered in favor of the plaintiff and against the defendant for treble the amount fixed by the verdict.
Section 75-16 is similar to section 4 of the federal Clayton Act.
Marshall v. Miller,
Section 4 of the Clayton Act states:
Any person who shall be injured in his business or property by reason of anything forbidden in the antitrust laws may sue therefore in any district court of the United States in the district in which the defendant resides or is found or has an agent, without respect to the amount in controversy, and shall recover threefold the damages by him sustained, and the cost of suit, including a reasonable attorney’s fee.
15 U.S.C. §15 (1991).
In
Illinois Brick Co. v. Illinois,
Illinois Brick
held that direct purchasers suffer the entire injury which follows from a violation of the federal antitrust laws, and are the only private parties allowed to sue for federal antitrust violations.
Illinois Brick,
However, in
California v. Arc America Corp.,
In construing a statute, “our primary task is to ensure that the purpose of the legislature, the legislative intent, is accomplished.”
Electric Supply Co. v. Swain Electrical Co.,
Plaintiffs contend that by enacting N.C.G.S. § 75-16 the legislature intended to grant standing to a consumer purchasing indirectly from a manufacturer or service provider to sue that manufacturer or service provider for a violation of Chapter 75, and that we should interpret this section to allow an indirect purchaser standing to sue for such violations.
Prior to a 1969 revision, N.C.G.S. § 75-16 began: “If the business of any person, firm or corporation shall be broken up, destroyed or injured . . . .” (emphasis supplied). In 1969, the General Assembly amended this section. The first sentence now begins:
*577 If any person shall be injured or the business of any person, firm or corporation shall be broken up, destroyed or injured by reason of any act or thing ... in violation of the provisions of this Chapter, such person, firm or corporation so injured shall have a right of action....
(emphasis supplied). “Changes made by the legislature to statutory structure and language are indicative of a change in legislative intent and therefore provide some weight in our analysis.”
Electric Supply Co.,
In enacting the 1969 revisions, the General Assembly intended to “enable a person injured by deceptive acts or practices to recover treble damages from a wrongdoer.”
Hardy v. Toler,
Defendants contend that by amending N.C.G.S. § 75-16, the General Assembly merely intended to change the law to allow standing to recover for non-business injuries. In short, defendants contend that in enacting the 1969 revisions, the legislature sought to widen the standing provision to allow standing for additional types of injuries, but not to additional classes of persons. Defendants further contend that although the amendment was intended to protect consumers, this intent does not indicate that the General Assembly intended to allow recovery by indirect purchasers.
Defendants are correct insofar as the 1969 revisions clearly granted standing to those suffering non-business injuries. However, defendants’ contention that the General Assembly somehow intended to exclude a large class of persons — indirect purchasers — from recovery for non-business injuries is not persuasive. Instead, we hold that by enacting the 1969 revisions to N.C.G.S. § 75-16, the General Assembly clearly intended to expand the class of persons with standing to sue for a violation of Chapter 75 to include any person who suffers an injury under Chapter 75, regardless of whether that person purchased directly from the wrongdoer.
*578
We find it significant that the General Assembly chose to amend N.C.G.S. § 75-16 by adding the phrase “if any person” to the beginning of the section. As it is currently written, N.C.G.S. § 75-16 provides standing to
any person
who suffers any injury, as well as for any business injury. By adding the above language, the General Assembly intended to provide a recovery for all consumers.
See Marshall,
Defendants argue that consumers are not the same as indirect purchasers, since consumers sometimes purchase directly from the manufacturer or service provider. However, consumers often purchase goods from a wholesaler or retailer, and thus are often indirect purchasers. We find it unlikely that the legislature intended to “establish an effective private cause of action for aggrieved consumers in this State” see Id., but intended to exclude from this remedy all indirect purchasers, many of whom are consumers.
In addition, defendants argue that we should interpret N.C.G.S. § 75-16 consistent with the United States Supreme Court’s interpretation of section 4 of the Clayton Act in
Illinois Brick.
Federal case law interpretations of the federal antitrust laws are persuasive authority in construing our own antitrust statutes.
Madison Cablevision v. City of Morganton,
The most recent substantive revision to N.C.G.S. § 75-16 took place in 1969. (The General Assembly revised this section slightly in 1977 by removing the words “by a jury.” This revision did not alter the substance of this section). By contrast,
Illinois Brick
was not decided until 1977. It follows that our General Assembly could not have intended to adopt a judicial construction of N.C.G.S. § 75-16 which did not exist at the time of the revision. It is a familiar canon of statutory construction that when a legislature borrows from the statutes of another legislative body, the provisions of that legislation should be construed as they were in the other jurisdiction at the time of their adoption.
Shannon v. United States,
512 U.S. -, -,
*579 The United States Supreme Court decided Hanover Shoe in 1968 and Illinois Brick in 1977. Since Hanover Shoe changed the manner in which direct purchasers were allowed to sue under the federal antitrust laws, and was later found by Illinois Brick to forbid an indirect purchaser from suing, we believe that federal cases between 1968 and 1977 are most instructive in discerning the state of federal antitrust laws when the General Assembly amended N.C.G.S. § 75-16 in 1969.
Prior to the United States Supreme Court’s decision in
Illinois Brick,
most federal circuit courts construed section 4 of the Clayton Act to allow suits by indirect purchasers.
See e.g., In re Western Liquid Asphalt Cases,
Based on the foregoing, we conclude that the great weight of federal case law authority in 1969 held that indirect purchasers were allowed standing under section 4 of the Clayton Act. Thus, insofar as we consider federal precedent as persuasive authority regarding construction of N.C.G.S. § 75-16, we find that the relevant federal precedent counsels us to allow plaintiffs standing under N.C.G.S. § 75-16.
Defendants cite
Stifflear v. Bristol-Myers Squibb Co.,
No. 95 CA0201,
*580 In Stifflear, the Colorado Court of Appeals held that indirect purchasers do not have standing to sue under the Colorado antitrust laws. Id. at *7. Stifflear is distinguishable from the instant case for two principal reasons.
First, Colorado’s antitrust laws were modeled on Wisconsin’s antitrust statute, which was itself modeled on the federal Sherman and Clayton Antitrust Acts. Id. at *3. Because the Colorado statute was patterned on the Wisconsin provision, the Stifflear Court stated:
Given the substantial similarity in text and purpose present in the federal and state antitrust statutes, we believe that federal decisions construing the Sherman and Clayton Acts, although not necessarily controlling on our interpretation of the Colorado law, are nevertheless entitled to careful scrutiny in determining the scope of the state antitrust statute.
Id.
(quoting
People v. North Avenue Furniture & Appliance, Inc.,
Second, Colorado substantially revised its antitrust laws in 1992.
Stifflear,
*581 Since we consider federal case law only as persuasive authority, rather than giving it “careful scrutiny,” and because our General Assembly has not substantively revised N.C.G.S. § 75-16 since Illinois Brick was decided, we find Stifflear unpersuasive for this case.
Segura
is also distinguishable from the instant case. In
Segura,
the Texas Attorney General sued the defendants seeking damages under the state antitrust act as
parens patriae
on behalf of consumers who purchased infant formula indirectly from the defendants. The Attorney General alleged that defendants engaged in price fixing and other activities which were illegal under Texas’ antitrust laws.
Segura,
Plaintiffs
cite Blake v. Abbott Laboratories, Inc.,
No. 03A01-9509-CV-00307,
*582 Since we are not required to construe our antitrust statute in harmony with the federal antitrust laws, we likewise find that the Illinois Brick limitation does not apply in North Carolina.
Defendants further contend that the General Assembly’s failure to explicitly amend N.C.G.S. § 75-16 to allow an indirect purchaser standing to sue for violations of our antitrust laws demonstrates that the General Assembly accepted the
Illinois Brick
rule. We disagree. In
Styers v. Phillips,
[T]he rule is that ordinarily the intent of the legislature is indicated by its actions, and not by its failure to act....
In James v. Young,77 N.D. 451 ,43 N.W.2d 692 , it was held that the legislature’s failure to pass a bill “cannot be said to indicate any intent on the part of the legislature. A public policy is declared by the action of the legislature, not by its failure to act . . . .” In Moore v. Board of Freeholders of Mercer County,76 N.J. Super. 396 ,184 A.2d 748 , the defendants argued that the failure of the legislature to pass a bill specifically authorizing a citizen to photocopy public records indicated a denial of the right. The court said, “[W]e decline to attribute any such attitude to the legislature. Defendant’s conclusion can be nothing more than conjecture. Many other reasons for legislative inaction readily suggest themselves.”
Id. See also Blake, 1996 WL at *3 (holding that the failure to enact legislation is not at all indicative of legislative intent).
The rule in North Carolina is clear that the intent of the General Assembly may only be discerned by its actions, and not its failure to act. As a result, the failure of the General Assembly to amend N.C.G.S. § 75-16 to allow an indirect purchaser to sue is of no consequence to the case sub judice.
We note further that the concerns which underlie the United States Supreme Court decision in Illinois Brick are less worrisome in the instant case. Illinois Brick set out several reasons why federal antitrust laws disallowed suits by indirect purchasers.
First, the
Illinois Brick
Court was concerned with the possibility of multiple liability.
Illinois Brick,
In addition, the United States Supreme Court in
Arc America
stated that
Rlinois Brick
was concerned solely with the construction of federal antitrust laws, and not at all with state court constructions of state antitrust laws.
Arc America,
Second, the
Illinois Brick
Court was concerned that “requiring direct and indirect purchasers to apportion the recovery [in a proceeding under section 4 of the Clayton Act] would result in no one plaintiff having a sufficient incentive to sue under that statute.”
Arc America,
Finally, the
Illinois Brick
Court was concerned that allowing a suit by indirect purchasers would lead to highly complex litigation, due to the necessity of determining the proportion of the overcharge
*584
which was passed on to indirect purchasers.
Illinois Brick,
The United States Supreme Court has stated that its interpretation of section 4 of the Clayton Act must “promote the vigorous enforcement of the antitrust laws.”
Kansas v. UtiliCorp United Inc.,
We believe that allowing indirect purchasers to sue for Chapter 75 violations will best advance the legislative intent that such violations be deterred, and that aggrieved consumers have a private cause of action to redress Chapter 75 violations. Accordingly, we hold that indirect purchasers have standing under N.C.G.S. § 75-16 to sue for Chapter 75 violations.
For the foregoing reasons, the decision of the trial court is reversed, and this case is remanded for proceedings not inconsistent with this opinion.
Reversed and remanded.
