C. Randel LEWIS, solely in his capacity as receiver, Petitioner, v. Steve TAYLOR, Respondent.
Supreme Court Case No. 14SC469
Supreme Court of Colorado.
June 20, 2016
Rehearing Denied August 1, 2016
2016 CO 48 | 375 P.3d 1205
Attorneys for Respondent: Podoll & Podoll, P.C., Richard B. Podoll, Robert A. Kitsmiller, Dustin J. Priebe, Greenwood Village, Colorado
Attorneys for Amicus Curiae Gerald Rome, Securities Commissioner for the State of Colorado: Cynthia H. Coffman, Attorney General, Russell B. Klein, Deputy Attorney General, Charles J. Kooyman, Assistant Attorney General, Denver, Colorado
JUSTICE HOOD delivered the Opinion of the Court.
¶ 1 Under the Colorado Uniform Fraudulent Transfer Act (“CUFTA“),
¶ 2 Though
¶ 3 Accordingly, we hold that
I. Facts and Procedural History
¶ 4 In 2006, the respondent, Steve Taylor, invested $3 million in several investment companies operated by Sean Mueller. Unbeknownst to Taylor, Mueller was using these companies (the “Mueller Funds“) to run a multi-million dollar Ponzi scheme. The Muel-
¶ 5 Taylor happened to be one of the “winners” of the scheme. Between September 1, 2006, and April 19, 2007, Taylor received $3,487,305.29 in payouts from the Funds, representing a return of his invested principal, plus a net profit of $487,305.29. Others were not so fortunate. Approximately ninety-five investors lost a total of approximately $72 million.
¶ 6 In April 2010, the Colorado Securities Commissioner discovered that the Mueller Funds were a Ponzi scheme. In November 2010, Mueller pleaded guilty to securities fraud, theft, and violating the Colorado Organized Crime Control Act. In December 2010, he was sentenced to a total of 40 years in prison and ordered to pay over $64 million in restitution.
¶ 7 On April 27, 2010, the district court appointed the petitioner, C. Randel Lewis, as the Receiver for the Mueller Funds. The Receiver was tasked with collecting and distributing Mueller‘s assets to his creditors, including to his defrauded investors.
¶ 8 On April 12, 2011, the Receiver and Taylor, who was represented by counsel, signed a tolling agreement that extended the time period within which the Receiver could institute a cause of action against Taylor through and including December 31, 2011. The agreement provided that “[a]ll applicable statutes of limitation or repose, each and every statutory or common law time limitation respecting the commencement of an action, ... and any other defenses based on the passage of time ... hereby are and shall be tolled during the Tolling Period.” It stipulated that any action brought by the Receiver within the tolling period would be deemed to have been filed on April 12, 2011, the effective date of the agreement.
¶ 9 On October 14, 2011, the Receiver filed a complaint against Taylor that included a CUFTA claim seeking to recover Taylor‘s net profit of $487,305.29 for equitable distribution among all losing investors in the Mueller Funds. CUFTA provides that a cause of action to avoid an intentionally fraudulent transfer is extinguished if it is not brought within four years after the transfer was made or, if later, within one year after the transfer was or could reasonably have been discovered.
¶ 10 The Receiver filed a motion for partial summary judgment on the CUFTA claim, and Taylor filed a cross-motion, arguing that the Receiver‘s CUFTA claim was filed outside the statutory time period and therefore was time-barred. The trial court found in the Receiver‘s favor. It considered the tolling agreement valid and binding, and it concluded that the Receiver‘s claims against Taylor were timely.
¶ 11 Taylor appealed, and the court of appeals reversed. Lewis v. Taylor, 2014 COA 27M, ¶ 23, ___ P.3d ___. It read
¶ 12 The Receiver petitioned this court to review the court of appeals’ judgment. We granted his petition.2
II. Standard of Review
¶ 13 A trial court‘s order granting or denying summary judgment is subject to de novo review. Oasis Legal Fin. Grp., LLC v. Coffman, 2015 CO 63, ¶ 30, 361 P.3d 400, 405. Summary judgment is appropriate only if “the pleadings, depositions, answers to interrogatories, and admissions on file, together with the affidavits, if any, show that there is no genuine issue as to any material fact and that the moving party is entitled to a judgment as a matter of law.”
¶ 14 Additionally, the proper meaning of
III. Analysis
¶ 15 We begin by providing an introduction to CUFTA, the causes of action it creates, and the limitations it places on their assertion. We then examine
A. Limitations on Actions Under CUFTA
¶ 16 The Colorado General Assembly enacted CUFTA in 1991.
¶ 17 CUFTA provides that a transfer is fraudulent as to a creditor if the debtor made the transfer with actual intent to hinder, delay, or defraud any creditor of the debtor.
¶ 18
¶ 19 Here, there is no dispute that Mueller engaged in an intentionally fraudulent trans-
¶ 20 This is a question of statutory interpretation. The primary goal of statutory interpretation is to ascertain and give effect to the legislature‘s intent. St. Vrain Valley Sch. Dist. RE-1J v. A.R.L., 2014 CO 33, ¶ 10, 325 P.3d 1014, 1019. To do so, we look to the plain meaning of the statutory language and consider it within the context of the statute as a whole. Denver Post Corp. v. Ritter, 255 P.3d 1083, 1088 (Colo. 2011). If the statutory language is clear, we apply it as such. Id. at 1089. But if the statutory language has more than one reasonable meaning, and is therefore ambiguous, we may look to interpretive aids to construction to resolve the ambiguity and determine which of the reasonable interpretations is appropriate. Marquez v. People, 2013 CO 58, ¶ 7, 311 P.3d 265, 268. In evaluating whether a statute is ambiguous, we do not read its words or phrases in isolation, but instead read them in context and in a manner that gives effect to the statute as a whole. See Thermo Dev., Inc. v. Cent. Masonry Corp., 195 P.3d 1166, 1168 (Colo. App. 2008). With these principles in mind, we turn to
B. “Extinguished” in Section 38-8-110(1) Is Ambiguous
¶ 21
¶ 22 Subsection (1)(a) contains the language of both a statute of limitations and a statute of repose, two tools used by legislatures to limit the time period within which claimants may initiate actions. A statute of limitations establishes a time limit for suit based on the date when the claim accrued. CTS Corp. v. Waldburger, 573 U.S. 1, 7-8, 134 S.Ct. 2175, 2182, 189 L.Ed.2d 62 (2014) (quoting Statute of Limitations, Black‘s Law Dictionary (9th ed. 2009)). By contrast, a statute of repose limits the right to bring a claim to a specific time period that begins to run not when the claim accrues, but when the defendant‘s last culpable act or omission takes place. Id.
¶ 23 The first portion of
¶ 24 The second portion of
¶ 25 The confluence of the language of limitations and the language of repose renders
¶ 26 Because of this ambiguity, we must determine whether the General Assembly intended the term “extinguished” to eliminate the right to bring a claim after the statutory time period automatically and without exception, or whether it contemplated permitting that right to be preserved pursuant to voluntary tolling of the statutory time period.
C. Tolling by Express Agreement Comports with CUFTA
¶ 27 When a statute is ambiguous, we may use a variety of interpretive aids to determine legislative intent. These tools include legislative history and how the law has been construed in similar circumstances.
¶ 28 CUFTA‘s legislative history is silent as to the General Assembly‘s intent in enacting
¶ 29 Taylor, like the court of appeals below, maintains that the weight of authority interpreting UFTA extinguishment provisions substantially similar to
¶ 30 The cases Taylor presents, and on which the court of appeals relied, are distinguishable because they concern whether the limitations may be equitably tolled or tolled by the operation of other statutory provisions. See, e.g., Warfield v. Alaniz, 453 F.Supp.2d 1118, 1130 (D. Ariz. 2006) (concluding that Arizona equivalent of
¶ 31 Courts presented with express tolling agreements have determined that statutes of repose similar to CUFTA may be tolled. See First Interstate Bank of Denver, N.A. v. Cent. Bank & Tr. Co. of Denver, 937 P.2d 855, 861-62 (Colo. App. 1996) (concluding that statute of repose in Colorado Securities Act lacked specific language to create jurisdictional prerequisite and was susceptible to waiver by stipulation or express agreement); see also SEC v. Forte, Civil Nos. 09-63, 09-64, 2012 WL 1719145, at *8 (E.D. Pa. May 16, 2012) (stating that because all fraudulent transfer claims the receiver might bring were covered by tolling agreements, claims could be brought without exceeding one-year “look-back” period in Pennsylvania‘s UFTA); ESI Montgomery Cty., Inc. v. Montenay Int‘l Corp., 899 F.Supp. 1061, 1066 (S.D.N.Y. 1995) (determining defendants could agree to waive limitations scheme similar to
¶ 32 Taylor also points us to Midstate Horticultural Co., Inc. v. Pennsylvania Railroad Co., 320 U.S. 356, 64 S.Ct. 128, 88 L.Ed. 96 (1943). Again, however, his reliance is misplaced. In Midstate, the U.S. Supreme Court considered whether a time limitation in the Interstate Commerce Act (“ICA“) on complaints against carriers for recovery of charges could be waived by an express agreement made before the end of the statutory period. Id. at 357, 64 S.Ct. 128. The Court considered congressional intent and determined that the ICA‘s limitation was intended to extinguish the cause of action and “put an end to the substantive claim and the corresponding liability.” Id. at 364, 64 S.Ct. 128. The Court concluded that the action was time-barred, despite the parties’ agreement to extend the time period. Critically, however, the Court focused on the purpose of the ICA to impose a comprehensive scheme of regulation and “secur[e] the general public interest in adequate, nondiscriminatory transportation at reasonable rates.” Id. at 361, 64 S.Ct. 128. It explained that the Act required “rigid adherence to the statutory scheme and standards” even in “matters concerning which variation in accordance with the exigencies of particular circumstances might be permissible, if only the parties’ private interests or equities were involved.” Id. Thus, Midstate‘s holding specifically concerns the ICA and the congressional intent behind its enactment.
¶ 33 To the extent Midstate created a generally applicable rule regarding tolling statutes of repose, that rule can best be characterized as a directive to consider the legislative intent and policy purposes behind each statute under consideration, not as a universal prohibition on tolling. See FDIC v. Williams, 60 F.Supp.3d 1209, 1214 & n. 7 (D. Utah 2014) (concluding that statute setting applicable statute of limitations “[n]otwithstanding any provision of any contract” permitted tolling, and distinguishing Midstate in part based on Midstate‘s focus on congressional intent specific to the ICA); In re Lehman Bros. Sec. & ERISA Litig., No. 09 MD 2017(LAK), 2012 WL 6584524, at *2 (S.D.N.Y. Dec. 18, 2012) (estopping defendant from asserting time bar it had voluntarily tolled by agreement and finding Midstate inapplicable because its policy concerns were not implicated).
¶ 34 Of course, the prerogative to establish limitations periods for state statutes belongs to the state legislature, subject to state and federal due process guarantees. See Dove v. Delgado, 808 P.2d 1270, 1273 (Colo. 1991); 51 Am. Jur. 2d Limitation of Actions § 27 (2011) (“The legislature of each state has the power to enact statutes of limitation for causes of action that are effective within that state.“). In the present case, this affirms our decision to look to the Colorado legislature as the arbiter of the meaning of CUFTA‘s limitations provision.
¶ 35 CUFTA‘s focus is on identifying fraudulent transactions between a creditor and a debtor. It sets forth the conditions under which a transfer will be considered fraudulent, and it creates remedies for creditors seeking relief against a fraudulent transfer or obligation.
¶ 36 Additionally, in considering the consequences of the parties’ competing con-
¶ 37 Although a statute of repose is a judgment that defendants should be entirely free from liability after a specified period of time, CTS Corp., 134 S.Ct. at 2183, the policy concerns behind freeing defendants from the lingering threat of a lawsuit do not apply here, where the parties expressly agreed not to assert the statute‘s time limitations, see First Interstate Bank, 937 P.2d at 862-63.
¶ 38 In summary, the language of
IV. Conclusion
¶ 39 We hold that
JUSTICE GABRIEL dissents, and CHIEF JUSTICE RICE and JUSTICE COATS join in the dissent.
JUSTICE GABRIEL, dissenting.
¶ 40 Unlike the majority, I do not perceive
I. Analysis
¶ 41 As pertinent here,
¶ 42 The official comment to this provision confirms that the section‘s purpose “is to make clear that lapse of the statutory periods prescribed by this section bars the right and not merely the remedy.”
¶ 43 Unlike the majority, I believe that
¶ 44 In my view,
¶ 45 I am not persuaded otherwise by the language in
¶ 46 For these reasons, I believe that
¶ 47 In In re Estate of Ongaro, 998 P.2d 1097, 1102 (Colo. 2000), we construed
¶ 48 In my view, the same reasoning applies here. As noted above, the legislature used the term “extinguished,” and the official comments expressly noted the statute‘s purpose to bar claims filed after the specified time periods lapse. Just as we concluded in Ongaro, 998 P.2d at 1102, that the General Assembly‘s use of the term “barred” indicated an intent to render the concept of tolling inapplicable to a nonclaim statute, I believe that the General Assembly‘s use of the term “extinguished” indicated its intent to render the concept of tolling inapplicable to the statute of repose at issue here. Indeed, to hold otherwise would undermine the legislature‘s judgment that after the specified time, the defendant should be free from liability. See CTS Corp., 134 S.Ct. at 2183.
¶ 49 In this regard, the United States Supreme Court‘s decision in Midstate Horticultural Co. v. Pennsylvania Railroad Co., 320 U.S. 356, 357-58, 64 S.Ct. 128, 88 L.Ed. 96 (1943), is substantially on point. There, the applicable statute provided that all actions “shall be begun within three years from the time the cause of action accrues, and not after.” Id. at 357, 64 S.Ct. 128 (quoting
¶ 50 This reasoning applies with equal force here. Specifically, the language of
¶ 51 Accordingly, I believe that the division below correctly concluded that the parties could not toll
II. Conclusion
¶ 52 For these reasons, I respectfully dissent.
I am authorized to state that CHIEF JUSTICE RICE and JUSTICE COATS join in this dissent.
