delivered the opinion of the court:
Plaintiffs, Robert F. Perrin, executor of the estate of Margaret F. Perrin, deceased, and Phillip Malvin, Recille Malvin, Raymond P. Logan, and Alicia P. Logan, appeal from the judgment of the circuit court of Cook County entered in favor of defendant, Pioneer National Title Insurance Company, upon allowance of defendant’s motion to dismiss plaintiffs’ amended complaint. The only issue is whether the amended complaint states a cause of action under section 2 of the Consumer Fraud and Deceptive Business Practices Act (Ill. Rev. Stat. 1977, ch. 1218, par. 262).
Plaintiffs, suing individually and on behalf of a class of persons similarly situated, alleged in their amended complaint that plaintiffs Malvin and Perrin, as sellers of real estaté, and plaintiffs Logan, as purchasers of real estate, purchased owner’s title and mortgage insurance policies from defendant. Plaintiffs sought to represent a class of persons who either sold or bought real estate in Illinois from October 1,1973 (the effective date of the amended act), to date; who ordered title reports and commitments for title and mortgage insurance policies from defendant in connection with the transactions; and who paid defendant in accordance with charges imposed by defendant for its services. Plaintiffs alleged that during the period in question, defendant made and published a schedule of customary charges for its title insurance services based upon the amount of title insurance involved in a particular transaction. However, during the same period defendant allegedly granted builders, developers, contractors, and others engaged in the business of real estate development (builders), substantial discounts, which discounts were disproportionate and unrelated to any purported economy or saving inuring to defendant by reason of obtaining the business of such builders. Plaintiffs alleged that the services obtained by plaintiffs were the same as or substantially similar to those obtained by builders, but the charges to plaintiffs were based upon the aforesaid customary schedule of charges and, as a result, were 300% to 400% higher. Plaintiffs alleged that “said discriminatory, unjust and oppressive practice engaged in by the defendant” constituted an unfair trade practice in violation of section 2 of the Consumer Fraud and Deceptive Business Practices Act (Ill. Rev. Stat. 1977, ch. 121%, par. 262). Attached to plaintiffs’ amended complaint were invoices from defendant reflecting “buyer’s charges (customarily)” and “seller’s charges (customarily)” in connection with the title services furnished to plaintiffs. Plaintiffs Malvin and Perrin paid the full amount of the customary seller’s charges while plaintiffs Logan paid the full amount of the cutomary buyer’s charges, all without knowing that these charges were substantially in excess of the charges made by defendant to builders for substantially similar services. Plaintiffs alleged that “as a consequence of such unfair, unreasonable and discriminatory pricing practices,” the charges to plaintiffs for title insurance services “have been and are oppressive, unjust and extremely injurious” to plaintiffs’ class, and they have sustained damage by being required to pay “inflated, unreasonable, unfair and unnecessarily excessive” prices for defendant’s services. Plaintiffs requested injunctive relief, an accounting, and other relief.
In count II of their amended complaint (which restated what was the only claim in their original complaint), plaintiffs additionally alleged that defendant “intentionally concealed and suppressed such unfair trade practice” from plaintiffs’ class, “and/or otherwise misrepresented e 41 a that the charges for defendant’s services were based upon a customary schedule of charges which applied uniformly and proportionately to the services rendered by defendant to all customers of defendant, including ‘builders.’ ” The trial court dismissed plaintiffs’ amended complaint with prejudice for failure to state a cause of action; plaintiffs have appealed.
Section 2 of the Consumer Fraud and Deceptive Business Practices Act, as amended by Pub. Act 78-904, §1, effective Oct. 1,1973, provides:
“Unfair methods of competition and unfair or deceptive acts or practices, including but not limited to the use or employment of any deception, fraud, false pretense, false promise, misrepresentation or the concealment, suppression or omission of any material fact, with intent that others rely upon the concealment, suppression or omission of such material fact, or the use or employment of any practice described in Section 2 of the ‘Uniform Deceptive Trade Practices Act’, approved August 5, 1965, in the conduct of any trade or commerce are hereby declared unlawful whether any person has in fact been mislead [sic] deceived or damaged thereby. In construing this section consideration shall be given to the interpretations of the Federal Trade Commission and the federal courts relating to Section 5(a) of the Federal Trade Commission Act.” (Ill. Rev. Stat. 1977, ch. 121%, par. 262.)
Section 1(f) of the Act defines “trade” and “commerce” to include inter alia “the advertising, offering for sale, sale, or distribution of any services e * o” (Ill. Rev. Stat. 1977, ch. 121/2, par. 261(f)), while section 10a of the Act provides:
“Any person who suffers damage as a result of a violation of Sections 2 through 2N of this Act committed by any other person may bring an action against such person. The court, in its discretion may award actual damages or any other relief which the court deems proper.” (Ill. Rev. Stat. 1977, ch. 121)2, par. 270a.)
Section 2 of the Uniform Deceptive Trade Practices Act, to which the above-quoted section 2 of the Consumer Fraud and Deceptive Business Practices Act refers, provides in pertinent part:
“A person engages in a deceptive trade practice when, in the course of his business, vocation or occupation, he:
» * &
(12) engages in any other conduct which similarly creates a likelihood of confusion or of misunderstanding.” (Ill. Rev. Stat. 1977, ch. 121K, par. 312(12).)
Finally, section 5(a) of the Federal Trade Commission Act provides in pertinent part:
“Unfair methods of competition in or affecting commerce, and unfair or deceptive acts or practices in or affecting commerce, are declared unlawful.” 15 U.S.C. 545(a)(1)(1976).
Plaintiffs’ position on appeal may best be understood in the context of another case involving title services under the Consumer Fraud- Act, Fitzgerald v. Chicago Title & Trust Co. (1977),
The appellate court, noting that section 2 recommends that it be construed in light of FTC and Federal court interpretations of section 5(a) of the FTC Act, stated that the court would consult Federal authorities where there was a lack of Illinois precedent. After determining that under the Federal cases the Clayton Act (15 U.S.C. §§12-27 (1976), as amended by the Robinson-Patman Act) is read in pari materia with section 5(a) of the FTC Act, and noting that even practices which violate neither the letter nor the spirit of the antitrust laws may nevertheless violate section 5(a) (citing Federal Trade Com. v. Sperry & Hutchinson Co. (1972),
“It shall be unlawful for any person engaged in commerce, in the course of such commerce, to pay or grant, or to receive or accept, anything of value as a commission, brokerage, or other compensation, or any allowance or discount in lieu thereof, except for services rendered in connection with the sale or purchase of goods, wares, or merchandise, either to the other party to such transaction or to an agent, representative, or other intermediary therein where such intermediary is acting in fact for or in behalf, or is subject to the direct or indirect control, of any party to such transaction other than the person by whom such compensation is so granted or paid.” (15 U.S.C. 513(c)(1976).)
Although the Seventh Circuit Court of Appeals had held that identical payments by CT&T did not violate section 2(c), for the reason that the Clayton Act itself does not apply to intangibles such as insurance (Freeman v. Chicago Title & Trust Co. (7th Cir. 1974),
The supreme court affirmed (
In the case at bar, plaintiffs’ arguments in support of count I of their amended complaint are patterned after the reasoning of the appellate court in Fitzgerald, while count II is based more closely on the language of the statute, as was the supreme court’s analysis in that case. As to count I, plaintiffs argue that defendant’s practice of giving disproportionate discounts to builders amounts to discriminatory pricing. Section 2(a) of the Clayton Act (15 U.S.C. §13(a)(1976), as amended by the RobinsonPatman Act) provides in part:
“It shall be unlawful for any person engaged in commerce 000 to discriminate in price between different purchasers of commodities of like grade and quality 999 where the effect of such discrimination may be substantially to lessen competition 9 9 9 or to injure, destroy, or prevent competition with any person who either grants or knowingly receives the benefit of such discrimination, or with customers of either of them: Provided, That nothing herein contained shall prevent differentials which make only due allowance for differences in the cost996 resulting from the differing methods or quantities in which such commodities are to such purchasers sold or delivered 9 9 9.”
Plaintiffs alternatively contend that the discounts represent unlawful discounts in lieu of brokerage in excess of services rendered, referring to section 2(c) of the Clayton Act (15 U.S.C. § 13(c) (1976)), the section relied upon by the appellate court in Fitzgerald and quoted above.
Defendant argues that these sections prohibit price discrimination either directly (under section 2(a)) or indirectly through manipulation of brokerage commissions (under section 2(c)), but generally only among those competing in the resale of the products purchased. This is in accord with the fundamental purpose of the Clayton Act as amended in 1936 by the Robinson-Patman Act, to ensure that one merchant in the business of selling goods will not be forced to pay a higher price for goods than a competitor, enabling the competitor to undersell him and drive him out of business. (See generally F. Rowe, Price Discrimination Under the Robinson-Patman Act 1-23 (1962).) Thus, section 2(a) is limited by its terms to situations where price discrimination may “lessen * * *, injure, destroy, or prevent competition,” and the cases cited by plaintiffs under section 2(a) all deal with such situations. (See Federal Trade Com. v. Morton Salt Co. (1948),
However, plaintiffs point out that the FTC is empowered to define and proscribe as unfair or deceptive, practices which infringe neither the letter nor the spirit of the antitrust laws, and which injure only consumers and have no effect upon competition. (See Federal Trade Com. v. Sperry & Hutchinson Co. (1972),
° ° in determining whether a practice that is neither in violation of the antitrust laws nor deceptive is nonetheless unfair:
‘(1) whether the practice, without necessarily having been previously considered unlawful, offends public policy as it has been established by statutes, the common law, or otherwise— whether, in other words, it is within at least the penumbra of some common-law, statutory, or other established concept of unfairness;
(2) whether it is immoral, unethical, oppressive, or unscrupulous;
(3) whether it causes substantial injury to consumers (or competitors or other businessmen).’ ” (405 U.S. 233 , 244-45 n.5,31 L. Ed. 2d 170 ,179 n.5,92 S. Ct. 898 , 905 n.5, citing 29 Fed. Reg. 8355 (1964).)
Whether satisfaction of just the third criterion, substantial injury to consumers, would be sufficient to render a practice unfair remains unclear. (But see
A leading State court case that reached a similar result in construing a State consumer protection statute which, like our own, is modeled in part after the FTC Act, is Commonwealth v. DeCotis (1974),
As our supreme court recognized in Fitzgerald, just as Congress left the concept of fairness up to the FTC to define, so our legislature chose to frame the Consumer Fraud and Deceptive Business Practices Act in general terms so as to permit construction and implementation of the statute on a case-by-case basis. (
But the issue here, even assuming an expansive judicial power to define and prohibit practices as unfair, is whether plaintiffs’ amended complaint alleges sufficient facts to show that the practice complained of is unfair. All that is alleged in this regard is that defendant grants builders substantial discounts, disproportionate to the cost savings generated by the volume of the builders’ business, and this is injurious to consumers such as plaintiffs because they must pay a much higher price for similar services. Yet in the cases cited by plaintiff, the practices labeled unfair not only injured consumers, but offended some settled public policy, whether expressed in statutes, common law, or otherwise. (See also Ortega v. Merit Insurance Co. (N.D. Ill. 1977),
Plaintiffs do not allege the business of title insurance is so affected with a public interest as to require title insurers to charge reasonable or nondiscriminatory rates. (Compare, e.g., Union Electric Co. v. Illinois Commerce Com. (1979),
However, a question that could be raised is why plaintiffs’ allegation of discriminatory pricing is not itself sufficient to shift to defendant the burden of denying any illegality and justifying the practice. In short, should not. defendant have been required to file an answer and a motion for summary judgment, rather than a motion to dismiss? Plaintiffs argue that in cases under the Clayton Act, it need only be alleged (and proved) that the seller has charged one purchaser a higher price than another where both purchasers compete in the resale of the product purchased. The burden of justifying the differential by, for example, cost savings, then shifts to the defendant. (See 15 U.S.C. §13(b)(1976).) But this argument once again illustrates the need for caution in importing antitrust principles into the consumer area. The gist of a Clayton Act cause of action is the discriminatory pricing itself; it is presumed to have an anticompetitive effect, and therefore the burden of justification shifts to the defendant. But for plaintiffs to have a cause of action under section 10a of the Consumer Fraud and Deceptive Business Practices Act, they must allege “damage as a result of a violation of Sections 2 through 2N of this Act” which proscribe, “unfair * * * acts or practices * ° ° in the conduct of any trade or commerce ° * (Ill. Rev. Stat. 1977, ch. 121%, pars. 270a, 262.) If plaintiffs fail, as they have done here, to allege facts sufficient, if proved, to show that a pricing practice is unfair, plaintiffs have failed to state a cause of action and their complaint is subject to a motion to dismiss. To hold otherwise would be to require businesses to justify every price differential at the behest of any consumer who claimed it was unfair. We decline to take such a step in the absence of more explicit guidance from the legislature. Accordingly, we hold the trial court properly dismissed count I of plaintiffs’ amended complaint for failure to state a cause of action.
In count II, plaintiffs alleged that defendant “intentionally concealed and suppressed” its practice of giving discounts to builders. But there is nothing alleged to show how that fact was in any way a “material fact” and thus to bring the alleged “concealment” within the proscription of section 2 of the Consumer Fraud and Deceptive Business Practices Act. (See Ill. Rev. Stat. 1977, ch. 121%, par. 262; see also Rice v. Snarlin, Inc. (1970),
Plaintiffs’ second count also charged that defendant “otherwise misrepresented * ° * that the charges for defendant’s services were based upon a customary schedule of charges which applied uniformly and proportionately to the services rendered by defendant to all customers of defendant, including ‘builders.’ ” The source of this alleged misrepresentation, which plaintiffs now also contend “create[d] a likelihood of confusion or of misunderstanding” under section 2(12) of the Uniform Deceptive Trade Practices Act (Ill. Rev. Stat. 1977, ch. 121%, par. 312(12) incorporated in section 2 of the Consumer Fraud and Deceptive Business Practices Act (Ill. Rev. Stat. 1977, ch. 121%, par. 262)), was not an actual “schedule of charges” but rather the designation of charges on defendant’s invoices as “seller’s charges (customarily)” and “buyer’s charges (customarily).” The very meaning of the word “customarily” (i.e., “usually”) rebuts plaintiffs’ contention that the charges were represented as being uniformly the same for all customers, even if the invoices are taken as referring to the amount rather than the allocation of the charges. Neither can we discern any reasonable basis for the contention that the invoices “create[d] a likelihood of confusion or of misunderstanding” on this point. Thus, plaintiffs’ attempt to state a cause of action in count II of their amended complaint also fails.
Accordingly, the judgment of the trial court dismissing plaintiffs’ amended complaint is affirmed.
Affirmed.
PERLÍN, P. J., and HARTMAN, J., concur.
Notes
Defendant also maintains that even where section 2(a) applies, it does not prohibit price differentials to purchasers at different economic levels and in different markets, such as wholesalers as against retailers or distributors as against consumers. However, whether builders and consumers are at the same level as consumers of title services, and whether this problem could properly be resolved on a bare motion to dismiss, are questions we need not decide.
