Gandydancer, LLC v. Rock House CGM, LLC
Gandydancer, LLC v. Rock House CGM, LLC
Opinion
{1} In this interlocutory appeal, we consider whether the language in NMSA 1978, Section 57-12-10(B) (2005) of New Mexico Unfair Practices Act (UPA) allowing "[a]ny person who suffers any loss ... as a result of any ... act or practice declared unlawful by the [UPA to] bring an action[,]" creates a private right of action for businesses seeking to bring suit against competitors for unfair competition practices. Taking into consideration both the plain language of the statute and the UPA's remedial purpose as a consumer protection statute, we hold that a business may sue a competitor under the UPA only if the conduct alleged involves consumer protection concerns or trade practices addressed to the market generally. Because Plaintiff's claims against its business competitor do address such concerns, we affirm.
BACKGROUND
{2} Plaintiff Gandydancer, LLC and Defendant Rock House CGM, LLC are both construction companies providing railroad contracting services to BNSF Railway Company (BNSF). In the spring of 2015, Plaintiff submitted a complaint to the New Mexico Construction Industries Division (CID), alleging Defendant had performed unlicensed construction work in violation of the Construction Industries Licensing Act (CILA), NMSA 1978, §§ 60-13-1 to -59 (1967, as amended through 2013). Following an investigation, Defendant entered into a stipulated settlement agreement with CID agreeing to pay administrative penalties. A week before the stipulated settlement agreement was approved by CID's supervisory commission, Plaintiff sued Defendant in district court raising several claims, including a UPA claim. Plaintiff's complaint alleged that Defendant operated its business without satisfying the mandatory licensing requirements, induced Plaintiff's former employees to divulge confidential trade secrets, and used those trade secrets to convince BNSF to hire Defendant instead of Plaintiff without disclosing to BNSF that it was unlicensed.
{3} Defendant filed a motion to dismiss, asserting Plaintiff had no standing to bring the UPA claim and failed to state any claims upon which relief could be granted. Following a hearing, the district court denied Defendant's motion to dismiss Plaintiff's UPA claim and certified the question of "whether the [UPA] affords private-party standing to business competitors who are both sellers of services, or only to buyers of goods and services" to this Court for interlocutory review. Defendant then filed an application for interlocutory appeal, which this Court granted pursuant to Rule 12-203 NMRA and NMSA 1978, Section 39-3-4(B) (1999).
DISCUSSION
{4} Defendant raises three issues on appeal. First, Defendant contends that our prior decisions and the legislative intent of the UPA to protect consumers limits its grant of standing to "a person who purchased goods or services[,]" notwithstanding the broad language of Section 57-12-10(B) allowing "[a]ny person who suffers any loss of money or property" to bring a claim. Next, Defendant claims Plaintiff has failed to state a viable UPA claim, requiring dismissal with prejudice of its complaint. Finally, Defendant argues that to allow Plaintiff to bring a UPA claim against a competitor for failing to obtain a license would result in an improper usurpation of the government's regulatory authority. We are not persuaded by Defendant's arguments and affirm the district court.
A. Standard of Review
{5} A business competitor's standing to bring a private right of action under the provisions of the UPA is an issue of first impression in New Mexico.
See
First Nat'l Bancorp Inc. v. Alley
,
B. Plaintiff's Standing to Bring a Claim
{6} Defendant effectively makes two arguments as to why Plaintiff cannot bring a claim under the plain language of the UPA. First, Defendant argues that the provision in Section 57-10-12(B) allowing "[a]ny person who suffers any loss" to bring a claim is tempered by the legislative intent of the UPA and our prior case law limiting standing to buyers of goods and services. Second, Defendant contends that, while the UPA precludes "unfair or deceptive trade practice[s,]" it makes no mention of unfair competition practices.
1. Rules Governing Statutory Construction
{7} When interpreting a statute, a court's primary goal is to facilitate and promote the Legislature's purpose.
United Rentals Nw., Inc. v. Yearout Mech., Inc.
,
2. The UPA
{8} The UPA makes it unlawful to employ "[u]nfair or deceptive trade practices ... in the conduct of any trade or commerce." Section 57-12-3; see also NMSA 1978, § 57-12-2(C) (2009) (defining "trade" or "commerce" to include "the advertising, offering for sale or distribution of any services and any property and any other article, commodity or thing of value, including any trade or commerce directly or indirectly affecting the people of this state " (emphasis added) ). An "unfair or deceptive trade practice" is a "false or misleading oral or written statement ... or other representation of any kind knowingly made in connection with the sale ... of goods or services ... in the regular course of the person's trade or commerce that may, tends to or does deceive or mislead any person" and includes, among other things, "causing confusion or misunderstanding as to the source, sponsorship, approval or certification of goods or services" and "failing to state a material fact if doing so deceives or tends to deceive[.]" Section 57-12-2(D)(2), (14). " Any person who suffers any loss of money or property ... as a result of any employment by another person of a method, act or practice declared unlawful by the [UPA] may bring an action to recover actual damages." Section 57-12-10(B) (emphasis added). The Legislature has expansively defined a "person" as it is used in the UPA to include, "natural persons, corporations, trusts, partnerships, associations, cooperative associations, clubs, companies, firms, joint ventures, or syndicates[.]" Section 57-12-2(A).
a. "Any Person"
{9} Defendant contends that, while the language of the UPA allowing "any person who suffers any loss" appears to confer standing on Plaintiff, the legislative intent that the UPA serve as a mechanism to protect consumers excludes Plaintiff from the class of persons entitled to bring a claim under the Act. Plaintiff, by contrast, urges us to look exclusively to the plain language of the Act. We agree with Defendant that, notwithstanding that the plain language of the UPA appears to confer standing to Plaintiff and other similarly situated business competitors, we must consider whether our literal interpretation of the statute is contrary to its obvious intent or renders it absurd.
See
Helman
,
{10} The UPA represents New Mexico's public policy favoring the resolution of consumer claims and prevention of consumer harm.
See
Fiser v. Dell Comput. Corp.
,
{11} Because "the UPA constitutes remedial legislation, we interpret the provisions of [the] Act liberally to facilitate and accomplish its purposes and intent."
Quynh Truong v. Allstate Ins. Co.
,
{12} Taking into consideration the plain language of the statute and its remedial consumer protection purpose, we reject both parties' proposed interpretations of Section 57-12-10(B), as neither accomplishes the goals of the statute. Defendant's interpretation is overly-narrow in limiting standing to buyers of goods and services, while Plaintiff's overly-broad interpretation confers standing on business competitors regardless of whether the violation was related to trade or commerce "directly or indirectly affecting the people of the state[.]" Section 57-12-2(C). Defendant's interpretation ignores the plain language of the UPA, while Plaintiff ignores its legislative intent. To satisfy both the plain language of the Act, allowing "any person" to bring a claim, as well as the legislative intent to protect the people of the state from being directly or indirectly affected by unscrupulous business practices, we conclude that a business competitor may sue under the UPA provided that the conduct alleged involves trade practices that either implicate consumer protection concerns or are addressed to the market generally.
{13} Our holding is also consistent with our decision in
Lohman
in which we considered the plaintiff's UPA claim against a seatbelt manufacturer for its deceptive representations to a distributor to facilitate car sales to consumers at large.
{14} Relying primarily on our decisions in
Santa Fe Custom Shutters &Doors, Inc. v. Home Depot U.S.A., Inc.
(hereinafter,
SFCS
),
{15} In
SFCS
we were asked to determine whether a company who supplied custom shutters and installation services to Home Depot could bring a claim under the UPA against Home Depot when Home Depot failed to market and sell the shutters as promised.
{16} Similarly, in
Hicks
, the seller of certain pieces of art brought a UPA claim against an art appraiser who purchased several paintings from the seller after the seller declined to retain the appraisers services to value the art.
Hicks
,
{17} Taking into consideration the plain language and legislative intent of the statute and our holding in Lohman , however, we conclude that the statements from SFCS and Hicks limiting standing to buyers of goods and services merely disqualifies the seller, as between a buyer and seller, from bringing suit rather than precludes "any person" whose claim raises consumer protection concerns or trade practices addressed to the market generally. Because neither case addressed business competitor standing under the UPA, neither case controls our analysis here.
{18} Further, courts in other jurisdictions have also used legislative intent paired with statutory interpretation principles, including the liberal construction of remedial statutes, to interpret statutory language authorizing "any person" to bring a state consumer protection claim.
See
Eder Bros., Inc. v. Wine Merchs. of Conn., Inc.
,
{19} Similarly, in
John Labatt Ltd. v. Molson Breweries
, (Mem and Order)
{20} Because Plaintiff's claims offend neither the plain language nor the legislative intent of the UPA, we hold that a business competitor is among the persons allowed to bring an action pursuant to Section 57-12-10(B) if the conduct alleged involves consumer protection concerns or trade practices addressed to the market generally.
b. Unfair Competition Claims
{21} Defendant next contends that Plaintiff's claim fails because the UPA makes no mention of unfair competition practices. Plaintiff alleges in its complaint that Defendant's unfair competition practices consist of its knowingly making false and misleading statements when it sold its services to BNSF by failing to disclose that it lacked licenses required under CILA to perform the work that was the subject of the BNSF contracts, that Defendant was awarded BNSF contracts as a result of its intentional omissions regarding licensure, and that Plaintiff sustained
business losses as a result of Defendant's conduct. Because trade practices prohibited by the UPA include representations that "fail[ ] to state a material fact if doing so deceives or tends to deceive[,]" Section 57-12-2(D)(14), we conclude that despite Section 57-12-2(D) 's silence regarding unfair competition practices, the language of the UPA defining unfair and deceptive trade practices is broad enough to encompass the wrongful conduct of which Plaintiff complains.
See
Dollens v. Wells Fargo Bank, N.A.
,
For example, relief under [ Section 57-12-10(A) allowing "any person to obtain injunctive relief] might be had by one commercial enterprise from the deceptive advertising campaign of another. A competitor might complain that their company could suffer loss of market share and profits because the public might be deceived. ... In contrast, recovery of damages [under Section 57-12-10(B) ] ... might be suffered either by a consumer of goods or services, or the commercial competitor of an enterprise engaged in deceptive trade practices .
Solomon,
{22} While not binding, we find it difficult to ignore our Supreme Court's acknowledgment that recovery of damages might be had by a business whose competitor engaged in deceptive trade practices. Taking this language into consideration along with our mandate to interpret the UPA broadly, we conclude that, notwithstanding the UPA's failure to mention unfair competition practices, the misrepresentations of which Plaintiff complains are among those contemplated by the UPA.
3. Plaintiff's Claim
{23} In light of our conclusion that a business competitor is among the class of persons entitled to bring a claim under Section 57-12-10(B) of the UPA, we now consider whether the conduct alleged in Plaintiff's complaint involves trade practices that either implicate consumer protection concerns or are addressed to the market generally. In addition to its allegations related to Defendant's failure to disclose to BNSF that it was not properly licensed, Plaintiff's complaint alleges that "[c]onstruction contracting services, including in particular railroad construction and repair, [are] inherently dangerous both for those who perform such services and the general public."
{24} New Mexico statutes, as well as the case law interpreting those statutes, make it clear that New Mexico recognizes a strong public policy against unlicensed contractors.
See
Little v. Jacobs
,
C. CILA Enforcement
{25} Defendant next argues that a violation of CILA and its potential for sanctions and monetary penalties preclude recovery under the UPA for the same violations. Consequently, Defendant contends, a UPA claim undermines CILA and threatens its application and enforcement. See Section 60-13-9(G) (2013) (authorizing CID to investigate, enforce, and institute legal action to accomplish the provisions set forth in CILA). Defendant argues that Plaintiff's UPA claim effectively usurps enforcement powers that were already statutorily assigned to CID under CILA, and to the attorney general under the UPA. See § 57-12-15 (1967).
{26} Initially, we note that Defendant has failed to point us to any authority that supports its argument that CILA regulatory enforcement is the only recourse available where a contractor performs unlicensed work.
See
Muse v. Muse
,
D. Motion to Dismiss
{27} Finally, Defendant seeks dismissal with prejudice of Plaintiff's UPA claim based on a failure to plead facts sufficient to meet all the required elements. Defendant did not, however, request such relief or present this issue in its application for interlocutory appeal. Defendant therefore has not satisfied the requirements of Rule 12-203, and although we recognize that our scope of review may extend beyond the question presented for interlocutory review, we decline to do so here.
See
In re Begay
,
CONCLUSION
{28} We affirm the district court's denial of Defendant's motion to dismiss Plaintiff's UPA claim.
{29} IT IS SO ORDERED.
WE CONCUR:
J. MILES HANISEE, Judge
STEPHEN G. FRENCH, Judge
Reference
- Full Case Name
- GANDYDANCER, LLC, Plaintiff-Appellee, v. ROCK HOUSE CGM, LLC, and Karl G. Pergola, Defendants-Appellants.
- Cited By
- 1 case
- Status
- Published