BOTSFORD, J.
In 2011, Melissa Tyler, a customer of Michaels Stores, Inc. (Michaels), filed an action on behalf of herself and a putative class of Michaels customers in the United States District Court for the District of Massachusetts. Tyler's complaint alleged that Michaels unlawfully writes customers' personal identification information on credit card transaction forms in
We answer "Yes" to the first question, but for different reasons than the judge set forth in the question itself. We also answer "Yes" to the second and third questions.
Background. Tyler's complaint alleges the following facts that we accept as true for the purposes of answering the certified questions. On several occasions during the past year, Tyler made purchases with a credit card at a Michaels retail store in Everett. During these transactions, a Michaels employee asked Tyler to provide her zip code. Tyler disclosed the number under the mistaken impression that she was required to do so in order to complete the credit card transaction, but in fact, the credit card issuer did not require Michaels to request zip codes. Michaels maintains a policy of writing customers' names, credit card numbers, and zip codes on electronic credit card transaction forms in connection with credit card purchases. Michaels used Tyler's name and zip code in conjunction with other commercially
Tyler filed her class action complaint against Michaels on May 23, 2011, claiming that Michaels's electronic recording of customer zip codes amounts to writing personal identification information on a credit card transaction form in violation of § 105 (a) and therefore constitutes an unfair or deceptive act or practice as defined in G. L. c. 93A, § 2. The complaint also contains a claim for unjust enrichment and seeks a declaratory judgment that Michaels's collection of zip codes violates § 105 (a). Michaels filed a motion to dismiss the complaint on July 22, 2011. On January 6, 2012, the District Court judge granted the motion. The judge concluded that (1) Tyler sufficiently alleged a violation of § 105 (a) because zip codes constitute personal identification information,
Discussion. All three questions turn on the meaning and purpose of § 105 (a), and G. L. c. 93, § 105 (§ 105), more generally. It is therefore useful to identify the purpose or purposes of these statutory provisions at the outset.
Section 105 (a) provides:
Section 105 (d) states that "[a]ny violation of the provisions of this chapter shall be deemed to be an unfair and deceptive trade practice, as defined in section 2 of chapter 93A." Thus, a violation of § 105 (a) is unlawful under G. L. c. 93A, § 2,
The judge opined that the main purpose of § 105 (a) is to prevent identity fraud and not, as Tyler contends, to protect consumer privacy. Michaels advances the same interpretation of the statute as the judge. We disagree for three reasons.
First, keeping in mind the rule that the actual words chosen by the Legislature are critical to the task of statutory interpretation,
Thus, § 105 (a) expressly "applies to all credit card transactions" and delineates a general prohibition that "[n]o person, firm, partnership, corporation or other business entity ... shall write, cause to be written or require that a credit card holder write personal identification information, not required by the credit card issuer, on the credit card transaction form" (emphases supplied). The statute also defines "[p]ersonal identification information" in a nonexclusive manner, stating that the term "shall include, but shall not be limited to, a credit card holder's address or telephone number." Id. We discern nothing in these expansive and general terms that indicates or suggests that prevention of identity fraud was the single point of legislative focus.
Second, and contrary to the District Court judge, we find the title of § 105 to offer useful guidance. See, e.g., American Family Life Assur. Co. v. Commissioner of Ins. 388 Mass. 468, 474, cert. denied, 464 U.S. 850 (1983), and cases cited ("although the title of an act cannot control the plain provisions of the act, it may aid construction of ambiguous clauses"). Section 105 was inserted in the General Laws by St. 1991, c. 414, § 1. The title of this act is "An Act relative to consumer privacy in commercial transactions." The significance of this title gains strength from the fact that in the text itself, the Legislature inserted a caption into the General Laws for this new legislation. Thus, St. 1991, c. 414, § 1, begins: "Chapter 93 of the General Laws is hereby amended by adding under the caption `CONSUMER PRIVACY IN COMMERCIAL TRANSACTIONS,' the following two sections: [§§ 104
The third reason for our disagreement relates to the legislative
The legislation that ultimately was enacted as § 105 in December of 1991 was introduced by Senator Lois Pines and then Representative Suzanne Bump. See 1991 Senate Doc. No. 89; 1991 Senate Doc. No. 1510; 1991 House Doc. No. 6112. The legislative record pertaining to this legislation includes a memorandum specifically prepared in March, 1990, for Senator Pines by the Boston University Legislative Services, entitled "A Bill regulating check cashing and credit card acceptance procedures" (Pines memorandum) and a report prepared in November, 1990, by the Massachusetts Public Interest Research Group (MASSPIRG), entitled "What They Know Can Hurt You: A Survey of Retail Merchant Check Cashing and Credit Card Policies" (MASSPIRG report). The Pines memorandum describes the need for, and contains a preliminary draft of, the text of what became 1991 Senate Doc. No. 89, a bill introduced by Senator Pines that served as the principal predecessor to 1991 Senate Doc. No. 1510. See Pines memorandum, supra at 2-7, 38. The 1991 Senate Doc. No. 1510, in turn, was enacted as St. 1991, c. 414.
To summarize: based on the text, title and caption, and legislative history of § 105, we are persuaded that the principal purpose of § 105 (a), in contrast to § 105 (b), is to guard consumer privacy in credit card transactions, not to protect against credit card identity fraud.
1. Meaning of "personal identification information." The first certified question asks whether a zip code is "[p]ersonal identification information" under § 105 (a).
2. Requirements for bringing an action under § 105 (a). The second question asks whether a plaintiff may bring an action for a violation of § 105 (a) absent identity fraud. We see no reason to read into the statute a requirement that one be the victim of identity fraud in order to assert a claim under that statute. It does not contain an express limitation to that effect, and as previously discussed, we interpret § 105 (a) itself as being intended primarily to address invasion of consumer privacy by merchants, not identity fraud. The achievement of this purpose would be hindered rather than advanced by imposing a requirement that the plaintiff be a victim of identity fraud in order to raise a claim of statutory violation. See Commonwealth v. De'Amicis, 450 Mass. 271, 276 (2007), quoting Hanlon v. Rollins, 286 Mass. 444, 447 (1934) ("a statute must be interpreted according to the intent of the Legislature ascertained from all its words ... considered in connection with the cause of its enactment, the mischief or imperfection to be remedied and the main object to be accomplished").
Accordingly, our direct answer to the second question is that a plaintiff may bring an action for a violation of § 105 (a) without alleging a claim of identity fraud. We accept the judge's invitation to expand on this answer, however, and consider briefly the issue of what must be alleged in such an action with respect to injury or loss.
Because § 105 (d) provides that a violation of § 105 (a) "shall be deemed to be an unfair and deceptive trade practice, as defined in [G. L. c. 93A, § 2]," a consumer seeking to bring an action for a violation of this statute would do so pursuant to G. L. c. 93A, § 9(1), as Tyler has done in this case. A complaint under G. L. c. 93A, § 9(1), see note 4, supra, must allege that the plaintiff has been "injured" by the act or practice claimed
The Leardi case considered an amendment to G. L. c. 93A, § 9, that eliminated the requirement that one suffer a "loss of money or property" in order to be "injured" within the meaning of c. 93A, § 9(1), as appearing in St. 1979, c. 406, § 1.
Id. at 160. Later decisions of this court have interpreted the Leardi case and the language quoted here in different ways.
Returning to § 105 (a), there appear to be at least two types of injury or harm that might in theory be caused by a merchant's
3. Meaning of "credit card transaction form." The third question asks whether the term "credit card transaction form" in
Section 105 (a) provides that "[n]o person ... or ... business entity that accepts a credit card for a business transaction shall write, cause to be written or require that a credit card holder write personal identification information ... on the credit card transaction form." G. L. c. 93, § 105 (a). The section affirmatively declares that its provisions "shall apply to all credit card transactions" (emphasis supplied), and it contains no language expressly limiting a "credit card transaction form" to a paper form. Accordingly, as noted by the judge, the language of § 105 (a) naturally appears to include all such transactions, whether they are processed manually or electronically. The reference to the verb "write" in § 105 (a) does not foreclose such an interpretation because by definition, the verb encompasses inscriptions made by hand and by typing. Webster's Third New International Dictionary 2640-2641 (1993) (defining "write" to include "to form or produce [a legible character] in, upon, or by means of a suitable medium," "to produce [symbols or words] by machine," and "to form or produce letters, words, or sentences with a pen, pencil, or machine"). See Allen v. Boston Redev. Auth., 450 Mass. 242, 256 (2007) ("Where a statutory term is not defined, it must be understood in accordance with its generally accepted plain meaning"); G. L. c. 4, § 6, Third ("Words and phrases shall be construed according to the common and approved usage of the language"). Based on the words chosen by the Legislature, therefore, we interpret "credit card transaction form" to apply to transactions involving both electronic and paper forms.
There are other reasons to reject a narrow interpretation of the statutory language advocated by Michaels. To construe § 105 (a) as inapplicable to electronic credit card transactions
Conclusion. As to the first certified question, we respond that a zip code constitutes personal identification information for the purposes of G. L. c. 93, § 105 (a). As to the second certified question, we respond that a plaintiff may bring an action for violation of G. L. c. 93, § 105 (a), absent identity fraud. As to the third certified question, we respond that the term "credit card transaction form" in G. L. c. 93, § 105 (a), refers equally to electronic and paper transaction forms.
The Reporter of Decisions is directed to furnish attested copies of this opinion to the clerk of this court. The clerk in turn will transmit one copy, under the seal of the court, to the clerk of the United States District Court for the District of Massachusetts, as the answer to the questions certified, and will also transmit a copy to the parties.
Pines memorandum, supra at prefatory remarks & 23.
Similarly, the MASSPIRG report, supra at 1, states: "[T]he majority of the stores have credit and charge card policies that violate a consumer's privacy by asking for personal information unnecessary for the credit card transaction.... The common merchant practice of requiring phone numbers and/or addresses on credit card slips is an invasion of consumers' privacy. This personal information is NOT required by the card companies and is probably being collected for the retailer's marketing purposes."