RBW v. SOOMAN

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NOTICE: THIS DECISION DOES NOT CREATE LEGAL PRECEDENT AND MAY NOT BE CITED EXCEPT AS AUTHORIZED BY APPLICABLE RULES. See Ariz. R. Supreme Court 111(c); ARCAP 28(c); IN THE COURT OF APPEALS STATE OF ARIZONA DIVISION ONE RBW CONSULTANTS, INC., an Arizona corporation; AMERICAN MODULAR SERVICES, INC., an Arizona corporation, Plaintiffs/Appellees, v. ROY SOOMAN, a married man, Defendant/Appellant. ) ) ) ) ) ) ) ) ) ) ) ) ) DIVISION ONE FILED: 8/6/2013 RUTH A. WILLINGHAM, CLERK BY: mjt No. 1 CA-CV 12-0286 DEPARTMENT A MEMORANDUM DECISION (Not for Publication Rule 28, Arizona Rules of Civil Appellate Procedure) Appeal from the Superior Court in Maricopa County Cause No. LC2010-000878-001 The Honorable Crane McClennen, Judge AFFIRMED Weinberger Law By Brian A. Weinberger Attorneys for Plaintiffs/Appellees Scottsdale Jennings, Strouss & Salmon, P.L.C. By David Brnilovich Attorneys for Defendant/Appellant Scottsdale C. Thomas Horne, Arizona Attorney General By Michele L. Forney, Assistant Attorney General Registrar of Contractors Phoenix T H O M P S O N, Presiding Judge ¶1 Roy Sooman appeals the superior court s judgment reversing the decision of the Arizona Registrar of Contractors (ROC) to revoke Consultants, (AMS). Inc. the (RBW) contractors and licenses American Modular held by RBW Services, Inc. For the reasons that follow, we affirm. BACKGROUND ¶2 agreed By written contract dated November 25, 2006, Sooman to Development) subdivision. purchase an from undeveloped TM Development lot (Property) Group, in a (TM residential The purchase price of $345,850.00 included costs for constructing a home on the lot (the Project). Development LLC, nor its principal, Thomas Brown, Neither TM were licensed contractors. ¶3 On July 27, 2007, TM Development and American Modular Services Corporation (AMS Corp.) executed a written agreement (Contractor Agreement) whereby AMS Corp. agreed to serve as the general contractor on the Project under the ROC license number 143165, which was held by AMS. 1 In the Contractor Agreement, TM Development held itself out to be the owner of the Property. The Project was completed on June 19, 2008. 1 The president of AMS testified regarding the reference to AMS Corp. in the Contractor Agreement: It was an error. I have a hard time with corp., and Inc. My wife gets on me a bit about that, so . . . . 2 ¶4 On August 10, 2009, Sooman filed a complaint with the ROC alleging AMS (1) aided and abetted an unlicensed contractor, (2) acted as a contractor under an ROC license issued in a name other than as set forth on the license, and (3) engaged in contracting without a license. 2 In support of the ROC complaint, Sooman alleged the Contractor Agreement evidenced an attempt to circumvent Arizona s contractor license laws. Specifically, Sooman asserted that Thomas Frederick, the president of AMS, sold all of AMS s assets before executing the Contractor Agreement, and AMS Corp. an entity that did not exist was not the lawful license holder of #143165. Sooman s complaint, AMS engaged in Thus, according to illegal unlicensed construction activity on the Project from July 27, 2007 until January 18, 2008, the date Frederick obtained a new ROC license (#241609) for RBW. 3 Moreover, between January 18, 2008 and June 2 On October 3, 2008, Sooman also filed CV2008-070503 in superior court against TM Development, Brown, AMS and Thomas Frederick alleging various civil claims arising from TM Development s and Brown s alleged unlicensed contracting. A trial was held on the matter, and by minute entry dated March 28, 2013, the superior court found in defendants favor on all claims. 3 After the City of Phoenix issued a permit in connection with the Project, Sooman signed a Change of Record Affidavit informing the city that RBW was the new contractor. Thus, according to Sooman, RBW just took the place of [AMS]. In addition to being the qualifying party for AMS s ROC license, Frederick is also the president of RBW and the qualifying party for its ROC license. Frederick explained at the hearing that 3 2008, when a certificate of occupancy was issued upon the Project s conclusion, Sooman alleged Frederick illegally allowed TM Development to use . construction of the house. . . license #241609 for the Sooman requested AMS s and RBW s licenses be revoked, and he sought restitution of the purchase price of the home. 4 ¶5 In response to Sooman s complaint, the ROC informed Sooman and AMS on May 19, 2010 that an administrative hearing would be held. AMS and RBW moved to dismiss the complaint arguing Sooman did not have standing to make the complaint because Sooman did not have a contract with AMS or RBW, and he did not allege any material construction of the Project. loss or injury resulting from Further, AMS and RBW argued the ROC did not have authority to conduct a hearing and resolve Sooman s complaint because the ROC did not join in the complaint and had not issued any orders requiring AMS and RBW to take corrective action. AMS changed license. its The Administrative Law Judge (ALJ) summarily name to RBW, 4 and he procured a different According to Sooman s argument at the hearing, the alleged violations of contractor licensing laws resulted in, among other things, an unmarketable home in addition to defects that delayed construction and caused Sooman to incur additional financial burdens. 4 denied the motion to dismiss and held a hearing on July 7, 2010. 5 The ROC did not appear at the hearing. ¶6 The ALJ found that the evidence produced at the hearing supported Sooman s allegations that AMS and RBW violated Arizona contractor licensing statutes, and the ALJ recommended the ROC revoke the licenses held by AMS and RBW. 6 The ROC adopted the ALJ s recommendations and revoked the licenses on October 14, 2010. ¶7 AMS and RBW (collectively, plaintiffs) sought judicial review in superior court, and the appearance as a nominal party. ROC filed its notice of The superior court determined Sooman did not have the right to file the complaint against AMS and RBW, statutory and the court authority concluded by the revoking ROC acted outside Plaintiffs its licenses. Accordingly, the court vacated the ROC s revocation order and remanded the matter. Sooman appealed, and we have jurisdiction pursuant to Arizona Revised Statutes (A.R.S.) § 12-913 (2013). DISCUSSION ¶8 to When reviewing administrative decisions, our role is determine whether the administrative 5 agency acted The ALJ explained that, for efficiency purposes, he typically denies motions to dismiss and prefers to hold a hearing and address the merits of a case. 6 The ALJ declined to award restitution. 5 arbitrarily, capriciously, or in abuse of its discretion. 7 Sanders v. Novick, 151 Ariz. 606, 608, 729 P.2d 960, 962 (App. 1986) (citation omitted). determine whether That is, we search the record to substantial evidence supports the agency s decision or whether the agency erred as a matter of law. See Sundown Imps., Inc., v. Ariz. Dep t of Transp., Motor Vehicle Div., 115 Ariz. 428, 431, 565 P.2d 1289, 1292 (App. 1977; see also Arpaio v. Figueroa, 229 Ariz. 444, 447, ¶ 7, 276 P.3d 513, 516 (App. 2012) discretion). (legal error constitutes an of We are free to reach our own legal conclusion as to whether the agency correctly interpreted the law. Health abuse Servs. v. Arizona Health Care Cost Carondelet Containment Sys. Admin., 182 Ariz. 502, 504, 897 P.2d 1388, 1390 (App. 1995). ¶9 Similarly, as specifically applicable here, we review issues of statutory interpretation de novo. Ariz. 182, interpreting 183, a ¶ 6, 195 statute, our P.3d goal 641, is to State v. Peek, 219 642 give (2008). effect When to the legislature s intent. Id. at 184, ¶ 11, 195 P.3d at 643. We look first to the language of the statute because it is the best 7 We note that the ROC was a nominal party to the superior court suit and not a party to this appeal. At our discretion we allowed the ROC to file a late brief in support of Sooman s claim and to argue that we should affirm the ALJ s administrative decision to revoke the contractor s license. RBW filed a Response to the ROC s brief, disputing both the ROC s claim to party status here and their statutory interpretation, which in our discretion we have considered. 6 indication of the legislature s intent. Id. If the language is clear and unequivocal, it is determinative of the statute s construction. State v. Hansen, 215 Ariz. 287, 289, ¶ 7, 160 P.3d 166, 168 (2007) (quoting Deer Valley Unified Sch. Dist. No. 97 v. Houser, 214 (2007)). We must meaningful Ariz. read operation to 293, 296, all 8, 152 statute the ¶ as a of its P.3d 490, whole, and provisions. 493 give Wyatt v. Wehmueller, 167 Ariz. 281, 284, 806 P.2d 870, 873 (1991). ¶10 Our statutes. analysis Section therefore 32-1154(A) begins with enumerates the applicable various acts and omissions, that when committed by an ROC licensee, subject the licensee to disciplinary action by the ROC. it is not necessary to specify those For our purposes, prohibited acts or omissions other than to note that the ALJ and the ROC found Plaintiffs were in violation of subsections (A)(10), (A)(15), (A)(13) and (A)(20). Subsection (B) of that statute states, in relevant part: B. The registrar may on the registrar s own motion, and shall on the written complaint of any owner or contractor that is a party to a construction contract or a person who suffers a material loss or injury as a result of a contractor s failure to perform work in a professional and workmanlike manner or in accordance with any applicable building codes and professional industry standards, investigate the acts of any contractor within this state and may temporarily suspend, with or without imposition of specific conditions in 7 addition to increased surety bond or cash deposit requirements, or permanently revoke any or all licenses issued under this chapter if the holder of the license issued pursuant to this chapter is guilty of or commits any of the acts or omissions set forth in subsection A of this section. For the purposes of this subsection: 1. Construction contract means a written or oral agreement relating to the construction, alteration, repair, maintenance, moving or demolition of any building, structure or improvement or relating to the contractor s excavation of or other development or improvement to land if the registrar investigates the contractor's actions under this subsection. A.R.S. § 32-1154(B) (2013). ¶11 Thus, pursuant to A.R.S. § 32-1154(B), one of three pre-conditions must be satisfied before the ROC is authorized to investigate, and subsequently discipline, a contractor in this state: (1) the ROC may commence an investigation on its own motion, and it must investigate allegations of misconduct made by either (2) any owner or contractor that is a party to a construction contract[,] or by (3) a person who suffers a material loss or injury as a result of a contractor s failure to perform work in a professional and workmanlike manner ¶12 The . . .. Here, pre-conditions one and three are not applicable. ROC complaint did not filed proceed by on Sooman. its motion; Sooman did it not responded allege in to a the complaint any material loss or injury that he suffered as a 8 result of plaintiffs work performance on the Project. leaves pre-condition two: whether Sooman was a party That to a construction contract. ¶13 The record reflects that, at most, Sooman was a party to a contract with TM Development, which in turn contracted with plaintiffs. been Thus, under A.R.S.§ obligated to 32-1154(B), the ROC would have investigate if Sooman filed a complaint alleging improper contracting activities by TM Development, or if TM Development misconduct. made allegations regarding Neither of those scenarios transpired. Plaintiffs Instead, Sooman s complaint alleged misconduct by Plaintiffs, with whom he did not have a contractual relationship. 8 ¶14 Sooman Affidavit, see construction appears supra. fn. argue 3, is prima himself the Change facie evidence Record of a support of this assertion, he relies on A.R.S. § 32-1152. That addresses and of In however, between that Plaintiffs. provision, contract to contractors obligations to procure surety bonds; it contains nothing that remotely supports Sooman s position. We therefore summarily reject this argument. Cullum v. Cullum, 215 Ariz. 352, 355, ¶ 14 n.5, 160 P.3d 231, 8 The was not contract 12/07/10 070503. court handling the civil action also found that Sooman entitled to rescission because he lacked privity of with AMS, RBW and Frederick. See Minute Entry Dated in Sooman, et al. v. Thomas B Brown, et al., CV 20089 234 n.5 (App. 2007) (holding appellate courts will not consider argument posited without authority. ). ¶15 Sooman also relies on A.R.S. § 32-1155 as a basis independent of A.R.S. § 32-1154(B) for the ROC s authority in this case to investigate plaintiffs and revoke their licenses. That provision states, in relevant part: A. Upon the filing of a written complaint with the registrar charging a licensee with the commission, within two years prior to the date of filing the complaint, of an act that is cause for suspension or revocation of a license, the registrar after investigation may issue a citation directing the licensee, within ten days after service of the citation upon the licensee, to appear by filing with the registrar the licensee's written answer to the citation and complaint showing cause, if any, why the licensee's license should not be suspended or revoked. A.R.S. under § 32-1155(A) A.R.S. disciplinary § (emphasis 32-1155(A), authority is added). the triggered ROC s by written complaint alleging misconduct. of the phrase [u]pon the filing Sooman the asserts that investigatory and mere filing of a Sooman s interpretation of a written complaint ignores, however, the legislature s clear intent in A.R.S. § 321154(B) to limit the pool of persons that may file complaints with the ROC. By construing A.R.S. § 32-1155(A) to allow anyone to file a complaint, the pre-conditions in A.R.S. § 32-1154(B) are rendered meaningless, a result that cardinal principles of statutory construction prohibit. 10 See Romero v. Stines, 18 Ariz. App. 455, 503 P.2d 413 (1972) ( Statutory construction requires that the provisions of a statute must be read and construed in context with the related provisions and in light of its place in the statutory scheme. ); Walker v. City of Scottsdale, 163 Ariz. 206, 210, 786 P.2d 1057, 1061 (App. 1989) (noting we must give meaning to each word in a statute to avoid rendering any part of the statute void, redundant, or meaningless). ¶16 this Because the ROC did not proceed on its own motion in matter indeed, it did not appear in any of the proceedings below and Sooman did not allege a material loss or injury resulting from plaintiffs work on the Project, Arizona law required Sooman to be a party to a construction contract with plaintiffs in order to file an ROC complaint against them. The record establishes Sooman did not have such a contractual relationship. 32-1154(B) Thus, the ROC was not authorized under A.R.S. § to commence Plaintiffs licenses. disciplinary proceedings and revoke By proceeding to do so, and not granting plaintiffs motion to dismiss on this basis, the ROC erred as a matter of law. CONCLUSION ¶17 The superior parties request their Sooman s request is party. court s judgment attorneys denied because fees he is affirmed. incurred is not the on Both appeal. prevailing Plaintiffs do not provide a basis for their request. 11 We therefore deny plaintiffs fee request. Ezell v. Quon, 224 Ariz. 532, 539, ¶ 31, 233 P.3d 645, 652 (App. 2010) (request for attorneys fees on appeal must state the claimed basis for the award ) (citing Roubos v. Miller, 214 Ariz. 416, 420, ¶ 21, 153 P.3d 1045, 1049 (2007)). /s/ _______________________________ JON W. THOMPSON, Presiding Judge CONCURRING: /s/ _____________________________ PHILIP HALL, Judge* /s/ ______________________________ KENT E. CATTANI, Judge *Judge Philip Hall was a sitting member of this court when the matter was assigned to this panel of the court. He retired effective May 31, 2013. In accordance with the authority granted by Article 6, Section 3, of the Arizona Constitution and pursuant to A.R.S. § 12-145, the Chief Justice of the Arizona Supreme Court has designated Judge Hall as a judge pro tempore in the Court of Appeals, Division One, for the purpose of participating in the resolution of cases assigned to this panel during his term in office. 12

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