Virgin Mobile U.S.A., L.P. v. Commonwealth ex rel. Commercial Mobile Radio Service

448 S.W.3d 241, 2014 Ky. LEXIS 632, 2014 WL 4116480
CourtKentucky Supreme Court
DecidedAugust 21, 2014
DocketNos. 2012-SC-000621-DG, 2012-SC-000626-DG
StatusPublished
Cited by5 cases

This text of 448 S.W.3d 241 (Virgin Mobile U.S.A., L.P. v. Commonwealth ex rel. Commercial Mobile Radio Service) is published on Counsel Stack Legal Research, covering Kentucky Supreme Court primary law. Counsel Stack provides free access to over 12 million legal documents including statutes, case law, regulations, and constitutions.

Bluebook
Virgin Mobile U.S.A., L.P. v. Commonwealth ex rel. Commercial Mobile Radio Service, 448 S.W.3d 241, 2014 Ky. LEXIS 632, 2014 WL 4116480 (Ky. 2014).

Opinion

Opinion of the Court by

Justice VENTERS.

Appellant/Cross-Appellee, Virgin Mobile USA (Virgin), appeals from an opinion of the Court of Appeals that affirmed a summary judgment entered in the Jefferson [243]*243Circuit Court. The circuit court had concluded that Virgin was indebted to the Appellee/Cross-Appellant, Commercial Mobile Radio Emergency Service Telecommunications Board (CMRS Board, or the Board) in the sum of $547,945.67 in commercial mobile radio service (CMRS) charges that Virgin was required to collect and remit to the CMRS Board. Virgin had claimed that it owed nothing to the Board. The Jefferson Circuit Court also awarded attorneys’ fees to the Board, but the Court of Appeals reversed that award. The CMRS Board cross-appeals from that portion of the Court of Appeals’ opinion. The essential facts are not in dispute. Upon our review, we conclude that Virgin is indebted to the CMRS Board in the sum of $286,807.20, not $547,945.67, and therefore, we affirm in part and reverse in part. With respect to the attorneys’ fee issue, we reverse the Court of Appeals and remand the case to the Jefferson Circuit Court for consideration of that issue in light of this opinion.

I. FACTUAL AND PROCEDURAL BACKGROUND

For many years the General Assembly has provided a mechanism for taxing telephone service to provide funding for the state’s system of 911-emergency service. In 1984, the legislature authorized local governments to impose a special tax upon telephone service to finance local 911-emergency systems. See KRS 65.760. Of course, at that time virtually all telephone communications were conducted through wires strung between poles, and the 911-emergency service systems were designed accordingly. They were not compatible with the new technologies for wireless cellular telephone service.

In 1998, with the burgeoning popularity of wireless and mobile cellular telephone service, the General Assembly created the Commercial Mobile Radio Service Emergency Telecommunications Board, now known as the CMRS Board.1 The legislature also created the “CMRS fund.”2 To cover the costs associated with the extension of 911-emergency service to mobile telephone users, KRS 65.7629(3) directed the Board to collect a CMRS service charge of $0.70 per month per CMRS connection.3 KRS 65.7629(3) also provided that “The CMRS service charge [ ] shall be collected in accordance with KRS 65.7635 beginning August 15,1998.”

A “CMRS provider” is an entity that provides mobile telephone service to a mobile phone user.4 Each CMRS provider was designated by KRS 65.7635(1) as “a collection agent for the CMRS fund.” KRS 65.7635(1) mandated that each CMRS provider:

shall, as part of the provider’s normal monthly billing process, collect the CMRS service charges levied upon CMRS connections under KRS 65.7629(3) from each CMRS connection to whom the billing provider provides CMRS. Each billing provider shall list the CMRS service charge as a separate entry on each bill which includes CMRS service charge.

KRS 65.7635(2) clarifies that mobile service providers have no obligation to take legal action against customers who fail to pay the service charge. Rather, the statute provides that actions against delinquent CMRS customers would be “initi[244]*244ated by the state on behalf of the [CMRS] board[.]”

This statutory scheme for assessing and collecting the CMRS service charge was obviously designed and intended to integrate seamlessly into what was then the only mode of selling mobile telephone service to consumers: a CMRS service provider such as AT & T Mobility or Sprint entered into a fixed contract with a customer to provide mobile phone service for an extended period, typically two years. The customer was assigned a mobile telephone number (a “CMRS connection”) and was billed each month at the contract rate. Adding the CMRS service charge of $0.70 per month as a separate item on each monthly bill was a.simple, almost natural, way to collect the service charge.

It was against this statutory backdrop that Virgin began doing business in Kentucky as a CMRS provider in August 2002. Unlike the conventional providers of mobile telephone service, Virgin structured its service on a new business model, marketing its service to a customer base with different abilities and needs. Virgin recognized that some potential consumers of mobile telephone service, especially individuals with low incomes, did not have the credit to qualify for an extended contract with a conventional service provider, or had no fixed mailing address for receiving monthly bills; other potential customers included individuals who, for a variety of reasons, could not or would not commit to the conventional fixed-period billing contract. For all of those consumers, Virgin developed a pre-paid mobile telephone service, selling telephones with pre-paid phone service in retail outlets like Wal-Mart.

Purchasers of pre-paid mobile service received a mobile telephone with a CMRS connection, and a fixed quantity of wireless telephone service. Since pre-paid CMRS service was purchased at a retail outlet, consumers of the service did not deal directly with a CMRS provider, and thereafter had no relationship with a CMRS provider except for the occasional purchase of additional minutes of phone service. Significantly, users of pre-paid mobile telephones never received a monthly bill. Because their mobile phone service was paid for prior to using it, they never had an unpaid balance for prior phone service for which they could be billed. Under the prepaid-CMRS plan, collecting the CMRS service charge in a manner consistent with the mandate of KRS 65.7635(1) was not physically or conceptually possible because prepaid CMRS users and providers had no “normal monthly billing” cycle. At this point, it is necessary to note that in 2002, the General Assembly amended KRS 65.7629(3), to require the CMRS Board to collect the CMRS service charge from each “CMRS connection” with “a place of primary use, as defined in 4 U.S.C. sec. 124, within the Commonwealth.” However, the 2002-amendment made no mention of pre-paid mobile service and it made no change whatsoever to the prescribed method of collecting the service charge set out in KRS 65.7635.

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Bluebook (online)
448 S.W.3d 241, 2014 Ky. LEXIS 632, 2014 WL 4116480, Counsel Stack Legal Research, https://law.counselstack.com/opinion/virgin-mobile-usa-lp-v-commonwealth-ex-rel-commercial-mobile-radio-ky-2014.