State v. Thompson

*889Majority: ALEXANDER, LEVY, SILVER, MEAD, and GORMAN, JJ.

Dissent: SAUFLEY, C.J., and CLIFFORD, J.

[¶ 1] Rodman E. Thompson appeals the entry of a summary judgment in the Superior Court (Kennebec County, Mar-den, J.) in favor of the State Tax Assessor on its complaint to collect income taxes assessed against Thompson. Thompson argues that notice by the Assessor was deficient under both 86 M.R.S. § 111(2) (2007)1 and due process requirements, and that the court erred by finding that the assessments became final due to Thompson’s failure to request review, barring him from now contesting that he is a Maine resident. We are satisfied, based on the record before us, that the Superior Court did not err in granting summary judgment on the issue of notice. We do, however, vacate a portion of the judgment and remand to the Superior Court for fact-finding consistent with this opinion.

I. BACKGROUND

[¶ 2] Rodman E. Thompson or his family members have for many years owned and used property in Northeast Harbor. In 1996, he registered to vote in Maine, claiming Northeast Harbor as his residence. In 2001, the State Tax Assessor sent Thompson, by certified mail, a demand for filing of Maine State tax returns, for tax years 1996 and 1997, to his last known address, which was a post office box in Northeast Harbor.2 The letter was signed for by G. Damis. Thompson claims he never received the letter.

[¶ 8] Thompson did not file Maine State tax returns for tax years 1996 and 1997. In January 2002, the Assessor sent an estimated assessment for those years by certified mail to Thompson at a Pennsylvania address it obtained from the Internal Revenue Service (IRS).3 The notice of assessments was returned to the Assessor with the notation “unclaimed.” The Assessor remailed the notice of assessments to Thompson at the same Pennsylvania address via first class mail pursuant to 36 M.R.S. § 111(2). The notice alerted Thompson of his right to seek reconsideration, but Thompson did not do so. In April 2002, the Assessor sent a notice and demand for payment of the tax, interest, and penalties, by certified mail, to Thompson’s Pennsylvania address. Audrey Matthew signed for the letter. Thompson claims he never received the notice.

*890[¶ 4] In November 2002, the Assessor sent a demand for filing of Maine State tax returns for 1998 and 1999, by certified mail, to Thompson’s Pennsylvania address. This letter was also signed for by Audrey Matthew. Thompson did not file Maine State returns for 1998 or 1999 and, in January 2003, using information provided by the IRS, the Assessor sent an estimated assessment for those years to Thompson’s Pennsylvania address via certified mail. Thompson admits that he received that notice. Thompson did not seek reconsideration of the assessments. In March 2003, the Assessor sent a notice and demand for payment of the tax, interest, and penalties for 1998 and 1999 via certified mail to Thompson’s Pennsylvania address. The demand was signed for by Audrey Matthew.

[¶ 5] Thompson never paid any of the assessed taxes. The assessments totaled $159,190.10 at the time the Attorney General filed a complaint for collection of unpaid taxes, pursuant to 36 M.R.S. § 174 (2007), in the Superior Court in December 2006. Thompson raised several affirmative defenses, including that he was not a resident of Maine during 1996-1999, arguing that he has always been a resident of Pennsylvania.4 The State moved for summary judgment asserting, among other things, that the assessments had become final and Thompson was therefore precluded from litigating the issue of residency. Thompson filed a motion to dismiss for lack of subject matter jurisdiction.

[¶ 6] After a hearing, the court granted the State’s summary judgment motion and denied Thompson’s motion to dismiss. The court determined that the final assessments have res judicata effect and bar Thompson from contesting his residency. Additionally, the court found that notice was sufficient, pursuant to 36 M.R.S. § 111(2) and due process requirements, and therefore enforced the assessments, ordering Thompson to pay $159,190.10, plus interest and costs. Thompson filed this appeal.

II. DISCUSSION

[¶ 7] We review the entry of a summary judgment for errors of law, viewing the evidence in the light most favorable to the party against whom the judgment was entered, and will uphold the judgment if there is no genuine issue as to any material fact and the moving party is entitled to judgment as a matter of law. Landry v. Leonard, 1998 ME 241, ¶ 4, 720 A.2d 907, 908. A genuine issue of fact exists when “the evidence requires a facfi finder to choose between competing versions of the truth.” Farrington’s Owners’ Ass’n v. Conway Lake Resorts, Inc., 2005 ME 93, ¶ 9, 878 A.2d 504, 507. A material issue of fact exists when the fact could affect the outcome. Id.

[¶ 8] Thompson argues that res judicata does not apply to the assessments that became final by default. We review decisions regarding the effect of a prior judgment on a present action, which is a question of law, de novo. Currier v. Cyr, 570 A.2d 1205, 1207-08 (Me.1990). Res judicata applies to bar relitigation if: “(1) the same parties or their privies are involved in both actions; (2) a valid final judgment was entered in the prior action; and (3) the matters presented, for decision in the second action were, or might have been litigated in the first action.” Johnson v. Samson Constr. Corp., 1997 ME 220, ¶ 6, 704 A.2d 866, 868 (quotation *891marks omitted). Additionally, we have extended the res judicata effect of final judgments to “adjudicative decisions of administrative bodies.” Standish Tel. Co. v. Saco River Tel. & Tel. Co., 555 A.2d 478, 481 (Me.1989).

[¶ 9] Only the finality, adjudicative nature, and validity of the assessments are in question.

A. Final Judgment

[¶ 10] Thompson argues that the assessments do not constitute a final judgment because in a collection action brought pursuant to 36 M.R.S. § 174, the Assessor’s certificate is only “prima facie evidence of the levy of the tax, of the delinquency and of the compliance by the assessor with [title 36] in relation to the assessment of the tax.” We disagree. We have stated that “A final judgment or final administrative action is a decision that fully decides and disposes of the entire matter pending before the court or administrative agency, leaving no questions for the future consideration and judgment of the court or administrative agency.” Carroll v. Town of Rockport, 2003 ME 135, ¶ 16, 837 A.2d 148, 154.

[IT 11] Title 36 M.R.S. § 173 (2007), “Collection by warrant,” provides for collection of assessed taxes by warrant and specifically provides that the warrant “shall have the force and effect of an execution issued upon a judgment in a civil action for taxes.” Similarly, section 174, “Collection by civil action,” is a method of executing a final assessment resulting from either a determination by the Superi- or Court upon review of the assessor’s reconsideration of its assessment or, as in this case, a default assessment that became final as a result of inaction on the part of the taxpayer.5 Although section 174 allows an evidentiary proceeding, based on the “prima facie evidence” language, the proceeding is specifically a method for collection of the already final assessments and does not indicate that the Assessor or the Superior Court, as the case may be, left some issue unanswered and failed to enter a final judgment. Accordingly, the existence of a statutory method of enforcement, which may or may not ever be pursued by the State, does not undermine the finality of the assessments resulting from 36 M.R.S. § 151 (2007).

[¶ 12] Additionally, reading section 174 as Thompson suggests would render section 151 meaningless. We give statutory language its plain meaning and do not treat language as superfluous or meaningless and, therefore, decline to adopt Thompson’s interpretation of section 174. See Stromberg-Carlson Corp. v. State Tax Assessor, 2001 ME 11, ¶ 9, 765 A.2d 566, 569.

*892B. Adjudicative Proceeding

[¶ 13] Thompson also argues that because section 151 states that reconsideration of the assessments by the Assessor is not an adjudicative proceeding, res judica-ta cannot attach to the final assessments. We disagree. Thompson had an opportunity to have the Assessor reconsider the assessments and, if he wished to do so, to file a petition with the Superior Court to review the Assessor’s ruling on the reconsideration.

[¶ 14] Pursuant to the versions of section 151 in effect at the times Thompson could have sought reconsideration and then review in the Superior Court:

The Superior Court shall conduct a de novo hearing and make a de novo determination of the merits of the case. The court shall make its own determination as to all questions of fact or law. The Superior Court shall enter such orders and decrees as the case may require. The burden of proof is on the taxpayer.6

The essential elements of an adjudication include:

1) adequate notice; 2) the right to present evidence and legal argument and to rebut opposing evidence and argument; 3) a formulation of issues of law and fact to apply rules to specified parties concerning a specified transaction; 4) the rendition of a final decision; and 5) any other procedural elements as may be necessary to constitute the proceeding a sufficient means of conclusively determining the matter in question.

Town of Ogunquit v. Cliff House & Motels, Inc., 2000 ME 169, ¶ 11, 759 A.2d 731, 735 (quotation marks omitted). Because the proceeding in the Superior Court would include a de novo hearing and determination on the merits of the case, the proceeding would include all essential elements of an adjudication.

[¶ 15] “If a party does not challenge an administrative order through an available appeal that contains the essential elements of adjudication, the failure to do so may have preclusive effect upon any subsequent litigation on identical issues and claims dealt with in the administrative order.” Town of Boothbay v. Jenness, 2003 ME 50, ¶ 21, 822 A.2d 1169, 1175 (quotation marks omitted). In Maines v. Secretary of State, we determined that an administrative license suspension that became final due to the defendant’s failure to request a hearing had a res judicata effect and barred the defendant from bringing a subsequent action challenging the constitutionality of the suspension statute. 493 A.2d 326, 329 (Me.1985). We reasoned that because the defendant could have sought an adjudicative hearing, but failed to exercise that right, he could not later escape the res judicata effect of the final suspension. Id. at 329-30.

[¶ 16] In this case, Thompson failed to exercise his right to reconsideration of the assessment and to appeal the reconsideration to the Superior Court; he cannot escape any res judicata effect of the final assessment based on lack of adjudication.

C. Valid Judgment

[¶ 17] Thompson’s final argument is that the default assessments are void because the Assessor acted beyond its authority by assessing taxes against Thompson, who claims that he was not a *893“resident individual” of Maine during the years at issue.7

1. 1997-1999

[¶ 18] Based on the current state of the record in this summary judgment proceeding, a genuine issue of material fact exists with respect to Thompson’s residency for years 1997-1999. Although Thompson’s swearing that he was a Maine resident in 1996 when registering to vote, and the lack of any record of his payment of Pennsylvania income taxes during the years in question may make his claim of Pennsylvania residency difficult to prove, those difficulties of proof of contested facts do not justify summary judgment. Even when one parry’s version of the facts appears more credible and persuasive to the summary judgment court, “a summary judgment is inappropriate if a genuine factual dispute exists that is material to the outcome.” Arrow Fastener Co., Inc. v. Wrabacon, Inc., 2007 ME 84, ¶ 17, 917 A.2d 123, 126. Summary judgment “is not a substitute for trial.” Id. ¶ 18, 917 A.2d at 127.

[¶ 19] Although, based on the record, Thompson has sufficient minimum contacts with the State to establish personal jurisdiction, it does not necessarily follow that the Assessor had authority to tax Thompson’s income.8 Taxation of the income of a non-resident, earned outside of Maine, is “constitutionally beyond this State’s reach.” See Barney v. State Tax Assessor, 490 A.2d 223, 225 (Me.1985); see also Shaffer v. Carter, 252 U.S. 37, 49-52, 40 S.Ct. 221, 64 L.Ed. 445 (1920).9 If the Assessor acts outside of its taxing authority, its actions are void and subject to collateral attack. See Sold, Inc. v. Town of Gorham, 2005 ME 24, ¶ 12, 868 A.2d 172, 176 (“Subject to equitable defenses ... a governmental action may be challenged at any time, as ultra vires, when the action itself is beyond the jurisdiction or authority of the administrative body to act.”).

[¶ 20] Thompson did not waive his argument that the Assessor acted outside of its authority by failing to assert it earlier, as the Assessor cannot, by virtue of a person’s failure to assert non-residency, enter final default assessments against a person who was beyond its constitutional and statutory reach. Although personal jurisdiction is not an issue in this case, we *894liken onr holding that Thompson did not waive his lack of residency argument to our previous determinations that a failure to assert lack of personal jurisdiction does not waive the issue, and that even a default judgment entered without personal jurisdiction may be collaterally attacked. See Architectural Woodcraft Co. v. Read, 464 A.2d 210, 212 (Me.1983); Lewien v. Cohen, 432 A.2d 800, 805 (Me.1981) (“Without personal jurisdiction, any judgment entered by such a court is void and ... should not be given res judicata effect.”).

[¶ 21] The parties’ statements of material facts indicate a factual dispute about Thompson’s residency for years 1997-1999. Thompson asserts that he paid Pennsylvania income taxes, voted in Pennsylvania, and spent fewer than 183 days in Maine during those years. Taking the facts in the light most favorable to Thompson, as we are required to do, he may not have been a “resident individual” during the years in question. If Thompson was not a “resident individual,” the Assessor acted beyond its authority in entering final assessments against him, and the default assessments would be void and could not have res judicata effect. Because there is a genuine issue of material fact with respect to residency for 1997-1999, the court erred in entering summary judgment and Thompson must be allowed a fact-finding hearing regarding residency for those years.

2. 1996

[¶ 22] The record shows that Thompson registered to vote in Maine in 1996 and swore an oath that he was, at that time, a resident of Maine.10 He cannot now claim that he was not a resident in 1996, because a party to a summary judgment proceeding cannot create a dispute as to a material fact by making an assertion contrary to a fact stated in that party’s prior sworn statement. See Schindler v. Nilsen, 2001 ME 58, ¶ 9, 770 A.2d 638, 641-42; Zip Lube, Inc. v. Coastal Sav. Bank, 1998 ME 81, ¶ 10, 709 A.2d 733, 735. Therefore, the final assessment for 1996 does have res judicata effect, and Thompson may not now collaterally attack that assessment by asserting that he was not a Maine resident in 1996.

III. CONCLUSION

[¶ 23] Although we note that Thompson’s inaction is ill advised, a default judgment obtained by the Assessor against an individual beyond its taxing authority cannot be immune from collateral attack. To hold otherwise would be contrary to established principles requiring a valid judgment for purposes of res judicata and would potentially allow the State to tax individuals it is constitutionally and statutorily prohibited from taxing. We vacate the Superior Court’s entry of summary judgment, because a genuine issue of material fact exists with respect to Thompson’s residency for years 1997-1999.

The entry is:

Judgment vacated with regard to years 1997, 1998, and 1999. Judgment affirmed with regard to 1996.