### F I LE D U. S . COURT OF AP PE ALS E LEVE NTH CI RCUI T Se pt e m be r 23, 2005 T HOM AS K. KAHN C L E RK

Honora ble L loyd D. Georg e, United States District Judge f or the District of N evada , sitti ngby * designation. [ P UB L I S H]

I N THE UN I TE D STATE S C OU RT OF APPE ALS F O R T H E E L E V E N T H C IR C U IT

________________________ N o. 04- 15337

________________________ D. C. Do c k e tNo . 0 4 - 2 1 5 8 8 - CV- DLG G L E N D A L E O W E N S , P la in tif f - A p p e lla n t, v ersu s S A M K L E A U T O M O T I V E I N C O R P O R A T E D , d .b .a . M a r lin M a z d a , D e f e n d a n t- A p p e lle e .

________________________ A pp ea l fr om the U ni t ed S t at es D i stri ctC ou rt f orthe S outhe r n D i s tr i c tof F l or i da

_________________________ ( S e p t e m b e r 23, 2005) B ef ore B A R K E T T and M A R C U S , C i rc ui tJudg es , and G E O R G E , D i stri ctJudg e. * P E R C U R I A M:Owens’ amende d complaint included various related state-lawclaims, over which the district 1 court had supplemental jurisdiction, by virtue of its orig inal jurisdiction over her Odometer

Act c laim. Se e28 U. S.C. § 1 36 7( a) ( 20 00 ). When th edis tric t c ourt dis mis se d th efe deral c laim, it declined to c ontinue exercisingsupplemental jurisdiction over Ow ens’ state -law c laims, and dis mis se d th e m a s w e ll. Se e28 U. S.C. § 1 36 7( c )( 3) (2 00 0) (“ Th edis tric t c ourt s ma y de c lin eto exercise supplemental jurisdiction over a c laim under subsec tion (a) if ... thedistrict court has dismiss ed all claims over which it has orig inal jurisdiction ... .”); Carne g ie-Mellon Univ. v. Coh ill , 4 84 U. S. 3 43 , 3 50 (1 98 8) (“ When th ebalanc eof the sefac tor s in dic ate s th at a c a se prop e rly be long s in

statec ourt , a s when th efe deral- law c laims havedroppe d o ut o f t helaws uit in i ts e arly

stag e s and

on ly state -l aw c laims remain, thefe deral c ourt sh ould de c lin ethee xerc ise of jurisdiction by

dismiss ing thecasewithout prejudice.” ). 2 G l e nda l e O w e ns a ppe a l s the di s m i s s a l of he ra m e nde d c om pl a i nta l l e gi ng tha tS a m kl e A ut om ot i ve vi ol a t e d the f e de r a l V e hi c l e I nf

or m a t i on a nd C os tS a vi ngs A c t( the “ O dom e t e rA c t ” orthe “ A c t ” ) , 49 U . S . C . § 32701 e ts e q. T i t l e 49, 1 s e c tio n 3 2 7 1 0 ( a ) o f

th e U n ite d S ta te s C o d e p e r m its a p r iv a te p a r ty to r e c o v e rtr e b le da m a ge s or$1, 500, w hi c he ve ri s gr e a t e r , f r om “ [ a ] pe r s on w ho vi ol a t e s [ the O do m et erA ct ] or a r egul at i on pres cr i bed o r orderi ss ued u nd er[the O do m et er A c t ] , w i th i nt e ntt o de f

r a ud[ . ] ” 49 U . S . C . § 32710( a ) ( 2000) . T he pa r t i e s do not di s put e tha tO w e ns pr ope r l y a l l e ge d tha tS a m kl e vi ol a t e d the O dom e t e rA c t , a nd thati tdi d so w i th t he i nt entt o d ef raud her. H ow ever , O w ens di d n otal l ege that S a m k le in te n d e d to d e f

r a u d h e rs p e c if

ic a lly w ith r e s p e c t to th e v e h ic le ’s m ile a g e , a fa ctthe di stri ctcourtfoun d fat al t o h erO do m et erA ctcl ai m . T he di stri ctcourt hel d t hat“ re covery un der the O do m et erA cti s perm i ss i bl e onl y w hen a pl ai nt i ff ca n al l ege a nd prov e i nt entt o d ef raud w i th t he re spec tt o a vehi cl e’ s m i l ea ge. ” O w ens a rgues thatthe pl ai n l angu age of § 32 71 0(a) cont ai ns no suchF or

thepurp os e s o f t

his a pp e a l, w eon ly

re latethefac tual alle g atio ns re le va nt to O wens ’ 2 Odometer A c t c laim. 3 re stri ct i on , and an al l egat i on of i nt entt o d ef raud i n con nect i on w i th an O do m et er A c tvi ol a t i on s uf

f i c i e nt l y s t a t e s a c l a i m unde rtha ts ubs e c t i on. W e a gr e e , a nd ac cordi ng l y R E V E R S E and R E M A N D thi s c as e t o t he di stri ctcourtfor f urther p r o c e e d in g s . I . B AC KG RO UN D 2 O w en s’ am en d ed co m p l ai n tal l eg es th e fo l l o w i n g fact s. S am k l e o p erat es a c a rde a l e r s hi p i n M i a m i , F l or i da , know n a s “ M a r l i n M a z da , ” f r om w hi c h O w e ns s oughtt o pur c ha s e a us e d c a r . S a l e s pe r s ons a tthe de a l e r s hi p s how e d he ra 2002 M a z da 626, a nd t ol d he rtha tthe ve hi c l e w a s i n “ e xc e l l e nt ” c ondi t i on. B a s e d on thi s r epre se nt at i on , O w ens bou gh tthe ca r. A tth e t i me o f

s a l e , th e d e a l e r s h i p r e q u i r e d O w e n s t o s i g n a b a t t e r y o f f o r ms

— a p o w e ro f

a tto r n e y , a n o d o m e te rd is c lo s u r e s ta te m e n t, a m o to rv e h ic le reassi g n m en tsu p p l em en t , an d an ap p l i cat i o n fo r cert i fi cat e o f t i t l e (co l l ect i v el y, the “ T r a ns f

e rF or m s ” ) — butnotthe c a r ’ s or i gi na l t i t l e , a s r e qui r e d by the O dom e t e rA c t . S e e 49 U . S . C . § 32705( a ) ( 2000) ; 49 C . F . R . § 580. 5 ( 2000) . T he T r a ns f e rF or m s w e r e notthe of f i c i a l , s e c ur e d f

or m s i s s ue d by the S t a t e of F l or i da a s r e q u ir e d b y th e O d o m e te rA c t, s e e 4 9 C .F .R . § 5 8 0 .4 ( 2 0 0 0 ) , a n d d id n o t c o n ta in c e r t a i n m a nda t or y di s c l os ur e s . S e e i d. § 580. 5. B y ha vi ng O w e ns s i gn the4

T r a ns f e rF or m s , M a r l i n M a z da tr a ns f e r r e d ow ne r s hi p of

the c a rt o O w e ns w i thout evershow i ng her the ca r’ s ori gi nal t i t l e. O w e ns a l l e ge s tha tthe de a l e r s hi p us e d the T r a ns f e rF or m s , a nd notthe or i gi na l t i t l e , t o tr a ns f

e row ne r s hi p of

the c a r , be c a us e i ts oughtt o c onc e a l w ha tthe title w o u ld h a v e r e v e a le d — th a t th e c a rw a s p r e v io u s ly a s h o r t- te r m r e n ta l v e h ic le ow ne d by H e r t z . S he a l l e ge s tha ts he w oul d notha ve boughtthe c a ra t$25, 858. 00 had she kn ow n i thad b ee n a H er t z r ent al vehi cl e. I I . DI S CUS S I ON W e r evi ew a di stri ctcourt ’ s gra ntof a m ot i on t o d i sm i ss de no vo , t aki ng as true the fa ct s a s they a re al l eged i n t he com pl ai nt . S osa v. C hase M anhat t an M o r tg a g e C o rp ., 3 4 8 F .3 d 9 7 9 , 9 8 3 ( 1 1 th C ir . 2 0 0 3 ) . T he O dom e t e rA c ta l l ow s pr i va t e pa r t i e s t o r e c ove rm one y da m a ge s f r om tho se thatvi ol at e i t s provi si on s w i th t he i nt entt o d ef raud : “ A pers on thatvi ol at es th is c h a p te ro ra r e g u la tio n p r e s c r ib e d o ro r d e ris s u e d u n d e rth is c h ap te r , w ith in te n t to d e f

r a u d , is lia b le f

o r3 tim e s th e a c tu a l d a m a g e s o r$ 1 ,5 0 0 , w h ic h e v e ris grea t er . ” 49 U . S . C . § 3 27 10 (a ) ( 20 05 ). T here i s no d i sput e thatO w ens has prop er l y a l l eged vi ol at i on s of the O do m et erA ct . T he com pl ai ntal l eges that M a r l i n M a z da , w i th the i nt e ntt o de f r a ud O w e ns , vi ol a t e d a “ r e gul a t i on pr e s c r i be d. . . unde r ” the O dom e t e rA c t . S pe c i f i c a l l y , O w e ns a l l e ge d the vi ol a t i on of5

49 C . F . R . § 580. 5( c ) , w hi c h pr ovi de s tha t“ [ i ] n c onne c t i on w i th the tr a ns f e rof ow ne r s hi p of

a m ot orve hi c l e , e a c h tr a ns f e r ors ha l l di s c l os e the m i l e a ge t o the tra nsfe re e i n w ri t i ng on the t i t l e ... . ” ( em ph as i s a dd ed). T he A ctdefi nes “ t i t l e” as

“ the c e r t i f

i c a t e of t i t l e orothe rdoc um e nti s s ue d by the S t a t e i ndi c a t i ng ow ne r s hi p. ” 49 U . S . C . § 32702( 7) . T hus , the c om pl a i nta l l e ge d a l l of the nece ss ary e l em ent s r equi re d for a pri vat e c ause of ac t i on pu rs uantt o t hi s s t atut e: ( 1 ) th a t th e d e f

e n d a n t v io la te d th e A c t o rits r e g u la tio n s , ( 2 ) w ith in te n t to d e f r a u d . S am k l e arg u es th atal th o u g h i tm ay h av e act ed “ w i th i n t en tt o d efrau d ” M s. O w en s w h en i tco n ceal ed th e t i t l e fro m h er, th e co m p l ai n tst i l l fai l s t o st at e a cau se o f a ctio n b ec au se th e f

ra u d re fe re n ce d in th e s tatu te ca n o n ly re late to th e v eh icle’s m i l e a ge . H ow e ve r , t o a c c e ptthi s a r gum e ntw oul d vi ol a t e the f i r s tc a non of s t a tut or y c ons truc t i on, w hi c h r e qui r e s tha tc our t s gi ve e f f e c tt o the pl a i n a nd un am bi gu ou s l angu age of a s t atut e. “ A s i n a ny c a s e of s t a tut or y c ons truc t i on, our anal ys i s begi ns w i th t he ‘ l angu age of the st atut e. ’ A nd w here the st atut ory l a ngua ge pr ovi de s a c l e a ra ns w e r , i te nds the r e a s w e l l . ” H ughe s A i r c r a f tC o. v. J a c obs on, 525 U . S . 432, 438, ( 1999) ( quot i ng E s t a t e of C ow a r tv. N i c kl os D r i l l i ng C o. , 50 5 U S 46 9, 47 5, (199 2)). In ot her w ords, court s m ust“ pres um e that C ongr e s s s a i d w ha ti tm e a nta nd m e a ntw ha ti ts a i d. ” H a r r y v. M a r c ha nt , 291 F . 3d 7 6 7 , 7 7 0 ( 1 1 th C ir . 2 0 0 2 ) .Se ea lso , e .g ., Maxwe ll v . M oo re , 6 3 U .S. 18 5, 19 1 ( 18 59 ) ( “ [W]he retheL e g isl aturemake s a 3 plain p ro vis ion , w ith out ma kingany e xcepti on , th ec ourt s o f j us tic ec an ma keno ne , a s it

wo uld be leg islating to do so.”) . F or thi s re a so n, wedis a gre ewi th t hec ourt in Iof fev SkokieMo tor

Sale s, 41 4 F .3 d 7 08 (7 th 4 Cir. 2005) (“[A]n Odometer Ac t claim that is brought by a private par

ty and is based on a violation of § 580.5(c) require s proof that the vehicle’s tra nsferor intended to de fra

ud a transfereewith respec t to mil eag e.”) . We believe the Seventh Circuit failed to apply the statute’s plain languag e, which una mbiguously

require s that a transf

eror of a motor vehicle disclose the actual mileag e to the tra

nsferee on thetitle. No r do w ea gre ewi th Iof fe ’s c on str

uc tio n o f t

he“ int e nt to d e fra

ud”languag eof

§ 3 27 10 (a) a s a “shorthand de signation for spec ific ac ts or omissions which violate [the regulation] .” I d. (citing United States v. Int’l Minerals &Chem. Corp., 402 U.S. 558 (1971)). In Int’l Minerals, the 6 On i t s f a c e , th i s s t a tu t e ’ s m e a n i n g i s d i r e c t , c l e a ra n d u n a m b i g u o u s . No l a ngua ge l i m i t s the m e a ni ng of the c l a us e “ w i th i nt e ntt o de f r a ud. ” A bs e nta ny s u c h lim ita tio n , th e s ta tu te ’s m e a n in g is c le a r— if y o u v io la te th e O d o m e te rA c t, a nd y ou do s o w i th the i nt e ntt o de f r a ud y ourvi c t i m i n a ny r e s pe c tr e l a t i ng t o the O dom e t e rA c torthe r e gul a t i ons pa s s e d pur s ua ntt o i t , y ou a r e l i a bl e . T hus , the s t a tut e ’ s pl a i n l a ngua ge doe s nota dm i tt o the di s tr i c tc our t ’ s l i m i t i ng c ons truc t i on, w hi c h r e a ds w or ds i nt o the s t a tut e tha tdo note xi s t . U ni t e d S t a t e s v. F i s he r , 289 F . 3d 1329, 1338 ( 11th C i r . 2002) ( “ I f the s t a tut e ’ s m e a ni ng i s pl a i n a nd un am bi gu ou s, there i s no n ee d for further i nq ui ry . T he pl ai n l angu age i s pre sum ed t o e x p r e s s c o n g r e s s i o n a l i n t e n ta n d wi l l c o n tr o l a c o u r t ’ s i n t e rp r e t a t i o n . ” ) . To 3 a ugm e ntthe s t a tut or y l a ngua ge w i th a n a ddi t i ona l e l e m e nt , ne ve rm e nt i one d by C on gres s, thatthe fr aud m ustbe “ w i th res pectt o t he vehi cl e’ s m i l ea ge” vi ol at es th e c a r d in a l ru le o f

s ta tu to r y c o n s tru c tio n . 4Supreme Court held that, in order to preserve therule that ignoranc e of thelaw is no excuse, a

statute punishing the “knowing ” violation of the re gulation in question (covering de scription of transporte d hazardous material) must be construe d to apply not to knowledg e of theregulation but to knowledg e of f

acts whic h violated the statute or regulation. Under § 32710( a), how ever , “intent to defraud” doe s not fall within the same “na rrow zone”in which the “mens rea” issue was raised in Int’l Minerals. See id. At 560. In this case, “ intent to defra ud” is not an elemetn of the prohibited conduc t, but an independent requirement for a private c laim arisingout of the violation. See Norfolk Redeve lopment & Hous. Auth. v. Chesapeake &Potomac Tel. Co., 464 U.S. 30, 5 36 (1983) ( “As in all ca ses of statutory construction, our ta sk is to int erpret the words of the statute in light of the pur

poses Congress sought to serve.” ) (inter nal marks a

nd citations omitted). 7 W e d o n o te , h o w e v e r , th a t a p la in - la n g u a g e r e a d in g is a ls o c o n s is te n t w ith the ge ne r a l pr i nc i pl e tha tthe O dom e t e rA c ti s r e m e di a l l e gi s l a t i on tha ts houl d be

“ br oa dl y c ons true d t o e f f e c tua t e i t s purpos e , ” R y a n v. E dw a r ds , 592 F . 2d 756, 760 ( 4 th C ir . 1 9 7 9 ) ( c o n s tru in g th e p r e d e c e s s o rto § 3 2 7 1 0 ( a ) ) , a n d a p la in r e a d in g is noti nc ons i s t e ntw i th the A c t ’ s s t a t e d purpos e s . T i t l e 49, s e c t i on 32701 of the 5 U ni t ed S t at es C od e ( “ F i nd i ng s a nd pu rposes ”) i nd i ca t es thatthe O do m et erA ct , as i t s t i t l e s ugge s t s , i s a i m e d a tpr e ve nt i ng odom e t e rt a m pe r i ng a nd odom e t e rf r a ud: a) F i nd i ng s. C on gres s f i nd s that -- (1) buyer s of m ot or vehi cl es re l y hea vi l y on t he od om et er re adi ng as an i nd ex of the cond i t i on and v al ue of a vehi cl e; (2) buyer s a re ent i t l ed t o rel y on the o d o m et erre adi ng as an ac cura t e i nd i ca t i on of the m i l ea ge of the vehi cl e; ( 3 ) a n a c c u r a te i n d i c a t io n o f th e m ile a g e a s s is ts a b u y e rin de c i di ng on the s a f

e ty a nd r e l i a bi l i ty of

the ve hi c l e ; a nd ( 4) m ot orve hi c l e s m ove i n, o r affec t , i nt e r s t a t e a nd f or e i gn com m er ce . (b) P urpo se s. T he pu rposes of thi s c hapt erar e- - ( 1) t o pr ohi bi tt a m pe r i ng w i th m ot orve hi c l e odom e t e r s ; a nd8 ( 2) t o pr ovi de s a f

e gua r ds t o pr ot e c tpur c ha s e r s i n the s a l e of m o t o r v eh i cl es w i th al t ered o r reseto d o m et ers. 49 U . S . C . § 3 27 01 (200 0). C ons i s t e ntw i th the s e purpos e s a nd f i ndi ngs , C ongr e s s e s t a bl i s he d a re m edi al sc hem e thatno ton l y pun i shed vi ol at ors, bu tdet erre d w ou l d-be vi ol at ors thr ough a c om pl e x r e gul a t or y s y s t e m tha tm a de e ve n s ophi s t i c a t e d odom e t e rf r a ud di ff i cul tt o at t em ptun no t i ce d. T he re gu l at i on s i ncl ud e, as on e w ou l d exp ec t , a f l at proh i bi t i on on od om et ert am peri ng . 49 U . S . C . § 3 27 03 (200 0). H ow ever , C ongr e s s a l s o m a nda t e d s t a nda r di z e d di s c l os ur e r e qui r e m e nt s a nd r e c or d- ke e pi ng p r o c e d u r e s f

o r m u la te d to p r o v id e c o n s u m e r s w ith tr a n s p a r e n t in f o r m a tio n a b o u t a v e h ic le ’s b a c k g r o u n d , to e a s e in v e s tig a tio n a n d p r o s e c u tio n o f v io la to r s , a n d to pr e ve ntw oul d- be vi ol a t or s f r om t a ki ng a dva nt a ge of t i t l i ng a nd r e gi s tr a t i on l oophol e s t o pe rpe tr a t e odom e t e rf r a ud. S e e , e . g. , 49 U . S . C . § 32705 ( 2000) ( s e t t i ng f or th di s c l os ur e r e qui r e m e nt s f ortr a ns f e r r i ng ow ne r s hi p of

a m ot or ve hi c l e ) ; 49 C . F . R . § 580. 1 e ts e q. ( 2004) ( s pe c i f y i ng, a m ong othe rthi ngs , the c ont e ntof

odom e t e ri nf

or m a t i on di s c l os ur e s a nd r e c or d ke e pi ng pr oc e dur e s , a nd r e qui r i ng t i t l e s a nd pow e rof a t t or ne y f

or m s t o be pr i nt e d us i ng a s e c ur e pr i nt i ng pr oc e s s ) ; s e e a l s o 49 U . S . C . § 32706 ( 2000) ( c onf e r r i ng i nve s t i ga t or y a uthor i ty a nd th e p o w e rto r e q u ir e c a rd e a le r s o rd is tr ib u to r s to k e e p r e c o r d s o f m o to rv e h ic le sa l es avai l abl e f

or i nspect i on by the S ec re t ary of T ra nspo rt at i on ).9

I n p a r tic u la r , th e d is c lo s u r e a n d title r e g u la tio n s th a t S a m k le a lle g e d ly vi ol at ed ai m i n p ar tt o t hw ar t“ t i t l e l aund er i ng , ” aprac t i ce un sc rupu l ou s s el l er s em pl oy t o fal si fy the m i l ea ge l i st ed on a c ar ’ s t i t l e t o con form w i th an al t er ed odom e t e rr e a di ng: T itle la u n d e r in g i s a s c h e m e c o m m o n ly u s e d b y d e a le r s in v o lv e d in odom e t e rf

r a ud. T he m a i n purp o se of t i t l e l a unde r i ng i s t o ge ta l ow m i l ea ge t i t l e f

rom a S t at e m oto r v eh icle t i t l i ng offi ce i n exchang e f or a h ig h m ile a g e title . T h e m o s t b a s ic f o r m o f title la u n d e r in g i s t o s i m p ly a l t e r t he h i g h o d o me t e rr e a d i n g o n th e t i t l e t o a l o w o d o me t e rr e a d i ng and app l y f

or and rece i ve a t i t l e c on t ai ni ng the l ow erre adi ng . A m ore s o p h is t i c a t e d s c h e m e in v o lv e s s e n d in g th e h ig h m ile a g e title to a S ta te notr e qui r i ng odom e t e rr e a di ngs on t i t l e doc um e nt s a nd o b t ai n i n g a ne w t i t l e w hi c h doe s notc ont a i n a n odom e t e rr e a di ng. O dom e t e rD i s c l os ur e R e qui r e m e nt s , 52 F e d. R e g. 27022, 27023 ( pr opos e d J ul y 17, 1 9 8 7 ) ( la te rc o d if

ie d w ith m o d if

ic a tio n s a t 4 9 C .F .R . § 5 8 0 .1 e t s e q . ( 2 0 0 4 ) ) . R equi ri ng m i l ea ge di sc l osures t o b e m ade on a sec urel y pri nt ed t i t l e proved c r i t i c a l t o f

i ght i ng t i t l e l a unde r i ng. P r i ort o the 1988 r e vi s i ons e s t a bl i s hi ng the pr e s e nt - da y r e gul a t i ons , s e e O dom e t e rD i s c l os ur e R e qui r e m e nt s , 53 F e d. R e g. 29 46 4 (A ug . 5, 19 88 ) ( codi fi ed at49 C . F . R . § 5 80 . 1 etse q. (200 4)), fe dera l l aw re qu i re d m i l ea ge di sc l osure onl y on a “ fe dera l od om et erst at em ent . ” O do m et er D i s c l os ur e R e qui r e m e nt s , 52 F e d. R e g. a t27023. A pi e c e of pa pe rs e pa r a t e f

r om the t i t l e , the odom e t e rs t a t e m e ntc oul d be e a s i l y a l t e r e d ordi s c a r de d a nd di d not tra vel w i th t he t i t l e. Id. C on se qu ent l y, i tdi d n otw arn sub se qu entpu rc hase rs10

a b o u t th e v e h ic le ’s m ile a g e a n d o w n e r s h ip h is to r y , a n d d id little to c u rb title la u n d e r in g . I d . a t 2 7 0 2 2 - 2 3 . O n th e o th e rh a n d , w h e n th e title its e lf m u s t c o n ta in th e m ile a g e d is c lo s u r e a n d b e s h o w n to th e b u y e r , a s e lle rw ill f in d it d if f ic u lt to c onc e a l the ve hi c l e ’ s hi s t or y a nd true m i l e a ge . I d. A l s o, t o r e qui r e the m i l e a ge di sc l osure di re ct l y on t he t i t l e e st abl i shes a “ paper tra i l ” f or consum er s a nd l aw e nf or c e m e ntt o de t e rpot e nt i a l vi ol a t or s a nd he l p appr e he nd s e l l e r s tha tbr e a k the l a w . I d. S i m i l a r l y , the rul e tha tr e qui r e s s e l l e r s t o pr i ntt i t l e s a nd pow e rof a t t o r n e y f

o r ms u s i n g a s e c u r e p r o c e s s , a n d s t a t e s t o i s s u e p o w e ro f a t t o r n e y f

o r ms by the st at e, se e 49 C . F . R . § 5 80 . 4 (20 04 ), m akes al t er at i on or forgeryof t i t l es m o r e d if f ic u lt a n d c r e a te s a n o f

f ic ia l p ap e rr e c o r d tr a c in g th e v e h ic le ’s o w n e r s h ip . In o th er w o rd s, th e reg u l at i o n s ati ssu e i n th i s case are the “safegu ard s” desi gn ed “ t o p rot ec tpu rc hase rs i n t he sa l e of m ot or vehi cl es w i th al t er ed or re se t o d o m e te r s ” th a t a r e c o n te m p la te d b y th e A c t’s p u rp o s e s . S e e 4 9 U .S .C . § 3 2 7 0 1 ( b ) ( 2 ) ( 2 0 0 0 ) . T h e y p r e v e n tu n s c ru p u l o u s d e a l e r s f r o m u s i n g th e i ro wn p r o c e d u r e s to m is le a d a p u r c h a s e ra b o u t a v e h ic le ’s m ile a g e — n o t o n ly w ith re spec tt o t he ac tual nu m ber of m i l es dri ven, bu tw here tho se m i l es w er e dri ven a n d b y w h o m . S e e 4 9 C .F .R . § 5 8 0 .2 ( 2 0 0 4 ) ( “T h e p u rp o s e o f th is p a r t is to p r o v id e p u r c h a s e r s o f

m o to rv e h ic le s w ith o d o m e te rin f o r m a tio n to a s s is t th e m in d e te r m in in g a v e h ic le ’s c o n d itio n a n d v a lu e . . . .” ) ; Y a z z ie v . A m ig o C h e v r o le t,Indeed, a “significant pa

rt” of odome ter fraud involves rental vehicles like theone Owens 6 a lle g e dly purcha se d. H. R. Rep. No . 9 9- 83 3, at 18 (1 98 6) (“ [Th eNatio nal H ighw ay Tra ff ic Safety Administration] said a ‘significant pa rt of [odometer] fraud involves vehicles which ha ve been use d by

leasecompanies or

in business fleets.’” ).

11 I nc . , 189 F . S upp. 2d 1245, 1248- 49 ( D . N . M . 2001) ( hol di ng tha ta l l e ga t i ons of s p e c if ic in te n t to d e f

r a u d w ith r e s p e c t to th e v e h ic le ’s m ile a g e a r e n o t r e q u ir e d to br i ng s ui tunde r§ 32710( a ) w he n a de a l e rm a ni pul a t e d t i t l e pr oc e dur e s i n vi ol a t i on of the O dom e t e rA c tt o hi de the i de nt i ty of the ve hi c l e ’ s pr i orow ne r ) . T he 6 i dent i ty of f

orm erow ners , of cr i t i ca l i m po rtt o t he consum er , i s a l so cr i t i ca l t o l aw e nf or c e m e nt , w ho r e l y on the c ha i n of t i t l e t o a s c e r t a i n the true ow ne r s hi p a nd m i l ea ge of a vehi cl e. S ee O do m et erD i sc l osure R equi re m ent s, 53 F ed. R eg. at 29468- 69 ( “ C ongr e s s not e d tha t‘ [ o] ne of the m a j orba r r i e r s t o de c r e a s i ng odom e t e rf

r a ud i s the l a c k of

e vi de nc e or“ pape rtr a i l ” s how i ng i nc i de nc e of rol l backs[ . ] ’ ... U nd er[the t i t l e di sc l osure r equi re m ent s] , the i nt egri ty of the paper tra i l has bee n m ai nt ai ned si nce the di sc l osure w i l l be on the t i t l e a nd consum er s w i l l be a bl e t o s e e the di s c l os ur e s a nd e xa m i ne the t i t l e s f ora l t e r a t i ons , e r a s ur e s , or ot her m arks. F urtherm ore, consum er s w i l l l ea rn the nam es of previ ou s ow ners that appear on the t i t l e. ”) (quo t i ng H . R . R ep. N o. 99 -833 , at18 (198 6) (c om m i t t ee r e por tf orthe T ruth i n M i l e a ge A c tof 1986, P ub. L . N o. 99- 579, 100 S t a t . 3309 ( 1 9 8 6 ) , w h ic h m o d if

ie d th e o r ig in a l f

e d e r a l o d o m e te rla w s in th e M o to rV e h ic le I n f o r m a tio n a n d C o s t S a v in g s A c t o f 1 9 7 2 , P u b . L . N o . 9 2 - 5 1 3 , § § 4 0 1 - 1 3 , 8 6 S ta t.Ac c ording ly, th eSe c retary of Trans po rt atio n re

je c te d s ug g e sti on s th at a

de a ler b ea llo we d to 7 substitut e a “ special power of attorney” for

m on securepaper

for the title in all ca ses. Odometer Disclosure Requirements, 53 F ed. Reg . at 29468-69. This proc edure , the Secretar y stated, “would not allow tra

nsferees to seethe ac tual title document, including thedisclosures, and c ould e a sily

bedis c arde d. A f

org e d s ub sti tut ec ould t

hen b esu bmi tte d tothetitlin gof

fi c e ”in order to retitle the ca

r with the false odometer reading . I d. at 29469. 12 94 7, 96 1-63 )) . 7 T hu s, the succ es s of the com pl ex re m edi al sc hem e C on gres s has cr ea t ed d e p e n d s o n c o m p lia n c e w ith a m u ltitu d e o f in te r d e p e n d e n t a n d s e e m in g ly

“ t e c hni c a l ” pr ovi s i ons , s uc h a s thos e S a m kl e a l l e ge dl y vi ol a t e d. V i ol a t i ons of these “ t ec hn i ca l ” r egul at i on s c an defea tthe ent i re re m edi al sc hem e — even i f they a r e notc om m i t t e d w i th the i nt e ntt o de f r a ud w i th r e s pe c tt o the ve hi c l e ’ s m i l e a ge

— by c r e a t i ng ga ps i n the ve hi c l e ’ s “ pape rtr a i l ” tha t : ( 1) thw a r ti nve s t i ga t i on of f utur e vi ol a t i ons ; a nd ( 2) m a ke i tdi f f i c ul tf orf utur e pur c ha s e r s of

a ve hi c l e t o s pot o d o m eter fr au d b y p re v en ti n g th em fr o m ac cu ra tely as se ss in g th e v eh icle’s o w n ersh i p h i st o ry. M o reo v er, th e l an g u ag e o f § 3 2 7 1 0 (a) reflect s C o n g ressi o n al i n t en tt o u se ci v i l su i t s b y p ri v at e i n d i v i d u al s t o en fo rce co m p l i an ce w i th ev en th e m o st “te c h n ic a l” p r o v is io n s o f th e O d o m e te rA c t. T o b e s u r e , v io la to r s a r e s u b je c t to b o th c iv il a n d c r im in a l p e n a ltie s f o r“te c h n ic a l” v io la tio n s e v e n if th e y c o m m it the m w i thouti nt e ntt o de f r aud, s e e 49 U . S . C . § 32709( a ) - ( b) , a s w e l l a s t o s ui t s f or i nj un ct i ve re l i ef

by the U ni t ed S t at es and t he fi fty S t at es . Id. §§ 32 70 9(c) ,13

( d) ( 1) ( A ) . B ut , a s the f

or m e rF i f

th C i r c ui tr e c ogni z e d, “ unl e s s a vi ol a t i on of the [ O dom e t e r ] A c tc a n l e a d t o [ pr i va t e ] c i vi l l i a bi l i ty , the A c ti s t oothl e s s . ” N i e t o v. P e nc e , 578 F . 2d 640, 643 ( 5th C i r . 1978) ; s e e a l s o H . R . R e p. N o. 99- 833, a t18 ( 1986) ( j us t i f y i ng m a ki ng odom e t e rf r a ud a f e l ony be c a us e “ [ t ] he D e pa r tm e ntof T ra nspo rt at i on (D O T ) bel i eves thatevi dence i nd i ca t es thatcurr entcr i m i nal p e n a l t i e s f

o ro d o me t e rt a mp e r i n g a r e n o ta s u f f i c i e n td e t e r r e n t . Ac c o r d i n g t o DO T, m any prose cut ors a re re l uct antt o p rose cut e m i sdem ea no r off ense s a nd pl ac e very l ow pr i or i ty on odom e t e rc a s e s be c a us e the y a r e m i s de m e a nor s . ” ) . A l though a vi ol a t orf a c e s pot e nt i a l puni s hm e ntf r om the gove r nm e nt , “ s uc h r e l i e f , a l though theoret i ca l l y a vai l abl e, i s unl i kel y. P ri vat e prose cut i on i s nee ded t o m ake the A ct e f f e c tiv e .” N ie to , 5 7 8 F .2 d a t 6 4 3 . A c c o r d in g ly , C o n g r e s s p r o v id e d a p r iv a te c iv il re m edy t o p un i sh vi ol at ors of the O do m et erA ct , so thati tw ou l d b e “ l ar gel y s el fe nf or c i ng. ” H . R . R e p. N o. 92- 1033, a t20 ( 1972) ( c om m i t t e e r e por tf orthe M ot or V ehi cl e I nform at i on and C ostS avi ng s A ctof 19 72 , prec ursor t o t he pres ent -day O d o m e te rA c t) . T here fore , t o l i m i tpri vat e c i vi l sui t s und er§ 3 27 10 (a ) onl y t o i nst ance s w h er e th e d ef

en d an t i n ten d ed to d ef

ra u d th e v icti m w ith re sp ec t t o th e v eh icle’s m ile a g e ru n s c o u n te rto th e p u rp o s e s o f th e p r iv a te c iv il r e m e d y — to c o m p e n s a te v icti m s f o r h ar m su ff

er ed , an d to en su re strict co m p li an ce w ith th e O d o m eter A ct’s14

pr ovi s i ons . B oth purpos e s a r e a l s o r e f l e c t e d i n the t e xtof

§ 32710( a ) . T he vi ol a t or m u s t m a k e th e v ic tim w h o le , b u t a ls o m u s t p a y a n a d d itio n a l p r ic e — e ith e rd o u b le th e a c tu a l d a ma g e s o ru p t o $ 1 , 5 0 0 — a s a p e n a l ty f o rv i o l a t i n g th e A c t . 4 9 U . S. C. § 3 2 7 1 0 (a ) ( 2 0 0 0 ). It w o u ld th er ef o re b e in im ical to th e p riv ate c iv il re m ed y’s f u n c tio n a s th e A c t’s p r im a r y e n f o r c e m e n t m e c h a n is m to lim it its r e a c h to i ns t a nc e s w he r e the de f e nda nti nt e nde d t o de f

r a ud hi s vi c t i m “ w i th r e s pe c tt o the v e h ic le ’s m ile a g e .” S u c h a r e a d in g n e ith e rc o m p o r ts w ith th e s ta tu te ’s p la in l angu age, no r a cc ords w i th i t s r em edi al pu rpose. C ons e que nt l y , the di s tr i c tc our te r r e d w he n i tr e qui r e d O w e ns t o “ a l l e ge a nd prov e i nt entt o d ef

raud w i th res pectt o a vehi cl e’ s m i l ea ge. ” O w ens has al l eged v io la tio n s o f

th e O d o m e te rA c t c o m m itte d w ith th e in te n t to d e f r a u d , a n d th a t is enou gh t o st at e acl ai m un der § 32 71 0(a) . R EVER SED a nd R EM A N D ED .