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Ricky Morneau v. State of Connecticut et al.
MEMORANDUM OF DECISION ON MOTION FOR SUMMARY JUDGMENT (# 159)
The plaintiff Ricky Morneau brought this action for damages against the State of Connecticut, the State Marshal Commission, and Albiene Gagnon,1 a Connecticut State Marshal. The state defendants moved to dismiss on the basis of sovereign immunity and this court granted that motion on November 23, 2009, leaving Gagnon as the sole defendant. Thereafter the plaintiff cited in the defendant Timothy Bennett, another Connecticut State Marshal.
The plaintiff alleges that the two defendants, in league with other Connecticut State Marshals, have sought payment for services that they did not render, have charged sums in excess of the statutory rates for certain services, have charged for unnecessary services, and have attempted to hide their actions in both a fiscal and a legal sense.
The plaintiff now moves for summary judgment, asserting that there is no dispute about the facts, such that he is entitled to judgment as a matter of law. He has submitted a memorandum of law, three affidavits of which he is the author, and numerous copies of documents in support of his motion. The defendants oppose summary judgment on certain procedural grounds and also on substantive grounds, i.e., that the plaintiff's submissions do not warrant summary judgment.
The court has read through hundreds of pages of documents, consisting of the complaint, the motion for summary judgment and supporting papers, the opposing briefs and reply briefs. The court heard the parties at oral argument twice, the last date on December 6, 2010, and received a joint supplemental submission of the parties on January 3, 2011, at which time the court considered the motion submitted for decision.
Because the plaintiff has not shown that there are undisputed facts that compel judgment in his favor as a matter of law, the motion for summary judgment cannot be granted.
THE PLAINTIFF'S COMPLAINT
The operative complaint in this case is the Amended Complaint dated September 9, 2010, which is Docket Entry # 158 in the court file, erroneously titled Motion for Order. The parties agreed at the oral argument on December 6, 2010, that this is the operative complaint. The complaint consists of thirty-three counts against the defendants, as follows:
1. First Count vs. Gagnon—Fraud—The plaintiff alleges that in October 2008, defendant Gagnon charged the plaintiff a fee of $1,329.20 for service of process on plaintiff's behalf in a federal case. Gagnon mailed the plaintiff sixteen returns of service, evidently indicating that Gagnon had served sixteen defendants. The plaintiff alleges that although Gagnon represented that he would charge fees that were customary, Gagnon charged illegal fees. The plaintiff alleges that this constitutes fraud, and that the plaintiff has suffered emotional distress, depression, loss of income, loss of consortium, and other damages.
2. Second Count vs. Gagnon—Fraudulent Intent—The plaintiff alleges that Gagnon operated with a fraudulent intent in charging the unlawful fees, causing damage to the plaintiff.
3. Third Count vs. Gagnon—Fraudulent Non–Disclosure—The plaintiff alleges that Gagnon had a duty to tell the plaintiff that service of process against some or all of the sixteen defendants could be accomplished by mail rather than by personal service; that the marshal could limit the number of endorsements from sixteen to six and thus reduce his charges; and that Gagnon would be charging copying costs for 49 pages rather than for 42 pages which was the actual length of the complaint. The plaintiff alleges that this fraudulent non-disclosure constitutes willful, wanton, and reckless conduct, causing damage to the plaintiff.
4. Fourth Count vs. Gagnon—Negligence—In charging unlawful fees for work not actually performed, not actually necessary, or in excess of that which was customary, Gagnon engaged in negligent conduct that was also willful, wanton, and reckless, causing damage to the plaintiff.
5. Fifth Count vs. Gagnon—Violation of Connecticut Unfair Trade Practices Act (CUTPA)—In charging unlawful fees for work not actually performed, not actually necessary, or in excess of that which was customary, Gagnon engaged in negligent conduct that violated CUTPA and that was also willful, wanton, and reckless, causing actual damage to the plaintiff.
6. Sixth Count vs. Gagnon—Unjust Enrichment—In charging unlawful fees for work not actually performed, not actually necessary, or in excess of that which was customary, Gagnon was unjustly enriched at the expense of the plaintiff.
7. Seventh Count vs. Gagnon—Unjust Enrichment—In negligently misrepresenting the fees that he could lawfully charge, Gagnon was unjustly enriched at the expense of the plaintiff.
8. Eighth Count vs. Gagnon—Negligent Certification of Fees—In signing a certification as to the amount of fees, Gagnon engaged in negligent conduct, causing damage to the plaintiff.
9. Ninth Count vs. Gagnon—Non–Disclosure for Unjust Enrichment—By failing to disclose the unlawful methods by which he intended to calculate his fees, Gagnon was unjustly enriched at the expense of the plaintiff.
10. Tenth Count vs. Gagnon—Unjust Enrichment/Justifiable Reliance—By failing to charge lawful fees upon which the plaintiff could rely in accordance with Conn. Gen.Stat. § 52–261, Gagnon was unjustly enriched at the expense of the plaintiff.
11. Eleventh Count vs. Gagnon—Violation of 42 U.S.C. § 1983—Gagnon's actions were undertaken under color of state law and were thus a violation of 42 U.S.C. § 1983, for which the plaintiff seeks damages.
12. Twelfth Count vs. Gagnon—Violation of the Hobbs Act—Gagnon's conduct amounted to an extortion of fees, and a failure to render honest services, in violation of a portion of the Hobbs Act.2
13. Thirteenth Count vs. Gagnon—Use of the U.S. Postal Service to Send False Invoices—Because the charges for the service of process on the sixteen defendants were impossible to configure with the statutory requirements for fees under Conn. Gen.Stat. § 52–261, Gagnon made a false statement as defined by Conn. Gen.Stat. § 53a–157b in order to collect a debt and transmitted it through the U.S. mail, for which the plaintiff seeks damages.
14. Fourteenth Count vs. Gagnon—Use of U.S. Postal Service to Collect an Illegal Debt as Part of an Organization—Because the plaintiff was a member of the Connecticut State Marshals, and because other marshals also attempted to collect illegal fees from the plaintiff using the mails, the defendant's conduct was part of a pattern of illegal billing by members of the organization, for which the plaintiff seeks damages.
15. Fifteenth Count vs. Gagnon—Intent to Obstruct Service of the Federal Complaint—The plaintiff alleges that Gagnon intended to obstruct the service of process in the federal lawsuit by excessive fee demands and erroneous service, which resulted in direct interference with the administration of justice, for which the plaintiff seeks damages.
16. Sixteenth Count vs. Gagnon—Violation of 42 U.S.C. § 1983—(This count is so disorganized that the court is unable to characterize it as any different from previous counts.)
17. Seventeenth Count vs. Gagnon—Violation of RICO—The plaintiff alleges that Gagnon committed mail fraud, which is prohibited by the federal RICO act.3
18. Eighteenth Count vs. Gagnon—Obstruction of Justice by Member of an Organization—The plaintiff alleges that Gagnon used his authority as a member of the Connecticut State Marshals to obstruct justice as part of a multi-million dollar scheme to defraud through the use of illegal billing, in violation of RICO and the Hobbs, causing damage to the plaintiff.
19. Nineteenth Count vs. Bennett—Unjust Enrichment—In November 2006, the defendant Bennett was retained by the plaintiff's mortgage lender to serve foreclosure papers on the plaintiff in a state court action for foreclosure of the mortgage. Among the fees charged by Bennett were $323.52 for the recording of a Lis Pendens on the land records in the Town of Portland, for which, the plaintiff alleges, there was no statutory basis. Also Bennett charged separately for mileage for service of process on the plaintiff when the plaintiff's residence was only one mile from the office of the Portland Town Clerk where the (unnecessary) Lis Pendens was recorded, which amounted to double billing for mileage charges.
In August 2007, Bennett charged $347.67 for service of a second foreclosure action on the plaintiff, with charges for recording another Lis Pendens and a second set of mileage charges as in the first foreclosure action. These charges unjustly enriched Bennett.
20. Twentieth Count vs. Bennett—Unjust Enrichment by False Representation—Bennett falsely represented to the mortgage lender by whom Bennett was retained that Bennett was charging lawful fees that were customary and reasonable, when the fees were unlawful, so that Bennett was unjustly enriched at the expense of the plaintiff.
21. Twenty-first Count vs. Bennett—Unjust Enrichment by False Statement—Bennett had no set method by which he calculated his fees, but signed a certification, which was false, that his fee calculations were lawful, reasonable and customary, so that Bennett was unjustly enriched at the expense of the plaintiff.
22. Twenty-second Count vs. Bennett—Fraud in the Service of Process—In the service of process in the 2006 and 2007 foreclosure actions, Bennett made a fraudulent statement to the plaintiff's mortgage lender by overstating or charging unnecessary fees in connection with the service of process and recording of Lis Pendens in the two actions, causing damage to the plaintiff.
23. Twenty-third Count vs. Bennett—Fraudulent Non–Disclosure—Bennett's returns of service in the two foreclosure actions in 2006 and 2007 were “affected by deceitful statements of half-truths or the concealment of a material fact, by non-disclosure,” which conduct was willful, wanton, and reckless, causing damage to the plaintiff.
24. Twenty-fourth Count vs. Bennett—Violation of CUTPA—Bennett charged the plaintiff's mortgage lender for work that Bennett did not actually perform and which was not authorized by statute, causing actual damage to the plaintiff.
25. Twenty-fifth Count vs. Bennett—Unfair Trade Practices as a Member of an Organization—Bennett's conduct, undertaken as a member of the Connecticut State Marshals, violated the Hobbs Act, in that Bennett used the U.S. mail in violation of 18 U.S.C. § 1341 to attempt to extort a fee from the plaintiff's mortgage lender.
26. Twenty-sixth Count vs. Bennett—Unjust Enrichment by Justifiable Reliance—The plaintiff alleges that he was entitled to justifiably rely on Bennett performing service for the plaintiff's mortgage lender according to law, rather than for a pecuniary gain not authorized by statute, and in violation of the Hobbs Act, so that Bennett was unjustly enriched at the expense of the plaintiff.
27. Twenty-seventh Count vs. Bennett—Use of the U.S. Postal Service to Send False Service of Process Fees—Bennett used the U.S. mail to send bills for service of process that were impossible to configure with statutory fees, violating Conn. Gen.Stat. § 53–395(c), and that were part of a scheme to violate 42 U.S.C. § 1983, causing damage to the plaintiff.
28. Twenty-eighth Count vs. Bennett—Use of the U.S. Postal Service to Send False Service of Process Fees as a Member of an Organization—Bennett and other marshals used the U.S. mail to seek to collect an unlawful debt through fraud as a member of an organization, in violation of 18 U.S.C. § 1341, causing damage to the plaintiff.
29. Twenty-ninth Count vs. Bennett—Violation of RICO as a Member of an Organization—Bennett and other marshals sent bills to the mortgage lender and collected unlawful fees as part of a pattern of illegal billing in violation of RICO, causing damage to the plaintiff.
30. Thirtieth Count vs. Bennett—Violation of RICO Individually—Bennett sent bills to and collected fees from the mortgage lender in violation of RICO, causing damage to the plaintiff.
31. Thirty-first Count vs. Bennett—Violation of the Hobbs Act—By failing to render honest service in the billings for the 2006 and 2007 foreclosures, Bennett extorted funds in violation of the Hobbs Act, causing damage to the plaintiff.
32. Thirty-second Count vs. Bennett—Obstruction of Justice as a Member of an Organization—The plaintiff alleges that Bennett used his authority as a member of the Connecticut State Marshals to obstruct justice as part of a multi-million dollar scheme to defraud through the use of illegal billing in violation of RICO and the Hobbs Act, causing damage to the plaintiff.
33. Thirty-third Count vs. Gagnon and Bennett—The plaintiff alleges that the tortious acts of the defendants are covered by policies of insurance that would permit the plaintiff to be compensated from these insurance policies for the reckless, willful and wanton acts of the two defendants.
THE STANDARDS FOR SUMMARY JUDGMENT
In deciding a motion for summary judgment, the trial court must view the evidence in the light most favorable to the nonmoving party. Appleton v. Board of Education, 254 Conn. 205, 209, 757 A.2d 1059 (2000). The party seeking summary judgment has the burden of showing the absence of any genuine issue of material fact, such that the party is entitled, under principles of substantive law, to a judgment as a matter of law. Id.
In ruling on a motion for summary judgment, the court's function is not to decide the issues of material fact, but rather to determine whether any such issues exist. Nolan v. Borkowski, 206 Conn. 495, 500, 538 A.2d 1031 (1988). Summary judgment is appropriate only if a fair and reasonable person could conclude only one way, based on the substantive law and the undisputed material facts. Miller v. United Technologies Corp., 233 Conn. 732, 751, 660 A.2d 810 (1995).
In supporting or opposing summary judgment, Conn. P.B. § 17–45 requires the parties to file affidavits and other documentary evidence sufficient to establish or refute the existence of a disputed issue of fact. Unadmitted allegations in the pleadings are not considered competent evidence and do not constitute proof of a material fact. New Milford Savings Bank v. Roina, 38 Conn.App. 240, 245, 659 A.2d 1226, cert. denied, 235 Conn. 915, 665 A.2d 609 (1995). Rather, in moving for or opposing summary judgment, a party must submit documentation that would form the basis for evidence admissible at trial. Great Country Bank v. Pastore, 241 Conn. 423, 436, 696 A.2d 1254 (1997). See also Conn. P.B. § 17–46.
THE PAPERS SUPPORTING AND OPPOSING SUMMARY JUDGMENT
As evidence of the unlawful fees charged by Gagnon and Bennett, the plaintiff has submitted copies of the returns of service and the summonses and complaints in the lawsuits to which those returns were appended. He has submitted dozens of administrative complaints made to the State Marshals Commission about other marshals. He has submitted three affidavits of which he is the author that, in the main, contain his conclusions that the fees charged by Gagnon and Bennett were unlawful in the three cases for which he claims he paid their fees.4
Because it is necessary that documents submitted in support of summary judgment be those that would be admissible at trial, the court, at oral argument, inquired of Mr. Morneau and of counsel for the defendants about the lack of any official certifications or affidavits as to the authenticity of most of the documents. Both sides indicated that they would stipulate that the documents were authentic, but even so, that does not solve the admissibility problem. Documents that are admissible as a business record or as an official record may still contain hearsay statements. And even if otherwise admissible the document may not clearly explain the issue for which it is proposed as evidence.
That creates a very large problem for the plaintiff in urging the court to grant summary judgment. The marshals' returns submitted by the plaintiff show what each marshal charged, but they do not fully show what each marshal did, what each marshal was directed to do by the individual who retained the marshal, and what the normal and customary practice was with respect to the kind of service involved or the normal fees that would be charged. The documents related to the three lawsuits about which the plaintiff complains (the federal case for which he retained Marshal Gagnon to serve papers, and the two foreclosure cases in which Reiner, Reiner & Bendett retained Marshal Bennett to serve papers) supply some evidence of the plaintiff's allegations, but do not remotely supply the remaining undisputed facts upon which summary judgment could be granted.
As for the plaintiff's affidavits, they contain conclusions that he asks the court to draw about the illegality of the defendants' conduct, but they are devoid of sufficient underlying facts for the court to draw an inference of unlawfulness.
The papers submitted by the defendant are not models of clarity either. In addition to copies of the returns in the three lawsuits, the defendants have each submitted a personal affidavit. That of Marshal Gagnon asserts that his fees for service of the federal complaint were reasonable and customary, that his fees for additional copying were because of additional documents given to him by the clerk of the federal district court which must be appended to lawsuit papers in federal civil actions, and that his fees for additional travel were because he had to make added trips to effect service on one or more of the defendants in that case.
The affidavit of Marshal Bennett asserts that the fees he charged the mortgagee in the two foreclosure actions were the customary fees for service of process in foreclosure actions. He further asserts that in both foreclosure actions the fees were approved by the court, a fact which if true would seem to create a collateral estoppel problem for the plaintiff. But the Bennett affidavit is not signed nor sworn to by Bennett so its evidentiary value is even less useful than the plaintiff's documents.
Even assuming that all of the documents are genuine, and even making the additional assumption that all the documents are admissible, as explained hereafter this record does not supply the necessary factual underpinning of support for the plaintiff's most basic allegations of wrongdoing by the defendants, much less establish such wrongdoing as undisputed for purposes of summary judgment.
THE PLAINTIFF'S MOTION FOR SUMMARY JUDGMENT
The Claims against Bennett 5
The plaintiff's affidavit states that Bennett “failed to charge reasonable and customary fees” for service for process in the two foreclosure actions commenced against Morneau by Reiner, Reiner & Bendett on behalf of Chase Home Finance. There is nothing to indicate what fee was otherwise lawfully authorized and what direction the marshal was given by the law firm who retained him.
For example, although the plaintiff complains that Bennett should not have bothered to record and serve a lis pendens in the two cases, it appears that Bennett was directed to do so by the law firm for whom he was working, since the lis pendens appears to have been drafted by the law firm and was signed by one of the attorneys in the firm. It seems more likely that the marshal was directed by the attorneys for whom he was working to record and serve the lis pendens. Under those circumstances, it would have been quite inappropriate for Bennett to determine, on his own, to serve the rest of the papers but to omit the recording and service of the lis pendens papers.
Also the plaintiff complains about the fees that Bennett charged for service of process, particularly for mileage, with the argument that the plaintiff lived near the town hall and could have been susceptible to service with a mileage charge of only one additional mile if the marshal had arranged his day more efficiently. That may be true, but it may not be true. First, the plaintiff asserts this to be the case, but has not submitted any evidence about the location of his home or the town hall or their proximity to one another. His unsworn statements in his complaint, motion, and brief provide no assistance to the court as to these issues. But even were that question—how many trips did Bennett actually make—the subject of a stipulation, there is simply no evidence of what Bennett was directed to do by the attorneys. He may have had dozens of papers to serve in a given day or week and it may have been more efficient to accomplish his overall tasks for that firm or for other firms for whom he worked in a way that did not work a cost savings for Morneau's case in particular.
There is no evidence that the law firm who retained Bennett felt it was overcharged, and it was they, not the plaintiff, who were obligated to pay Bennett for his service. Important in this regard is the apparent fact that the plaintiff never paid Bennett's bill directly, no matter how outrageous or inflated the bill. Taking the foreclosure paperwork at face value, the documents concerning the two lawsuits show that the marshal's fee was one that was incurred by the law firm of Reiner, Reiner & Bendett, and was among the charges that the law firm insisted be reimbursed to them to permit the reinstatement of the plaintiff's mortgage and the withdrawal of the two foreclosure actions. If it turns out that such charges were in fact approved by the court during the progress of the foreclosure cases, a fact which might be susceptible of proof at a later stage of this case, it may be that the law of collateral estoppel prevents this plaintiff from challenging the reasonableness of those fees if he chose not to do so when he had a chance during the foreclosure cases.
Although the plaintiff asserts that he was cheated by the way Bennett constructed his bill for service, the evidence is that the plaintiff did not pay the bill. Rather the inference is that the law firm that paid the bill and that in doing so they had no complaints about the legality of the marshal's charges. The court cannot grant summary judgment to the plaintiff on account of charges passed along to him, that he did not pay directly.
The Claims against Gagnon
The documents and the plaintiff's affidavits related to Gagnon's service of the federal lawsuit do not fully explain how any fees charged for the service of that complaint were unlawful. There is no way to tell how far Gagnon traveled, how many attempts at service he actually made, what if any direction he was given by the plaintiff as to how many copies to serve and in what manner, and what federal law required about service of process for such a lawsuit.
The plaintiff asserts, for example, that service of process could have been accomplished as to some of the defendants in that case by means other than personal service. There is no reference to this is the plaintiff's affidavits. Even if there were, this would seem to involve a question under the Federal Rules of Civil Procedure, and not under Connecticut state statutes or Connecticut Practice Book rules. Nor can the court infer that it is the standard for Connecticut State Marshals to be familiar with service of process in federal cases, or that state marshals, as opposed to federal marshals, are even authorized to serve process in such a case. The court is vaguely aware from past practice that most federal lawsuits do not, in the first instance, require service by either such official. Also it was once true that the federal court supplied a set of summons forms that were required to be served in addition to the plaintiff's complaint.6 But evidently this plaintiff asked Marshal Gagnon to effect service of process and what was said between the two of them—what Morneau asked the marshal to do or what the marshal stated that he could or would do and for what fee—is not in this record.
The plaintiff goes on to append to his supporting papers many documents filled with hearsay statements concerning the alleged misdeeds of other state marshals. Many of these documents are citizen complaints presented to the State Marshal Commission. Some of those complaints were dismissed by the Commission or resulted in a finding that no discipline should be imposed. Read in the light most favorable to the plaintiff,7 the documents do not support a conspiracy among members of the Connecticut State Marshals to overcharge for copies, endorsements, or travel, as none of the complaints appear to involve any complaints similar to those of this plaintiff.
The Claims as to the Law Applicable to Both Bennett and Gagnon
The plaintiff states in his affidavits that Bennett and Gagnon charged more than they were entitled to charge for fees associated with service of process, and for copies, endorsements, and travel, according to the applicable statutes or rules or according to what is customary and reasonable. As to the former, the plaintiff's analysis of any fee structure as contained in the statutes is simply too sparse at this stage to be persuasive on this issue. As to the latter, there is no evidence at all of what state marshals do as part of their official duties in assembling papers for service of process, and no evidence of the reasonable and customary way that state marshals compute the charges for such tasks.
The plaintiff, and for that matter the defendants, seem to assume that the court can take notice of certain of these procedure and supply missing facts in this record. Because the standards for summary judgment require that it be granted only when it is quite clear what the facts are and what the law requires, see Miller v. United Technologies Corp., supra, the court cannot assume certain facts or procedure to be true here. The allegations in the plaintiff's complaint are too disorganized and confusing, and the facts and law relied upon by the plaintiff in support of his motion for summary judgment are too sparse for this court to grant his motion.
CONCLUSION
The plaintiff has failed to make a showing of undisputed facts that would allow the court to consider his claims of law. He has failed to explain in any understandable way what standards the defendants have violated and what legal precepts support his theory. Accordingly the Motion for Summary Judgment is denied.
Patty Jenkins Pittman, Judge
FOOTNOTES
FN1. The defendant spells his first name Albenie, not Albiene. The court will enter an order that this be corrected by the clerk's office on all further captions.. FN1. The defendant spells his first name Albenie, not Albiene. The court will enter an order that this be corrected by the clerk's office on all further captions.
FN2. 18 U.S.C. § 1951. The Hobbs Act makes it a federal crime to use force or violence to commit robbery or extortion in interstate commerce, and even under an exceedingly expansive reading of the plaintiff's complaint would seem to have no applicability here.. FN2. 18 U.S.C. § 1951. The Hobbs Act makes it a federal crime to use force or violence to commit robbery or extortion in interstate commerce, and even under an exceedingly expansive reading of the plaintiff's complaint would seem to have no applicability here.
FN3. The Racketeer Influence and Corrupt Practices Act (RICO) is found at 18 U.S.C. § 1961 et seq.. FN3. The Racketeer Influence and Corrupt Practices Act (RICO) is found at 18 U.S.C. § 1961 et seq.
FN4. The plaintiff has submitted a fourth affidavit related to his damages which is afforded little weight by the court because the plaintiff has failed to show entitlement to summary judgment on the issue of liability.. FN4. The plaintiff has submitted a fourth affidavit related to his damages which is afforded little weight by the court because the plaintiff has failed to show entitlement to summary judgment on the issue of liability.
FN5. Although the plaintiff's complaint is organized so as to make the claims against the defendant Gagnon first and the defendant Bennett second, the motion and brief in support of summary judgment reverse the order and contain the arguments regarding Bennett first and Gagnon second.. FN5. Although the plaintiff's complaint is organized so as to make the claims against the defendant Gagnon first and the defendant Bennett second, the motion and brief in support of summary judgment reverse the order and contain the arguments regarding Bennett first and Gagnon second.
FN6. Obviously the court can make no findings of fact based on decades-old recollections of its own former law practice; but the court cannot ignore the record before it that contains gaps in the explanation of the proper federal procedure for serving a complaint in a federal civil case.. FN6. Obviously the court can make no findings of fact based on decades-old recollections of its own former law practice; but the court cannot ignore the record before it that contains gaps in the explanation of the proper federal procedure for serving a complaint in a federal civil case.
FN7. The court is mindful that it must consider the submissions in the light most favorable to the defendants, not the plaintiff. See section, supra, on The Standards for Summary Judgment.. FN7. The court is mindful that it must consider the submissions in the light most favorable to the defendants, not the plaintiff. See section, supra, on The Standards for Summary Judgment.
Pittman, Patty Jenkins, J.
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Docket No: HHBCV095013995
Decided: April 25, 2011
Court: Superior Court of Connecticut.
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