For decades, plaintiffs have sought to charge Massachusetts
public entities with violations of the Regulation of Business
Practice and Consumer Protection Act (the act)1 and
obtain the enhanced damages, including multiple damages and
attorneys' fees, provided under the act.
In so doing, plaintiffs have relied upon the statutory definition
of a "person" as "natural persons, corporations, trusts,
partnerships, incorporated or unincorporated associations, and any
other legal entity,"2 and argued that public entities,
such as the commonwealth itself, fit within this definition. The
sweepingly broad definition of a "person" against whom suit may be
brought has created confusion and invited much litigation against
the commonwealth and its subdivisions.
Despite the significant volume of such claims against the
commonwealth and its subdivisions, the question of whether the
private causes of action created by the act are barred by the
doctrine of sovereign immunity has evaded definitive review, until
recently.