Solon v. Midwest Medical Records Association, Inc. ( 2008 )


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  •                                                                              THIRD DIVISION
    November 10, 2008
    No. 1-07-2723
    WALTER SOLON and CYNTHIA ZALETEL, on                        )      Appeal from
    Behalf of Themselves and a Class of Others Similarly        )      the Circuit Court
    Situated,                                                   )      of Cook County.
    )
    Plaintiffs-Appellees,                       )
    )      No. 04-CH-7119
    v.                                                   )
    )
    MIDWEST MEDICAL RECORDS                                     )
    ASSOCIATION, INC.,                                          )      Honorable
    )      James F. Henry,
    Defendant-Appellant.                        )      Judge Presiding.
    JUSTICE THEIS delivered the opinion of the court:
    Plaintiffs Walter Solon and Cynthia Zaletel, on behalf of themselves and a class of others
    similarly situated, brought this action against defendant Midwest Medical Records Association
    (MMRA) seeking, inter alia, damages incurred as a result of defendant’s allegedly deceptive and
    illegal practice of overcharging patients for requested copies of medical records. Defendant
    moved to strike that portion of the complaint under section 2-615 of the Code of Civil Procedure
    (Code) (735 ILCS 5/2-615 (West 2004)). The trial court denied defendant’s motion and certified
    1-07-2723
    a question for review pursuant to Supreme Court Rule 308. 155 Ill. 2d R. 308. Defendant
    sought review of that question, which we answer in the negative, holding that it is not per se
    reasonable to charge a flat $20 handling fee under sections 8-2001 and 8-2003 of the Code. 735
    ILCS 5/8-2001, 8-2003 (West 2004).
    BACKGROUND
    Few facts of the underlying case are necessary to answer the certified question before us.
    According to the complaint, defendant is a service company that receives and fulfills requests
    from patients for copies of their medical records on behalf of health care facilities and
    practitioners (collectively, health care providers). Defendant assigns its staff to work on-site at
    health care providers’ offices to receive medical records requests, locate and copy the requested
    records, and send the records to the patient along with a bill for services. The staff also is
    responsible for maintaining records of all requests and other administrative matters.
    Plaintiffs allege that defendant does not charge health care providers for these services.
    Rather, defendant performs this service for health care providers in exchange for the exclusive
    right to provide medical records to patients for a fee. Defendant and the health care providers
    negotiate the price per page charged to patients. Defendant then bills and collects the fees
    directly from patients. In addition to the per-page fee for providing copies of records, defendant
    also charges patients a flat $20 handling fee, which defendant refers to as a “process fee.”
    Plaintiffs contend that defendant’s billing practices are fraudulent and violate state law.
    They brought a four-count complaint alleging a breach of contract in count I; a violation of
    sections 8-2001 and 8-2003 of the Code (735 ILCS 5/8-2001, 8-2003 (West 2004)) in count II; a
    violation of section 2 of the Consumer Fraud and Deceptive Business Practices Act (815 ILCS
    2
    1-07-2723
    505/2 (West 2004)) in count III; and a violation of section 2 of the Uniform Deceptive Trade
    Practices Act (815 ILCS 510/2 (West 2004)) in count IV.
    With respect to count II, plaintiffs specifically allege that the plain language of sections
    8-2001 and 8-2003 of the Code only permits defendant to charge for the lesser of the “reasonable
    expense of production, Illinois’ statutory price limit for copies applicable to the type of copies
    [defendant] furnished, or a fair price for the copies.” Therefore, they argue, the flat $20 handling
    fee is improper. In response, defendant filed a motion to strike count II. It argued, inter alia,
    that plaintiffs misconstrued sections 8-2001 and 8-2003 and, therefore, failed to allege a cause of
    action under those statutes. The circuit court denied defendant’s motion.
    Defendant then moved pursuant to Supreme Court Rule 308(a) (155 Ill. 2d R. 308(a)) to
    certify the following question for review by this court:
    “Is it reasonable per se for a provider of medical record copies under
    [sections 8-2001 and 8-2003 of the Code] to charge the full amount of the $20
    process fee, or is the provider limited to a lesser charge if the evidence shows that
    the lesser charge is all that is reasonable?”
    Initially, we denied defendant’s petition. However, the supreme court subsequently issued a
    supervisory order directing this court to answer the certified question.
    ANALYSIS
    We apply a de novo standard of review to the legal question presented in an interlocutory
    appeal brought pursuant to Supreme Court Rule 308(a). Anthony v. City of Chicago, 382 Ill.
    App. 3d 983, 987, 
    888 N.E.2d 721
    , 725 (2008). Our review is strictly limited to the certified
    question presented. 
    Anthony, 382 Ill. App. 3d at 987
    , 888 N.E.2d at 725. We do not render an
    3
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    opinion on the propriety of any underlying orders of the circuit court. 
    Anthony, 382 Ill. App. 3d at 987
    , 888 N.E.2d at 725.
    Initially, we note that the certified question presents a case of first impression. Thus, we
    turn to the familiar rules of statutory construction to guide our analysis. Our primary objective
    in construing a statute is to ascertain and give effect to the intent of the legislature. Alvarez v.
    Pappas, 
    229 Ill. 2d 217
    , 228, 
    890 N.E.2d 434
    , 441 (2008). All other rules of statutory
    construction are subordinate to this principle. 
    Alvarez, 229 Ill. 2d at 228
    , 890 N.E.2d at 441.
    The best evidence of legislative intent is the language of the statute itself, which must be given
    its plain and ordinary meaning. Cinkus v. Village of Stickney Municipal Officers Electoral
    Board, 
    228 Ill. 2d 200
    , 216, 
    886 N.E.2d 1011
    , 1021 (2008). The statute must be read as a whole
    and no words should be interpreted so as to be rendered superfluous or meaningless. In re J.W.,
    
    204 Ill. 2d 50
    , 62-63, 
    787 N.E.2d 747
    , 755 (2003), citing Collins v. Board of Trustees of the
    Firemen’s Annuity Benefit & Fund, 
    155 Ill. 2d 103
    , 110, 
    610 N.E.2d 1250
    , 1255 (1993). Nor
    may we read into the statute any exceptions, limitations, or conditions that were not expressed by
    the legislature. In re 
    J.W., 204 Ill. 2d at 62
    , 787 N.E.2d at 755.
    At the time plaintiffs filed their complaint, sections 8-2001 and 8-2003 of the Code1
    provided:
    1
    For the purposes of this appeal, the relevant language of section 8-2003 is
    identical to that of section 8-2001, with the former section applicable to “practitioners,”
    including physicians’ offices, and the latter section applicable to “health care facilities,”
    including hospitals. 735 ILCS 5/8-2001, 8-2003 (West 2004).
    4
    1-07-2723
    “Every [health care provider] shall, upon the request of any patient ***,
    *** permit copies of [a patient’s medical] records to be made by him *** or his
    *** physician ***. A request for copies of the records shall be in writing and
    shall be delivered to the administrator or manager of such [health care provider].
    The [health care provider] shall be reimbursed by the person requesting copies of
    records at the time of such copying for all reasonable expenses, including the
    costs of independent copy service companies, incurred by the health care facility
    in connection with such copying not to exceed a $20 handling charge for
    processing the request for copies ***.” 735 ILCS 5/8-2001 (West 2004).
    In addition, the patient must reimburse health care providers for the cost of the copies at a
    maximum per-page rate that varies with the number of pages copied, as well as any shipping
    costs. 735 ILCS 5/8-2001, 8-2003 (West 2004).
    Plaintiffs argue that aside from the per-page cost of the copies, the plain language of the
    statute only permits health care providers to seek reimbursement for “reasonable expenses”
    incurred in connection with copying the records and that amount may not exceed $20. Defendant
    argues that it is reasonable per se for health care providers, through defendant’s services,2 to
    2
    We note that “health care facilities” and “practitioners” are the subjects of the
    statutes. 735 ILCS 5/8-2001, 8-2003 (West 2004). However, as we are limited to
    answering only the certified question before us (
    Anthony, 382 Ill. App. 3d at 987
    , 888
    N.E.2d at 725), we render no opinion on defendant’s accountability under the statutes as
    a function of its relationship with health care providers where, as here, defendant’s
    5
    1-07-2723
    charge patients a $20 flat fee to process the request because it is within the maximum amount
    allowed to be charged under the statute.
    We agree with plaintiffs. In giving effect to the plain and ordinary meaning of each word
    of the statute, its meaning is clear and unambiguous. To “reimburse” means “to pay back (an
    equivalent for something taken, lost, or expended) to someone.” Webster’s Third New
    International Dictionary 1914 (1981). The statute also directs patients to reimburse the amount of
    expenses “incurred,” which connotes a quantifiable cost that has actually accrued to the health
    care provider as a result of processing the records request.3 Webster’s Third New International
    Dictionary 1146 (1981) (to “incur” means “to become liable or subject to”). Thus, the legislature
    intended for patients to repay health care providers for the actual costs they incurred in processing
    the records request, rather than pay a flat fee in all circumstances, regardless of the costs incurred.
    Defendant’s construction of the statute, which advocates for a flat fee, renders that language
    employees operate on-site at the offices of health care providers. But see Clay v. Little
    Company of Mary Hospital, 
    277 Ill. App. 3d 175
    , 179, 
    660 N.E.2d 123
    , 126 (1995) (“a
    patient may be billed for the photocopies, regardless of whether a hospital or a photocopy
    shop charges them”).
    3
    Again, in light of our restricted review on interlocutory appeal (
    Anthony, 382 Ill. App. 3d at 987
    , 888 N.E.2d at 725), we offer no opinion on what constitutes an
    “expense” under the statute. Plaintiffs in this case do not argue that defendant should not
    profit from its business enterprise and, in fact, concede that defendant may make a
    reasonable profit.
    6
    1-07-2723
    meaningless, in contravention of the principles of statutory construction. In re 
    J.W., 204 Ill. 2d at 63
    , 787 N.E.2d at 755.
    Additionally, the statute states that the amount to be recovered by health care providers is
    “not to exceed” $20, which imposes a maximum amount of recoverable expenses rather than a
    flat fee. Thus, the legislature acknowledged that the actual cost of processing a records request
    could vary with the complexity of the request. For example, it stands to reason that the fewer
    records a patient requests, the less time defendant’s employees may spend processing the request.
    In such circumstances, it would be unreasonable to charge the maximum amount of recovery to
    process a simple request.
    Defendant urges us to adopt the reasoning in a case recently decided by the Texas Court
    of Appeals. In In re Metro ROI, Inc., 
    203 S.W.3d 400
    , 406 (Tex. App. 2006), the Texas court
    construed two statutes that bear some resemblance to sections 8-2001 and 8-2003 of the Code.
    The court concluded that a fee for medical records retrieval is reasonable so long as it does not
    exceed the $30 maximum fee allowed under that statute. Metro ROI, 
    Inc., 203 S.W.3d at 406
    .
    Specifically, it held that by specifying the maximum amount of fees recoverable under the statute,
    “the Legislature has clearly indicated what constitutes an unreasonable fee.” Metro ROI, 
    Inc., 203 S.W.3d at 406
    . However, it did not address the reasonableness of a health care provider’s
    reimbursement for expenses that were not incurred. Under Metro ROI, Inc., a health care
    provider could reap a windfall by collecting $30 while having incurred far less in actual expenses.
    There is no support for that interpretation in the language of our statutes, and in our view, that
    charge would be unreasonable. Thus, we are not persuaded by the rationale in Metro ROI, Inc.
    and reject defendant’s argument.
    7
    1-07-2723
    Defendant also argues that in construing the plain language of a statute, this court need not
    be confined to the literal meaning of the statute, but may consider the spirit and purpose of the
    law as well. In re Madison H., 
    215 Ill. 2d 364
    , 373, 
    830 N.E.2d 498
    , 504 (2005). Indeed, during
    oral argument, defendant suggested that we “fudge” the plain language of the statute to expand its
    meaning. According to defendant, the legislature intended for this statute to bring predictability
    and stability to health care costs, citing a legislative floor debate in support of that interpretation.
    However, unless the meaning of the statute is ambiguous, we may not look beyond the statutory
    language to statements regarding the purpose of the law, the evils it was intended to remedy, or
    the legislative history of the statute to aid in our determination of legislative intent. 
    Cinkus, 228 Ill. 2d at 217
    , 886 N.E.2d at 1022. In its brief, defendant attempts to argue, in the alternative, that
    the language of the statute is ambiguous. Nevertheless, as we have discussed, the meaning of the
    statute is clear from the plain language itself and we will not look to extrinsic sources to aid us in
    our interpretation.
    Moreover, the case cited by defendant does not support defendant’s contention. In
    Madison H., the court did not resort to using extrinsic aids, such as legislative history, to assist in
    construing the statute at issue. Rather, the court construed the statute at issue together with
    section 1-2 of the Juvenile Court Act of 1987 (705 ILCS 405/1-2(1) (West 2002)), which set forth
    the purpose and policy of that act. Madison 
    H., 215 Ill. 2d at 373
    , 830 N.E.2d at 504, citing 705
    ILCS 405/1-2 (West 2002). In doing so, the court adhered to the well-settled rule that a statute
    must be construed in its entirety, keeping in mind the purpose of the statute as set forth in a
    coordinate statute. MD Electrical Contractors, Inc. v. Abrams, 
    228 Ill. 2d 281
    , 287-90, 
    888 N.E.2d 54
    , 58-59 (2008) (construing the purpose statement in section 5 of the Home Repair and
    8
    1-07-2723
    Remodeling Act (815 ILCS 513/5 (West 2006)) together with the section of the statute at issue).
    In this case, there is no similar statute setting forth the purpose of sections 8-2001 and 8-2003,
    and thus, we reject defendant’s argument.
    Finally, defendant argues that our construction of sections 8-2001 and 8-2003 would result
    in absurd, inconvenient, and unjust consequences because it would “leave thousands of [health
    care providers] at the mercy of an ‘amorphous “reasonableness” test’ ” that is subject to the
    “unchecked discretion” of the circuit court. Defendant argues that only an expert commission or
    panel would be equipped to determine whether a process fee is reasonable.
    We have every confidence that the circuit court is capable of determining the
    reasonableness of a health care provider’s processing costs based on evidence presented by the
    parties, as it does in myriad other respects. See, e.g., In re Marriage of Baumgartner, 384 Ill.
    App. 3d 39, 46, 
    890 N.E.2d 1256
    , 1273 (2008) (courts determine whether expenses are reasonable
    and necessary for the production of income in marital support matters); Wildman, Harrold, Allen
    & Dixon v. Gaylord, 
    317 Ill. App. 3d 590
    , 597, 
    740 N.E.2d 501
    , 508 (2000) (the reasonableness
    of attorney fees in a breach of contract action is to be determined by the trier of fact, whether by a
    judge in a bench trial or a jury); Boender v. Chicago North Clubhouse Ass’n, 
    240 Ill. App. 3d 622
    , 628-29, 
    608 N.E.2d 207
    , 212 (1992) (where secured party purchases collateral for less than
    fair market value, court must determine whether it was commercially reasonable); Hunter Mfg.,
    Inc. v. Hines, 
    76 Ill. App. 3d 664
    , 666, 
    395 N.E.2d 186
    , 187 (1979) (under section 2-305 of the
    Uniform Commercial Code (now 810 ILCS 5/2-305 (West 2004)), where no contract price term is
    stated, court may infer a reasonable price).
    9
    1-07-2723
    Accordingly, for the foregoing reasons, we answer the certified question in the negative.
    We cannot say that it is per se reasonable to charge a $20 flat fee for processing costs under
    sections 8-2001 and 8-2003 of the Code, as defendant advocates. The statutes require patients to
    reimburse health care providers for reasonable expenses incurred in processing records requests
    up to $20. With that said, charging a $20 process fee is not per se unreasonable. If a health care
    provider incurs $20 in reasonable expenses to process a records request, and can justify those
    expenses, it should be reimbursed for those expenses.
    Certified question answered.
    MURPHY, P.J., concurs.
    GREIMAN, J., dissents.
    10
    1-07-2723
    JUSTICE GREIMAN, dissenting:
    I respectfully dissent from the majority.
    "In giving effect to the statutory intent, the court should consider, in addition to the
    statutory language, the reason for the law, the problems to be remedied, and the objects and
    purposes sought.” General Motors Corp. v. State of Illinois Motor Vehicle Review Board, 
    224 Ill. 2d 1
    , 13 (2007). Moreover, when interpreting a statute, we must presume that the legislature
    did not intend to produce absurd, inconvenient or unjust consequences as a result of the law.
    Brucker v. Mercola, 
    227 Ill. 2d 502
    , 514 (2007).
    I conclude that the language of the statute dictates that a handling fee of $20 or below is
    per se reasonable.4 The intent of the legislature is clear in that it wanted to expressly define the
    allowable charges for copies requested by presumably thousands of patients a year.
    My construction is supported by the "reason for the law, the problems to be remedied, and
    the objects and purposes sought” (General Motors 
    Corp., 224 Ill. 2d at 13
    ), which is apparent
    from the House and Senate transcripts discussing the statutory amendment. In particular, Senator
    Cullerton introduced the amended bill as follows:
    "This bill, which was amended today, reflects a compromise, the issue being how much
    money patients and clients of professionals can be charged to get their own records back.
    And as a result of our negotiations ***, we were able to get the Trial Lawyers, the
    Medical Society, the Hospital Association and the representatives of the companies that
    do copy records to agree to this procedure, which applies not only, as I said, to hospital
    4
    In dicta, the Third District noted that the specified handling charge was
    reasonable. Ramirez v. Smart Corp., 
    371 Ill. App. 3d 797
    , 804 n.1 (2007).
    11
    1-07-2723
    records, but also attorneys’ records. And it basically sets up a sliding scale of copying
    charges and an initial fee that you have to pay, a handling charge of [$20]. And as I said,
    everybody has agreed to it.” 92d Ill. Gen. Assem., Senate Proceedings, April 5, 2001, at
    226-27 (statements of Senator Cullerton).
    Representative Turner further stated:
    "The genesis of this Bill actually was not from the Trial Lawyers Association nor was it
    from the ISBA. It came from what I saw going on in my law practice where I would,
    from time to time on behalf of clients, request medical records. On several occasions I
    would get one page for $30, or two pages for $35, or perhaps three or four pages for $50.
    It became *** abundantly clear that we needed to try to address this situation through
    legislation that would put some cap on what the charges would be for medical records.
    We included attorneys in that so that attorney records going to clients would have a cap.
    And the purpose of this is not to assist lawyers, it’s not to assist doctors. It’s simply to
    assist patients and clients so that they can get copies of their own records at a reasonable
    cost. This is a Bill that has been compromised. I think it does address, in part, the
    concerns that caused me to raise the issue in the first place.” 92d Ill. Gen. Assem., House
    Proceedings, May 8, 2001, at 47-48 (statements of Representative Turner).
    Representative Turner confirmed that the intent of the $20 handling fee was to serve as an "order
    fee” or a "deposit fee” at the time the records were requested. 92d Ill. Gen. Assem., House
    Proceedings, May 8, 2001, at 46. Accordingly, the legislature intended the $20 handling fee to be
    a one-time charge for obtaining records that was a per se reasonable method to avoid excessive
    and variable fees.
    12
    1-07-2723
    I recognize the majority’s argument that, because its language is unambiguous, we are
    restricted to the plain language of the statute; however, the goal of statutory interpretation is to
    ascertain the intent of the legislature, which, in this case, includes more than an application of the
    dictionary definitions of the statutory terms. Furthermore, simply stated, requiring a court to
    determine a reasonable handling charge whenever an individual requests copies of his or her
    records is absurd, inconvenient and unjust.5
    Moreover, a reviewing court must presume the legislature was aware of prior legislation
    and crafted our statute with that knowledge. See State v. Mikusch, 
    138 Ill. 2d 242
    , 247-48 (1990)
    ("[i]t is presumed that the legislature, in enacting various statutes, acts rationally and with full
    knowledge of all previous enactments”). Prior to the amendment at issue, the statute was silent
    on the issue of copying fees; however, in Clay v. Little Company of Mary Hospital, 
    277 Ill. App. 3d
    175, 180 (1995), the court interpreted the statute to imply a reasonableness standard. Further,
    at the time the statute was crafted, nearly every state had a statute related to the cost of obtaining
    medical records, which fell into one of four main categories: (1) those that required reasonable
    fees or actual costs; (2) those that specified preset or maximum fees; (3) those that remained
    silent on reproduction costs; and (4) those that imposed no costs. P. Stearns, Access to and Cost
    of Reproduction of Patient Medical Records: A Comparison of State Laws, 21 J. Legal Med. 79,
    5
    We note that both in their brief and at oral argument plaintiffs’ argue that
    looking beyond the plain language of the statute in order to avoid absurd, inconvenient
    and unjust results is a high standard; however, plaintiffs fail to cite any authority for that
    proposition.
    13
    1-07-2723
    80-81 (2000). Tellingly, our legislature chose to explicitly define what was reasonable by
    providing a maximum fee.
    I find further support for my construction in out-of-state cases interpreting similar
    statutes.6 In In re Metro ROI, Inc., 
    203 S.W.3d 400
    (Tex. App. 2006), a Texas court interpreted
    the fee announced in its statute as presumptively reasonable. In re Metro ROI, 
    Inc., 203 S.W.3d at 406
    . The Texas statute provided that "the hospital may charge a reasonable fee” for copying
    health care information; however, the "fee may not exceed the sum of” a retrieval fee, including
    the first 10 copied pages, which "may not exceed $30,” per page fees thereafter and the actual
    6
    Although there are numerous statutes which mimic the statute at issue, our
    research has revealed only two cases on point. See, e.g., Ala. Code §12-21-6.1 (1995);
    Cal. Health & Safety Code §123110 (Dearing 1997); Mass. Ann. Laws ch. 112, §12CC
    (LexisNexis 2004); Mass. Ann. Laws ch. 111, §70 (LexisNexis 2004); Me. Rev. Stat.
    Ann. tit. 22, §1711-A (2004); Mont. Code Ann. §50-16-816 (2007); Tenn. Code Ann.
    §68-11-304 (2006); Tex. Health & Safety Code Ann. §241.154 (2001); W. Va. Code
    Ann. §16-29-2 (LexisNexis 2006) (statutes with forms of "reasonable” ... "but not to
    exceed” language); Ga. Code Ann. §31-33-3 (2006); In. Code §16-39-9-2 (2007 Supp.);
    N.H. Rev. Stat. Ann. §151:21 (LexisNexis 2005); Kan. Stat. Ann. §65-4971 (2002); Md.
    Code Ann., Health-Gen. §4-304 (LexisNexis 2005); Mo. Ann. Stat. §191.227 (West
    2004); N.D. Cent. Code § 23-12-14 (2002); Neb. Rev. St. Ann. §71-8404 (LexisNexis
    2008); Ohio Rev. Code Ann. §3701.741 (LexisNexis 2005)); Okla. Stat. Ann. tit. 76, §19
    (West 2002); S.C. Code Ann. §44-115-80 (2002) (statutes with "not to exceed”
    language).
    14
    1-07-2723
    cost of mailing. In re Metro ROI, 
    Inc., 203 S.W.3d at 404
    , citing Tex. Health & Safety Code
    Ann. §241.154(b) (2001). The Texas court reasoned that, "[b]y specifying the maximum fees
    which can be charged, the Legislature *** clearly indicated what constitute[d] an unreasonable
    fee.” In re Metro ROI, 
    Inc., 203 S.W.3d at 406
    . Moreover, in Casillo v. St. John’s Episcopal
    Hospital, 
    580 N.Y.S.2d 992
    , 
    151 Misc. 420
    , __ (1992), a New York court analyzed the legislative
    intent of an amended statute commanding that "the reasonable charge for paper copies shall not
    exceed [75] cents per page” and concluded that:
    "it was enacted to create a unifying definition for the 'reasonable charge’ standard and to
    stem the burgeoning costs being imposed on patients seeking to obtain their own medical
    records for whatever purpose.” 
    Casillo, 580 N.Y.S.2d at 998
    , 151 Misc. at __.
    See N.Y. Pub. Health Law §17 (McKinney 2002). As the comments by Senator Cullerton and
    Representative Turner demonstrate, the instant statutes were enacted to achieve the same result;
    therefore, contrary to the majority’s decision, I believe a similar construction should be applied.
    Also persuasive is Pratt v. Smart Corp., 
    968 S.W.2d 868
    (Tenn. App. 1997), where a
    Tennessee court determined that, although the statute did not establish a definite maximum copy
    charge, parties could not define "reasonable cost” in an excessive manner because doing so would
    inherently violate the provisions of and the policy behind the statute. 
    Pratt, 968 S.W.2d at 870
    ,
    citing Tenn. Code. Ann. §68-11-304(a)(2)(A) (West 1998). The Pratt court’s construction was
    later proven accurate when the Tennessee legislature amended the statute in 2007, providing that
    per-page flat fees and a certification fee "not to exceed” $20 were presumed reasonable. See
    Tenn. Code Ann. §68-11-304(a)(2)(A)(iii)(a) (West Supp. 2008). Furthermore, both the
    Massachusetts and New Hampshire legislatures amended their statutes from former generalized
    15
    1-07-2723
    versions of requisite "reasonable costs” to providing a specified, "not to exceed” amount (see
    Mass. Gen. Laws ch. 111, §70 (____) (amended in 2004); N.H. Rev. Stat. §151:21(X) (____)
    (amended in 2001)), demonstrating the need to explicitly define what is reasonable and not
    reserve that determination to a case-by-case basis.
    Accordingly, combining the language of our statute, "reason for the law, the problems to
    be remedied, and the objects and purposes sought” (General Motors 
    Corp., 224 Ill. 2d at 13
    ) and
    the interpretive guidance from similarly worded out-of-state statutes, I conclude that the $20
    handling fee is per se reasonable. Any other interpretation would force every provider to undergo
    an assessment of the appropriate charge for each individual request, inevitably resulting in a lack
    of uniform charges and natural inequities. Such a result is absurd, unjust and inconvenient and
    not in line with the legislature’s intent, especially when the language was expressly agreed upon
    by all parties involved.7
    Accordingly, I would answer the certified question in the affirmative.
    7
    It belies logic that the record copying companies and health care providers
    would agree, as indicated by Senator Cullerton, with a statute that potentially exposed
    them to a case-by-case inquiry as to the reasonableness of the handling fee. See 92d Ill.
    Gen. Assem., Senate Proceedings, April 5, 2001, at 226-27 (statements of Senator
    Cullerton).
    16
    REPORTER OF DECISIONS - ILLINOIS APPELLATE COURT
    _________________________________________________________________
    WAL TE R SOLO N a nd CY NT HIA ZALE TE L, on Beha lf
    of Themselves and a Class of Others Similarly Situated,
    Plaintiffs-App ellees,
    v.
    MIDW EST M ED ICA L R EC OR DS ASSO CIA TIO N, IN C.
    Defendant-Appellant.
    ________________________________________________________________
    No. 1-07-2723
    Ap pella te Court of Illinois
    First D istrict, Third Division
    Filed: November 10, 2008
    _________________________________________________________________
    JUSTICE TH EIS delivered the opinion of the court.
    Murph y, P.J., concurs.
    Greim an, J., dissents.
    _________________________________________________________________
    Ap peal from the C ircuit Court of C ook County
    Honorable James F. Henry, Judge Presiding
    _________________________________________________________________
    For PLAINTIFFS-            Arthur Loevy
    APPELLE ES,                Michael Kanovitz
    Loevy & Loevy
    312 North May, Suite 100
    Chicago, IL 60607
    For DEFENDANT-             Alan R . Borlack
    APPELLANT,                 Bailey Borlack Nadelhoffer LLC
    135 South LaSalle, Suite 3950
    Chicago, IL 60603
    Jam es A. Flesch
    Glickm an, Flesch & Ro senwein
    230 West Monroe Street, Suite 800
    Chicago, IL 60606