STEPHEN DARYL LEVENSON, APPELLANT,
v.
KEVIN MCCARTY, OFFICE OF INSURANCE REGULATION, APPELLEE

Fla. 4th DCA | 2004-07-07
Nos. 4D03-3016, 4D03-3865
WARNER and KLEIN, JJ., concur.
877 So. 2d 818 Florida District Court of Appeal, Fourth District (2004) Positive Treatment
Cited by 6 cases

AI-generated. These summaries, headnotes, and key points are machine-generated and may contain errors or omissions. Always verify against the full opinion text below. Not legal advice.

Synopsis

Levenson appealed the revocation of his insurance license, challenging the adequacy of service of the administrative complaint. The court reversed, holding that the Office of Insurance Regulation failed to exercise adequate diligence in attempting personal service and was therefore not entitled to resort to service by publication.


Holding

The court held that the agency's personal service attempt was legally inadequate because the agency failed to pursue obvious alternative means of contact, including phone contact and contact through known attorneys. Service by publication was therefore not justified, as the statute permits such constructive service only when personal service cannot be made.


Headnotes

[1] Personal service on a licensee is legally inadequate if the agency fails to exercise reasonable diligence to ascertain whether actual notice can be given, including inqui…

[2] An agency must make an honest and appropriate effort to ascertain whether actual notice can be given to a licensee before resorting to service by publication.

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Key Quotes

“No revocation, suspension, annulment, or withdrawal of any license is lawful unless, prior to the entry of a final order, the agency has served, by personal service or certified mail, an administrative complaint which affords reasonable notice to the licensee of facts or conduct which warrant the intended action and unless the licensee has been given an adequate opportunity to request a proceeding pursuant to ss. 120.569 and 120.57. When personal service cannot be made and the certified mail notice is returned undelivered, the agency shall cause a short, plain notice to the licensee to be published once each week for 4 consecutive weeks in a newspaper published in the county of the licensee's last known address as it appears on the records of the agency.”

Establishes the statutory framework requiring personal service or certified mail before license revocation and limiting service by publication to cases where personal service cannot be made.

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Facts & Procedural History

The Office of Insurance Regulation attempted personal service of an administrative complaint at Levenson's last known residence, but was unsuccessful.…

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Opinion of the Court
TAYLOR, J.

TAYLOR, J.

Stephen Daryl Levenson appeals the denial of his motion to set aside the order revoking his insurance license. We reverse, holding that the Office of Insurance Regulation’s attempted personal service was legally inadequate.

Personal service at Levenson’s last known residence was unsuccessful. The attorney for the Office of Insurance Regulation then made no attempt to contact the licensee by phone, despite the prior direct contacts between the agency and the licensee. Also, no attempt was made to contact either of the licensee’s known attorneys.

The key consideration in this case is the statute on license revocations. It provides:

No revocation, suspension, annulment, or withdrawal of any license is lawful unless, prior to the entry of 'a final order, the agency has served, by personal service or certified mail, an administrative complaint which affords reasonable notice to the licensee of facts or conduct which warrant the intended action and unless the licensee has been given an adequate opportunity to request a proceeding pursuant to ss. 120.569 and 120.57. When personal service cannot be made and the certified mail notice is returned undelivered, the agency shall cause a short, plain notice to the licensee to be published once each week for 4 consecutive weeks in a newspaper published in the county of the licensee’s last known address as it appears on the records of the agency.

Fla. Stat. § 120.60(5)(2003)(emphasis added). This statute is consistent with the common law in permitting service by publication only where personal service cannot be made. See Bedford Computer Corp. v. Graphic Press, Inc., 484 So. 2d 1225 (Fla.1986).

Constructive service statutes are strictly construed against a plaintiff who seeks to obtain service of process under them. Wiggins v. Portmay Corp., 432 So. 2d 802, 804 (Fla. 1st DCA 1983). Where the agency cannot show that personal service cannot be made, the appeals court will vacate the final order and remand for a hearing under Chapter 120. Schram v. Dept. of Prof l Regulation, 603 So. 2d 1307, 1310 (Fla. 1st DCA 1992). Thus, the key question in this appeal is the adequacy of the agency’s personal service effort.

In Smetal Corp. v. West Lake Inv. Co., 126 Fla. 595, 172 So. 58, 62 (1936), the court stated:

Reasonable diligence in such matters is an honest effort, and one appropriate to the circumstances, to ascertain whether actual notice may be given, and, if so, to give it. Such effort, however, need not embrace a search in remote parts of the state ... and it is not essential that all possible or conceivable means should be used. But the effort should usually extend to inquiry of persons likely or presumed to know the facts sought.

(citation omitted; emphasis added).

On point is the opinion in Torelli v. Travelers Indemnity Co., 495 So. 2d 837, 838 (Fla. 3d DCA 1986), wherein the court stated:

The failure of the plaintiff to follow an obvious lead to the defendant’s whereabouts, that is, to make inquiry of the defendant’s known attorney, compels us to conclude, unlike the trial court, that the plaintiff did not exercise due diligence in attempting to locate the defendant and was thus not entitled to assert that the defendant was concealing her whereabouts or was no longer a resident of Florida so as to trigger the operation of the “substituted service on non-resident motor vehicle owner” statute....

(citation omitted; emphasis added).

In this case, the attorney for the Office of Insurance Regulation made no attempt to contact the licensee by phone or through his known attorneys. Because this was not a case where personal service could not be made, service by publication was not justified.

REVERSED and REMANDED for proceedings on the merits.

WARNER and KLEIN, JJ., concur.


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Citator

Cited By

  • Redfield Invs. v. Vill. OF Pinecrest, 990 So. 2d 1135 (Fla. 3d DCA 2008)
    …ce a search in remote parts of the state ... and it is not essential that all possible or conceivable means should be used. But the effort should usually extend to inquiry of persons likely or presumed to know the facts sought. Levenson v. McCarty, 877 So. 2d 818, 820 (Fla. 4th DCA 2004) (quoting Smetal Corp. v. W. Lake Inv. Co., 126 Fla. 595, 604, 172 So. 58, 62 (1936)). While the case law has not drawn a bright line between efforts that show due diligence and those that are insufficient, we find that the a…
  • Castro v. The Charter Club, Inc., 114 So. 3d 1055 (Fla. 3d DCA 2013)
    …nant knew where the Castros could be found. See Redfield Invs., A.V.V., 990 So. 2d at 1139 (“[TJhe effort should usually extend to inquiry of persons likely or presumed to know the facts sought.”) (emphasis in original) (quoting Levenson v. McCarty, 877 So. 2d 818, 820 (Fla. 4th DCA 2004)); Dor Cha, Inc., 876 So. 2d at 680 (holding that diligent search requires inquiry of anyone likely or presumed to be likely to [*1062] know the defendant’s whereabouts); Gans, 593 So. 2d at 551 (holding process server’s fail…
  • Wolfe v. Stevens, 965 So. 2d 1257 (Fla. 2d DCA 2007)
    …back and forth, that I would rather go the statutory route.” Under these circumstances, we cannot conclude that Stevens exercised due diligence in attempting to locate Wolfe. Accordingly, service by publication was improper. See Levenson v. McCarty, 877 So. 2d 818 (Fla. 4th DCA 2004) (holding that where the plaintiff made no attempt to contact the defendant by telephone or through his known attorneys, service by publication was improper); Torelli v. Travelers Indem. Co., 495 So. 2d 837 (Fla. 3d DCA 1986) (hol…

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