Here's what the Pilot/Controller Glossary has to say on the subject:
"CLOUD- A cloud is a visible accumulation of minute water droplets and/or ice particles in the atmosphere above the Earth's surface. Cloud differs from ground fog, fog, or ice fog only in that the latter are, by definition, in contact with the Earth's surface."
Considering clouds and fog to be different entities for legal purposes would be impractical, because in mountainous areas, it's common for a there to be cloud layers that come in contact with the ground where the terrain rises to the height of the clouds. So legally, where would you say that it stopped being a cloud and started being fog? Where the cloud contacts the mountain? One foot away from the mountain? One mile from the mountain? Coming up with a legal distinction between them that made any sense would be an impossible problem.