FOUTH DI VI SI ON

RI CKM A N, C. J.

, DI LLA RD, P. J.

, and M ERCI ER, J.

N O T IC E : M otions for r e c ons i de r a tion m us t be

ph y sic a l ly r e ce iv ed i n our c le r k ’s offic e w ithin te n

da y s of the da te of de c is ion to be de e m ed tim e ly file d.

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. ga a ppe a ls .us /r ule s

D E A D LIN E S A R E N O LO N G E R TO LLE D IN T

H I S

C O U R T. A LL FILIN G S M U ST B E S U B M I TTE D WITH IN

TH E TIM E S S E T B Y

O U R C O U R T R U LE S

.

D ecem ber 1, 2021



# I n th e Co u r t o f

A p p eals o f

G eo r g ia

A2 1 A1 34 6

, A2 1 A1 3 4 7. CAZIER et al

. v

. GEORGIA POW ER

COM PANY; an d vi ce v ers a.

R I C K M A N

, Ch i ef J u d g e.

Th i s i s th e t h i rd ap p earan ce o f t h is m at t er b efo re t hi s Co u rt

. In 2 0 1 1, p l ai n t i ff

Am y Cazi er an d o t h ers fi l ed a p u t at i v e cl as s act i o n ag ai n s t Geo rg i a Po wer Co m p an y

fo r i t s al l eg ed l y im

p ro p er co l lect i o n o f sal es t ax g en erat ed b y a fran ch i s e fee ch arg ed

to c ustom e r s of m

uni ci p al i t i es

. Aft er l en g t h y p ro ceed i n g s

, i n cl u d in g tw o pr ior a ppe a ls

t o t h i s Co u rt

, 1 t h e Su p rem e Co u rt o f Geo rg i a a s k e d t h e t ri al co u rt t o co n s i d er a

r e m an d t o t h e G eo rg i a Pu b l i c Serv ice Co m m i ss i o n (PSC) fo r t h at b o d y’s

d et erm i n at i o n as t o w h et h er Geo rg i a Po wer h ad p ro p erl y ch arg ed i ts cu s t om ers i n t h i s

1 See Geo r

g i a P o wer Co

. v. Ca z i er

, 3 2 1 Ga. A p p

. 5 7 6 (7 4 0 SE2 d 4 58 ) (2 0 1 3 )

(“ Ca z i er I ”); Ca z i er v. Geo rg i a Po wer Co

., 3 3 9 Ga. Ap p

. 5 0 6 (7 9 3 SE2 d 6 6 8 ) (2 0 1 6 )

(“ Ca z i er II ”).res p ect

. Geo r g i a P o wer Co v. Ca z i er

, 3 0 3 Ga. 8 2 0

, 82 6 (2 ) (8 1 5 SE2 d 9 2 2 ) (2 0 1 8 )

(“ Ca z i er III

”)

. A f t e r t h e t ri al co u rt s en t t h e cas e t o th e PSC, t h e reg u l at ory ag en cy

d et erm i n ed t h at t h e rel ev an t term s “ u s ag e rev en u e” an d “ t o tal rev en ue” h ad t h e s am e

m ean i n g an d t h at G eo rg ia Po wer h ad p ro p erl y im p l em en t ed i t s s ch ed ul e t o reco v er

i t s m u n i c i pal fran ch i s e fee (“ M FF”). Th e t ri al co u rt th en ad op t ed t h e PSC’ s

d et erm i n at i o n

, cert i fi ed th e cl as s

, an d g ran t ed s u m m ary ju d g m en t t o Geo rg i a Po wer.

In Cas e No

. A2 1 A1 3 46

, p l ai n t i ffs arg ue t he t ri al co u rt erred w h en i t g ran ted s u m m ary

ju d g m en t to G e or gia P ow e r. In th e cro s s -ap p eal

, Cas e No

. A2 1A1 3 4 7

, Geo rg i a Po wer

arg u es t h at t he cl as s s h ou l d n ot h av e b een cert i fi ed

. W e affi rm i n t h e fi rs t ap p eal an d

d i s m i s s t he s eco n d as m oo t

.

Th e rel ev an t fact s are n o t i n d i s p u t e. In 2 0 0 7

, t h e PSC rev i s ed i t s fee s ch ed u l e

g u i d el i n es fo r, am o n g o t h er rat es

, an M FF co st reco v ery ch arg e, m an d at i n g d i fferen t

ch arg es fo r cu st o m ers wi t h i n an d wi t h ou t m u n i ci pal b o u n d ari es

. B e cau s e t h e M FF

co v ers s o m e o f Geo rg i a Po w e r ’ s e x pe nse s inc ur red by pu rch as i n g acces s an d ri g h t -o fway eas em en t s fro m m

u n i ci p al i t i es

, t h e PSC fo un d th at m u n i ci p al cu s t o m ers s h o u ld

b ear a g reat er percen t ag e o f t h e co s t reco very ch arg e. Sp eci fi cal l y

, t h e PSC’ s J an u ary

2 0 0 7 o r d e r p ro v i d ed t h at t hro u g h a p ro ces s o f g rad u al i m p l em en t at i o n t o b e

co m p l et ed b y 20 0 9

, Geo rg i a P o wer wo u l d co l l ect 2 p ercen t o f i t s “ us a ge r even u e

2en t i rel y b y i n cl u s i o n o f [M FF] am o u n t s i n i t s rat e b as e,” as wel l as “ t hat po rt i o n o f

fran ch i s e [fees ] rep res en t i n g 2 p erc e n t o f u s a g e r even ue ex cl us i v el y fro m i t s

cu s t o m ers l o cat ed wi t h i n t he m u n i ci p al i t y t o wh ich s u c h f r a n c h i s e fees are p ai d.”

(Em p h as i s s u p p li ed .)

On Decem

b er 3 1

, 2 0 0 7

, t h e PSC i s s u ed a s eco n d o rd er fi n d in g t h at Geo rg i a

Po wer’ s p ro p o s ed r a t e s d et ai l ed i n th e J an uary 2 0 07 o rd er were “ fai r, ju s t an d

reas on ab l e.” On e of t h e rat es p ro p o s ed b y G eo rg i a Po wer in cl ud ed a M FF “ cal cu l at ed

o n t o ta l r even ues an d ch arg ed t o each cu s to m er o n t h e bas i s o f t h e cu s t o m er’ s

co n tri b u t i o n t o t o t al rev en u es ” at t h e PSC-ap p ro v ed rat e. (Em p has i s s u p p l ied .) Aft er

rev i s io n s t o o th er t ari ffs r e q u ired new co m p l i an ce fi l i n g s, Geo rg i a Po wer fi l ed a

rev i s ed fee s ch ed u l e, i n cl u d i n g a M FF ch arg e, co l lect ed b y ap pl y in g th e “ rat es t o t h e

t o t a l r even u es o f each b i l l .” (Em p h as i s s u p p l i ed

. ) In M arch 2 0 0 8

, t h e PSC i s s u ed a

t h i rd o rd er co n cl u di n g t h at Geo rg i a Po wer’ s p ro p os ed t ari ff sch ed u le was “ d es i g n ed

t o co l l ect t h e p ro p er l ev el o f rev en u e an d p ro perl y al lo cat e t h e co l l ect i o n of rev en u e

i n co m p l i an ce wi t h ” t he Decem

b er 2 0 07 ord er. G eo rg i a Po wer s u b m i t t ed co m p l i an ce

fi li n g s t o t h e PSC ag a i n i n 2 0 1 0 an d 2 0 13

, an d wh i l e rat e p ercen t ag es ch an g ed

s l i g h t l y i n b o t h cas es

, t h e rel ev an t l an g u ag e co n cern i n g M FF cal cu lat i o n b as ed o n

“ t o tal rev en u es ” rem ai ned t h e s am e.

3P l a i n t i ffs are Geo rg i a Po wer cu st o m ers wh o s e m o n t h l y b il l s feat u red an

i t em i zed l i s t o f ch arg es

, i n cl u d i n g a n u cl ear co n s t ru ct i o n c o s t r e co v ery fee

(“ NCCRF”) an d t h e M FF. In t h ei r o ri g i n al su i t

, fi led i n 2 01 1

, p l ai n ti ffs al l eg ed t h at

Geo rg i a Po wer im

p ro p erl y co l l ect ed s al es t ax es o n t o p o f th o se fees

, an d t h at Geo rg i a

Po wer i m p ro p e r l y c al cu l at ed t h e M FF b y i n cl ud i n g co s t reco v ery i t em s l i k e t h e

NCCRF as wel l as an en v i ro n m en t al co m p l ian ce co s t reco v ery fee (“ ECCR”) i n t h e

rev en u e s u m t o wh i ch t he M FF p ercen t ag e was ap p li ed

. See Ca z i er I

, 3 21 Ga. Ap p.

at 5 7 7

. Geo rg i a Po w er m o v ed t o d i s m i ss

, cl ai m i n g i n p art t h at t h e co n s um ers ’ o n l y

rem ed y was set fo rt h i n OCGA § 4 8 -2 -3 5

, wh ich p res cri b es t h e p ro ced u re b y wh i ch

a tax pay er can cl ai m a refu n d o f t ax es i m p ro p erl y co l l ect ed

. Th e t ri al co u rt d en i ed t h e

m o ti o n b ut au th ori zed an i nt erl o cu t o ry ap p eal . Id

.

In o u r fi rs t o p i ni o n o n t h e m at t er, we co n cl u d ed t h at OCGA § 4 8 -2 -3 5 d i d n ot

au t h o ri ze a cau s e o f act i o n fo r refu n d d i rect ly fro m t h e d eal er, an d t h at th e t ri al co u rt

erred b ot h wh en i t au t h o ri zed a d i rec t c l a i m ag ai n s t Geo rg i a Po w er fo r i m p ro p er

co l l ect i o n o f s al es t ax es an d w h en i t d en i ed Geo rg i a Po wer’ s m ot i o n t o d i s m i ss

p l ai n t i ffs ’ fi rs t t wo cl ai m s

. Ca z i er I

, 3 2 1 Ga. Ap p

. at 5 8 1. W e al s o co n cl u d ed

,

h o wev er, t h at p l ai n t i ffs ’ t hi rd cl ai m (t h at Geo rg ia Po wer i m p ro p erl y cal cu l at ed t h e

M FF) di d n o t i n fri n g e o n t h e PSC’ s ex cl u s i v e au th o ri t y to es t ab l i s h u t i l it y rat es

, an d

4we t h erefo re affi rm ed th e t ri al co u rt ’ s d en i al o f Geo rg i a Po wer’ s m ot i o n t o d i s m i ss

t h i s co u n t . Id . at 5 8 3.

On rem an d fro m

o u r ru l in g i n Ca z ier

I , p l ai n t i ffs am en d ed th ei r co m p l ai n t to

ad d a cl ai m fo r i m

p ro p er M FF cal cu lat i o n u n d er OCGA § 4 6 -2 -9 0

, wh i ch au t h o ri zes

cl ai m s ag ai n s t en t it i es s u b ject to PSC ju ri sd i ct i o n

. See Ca z i er II

, 3 3 9 G a. Ap p

. at 5 0 7.

Aft er G eo rg i a Po wer m o v ed fo r s u m m ary ju d g m en t

, t h e t ri al co u rt accep t ed Geo rg i a

Po wer’ s co n t en t i o n t hat p l ai n ti ffs h ad fai l ed t o ex hau s t t hei r ad m i n i s t rat i v e rem ed i es

,

d en ied cl as s cert i fi cat i o n , an d d i s m i s s ed t he en t i re act i o n . Id

.

In Ca z i er II

, we h el d t h at u n d er Geo rg i a ’s A d m i n i s t rat i v e Pro ced u re Act

(“ APA”), p l ai n t i ffs were req u ired to ex h au st t h ei r ad m i n i st rat i v e rem ed i es b efo re

b ri n g i n g s u i t o n l y

i f t h ey were “ ‘ ag g ri ev ed b y

a fi n al d eci si on i n a co n t es t ed cas e’ ”

o r had an “ ‘ o b

ject i o n t o an y o rd er o r d eci si o n ’ o f t h e rel ev an t ag en cy

. ” Ca z i er II

, 3 3 9

Ga. Ap p

. at 5 0 8 (1 ). Becau s e p l ai n t i ffs d i d n ot cl ai m t o b e ag gri ev ed b y or ob ject to

an y act i o n o r o r d e r b y t h e PSC, we co n cl u d ed

, t he ex h au s t i o n d oct ri n e d i d n ot

p recl u d e t h ei r cl ai m ag ai ns t G eo rg i a Po wer fo r it s al l eg ed im pro p er cal cu l at i o n o f t h e

M FF, an d we t h erefo re vacat ed t h e tri al co u rt ’ s ru l i n g an d rem an d ed fo r fu rt h er

p ro ceed in g s . Id . at 5 1 0 (2 ).

5Th e Su p rem e Co u rt o f Geo rg i a g ran t ed cert i o rari an d , i n Ca z i er III , affi rm ed

o u r co n cl u s i o n t hat p l ai n t i ffs were n o t p recl u d ed fro m b ri n g i n g s u i t ag ai n s t Geo rg i a

Po wer b ecau s e t he m eri t s of t he cl ai m were n o t wi t h i n t he PSC’ s ex cl u s i v e

ju ri s d i ct i o n

. Ca z i er III

, 3 0 3 Ga. at 8 2 3 -8 2 4 (2 ). T h e Co u rt n o ted

, h owev er, t h at t h e

reg u l at o ry ag en cy ’ s ex cl u s i v e rat e m ak i ng p o w er m ig ht b e i n fri ng ed i f th e t ri al co u rt

were t o “ m i sco n s tru e” th e PS C ’s o rd ers i n t h e cas e. Id

. at 8 2 4 (3 ). Th e Co u rt t hu s

rem an ded t h e cas e t o t h e t ri al co u rt us i ng t h e d o ct ri n e o f “ p ri m ary ju ri s d ict i o n ,” u n d er

wh i c h a t r i a l co u rt m ay

, i n i t s d i s cret io n

, co n su l t an ad m i n i s t rat iv e b o d y fo r i t s

o p i n i o n o n an y i ss u e w i t hi n t hat b o d y ’ s s p eci al co m p et en ce. Id

. at 8 2 5 (3 ). Th e Co u rt

en co ur a g e d t h e tri al co urt t o co n s i d er wh et h er t h e rev en u e t erm s i t d eem ed

am bi g uo u s s ho u l d b e referred t o t h e PS C f or t ech n i cal cl ari fi cat i o n o r s i m p l y

i n t erp ret ed b y

t h e co u rt i t sel f as a q u es t i o n o f l aw. Id . at 8 2 7 (3 ).

On rem an d fro m C

a z i e r I II

, t h e t ri al co u rt ap pl i ed th e d o ct ri ne o f p ri m ary

ju ri s d i ct i o n a n d s o u gh t a d et erm in at i on fro m t h e PSC as t o t h e m ean i n g o f t h e

rat em ak i n g t erm s “ r e v en u e,” “ u s ag e rev en u e,” an d “ t o tal rev en ue.” Th e t ri al co u rt

al s o co n d i t i o n al l y cert i fi ed th e cl as s b u t n ot ed th at

, as t h en d efi n ed

, i t in cl u d ed ev ery

m em b er o f t h e Fu lt o n Co u n t y

t ri al co u rt

.

6Aft er h eari n g arg u m en t , t h e PSC i s s ued a wri tt en d et erm i nat i o n t h at Geo rg i a

Po wer h ad p ro p erl y cal cu l at ed t h e M FF wh en i t a p p l i ed th e ch arg e as a percen t ag e

o f t o t al rev en u e fro m each cu s t o m er’ s b i l l

. No t in g t h a t Geo rg i a Po wer’ s rat es are

ap p ro v ed b y t h e PSC t o reco ver al l “ u s ag e” fro m cu s to m ers

, t he PSC fo un d t h at i t

wo u l d b e u n reas o n ab le t o ex cl u d e co s t reco v ery i t em s f r o m t h e M FF cal cu l at i o n,

es p eci al ly wh en co n s i d eri ng t h e m i n i m u m m o n t h l y b i l l

, wh i ch i n cl u ded t h e NCCRF

an d o t h er s i m i l a r c h a rg es

, ev en i f a cu s t om er had n o ki l o wat t -h o u r u s ag e fo r t h at

m o nt h

. Th e PSC o b s erv ed t hat n u cl ear co n st ru ct i o n co s t s an d en v i ro n m en t al

co m p l ian ce co s t s h ad p rev i o u s ly be e n inc lu d ed i n Geo rg i a Po wer’ s t o t al co ns u m p t i o n

rat e ch arg e b u t h ad b eco m e i t em i zed fo r co n s u m er cl ari t y i n 2 00 7

, an d n o ted t h at i t

h ad ap p ro v ed Geo rg i a Po wer’ s co m p l ian ce fi l in g s

, wh ich h ad ap p li ed t h e M FF t o t h e

t o t al rev en ue fro m each b i l l (i n c l u d in g rev en u e fro m co s t reco v ery i t em s ) i n 2 0 0 7,

2 0 1 0

, an d 2 0 1 3

. T h e PSC co ncl u d ed th at i t s o rd ers em p lo y ed “ u s a g e r e v e n u e” an d

“ t o tal rev en u e” i n t erch an g eab l y

, s u ch t h at Geo rg i a Po wer p ro p erl y ap p l i ed t h e M FF

b y cal cu l at i n g t h e ch arg e b as ed o n a p ercen t ag e o f each co n s um er’ s t ot al ch arg e.

On t h e cas e’ s ret u rn t o t h e t ri al co u rt

, p l ai n t i ffs m o v ed t o cert i fy t he cl as s wi th

a rev i sed d efi n i t i o n t hat ex cl ud ed Geo rg i a Po w er cu s t om ers wh o were al s o m em b ers

7o f t he ju d i ci ary

. 2 Aft er a h eari n g

, t h e t ri al co u r t c o n s i d ered t h e n um ero s i t y

,

co m m o n al i t y

, t y

p i cal i t y , ad eq u acy , p red o m in an ce, an d s u p eri o ri t y p rereq u i s i t es fo r

a cl as s act i o n

, fo u n d t h at t h e p l ai n t i ffs carri ed each o f t h es e bu rd en s

, an d cert i fi ed t h e

cl as s

. Th e co u rt t h en co n cl u d ed t h at t h e PSC’ s d et erm i nat i o n t h at Geo rg i a Po wer’ s

co l l ect i o n p ract i ces were v al i d was no t arb i t rary

, cap ri ci o u s

, o r cl earl y erro n eo u s

, an d

g ran t ed Geo rg ia Po w er’ s m o t i o n fo r s u m m ary ju d g m en t o n th i s b as i s

. Th es e cro s s

ap p eal s fo l l o wed

.

Cas e No . A2 1 A1 3 4 6

1

. Pl ai n ti ffs arg u e t h at t h e t r i a l co u rt erred wh en i t (a) referred th e l eg al

q u es ti o n o f t h e m ean i n g of t he t erm s “ rev en u e,” “ t o t al rev en ue,” an d “ us ag e rev en ue”

t o t h e PSC, an d (b ) g ran t ed s u m m ary j u d g m en t t o Geo rg i a Po w er o n t h e b as i s o f t h e

PSC’ s d et erm i nat i o n

.

2 Th e t ri al co u rt d efi n ed t h e cl as s as “ t h o s e el ect ri c s erv i ce cu s t o m ers o f

Defen d an t

, ex cl u d i ng el ect ri c s erv i ce cu s t om ers wh o are al s o ju d g es o r ju s ti ces o f t h e

Su p eri o r Co u rt s

, Co u rt o f Ap p eal s

, o r Su p rem e Co u rt

, wh o

, b et ween J an u ary 1

, 2 0 0 8

an d th e t i m e o f c e r t i f

i cat i o n

, were ch arg ed M un i ci p al Fran ch i s e Fees t h at were

c a l cu lat ed p u rs uan t t o t h e ch al l en g ed m u l t i p l i cat i o n m et h od o lo g y

, to wi t : b y

u n l awfu l l y fact ori n g t h e ap p l i cab l e p ercen t ag e ag ai n st a s u m o f t h e E n v i ro n m en t al

C om p l i an ce Co st Reco v ery

, Nu cl ear Co n s t ru ct i o n Co s t Reco v ery

, an d C u r r e n t

El ect ri cal Us ag e Serv i ce.”

8Th e l aw ap p l icab l e to o u r rev i ew o f th e PSC’ s ra t e m a k i n g p o wer i s wel l

es t ab l i s h ed

. “ [T] h e Pu b l i c Serv i ce Co m m i s s i o n

, rat h er t h an an y o t h er ag en cy o f t h e

ex ecu t i v e b ran ch

, h as au t h o ri t y t o r e g u l at e p u b l i c u t i l i t i es .” La s s et er v. Ga

. Pu b l i c

S er vi ce Co mm’n

. , 2 5 3 Ga

. 2 2 7

, 2 3 0 (1 ) (3 1 9 SE2 d 8 2 4 ) (1 9 8 4 ). Th e PSC “ was

creat ed fo r a s peci al p u rp o s e wi t h s p eci al co m p et en ce t o d eal wi t h s p eci al m at t ers

i n cl u d i n g t h e es t ab l i s h m en t o f rat es fo r p u b l i c u t i l i t i es .” Ga

. Pu b l i c S er vi ce Co mm’n

.

v. Gen

. Tel ep h o n e Co

. o

f S o u th ea st

, 2 2 7 G a. 7 2 7, 7 2 9 (1 8 2 SE2 d 7 93 ) (1 9 71 ). “ Th e

co m m i s s io n s h al l h av e ex cl u s i v e p o wer to d et erm in e w h a t are ju st an d reas o n ab l e

rat es an d ch arg es t o b e m ad e b y an y

. . . co rp o rat i on s u b ject t o i t s j u r i s d i ct i o n.”

OCGA § 4 6 -2 -2 3 (a). “ [P] re s c r i b i n g r at es fo r fu t u re ap p l i cat i o n i s an ex erci s e o f

q u as i-l eg i s l at i v e fu n ct i o n s b y a n ad m i n is trat i v e b o d y

. ” (Ci t at i o n s o m i t t ed .) Ga

.

Po wer Co

. v. Ga

. Pu b l i c S er vi ce Co mm’n

, 1 9 6 Ga. Ap p. 57 2

, 5 7 7 (3 ) (3 9 6 SE2 d 5 6 2 )

(1 9 9 0).

Pl ai n t i f f s w o u l d h av e u s co n s t ru e t h e p art i es ’ d i s p ut ed t erm s o u rs el v es

, an d

cri t i ci ze t h e t ri al co u rt fo r ab d i cat i n g t hi s l eg al fu n ct i o n

. It i s t ru e t h at

, as o u r Su p rem e

Co u rt h as ex p l ai n ed

, “ i t u s u al l y i s f o r t h e co u rt s t o res o l v e [an ] am b i g u i t y by

a s cert ai n i n g t h e m o st nat u ral an d reas o n ab l e un d ers tan d i n g ” o f a s t at u t e o r re gula tion.

Ti b b les v. Tea ch er

s R et i r em e n t S

y s

. o f Ga

. , 2 9 7 Ga. 5 5 7

, 5 5 8 (1 ) (7 7 5 SE2 d 5 2 7 )

9( 2 0 1 5 ) (em

p h as i s o m i t t ed ). “ Bu t wh en i t ap p ears t hat t h e Gen eral As s em b l y h a s

co m m i t t ed t h e res ol u t i o n o f s u ch an am b i g u i t y t o t h e d i s cret i o n an d ex p ert i s e o f an

ag en cy o f t h e Ex ecu t i v e Bran ch t h at i s ch arg ed w i t h t h e ad m in i s t rat io n of t h e s t at u t e,

t h e u s u al ru l e m ay n o t ap pl y .” Id . In t h es e ex cep t i on al cas es

, “ t h e co u rt s m us t d efer

t o t h e way i n wh i ch t h e ag en cy h as res o l v ed t h e am bi g u i t y i n q u es t i o n ,” b u t t h i s

d eferen ce i s l i m i t ed : t h e a g e n cy m u s t h av e “ res o l v ed t h e am b i gu i t y i n t h e p ro p er

ex erci s e o f i t s l awfu l d i s cret i on ” an d “ up o n t erm s t h at are reas o n ab l e i n l i g h t o f t h e

s t a t u t o ry t ex t.” (Ci t at i o n s an d p u n ct u at i o n o m i t ted .) Id

. at 5 5 8 -5 5 9 (1 ); s ee al s o

Ha n d el v. Po wel l

, 2 8 4 Ga. 5 5 0

, 5 5 3 (6 7 0 SE2 d 6 2 ) (2 0 0 8) (“ W h il e ju d i ci al d eferen ce

i s affo rd ed an ag en cy ’ s i n terp ret at i o n o f s t at u t es i t i s c h a r g e d wi t h en fo rci n g o r

ad m i n is t eri n g

, t h e ag en cy ’ s i n t erp ret at i o n i s n o t bi n d i n g o n t h e co u rt s

, w h i ch h av e t h e

u l t i m at e au t h o ri t y

t o co n s tru e s t at u t es .”).

Wi t h t h es e p ri n ci p les i n m i nd

, we t u rn t o p l ai n t i ffs ’ as sert i o n s th at t h e tri al

co u rt erred wh en it referred th is m at t er to t h e PSC an d wh en

, o n rem a n d f r o m t h at

ag en cy , i t g ran t ed s u m

m ary ju d g m en t t o Geo rg i a Po wer.

(a) As earl y as 2 0 1 5, t h e t r i al co urt co n cl u d ed t h at t h e term s “ t o t al rev en ue”

an d “ us ag e rev en u e” w ere am b i g u o u s s u ch t hat a PSC d et erm i n at i o n a s t o t h ei r

m ean i n g was d es i rab le, an d n o t h i n g i n t h i s Co u rt ’ s o r o u r Su p rem e Co urt ’ s

10s u b s eq u en t deci s io n s s u g g es t s th at t h i s co n cl us i o n was i n co rrect

. In d e e d

, o u r

Su p rem e Co u rt em

p h as i zed i n Ca z i er III t h at a tri al co u rt faced wi t h co n s t ru i n g an d

ap p ly i n g a d eci s i o n o f an ad m i ni s trat i v e ag en cy “ p ro p e r l y m ay refer es p eci al l y

d i f fi cu l t or t ech n i cal i s s ues wi t h i n t h e s p eci al i zed co m pet en ce of an ad m i n i s t ra t i v e

ag en cy t o t h e ag en cy i t s el f.” 30 3 Ga. at 8 2 6 (3 ). W h ere “ t h e d i s p u t ed wo rd s are u s ed

i n a p ecu l iar o r t e ch n i cal s en s e, an d wh ere ex tri n si c ev i d en ce i s n eces s ary to

d et erm i n e t h ei r m ean i n g o r p ro p er ap p l i cat i o n , s o t h at t he i n q ui ry i s es s en t ial l y

o n e

o f fact an d di s cret i o n i n t ech n i cal m at t ers

, a referral t o t h e ag en cy m ay b e warran t ed .”

(Ci t at i o n an d p u nct u at io n o m i tt ed .) Id

.

Here, t h e PSC’ s u s e o f t wo d i f f e r e nt t erm s – “ u s ag e rev en u e” an d “ t o t al

rev en u e”

– t o d es cri b e t h e b as i s f o r c a l c u l at i ng t h e s al es t ax g en erat ed o n t h e M FF

rai s ed a q u es t io n, p ro p erl y referred t o t hat ag en cy , as t o wh et her t h e t wo cat eg o ri es

d e s c ri b ed b y th o s e ap p aren t l y d i fferen t t erm s were t h e s am e. See, e.g

., Pa n d o r a

Fr a n c h i s i n g v. Ki n gd

o m R et a i l Gr o u

p

, 2 9 9 Ga. 7 2 3

, 7 28 (1 ) (b ) (7 9 1 SE2 d 7 8 6 )

(2 0 1 6) (wh en a s t at u t e u s es d i ffer e n t t e r m s

, a co urt p res u m es t h at t h e l eg i s l at u re

i n t en d ed t wo d i fferen t m ean i n gs fo r t h e t erm s ). Th e t ri al co u rt th u s d i d n o t ab u s e i t s

d i s cret i o n wh en i t i n v o k ed t h e pri m ary j u ri s d i ct i o n of t h e PSC fo r a n i n i t i al

d et erm i n at i o n as t o wh et h er t hes e t erm s ’ d i fferen ce was m erel y ap p aren t rat h er t h an

11real o r s u b s t an t i al

. See Del t a Tr a f f i c S er vi ce, In c. v. S

n id er , 1 9 7 Ga. Ap p . 3 7 7

, 3 7 8

(3 9 8 SE2 d 4 30 ) (1 9 9 0 ) (a tri al co u rt d i d n o t err i n i t s i ni t i al d eferen ce t o t he In t ers t at e

Co m m erce Co m m i s si o n o n t h e reas o n ab l en es s of s eek i n g rat e u nd erch arg es an d

s et t i n g t ari ffs ).

(b ) Th e tri al co u rt al s o d i d n o t ab u s e i t s di s cret i o n wh en i t accep t ed t h e PSC’ s

d et erm i n at i o n t h at Geo rg i a Po wer’ s cal cu l at i on o f t h e M FF was reas o n ab l e.

OCGA § 5 0 -1 3 -1 9

, w h i c h c o n cern s j u d ici al rev iew o f cas es i nv o l v i n g

ad m i n is t rat i v e rev i ew, p ro v i des i n rel ev an t p art :

(h ) [A ] c o u rt s h al l n o t s ub s t i t u t e i t s j u d gm en t fo r t h at o f t h e ag en cy as

t o t h e w ei gh t o f t h e ev i d en ce o n q u es ti o n s of fact

. Th e co u rt m ay affi rm

t h e d eci si o n o f t h e ag en cy o r rem an d t h e cas e fo r fu rt h er pro ceed i n gs

.

Th e co u rt m ay rev ers e o r m o d i fy t h e deci s i o n i f su b st an t i al ri gh t s o f th e

ap p el l an t h av e been p reju d i ced b ecau se t h e ad m in i s t rat iv e fi n d i n gs

,

i n feren ces

, co n cl u s i o n s

, o r d eci s i o n s are: (1 ) [i ] n v i o l at i o n o f

co n s t i t ut i o n al o r st at ut o ry p ro v i s i o ns ; (2 ) [i ] n ex ces s o f t h e st at ut o ry

au t h ori t y o f t h e ag en cy ; (3 ) [m ] ad e u p o n un l awfu l p ro ced u re; (4 )

[a] ffect ed b y o t h er erro r o f law; (5 ) [c] l earl y erro n e o u s i n v i ew o f th e

rel i ab l e, p ro b at i v e, an d s u b s t an t i al ev i d en ce o n t h e wh ol e reco rd ; o r (6 )

[a] rb i t rary o r cap ri ci o u s o r ch ara ct eri zed b y ab u s e o f d i scret i o n o r

cl earl y u n w arran ted ex erci s e o f d is cret i o n

.

12As we h av e n o t ed ab o v e, t h e PSC fo u n d th at i t wo u l d b e u nreas o n ab l e t o ex cl u d e co s t

reco v ery i t em s fro m t h e M FF cal cu l at io n

, es p eci al l y wh en co n s id eri n g t he m i n i m u m

m o nt h l y b il l

, wh i ch i n cl ud es t h e N C C RF an d o th er s i m i l ar ch arg es ev en i f t h e

cu s t o m er h as n o ki l o wat t -h o u r u s ag e. Th e PSC al s o n o t ed t h at i t h ad prev i o u s l y

ap p ro v ed Geo rg i a Po w e r ’s c o m p l i an ce fi li n g s

, wh i ch ap p l ied t h e M FF t o t h e t o t al

rev en u e fro m each b i ll (i n cl ud i n g rev en u e fro m co s t reco v ery i t em s ), in 2 0 0 7

, 2 0 1 0,

an d 2 0 1 3

. Bas ed o n t hi s h i s t o ry

, t h e PSC d et erm i n ed t hat i t s o rd ers em p l o y ed “ u s ag e

rev en u e” an d “ t o t a l r e v e n u e” i n t erch an g eab l y

, s u ch t h at Geo rg i a Po wer p ro p erl y

ap p li ed t h e M FF b y cal cu lat i n g t h e ch arg e b as ed o n a p ercen t ag e o f each co n s u m er’ s

t o t al ch arg e.

Becau s e t he PSC’ s d et erm i nat i o n s were s u p po rt ed b y s ub s tan t ial ev i d en ce an d

were n ei t h er arb i t rary n o r cap ri ci o u s, t h e PSC d i d n ot ab us e i ts ex cl u s i v e rat em ak i n g

au t h o ri t y wh en i t m ad e t hem

. Li k ewi s e, t h e t ri al co u rt d i d n ot ab us e i t s d i s cret i o n o r

co m m i t an erro r o f law wh en

, h av i n g co n cl u d ed t h at Geo rg i a Po wer’ s rat e w a s

reas on ab l e, i t g ran t ed s u m m ary ju d g m en t to Geo rg i a Po w er on t h at b as i s. See Del ta

Tr a ff i c

, 1 9 7 Ga. Ap p

. at 3 7 8 (a t ri al co u rt d i d no t err in referri n g t h e q ues t i o n o f a

t ari ff’ s reas o n ab l en es s to an ad m i n i s t rat i v e ag en cy fo r an i ni t i al det erm in at i o n ), ci t ed

wi t h ap p ro v al i n Ca z i er III

, 3 0 3 Ga. at 8 2 5 n

. 5 (3 ); Co o k v. Gl o ver

, 2 9 5 Ga. 4 9 5

, 5 0 1

13(7 6 1 SE2 d 26 7 ) (2 0 14 ) (rev ers i n g t h e Co u rt o f Ap p eal s ’ rev ers al o f an ad m in i s t rat i v e

ag en cy ’ s i n t erp ret at i o n o f an am b i g u o u s s t at u t o ry p ro v i s io n wh en t h e ad m in i s t rat i v e

i n t erp ret at io n was “ reas on ab l e an d en t i t l ed t o d eferen ce”).

Cas e No . A2 1 A1 3 4 7

2

. In l i g h t o f o ur co n cl us i o n ab o v e t h at t h e t ri al co u rt d i d n o t err wh en i t

g ran t ed s u m

m ary ju d g m en t t o Geo rg ia Po w er, we accep t Geo r gia P ow e r’ s co n ces s i o n

t h at t h e cro s s -ap peal co n cern i n g t h e cert i fi cat io n o f t h e cl as s i s m o o t

. See, e.g

., Fa b er

v. Ci o x Hea l t h , LLC , 9 4 4 F.3 d 5 9 3 , 6 0 4-6 0 5 (6 t h Ci r. 2 0 19 ) (i n t h e wak e o f a g ran t

o f ju d g m en t to a d efen d an t

, “ t he cl as s cert ifi cat i o n carri es n o effect ” an d i s “ a n u l l i t y ”

s u ch th at t he cas e “ n eed n ot b e rem an d ed t o i s s u e p o s t -ju d g m en t n ot i ce”).

Ju d g men t a f f ir med in Ca s e No

. A2 1 A1 3 4 6. Ca s e No

. A2 1 A1 3 47 d i s mi s s ed a s

mo o t . Di l l a r d

, P. J., a n d

Mer ci er , J., co n cu r

.

14