Document: 405 U.S. 251 92 S.Ct. 885 31 L.Ed.2d 184 State of HAWAII, Petitioner,v.STANDARD OIL COMPANY OF CALIFORNIA et al. No. 70—49. Argued Oct. 21, 1971. Decided March 1, 1972. Syllabus Section 4 the Clayton Act does not authorize a to sue for damages an injury its general economy allegedly attributable violation antitrust laws. Pp. 257—266. 431 F.2d 1282, affirmed. Maxwell M. Blecher, San Francisco, Cal., petitioner. Francis R. Kirkham, respondents. [amici curiae information on Pages 251-252 intentionally omitted] Mr. Justice MARSHALL delivered opinion Court. 1 The issue presented by this case is whether § Act, 38 Stat. 731, 15 U.S.C. 15, authorizes laws United States. We hold that it not. I. PROCEDURAL HISTORY 2 Hawaii filed initial complaint April 1968, against three four respondents.1 On May 24, and again August 19, hawaii amended complaints. third complaint, September 6, raised first time herein. named all respondents as defendants charged them with violating Sherman 26 209, in following ways: entering into unlawful contracts; conspiring combining restrain trade commerce sale, marketing, distribution refined petroleum products; attempting monopolize actually monopolizing said commerce.2 sought recover distinct capacities: proprietary capacity overcharges products sold itself (first count); parens patriae similar paid citizens (second representative class purchasers identical (third count). second count read, relevant part: 3 '18. above-named plaintiff (Hawaii), (acts) patriae, and/or trustee use who purchased products, from any defendant or co-conspirator herein . .. '19. contracts, combination, conspiracy restraint trade, combination monopolize, monopolization have resulted plaintiff, citizens, paying more than would been freely operating competitive market. Plaintiff has yet ascertained precise extent damage however, when amount ascertained, will ask leave Court insert sum herein.' 5 Very language appeared class-action count. In counts, both injunctive monetary relief. 6 After each moved dismiss counts District held hearing determine propriety State's suing behalf citizens. With respect two, court 'has even alleged interest citizens' claims, much less own aside rights,' granted motions dismiss.3 Viewing action being 'overlapping, parallel alternative to' claim, dismissed well.4 7 fourth February 27, 1969. This which we are concerned. Count one contains reiteration Hawaii's claim excessive price two states new drawn action. 8 stated manner: 9 Hawaii, acting through Attorney General, brings virtue duty protect welfare trustee, guardian for, secure relief against, violations hereinbefore alleged. 10 '20. monopolization, alleged, injured adversely affected prosperity in, among others, 11 '(a) revenues wrongfully extracted Hawaii; 12 '(b) taxes affecting commercial entities increased affect such losses income; 13 '(c) opportunity manufacturing, shipping (sic) restricted curtailed; 14 '(d) full complete utilization natural wealth prevented; '(e) high cost manufacture precluded goods made there equal access those other States national market; 16 '(f) measures taken promote progress people frustrated; '(g) state arrested development. 17 '21. citizens; 18 complaint. As previous seeks 19 Respondents was had ground 'under circumstances ., based upon every individual purchaser gasoline State, context pleadings, be unmanageable.'5 rather extensive opinion, examined law developed concerning suits denied 301 F.Supp. 982 (1969). Recognizing unclear, certified decision denying interlocutory appeal pursuant 28 1292(b).6 appeal, Appeals Ninth Circuit reversed directed dismissed.7 1282 (1970). Certiorari so might review decision. 401 936, 91 931, 215 (1971). II. THE STATE AS PARENS PATRIAE 20 concept derived English constitutional system. system feudal beginnings, King retained certain duties powers, were referred 'royal prerogative.' Malina & Blechman, Parens Patriae Suits Treble Damages Under Antitrust Laws, 65 Nw.U.L.Rev. 193, 197 (1970) (hereinafter Blechman); Protection Economy Environment: Damages, Col.J.L. Soc.Prob. 411, 412 Protection). These powers exercised his 'father country.'8 Traditionally, term used refer King's power persons under legal disabilities act themselves.9 For example, Blackstone refers sovereign 'the infants, idiots, lunatics,'10 superintendent 'all charitable uses kingdom.'11 States, prerogative' 'parens patriae' function passed 21 nature suit greatly expanded beyond existed England. expansion evidenced Louisiana v. Texas, 176 251, 44 L.Ed. 347 (1900), brought enjoin officials Texas administering quarantine regulations prevent merchants sending Texas. recognized sue, because particular business but her U.S., at S.Ct., 257. While found could properly invoked case, utility clearly recognized. 22 Court's acceptance notion followed series cases: Missouri Illinois, 180 208, 331, 45 497 (1901) (holding permitted Illinois Chicago sanitation district discharge sewage Mississippi River); Kansas Colorado, 206 46, 27 655, 51 956 (1907) diversion water interstate stream); Georgia Tennessee Copper Co., 230, 618, 1038 entitled fumes copper plant across border injuring land five counties); People New York Jersey, 256 296, 41 492, 937 (1921) harbor); Pennsylvania West Virginia, 262 553, 43 S.Ct 658, 67 1117 (1923) restraints flow gas); North Dakota Minnesota, 263 365, 138, 68 342 Minnesota changes drainage increase stream). 23 cases establish right repair harm 'quasisovereign' interests.12 They deal primarily original directly Art. III, 2, Constitution common-law rights question may maintain lawsuit compensable Act. Hence, cannot resolved simply reference principles governing actions. 24 only ever faced what relief, if any, offer 324 439, 716, 89 1051 (1945), relied most heavily parties invoke jurisdiction filing bill railroads, alleging, essence, railroads conspired fix prices manner favor shippers (particularly Northern States) detriment shippers. 25 Like suit, arose federal It plain face '(t)he prayer (was) relief.' 445, 720. See id., 446—447, 450—451, 720—721, 722—723.13 claimed severely damaged upheld Georgia's no occasion consider also authorized economy, since approval challenged rates Interstate Commerce Commission barred recovery remedy given unfair advantage over Keogh Northwestern 260 156, 47, 183 (1922). Nowhere did address State. Thus, here open. III. HAWAII AND ANTITRUST LAWS grounds treble reads: 'Any person shall property reason anything forbidden therefor resides agent, without controversy, threefold him sustained, including reasonable attorney's fee.' 29 section notably different 26, provides relief: 30 person, firm, corporation, association having parties, threatened loss same conditions conduct cause courts equity, rules proceedings ..' plainly qualifies sections statute, sues patriae. 447, 721. But critical asserted 'business property.' 32 legislative history Acts very instructive why Congress included property' requirement 4, 16. likely explanation lies essential differences between remedies. 33 Government, governments laws, while they theoretically do simultaneously violations, fact injunction effective 100, and, concomitantly, 100 injunctions one. illustrates point well. virtual agreement can little consequence long seek capacity. some theoretical exist capable enforcing opposed secured capacity, these crucial case. 34 position numerous claims different. If sued separate cumulative damages, potential liability obviously far greater claim. striking contrast impact damages. 35 Every blow free-enterprise envisaged Congress. Pacific Co. 356 78 514, 517, 545 (1958). depends strong competition health vigor, depends, turn, compliance legislation. enacting many means disposal penalize violators. have, required violators compensate federal, state, local estimated their respective economies caused violations. But, selected. Instead, chose permit times actual violation. By offering litigants prospect encouraged serve 'private attorneys general.' See, e.g., Zenith Radio Corp. Hazeltine Research, Inc., 395 130—131, 1562, 1580—1581, 129 (1969); Perma Life Mufflers, Inc. International Parts Corp., 392 134, 147, 88 1981, 1988—1989, (1968) (Fortas, J., concurring result). 36 permits suffered respondents' violations.14 gives citizen property. Were we, addition, open door duplicative recoveries. 37 A large ultimately indeterminable part 'general economy,' measured economists, reflection injuries consumers, themselves 4. Even lengthy expensive trial final analysis, cope problems double inherent allowing economic interests individuals quasi-sovereign At least, latter type should insist clear expression congressional purpose make so, lower considered meaning words property,' conclude enterprises. Roseland Phister Mfg. 125 417 (CA7 1942); Hamman 267 420 (Mont. 1967), dismissed, 399 673 (CA9 1968); Broadcasters, Morristown Broadcasting 185 641 (NJ 1960). When interests, where, here, injuries, within 39 Support reading 15a,15 provision authorizing limits makes quite recover, Government's ability carry out functions, consumer services. 40 'The is, course, amply equipped criminal civil process enforce proposed legislation, properly, treats solely buyer suffered.' S.Rep.No.619, 84th Cong., 1st Sess., (1955). H.R.Rep.No.422, 2—5 (1955); U.S.Code Cong. Admin.News, p. 2330. light well 15a, manifest functions. And conclusion nearly inescapable language, 42 note passing costs burdens protracted litigation render private impotent bring treble-damage actions, thus allow go virtually unremedied. Private powerless, suggests. regard controversy. 1337; 15. Rule Federal Rules Civil Procedure actions enhance efficacy permitting combine limited resources achieve powerful posture. unwieldy; never Respondents, moving action, conceded appropriate circumstances. successful recovers litigation, fees, provide scarity members Bar aid prospective plaintiffs bringing suits. may, theory, related definitely preferable area. specific delineating plaintiff-class, establishes bound effectively prevents judgment affirmed reasons above. 46 So ordered. 47 POWELL REHNQUIST took consideration 48 DOUGLAS, dissenting. 49 Today's reflects miserly approach fashioning remedies rectifying collective itself. reminiscent illstarred Ohio Wyandotte Chemicals 493, 1005, 256.1 50 'duty citizens.' She alleges respondent oil companies 'injured prosperity' follows: 52 53 54 55 56 development.' 57 I see way distinguishing instant 1051. resulting fixing railroad rates. Id., 446, said: 58 'Georgia public complaining wrong, proven, opportunities people, shackles industries, retards development, relegates inferior sister matters grave concern apart affected.' 451, 723. 59 So-called 'growth,' 'progress,' 'development' symbols modern society; represent goal planners—private alike—establish attain. plays important, crucial, role achieving goal.2 sustain allegations proof, she respects tourism industry, 'growth' 'development.' 60 'skeptical existence independent economy.' 1285. Alabama brief amicus: 61 'Economists models measuring effects infusions extractions sums money economies. short, state's susceptible articulation measurement.' 62 magnet industry growth. No stand shoes respects, represents collective. Those merely plants, factories, hotels proprietor. indisputable prove recovery. BRENNAN points out, technicality irrelevant present 63 Injury commonly include event recovered later entrepreneurs. might, shown individual's period failed single entrepreneur still able drove wall. difficulties advanced imaginery real. doubtless rationales express prejudice liberal construction Since trial, saving interests. 64 adhere chance charges actuality need equitable relief.3 reverse remand trial.4 66 BRENNAN, whom DOUGLAS joins, sale products. 'economy prosperity,' withdrawal revenues, offset losses, curtailment shipping, commerce, Hawaiian unmanageable, motion An 1292(b), ordered dismissal two. suffer persons, too remote my view, requires reversal. several transportation noted Court, ante, 259 n. 13, complaint—in quasi-sovereign, Treating 'for relief,' 720, Georgia, proprietor, party claims: 69 enforcement sanctions (the antitrust) acts entrusted exclusively government. Evans (316 159, 162, 972, 974, 86 1346). came course find indication that, fashioned remedies, There apparent excluded purview anti-trust acts.' 70 operate illegal rebate already approved Commission. Implicit decision, holding involving agency-approved charges. That applies force here. complaining, affront abstract sovereignty, occasioned conspiracy. characterized wrong 'which States.' sufficient basis then supports 71 dispositive, runs assumption though concededly wholly agree capacities, unrelated justify treatment Chattanooga Foundry Pipe Works City Atlanta, 203 390, 65, 241 (1906), city treble-damages pipe whose trust invalidated Addyston Steel 175 211, 96, 136 (1899). Claiming "in property," 395, pipes municipal upholding stated: 72 'It property, furnishing water, led pay worth pipe. diminished payment induced 396, 66. 73 Evans, 316 1346 (1942). 74 determinant, then, 'property induced.' Chattanooga? Clearly nothing added expense incurred city's treasury result transaction, population whole, savings expenditures accrued benefit. 75 sort protected tourist particularly vulnerable seeking preserve tax generated thereby, asserting significantly involved Chattanooga. Whether remedied consists additional payments purse, failure generate wealth, either instance same—the government population, entities, well-being. stretch traditional concepts applying label other.* 76 undercut 'actual suffered' 'solely goods.' Nothing similarly restricts 15a shows, major emphasis during passage methods enforcement. '(I)t believed method, addition imposition penalties originally hoped encourage bear considerable burden save Government money.' 2; 2329. Thus litigants, hope triple recovery, seen instrument enforcement, supplemented prosecutions forfeiture Government. not, adequately volume procurement grew collusion suppliers became increasingly evident. mischief enacted curb: 77 American taxpayer value dollar. He going pockets wrongdoers form profits gained he spending himself, Surely, protection where spends him. provable practices engaged business, (§ 15a) afford safeguards necessary Public Treasury deter conspire dealings departments.' 4—5 time, felt 'unlike situation furnish special incentive heavy responsibility charged,' therefore 'to actual, distinguished treble, damages.' 'amply supra, 3; 79 served narrower provisions Acts. equipped' 'criminal process' needed 'as hand lacked process.' Yet viewed primary enforcers policy armed weapon stimulating efforts. intend pursues 80 Finally, necessarily lead definition 'independent behind titles citizens,' 237, 619, (1907), individually constituted class. problem, like uncertainty better answered after pleadings. 81 sum, think questions analogous reasons, pleaded Chevron Asphalt pointed text, infra, company complaints raise abandoned Robinson-Patman 1526, 13(a), violated. resurrected stages proceedings. unreported, contained App. 51—58. 58. Reporter's Tr. 154 (May 29, 1969). offered certify count, indicated intention ruling. ruling appealed before review. Although entirety, suggested foreclosed obtain injunction. 197; Protection, 412. W. Blackstone, Commentaries *47. Ibid. Article confers another order jurisdiction, must (1900); Hampshire Louisiana, 108 76. 176. 656 (1883); Oklahoma Atchison, T. S.F.R. 220 277, 434, 465 (1911). violates Eleventh Amendment designated individuals. supra; 376, 140, (1923). evident slightly protector (fourth although last true, suggests, affects Each effect increasing taxes, reducing services, both. mean kinds nature. Where occurs marketplace, 'payment induced,' 66, established overcharge. victim overcharge partially recouped way, recoup seller. Hanover Shoe, Shoe Machinery 481, 489, 2224, 2229, 1231 (1968). Measurement hand, involves examination variable health—a task extremely difficult, 'in real world economist's hypothetical model.' 2231. unanimous concluding conceivably traced Miley John Hancock Mutual Insurance 148 299, 303 (Mass.), aff'd, 242 758 (CA1), cert. denied, 355 828, 38, (1957); Billy Baxter, Coca-Cola (CA2 1970), 923, 877, 826 (1971); Kauffman Dreyfus Fund, 434 727, 732—734 (CA3 1190, 323 South Carolina Council Newton, 360 414, 419 (CA4), 385 934, 87 295, (1966); Dailey Quality School Plan, 380 484 (CA5 1967); Volasco Products Lloyd A. Fry Roofing 308 383, (CA6 1962), 372 907, 83 721, 717 (1963); Commonwealth Edison Allis-Chalmers 315 564, 566—567 (CA7), sub nom. 375 834, 84 64, Sanitary Milk Producers Bergjans Farm Dairy, 368 679, 688—689 (CA8 1966); Hoopes Union Oil 374 480, 485 Nationwide Auto Appraiser Serv. Association Cas. Sur. 382 925, 928—929 (CA10 1967). 'Whenever hereafter sustained suit.' 282, U.S.C 15a. 1955 Cooper 312 600, 742, 85 1071 (1941), 'person' predecessor Act). Recovery reasoned unlike party, extraordinary Wyandotte, refused exercise pollution Lake Erie manufacturing plants Michigan Ontario, Canada, practical matter, inappropriate attempt adjudicate issues 501, 1011. our appointment masters, rationale questionable best. 510—512, 1015—1016 (Douglas, dissenting). generally Woods Reed, Supreme Environmental Quality: Some Notes Case, Ariz.L.Rev. 691 'In respects—as clearing house institutional innovations; agency resolution conflicts group interests; socially infrastructure—the assumes key importance channeling explosive impacts continuous structural changes, providing proper framework proceeding revolutionary speed, prevented exploding war (as sometimes have). rate change structure linked organizing unit. accidental analyzing growth, talk growth nations accounts. doing imply important factor growth; transnational, worldwide character supply useful knowledge science, permissive unit, adjusting social institutions facilitate maximise application, supplementary role.' S. Kuznets, Economic Growth Nations 346—347 concerns grants antitrust' settled 452, 723, available My quarrel extend approving possibility 266. Cf. Comment, Wrongs Without Remedy: Concept S.Cal.L.Rev. 570, 580—583 'unmanageable' Fed.Rule Civ.Proc. us * seems concede saying 'injury here.' Ante, 14. assessment difficult concludes (not) nature.' confuses issues. proof mere difficulty claimed. entirely proving Brother quantified, least approximated.

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