Document: 66 L.Ed.2d 416 101 S.Ct. 488 449 U.S. 232 FEDERAL TRADE COMMISSION et al., Petitioners,v.STANDARD OIL COMPANY OF CALIFORNIA. No. 79-900. Argued Oct. 15, 1980. Decided Dec. Syllabus The Federal Trade Commission (FTC) issued a complaint against respondent and several other major oil companies, alleging that the FTC had "reason to believe" companies were violating § 5 of Act (Act), which prohibits unfair methods competition or deceptive acts practices in commerce. While adjudication before an Administrative Law Judge was still pending, respondent, having unsuccessfully sought have withdraw complaint, brought action District Court, its without Act, seeking order declaring unlawful requiring it be withdrawn. Court dismissed action. Appeals reversed, holding could inquire whether fact made determination reason believe issuance "final agency action" under 10(c) Procedure (APA) Held : FTC's not APA hence judicially reviewable conclusion administrative adjudication. Pp. 238-246. (a) definitive ruling regulation no legal force practical effect upon respondent's daily business than disruptions accompany any litigation. Abbott Laboratories v. Gardner, 387 136, 87 1507, 18 681, distinguished. Immediate judicial review would serve neither efficiency nor enforcement Act. 239-243. (b) Although by requesting awaiting refusal do so, may exhausted remedy as averment believe," does render "definitive" Such augment complaint's on diminish concern for P. 243. (c) expense disruption defending itself, even if substantial, constitute irreparable injury respondent. 244. (d) Respondent's challenge will become "insulated" from is reviewed concludes, since court appeals reviewing cease-and-desist has power alleged unlawfulness assuming "committed discretion law." 244-245. (e) Since averring step toward, merge in, decision merits, claim illegality subject "collateral" order. Cohen Beneficial Loan Corp., 337 541, 69 1221, 93 L.Ed. 1528, 246. 9 Cir., 596 F.2d 1381, reversed remanded. Sol. Gen. Wade H. McCree, Jr., Washington, D. C., petitioners. George A. Sears, San Francisco, Cal., Justice POWELL delivered opinion Court. 1 This case presents question concludes. 2 * On July 18, 1973, served eight including Standard Oil Company California (Socal),1 38 Stat. 719, amended, 15 U.S.C. 45,2 stating Commission's charges respect.3 authority 5(b) 45(b), provides: 3 "Whenever shall . person, partnership, corporation been using method act practice affecting commerce, appear proceeding respect thereof interest public, issue such containing notice hearing. ." 4 An began soon thereafter Judge, pending. May 1, 1975, Socal filed Northern California, Act.4 this relief denied.5 In support allegation request, recited series events preceded followed. Socal's estimation, only inference drawn these lacked sufficient evidence when warrant belief 6 gist recitation preceding political pressure public explanation gasoline shortages 1973 forced despite insufficient investigation. 31, 1973. As day, examined employees, documents, books Socal's, although announced December 1971, intended investigate possible violations petroleum industry. 7 Senator Henry M. Jackson, then Chairman Senate Interior Insular Affairs Committee Permanent Investigation Subcommittee Government Operations, requested "to prepare report within thirty days regarding relationship between structure industry related industries current prospective products." Immediately subpoenaed three officers testify it, they did so late June. examination inquiry records, interview officer, prior complaint.6 6, sent Jackson "Preliminary Staff Report Its Petroleum Industry," because yet "been evaluated approved Commission." 9, informed letter he publish congressional committee reprint unless explained 13 why release improper. responded 11 report, characterized "an internal staff memorandum," "inconsistent with [the Commission's] duty proceed judiciously responsibly determining what, any, should taken basis investigation." 13, released publication Affairs. complaint. 8 subsequent confirm issuing determine One event August 27 Office Energy Advisor Department Treasury, concluding wrong implying contrived shortages. recommended A second Jackson's statement January 1974, at hearings about shortages, found "hard evidence" created addition expressions doubt allegations recounted failures counsel comply orders law judge identify witnesses documents rely. admitted most hoped introduce secured through discovery, moved relax procedural rules allow extensive discovery. certifying motion Commission, "withdrawal adjudication-that is, dismissal prejudice-so more fully investigated." denied counsel's declined follow Judge's recommendations. ground "a preliminary decisions agencies, except unusual circumstances, productive nothing chaos." Ninth Circuit reversed. 1381 (1979). It held provided requisite discretion" therefore unreviewable according 10 (APA), 701(a)(2). held, however, If find remand "solely outside complete absence 'reason believe' determination," F.2d, 1386, dismiss further APA, 704. We granted petition writ certiorari importance questions raised request 445 903, 100 1077, 63 318 (1980). now reverse. II averred That otherwise "directly reviewable" conclude neither.7 12 action." observed 149, 1516, 681 (1967), "[t]he cases dealing actions interpreted 'finality' element pragmatic way." Laboratories, example, certain regulations Commissioner Food Drugs final declaratory judgment enforcement. required manufacturers prescription drugs print information drug labels advertisements. statements position, d., 151, S.Ct., "direct immediate day-to-day business" complaining parties. Id., 152, 1517. They "the status law" "immediate compliance their terms expected." Ibid. addition, presented "legal fit resolution." 153, 1518. Finally, parties represented almost all affected regulations, pre-enforcement [was] calculated speed enforcement" relevant 154, Taking similarly flexible view finality," id., 150, similar considerations, Columbia Broadcasting System United States, 316 407, 62 1194, 86 1563 (1942), Frozen Express 351 40, 76 569, 910 (1956), States Storer Co., 192, 763, 1081 (1956).8 case, materially different. By terms, position. represents threshold warranted initiate proceedings. To sure, avers Act.9 But extent proves comparable manner discussed. 14 Section conjunction 16 CFR §§ 3.41-3.46 (1980), 554 (1976 ed. Supp. III), requires contain hearing present testimony refute charges. Either party appeal adverse full 557; 3.52 (1980); see 45(c), See 45(c). instead enters cease desist engaging challenged bound until opportunity seek lapsed. 45(g).10 Thus, prerequisite position violated but itself adjudicatory proceedings commence. Cf. Ewing Mytinger & Casselberry, Inc., 339 594, 70 870, 94 1088 (1950); Chicago Southern Air Lines, Inc. Waterman S.S. 333 103, 68 431, 92 568 (1948). Serving proceedings, business. "risk serious criminal civil penalties" noncompliance, U.S., 1517, "change labels, advertisements, promotional materials; destroy stocks printed matter; invest heavily new printing type supplies." contend effect, impose burden responding it. certainly different kind burdens attending what heretofore considered contrast lack Socal, likely interference proper functioning courts. Judicial intervention into process denies correct own mistakes apply expertise. Weinberger Salfi, 422 749, 765, 95 2457, 2466, 45 522 (1975). Intervention also leads piecemeal least inefficient completion might prove unnecessary. McGee 402 479, 484, 91 1565, 1568, 29 47 (1971); McKart 395 185, 195, 89 1657, 1663, 23 194 (1969). Furthermore, unlike decided delay resolution ultimate violated. every make made. averments complaints means turning prosecutor defendant 17 sum, regulation. And These considerations B relies, contending 19 first contends remedies moving thus affording decide matter, satisfied interests underlying doctrine exhaustion. supra, 2466. agreed. 1387. think, mistaken exhaustion finality. well believe. reconsider Socal. Nor concerns 20 irreparably harmed immediately. argues protracted constitutes harm. indicated above, we substantial. annoyance litigation 'part social living government.' " Exploration, Public Service Comm'n, 304 209, 222, 58 834, 841, 82 1294 (1938). recently reiterated: "Mere expense, substantial unrecoupable cost, injury." Renegotiation Board Bannercraft Clothing 415 24, 1028, 1040, 39 123 (1974). 21 can never stated Appeals, "is insulated review" deferred appellate suggests adequate record address supported order.11 22 are persuaded speculation. expressly authorizes take additional evidence.12 inadequate adequate. note specifically provides "preliminary, procedural, intermediate directly action," 704, empowers "hold set aside observance procedure 706. law,"13 need finds suffices hold possibility affect application finality rule. Macauley 327 540, 545, 712, 714, 90 839 (1946). C There remains contention 1528 (1949). "fall[s] small class [of decisions] finally claims right separable from, collateral to, rights asserted action, too important independent cause require consideration whole adjudicated." 546, 1225. diversity refused state statute shareholders bringing derivative suit post security bond defendant's expenses. Court's 28 1291. Giving section "practical rather technical construction," concluded "did toward disposition merits merged judgment." 24 avail What said above makes clear merits. Therefore, abide III 25 Because concludes.14 reverse 26 ordered. STEWART took part case. STEVENS, concurring judgment. "Agency statutory term identifies conduct executive agencies Congress federal court.1 general, encompasses formal orders, rules, interpretive crystallize modify private rights.2 Agency merely intermediate" termination interlocutory made.3 Today holds category. footnote, ante, 238-239, n.7, determines ever body reviewable. 30 my opinion, intend authorize definition "agency 551(13) plainly contemplates affects some way. points out, 242, mere rights. agency's file impact who must respond complaints, caused litigant's lawsuit prosecutor's grand jury. same rule, order, license [or sanction]."4 I am aware history, indicates decision. 31 consequences contrary holding-that prelitigation decision, now, later5-confirms reflect intent Congress. ultimately prevails surely immunity uncover after filed. hand, prevails, there occasion advances, seeks available meaningful had. 32 casual reading unfortunate another reason. novel jurisdiction footnote lend notion courts "carte blanche" authorizing supervision everything Executive Branch do. inevitable quantity quality service, judges especially careful construe strictly. respectfully disagree perfunctory analysis issue. do, concur meaning 10(b) 702. seven respondents Exxon Texaco, Gulf Mobil Co. (Indiana), Shell Atlantic Richfield re Corporation, Docket 8934. forth 45, pertinent part: "(a) (1) Unfair declared unlawful." charged "maintained reinforced noncompetitive market refining crude products," "exercised monopoly followed "common courses accommodating needs goals each throughout industry." invoked federal-court 704 1331, 1337, 1346, 1361, 2201. February 12, 1974. reconsideration, stating: "[I]t long settled adequacy violation occurred stop 'public interest' matters go mental processes Commissioners Once resolved litigated pre-complaint diligence study material occurred. posture instant matter." 83 F.T.C. 1759, 1760 those records produced. subpoena quashed 27, commencement "final" 2(g) that, 10. agree language legislative history conclusion. According 701(b)(2), given 2, 551. 'agency action' includes license, sanction, relief, equivalent denial thereof, failure act," 551(13), 'order' matter rule making. 551(6). APA: "The brings together previously defined simplify judicial-review provisions assure coverage form power, proceeding, inaction. supporting procedures, findings, conclusions, reasons inaction." S.Doc. 248, 79th Cong., 2d Sess., 255 disposition" our Communications proscribing contractual arrangements chain broadcasters local stations. regulate contracts; stations maintained contracts. brought, noted sanctions after," "promulgated Commission," expected conformity them causes cognizable equity." 418-419, 1200. Interstate Commerce specifying commodities deemed "agricultural commodities." carriage exempted vehicles ICC supervision. carrier transporting ICC's included terms. announcing policy television licenses applicants already owning five licenses. rulemaking "operate[d] control affairs Storer." 199, 768. much denying reconsideration dismiss. n. 5, supra. Possible certiorari. 45(g). additionally suggested moot prevailed contrary, one principal await obviate review." Supra, 242; mooted warrants requirement pursue adjudication, shortcut 5(c), "If either leave adduce evidence, show satisfaction reasonable grounds adduced conditions proper." Contrary suggestion STEVENS his open 7, holding, encourage conscientious obligation 45(b). last months years. result divert management personnel duties corporation. Without well-grounded occurred, subjecting enterprises burdens. Title 702 "A person suffering adversely aggrieved statute, entitled thereof." 701(b)(2) "For purposes chapter— "(2) 'person', 'rule', 'order', 'license', 'sanction', 'relief', meanings 551 title." act." preliminary, n.2, partial quotation "order" 551(6), 239, implies regards initial "part" terminating proceeding. plain misreading definition. ordinary reader interpret refer paragraphs sections document, entry Under reading, presumably filing brief directed review. 551(6) reads, full, follows: disposition, affirmative, negative, injunctive, form, making licensing." proscribed compliant later showing "clear convincing" overcome strong presumption Dunlop Bachowski, 421 560, 567, 1851, 1857, 44 377

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