Opinion ID: 2544420
Heading Depth: 1
Heading Rank: 5

Heading: The PUC's Choice of Remedy in this Case

Text: Here, the PUC analyzed the available remedies and chose to order reparations; it rejected the option of seeking civil penalties through the institution of a lawsuit filed by the Attorney General. We affirm the PUC's choice. 1. Reparations We review the PUC's decisions only to determine whether the commission has regularly pursued its authority, including a determination of whether the decision under review violates any right of the petitioner under the constitution of the United States or of the state of Colorado, and whether the decision of the commission is just and reasonable and whether its conclusions are in accordance with the evidence. § 40-6-115(3), 11 C.R.S. (2002); see CF & I Steel, L.P v. Pub. Utils. Comm'n, 949 P.2d 577, 584-85 (Colo. 1997). Upon determining this case not to be moot, we also determine that we need not remand this case to the district court for further review. Archibold's primary contention in this appeal is one of law, whether the commission must seek civil penalties. We determine as a matter of law that the statutes do not require the commission to invoke that remedy. The record documents the PUC's choice of remedies in this case. The PUC considered the remedies available to redress the Qwest rule violations and selected reparations. The PUC explained in its decision that reparations are related to the rates paid (or might be paid) by customers for regulated services [and may not be] specifically designed to adjust rates prospectively to reflect the quality of service actually provided by [Qwest] in the future. This interpretation of reparations is reasonable and consistent with our previous examination of reparations. See Peoples Natural Gas Div., 698 P.2d at 257, 263 (holding that the PUC properly awarded reparations to customers who had paid for and received lower quality products than the utility was legally required to deliver, and stating that reparations provide a remedy for overcharging of a utility's ratepayers); Bonfils v. Pub. Utils. Comm'n, 67 Colo. 563, 577, 189 P. 775, 780 (Colo.1920) (upholding agency finding that the amount of reparation should be the difference between the rates paid and the reasonable rates for the period). The PUC then considered Archibold's contention that reparations may only be given to customers who could be specifically identified as having paid excess charges to Qwest. It reasoned that no authority holds that the Commission is unable to order customer reparations in the absence of the ability to precisely identify those customers who paid excessive charges and the precise amounts overpaid by each customer. The PUC found that Qwest customers paid too much for the substandard service they received. The PUC arrived at a method for calculating the reparations after hearing the arguments of the PUC staff, the OCC, and Qwest. Archibold did not offer any counter evidence or argument on reparations methodology or amount, continuing to insist that (1) only civil penalties collected at $2,000 per violation in a court of law would suffice to redress the rule violations and (2) the reparation payments the commission ordered were actually inadequate civil penalties. Contrary to Archibold's contention, we determine that the PUC's order for payment of reparations to Qwest customers and its choice not to seek civil penalties were within its legal authority for remedy selection. 2. Civil Penalties Archibold contends that the PUC should have instituted a lawsuit for the collection of civil penalties. In construing statutory provisions, our primary purpose is to effectuate the intent of the General Assembly. Adams v. Farmers Ins. Group, 983 P.2d 797, 801 (Colo.1999). In order to discern such intent, we first look to the statutory language itself, giving words and phrases their commonly accepted and understood meaning. Id. Civil penalty litigation is brought in the name of the people: [a]ctions to recover penalties . . . shall be brought in the name of the people of the state of Colorado . . . [and] shall be commenced and prosecuted to final judgment by the attorney general.... Any such action may be compromised or discontinued on application of the commission upon such terms as the court shall approve and order. § 40-7-109, 11 C.R.S. (2002) (emphasis added). The PUC may request the Attorney General to bring a lawsuit for the enforcement of provisions of the statutes or the constitution. § 40-7-101, 11 C.R.S. (2002). Clearly, the General Assembly has consigned the pursuit or settlement of litigation for civil penalties to the PUC and the Attorney General, on behalf of the people. § 40-7-109, 11 C.R.S. (2002). Significantly, the General Assembly did not provide a citizen suit provision under the Public Utilities Law, allowing individuals such as Archibold to institute a civil penalties lawsuit if the PUC does not. Archibold's request for relief is equivalent to a request for mandamus, although this is not an appeal of a denial of mandamus relief. He seeks an order compelling the PUC to commence litigation through the Attorney General, even though the statute does not require the PUC to institute a civil penalties lawsuit for rule violations. This is not a case in which the PUC has failed to act. Through a proceeding on the record, it ordered reparations and rejected collection of civil penalties. Mandamus is appropriate only if a plaintiff has a clear right to the relief sought, the agency has a clear duty to perform the act requested, and there is no other available remedy. State v. Bd. of County Comm'rs, 897 P.2d 788, 791 (Colo.1995) citing Gramiger v. Crowley, 660 P.2d 1279, 1281 (Colo.1983). We will not issue mandamus unless the administrative act requested is purely ministerial in nature, and the agency has a clear legal duty to perform the act. Ahern v. Baker, 148 Colo. 408, 414, 366 P.2d 366, 369 (1961); Jones v. Colo. State Bd. of Chiropractic Exam'rs, 874 P.2d 493, 494 (Colo.App. 1994). Archibold desires an enforcement remedy consigned to the agency by statute, but we typically refrain from ordering the executive branch to take an action committed to prosecutorial discretion. People v. Thorpe, 641 P.2d 935, 938 (Colo.1982); see W. Food Plan v. Dist. Court, 198 Colo. 251, 255-57, 598 P.2d 1038, 1040-41 (1979) (refusing to order an injunction prohibiting the Attorney General from filing a prosecution); People ex rel. Dunbar v. Gym of Am., 177 Colo. 97, 117, 493 P.2d 660, 670 (1972)(stating that [t]he right of officials to meet statutory evils as they arise and according to the manner in which they arise must always remain within the sound discretion of the statute's enforcement officer). Because the statutes do not obligate the PUC to collect civil penalties for violation of its rules and the commission's selection of a reparations remedy in this case is not contrary to law, unjust, or unsupported by the record, see section 40-6-115(3), 11 C.R.S. (2002), we uphold the PUC's decision and order.