Document: 491 U.S. 350 109 S.Ct. 2506 105 L.Ed.2d 298 NEW ORLEANS PUBLIC SERVICE, INC., Petitioner,v.COUNCIL OF the CITY et al. No. 88-348. Argued April 25, 1989. Decided June 19, Syllabus The Federal Energy Regulatory Commission (FERC) allocated cost of Grand Gulf 1 nuclear reactor among several jointly owned companies, including petitioner New Orleans Public Service, Inc. (NOPSI), that had agreed to finance reactor's construction and operation. NOPSI, which provides retail electrical service Orleans, then sought from respondent City Council (Council), local ratemaking body, a rate increase cover in its wholesale rates resulting FERC's allocation costs. Although deferring implicit finding NOPSI's decision participate ven ure was reasonable, determined costs incurred thereby should not be completely reimbursed through because management negligent failing, after risks power became apparent, diversify supply portfolio by selling portion power. NOPSI filed petition state court for review Council's final order. In parallel federal proceedings District Court, declaratory injunctive relief on ground order pre-empted law under Nantahala Power & Light Co. v. Thornburg, 476 953, 106 2349, 90 943 (1986), held that, purpose setting intrastate rates, State may differ allocations imposing own judgment what would just reasonable. Court concluded it abstain deciding suit Burford Sun Oil Co., 319 315, 63 1098, 87 L.Ed. 1424 (1943), Younger Harris, 401 37, 91 746, 27 669 (1971). Appeals affirmed. Held: erred abstaining exercising jurisdiction. Pp. 358-373. (a) abstention doctrine—under equity courts must decline interfere with complex regulatory schemes cases involving (1) difficult state-law questions bearing policy problems substantial public import, or (2) efforts establish coherent regarding matter concern—is applicable. This case does involve claim, nor even an assertion claims are any way entangled skein unraveled before can proceed. Because facial pre-emption claim resolved without venturing beyond four corners order, adjudication unduly intrude into governmental process undermine State's ability maintain desired uniformity treatment essentially problems. alternative claim—that order's nominal emphasis failure merely determination original investment itself unwise—cannot face resolution demand significant familiarity with, will disrupt of, distinctively facts policies, since electricity is bought sold within predominantly market. 360-364. (b) Nor appropriate Younger, absent extraordinary circumstances, traditional concerns principles comity require refrain enjoining pending criminal prosecutions. has expanded proceedings, courts, but never "judicial nature." at issue here judicial nature, ratemaking, establishes rule future, legislative act. See, e.g., Prentis Atlantic Coast Line 211 210, 226-227, 29 67, 69-70, 53 150 (1908). this considered unitary still-to-be-completed virtue ongoing state-court proceedings. There no contention Louisiana courts' involves anything other than act—that is, declaration rights vis-a-vis present past existing law. therefore ripe when completed action entering 364-373. 850 F.2d 1069, (CA5, 1988), reversed remanded. SCALIA, J., delivered opinion BRENNAN, W ITE, MARSHALL, STEVENS, O'CONNOR, KENNEDY, JJ., joined, Parts I II-B REHNQUIST, C.J., joined. concurring opinion, post, p. 373. part judgment, BLACKMUN, 374. Rex E. Lee, Washington, D.C., petitioner. Richard J. Lazarus, F.E.R.C., as amici curiae, support petitioner, special leave Court. Clinton A. Vince, respondent. Justice SCALIA we purposes Commission's Last Term, Mississippi ex rel. Moore, 487 354, 108 2428, 101 322 (1988), $3 billion-plus operating companies operation Mississippi's inquiry prudence utility retailer's joint venture. Today confront once again legal arising question who pay 1. Here authority deferred Inc.'s venture because, asserted, utility's failing later Whether provide less full reimbursement FERC-allocated conflicts our holdings case. Rather, address threshold whether petitioned authority's properly abstained jurisdiction deference process. 2 * stake have little do intricacies factual procedural history underlying controversy, sketch background brief.1 Petitioner producer, wholesaler, retailer city one wholly subsidiaries Middle South Utilities, operates integrated "power pool" each transmits produced central dispatch center draws back needs meet customer demand. 1974, fellow entered contract Energy, (MSE), another subsidiary, whereby MSE's two 1250 megawatt reactors, 2, return right reactors' output. estimated completing reactors $1.2 billion. 3 During late 1970's, consumer turned out far lower expected, delays, enhanced requirements, high inflation led spiraling As result, suspended, alone eventually exceeded Not surprisingly, greatly generated South's conventional facilities. 4 Acting pursuant exclusive over interstate transactions, 49 Stat. 847, amended, 16 U.S.C. § 824 seq., FERC conducted extensive determine "just reasonable" prescribe "just, nondiscriminatory" Gulf's 1985, issued Inc., 31 ¶ 61,305, rehearing denied, 32 61,425 (1985), aff'd sub nom. Industries FERC, 257 U.S.App.D.C. 244, 808 1525, granted vacated part, 262 41, 822 1104, cert. 484 985, 501, 98 499 (1987), planned been designed "to overall System objectives," 61,655, project "roughly proportion company's share demand," id., 61,655-61,656. 17 percent (approximately $13 million per month) rejecting proposal 29.8 well 9 figure favored here, Council. 5 "Although did expressly discuss 'prudence' constructing bringing line, implicitly accepted uncontroverted testimony [Middle South] executives explained why they believed decisions construct complete were sound, approved 'continuing Unit prudent enable system base load fuel mix and, projected, same time, produce total (capacity energy) alternatives system.' " U.S., 363, S.Ct., 2434-2435, quoting 26 63,044, pp. 65,112-65,113 (1984). 6 When (Council) body see 824(b); La.Rev.Stat.Ann. §§ 33:4405, 33:4495 (West 1988); Home Rule Charter 4-1604 amended Ordinance 8264 M.C.S., 10340 M.C.S.—a costs, denied immediate adjustment, explaining hearing necessary explore 'the legality prudency [sic] [contracts relating 1, and] [sic ] reasonableness said expenses.' Brief United States Amici Curiae 5, Resolution R-85-423. responded filing Eastern Louisiana, asserting required allow recover, expenses. 7 motion dismiss, holding Johnson Act, 28 1342, entertain action, if compelled abstain. On appeal, Fifth Circuit initially both grounds, later, motion, i earlier proper Pub. Serv., 782 1236, modified, 798 858 481 1023, 107 1910, 95 515 (1987) (NOPSI ). 8 By October 10, while still Circuit, initiated investigation involvement R-85-636 stated intention examine all aspects relationship Gulf, 'efforts minimize exposure purchase,' 'impact opportunities,' 'for determining portion, any, expense shall assumed [NOPSI's] shareholders.' App. 113-114. specifically provided, however, rate, 'not seek invalidate agreements surrounding MSE FERC.' Id., 114. November second seeking preclude requiring shareholders absorb dismissed unripe, appropriate. affirmed ripeness grounds. 833 583 (1987). 10 February 4, 1988, immediately disallowing $135 based determinations "NOPSI's . oversight obligation uncritical severely deficient," 24, acted imprudently reduce risk commitment, wake Three Mile Island incident March 1979, "by off-system," 24-25. 11 Upon receipt decree, light Court's recent expressed considerable doubt merits position question,2 notwithstanding Nantahala, suit. 12 Anticipating might abstain, Civil Parish Louisiana. filed, raised only due takings claims, informed letter amend raise complaint. happened, so.3 13 dismissal, agreeing effectively controlled I, i.e., applied. 1069 (1988). We certiorari. 488 1003, 780, 102 772 (1989). II 14 Before proceeding issues, bears dispute decide claim. Our long supported proposition lack exercise conferred. For example: "We more given, usurp given. treason Constitution." Cohens Virginia, Wheat. 264, 404, (1821). '[T]he bound proceed afford redress suitors them every their extends. They cannot abdicate duty favor jurisdiction.' Chicot County Sherwood, 148 529, 534, 695, 697, 37 546 (1893) (citations omitted). "When appealed jurisdiction, take such party plaintiff choose where there choice denied." Willcox Consolidated Gas 212 40, 192, 195, 382 (1909) Underlying these assertions undisputed constitutional principle Congress, Judiciary, defines scope constitutionally permissible bounds. Kline Burke Construction 260 226, 234, 43 79, 83, 67 226 (1922). 15 That eliminate, categorical upon call question, discretion grant certain types relief—a common-law against statutes conferring wer enacted. See Shapiro, Jurisdiction Discretion, 60 N.Y.U.L.Rev. 543, 570-577 (1985). Thus, some classes withholding authorized equitable undue interference "the normal thing do," 45, 751. carefully defined, areas "abstention" permissible, remains exception, rule.' Hawaii Housing Authority Midkiff, 467 229, 236, 104 2321, 2327, 81 186 (1984), Colorado River Water Conservation Dist. States, 424 800, 813, 96 1244, 47 483 (1976). recently last Term described adjudicate 'virtually unflagging.' Deakins Monaghan, 193, 203, 523, 530, 529 (1988) (citation With mind, relying supra, declined While acknowledge "[t]he various rigid pigeonholes try fit cases," Pennzoil Texaco, 11, n. 9, 1519, 1526, considerations supporting Bur- ford y sufficiently distinct justify independent analyses. sitting confronted Fourteenth Amendment challenge Texas Railroad oil drilling permit. minimal importance, solely commission applied Texas' gas conservation regulations. 331, 28, 1106, 28. intricacy importance scheme, created centralized orders, "permit[ted] like itself, acquire specialized knowledge" regulations industry, 327, 1104. found "expeditious adequate," 334, 1107, comparatively unsophisticated Courts alongside repeatedly "[d]elay, misunderstanding law, needless conflict policy," "a sound respect independence requir[ed] stay hand," 1107. 18 Alabama Serv. Comm'n Southern R. 341 341, 71 762, 1002 (1951), railroad enjoin enforcement Service refusing permission discontinue unprofitable rail lines. According railroad, continued lines amounted confiscation property violation rights. Under dissatisfied absolute appeal Montgomery County, "empowered set aside contrary weight evidence erroneous law." 348, 767. statutory "concentrated circuit court" exercised "supervisory" powers was, found, "an integral Code." Ibid. Taking account unified nature process, emphasizing "adequate [the] administrative [was] available," 349, 768, success railroad's depended "predominantly factor need rendered," 347, 767, ought 350, 768. 19 From cases, others relied, distilled now commonly referred "Burford doctrine." Where timely adequate available, orders agencies: "difficult import whose transcends result bar"; "exercise similar disruptive concern." 814, 1245. 20 "in untangled proceed," McNeese Board Of Education Community School 187, Cahokia, 373 668, 674, 83 1433, 1437, 622 (1963). acknowledged much absence fatal" thought, motivating force behind reluctance exists system." F.2d, 861-862. Finding involved scheme "paramount concern demands expertise," 862, appropriately Burford. 21 concerned protecting processes interference, whenever "potential conflict" policy. Dist., 815-816, Here, primary prohibited Unlike agency misapplied lawful failed consideration weigh relevant factors, sort attempt ensure "essentially problem," Comm'n, 22 justified circumstances strongly suggested Util. Ohio Fuel 317 456, 369, 396 decided months prior Burford, enjoined grounds fix rates. After impinged Congress vested Commission, addressed nonetheless abused granting relief: 23 "It perhaps unnecessary date repeat admonition wary interrupting tribunals use writ injunc ion. But this, too, blind disregard fact. And commanding case? First, most important, plainly invalid. No themselves underlie discover Act." 468-469, 376 (emphasis added). 24 Similarly bar, needed facially allocative decree provisions Act. Such government uniformity. It may, course, injunction "there doctrine overturning policy." Zablocki Redhail, 434 374, 380, 673, 678, 54 618 (1978). 25 true initial complaint, challenge, 1979-1980 off unwise. hinges largely plausibility have, could diversified lowered average supra. Analysis pretext requires industry practice, availability during time period, endeavor level industry-specific expertise. since, amply demonstrate, market, policies. implicated. B (1971), First Amendment-based California Criminal Syndicalism far-from-novel partly equity, 43-44, 750, rested primarily "even vital consideration" comity, 44, 750. explained, includes functions, recognition fact entire country made up Union separate governments, continuance belief National Government fare best institutions left free perform functions ways." prosecution, issues extended type argues reached, reasons. challenged contends, calls prerequisite legitimate, interest Middlesex Ethics Comm. Garden Bar Assn., 457 423, 432, 2515, 2521, 73 116 (1982). district presented pre-emption-based request quick look merits; appears substantial, resolve it. disagree. greater enforcing supremacy explicit guarantees, challenges challenges, legitimacy reviewing action. Yet clear mere compel 53, 755. so inquire substantiality narrowly outcome particular case—which arguably offset opposite outcome. generic State. example, consult California's prohibiting John Harris distributing handbills, rather "carrying important task" laws. 51-52, 754. Similarly, Rights Dayton Christian Schools, 477 619, 2718, 512 looked Ohio's specific Schools' firing Linda Hoskinson, general preventing employers engaging sex discrimination. 628, 2723. merit focus, legitimate reducing below recover regulating clearly does. "[T]he regulation utilities traditionally associated police States." Arkansas Electric Cooperative Corp. 461 375, 377, 103 1905, 1908, 76 (1983). Accord, Pacific Resources Development 190, 205206, 1713, 1722-1723, 75 752 (1983); Central Hudson York, 447 557, 569, 100 2343, 2353, 65 (1980). attempts avoid conclusion stressing deliberations, very conduct those deliberations. (This argument assumes, equated point course.) simply true, reference deliberations" be. deny affirmatively protected conducting rates; rather, contends subject different defendant's (allegedly unconstitutional) statute prosecution. words, ultimately reduces insistence too narrow analytical focus. 30 effect improper ass ming applies rests "suffer irreparable injury" relief. 750; also 48, 752. Irreparable injury possibly established, suggested, showing 'flagrantly patently violative express prohibitions .,' 53-54, 755, Watson Buck, 313 387, 402, 61 962, 967, 85 1416 (1941). Relying upheld Utilities attempting directly regulate prices actions "on invalid, 469, added), asserts posited exception "flagrantly prohibitions" apply equally flagrantly (which unlawful violates prescription Supremacy Clause). argues, sufficient render inappropriate, least conclusive is. Perhaps so. description. questioned validity FERC-prescribed system, reexamined agreement first place. maintains examined failure, portfolio, negligent, taken step making ratepayers bear consequences. Nothing indirectly foreclosed statute, implementing it, applying reason saved money diversified. conclusively say wrong further inquiry—and hardly deemed "flagrantly" determination. conclude, therefore, stand fall answer applies. Viewed isolation, not. federalism us expand protection prosecutions, civil Huffman Pursue, Ltd., 420 592, 604, 1200, 1208, 482 (1975); Trainor Hernandez, 431 434, 444, 97 1911, 1918, 52 486 (1977); Moore Sims, 442 415, 99 2371, 2377, 994 (1979), uniquely furtherance Juidice Vail, 430 336, 12, 1211, 1217, 51 (1977) (civil contempt order); Texaco 13, 1527, (requirement posting bond appeal), absten ion executive broad requirement make mockery exceptional court's refusal States. 817, 1246; Moses H. Cone Memorial Hospital Mercury Corp., 460 927, 942, 74 765 cf. 8, ("[W]e remotely suggest 'that between justifies unless exceptions applies' omitted)). applicable, respondents focus continuation proceeding. Their inquiry, though complete, constitutes 'ongoing proceeding' review." Respondents 31. contend, qualified did, until concluded. argue analogy purposes, uninterruptible whole. When, applies, trial losing cannot, pursue remedies concurrently challenging appeal. trial-and-appeals treated integrity intervening mid-process demonstrate sovereign. reason, procure intervention terminating prematurely forgoing attack court. "[A] concomitant [wishing contest tribunal] exhaust his appellate Court." 608, 1210. urge adjudicatory tribunal agency—i.e., litigation, viewed disrupted, permitted stage 33 assume, deciding, correct.4 Respondents' requires, entitled treatment. think 433-434, 2522 ("It Jersey Supreme considers bar disciplinary 'judicial nature.' such, character warrant federal-court deference"). 627, 2723 ("Because nature' outset, essential progressed heard case"). nature. 34 (1908), railroads requested Virginia Corporation publishing taking steps enforce fixing passenger rates," proposed confiscatory. 223, 68. To liberty injunction, invested powers, assumed, "if [a railroad] [the rate] punish breach, "it States," 69. But, analysis, hand legislative. Holmes, writing follows: 35 "A investigates, declares enforces liabilities laws supposed already exist. end. Legislation looks future changes conditions new thereafter establishment act kind. ." 36 He rejected notion agency's depend form: "[The characterization actions] depends inquiries preliminary Most legislation preceded hearings investigations. lead up. determines previous inquiry. judge declare he know So induces practical sense, although arise case." 69-70 38 reaffirmed mode analysis Prentis, Columbia Feldman, 462, 476-479, 1303, 1311-1313, 206 (1983), act, Interstate FPC, 324 581, 589, 829, 833, 89 1206 (1945). e 39 not, end character, inappropriate determined, premature. "were wait brought departing it," 228, 70, provided challengers "should sure be, resorting 230, 71. concerned, preserve were, (1975), case, unripe. 40 future," exist," seem room contention. Guste 309 So.2d 290, 294-296 (La.1975). Since extension entered. Lane Wilson, 307 268, 274-275, 59 872, 875-876, 1281 (1939); Bacon Rutland 232 134, 138, 283, 284, 58 538 (1914). 41 represents neither directed, directed. insofar policies substance allegedly unconstitutional zoning ordinance—which assuredly courts. Wooley Maynard, 705, 711, 1428, (1977). disposition affect, pre-empt, future—or, pending—state-court pendency excludes Viewed, comes none established. 42 reasons stated, reversed, remanded consistent opinion. ordered. 44 whom MARSHALL joins, concurring. 45 join continue adhere my view, inapplicable 1530, (BRENNAN, judgment); 450, 1921, dissenting); 1220, 613, 1212, (1975) dissenting). 46 Chief judgment. agree extending prosecutions limited application nature," longstanding distinction "judicial" "legislative" 69, despite curtails (1986); Committee (1982); alter indicating regarded "ongoing" completed, 629, 2723-2724. understanding, here. 48 foreclose possibility consolidated bodies hear Accordingly, concur abstention. 50 core majority's reasoning: posture ended order; point, interfered proceeding, judicial, quasi-legislative, Ante, 372. find, understanding narrower respects tension discussion interests context context. Compare ante, 362-363, 366-367. Furthermore, am entirely persuaded open 4. observations standard majority adopted. in-depth project, Adverting merits, commented: faults buying 'pig poke' find sucker buy faux-pas apparent.11 "11 P.T. Barnum suckers: 'There's born minute.' court, ready assume many, suckers purchasing market today. Indeed, somewhat mystified logic arriving disallowance Rate Order. Order, [NOPSI's President] so, savings actually possible. Then, seemingly pulled thin air 8% disallowance. However, Council, everyone else knows difference 17% consistently relative [and advocated unsuc essfully proceeding], 9%. disallowed apparent foregone [sic]. Must 'savings' possible actual economic market? ultimate rational disallowance? These day court." Pet. Cert. 30A-31A, 11. represented reasonable comply unlawful, consumers' organization, Alliance Affordable disallow larger pending. 88-4511; Boissiere Cain, 88-2503; 88-2502 (Civ.Dist.Ct., La.). prevented on-going discrimination Commission. ours (1982), similarly situation yet Schools argument, 2723-2724, suggests, perhaps, become final. squarely faced question.

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