Document: 419 U.S. 345 95 S.Ct. 449 42 L.Ed.2d 477 Catherine JACKSON, etc., Petitioner,v.METROPOLITAN EDISON COMPANY. No. 73—5845. Argued Oct. 15, 1974. Decided Dec. 23, Syllabus Petitioner brought suit against respondent, a privately owned and operated utility corporation which holds certificate of public convenience issued by the Pennsylvania Utility Commission, seeking damages injunctive relief under U.S.C. § 1983 for termination her electric service allegedly before she had been afforded notice, hearing, an opportunity to pay any amounts found due. claimed that state law was entitled reasonably continuous respondent's alleged nonpayment, permitted provision its general tariff filed with action depriving petitioner property without due process giving rise cause 1983. The Court Appeals affirmed District Court's dismissal petitioner's complaint. Held: is not sufficiently connected challenged make conduct attributable State purposes Fourteenth Amendment, having shown no more than respondent heavily regulated private partial monopoly it elected terminate in manner Commission permissible law. Cf. Moose Lodge 107 v. Irvis, 407 163, 92 1965, 32 627. Public Utilities Comm'n Pollak, 343 451, 72 813, 96 L.Ed. 1068; Burton Wilmington Parking Authority, 365 715, 81 856, 6 45, distinguished. Pp. 349—359. 483 F.2d 754, affirmed. Jack Greenberg, New York City, petitioner. Thomas M. Debevoise, Woodstock, Vt., respondent. Mr. Justice REHNQUIST delivered opinion Court. 1 Respondent Metropolitan Edison Co. empowering deliver electricity area includes city York, Pa. As condition holding certificate, subject extensive regulation Commission. Under has right discontinue customer on reasonable notice nonpayment bills.1 2 Jackson resident who received past from Until September 1970, home account own name. When terminated because asserted delinquency payments service, new opened name one James Dodson, another occupant residence, residence resumed. There dispute as whether Dodson services provided during this period were ever made. In August 1971, left residence. Service continued thereafter but concededly states bills period. 3 On October 6, employees came inquired Dodson's present address. stated unknown her. following day, employee visited informed meter tampered so register used. She disclaimed knowledge requested be shifted Robert Jackson, later identified 12-year-old son. Four days 11, further petitioner, disconnected service. 4 then United States Middle Civil Rights Act 1871, 1983, injunction requiring continue providing power until urged entitlement electrical home2 Metropolitan's allowed constituted 'state action' violation Amendment's guarantee law.3 5 granted motion dismiss complaint ground did constitute hence judicial scrutiny Amendment.4 appeal, Third Circuit affirmed, also finding absence action.5 We certiorari review judgment.6 Due Process Clause Amendment provides: '(N)or shall deprive person life, liberty, or property, law.' 1883, Cases, 109 3, 18, 27 835, essential dichotomy set forth between deprivation State, provisions, conduct, 'however discriminatory wrongful,' offers shield. Shelley Kraemer, 335 1, 68 836, 1161 (1948). 7 have reiterated distinction occasion since then. See, e.g., Evans Abney, 396 435, 445, 90 628, 633, 24 634 (1970); 171—179, 1970—1974, 627 (1972). While principle immune restrictions well established easily stated, question particular 'private,' hand, action,' other, frequently admits easy answer. 723, 860, 45 (1961); supra, at 172, 1971. 8 Here complained taken company operated, many particulars business regulation. mere fact does itself convert into Amendment.7 U.S., 176 177, S.Ct., 1973. Nor detailed, case most utilities, do so. 462, 820, 1068 (1952). It may acts least something governmentally protected will readily 'state' entity lacking these characteristics. But inquiry must there close nexus latter fairly treated itself. 107, 176, true nature State's involvement immediately obvious, detailed required order determine test met. supra. 9 advances series contentions which, view, lead conclusion should fall side line drawn rather line. find none them persuasive. 10 first argues status conferred upon Pennsylvania. factual matter, doubted guaranteed monopoly.8 assuming had, determinative considering Amendment. where dealt activities Columbia Transit Co., congressionally monopoly, we expressly reliance transit authority. 820. Similarly, although certain aspects presented Lodge's provisions each those cases, insufficient relationship actions entities involved their status. indication greater connection here. 11 next urges provides supplied basis Pa.Stat.Ann., Tit. 66, 1171 (1959), performs 'public function.' have, course, exercise powers traditionally exclusively reserved State. Nixon Condon, 286 73, 52 484, 76 984 (1932) (election); Terry Adams, 461, 73 809, 97 1152 (1953) Marsh Alabama, 326 501, 66 276, 265 (1946) (company town); Newton, 382 296, 86 486, 15 373 (1966) (municipal park). If dealing some delegated associated sovereignty, such eminent domain, our would quite different one. while statute imposes obligation furnish courts rejected contention furnishing either function municipal duty. Girard Life Insurance City Philadelphia, 88 393 (1879); Baily 184 594, 39 A. 494 (1898). 12 Perhaps recognition supplying exclusive prerogative invites expansion doctrine limited cases broad all businesses 'affected interest' are actors actions. 13 decline invitation reasons long ago Nebbia 291 502, 54 505, 78 940 (1934), course rejecting substantive attack legislation: 14 'It clear closed class category affected interest . .. phrase can, things, mean industry, adequate reason, control good. several decisions court wherein expressions interest,' 'clothed use,' forward criteria admitted they susceptible definition form unsatisfactory ..' Id., 536, 515. Tyson & Brother Banton, 273 418, 47 426, 71 718 (1927) (Stone, J., dissenting). 16 Doctors, optometrists, lawyers, Metropolitan, Nebbia's upstate grocery selling quart milk businesses, arguably goods services, interest.' believe converts every action, absent more, State.9 17 reject notion 'has specifically authorized approved' practice. instant case, tariff—a nonpayment.10 This appeared previously tariffs years never hearing other Commission.11 Although hold hearings portions relating rate increase, even considered reinsertion newly tariff.12 became effective 60 after filing when disapproved Commission.13 18 threshold less file part disapprove it.14 observed sole simple lack prohibit it.15 19 relied Capital Transit's installation piped music system buses violated First rights bus riders. entirely alternatively held 'State' purposes, merely assumed, arguendo, went resolve adversely riders.16 event, motion, commenced investigation effects music, full concluded only practices 'not inconsistent convenience, comfort, safety,' P.U.R. (N.S.) 122, 126 (1950), practice 'in fact, through creation better among passengers, tends improve conditions ride.' Ibid. Here, imprimatur placed about complains. governmental utilities regulatory scheme obtain approval detail free institute body. Approval commission request utility, put weight proposed ordering it, transmute initiated approved action.' At most, Commission's failure overturn amounted determination employ if desired. Respondent's choice initiative comes State,17 doing 20 symbiotic (1961). lessee, practiced racial discrimination, leased space restaurant parking authority publicly building, far insinuated position interdependence joint participant enterprise. 725, 861. cautioned, however, 'a multitude relationships might appear within embrace,' differences circumstances beget law, limiting actual lessees property. 726, 862. 21 corporation, lease facilities alone responsible customers. common corporations pays taxes way enterprises not. likewise appellant club said: 22 'However type particulars, cannot said foster encourage discrimination. can realistic sense partner venturer club's enterprise.' 176—177, 23 All arguments together show regulated, enjoying territory, decision sufficient connect latter's conclude terminating therefore decide claim 'property' 'due law' require taking similar accord procedural contends. judgment 25 Affirmed. 26 DOUGLAS, dissenting. I reach opposite reached majority state-action issue. 28 injury took place discontinued householder remedy contest default, though 'discontinue notice.'1 May allow utility—which competitor—to exploit tariff? complete immunity federal allows agency become prisoner or, listless attitude concern, permit use lawless way? 29 (1961), 'Only sifting facts weighing nonobvious attributed significance.' 722, 860. A particularized necessary given situation falls 'the variety individual-state (Fourteenth) designed embrace.' subsequent discussion made clear, dispositive single presents degree involvement, aggregate relevant factors compels responsibility.2 722—726, 860—862. See generally 30 enough examine seriatim claimant relies individually being support action. controlling. 31 status, arguendo protected,3 'is Amendment.' Ante, 351—352. Even so, state-protected highly assessing entity's ties State.4 determinative. agree doctors, grocers transformed simply provide just many; city. denied householder, home, modern conditions, likely unlivable. 33 procedures subjected same approval, explicit implicit, Yet procedures, getting requirement 'reasonable notice.' undertaken regulate numerous operations detail,5 'hands-off' permissiveness neutrality toward war agency's functions supervision over servicing householders, particularly (as here) presumably lend facilitate enforcement published procedures. Adickes S. H. Kress 398 144, 1598, 142 Reitman Mulkey, 387 369, 87 1627, 830 (1967); Railway Employes' Dept. Hanson, 351 225, 714, 100 1112 (1956); 334 34 aggregate, depict monopolist licensee framework control. regulations issue, promulgated monopolist, enforceable Moreover, retains oversight amend requires. intertwined termination-of-service buttressed warrant householder's purpose jurisdiction Though lip need totality enterprise, ante, 358, underlying analysis fundamentally sequential cumulative. perspective, what today significant departure previous treatment issues. 35 Brandeis Liggett Lee, 288 517, 53 481, 77 929 (1933), speaking competition ease opportunities methods incorporation, 'The race diligence laxity.' 559, (dissenting opinion). One peruse 84-part Corporations Report Federal Trade (under direction able counsel late E. Healy) realize largely commissions prisoners utilities. especially Doc. 92, 70th Cong., 1st Sess., pt. 73—A (1936); see id., 72—A, p. 880. noted successful attempts exclude themselves antitrust laws based assertion activity constitutes Washington Gas Light Virginia Electric Power 438 248, 250—252 (CA4 1971); Columbus Georgia 440 1135, 1138—1140 (CA5 1971). 36 By like token prescribing possible And compatible administrative abdication equate 'administrative silence abandonment duty.' 252. 37 Section give citizens forum6 civil complaints wherever, direct indirect actions, acting cahoots' group neglect oversight, perpetrate injury. theory cozy situations, local politics pressure economic overlords subservient agencies recovery unlikely. witness great retreat Congress courts. sentiment here hospitable claims. That true, instances. Senate House decision. tolerate erosion policy expressed drafting 38 addresses grievances inflicted 'under color statute, ordinance, (or) regime imposed seems fit glove. Electrical necessity life requirements process. Fuentes Shevin, 67, 80, 1994, 556 (1972); Goldberg Kelly, 397 254, 1011, 287 Palmer Ohio, Inc., 479 153 (CA6 1973). BRENNAN, 40 think controversy existed entitling heard duty General Rules Regulations, Tariff, 'customers,' defined '(a)ny person(s) lawfully receiving (the) Company.' Petitioner, notes, ceased 'customer' 1970 bills. pursuant Rule quoted n. 1. From Dodson; his payment period, An effort time f paid $30 delinquent bill failed offer shut off my view 2, could intimate correctness holdings below vacate remanded instruction enter dismissing Golden Zwickler, 394 103, 109—110, 89 956, 960—961, 113 (1969). 41 MARSHALL, BRENNAN very poor vehicle resolving difficult important questions today. confusing sequence events leading makes unclear company. Because complexities seriously hamper resolution merits writ improvidently granted. Since disposed appropriate dissent point. 43 * people private, supply community. charter company, regulations, cooperates myriad ways. Additionally, company's mode termination—the Taking together, difficulty case. 862, 'insinuated (the company) recognized activity.' 44 Our repeatedly clearly case: state-sanctioned monopoly; pattern cooperation 'private' State; uniquely nature. Today takes major step repudiating adopts stance bound mischief applied problems beyond narrow sphere objections terminations. confers organization, organization assumes obligations (1956). solely conferral suggested factor weighs determining constitutional formally entities. Steele Louisville Nashville R. 323 192, 65 226, 173 (1944). Indeed, 1973, (1972), careful point out liquor-licensing 'falls short conferring licensees dispensing liquor municipality whole.' 46 distinguishes cryptic companies 'natural monopolies.' 351—352, 8. behind appears regulating natural aid prevent charging prices, somehow purposes. much turn distinction. Initially, obvious market unimpeded restrictions. Certainly 'start-up' costs initiating substantial, rewards available relatively inelastic attract competitive investment. Instead, chosen forbid high profit margins invite increase ownership operation facilities. inherent kind counsels excusing monopolies principles. To survived express grounds hopeless speculation. Worse, approach ignores implications utilizing Encompassed selected cooperate ways ensure functional equivalent State.1 B 48 led virtually phase business. majority, accepts relevance extent demonstrates procedure. concluding suggests authorization sufficient: apparently satisfy majority's test, 357. 49 disagree three separate grounds. First, suggestion 'put it' me mark sharp cases. 835 (1883), Lodge, consistently indicated action.2 50 Second, wisdom shrift interaction focusing challenge. financial entity, inquire objectionable conduct. Powe Miles, (CA2 1968); Grossner Trustees University, F.Supp. 535, 547—548 (SDNY 1968). thoroughly fatal affirmatively sanctioned question. 51 Finally, event Edison's recent hearings, before. included statute. questioned approved. suggests, instead, satisfied proceed done past. puts potential plaintiffs position: approves argument demonstrated practices. If, challenges ground, example, notice' meet standards fairness expects procedure employed again Apparently, radios streetcars safety, necessity. am afraid effect restricted Pollak discarded altogether.3 C supplies communities government majority. concedes 'traditionally sovereignty,' undercuts suggesting operated. reads function' too narrowly. whole look parties. (1966); (1953); (1946). universal render requires burdens importance invariably permits act surrogates matter interest. determined wish field, surrender prerogatives normally enterprise behave gone far, consistent impose Private parties performing affecting often persuasive applicable institutions value preserving sector individual maximized. 298, 487; Friendly, Dartmouth College Case Public-Private Penumbra Maintaining parochial schools, cited value. area, diversity furthered allowing various flexibility select needs. Wahba 492 96, 102 (CA2), cert. denied, 874, 135, (1974). hard imagine interests protecting meeting apply owned. values pluralism town. II 55 guided reluctance ultimately hurt consumers help them. Elaborate prior expensive, few solution problem, abbreviated pretermination companies, however fit. occasion, demonstrate sensitivity extreme render, cities, percentage error disturbingly high. 342 241, 243 (ND Ohio 1972), aff'd, 1973); Bronson Consolidated 350 443, 448 1972).4 Accordingly, minimum, advance official contacted consider error. III 56 What perhaps troubling range violations adopted notion, accepted elsewhere, claims presented. 190 191, 1620—1621, (1970) (Brennan, concurring dissenting); Grafton Brooklyn Law School, 478 1137, 1142 Thus, seemingly refused extend Negroes, welfare recipients, preferred, reasons, serve. mandate nondiscrimination. nothing otherwise. 57 dissent. Company Pa.P.U.S. 41, 15. portion tariff, notice-filing (1959) (since increase), pertinent part: '(15)—Cause discontinuance 'Company reserves remove equipment Its gives fraud tampering seek assert below. 'Every maintain adequate, efficient, safe, Such unreasonable interruptions delay. Mrs. finds state-law continuing deprived impartial body: completed, continue. existence guarantees exist. FC dissenting, post, 364, concludes justiciable whatever accordance tariff. suffered caused Issues meaning Clause, Board Regents Roth, 408 564, 2701, 548 process, Arnett Kennedy, 416 134, 94 1633, (1974), 'No enforce abridge privileges immunities States; nor law; deny equal protection laws.' reported 348 954 754 (1973). 415 912, 1407, 466 Compare Kadlec Illinois Bell Telephone 624 (CA7), 846, 90, (1969); Lucas Wisconsin 638 (CA7 409 1114, 93 928, 696 (1973), 1973), modified Turner Impala Motors, 503 607 1974). Ihrke Northern 459 566 (CA8), vacated moot, 815, Enterprises enumerated utility' contained 1102(17) (1959 Supp.1974 1975). Included engaged gas, power, water; carriers, pipeline telephone telegraph sewage collection disposal companies; affiliated engaging activities. Among freight forwarding storage (Highway Freight Forwarding Comm'n, 108 Pa.Super. 178, 164 (1933)), real estate developers incident business, water (Sayre Land Pa.D. C.2d 469 (1959)), taxicabs. Israel, 356 400, A.2d 317 (1947). Philadelphia Rural 309 84, 93, 159 861, 864 (1932), estimated distinct types system, fair reading indicates substantial incidents materially enterprises. lone cab driver 1121 (Supp.1974 1975), issuance prerequisite obtaining described §§ 1122, 1123 Supp.1974—1975). statutes indicating face companies. organized 1874, Pennsylvania's adoption 1913. faced 1912 admits, created forces capital unlimited economy scale. Burdick, Origin Peculiar Duties Companies, Col.L.Rev. 514 (1911); Trachsel, Regulation 7—8, superimposed substitute eliminate it: primary object establish security investments corporations, serve public.' Highway Express Lines, Inc. 195 100, 169 798, 802 cf. Pottsville Union Traction 67 301, 304 (1917). impliedly number occasions. 8, 20, (1883). maintenance yet 300, 489, (1966): varied, necessarily enterpreneur manager undertaking suffers inhibitions. segregate schools religious groups, sects educational systems.' tariffs. reason substituting contains terms procure increase. change Tariff predecessor. advent Brief 31. devoted 30. 1148 (1959); Pa.P.U.C. II, 'Public Notice Changes.' These specify days' changing rules '(s)ubject orders commission, governing service', rules. evidence 60-day passed, effective. P.U.C. Regulations VIII 'Discount Prompt Payment Penalties Delayed Bills,' state-imposed section 'penalties' customers failures promptly. applies monetary penalties. apparent Reg. (T)he insure inform patrons penalty failing Kadlec, defendant acted purely motive. No offical participated of, co-operated suspension service.' F.Supp., 958. states: 'We reasoning relation Government radio us Amendments.' Later, 'We, therefore, restriction, any, Fifth Amendments thereto.' 462—463, (Emphasis added.) V. 173, record intended overtly covertly Company's Regulations; abuse, fraud, connections, meters Company. Failure deemed waiver thereof.' minimal regarded court's unduly scope: 'While considerations indeed validly accountable embarked, say inescapably present. Their persuasiveness diminished evaluated context acknowledged.' After discussing additional detail, concluded: 'Addition activites, responsibilities benefits mutually conferred, integral building participation design condemn.' 724, irrelevant inauguration Pennsylvania, sort is, practical monopoly. Whatever origins, existing regulation; take significance light alternative source disclaimer (1952), read wholly irrelevant; 'disclaimer' used ingredient rates, 1141 et seq. Supp. 1974—1975), character quality facilities, 1171, 1182—1183; receive investigate complaints, 1391, 1398, supervise activities, rules, contractual undertakings 1341—1343, 1360. exhaustion remedies suing (see Wilwording Swenson, 404 249, 407, 418 (1971)), suggestions statutory changes regard Judd, Expanding Jurisdiction Courts, A.B.A.J. 938, 941 amply corporations. rates fixed accounting. 1141, 1149, 1182, 1183, 1211 (1959). supervision, 'shall delay.' 1171. domain 1124 entry customer's inspect equipment. 14D. 'sanctioned state,' 17, 26. Later sanction affirmative command. McCabe Atchison, T. S.F.R. 235 151, 69, 59 (1914); (1932); inaction, 'elected prestige discrimination,' actually 726—727, 862—863 (Stewart, concurring). 381, 1634, (1967), ruling California 'was authorize, discrimination housing market.' fostered encouraged justified. rigid standard ordered it. accept characterization deciding 356. doubt score original resolved 319—320, 498 499 (Harlan, Broadcasting System, Democratic National Committee, 412 94, 119, 2080, 2094, 772 (1973) (opinion Burger, C.J.); 133, 2101 Bronson, Judge Tyler 16% investigated resulted adjustments favor customer. 11.

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