Document: 467 U.S. 229 104 S.Ct. 2321 81 L.Ed.2d 186 HAWAII HOUSING AUTHORITY et al.v.Frank E. MIDKIFF al. PORTLOCK COMMUNITY ASSOCIATION (Maunalua Beach) v. Frank KAHALA ASSOCIATION, INC., Nos. 83-141, 83-236 and 83-283. Supreme Court of the United States Argued March 26, 1984. Decided May 30, Syllabus To reduce perceived social economic evils a land oligopoly traceable to early high chiefs Hawaiian Islands, Hawaii Legislature enacted Land Reform Act 1967 (Act) which created condemnation scheme whereby title in real property is taken from lessors transferred lessees order concentration ownership. Under Act, living on single-family residential lots within tracts at least five acres size are entitled ask appellant Housing Authority (HHA) condemn they live. When appropriate applications by filed, authorizes HHA hold public hearing determine whether State's acquisition tract will "effectuate purposes" Act. If determines that these purposes be served, it authorized designate some or all for acquisition. It then acquires, prices set trial negotiation between lessees, former fee owners' "right, title, interest" land, may sell titles applicant lessees. After had held proposed appellees' lands found such would effectuate Act's purposes, directed appellees negotiate with certain concerning sale designated properties. negotiations failed, ordered submit compulsory arbitration as provided Rather than comply this order, filed suit Federal District Court, asking declared unconstitutional its enforcement enjoined. The court temporarily restrained State proceeding against estates, but subsequently, while holding compensation formulae provisions unconstitutional, refused issue preliminary injunction ultimately granted partial summary judgment private appellants who intervened, remainder constitutional under Public Use Clause Fifth Amendment, made applicable Fourteenth Amendment. deciding properly not abstained exercising jurisdiction, Appeals reversed, violates "public use" requirement Held: 1. was required abstain jurisdiction. Pp. 236-239. (a) Abstention Railroad Comm'n Pullman Co., 312 496, 61 643, 85 L.Ed. 971, unnecessary. abstention limited uncertain questions state law, here there no question since unambiguously provides power "for use purpose." Thus, question, uncomplicated ambiguous language, face unconstitutional. 236-237. (b) Nor Younger Harris, 401 37, 91 746, 27 669. only when state-court proceedings initiated before any substance merits have occurred federal court. Here, judicial been time took place having issued first eminent domain And fact HHA's administrative did require abstention, clearly states those part of, themselves, proceeding. 237-239. 2. does violate 239-244. That coterminous scope sovereign's police powers. This substitute legislature's what constitutes unless palpably without reasonable foundation. Where exercise rationally related conceivable purpose, compensated taking prohibited Clause. regulating associated classic powers, redistribution fees simple rational power. 239-243. mere outright instance beneficiaries purpose. Government itself legitimate taking; taking's mechanics, must pass scrutiny legislature, Congress, determination mean deference less appropriate. 243-244. 702 F.2d 788 (CA9 1983), reversed remanded. Justice O'CONNOR delivered opinion Court. 1 Amendment Constitution provides, pertinent part, "private [shall not] use, just compensation." These cases present through prohibits taking, compensation, transferring ownership State. We conclude not. 2 * A. 3 Islands were originally settled Polynesian immigrants western Pacific. settlers developed an economy around feudal tenure system one island chief, ali'i nui, controlled assigned development subchiefs. subchiefs reassign other lower ranking chiefs, administer govern farmers tenants working it. All nui eventually returned his trust. There land. See generally Brief Office Affairs Amicus Curiae 3-5. 4 Beginning 1800's, leaders American repeatedly attempted divide kingdom among crown, common people. efforts proved largely unsuccessful, however, remained hands few. In mid-1960's, after extensive hearings, discovered that, Governments owned almost 49% another 47% 72 landowners. Hou Hawaiians Maui Loa, Chief Hawaiians, Amici 32. legislature further 18 landholders, 21,000 more, more 40% Oahu, most urbanized islands, 22 landowners 72.5% titles. Id., 32-33. concluded concentrated responsible skewing market, inflating prices, injuring tranquility welfare. 5 redress problems, decided compel large break up their estates. considered requiring leasing homeowners. However, strongly resisted scheme, pointing out significant tax liabilities incur. Indeed, claimed laws primary reason previously chosen lease, sell, lands. Therefore, accommodate needs both (Act), Haw.Rev.Stat., ch. 516, mechanism condemning condemned existing By intended make sales involuntary, thereby making consequences severe still facilitating simple. Appellants 83-141 83-283, pp. 3-4, nn. 6-8. 6 developmental Haw.Rev.Stat. §§ 516-1(2), (11), 516-22 (1977). 25 eligible tenants,1 half tract, whichever less, file applications, § 516-22. finds either lessees,2 full 516-25. 7 has set, applied lend 90% purchase price, condition final transfer right refusal 10 years following sale. 516-30, 516-34, 516-35. lot tenant residing there, lease someone else, notice given. 516-28. purchaser, tenant, lot, operate profit. 516-28, 516-32. practice, funds satisfy awards supplied entirely App. 164. While bonds acquisition, lots. ibid. B 8 April 1977, statutorily finding Then, October 1978, Those subsequently arbitration. 9 suit, February 1979, Three months later, declaring unconstitutional,3 preliminarily enjoin conducting statutory designation proceedings. Finally, December appellants, remaining portion 483 F.Supp. 62 (Haw.1979). goals bounds powers means serve arbitrary, capricious, selected bad faith. Ninth Circuit reversed. 1983). First, permissibly determined could requisite transfers contemplated unlike takings constitute uses" offered deserving deference. simply "a naked attempt take A solely B's benefit." 798. One judge dissented. 11 On intervened below, noted probable 464 932, 334, 78 304 (1983). now reverse. II 12 begin abused discretion abstaining suggested alternative perhaps standards announced 971 (1941), 669 (1971). do believe required. 13 supra, courts should decision difficult unsettled law resolved substantial can decided. cases, avoid unnecessary adjudication "needless friction policies. . ." U.S., 500, S.Ct., 645. need grounds statute "fairly subject interpretation render unnecessary" question. Harman Forssenius, 380 528, 535, 1177, 1182, 14 50 (1965). because "[a] bstention jurisdiction exception, rule." Colorado River Water Conservation Dist. States, 424 800, 813, 96 1236, 1244, 47 (1976). law. "[t]he 516-83(a)(12) (1977); see also 516-83(a)(10), (13). provision Act—or, matter, law—which suggest exactly says. Since "the [ambiguous language], unconstitutional," Wisconsin Constantineau, 400 433, 439, 507, 511, 515 (1971), 15 dissenting perhaps, resolution construction F.2d, 811-812. abstract, course, possibilities always exist. But relevant inquiry bare, though unlikely, possibility might Rather, "[w]e frequently emphasized nature, obviously susceptible limiting construction." Zwickler Koota, 389 241, 251, n. 14, 88 391, 397, 19 444 (1967). statutes nature construction. unnecessary.4 16 articulated supra. Younger-abstention doctrine, interests comity federalism counsel whenever claims presented ongoing concern important interests. Middlesex Ethics Committee Garden Bar Assn., 457 423, 432-437, 102 2515, 2521-2524, 73 116 (1982). required, "before court." Hicks Miranda, 422 332, 349, 95 2281, 2291, 45 223 (1975). normally fulfill duty adjudicate brought them. 17 Appellees complaint temporary permanent relief. At time, process. June granted, motion injunction, initiated. lawsuit parties begun filing motions Court—in September 1979. Whether issuance restraining action not, certainly was. Doran Salem Inn, Inc., 922, 929-931, 2561, 2566-2567, 648 proceeded well beyond "embryonic stage," id., 929, 2566, considerations economy, equity, point. extant level prior 1979 hearings. proceeding, "mandatory shall advance domain." 516-51(b) bar themselves commenced, County 2522; Fair Assessment Real Estate Inc. McNary, 454 100, 112-113, 177, 184-185, 70 271 (1981), III majority next Amendments. argument, we find ourselves agreement Appeals. 20 starting point our analysis constitutionality Court's Berman Parker, 348 75 98, 99 (1954). Berman, Columbia Redevelopment 1945. comprehensive redevelop slum areas possible discussing use," 31, 101, stated: 21 "We deal, words, traditionally known An define reach trace outer limits fruitless, each case turn own facts. definition essentially product legislative determinations addressed government, neither abstractly nor historically capable complete definition. Subject specific limitations, spoken, interest terms well-nigh conclusive. judiciary, main guardian served legislation, Congress legislating local affairs. principle admits exception merely involved. 32, (citations omitted). explicitly recognized breadth announcing, noting: 23 "Once object authority realize clear. For end. Once attained determine. Here enterprise redevelopment area. argue makes project businessman benefit businessman. executing alone determine, once purpose established." 33, 102. 24 thus is, role play reviewing even equated clear "an extremely narrow" one. cited approval Old Dominion Co. 269 55, 66, 46 39, 40, 162 (1925), "until shown involve impossibility." ex rel. TVA Welch, 327 546, 552, 66 715, 718, 90 843 (1946), "[a]ny departure restraint result governmental function invalidating legislation basis view moment decision, practice impracticable fields." short, "unless foundation." Gettysburg Electric R. 160 668, 680, 427, 429, 40 576 (1896). 26 sure, stated "one person's person justifying paid." Thompson Consolidated Gas Corp., 300 80, 57 364, 376, 510 (1937). See, e.g., Cincinnati Vester, 281 447, 360, 362, 74 950 (1930); Madisonville Traction St. Bernard Mining 196 239, 251-252, 255-256, 49 462 (1905); Fallbrook Irrigation Bradley, 164 112, 159, 56, 63, 41 369 Missouri Pacific Nebraska, 403, 130, 489 (1896), where "order be, domain," 416, 135 (emphasis added), invalidated lack never proscribed supra; Rindge Los Angeles, 262 700, 43 689, 67 1186 (1923); Block Hirsh, 256 135, 458, 65 865 (1921); cf. supra (invalidating uncompensated taking). basis, trouble concluding constitutional. people attempted, much original Colonies did,5 monarchs. has, according Legislature, artificial deterrents normal functioning market forced thousands individual homeowners rather buy, underneath homes. Regulating Exxon Corp. Governor Maryland, 437 117, 98 2207, (1978); People Puerto Rico Eastern Sugar Associates, 156 316 (CA1), cert. denied, 329 772, 190, 664 (1946). cannot disapprove Hawaii's 28 irrational approach correcting problem. presumes sufficiently number persons declare willing unable buy fair malfunctioning. malfunction signalled, tract. ensure dilution achieved. identifying failure. 29 Of like other, successful achieving goals. "whether accomplish objectives question: [constitutional requirement] satisfied if [state] believed [Act] promote objective." Western & Southern Life Ins. Bd. Equalization, 451 648, 671-672, 101 2070, 2084-2085, 68 514 (1981); Minnesota Clover Leaf Creamery 449 456, 466, 725, 659 Vance 440 93, 939, 950, 59 171 (1979). irrational, empirical debates over wisdom takings—no kinds socioeconomic legislation—are carried courts. Redistribution correct deficiencies attributable Clause.6 30 read stand narrower proposition. especially government possess during taking. retain possession throughout process, exacted use. 796-797. Second, involved review congressional determination[s] determination[s]." 798 original). Because instant rigorous Legislature's professed "statutory rationalizations." Ibid. disagree Appeals' analysis. 31 long ago rejected literal put into general public. "It essential entire community, considerable portion, directly enjoy participate improvement [for it] use." 707, 692. "[W]hat immediate aspect [is] transaction raised class character affair." 155, 459. As unique way skewed justified. advances actual 32 Similarly, appropriate.7 Judicial because, legislatures better able assess advanced respective spheres authority. federal, reasons power, defer IV 33 denied forbids executed confer particular party. purely withstand requirement; void. cases. identifiable individuals attack Hawaii—a achieve irrational. assume appeals weighty demand met, requirements Amendments satisfied. Accordingly, reverse Appeals, remand conformity opinion. 34 so ordered. 35 MARSHALL consideration who, things, owns house bona fide intent live resident State, shows proof ability pay it, elsewhere nearby. 516-33(3), (4), (7) 516-56 (Supp.1983). case, equal value owner's leased interest. 516-1(14). adequacy us. enacted, lessor lessee commence agree price title. Statutory compensation. No appeal rulings, amended provide mandatory advisory formulae. issues judge's suggestion obviated equally faulty. parallel Haw. Const., Art. I, 20. provisions. Examining Board Flores de Otero, 426 572, 598, 2264, 2279, (1976); Revolution, colonists several steps eradicate incidents proprietors encumbered Colonies. 1779, Henning's Statutes Large 64, 13, (1822) (Virginia statute); Divesting 1775-1781 Pa. Acts 258, 139 (1782) (Pennsylvania statute). Courts doubted Wilson Iseminger, 185 60-61, 573, 574-575, 804 (1902); Stewart Gorter, Md. 242, 244-245, 644, 645 (1889). similarly merit Due Process Contract arguments. argument due process allowing initiate New Motor Vehicle Fox 439 96, 108-109, 411-412, 58 361 (1978). thought protect domain. Trust Jersey, 431 1, 19, 16, 97 1505, 1516, 52 92 worth noting contain independent requirement. binding incorporation Amendment's Eminent Domain Chicago, B. Q.R. 166 226, 581, 979 (1897). ironic greater incorporated express mandate

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