The Primary Jurisdiction The Primary Jurisdiction Doctrine Under Federal Doctrine Under Federal and California Lawand California Law

Jonathan H. BlavinJonathan H. Blavin

Munger, Tolles & Olson LLPMunger, Tolles & Olson LLP

CCPUC, October 6, 2009CCPUC, October 6, 2009

RoadmapRoadmap

The origin of the doctrine The origin of the doctrine The elements and rationale of The elements and rationale of

the doctrine the doctrine Intersection of doctrine with Intersection of doctrine with

other legal doctrines other legal doctrines Open issuesOpen issues

Origins of the DoctrineOrigins of the Doctrine

Texas and Pacific Railway Co v Abilene Texas and Pacific Railway Co v Abilene Cotton Oil Co.Cotton Oil Co., 204 US 426 (1907)., 204 US 426 (1907).– Uniformity: Held that rates “might be found Uniformity: Held that rates “might be found

reasonable by the Commission in the first reasonable by the Commission in the first instance and unreasonable by a court acting instance and unreasonable by a court acting originally, and thus a conflict would arise.” originally, and thus a conflict would arise.”

Far East Conference v United StatesFar East Conference v United States, , 342 US 570 (1952).342 US 570 (1952).– Agency expertise: A decision would Agency expertise: A decision would

implicate considerations “generally implicate considerations “generally unfamiliar to a judicial tribunal, but well unfamiliar to a judicial tribunal, but well understood by an administrative body understood by an administrative body especially trained and experienced in the especially trained and experienced in the intricate and technical facts.” intricate and technical facts.”

Modern FormulationModern Formulation

United States v Western Pacific Railroad United States v Western Pacific Railroad CoCo, 352 US 59 (1956) (emphasis , 352 US 59 (1956) (emphasis added): “Primary jurisdiction applies added): “Primary jurisdiction applies where a claim is where a claim is originally cognizableoriginally cognizable in in the courts, and comes into play the courts, and comes into play whenever enforcement of the claim whenever enforcement of the claim requires the resolution of issues which, requires the resolution of issues which, under a regulatoryunder a regulatory schemescheme, have been , have been placed within the placed within the special competencespecial competence of of an administrative body; in such a case an administrative body; in such a case the judicial process is suspended the judicial process is suspended pending referral of such issues to the pending referral of such issues to the administrative body for its views.”administrative body for its views.”

Modern FormulationModern Formulation

Ninth Circuit: Ninth Circuit: – (1) a need to resolve an issue that (1) a need to resolve an issue that – (2) has been placed by Congress within the (2) has been placed by Congress within the

jurisdiction of an administrative body having jurisdiction of an administrative body having regulatory authority regulatory authority

– (3) pursuant to a statute that subjects an (3) pursuant to a statute that subjects an industry or activity to a comprehensive industry or activity to a comprehensive regulatory authority that regulatory authority that

– (4) requires (4) requires expertise or uniformityexpertise or uniformity in in administration. administration.

Clark v. Time Warner CableClark v. Time Warner Cable, 523 F.3d 1110, , 523 F.3d 1110, 1115-16 (9th Cir. 2008) (emphasis added). 1115-16 (9th Cir. 2008) (emphasis added).

Modern FormulationModern Formulation

California law substantially similar:California law substantially similar:– CA courts recognize that doctrine “originated CA courts recognize that doctrine “originated

in the United States Supreme Court and has in the United States Supreme Court and has since been developed largely in federal since been developed largely in federal courts.” courts.” Wise v. Pacific Gas and Elec. Co., 132 Cal.App.4th 725, 739 (2005).

– Same rationale discussed. Same rationale discussed. Regulatory expertise.Regulatory expertise. Wise v. Pacific Gas & Wise v. Pacific Gas &

Electric Co.Electric Co. 77 Cal.App.4th 287, 298 (1999). 77 Cal.App.4th 287, 298 (1999). Uniformity. Uniformity. Farmers Ins. Exchange v. Farmers Ins. Exchange v.

Superior CourtSuperior Court 2 Cal.4th 377, 391-92 2 Cal.4th 377, 391-92 (1992). (1992).

Agency Expertise Agency Expertise

Courts consider whether issues Courts consider whether issues are “beyond the conventional are “beyond the conventional experiences of judges.” experiences of judges.” National National Communications Association, Inc Communications Association, Inc v AT&Tv AT&T, 46 F3d 220, 222-23 (2d , 46 F3d 220, 222-23 (2d Cir 1995).Cir 1995).

Technical issues? Statutory Technical issues? Statutory interpretation? interpretation?

Agency ExpertiseAgency Expertise

Cundiff v. GTE California IncCundiff v. GTE California Inc., 101 Cal.App.4th 1395, 1412 ., 101 Cal.App.4th 1395, 1412 (2002): “The subject of this suit . . . is . . . alleged (2002): “The subject of this suit . . . is . . . alleged intentional or negligent misrepresentation . . . . This is intentional or negligent misrepresentation . . . . This is not a topic about which the commission would have more not a topic about which the commission would have more expertise than the trial court . . . .”expertise than the trial court . . . .”

Hart v. Comcast of Alameda, 2008 WL 2610787 (N.D. Cal. 2008): issue of whether “file sharing applications are unlawful, and unfairly discriminate against P2P applications” – i.e., the “reasonableness of a broadband provider's network management practices-has, however, been firmly placed within the jurisdiction” of the FCC

Lyons v. Coxcom, Inc., 2009 WL 347285 (S.D. Cal. 2009): “FCC proceedings with Comcast concern a different internet provider and different claims” and the “issues involved in this case are primarily grounded in contract, false advertising, and unfair competition, issues traditionally within the scope of the judiciary.”

UniformityUniformity

Possibility of conflict? Possibility of conflict? McConnell v. McConnell v. Pacificorp Inc.,Pacificorp Inc., 2007 WL 2385096 (N.D. 2007 WL 2385096 (N.D. Cal. 2007): FERC findings may be Cal. 2007): FERC findings may be “relevant and could even assist the “relevant and could even assist the experts herein, those findings could not experts herein, those findings could not take the place of the factual take the place of the factual determinations to be made by the jury” determinations to be made by the jury” and that “decision herein would simply be and that “decision herein would simply be an application of the available facts to the an application of the available facts to the relevant California state law. Defendant relevant California state law. Defendant has not demonstrated how this would has not demonstrated how this would disrupt FERC's administrative disrupt FERC's administrative proceedings.”proceedings.”

Stays and ReferralsStays and Referrals

Stays and ReferralsStays and Referrals– The “proper procedure is to stay the The “proper procedure is to stay the

action pending resolution of the action pending resolution of the issues within the administrative issues within the administrative body’s expertise.” body’s expertise.” Wise v. Pacific Wise v. Pacific Gas & Electric Co., Gas & Electric Co., 77 Cal.App.4th 77 Cal.App.4th 287, 296 (1999). 287, 296 (1999).

– Where no pending proceeding, stay Where no pending proceeding, stay may accompany a “referral” calling may accompany a “referral” calling for the agency to take action. for the agency to take action. Farmers Ins., Farmers Ins., 2 Cal.4th at 378. 2 Cal.4th at 378.

Stays and ReferralsStays and Referrals

Procedural issue: how “referral” is accomplished– “the Public Utilities Act does not include a

provision by which the court is authorized to request a determination from the PUC.” Wise v. Pacific Gas and Elec. Co., 132 Cal.App.4th 725, 741 (2005).

– “there is a basis for believing the [Insurance] Commissioner would not have accepted the referral.” Krumme v. Mercury Ins. Co., 123 Cal.App.4th 924, 938 (2004).

Relationship to Other Relationship to Other DoctrinesDoctrines Section 1759: Section 1759: DivestsDivests superior courts of superior courts of

jurisdiction over actions which not only would jurisdiction over actions which not only would reverse or annul a specific PUC order, but also reverse or annul a specific PUC order, but also those actions against utilities which would those actions against utilities which would “have the effect of undermining a general “have the effect of undermining a general supervisory or regulatory policy of the supervisory or regulatory policy of the commission, i.e., when it would ‘hinder’ or commission, i.e., when it would ‘hinder’ or ‘frustrate’ or ‘interfere with’ or ‘obstruct’ that ‘frustrate’ or ‘interfere with’ or ‘obstruct’ that policy.” policy.” San Diego Gas & Electric Co. v. San Diego Gas & Electric Co. v. Superior CourtSuperior Court , 13 Cal.4th 893, 918 (1996). , 13 Cal.4th 893, 918 (1996).

By contrast, primary jurisdiction not doctrine of By contrast, primary jurisdiction not doctrine of exclusive jurisdiction; issue is “originally exclusive jurisdiction; issue is “originally cognizable” in the courts. cognizable” in the courts.

Relationship to Other Relationship to Other Doctrines Doctrines Wise v. Pacific Gas and Elec. Co., 132 Cal.App.4th

725, 742 (2005): the “PUC does not have exclusive the “PUC does not have exclusive jurisdiction over the issues raised in the instant jurisdiction over the issues raised in the instant actionaction. . . . . . . . Had we concluded the PUC should be Had we concluded the PUC should be the final arbiter of the issue . . . we would have held the final arbiter of the issue . . . we would have held plaintiffs' action was barred by Public Utilities Code plaintiffs' action was barred by Public Utilities Code section 1759 and not applied the primary section 1759 and not applied the primary jurisdiction doctrine.” jurisdiction doctrine.”

Limits of Section 1759: Limits of Section 1759: People ex rel. Orloff v. People ex rel. Orloff v. Pacific BellPacific Bell, 31 Cal.4th 1132 (2003): action not , 31 Cal.4th 1132 (2003): action not barred by Section 1759 even though “potential for barred by Section 1759 even though “potential for inconsistent findings of fact and conclusions of law inconsistent findings of fact and conclusions of law in the present civil action and in the administrative in the present civil action and in the administrative proceeding”; court suggests that parties “might proceeding”; court suggests that parties “might seek a stay of a civil action to await the outcome of seek a stay of a civil action to await the outcome of parallel PUC proceedings”parallel PUC proceedings”

Relationship to Other Relationship to Other DoctrinesDoctrines Doctrine supported where ordinarily would

defer to agency. Chevron U.S.A., Inc. v. Natural Resources

Defense Council, Inc., 467 U.S. 837 (1984) – Chevron creates after-the-fact deference

by upholding any agency interpretation that is “permissible.”

– Primary jurisdiction creates a before-the-fact opportunity for an agency to decide certain issues.

Hobbs Act, 28 U.S.C. § 2342(1): federal courts of appeals have “exclusive jurisdiction to enjoin, set aside, suspend (in whole or in part) or to determine the validity of” certain agency rulings, FCC.

Relationship to Other Relationship to Other DoctrinesDoctrines Doctrine applied for an issue that is “primarily Doctrine applied for an issue that is “primarily

one of statutory interpretation” precisely one of statutory interpretation” precisely where a court otherwise would “defer to the where a court otherwise would “defer to the agency’s interpretation.” agency’s interpretation.” American Auto. American Auto. Mfrs. Ass’n v. Massachusetts Dept. of Mfrs. Ass’n v. Massachusetts Dept. of Environmental ProtectionEnvironmental Protection, 163 F.3d 74, 81 , 163 F.3d 74, 81 (1st Cir. 1998). (1st Cir. 1998).

Statutory interpretation issue could be Statutory interpretation issue could be referred to agency under doctrine because referred to agency under doctrine because “[i]f we had the benefit of the [agency’s] “[i]f we had the benefit of the [agency’s] reasoned decision . . . we would accord that reasoned decision . . . we would accord that decision substantial deference.” decision substantial deference.” Northwest Northwest Airlines, Inc. v. County of Kent, Airlines, Inc. v. County of Kent, 510 U.S. 355, 510 U.S. 355, 366 n.10 (1994). 366 n.10 (1994).

Relationship to Other Relationship to Other DoctrinesDoctrines Doctrine not applied where agency

determination not binding. Rhoades v. Avon Products, Inc., 504 F.3d 1151 (9th Cir. 2007): – Court declined to defer to TTAB given

that it “is not an ordinary administrative agency whose findings control unless set aside after court review under a highly deferential standard.”

– [W]here a contested Board proceeding has already addressed the validity of the mark, the Board's findings can be challenged in a civil action in district court . . . 15 U.S.C. § 1071(b).”

Relationship to Other Relationship to Other DoctrinesDoctrines Nature of agency determination after

doctrine applied. Wise v. Pacific Gas and Elec. Co., 132

Cal.App.4th 725, 741-42 (2005): PUC closing of investigation not “entitled to collateral estoppel effect in a subsequent judicial proceeding” because agency had not been “acting in a judicial capacity.”

Relationship to Other Relationship to Other DoctrinesDoctrines Exhaustion doctrine

– “‘Exhaustion’”: applies “where a claim is cognizable in the first instance by an administrative agency alone; judicial interference is withheld until the administrative process has run its course.

– “Primary jurisdiction,” applies “where a claim is originally cognizable in the courts, and comes into play whenever enforcement of the claim requires the resolution of issues which, under a regulatory scheme, have been placed within the special competence of an administrative body.”

Farmers Ins. Exchange v. Superior Court, 2 Cal.4th 377, 390 (1992) (emphases added).

Relationship to Other Relationship to Other DoctrinesDoctrines Filed-rate doctrineFiled-rate doctrine

– The filed-rate doctrine The filed-rate doctrine prohibits courtsprohibits courts from deciding disputes concerning the from deciding disputes concerning the reasonableness of a rate that has been reasonableness of a rate that has been filed by a regulated entity if it is the filed by a regulated entity if it is the reasonableness of the rate that is in reasonableness of the rate that is in dispute. dispute.

– Abilene CottonAbilene Cotton: Supreme Court : Supreme Court determined that a court of law had no determined that a court of law had no jurisdiction to pass upon the jurisdiction to pass upon the reasonableness of a rate filed with the reasonableness of a rate filed with the Commission.  Commission.  

– Like primary jurisdiction, purpose of the Like primary jurisdiction, purpose of the filed-rate doctrine is to maintain uniformity filed-rate doctrine is to maintain uniformity and consistency in the regulatory scheme.and consistency in the regulatory scheme.

Open IssuesOpen Issues

New technologies and affect on doctrine. – Clark v. Time Warner Cable, 523 F.3d 1110

(9th Cir. 2008): “approv[ing] of the use of the primary jurisdiction doctrine where it is unclear whether a federal statute applies to a new technology.”

– Syntek Semiconductor Co., Ltd. v. Microchip Technology Inc., 307 F.3d 775 (9th Cir. 2002): “the question of whether decompiled object code qualifies for registration as source code under the Copyright Act and regulations is an issue of first impression. It also involves a complicated issue that Congress has committed to the Register of Copyrights.”

Open IssuesOpen Issues

Does doctrine permit referral to state agency from federal court?

– Western Radio Services Co. v. Qwest Corp., 530 F.3d 1186, 1200 (9th Cir. 2008) (“we have questioned whether the doctrine permits referral of a case to a state, as opposed to a federal, agency”).

– Cost Mgmt. Servs., Inc. v. Wash. Nat. Gas Co., 99 F.3d 937, 949 n. 12 (9th Cir. 1996) (“[W]e are not entirely persuaded that the doctrine should be applied ... to allow a federal court to ‘route’ issues to a state agency for resolution.”).

Open IssuesOpen Issues

Standard of Appellate Review in Federal Courts. – Some courts say de novo review.

Newspaper Guild of Salem v Ottaway Newspapers, Inc, 79 F3d 1273, 1283 (1st Cir 1996); International Brother-hood of Teamsters v American Delivery Service Co, Inc, 50 F3d 770, 773 (9th Cir 1995).

– The doctrine is not “discretionary” and “an issue either is within an agency’s primary jurisdiction or it is not, and, if it is, a court may not act until the agency has made the initial determination.” United States v. Gen. Dynamics Corp., 828 F.2d 1356, 1364 n.15 (9th Cir. 1987) (emphasis added).

Open Issues Open Issues

– Other courts state abuse of discretion proper review. National Telephone Cooperative Association v Exxon Mobil Corp, 244 F3d 153, 156 (D.C. Cir. 2001); Environmental Technology Council v Sierra Club, 98 F3d 774, 789 (4th Cir. 1996).

– CA law suggests more discretion. “[D]iscretionary approach leaves courts with considerable flexibility to avoid application of the doctrine in appropriate situations.” Farmers Insurance, 2 Cal.4th at p. 392 (emphasis added).