Login
  • Bookmark
  • PDF
  • Share
  • CaseIQ

MICHIGAN BELL v. DETROIT

Michigan Court of Appeals.
Jun 3, 1981
Important Paras
Please sign up to view Important Paras.
Smart Summary (Beta)

MICHIGAN BELL TELEPHONE COMPANY v CITY OF DETROIT — Summary of Opinion (Mich. Ct. App., June 3, 1981)

Factual and Procedural Background

On September 4, 1970, and July 13, 1973, the Detroit Common Council passed resolutions vacating certain streets and alleys to permit construction of a sewage treatment facility. Michigan Bell (plaintiff) owned facilities in easements on those streets and alleys. On May 26, 1974, Bell sued in Wayne County Circuit Court asserting that the City (defendant) was required to condemn and compensate Bell for its easements; damages were later stipulated by the City. On May 28, 1978, Bell and the City entered a relocation agreement under which Bell agreed to move its facilities without prejudice to its claim for reimbursement. The Wayne County Circuit Court, on April 13, 1979, ruled that Bell had a vested property right in the easements and a contractual right not subject to abridgement by the City, and it awarded stipulated damages of $276,126.45. The City appealed, and the Court of Appeals reversed.

Legal Issues Presented

  1. Whether a municipal exercise of police power to vacate streets for construction of a sewage treatment facility may require a telephone utility with vested easements to relocate its facilities without reimbursement.
  2. Whether the common-law rule requiring utilities to remove or relocate facilities at their own expense when necessary for public health or welfare applies where the municipality is performing a governmental function (here, sewer construction), notwithstanding the utility's vested franchise rights from the state.

Arguments of the Parties

Defendant's (City of Detroit) Arguments

  • The City's police powers permit it to require Michigan Bell to move its facilities from one street to another to make way for a public improvement (the sewage treatment facility).

Plaintiff's (Michigan Bell) Arguments

  • Because Bell's easements are vested (under the Michigan telephone act and related authority), Bell may not be required to relocate its facilities without reimbursement from the City, as would be required in a condemnation proceeding.

Table of Precedents Cited

Precedent Rule or Principle Cited For Application by the Court
City of Niles v Michigan Gas Electric Co, 273 Mich. 255; 262 N.W. 900 (1935) That upon acquisition of the franchise from the state a telephone utility's easement becomes a vested right. The court acknowledged this as establishing that utilities obtain vested rights under state franchises, a background principle in assessing Bell's claim.
Lansing v Michigan Power Co, 183 Mich. 400; 150 N.W. 250 (1914) The state Legislature's franchise is separate from local municipal franchises and, once accepted, becomes a contractual right protected by the Fourteenth Amendment for the life of the utility corporation. Used to recognize Bell's contractual/vested rights under state franchise law while framing limits on municipal authority.
Detroit v Michigan Public Utilities Comm, 288 Mich. 267; 286 N.W. 368 (1939) Local governments have no inherent power to regulate public utilities absent express grant in constitution, statutes, or charter. Cited to show that municipal regulatory power over utilities depends on express authorization and is not inherent.
Traverse City v Consumers Power Co, 340 Mich. 85; 64 N.W.2d 894 (1954) Support for the proposition that municipal power to regulate utilities must be expressly granted; local regulation may be valid if authorized and reasonably related to public welfare. Applied to establish that local regulation can be legitimate when authorized and reasonable, informing the balance between vested utility rights and municipal police powers.
Kalamazoo v Kalamazoo Circuit Judge, 200 Mich. 146; 166 N.W. 998 (1918) As a general proposition, regulation of a public utility by a local government is valid if authorized, reasonable, and related to public health, safety, or general welfare. Quoted to state the standard under which local regulation of utilities is judged.
Detroit v The Fort Wayne E R Co, 90 Mich. 646; 51 N.W. 688 (1892) The municipality controls its streets and any permission to use them is subordinate to the municipality's power to regulate, improve, and change streets for public benefit. Relied upon to emphasize that utility use of streets is subordinate to municipal control and that municipalities may require changes in utility construction consistent with reasonable exercise of street powers.
Center Line v Michigan Bell Telephone Co, 26 Mich. App. 659; 182 N.W.2d 769 (1970) Held that where a telephone utility was forced to relocate equipment for an urban renewal project, the relocation burden fell on taxpayers; holding was narrowed to urban renewal circumstances. Distinguished: court noted Center Line's limited scope (urban renewal) and that it should not be read to alter common-law rights outside that context.
Detroit Board of Education v Michigan Bell Telephone Co, 395 Mich. 1; 232 N.W.2d 633 (1975) Supreme Court held a school district was not empowered by the Legislature to require a public utility to relocate facilities without compensation. Cited as authority that compensation may be required in some contexts, but noted the Supreme Court left open whether relocation without compensation can be required in other circumstances.
The Pacific Telephone Telegraph Co v The Redevelopment Agency of Glendale, 87 Cal.App.3d 296; 151 Cal.Rptr. 68 (1978) Example of cases holding utilities' right to use streets is subject to local government's power to require relocation at utility's expense for public welfare. Included among recent authorities supporting the common-law rule that utilities may have to relocate at their own expense when public welfare demands.
State Highway Dep't v Roberts, 215 A.2d 250 (Del.Ch., 1965) Authority supporting municipal or governmental power to require relocation of utility facilities under public necessity. Listed as part of a body of authorities endorsing the common-law principle applied by the court.
Chicago v Chicago City R Co, 324 Ill. 618; 155 N.E. 781 (1927) Illustration of common-law rule that the right to use streets is subject to municipal improvements and changes. Relied upon as part of historical and recent precedent supporting municipal power to require utility relocation.
Wichita v Kansas Gas Electric Co, 204 Kan. 546; 464 P.2d 196 (1970) Another authority recognizing municipal power to require utilities to relocate when necessary for public purposes. Included to show consensus among authorities that relocation-at-own-expense rules are recognized where public interests require.
Commonwealth v Louisville Water Co, 479 S.W.2d 626 (Ky, 1972) Authority for municipal power to require relocation of utilities in service of public welfare. Part of the comparative-jurisdiction support cited for applying the common-law rule.
Central Maine Power Co v Waterville Urban Renewal Authority, 281 A.2d 233 (Me, 1971) Authority addressing relocation of utility facilities in the context of public projects. Cited with other cases to show broader acceptance of the principle that utilities may be required to relocate for public projects without compensation in certain contexts.
Manchester Gas Co v Griffin Construction Co, 119 N.H. 179; 399 A.2d 970 (1979) Supports the proposition that utilities' street use is subject to municipal-improvement-driven change obligations. Included among cases illustrating the common-law approach adopted by the court.
Port of New York Authority v Hackensack Water Co, 41 N.J. 90; 195 A.2d 1 (1963) Case recognizing municipal or public authority power over utilities' use of public ways when public purposes demand changes. Used to demonstrate consistent out-of-state authority endorsing municipal relocation requirements.
Southern Union Gas Co v Artesia, 81 N.M. 654; 472 P.2d 368 (1970) Part of the jurisprudence upholding municipal ability to require relocation for public needs. Cited as additional supporting precedent for the common-law rule applied.
New York Telephone Co v Binghamton, 18 N.Y.2d 152; 219 N.E.2d 184 (1966) Authority that a utility's right to use streets is subject to municipal control and necessary changes. Included among the authorities showing courts often require utilities to bear relocation costs when public welfare necessitates.
Southern Bell Telephone Telegraph Co v The Housing Authority of Raleigh, 38 N.C. App. 172; 247 S.E.2d 663 (1978) Example of case law on relocation obligations of utilities in public projects. Listed with other cases as persuasive support for applying the common-law rule.
Urban Renewal Agency of Eugene v Pacific Northwest Bell Telephone Co, 23 Or. App. 384; 542 P.2d 908 (1975) Case addressing relocation of utility facilities in public renewal or improvement contexts. Referenced as part of the body of authority considered by the court in reaching its conclusion.
State v Public Utilities Dist, 55 Wn.2d 645; 349 P.2d 426 (1960) Authority recognizing municipal power to require changes in utility facilities for public purposes. Included to show consistent precedent across jurisdictions favoring municipal authority in similar circumstances.
City of Edmonds v General Telephone Co of the Northwest, Inc, 21 Wn. App. 218; 584 P.2d 458 (1978) Supportive precedent that utilities may be required to relocate facilities at their own expense when necessitated by public needs. Used as further confirmation of the common-law rule adopted by the court.
Beauchamp v Saginaw Twp, 74 Mich. App. 44; 253 N.W.2d 355 (1977) That construction of a sewer facility is a governmental function. Applied to classify the City's sewer construction as a governmental (not proprietary) function, which bears on the applicability of relocation rules.

Court's Reasoning and Analysis

The court began by recognizing the statutory and caselaw background that telephone companies obtain authority to construct along public streets under the Michigan telephone act and that state franchises create vested, contractual rights (City of Niles; Lansing). The narrow question was whether the City's exercise of police power to vacate streets for sewer construction could require Bell to relocate facilities without reimbursement.

The court reviewed the limits on municipal regulatory power: municipalities have no inherent regulatory authority over utilities absent express grant, but local regulation may be valid when authorized, reasonable, and related to public health, safety, or welfare (Detroit v Michigan Public Utilities Comm; Traverse City v Consumers Power Co; Kalamazoo). The court emphasized that a state franchise does not divest local governments of the power to regulate in ways necessary to reasonably protect community welfare (Consumers Power Co, supra).

The opinion distinguished Center Line (which allocated relocation costs to taxpayers) as limited to urban renewal projects and noted that Detroit Board of Education left open whether relocation without compensation can be required in other contexts. The Fort Wayne decision was cited to demonstrate the municipal authority over streets and the subordinate nature of permissions to use streets.

Relying on a body of common-law and recent case authority from other jurisdictions, the court explained that the prevailing common-law rule is that a public utility's right to use streets is subject to the municipality's right to require relocation of lines and facilities at the utility's expense when necessary for public health and welfare. The court then classified construction of a sewer facility as a governmental function (Beauchamp), which made the present case unlike urban renewal contexts where a different allocation had been found. Given that characterization, the court held the common-law rule applied and that the City was not obligated to reimburse Bell for relocation expenses.

Holding and Implications

HOLDING: The Court of Appeals reversed the lower court's award and held that the City of Detroit was not obligated to reimburse Michigan Bell for relocation expenses in connection with construction of the sewage treatment facility.

Implications:

  • Direct effect: The April 27, 1979 summary-judgment award of stipulated damages in favor of Michigan Bell (in the amount previously stated) was reversed; the City need not pay Bell's relocation costs for the sewer project on the facts presented.
  • The court applied the common-law principle that utilities' use of public streets is subject to municipal authority to require relocation at the utility's expense when necessary to protect public health or general welfare, particularly where the municipality is performing a governmental function (here, sewer construction).
Show all summary ...

T.M. BURNS, P.J.

The defendant City of Detroit comes before this Court appealing an April 27, 1979, lower court order granting summary judgment in favor of plaintiff on stipulated damages of $276,126.45. We reverse.

On September 4, 1970, and July 13, 1973, the Detroit Common Council passed two resolutions that vacated certain streets in the City of Detroit for construction of a sewage treatment facility. On the streets and alleys that were to be vacated pursuant to these resolutions, plaintiff, Michigan Bell, owned several facilities.

On May 26, 1974, plaintiff filed a complaint in the Wayne County Circuit Court and claimed that defendant had to condemn and compensate Bell for the easements that it owned on the vacated streets and alleys. The damages as stated were later stipulated by defendant. In a May 28, 1978, relocation agreement, plaintiff agreed to move its facilities but without prejudice to its suit for reimbursement from the defendant for the cost of doing so.

On April 13, 1979, the Wayne County Circuit Court ruled that plaintiff did have a vested property right in the easements that it owned on the vacated streets and alleys. It was further found that plaintiff had not only a property right in these easements for its facilities, but that it also had a contractual right which defendant could not abridge. The lower court found that defendant was obligated to pay just compensation for condemning plaintiff's easements. Damages were awarded in the amount of those previously stipulated.

The defendant city now appeals, and we reverse.

Under the Michigan telephone act, MCL 484.1 et seq.; MSA 22.1411 et seq., telephone companies are given the authority to construct telephone lines along public streets. Upon acquisition of the franchise from the state, a telephone utility's easement becomes a vested right. City of Niles v Michigan Gas Electric Co, 273 Mich. 255; 262 N.W. 900 (1935). This franchise from the state Legislature is separate from, and in addition to, any franchise granted by the local municipality in which the utility operates. Lansing v Michigan Power Co, 183 Mich. 400; 150 N.W. 250 (1914). Once the utility accepts the right to operate the franchise, it becomes a contractual right protected by the Fourteenth Amendment for the life of the utility corporation. Id.

The dispute in the present case is a simple one. Defendant contends that its police powers permit it to require plaintiff to move its facilities from one street to another for the purpose of making way for a public improvement. Plaintiff, on the other hand, contends that because its easements are vested, it may not be required to relocate its facilities without reimbursement from defendant, as would be the case in any condemnation proceeding.

Local governments have no inherent power to regulate public utilities. Detroit v Michigan Public Utilities Comm, 288 Mich. 267; 286 N.W. 368 (1939). The power to do so must be expressly granted in the state constitution, statutes, or municipal charter in order for a municipality to be able to exercise such power. Traverse City v Consumers Power Co, 340 Mich. 85; 64 N.W.2d 894 (1954), Public Utilities Comm, supra. As a general proposition, regulation of a public utility by a local government is valid and constitutional if it is authorized, reasonable, and related to public health, safety, or general welfare. Kalamazoo v Kalamazoo Circuit Judge, 200 Mich. 146; 166 N.W. 998 (1918).

Thus, even though a utility has a valid franchise from the local municipality, it may be subject to all regulation by that governmental unit which is reasonably necessary to protect public welfare. Consumers Power Co, supra, Detroit v The Fort Wayne E R Co, 90 Mich. 646; 51 N.W. 688 (1892). Further, even where the public utility is possessed of a franchise from the state, local units of government are not thereby divested of power to regulate the utility in such ways as are necessary to reasonably protect the general welfare of the community. Consumers Power Co, supra.

In Center Line v Michigan Bell Telephone Co, 26 Mich. App. 659; 182 N.W.2d 769 (1970), this Court held that where a telephone utility company was forced to relocate its equipment to make way for an urban renewal project, the burden of the relocation had to be born by the taxpayers, not the utility. However, the Court narrowed its holding to the specific case of urban renewal because the Court found that in that situation the Legislature exempted utilities from the common-law principle that subordinated their rights to those of the municipality to exercise the police powers. The Court noted:

"Nothing in this opinion should be construed as an attempt to alter the common law right of the city to subordinate the utility's interest to an exercise of police power in any other setting than urban renewal." Id., 664.

Although our state Supreme Court has held that a school district was not empowered by the Legislature to require a public utility to relocate its facilities without compensation, Detroit Board of Education v Michigan Bell Telephone Co, 395 Mich. 1; 232 N.W.2d 633 (1975), the Court left unanswered the question of whether relocation without compensation can be required by a governmental authority in other circumstances, such as those of the case at bar.

The authority of a municipality to exercise police powers for the common good and regulate a utility was made evident in Fort Wayne E R Co, supra, 654:

"The charter of the city of Detroit commits the regulation, supervision, and control of its streets to the common council. It empowers the council to improve the same and to determine the nature and details of such improvement. It gives to the common council the power to control, prescribe and regulate the manner in which the streets shall be used and enjoyed. These powers are held in trust for the public benefit. They cannot be surrendered or delegated to private parties. All franchises granted or contracts made with reference to the use of streets must be made, not only with due regard to their lawful and proper use by others, but subject to the exercise by the municipality of the powers referred to.

"The permission given respondent [the utility] to use this street is in subordination to the general power of the municipality over its streets. The city is not under obligation to conform its treatment of its streets to the construction of respondent's road-bed, but, on the contrary, respondent must conform the construction of its road-bed to such reasonable regulations as are made by the municipality in the reasonable exercise of its powers respecting the use, control, regulation, and improvement of its streets. Street railways occupy public streets subject to the use of such streets by the public, subject to such burdens as may be made necessary by reason of the improvement of such streets, and subject to such changes in the construction of road-beds as improved and changed conditions may demand."

At common law, and in most recent cases to consider this issue, the right of the public utility to use public streets is subject to the right of the local government to require the utility to relocate its lines and facilities at its own expense when made necessary by considerations of public health and welfare. The Pacific Telephone Telegraph Co v The Redevelopment Agency of Glendale, 87 Cal.App.3d 296; 151 Cal.Rptr. 68 (1978), State Highway Dep't v Roberts, 215 A.2d 250 (Del.Ch., 1965), Chicago v Chicago City R Co, 324 Ill. 618; 155 N.E. 781 (1927), Wichita v Kansas Gas Electric Co, 204 Kan. 546; 464 P.2d 196 (1970), Commonwealth v Louisville Water Co, 479 S.W.2d 626 (Ky, 1972), Central Maine Power Co v Waterville Urban Renewal Authority, 281 A.2d 233 (Me, 1971), Manchester Gas Co v Griffin Construction Co, 119 N.H. 179; 399 A.2d 970 (1979), Port of New York Authority v Hackensack Water Co, 41 N.J. 90; 195 A.2d 1 (1963), Southern Union Gas Co v Artesia, 81 N.M. 654; 472 P.2d 368 (1970), New York Telephone Co v Binghamton, 18 N.Y.2d 152; 219 N.E.2d 184 (1966), Southern Bell Telephone Telegraph Co v The Housing Authority of Raleigh, 38 N.C. App. 172; 247 S.E.2d 663 (1978), Urban Renewal Agency of Eugene v Pacific Northwest Bell Telephone Co, 23 Or. App. 384; 542 P.2d 908 (1975), State v Public Utilities Dist, 55 Wn.2d 645; 349 P.2d 426 (1960), City of Edmonds v General Telephone Co of the Northwest, Inc, 21 Wn. App. 218; 584 P.2d 458 (1978).

The construction of a sewer facility clearly is a governmental function. Beauchamp v Saginaw Twp, 74 Mich. App. 44; 253 N.W.2d 355 (1977). Therefore, the case before us is unlike the situation in Center Line, supra, where the public utility was required to relocate equipment to make way for an urban renewal project which amounted to condemnation for a proprietary function rather than a governmental function. On the facts before us, then, we hold that the common-law rule requiring a utility to remove its facilities at its own expense where necessary to protect the public health or general welfare is applicable. As a consequence, the lower court erred in holding that defendant was obligated to reimburse plaintiff for the relocation expenses.

Reversed.