Opinion by
Thеse appeals are from the action of the Oonrt of Common Pleas of Allegheny County in awarding a preliminary injunction enjoining the first class Township of Upper St. Clair, Allegheny County, and its officers from enforcing a zoning ordinance against the Duquesne Light Company, a public utility corporation (hereinafter called “Duquesne”).
Following the filing on February 23, 1954 of the complaint in equity in which the plaintiff Duquesne sought the injunction against the township, its commissioners and police officer, the defendants named in the suit, a hearing was had on March 5, 1954 and testimony adduced by the complainant. Counsel appeared for thе defendants and cross-examined the witnesses called by the plaintiff. On March 25, 1954 the chancellor (Judge Sara Soffel) filed her adjudication granting the prayer of the bill. From the chancellor’s findings which are supported by the evidence and not here challenged, the facts may he stated as follows: Duquesne is engaged in the generation, transmission, distribution and sale of -electric energy in the City of Pittsburgh • and ' other - municipalities in Allegheny, Beaver and Westmoreland' Counties. It has construct
A peak kilowatt load has become imposed upon the system with the result that the generating reserve capacity system is only 1.65% of the installed generating power. The minimum generating reserve necessary to provide adequately for maintenance and breakdowns and to insure adequate service to customers is 10%. Duquesne is presently installing at its Elrama Power Station a third generating unit which is to be completed and placed in operation on September 1, 1951. In order to provide sufficient generating capacity to supply the system’s peak load demand and to meet the growing requirements of its system, Duquesne proposed to construct а transmission line between the Elrama Power Station and the Woodville distributing substation. This line passes through seven political subdivisions,
two
boroughs and five townships, including the Township of Upper St. Clair and Collier Township. The location or site of this proposed transmission line from Elrama to Woodville is the result of the studied judgment of Duquesne’s Planning, Engineering, Construction and Right-of-Way Departments. The determining factors, in. the location of the pro
In order to construct the new transmission line it became necessary for Duquesne to acquire by purchase or condemnation rights-of-way and easements over a portion of the defendant Upper St. Clair Township which is zoned residential by a township ordinance. Duquesne does not serve any customers in this township, although it has charter rights to do so, but it owns facilities in the township and serves the public in immediately adjoining communities.
On February 28, 1953 Duquesne filed under the Act of May 21, 1921, P. L. 1057, 15 PS §1182, its individual applications with the Pennsylvaniа Public Utility Commission praying for a determination that the service to be rendered through the proposed condemnation of rights-of-way and easements on and over ten properties in Upper St. Clair Township was necessary and proper for the service, accommodation, convenience and safety of the public. Subsequently some of the Upper St. Clair property owners whose lands were involved in the applications to the Commission appeared before the Commission’s hearing examiner and, while having filed no answer or protests to the applications on their mеrits, moved for their dismissal for lack of jurisdiction in the Commission to entertain them, averring that (1) Duquesne does not serve nor intend to serve the public in Upper St. Clair with electric energy; (2) the Act of May 8, 1889, P. L. 138, as amended by the Act of 1921, does not authorize the Commission to. approve the exercise of the right of eminent domain, by an- eleetrie light, heat or power
The hearing examiner denied the motions to dismiss Avith leave to file formal petitions to the Commission itself for an interim ruling Avith respect to the jurisdictional issue raised. He then proceeded to take the evidence offered. Thereafter several of the said property owners filed petitions Avith the Commission requesting an interim ruling on the jurisdictional issue, which were denied by the Commission. Appeals to the Superior Court from this action by the Commission were quashed and this Court on December 18, 1953 refused leave to appeal from the decisions of the Superior Court.
On February 15, 1954 the Commission, acting on, four of the ten applications filed Avith it by Duquesne, entered orders wherein it determined that the service to be rendered through the proposed condemnation of rights-of-way and easements on and over said four properties was necessary and proper for the service, accommodation, convenience or safety of the public, and certificates of public convenience were issued pursuant thereto. Duquesne has acquired by purchase separate parcels of land and rights-of-way and easements along its proposed line traversing Upper St. Clair Township, including a right-of-Avay and easement acquired from one J. W. Free in and over his land and the fee in property of Fred K. Becker. On November 17, 1953 and on November 20, 1953, Duquesne, because of the pressing need for electric energy for light, heat and power in the Woodville area and elsewhere throughout its system, and for the completion by September 1, 1954 of the new transmission line contemporaneously with the completion • of the third
The chancellor granted the prayer of the bill and enjoined the defendants from prosecuting or threatening to prosecute the plaintiff for alleged violations of the zoning ordinance or in any way interfering with or preventing the construction of the transmission line.
In the equity proceeding Edward 0. Reed and Alberta G-. Reed, his wife, owners of property in the township which was the subject matter of one of Duquesne’s applications to the Public Utility Commission for approval of its exercise of the right of eminent domain, were allowed by the court below to intervene. They are appellants in the separate appeal to this Court at No. 173 March Term, 1954. In the equity proceeding Duquesne sought to enjoin the township and its officers from interfering with or preventing the further construction of its transmission line. The interest of the appellant Reeds obviously, and as appears from their petition to. intervene,.' was' in the efficacy of the zoning. ordinance ..to prevent, the construction of the •. transmission line which as proposed would pass' over their property. This- is .recognized by them'in. joining .in the consolidated brief 'filed by the appellants .in :the' two. appeals,' wherein-the..Statement'
As to the first question involved, we are of the opinion that it was properly determined by the chancellor adversely to the appellants. We quote in pertinent part from the chancellor’s adjudication:
“Article XI, section 1, of the Public Service Company Law of 19.13 provided in part that ‘It shall be the duty of every public service company ... to furnish and maintain such service, including facilities, as shall in all respects be just, reasonаbly adequate, and practically sufficient for the accommodation and safety of its patrons, employees and the public, and in conformity with such reasonable regulations or orders as may be made by the Commission.’ Article V, section 2, of the same law provided in effect that if the Public Service Commission should find the service or facilities of any public utility to be inadequate, the Commission should specify what facilities or service should be furnished, and direct the acquisition or rendition of the same. Section 401 of the present Public Utility Code of 1937 (66 PS 1171), which replaced the Public Service Company Law of 1913, рrovides that ‘Every public utility shall furnish and maintain adequate, efficient, safe and reasonable service and facilities, and shall make all such repairs, changes, alterations, substitutions, extensions and improvements in or to such service and facilities as shall be necessary or proper for the accommodation, convenience, and safety of its patrons, employees and the public.’ Section 901 of the Code proclaims that ‘The Commis
“The First Class Township Law Upon Which Upper St. Clair Relies Provides That It Shall Wot Modify the Public Utility Code.
In 1931, six years before the enactment of the Code and while the Public Service Company Law of 1913 was in effect, the General Assembly enacted the existing First Class Township Law. Section 3101 of the latter statute granted general zoning power to first class townships (53 PS 19092-3101), but, significantly, Section 3502, as initially enacted (53 PS 19092-3502), expressly provided that the act should ‘not repeal or modify any of the provisions of the Public Service Company Law’ of-
“The First Class Township Law Does Wot Expressly or Impliedly Grant Such Zoning Power with Respect to Uses- and Structures, Other Than Buildings, of a Utility Company.
The First Class Township Law does not
expressly
confer power upon townships to regulate public utilities by zoning ordinance, with respect to uses and structures, other than buildings. Nevertheless, Upper St. Clair argues that the First Class Township Law
impliedly
confers power upon townships to regulate public utilities with respect to uses and structures. It relies upon Section 3110 of the law. That section provides (53 PS 19092-3110): ‘This article (i.e., the article conferring zoning power upon first class townships) shall not apply to any existing or proposed building, or extension thereof, used or to be used by public service corporations, if, upon petition of the corporation, the Public Utility Commission shall, after a public hearing, decide that the present or proposed situation of the building in question is reasonably necessary for the convenience or welfare of the public.’ Upper St. Clair points out that
Any other conclusion than that reached by the chancellor would render the Public Utility Commission powerless to regulate the functioning of an electric service company if in so doing the Commission contravened any regulation or order of a local zoning authority. If the power of the municipality were held parаmount, the Commission could not compel the utility to provide adequate service or in anywise control the expansion or extension of the utility’s facilities if an order of the Commission conflicted with action taken by any political subdivision of the State. This would mean the complete negation of the powers of regulation and control specifically given as a matter of public policy to the Public Utility Commission in the interest of state-wide public welfare. By the Act
An order of the Public Utility Commission typical of the other orders entered after hearing in the four applications mаde by Duquesne was introduced in evidence at the hearing in the equity proceeding. The order shows that the issuance of the certificate of public convenience pursuant thereto was predicated upon the approval of the location of the transmission line, following consideration of alternate routes and determination that the proposed route was the most feasible. The law does not provide or require that there be an initial approval by the Commission of the proposed extension of a facility by a utility company before it embarks upon its undertaking. The voluntary expansion or extension of its facilities lies in the discretion of company management. To the extent, however, that it is compelled to acquire property or rights or easements therein through condemnation, it must establish necessity therefore if the latter is questioned. In
Boalsburg Water Company v. State College Water Company,
It is true, as appеllants assert, that it has been held that the approval of the Commission is only a preliminary step and the scope and validity of the particular condemnation proceeding remains for subsequent determination. 2 ***But this does not justify the enforcement of a zoning ordinance if, as the chancellor in the instant case properly determined, such ordinance is invalid and void as applied to the utility company.
Appellants do not here challenge the approval of the Commission of the location of the transmission line. As before stated their contentions are, first, that the utility company is subject to the zoning ordinance and, second, that the equity court had no jurisdiction to intervene in the matter.
Passing to the latter contention, appellants claim that the zoning statute under which its ordinance was adopted provides the exclusive remedy by which the rights of Duquesne might be adjudicated. As a general rule no one is entitled to relief in a court of equity for threatened injury until available remedies at law7 are exhausted, and our appellate courts have held that under Section 13 of the Act of March 21, 1806, P. L, 558, 46 PS §156, which provides that “In all cases where a remedy is provided, ... by any act or acts of аssembly . . . the directions of the said acts shall be strictly pursued, . . the remedy provided must be employed: see e.g.
Lukens v. Ridley Township Zoning Board of Adjustment,
The evidence was undenied that unless construction of the transmission line were resumed by March 15, 1954, Duquesne would be unable to complete it by September 1, 1954, the day on which the third generator now being built at Elrama is expected to be put into service. There was likewise uneontradicted evidence that if the transmission line is not completed by September 1, 1954, Duquesne will be forced under various conditions to use less efficient equipment or to curtail service to its customers, at a cost or loss to it of from $150 per day to $350 per hour. Under the administrative procedure provided by Section 3107 of the zoning statute of June 24, 1931, P. L. 1206, as amended, 53 PS §19092-3107, the Board of Adjustment fixes a reasonable time for the hearing of an appeal, must give public notice thereof as well as due notice to the parties in interest and decide the same within a reasonable time, and any party aggrieved by the Board’s dеcision has 30 days in which to appeal to the county court. Patently such time-consuming procedure would cause Duquesne irreparable financial harm, without taking into consideration the interests of the public.
• As stated by the chancellor: “There are thirty properties in Upper St. Clair which will be used in the construction and maintenance of the transmission line in that township. The ordinance imposes a fine of $100.00 per day for each day that work is performed iii violation of the ordinance. Thus, it is entirely possible that since tipper St. Clair already has served two notices respecting the Free аnd Becker properties* .it
In
Adams v. New Kensington,
The decree is affirmed, the costs of this аppeal to be paid equally by the township and the Duquesne Light Company.
Mr. Justice Musmanno dissents.
Notes
It may be noted that on the question of necessity, we said in
Fayette County Commissioners’ Petition,
Reiber et al. v. Public Service Commission,
