MINNESOTA RATE CASE, 230 U. S. 352 (1913) -- US Supreme Court Cases from Justia & Oyez

These appeals involve the validity of the orders of the Railroad and Warehouse Commission, and the legislative acts, of the State of Minnesota prescribing maximum rates for freight, and a maximum fare of two cents a mile for passengers. The rates relate to traffic exclusively between points within the state. It was contended, however, that, as applied to cities on the state's boundary, or to places within competitive districts crossed by the state line, the rates disturbed the relation previously existing between interstate and intrastate rates, thus imposing a direct burden upon interstate commerce and creating discriminations as against localities in other states. The rates were also assailed as confiscatory. The rates are sustained as to the Northern Pacific and Great Northern companies. In the case of the Minneapolis and St. Louis Railroad Company, the rates are held to be confiscatory in view of the particular facts shown with respect to that road.

In reviewing the questions involved, the Court held that:

The Federal Constitution gives Congress an authority at all times adequate to secure the freedom of interstate commercial intercourse from state control and to provide effective regulation of that intercourse as the national interest may demand.

The commerce that is confined within one state, and does not affect other states, is reserved to the state. This reservation is only of that power which is consistent with the grant to Congress.

The authority of Congress extends to every part of interstate commerce and to every instrumentality or agency by which it is carried

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on, and the full control by Congress over the subjects committed to its regulation is not to be denied or thwarted by the commingling of interstate and intrastate operations.

Even without action by Congress, the commerce clause of the Constitution necessarily excludes the states from direct control of subjects embraced within the clause which are of such a nature that, if regulated at all, their regulation should be prescribed by a single authority. There is thus secured the essential immunity of interstate intercourse from the imposition by the states of direct burdens and restraints.

There remains to the states the exercise of the power appropriate to their territorial jurisdiction in making suitable provision for local needs. The state may provide local improvements, create and regulate local facilities, and adopt protective measures of a reasonable character in the interest of the health, safety, morals and welfare of its people, although interstate commerce may incidentally or indirectly be involved.

Where matters falling within the state power, as above described, are also, by reason of their relation to interstate commerce, within the reach of the federal power, Congress must be the judge of the necessity of federal action; until Congress does act, the states may act.

The paramount authority of Congress enables it to intervene at its discretion for the complete and effective government of that which has been committed to its care, and, for this purpose and to this extent, in response to a conviction of national need, Congress may displace local laws by substituting laws of its own.

Regulation of railroad rates by the state began with railroad transportation.

The authority of the state to prescribe what shall be reasonable charges for intrastate transportation is statewide unless it be limited by the exertion of the constitutional power of Congress with respect to interstate commerce and its instruments. As a power appropriate to the territorial jurisdiction of the state it is not confined to a part of the state, but extends throughout the state -- to its cities adjacent to its boundaries as well as to those in the interior of the state. If this authority of the state be restricted, it must be by virtue of the actual exercise of federal control, and not by reason merely of a dormant federal power -- that is, one which has not been exerted.

Congress, in the Act to Regulate Commerce, expressly provided that the provisions of the act should not extend to transportation wholly within one state.

Having regard to the terms of the federal statute, the familiar range

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of state action at the time it was enacted, the continued exercise of state authority in the same manner and to the same extent after its enactment, and the decisions of this Court recognizing and upholding such authority, this Court finds no foundation for the proposition that the Act to Regulate Commerce contemplated interference with the authority of the state to prescribe reasonable rates for the exclusively internal traffic throughout the extent of its territory.

Neither by the original act nor by its amendment has Congress sought to establish a unified control over interstate and intrastate rates; it has not set up a standard for intrastate rates or prescribed, or authorized the federal Commission to prescribe, either maximum or minimum rates for intrastate traffic.

The fixing of reasonable rates for intrastate transportation was left by the act where it had been found -- that is, with the states and the agencies created by the states to deal with that subject.

Under the established principles governing state action, Minnesota did not transcend the limits of its authority in prescribing the rates here involved, assuming them to be reasonable intrastate rates. It exercised an authority appropriate to its territorial jurisdiction and not opposed to any action thus far taken by Congress.

The interblending of operations in the conduct of interstate and local business by interstate carriers, and the exigencies that are said to arise with respect to the maintenance of interstate rates by reason of their relation to intrastate rates, are considerations for the practical judgment of Congress.

When the situation becomes such that adequate regulation of interstate rates cannot be maintained without imposing requirements with respect to such intrastate rates of interstate carriers as substantially affect interstate rates, it is for Congress to determine, within the limits of its constitutional authority over interstate commerce and its instruments, the measure of the regulation it should supply.

It is the function of the Court to interpret and apply the law already enacted, but not, under the guise of construction, to provide a more comprehensive scheme of regulation than Congress has decided upon.

In the absence of federal action, effect may not be denied to the laws of the state enacted within the field which it is entitled to occupy until its authority is limited through the exertion by Congress of its paramount constitutional power.

As to whether the rates are confiscatory, held that:

The ratemaking power is a legislative power, and necessarily implies a range of legislative discretion.

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This Court does not sit as a board of review to substitute its judgment for that of the legislature or of the Commission lawfully constituted by it, as to matters within the province of either.

The question involved is whether, in prescribing a general schedule of rates involving the profitableness of the intrastate operations of the carrier, taken as a whole, the state has superseded the constitutional limit by making the rates confiscatory.

While the property of railroad corporations has been devoted to a public use, the state has not seen fit to undertake the service itself, and the private property embarked in it is not placed at the mercy of legislative caprice, but rests secure under the constitutional protection which extends not merely to the title, but to the right to receive just compensation for the services given to the public.

For fixing rates, the basis of calculation of value is the fair value of the property of the carrier used for the convenience of the public. Smyth v. Ames, 169 U. S. 466.

There is no formula for the ascertainment of the fair value of property used for convenience of the public, but there must be a reasonable judgment having its basis in a proper consideration of all relevant facts.

Where a carrier does both interstate and intrastate business, to determine whether a scheme of maximum intrastate rates affords a fair return the value of the property employed in intrastate business, and the rates prescribed must be considered separately, and profits and losses on interstate business cannot be offset.

Assets and property of a carrier not used in the transportation business cannot be included in the valuation as a basis for ratemaking.

Property of a railroad company cannot be valued for a basis of ratemaking at a price above other similar property solely by reason of the fact that it is used as a railroad, and increases in value over cost cannot be allowed beyond the normal increase of other similar property.

In valuing the plant of a carrier for purpose of fixing rates, there should he proper deductions for depreciation.

Where the constitutional validity of state action is involved, general estimates of division between interstate a intrastate business cannot be accepted as adequate proof to sustain a charge of confiscation.

In the cases of the Northern Pacific and Great Northern companies on the examination of estimates of value, and methods of apportionment, held that t he proof is insufficient a finding that the rates were confiscatory, and in each of those cases, the decrees are reversed with instructions to dismiss the bill without prejudice.

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In the case of the Minneapolis and St. Louis Railroad Company, held, in view of the special facts appearing, that the margin of error in the estimates and calculations was not sufficient to affect the result. The decree in that case, adjudging the rates to be confiscatory, is therefore affirmed with the modification that the state may apply to the court by bill or otherwise, as advised, for a further order or decree whenever it shall appear that, by reason of a change in circumstances, the rates fixed by the state's acts and orders are sufficient to yield to this company reasonable compensation for the service rendered.

184 F.7d 5 modified and in part affirmed and in part reversed.

These appeals involve the validity of the orders of the Railroad and Warehouse Commission, and the legislative acts, of the State of Minnesota prescribing maximum rates for freight, and a maximum fare of two cents a mile for passengers. The rates relate to traffic exclusively between points in the state. It was contended, however, that, as applied to cities on the state's boundary, or to places within competitive districts crossed by the state line, the rates disturbed the relation previously existing between interstate and intrastate rates, thus imposing a direct burden upon interstate commerce and creating discriminations as against localities in other states. The rates were also assailed as confiscatory.

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MR. JUSTICE HUGHES delivered the opinion of the Court.

These suits were brought by stockholders of the Northern Pacific Railway Company, the Great Northern Railway Company, and the Minneapolis & St. Louis Railroad Company, respectively, to restrain the enforcement of two orders of the Railroad & Warehouse Commission of the State of Minnesota and two acts of the legislature of that state prescribing maximum charges for transportation of freight and passengers, and to prevent the adoption or maintenance of these rates by the railroad companies. In addition to the companies, the Attorney General of the state, the members of the Railroad & Warehouse Commission, and also, in the cases of the Northern Pacific and Great Northern Companies, certain representative shippers, were made defendants.

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The orders and acts, which, by their terms related solely to charges for intrastate transportation, were as follows:

(1) The Commission's order of September 6, 1906, effective November 15, 1906, fixing the maximum class rates for general merchandise.

(2) The act, approved April 4, 1907, to take effect May 1, 1907, prescribing two cents a mile as the maximum fare for passengers, except for those under twelve years of age, for whom the maximum rate was to be one cent a mile. Laws of 1907, c. 176.

(3) The act approved April 18, 1907, to take effect June 1, 1907, fixing maximum commodity rates for carload lots of specified weights. Laws of 1907, c. 232.

(4) The Commission's order of May 3, 1907, effective June 3, 1907, establishing maximum "in-rates" for designated commodities in carload lots from St. Paul, Minneapolis, Minnesota Transfer, and Duluth to certain distributing centers. No complaint is made of this order in the case of the Minneapolis & St. Louis Railroad Company.

In 1905, the Legislature of Minnesota had adopted a joint resolution directing the Commission

"to undertake the work of securing a readjustment of the existing freight rates in this state, which will give a more uniform system of rates throughout the state, and a uniform scale of percentages which each class rate shall bear to the first class, the readjustment to secure a substantial reduction in the existing merchandise rates."

Laws of 1905, c. 350. Pursuant to this direction, the Commission conducted a prolonged investigation. Public hearings were held extending over several months in which the railroad companies took an active part, submitting a large amount of testimony with respect to the matters involved. The Commission found the existing class rates for general merchandise to be unreasonable, and by the order of September 6, 1906, above-mentioned, established

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a new schedule of lower maximum rates. These rates were applied to the classes shown by the so-called "Western Classification" between stations in the state. This was a classification by which articles were arranged in groups with reference to their general character, value, and the cost of transportation, and with modifications made from time to time, it had long been used by common carriers in the West and Northwest as a basis for rates, the commodities of each class taking the same rate under like conditions. In Minnesota, however, a large number of commodities, amounting to several hundred, had, by the intervention of the Commission, been removed from this classification by the application of special rates, known as "commodity rates," or reduced in class so that the Western Classification in operation in that state was very materially different from that in general use as a basis of rates in other states.

The schedule of rates set forth in the order of September 6 was such that each rate for each class bore an exact relation to each other rate. The plan of the schedule was this: for first-class merchandise, an allowance of 11.02 cents per cwt. was made for terminal charges, and in addition, there was permitted a hauling charge of .98 of a cent for each five miles up to 200 miles, for each ten miles over 200 miles up to 400 miles, and for each twenty miles over 400 miles up to 500 miles. For other classes, the rates were a fixed percentum of the corresponding rates for the first class. These rates were maximum terminal rates -- that is, they related to transportation to or from certain important stations called terminal or distributing stations. Between stations neither of which is so designated, the rates of the schedule might be increased by five percentum.

The railway companies complied with this order, and the class rates were put into effect on November 15, 1906.

The Commission also had under consideration a reduction in the commodity rates at which certain commodities

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such as grain, coal, lumber, and livestock were moved in carload lots. Because of the agitation with respect to these charges, the railroad companies voluntarily reduced their rates about ten percent on grain (September 1, 1906) and coal (October 22, 1906). The Commission, however, on December 14, 1906, ordered a further reduction in the commodity rates. The railroad companies brought suit in the circuit court of the United States, and obtained a temporary injunction restraining the enforcement of this order. Thereupon the legislature passed the act above mentioned, approved April 18, 1907, which established a new schedule of maximum commodity rates in all respects like that fixed by the Commission, save that the reduction was not so great. The act grouped the various commodities which it embraced in several classes, for which different rates were prescribed. There was no fixed percentage relation between the classes, and no regular rate of progression of the various charges with increasing distance. In other respects, the method of making the schedules was similar to that adopted in the order of September 6, 1906, the hauling charge decreasing as the mileage increases.

The remaining action with respect to freight rates was taken by the Commission in the order of May 3, 1907, for the purpose of securing more favorable in-rates to a number of minor jobbing centers. It applied to certain commodities, such as groceries in carload lots, and was supplemental to the order of September 6, 1906, being intended to reestablish the relation which had previously existed between the in-rates to these distributing points and the general schedule of class rates.

The railroad companies obeyed this order of May 3, 1907, as they had that of September 6, 1906, and they also put into effect the passenger rate of two cents a mile. They were about to adopt the commodity rates fixed by the Act of April 18, 1907, when these suits were brought and a

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temporary injunction restrained them from taking that course. The other rates -- that is, the class rates, special in-rates, and the passenger rates -- were permitted to remain in force pending the suits.

The complainants assailed the acts and orders upon the grounds (1) that they amounted to an unconstitutional interference with interstate commerce, (2) that they were confiscatory, and (3) that the penalties imposed for their violation were so severe as to result in a denial of the equal protection of the laws and a deprivation of property without due process of law. The jurisdiction of the circuit court was sustained in Ex Parte Young, 209 U. S. 123, where it was also held that the penal provisions of the acts, operating to preclude a fair opportunity to test their validity, were unconstitutional on their face. The circuit court then referred the suits to a special master, who took the evidence and made an elaborate report sustaining the complainants' contentions. His findings were confirmed by the court, and decrees were entered accordingly, adjudging the acts and orders (with the exception, in the case of the Minneapolis & St. Louis Railroad Company, of the order of May 3, 1907) to be void, and permanently enjoining the enforcement of the prescribed rates, freight and passenger, and their adoption or maintenance by the railroad companies. 184 F.7d 5.

From these decrees, the Attorney General of the state and the members of the Railroad & Warehouse Commission prosecute these appeals.

The penal provisions being separable (Reagan v. Farmers' Loan & Trust Co., 154 U. S. 362, 154 U. S. 395; Willcox v. Consolidated Gas Co., 212 U. S. 19, 212 U. S. 53-54; Grenada Lumber Co. v. Mississippi, 217 U. S. 433, 217 U. S. 443; West. Un. Tel. Co. v. Richmond, 224 U. S. 160, 224 U. S. 172), the question of the validity of the acts and orders fixing maximum rates is presented in two distinct aspects: (1) with respect to their

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effect on interstate commerce, and (2) as to their alleged confiscatory character.

First. As to interference with interstate commerce.

None of the acts and orders prescribes rates for goods or persons moving in interstate commerce. By their terms, they apply solely to commerce that is internal. Despite this obvious purport, it has been found below that the inevitable effect of the state's requirements for intrastate transportation was to impose a direct burden upon interstate commerce, and to create unjust discriminations between localities in Minnesota and those in adjoining states, and hence that they must fall as repugnant to the commerce clause and to the action of Congress under it. To support its conclusion, the circuit court presents an impressive array of facts drawn from the approved findings of the master. 184 F.7d 5-792. Without giving all the details they embrace, these findings may be summarized as follows:

I. The railroad property of each of the three companies constitutes a single system. On June 30, 1906, the Northern Pacific Railway company (a Wisconsin corporation) operated 7,695 miles of track, of which 1,625 miles were in Minnesota. The Great Northern Railway Company (a Minnesota corporation) at the same time operated 8,528 miles of track, of which 2,779 miles were in Minnesota. Their lines extend westerly from Superior, Wisconsin, and Duluth, Minnesota, and from St. Paul and Minneapolis, through the states of Minnesota, North Dakota, Montana, Idaho, Washington, and Oregon, to the Pacific coast. The Minneapolis & St. Louis Railroad Company (also a Minnesota corporation) operated 1,028 miles of track running from St. Paul and Minneapolis westerly and southerly to points in South Dakota and Iowa. In the case of each company, the movement of interstate and local traffic takes place at the same time, on the same rails, with the same employees, and largely

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by means of the same trains and cars. There has never been a separation, and it is impracticable, in the exercise of fair economy, to make a separation, between the interstate and intrastate business in the case either of freight or of passengers. By far the larger part of the traffic is interstate. In the year 1906, the freight business of the Northern Pacific Company, local to Minnesota, was 2.67 percent of its entire freight business, and 12.33 percent of its freight business touching the state, and its passenger business local to the state was 5.79 percent of its entire passenger business, and 67.21 percent of its passenger business touching the state.

The conditions attending the transportation of passengers and freight are substantially the same for like distances within those portions of the states of Wisconsin, Minnesota, North Dakota, and South Dakota reached by the lines of these companies, whether the transportation is interstate or wholly intrastate. Prior to the acts and orders in question, the companies had maintained rates which were relatively fair, and not discriminatory as between interstate and intrastate business, and it is concluded that any substantial change in the basis of rates thus established, due only to the fact that the transportation was interstate or was local to a state, and any substantial difference in rates as between the two sorts of traffic, would constitute unjust discrimination in fact.

II. The state line of Minnesota on the east and west runs between cities which are in close proximity. Superior, Wisconsin, and Duluth, Minnesota, are side by side at the extremity of Lake Superior. Opposite one another on the western boundary of the state lie Grand Forks, North Dakota, and East Grand Forks, Minnesota; Fargo, North Dakota, and Moorhead, Minnesota, and Wahpeton, North Dakota, and Breckenridge, Minnesota. The cities in each pair ship and receive, to and from the same localities, the same kinds of freight. The railroad companies

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have always put each on a parity with the other in the matter of rates, and if there were a substantial difference, it would cause serious injury to the commerce of the city having the higher rate. If the Northern Pacific Company failed to maintain as low rates on traffic in and out of Superior as on that to and from Duluth, its power to transact interstate business between Superior and points in Minnesota would be seriously impaired and the value of its property in Superior would be depreciated.

The maximum class rates fixed by the order of September 6, 1906, were from 20 percent to 25 percent lower than those theretofore maintained by the Northern Pacific and Great Northern Companies for transportation in Wisconsin, Minnesota, and North Dakota, whether such transportation was local to one of these states or was interstate between any two of them. When the Northern Pacific Company, pursuant to this order, installed the new intrastate rates, it reduced its interstate rates between Superior and points in Minnesota to an exact parity with its rates from Duluth. Reduction was also made in the rates between both Duluth and Superior and the above-mentioned points on the western boundary, so as to put the border cities in North Dakota on an equal basis with the neighboring cities in Minnesota. This reduction was substantial, and had it not been made, the places adjoining the boundary, but outside the state, could not have competed with those within. Although the Northern Pacific Company thereby suffered a substantial loss in revenue from its interstate business, it had the choice of submitting to that loss or suffering substantial destruction of its interstate commerce to these border localities in articles covered by the orders. At the same time, the Great Northern Company made similar reductions, although, in its case, the transportation between Duluth and points in Minnesota was interstate, its line passing through Wisconsin. The reason for these reductions was

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to preserve the relation in rates from Duluth which had always existed between localities on the Great Northern line and those similarly situated on the line of the Northern Pacific, and to meet the reduced rates on the latter.

III. Moorhead, Minnesota, Fargo and Bismarck, North Dakota, Billings and Butte, Montana, are so-called jobbing centers. Rates had always been accorded to them by the Northern Pacific Company which would allow them to compete with their nearest neighbors and with St. Paul, Minneapolis, and Duluth. The order of September 6, 1906, as supplemented by that of May 3, 1907, substantially reduced carload rates from the eastern terminals to Moorhead. This reduction would have given Moorhead an advantage in territory accessible to its jobbing industry not only as against Fargo, unless carload rates to Fargo were similarly reduced, but also as against Duluth, St. Paul, and Minneapolis unless less-than-carload rates from these places to points accessible to Moorhead, which included a considerable territory in North Dakota, were proportionately reduced. If Fargo were protected as against Moorhead, it would have an advantage over Bismarck in territory common to them both, and an advantage over the eastern terminals in territory common to them and to Fargo, unless carload rates from the eastern terminals to Bismarck and less-than-carload rates from those terminals to the territory accessible to Fargo were correspondingly reduced, and so on from distributing point to distributing point.

IV. Every rate comprehends two terminal charges, the initial and the final, and a haulage charge. It is declared to be a cardinal principle of ratemaking that a rate for a longer distance should be proportionately smaller than one for a shorter distance, for even if the haulage charge in the former case were the same per mile, the rate per ton per mile should be less for the longer haul, as the terminal charges would be spread over a greater distance.

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A comparison disclosed that the rates established by the order of September 6, 1906, and maintained by the Northern Pacific Company between St. Paul and Moorhead, were in general substantially less than the proportion of the interstate rates maintained by the company to various points in North Dakota and Montana, based on the mileage in Minnesota as compared to that of the entire haul. Maintaining such a relation of rates involves, it is found, substantial and unjust discrimination in fact against the interstate localities.

V. After the installation by the Great Northern and Northern Pacific Companies of the rates prescribed by the order of September 6, 1906, it appeared that the sum of the local rates from St. Paul to Moorhead and from Moorhead to many points in North Dakota was less than the interstate rates theretofore maintained from St. Paul to these points. Both companies thereupon established rates from St. Paul to the North Dakota points as a rule no greater than the sum of the locals on Moorhead, but substantially lower in general than the interstate rates in force when the order took effect. Maintaining interstate rates from St. Paul to North Dakota localities substantially greater than the sum of the locals based on the state line would have caused unjust discrimination in fact. The actual reason for the reduction in the interstate rates was to prevent transshipment at Moorhead in order to take advantage of the lower sum of the locals, and to retain on its line traffic which might reach Moorhead over other lines by reason of competition, and, as to less-than-carload lots, to enable jobbers in the Twin Cities and Duluth to compete with those in Moorhead and Fargo in territory which otherwise the latter would have exclusively occupied by reason of their closer proximity.

VI. It it further held to be one of the fundamental dogmas of ratemaking that the haulage charge per mile should not increase with increasing distance if the conditions

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be the same. Under the progressive decrease in the haulage charge within the state provided by the order of September 6, 1906, 100 pounds of merchandise transported by the Northern Pacific from St. Paul to Moorhead, 248 miles, would have been hauled for 48 miles at the rate of .98 cents per 10 miles, when Moorhead is reached. If the same haulage charge of .98 cents per 10 miles were applied for the remaining distance to Spokane, 1510 miles from St. Paul (which is said to be taken as a fair example merely to illustrate the principle), it would produce a rate from St. Paul to Spokane on first-class merchandise of $1.79 per cwt. The Interstate Commerce Commission in the Spokane rate case fixed the reasonable rate on first-class merchandise from St. Paul to Spokane of $2.50 per cwt. Maintaining this rate and the state schedule in Minnesota at the same time necessarily involves the raising of the per mile haulage charge after the Minnesota state line has been crossed, or the charge of a higher rate within Minnesota for its mileage proportion of long haul interstate business than for business local to the state which is carried under the same conditions, and hence is found to result in unjust discrimination in fact against localities west of the Minnesota line.

VII. For more than twenty-five years, the Northern Pacific Company has maintained an equal basis of rates on merchandise between its eastern and western terminals, respectively, and Butte, Montana, and between its eastern and western terminals, respectively, and localities intermediate between them and Butte. Other railroads reaching Butte have, during the same time, maintained like rates to Butte from Sioux City, Omaha, St. Joseph and Kansas City on the east, and from San Francisco, Sacramento, and Los Angeles on the west. Butte has been as the hub of a wheel with spokes representing equal rates to these various cities. Industries, it is said, have been born and have grown in reliance upon this parity of rates.

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Intermediate points have had rates fixed in proportion to the Butte rates. Competition of markets and of carriers has brought this about. The Northern Pacific Company cannot maintain the state rates between its eastern terminals and Moorhead, and at the same time its interstate rates from its eastern terminals to Butte, without substantial discrimination in fact against Butte or localities intermediate between its eastern terminals and Butte. If it lowers its rates from its eastern terminals to Butte and intermediate stations to such an extent as to obviate this discrimination, it must, to preserve the relation which has always existed, lower to a like extent its rates from its western terminals to Butte and intermediate stations. Consequently, it is found that, if the Northern Pacific Company maintains the Commission-made rates between its eastern terminals and Moorhead, it must either substantially discriminate in fact or destroy the general relation of rates which has existed for many years in the territory between the Missouri River and the Pacific coast.

VIII. Prior to the taking effect of the order of September 6, 1906, the Great Northern and Northern Pacific Companies had established joint through rates in connection with other carriers from all localities east or south of Minnesota to all points in Minnesota west of St. Paul and Minneapolis. After the rates prescribed by this order were installed, the sum of the locals on St. Paul from all localities south and east of Minnesota to points in Minnesota west of St. Paul and Minneapolis was substantially less than the then-existing interstate rates for the through haul to such western points. To avoid the resulting discrimination in favor of St. Paul, the companies withdrew the existing interstate rates and established a new tariff no higher than the sum of the locals on St. Paul.

IX. Further illustrations are given of inequalities resulting from the reduced Minnesota rates as compared

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with rates for like transportation under similar conditions into adjoining states, as, for example, from Moorhead easterly to Minnesota points and westerly into North Dakota, and also of the effects produced in the application of the state rates by reason of the difference in the distances from St. Paul at which the state line is reached on similar hauls over different lines. As the schedule of September 6, 1906, prescribes a fixed relation between rates for different distances and different classes, the conclusion is that, if the rule must be adhered to in Minnesota, it cannot be departed from substantially because of the intervention of a state line at one distance or another without involving unjust discrimination in fact.

It is found further that while, after the order of September 6, 1906, became effective, both the Great Northern and the Northern Pacific Companies reduced certain interstate rates, as already mentioned, the reduction was not to such extent as to remedy the discrimination resulting from the fact that, in most cases, the general basis of rates within Minnesota was substantially lower than that maintained in North Dakota or upon traffic crossing the state line.

X. The similarity in the conditions of interstate and intrastate transportation is found also with respect to the commodities for which rates were prescribed by the Act of April 18, 1907 (c. 232). The main lines and branches of the Northern Pacific and Great Northern Companies within Minnesota and North Dakota, with the exception of certain limited tracts, lie within grain fields, and grain is shipped in substantial quantities from nearly all stations in these fields to Duluth, Minneapolis, and Superior. Shipments of coal originate at the head of the Lakes -- that is, at Duluth or Superior -- and find their destination at all localities served by the companies in Minnesota and eastern North Dakota. Shipments of lumber originate at Duluth, Cloquet, Little Falls, and other

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places in Minnesota, and are destined to points throughout Minnesota and North Dakota. Shipments of livestock are made in Minnesota, South Dakota, and eastern Montana and go to South St. Paul or Chicago. So far as the conditions of transportation are concerned, it matters not, as to commodities moving eastwardly, whether the shipment is made in Montana, North Dakota, or Minnesota, or the transportation ends in Minnesota or in Wisconsin; and, as to commodities moving westwardly, whether the shipments are from Minnesota points or from Superior, or whether they find their destination in Minnesota or in North Dakota. The conclusion is that to maintain the commodity rates for transportation wholly within Minnesota simultaneously with the interstate rates now in force would involve unjust discrimination and would seriously impair the interstate business of the companies, to avoid which it would be necessary to reduce the basis of the interstate rates to a substantial parity with that prescribed by the state law. It is also stated that, if the rates fixed by chapter 232 of the Laws of 1907 should become effective, the rate on shipments of wheat, with milling-in-transit privileges, from points in Minnesota via Minneapolis to Chicago, would be automatically reduced, and that, unless all interstate rates between Minnesota points and Chicago via interior mill towns with similar privileges should be correspondingly reduced, Minneapolis would have a substantial advantage over such towns in its interstate rates.

XI. Prior to the Act of 1907, fixing the rate of two cents a mile, the general basis of rates for passengers (of 12 years of age or over) between any two points on the Northern Pacific system had been for some years three cents a mile. After the new state rate had been installed, the sum of the locals between Moorhead and other Minnesota points and Moorhead and points westerly thereof was less than the then-existing through interstate rates. The passenger

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fare act took effect May 1, 1907, and in the first month thereafter the revenue for passengers on the Northern Pacific line between Moorhead and other Minnesota points increased 647 percent over that of the corresponding month of the preceding year, while, eliminating Moorhead business, the revenue for passenger business within the state decreased two percent. In June, 1907, the second month, there were sold by the Northern Pacific Company, 4,037 tickets between St. Paul or Minneapolis, on the one hand, and Moorhead or East Grand Forks on the other, as compared with only 172 such tickets in the corresponding month of the year before, and in June, 1907, there were sold only 173 tickets between St. Paul or Minneapolis, and Grand Forks and Fargo, as compared with 984 such tickets in the corresponding month of the previous year. In May and June, 1906, only one cash full fare was collected on a train from Moorhead to St. Paul or Minneapolis. In those months in 1907, there were 1,168 cash full fares and 82 cash half fares so collected. Hence, it is said, the necessary, immediate, and direct effect of the law was to deprive the Northern Pacific Company of a substantial amount of its interstate passenger business through Moorhead.

Notwithstanding the facility with which interstate passengers could avoid the discrimination against them by making two contracts with the company, it is found that discrimination in fact still existed against the interstate passenger who, applying for a through ticket, did not know that the sum of the locals on Moorhead was less than the through rate, against the passenger with a trunk which he could not check through unless on a through ticket, and against a passenger who was compelled to use a sleeping car. The Northern Pacific Company shortly remedied this discrimination by reducing all its interstate fares for passenger transportation through Moorhead to an amount no greater than the sum of the locals over

Page 230 U. S. 391

Moorhead. Before this reduction, Wisconsin had fixed the maximum passenger fare at two cents a mile, and North Dakota at two and one-half cents a mile. The rates thereafter established by the Northern Pacific Company between St. Paul, for example, and points in North Dakota and beyond, and by the Northern Pacific Company jointly with other companies for transportation between points easterly of Minnesota and points on the line of the Northern Pacific, were in general less than the previous rates by approximately one cent per mile for the mileage in Wisconsin and Minnesota, and by one-half cent per mile for the mileage in North Dakota. It is concluded that these reductions were compelled to avoid unjust discrimination, and in order that the companies might transact interstate passenger business freely and without impairment of volume.

There are added various hypothetical calculations of the losses which would have been sustained if the basis prescribed by the state acts and orders had been applied to the interstate business and to local business in other states. We shall have occasion later to refer to the actual results of the business of the railroad companies during the time that the rates fixed by the acts and orders (with the exception of the commodity rates) were in force, and to the effect upon revenue which the adoption of the commodity rates would have had.

The foregoing findings, as stated by the master, were made "without regard to the justness or otherwise in fact of the interstate rates so affected by such local rates." The determination of the reasonableness of the interstate rates was not deemed to be within the province of the court.

The appellants do not concede the correctness of the findings in their full scope, and insist upon qualifications. They deny that the evidence justified the finding that the

Page 230 U. S. 392

companies had maintained "an equable -- that is, relatively fair -- basis of rates" prior to the acts and orders in question. The general or comprehensive system of interdependent and fairly related rates, each so equitably adjusted to the others that any local change must of necessity throw the whole out of balance, is declared to exist only in imagination -- to be a fiction constructed in disregard of the facts of ratemaking and without attention to the inconsistencies shown by the schedules which had been in force. The actual reductions in interstate rates, which followed upon the adoption of the state tariffs, were made, it is urged, in rates voluntarily established by the companies themselves which had not been declared to be reasonable by competent authority, and in any case furnish no standard by which the validity of the action of the state, in the control of its internal affairs, should be judged. The appellants say that the local rates in Minnesota were incongruous and unreasonable; that frequent changes in the interest of favored shippers had been made through the filing of temporary intrastate tariffs until the practice was stopped by a statute of 1905 (Chapter 176) forbidding changes without the consent of the Commission; that, with respect to grain and livestock, the principal agricultural products of the state, the companies maintained an "inharmonious jumble of arbitrary rates," and that the acts and orders in question were designed to correct inequalities in the intrastate tariffs, and to prescribe charges which, upon thorough investigation and after public hearings in which the companies participated, were found to be reasonable and were brought into suitable relation with each other by means of a scientific plan. And it is denied that unjust discrimination as against localities without the state can be predicated of the establishment of reasonable state rates.

It is also insisted that the prescribed intrastate freight rates were not in general lower than the existing interstate

Page 230 U. S. 393

rates. Reference is made to the long distance traffic, which, it is said, was moved within the state on proportionals of long haul rates which were much below the local rates fixed by the state. It is pointed out that the master found, in passing upon the question whether the rates were confiscatory, that the gross revenue which was derived from the interstate freight business during the fiscal year ending June 30, 1908 (when all the rates in question were in force save the commodity rates), was greater per ton-mile than that derived in the same period from the interstate business within the state, being in the case of the Northern Pacific Company in the ratio of 1.4387 to 1, and in that of the Great Northern Company of 2.02894 to 1. The appellants also contest the validity of the argument based on a hypothetical extension beyond the state line of the "rate of progression" for additional distance which had been prescribed by the state solely with reference to internal traffic, and they submit illustrations of incongruities which they contend would be shown by a similar extension of the rate of progression disclosed by the former intrastate tariffs of the companies. Again, it is urged that the extent of the reductions attributable to the two-cent fare law may not be estimated properly by a comparison with the former maximum rate of three cents a mile. Various rates had been in force less than the maximum allowed. For the six years prior to the two-cent fare law. the average rate per passenger per mile for intrastate transportation in Minnesota, on the Northern Pacific line, had ranged from 2.299 cents in 1901 to 2.435 cents in 1905, 2.406 cents in 1906, and 2.197 cents in 1907, and, during the same time, the average rate per passenger per mile for interstate transportation in Minnesota varied from 2.075 cents in 1901, 2.027 cents in 1905, 1.949 cents in 1906, and 1.981 cents in 1907. [Footnote 1] In the fiscal year ending

Page 230 U. S. 394

June 30, 1908, with the two-cent fare law in force the average rate per passenger per mile in Minnesota was 1.930 cents for intrastate and 1.928 cents for interstate carriage.

It is conceded, however, that the schedules fixed for intrastate transportation "necessarily disturbed the equilibrium theretofore existing between the rates on the two classes of business" (state and interstate) "on the boundary lines." This applies to the rates to and from the cities situated on opposite sides of the Red River of the North, the boundary between Minnesota and North Dakota, and to and from Duluth and Superior on the eastern boundary. The reduction of the state rates brought them below the level of the interstate rates in those instances in which formerly both had been maintained on a parity. So also, whatever may be said as to the nonexistence of a general or comprehensive system of equitably adjusted rates, it is clear that there are competitive areas crossed by the state line of Minnesota, and that the state's requirements altered the existing relation between state and interstate rates as to places within these zones of competition, and not merely as to the cities on the boundary of the state.

The situation is not peculiar to Minnesota. The same question has been presented by the appeals, now before the Court, which involve the validity of intrastate tariffs fixed by Missouri, Arkansas, Kentucky, and Oregon. Differences in particular facts appear, but they cannot be regarded as controlling. A scheme of state rates framed to avoid discrimination between localities within the state, and to provide an harmonious system for intrastate transportation throughout the state, naturally would embrace those places within the state which are on or near the state's boundaries, and when these are included in a general reduction of intrastate rates, there is, of course, a change in the relation of rates as theretofore existing to

Page 230 U. S. 395

points adjacent to, but across, the state line. Kansas City, Kansas, and Kansas City, Missouri; East St. Louis, Illinois, and St. Louis, Missouri; Omaha, Nebraska, and Council Bluffs, Iowa; Cincinnati, Ohio, and Covington and Newport, Kentucky, and many other places throughout the country which might be mentioned present substantially the same conditions as those here appearing with respect to localities on the boundaries of Minnesota. It is also a matter of common knowledge that competition takes but little account of state lines, and in every part of the land, competitive districts embrace points in different states.

With appreciation of the gravity of the controversy, the railroad Commissioners of eight states [Footnote 2] have filed their brief as amici curiae in support of the appeals, stating that, if the doctrine of the court below were accepted, the regulation by the states of rates for intrastate transportation would be practically destroyed. They say that "there is practically no movement of traffic between two towns within a state that does not come into competition with some interstate haul," and that,

"if the disturbance of the existing relation between competitive state and interstate rates is the correct criterion, no reduction can be made in state rates without interfering with interstate commerce."

The governors of three states, pursuant to a resolution of a conference of the governors of all the states, have also presented, by leave of the Court, their argument in defense of the position taken by Minnesota. They do not seek "to belittle the effect of the action of Minnesota on the business between the places" named in the findings, but they are convinced that, if the principle announced by the circuit court is upheld, it can be made to apply by a showing of similar facts in virtually every state. Insisting that, under their reserved power, "the

Page 230 U. S. 396

right of the states to regulate their own commerce is as clear and broad as that of Congress to regulate interstate commerce," they assail the decision below not upon the ground that it incorrectly sets forth conditions in Minnesota and adjoining states, but for what they consider to be "its plain disregard of the provisions of the federal Constitution which establish the relations between the nation and the states." "The operation of these provisions," they maintain,

"was not made to depend on geography or convenience or competition. They cannot apply in one state and not in another, according to circumstances as they may be found by the courts, because they are vital principles which constitute the very structure of our dual form of government."

The controversy thus arises from opposing conceptions of the fundamental law, and of the scope and effect of federal legislation, rather than from differences with respect to the salient facts.

For the purpose of the present inquiry, the rates fixed by the state must be assumed to be reasonable rates so far as intrastate traffic is concerned -- that is, they must be rates which the state, in the exercise of its legislative judgment, could constitutionally fix for intrastate transportation separately considered. If the state rates are not of this character -- a question to be dealt with later -- they cannot be sustained in any event; but, assuming them to be otherwise valid, the decree below, with respect to the present branch of the case, rests upon two grounds: (1) that the action of the state imposes a direct burden upon interstate commerce, and (2) that it is in conflict with the provisions of the Act to Regulate Commerce.

These grounds are distinct. If a state enactment imposes a direct burden upon interstate commerce, it must fall regardless of federal legislation. The point of such

Page 230 U. S. 397

an objection is not that Congress has acted, but that the state has directly restrained that which, in the absence of federal regulation, should be free. If the Acts of Minnesota constitute a direct burden upon interstate commerce, they would be invalid without regard to the exercise of federal authority touching the interstate rates said to be affected. On the other hand, if the state, in the absence of federal legislation, would have had the power to prescribe the rates here assailed, the question remains whether its action is void as being repugnant to the statute which Congress has enacted.

Prior to the passage of the Act to Regulate Commerce, carriers fixed their interstate rates free from the actual exertion of federal control, and under that act, as it stood until the amendment of June 29, 1906, 34 Stat. 584, c. 3591, the Interstate Commerce Commission had no power to prescribe interstate rates. Interstate Commerce Commission v. C., N.O. & T.P. R. Co., 167 U. S. 479, 167 U. S. 511. The states, however, had long exercised the power to establish maximum rates for intrastate transportation. Was this power, apart from federal action, subject to the limitation that the state could not fix intrastate rates, reasonable as such, generally throughout the state, but only as to such places and in such circumstances that the interstate business of the carriers would not be thereby affected? That is, was the state debarred from fixing reasonable rates on traffic, wholly internal, as to all state points so situated that, as a practical consequence, the carriers would have to reduce the rates they had made to competing points without the state in order to maintain the volume of their interstate business, or to continue the parity of rates, or the relation between rates as it had previously existed? Was the state, in prescribing a general tariff of reasonable intrastate rates otherwise within its authority, bound not to go below a minimum standard established by the interstate rates made by the

Page 230 U. S. 398

carriers within competitive districts? If the state power, independently of federal legislation, is thus limited, the inquiry need proceed no further. Otherwise it must be determined whether Congress has so acted as to create such a restriction upon the state authority theretofore existing.

(1.) The general principles governing the exercise of state authority when interstate commerce is affected are well established. The power of Congress to regulate commerce among the several states is supreme and plenary. It is "complete in itself, may be exercised to its utmost extent, and acknowledges no limitations, other than are prescribed in the Constitution." @ 22 U. S. 196. The conviction of its necessity sprang from the disastrous experiences under the Confederation, when the states vied in discriminatory measures against each other. In order to end these evils, the grant in the Constitution conferred upon Congress an authority at all times adequate to secure the freedom of interstate commercial intercourse from state control, and to provide effective regulation of that intercourse as the national interest may demand. The words "among the several states" distinguish between the commerce which concerns more states than one and that commerce which is confined within one state and does not affect other states. "The genius and character of the whole government," said Chief Justice Marshall,

"seems to be that its action is to be applied to all the external concerns of the nation, and to those internal concerns which affect the states generally, but not to those which are completely within a particular state, which do not affect other states, and with which it is not necessary to interfere for the purpose of executing some of the general powers of the government. The completely internal commerce of a state, then, may be considered as reserved for the state itself. "

Page 230 U. S. 399

Id., p. 22 U. S. 195. This reservation to the states manifestly is only of that authority which is consistent with, and not opposed to, the grant to Congress. There is no room in our scheme of government for the assertion of state power in hostility to the authorized exercise of federal power. The authority of Congress extends to every part of interstate commerce, and to every instrumentality or agency by which it is carried on, and the full control by Congress of the subjects committed to its regulation is not to be denied or thwarted by the commingling of interstate and intrastate operations. This is not to say that the nation may deal with the internal concerns of the state, as such, but that the execution by Congress of its constitutional power to regulate interstate commerce is not limited by the fact that intrastate transactions may have become so interwoven therewith that the effective government of the former incidentally controls the latter. This conclusion necessarily results from the supremacy of the national power within its appointed sphere. 17 U. S. 405, 17 U. S. 426; 77 U. S. 565; Smith v. Alabama, 124 U. S. 465, 124 U. S. 473; Baltimore & Ohio R. Co. v. Interstate Commerce Commission, 221 U. S. 612, 221 U. S. 618-619; Southern Railway Co. v. United States, 222 U. S. 20, 222 U. S. 26-27; Mondou v. New York, N.H. & H. R. Co., 223 U. S. 1, 223 U. S. 47, 223 U. S. 54-55.

The grant in the Constitution, of its own force -- that is, without action by Congress -- established the essential immunity of interstate commercial intercourse from the direct control of the states with respect to those subjects embraced within the grant which are of such a nature as to demand that, if regulated at all, their regulation should be prescribed by a single authority. It has repeatedly been declared by this Court that, as to those subjects which require a general system or uniformity of regulation, the power of Congress is exclusive. In other matters, admitting of diversity of treatment according to the special

Page 230 U. S. 400

requirements of local conditions, the states may act within their respective jurisdictions until Congress sees fit to act; and, when Congress does act, the exercise of its authority overrides all conflicting state legislation. 53 U. S. 319; 80 U. S. 240; Welton v. Missouri, 91 U. S. 275, 91 U. S. 280; Mobile County v. Kimball, 102 U. S. 691, 102 U. S. 697; Gloucester Ferry Co. v. Pennsylvania, 114 U. S. 196, 114 U. S. 204; Bowman v. Chicago &c. Ry. Co., 125 U. S. 465, 125 U. S. 481, 125 U. S. 485; Gulf, Colorado & Santa Fe Ry. Co. v. Hefley, 158 U. S. 103, 158 U. S. 104; Northern Pacific Ry. Co. v. Washington, 222 U. S. 370, 222 U. S. 378; Southern Ry. Co. v. Reid, 222 U. S. 424, 222 U. S. 436.

The principle which determines this classification underlies the doctrine that the states cannot, under any guise, impose direct burdens upon interstate commerce. For this is but to hold that the states are not permitted directly to regulate or restrain that which, from its nature, should be under the control of the one authority, and be free from restriction, save as it is governed in the manner that the national legislature constitutionally ordains.

Thus, the states cannot tax interstate commerce, either by laying the tax upon the business which constitutes such commerce or the privilege of engaging in it or upon the receipts, as such, derived from it, State Freight Tax Case, 15 Wall. 232; Robbins v. Shelby Taxing District, 120 U. S. 489; Philadelphia & Southern Mail S.S. Co. v. Pennsylvania, 122 U. S. 326; Leloup v. Mobile, 127 U. S. 640; McCall v. California, 136 U. S. 104; Brennan v. Titusville, 153 U. S. 289; Galveston, Harrisburg & San Antonio Railway Co. v. Texas, 210 U. S. 217; Western Union Telegraph Co. v. Kansas, 216 U. S. 1; Pullman Co. v. Kansas, 216 U. S. 56; Meyer v. Wells, Fargo & Co., 223 U. S. 298; Crenshaw v. Arkansas, 227 U. S. 389; or upon persons or property in transit in interstate commerce, Passenger Cases, 7 How. 283; Crandall v. Nevada, 6 Wall. 35; State Freight Tax Case, 15 Wall. 281; Coe v. Errol, 116

Page 230 U. S. 401

U.S. 517; Kelley v. Rhoads, 188 U. S. 1; Bacon v. Illinois, 227 U. S. 504.

They have no power to prohibit interstate trade in legitimate articles of commerce (Bowman v. Chicago &c. Railway Co., supra; Leisy v. Hardin, 135 U. S. 100; Vance v. Vandercook, 170 U. S. 438; Schollenberger v. Pennsylvania, 171 U. S. 1; Oklahoma v. Kansas Natural Gas Co., 221 U. S. 229; L. & N. R. Co. v. Cook Brewing Co., 223 U. S. 70), or to discriminate against the products of other states ( 79 U. S. 230; Hannibal & St. J. R. Co. v. Husen, 95 U. S. 465; Guy v. Baltimore, 100 U. S. 434; Walling v. Michigan, 116 U. S. 446; Minnesota v. Barber, 136 U. S. 313; Brimmer v. Rebman, 138 U. S. 78; Darnell v. Memphis, 208 U. S. 113); or to exclude from the limits of the state corporations or others engaged in interstate commerce, or to fetter by conditions their right to carry it on (Crutcher v. Kentucky, 141 U. S. 47; Western Union Telegraph Co. v. Kansas, supra; Pullman Co. v. Kansas, supra; International Textbook Co. v. Pigg, 217 U. S. 91; Bucks Stove Co. v. Vickers, 226 U. S. 205); or to prescribe the rates to be charged for transportation from one state to another, or to subject the operations of carriers in the course of such transportation to requirements that are unreasonable or pass beyond the bounds of suitable local protection (Wabash &c. Railway Co. v. Illinois, 118 U. S. 557, 118 U. S. 577; Covington &c. Bridge Co. v. Kentucky, 154 U. S. 204; Louisville & Nashville R. Co. v. Eubank, 184 U. S. 27; Hanley v. Kansas City Southern Ry. Co., 187 U. S. 617; Railroad Commission of Ohio v. Worthington, 225 U. S. 101; Texas & N.O. R. Co. v. Sabine Tram Co., 227 U. S. 111; Hall v. De Cuir, 95 U. S. 485, 95 U. S. 488; Cleveland, C.C. & St.L. Railway Co. v. Illinois, 177 U. S. 514; Houston & T.C. R. Co. v. Mayes, 201 U. S. 321; McNeill v. Southern Railway Co., 202 U. S. 543; Mississippi R. Commission v. Illinois Central R. Co., 203 U. S. 335;

Page 230 U. S. 402

Atlantic Coast Line v. Wharton, 207 U. S. 328; St. Louis Southwestern Ry. Co. v. Arkansas, 217 U. S. 136; Herndon v. C., R.I. & Pac. R. Co., 218 U. S. 135; Yazoo &c. R. Co. v. Greenwood Grocery Co.,@ 227 U. S. 1).

But, within these limitations, there necessarily remains to the states until Congress acts a wide range for the permissible exercise of power appropriate to their territorial jurisdiction although interstate commerce may be affected. It extends to those matters of a local nature as to which it is impossible to derive from the constitutional grant an intention that they should go uncontrolled pending federal intervention. Thus, there are certain subjects having the most obvious and direct relation to interstate commerce which nevertheless, with the acquiescence of Congress, have been controlled by state legislation from the foundation of the government because of the necessity that they should not remain unregulated and that their regulation should be adapted to varying local exigencies; hence, the absence of regulation by Congress in such matters has not imported that there should be no restriction, but rather that the states should continue to supply the needed rules until Congress should decide to supersede them. Further, it is competent for a state to govern its internal commerce, to provide local improvements, to create and regulate local facilities, to adopt protective measures of a reasonable character in the interest of the health, safety, morals, and welfare of its people, although interstate commerce may incidentally or indirectly be involved. Our system of government is a practical adjustment by which the national authority as conferred by the Constitution is maintained in its full scope without unnecessary loss of local efficiency. Where the subject is peculiarly one of local concern, and from its nature belongs to the class with which the state appropriately deals in making reasonable provision for local needs, it cannot be regarded as left to the unrestrained will of individuals

Page 230 U. S. 403

because Congress has not acted, although it may have such a relation to interstate commerce as to be within the reach of the federal power. In such case, Congress must be the judge of the necessity of federal action. Its paramount authority always enables it to intervene at its discretion for the complete and effective government of that which has been committed to its care, and, for this purpose and to this extent, in response to a conviction of national need, to displace local laws by substituting laws of its own. The successful working of our constitutional system has thus been made possible.

The leading illustrations may be noted. Immediately upon the adoption of the Constitution, Congress recognized the propriety of local action with respect to pilotage, in view of the local necessities of navigation. Act of August 7, 1789, c. 9, § 4, 1 Stat. 53, 54; Cooley v. Port Wardens, supra. It was sixty years before provision for federal license of pilots was made, Act of August 30, 1852, c. 106, 10 Stat. 61), and even then port pilots were not included, 69 U. S. 459). And, while Congress has full power over the subject, and to a certain extent has prescribed rules, it is still in a large measure subject to the regulation of the states. Anderson v. Pacific Coast S.S. Co.,@ 225 U. S. 187.

A state is entitled to protect its coasts, to improve its harbors, bays, and streams, and to construct dams and bridges across navigable rivers within its limits, unless there is conflict with some act of Congress. Plainly, in the case of dams and bridges, interference with the accustomed right of navigation may result. But this exercise of the important power to provide local improvements has not been regarded as constituting such a direct burden upon intercourse or interchange of traffic as to be repugnant to the federal authority in its dormant state. 27 U. S. 697; Escanaba Co. v. Chicago, 107 U. S. 678; Cardwell v. American Bridge Co., 113 U. S. 205; Huse v. Glover, 119 U. S. 543, 119 U. S. 547; Willamette Bridge Co. v. Hatch, 125 U. S. 1; Lake Shore & Michigan C. Ry. Co. v. Ohio, 165 U. S. 365; Cummings v. Chicago, 188 U. S. 410; Manigault v. Springs, 199 U. S. 473. Thus, in 70 U. S. 729),

"and, from the nature and objects of the two systems of government, they must always continue to exercise it, subject, however, in all cases, to the paramount authority of Congress, whenever the power of the states shall be exerted within the sphere of the commercial power which belongs to the Nation."

Again, in Escanaba Co. v. Chicago, supra, the question related to the power of the City of Chicago, acting under the authority of the state, to regulate the closing of draws in the bridges over the Chicago River. The Court said:

"The Chicago River and its branches must . . . be deemed navigable waters of the United States, over which Congress, under its commercial power, may exercise control to the extent necessary to protect, preserve, and improve their free navigation. But the states have full power to regulate within their limits matters of internal police, including in that general designation whatever will promote the peace, comfort, convenience, and prosperity

Page 230 U. S. 405

of their people. This power embraces the construction of roads, canals, and bridges and the establishment of ferries, and it can generally be exercised more wisely by the states than by a distant authority. . . . When its [the state's] power is exercised so as to unnecessarily obstruct the navigation of the river or its branches, Congress may interfere and remove the obstruction. . . . But until Congress acts on the subject, the power of the state over bridges across its navigable streams is plenary."

Id., p. 107 U. S. 683.

While the state may not impose a duty of tonnage ( 73 U. S. 295. In Transportation Co. v. Parkersburg, supra,@ the Court had before it an ordinance of that city prescribing rates of wharfage on vessels discharging or receiving freight at public landings belonging to the city. A transportation company having steamers plying between Pittsburg and Cincinnati complained that the wharfage charge was exorbitant. The Court held that the reasonableness of the charge, it being simply one for wharfage, was to be determined by the state law.

"The regulation of wharves belongs prima facie, and in the first instance, to the states, and would only be assumed by Congress when its exercise by the states is incompatible with interstate commerce."

Id., p. 107 U. S. 703. Again, inOuachita

Page 230 U. S. 406

Packet Co. v. Aiken, supra, where the owners of steamboats engaged in interstate commerce on the Mississippi River complained of wharfage rates at New Orleans as unreasonable and excessive, and in effect "a direct duty, or burden, upon commerce," the Court, overruling the contention, held that the case was

"clearly within the principle of the former decisions of this Court, which affirm the right of a state, in the absence of regulation by Congress, to establish, manage, and carry on works and improvements of a local character, though necessarily more or less affecting interstate and foreign commerce,"

id., p. 121 U. S. 447.

Quarantine regulations are essential measures of protection which the states are free to adopt when they do not come into conflict with federal action. In view of the need of conforming such measures to local conditions, Congress from the beginning has been content to leave the matter for the most part, notwithstanding its vast importance, to the states, and has repeatedly acquiesced in the enforcement of state laws. Act of February 25, 1799, c. 12, 1 Stat. 619, Rev.Stat. § 4797; Act of April 29, 1878, c. 66, 20 Stat. 37; Act of February 15, 1893, c. 114, 27 Stat. 449. Such laws undoubtedly operate upon interstate and foreign commerce. They could not be effective otherwise. They cannot, of course, be made the cover for discriminations and arbitrary enactments having no reasonable relation to health (Hannibal & St.J. Railroad Co. v. Husen, 95 U. S. 465, 95 U. S. 472-473), but the power of the state to take steps to prevent the introduction or spread of disease, although interstate and foreign commerce are involved (subject to the paramount authority of Congress if it decides to assume control), is beyond question. Morgan's &c. S.S. Co. v. Louisiana, 118 U. S. 455; Missouri, Kansas & Texas Ry. Co. v. Haber, 169 U. S. 613; Louisiana v. Texas, 176 U. S. 1; Rasmussen v. Idaho, 181 U. S. 198; Compagnie Francaise &c. v. Board of Health, 186

Page 230 U. S. 407

U.S. 380; Reid v. Colorado, 187 U. S. 138; Asbell v. Kansas, 209 U. S. 251. In Compagnie Francaise &c. v. Board of Health, supra, the Court had before it the quarantine law of Louisiana which, among other things, provided the state board of health might,

"in its discretion, prohibit the introduction into any infected portion of the state persons acclimated, unacclimated, or said to be immune, when, in its judgment, the introduction of such persons would add to or increase the prevalence of the disease."

The supreme court of the state, interpreting the statute, held that it empowered the board to exclude healthy persons from a locality infested with a contagious or infectious disease, whether they came from without or within the state. It was objected that this provision was too broad, and that the former decisions of the court were based upon the right of the states to exclude diseased persons and things which were not legitimate subjects of commerce. The court sustained the law, saying, with respect to this argument:

"But it must be at once observed that this erroneously states the doctrine as concluded by the decisions of this Court previously referred to, since the proposition ignores the fact that some cases expressly and unequivocally hold that the health and quarantine laws of the several states are not repugnant to the Constitution of the United States, although they affect foreign and domestic commerce, as in many cases they necessarily must do in order to be efficacious, because, until Congress has acted under the authority conferred upon it by the Constitution, such state health and quarantine laws producing such effect on legitimate interstate commerce are not in conflict with the Constitution. True is it that, in some of the cases relied on in the argument, it was held that a state law absolutely prohibiting the introduction, under all circumstances, of objects actually affected with disease was valid because such objects were not legitimate commerce. But this implies no limitation on the power to

Page 230 U. S. 408

regulate by health laws the subjects of legitimate commerce. In other words, the power exists, until Congress has acted, to incidentally regulate by health and quarantine laws even although interstate and foreign commerce is affected, and the power to absolutely prohibit additionally obtains where the thing prohibited is not commerce, and hence not embraced in either interstate or foreign commerce."

Id., p. 931.

State inspection laws and statutes designed to safeguard the inhabitants of a state from fraud and imposition are valid when reasonable in their requirements, and not in conflict with federal rules, although they may affect interstate commerce in their relation to articles prepared for export, or by including incidentally those brought into the state and held for sale in the original imported packages. Gibbons v. Ogden, supra, p. 22 U. S. 203; Turner v. Maryland, 107 U. S. 38; Plumley v. Massachusetts, 155 U. S. 461; Patapsco Guana Co. v. North Carolina, 171 U. S. 345, 171 U. S. 357-358; Savage v. Jones, 225 U. S. 501. And for the protection of its game and the preservation of a valuable food supply, the state may penalize the possession of game during the closed season, whether obtained within the state or brought from abroad. Silz v. Hesterberg, 211 U. S. 31.

Interstate carriers, in the absence of federal statute providing a different rule, are answerable according to the law of the state for nonfeasance or misfeasance within its limits. Chicago, Milwaukee &c. Ry. Co. v. Solan, 169 U. S. 133, 169 U. S. 137; Pennsylvania R. Co. v. Hughes, 191 U. S. 477, 191 U. S. 491; Martin v. Pittsburg & Lake Erie R. Co., 203 U. S. 284, 203 U. S. 294; Southern Pacific Co. v. Schuyler, 227 U. S. 601, 227 U. S. 613. Until the enactment by Congress of the Act of April 22, 1908, c. 149, 35 Stat. 65, the laws of the states determined the liability of interstate carriers by railroad for injuries received by their employees while engaged in interstate commerce, and this was because Congress, although empowered to regulate the subject,

Page 230 U. S. 409

had not acted thereon. In some states, the so-called fellow servant rule obtained; in others, it had been abrogated, and it remained for Congress, in this respect and in other matters specified in the statute, to establish a uniform rule. Mondou v. N.Y., N.H. & H. R. Co., supra; Michigan Central R. Co. v. Vreeland, 227 U. S. 59, 227 U. S. 66.

So, where Congress has not intervened, state statutes providing damages for wrongful death may be enforced not only against land carriers, but also against the owners of vessels engaged in interstate commerce where the wrong occurs within the jurisdiction of the state. Sherlock v. Alling, 93 U. S. 99, 93 U. S. 103. See 83 U. S. 500. It is within the competency of a state to create and enforce liens upon vessels for supplies furnished under contracts not maritime in their nature, and it is no valid objection that the state law may obstruct the prosecution of a voyage of an interstate character. The Winnebago, 205 U. S. 354. It may also create liens for damages to property on land, occasioned by negligence of vessels. Johnson v. Chicago &c. Elevator Co., 119 U. S. 388; Martin v. West, 222 U. S. 191. Cars employed in interstate commerce may be

Page 230 U. S. 410

seized by attachment under state law in order to compel the payment of debts. Davis v. C., C.C. & St.L. Ry. Co., 217 U. S. 157. And the legislation of the states safeguarding life and property and promoting comfort and convenience within their jurisdictions may extend incidentally to the operations of the carrier in the conduct of interstate business provided it does not subject that business to unreasonable demands and is not opposed to federal legislation. Smith v. Alabama, 124 U. S. 465; Hennington v. Georgia, 163 U. S. 299; N.Y., N.H. & H. R. Co. v. New York, 165 U. S. 628; Lake Shore & M.S. Ry. Co. v. Ohio, 173 U. S. 285; Missouri, Pacific Ry. Co. v. Larabee Mills Co., 211 U. S. 612; Missouri Pacific Ry. Co. v. Kansas, 216 U. S. 262. It has also been held that the state has the power to forbid the consolidation of state railroad corporations with competing lines although both may be interstate carriers, and the prohibition may have a far-reaching effect upon interstate commerce. Pearsall v. Great Northern Ry. Co., 161 U. S. 646, 161 U. S. 677; Louisville & Nashville R. Co. v. Kentucky, 161 U. S. 677, 161 U. S. 701-702. See Northern Securities Co. v. United States,@ 193 U. S. 317, 193 U. S. 348, 193 U. S. 382.

Again, it is manifest that, when the legislation of the state is limited to internal commerce to such degree that it does not include even incidentally the subjects of interstate commerce, it is not rendered invalid because it may affect the latter commerce indirectly. In the intimacy of commercial relations, much that is done in the superintendence of local matters may have an indirect bearing upon interstate commerce. The development of local resources and the extension of local facilities may have a very important effect upon communities less favored, and to an appreciable degree alter the course of trade. The freedom of local trade may stimulate interstate commerce, while restrictive measures within the police power of the state, enacted exclusively with respect

Page 230 U. S. 411

to internal business, as distinguished from interstate traffic, may in their reflex or indirect influence diminish the latter and reduce the volume of articles transported into or out of the state. It was an objection of this sort that was urged and overruled in Kidd v. Pearson, 128 U. S. 1, to the law of Iowa prohibiting the manufacture and sale of liquor within the state save for limited purposes. See also Geer v. Connecticut, 161 U. S. 519, 161 U. S. 534; Austin v. Tennessee, 179 U. S. 343; Capital City Dairy Co. v. Ohio, 183 U. S. 238, 183 U. S. 245; Missouri Pacific Ry. Co. v. Kansas, supra. When, however, the state, in dealing with its internal commerce, undertakes to regulate instrumentalities which are also used in interstate commerce, its action is necessarily subject to the exercise by Congress of its authority to control such instrumentalities so far as may be necessary for the purpose of enabling it to discharge its constitutional function. Southern Railway Co. v. United States, supra; Baltimore & Ohio R. Co. v. Interstate Commerce Commission, supra.

Within the state power, then, in the words of Chief Justice Marshall, is

"that immense mass of legislation which embraces everything within the territory of a state not surrendered to the general government, all which can be most advantageously exercised by the states themselves. Inspection laws, quarantine laws, health laws of every description, as well as laws for regulating the internal commerce of a state, and those which respect turnpike roads, ferries, etc., are component parts of this mass. No direct general power over these objects is granted to Congress, and consequently they remain subject to state legislation. If the legislative power of the Union can reach them, it must be for national purposes; it must be where the power is expressly given for a special purpose, or is clearly incidental to some power which is expressly given."

Gibbons v. Ogden, supra, pp. 22 U. S. 203-204.

And whenever, as to such matters, under these established

Page 230 U. S. 412

principles, Congress may be entitled to act by virtue of its power to secure the complete government of interstate commerce, the state power nevertheless continues until Congress does act, and by its valid interposition limits the exercise of the local authority.

(2) These principles apply to the authority of the state to prescribe reasonable maximum rates for intrastate transportation.

State regulation of railroad rates began with railroad transportation. The railroads were chartered by the states, and from the outset, in many charters, maximum rates for freight or passengers, or both, were prescribed. [Footnote 3] Frequently -- and this became the more general practice -- the board of directors was permitted to fix charges in its discretion, an authority which in numerous instances was made subject to a limitation upon the amount of net earnings. [Footnote 4] In several states, maximum rates were also established, or the power to alter rates was expressly reserved, by general laws. [Footnote 5] In 1853, the State of New

Page 230 U. S. 413

York fixed the maximum fare for way passengers on the railroads forming the line of the New York Central at two cents a mile (Laws of 1853, c. 76, § 7), and this rate extending to Buffalo and Suspension Bridge, on the boundary of the state, has continued to the present day (Consol.Laws N.Y., c. 49, § 57). As a rule, the restrictions imposed by the early legislation were far from onerous, but they are significant in the assertion of the right of control. More potent than these provisions in the actual effect upon railroad tariffs was the state canal. It is a matter of common knowledge that the traffic on the trunk lines from the Atlantic seaboard to the West was developed in competition with the Erie Canal, built, maintained, and regulated by the State of New York to promote its commerce.

The authority of the state to limit by legislation the charges of common carriers within its borders was not confined to the power to impose limitations in connection with grants of corporate privileges. In view of the nature of their business, they were held subject to legislative control as to the amount of their charges unless they were protected by their contract with the state. This was decided in Chicago, Burlington & Quincy R. Co. v. Iowa, 94 U. S. 155; Peik v. Chicago & Northwestern Railway Co., 94 U. S. 164; Winona & St. Peter R. Co. v. Blake, 94 U. S. 180, and other cases, following Munn v. Illinois, 94 U. S. 113. The question was presented by acts of the Legislatures of Illinois, Iowa, Wisconsin, and Minnesota, passed in the years 1871 and 1874, in response to a general movement for a reduction of rates. The section of the country in which the demand arose was to a large degree homogeneous, and one in which the flow of commerce was only slightly concerned with state lines. But resort was had to the states for relief. In the Munn case, the Court had before it the statute of Illinois governing the grain warehouses in Chicago. Through these elevators,

Page 230 U. S. 414

located with the river harbor on the one side and the railway tracks on the other, it was necessary, according to the course of trade, for the product of seven or eight states of the West to pass on its way to the states on the Atlantic coast. In addition to the denial of any legislative authority to limit charges, it was urged that the act was repugnant to the exclusive power of Congress to regulate interstate commerce. The Court answered that the business was carried on exclusively within the limits of the State of Illinois, that its regulation was a thing of domestic concern, and that

"certainly, until Congress acts in reference to their interstate relations, the state may exercise all the powers of government over them, even though in so doing it may indirectly operate upon commerce outside its immediate jurisdiction."

In the decision of the railroad cases above cited, the same opinion was expressed. The language of the Court, however, went further than to sustain the state law with respect to rates for purely intrastate carriage. Thus, the Act of Wisconsin covered traffic which started within the state and was destined to points outside, and this was treated as being within the state power (Peik v. Chicago & Northwestern Railway Co., 94 U. S. 164, 94 U. S. 177-178), a view which was later repudiated (Wabash, St.L. & P. Railway Co. v. Illinois, 118 U. S. 557).

It became a frequent practice for the states to create commissions as agencies of state supervision and regulation, and in many instances the ratemaking power was conferred upon these bodies. A summary of such legislation is given in Interstate Commerce Commission v. Chicago, N. O. & T. P. Ry. Co., 167 U. S. 479, 167 U. S. 495-496. One of these state laws, that of Mississippi, passed in 1884, came under review in Stone v. Farmers Loan & Trust Co., 116 U. S. 307. The suit was brought to enjoin the Railroad Commission from enforcing the statute against the Mobile & Ohio Railroad Company. It had been incorporated

Page 230 U. S. 415

in the States of Alabama, Mississippi, Tennessee, and Kentucky for the purpose of constructing a railroad from Mobile to some point near the mouth of the Ohio River, where it would connect with another railroad, thus forming a continuous line of interstate communication between the Gulf of Mexico and the Great Lakes. The Commission as yet had not acted. Sustaining the state power to fix rates upon the traffic wholly internal, the Court directed the dismissal of the bill. The state, said the Court (p. 116 U. S. 334),

"may beyond all question, by the settled rule of decision in this Court, regulate freights and fares for business done exclusively within the state, and it would seem to be a matter of domestic concern to prevent the company from discriminating against persons and places in Mississippi."

In the same case, it was declared that the power of regulation was not a power to confiscate, and that, under pretense of regulating fares and freights, the states could not "require a railroad corporation to carry persons or property without reward," or do that which in law amounted "to a taking of private property for public use without just compensation, or without due process of law." Id., p. 116 U. S. 331.

In Wabash, St.L. & P. R. Co. v. Illinois, supra, it was finally determined that the authority of the state did not extend to the regulation of charges for interstate transportation. There, the state statute was aimed at discrimination. It was said to have been violated by the railroad company in the case of shipments from points within Illinois to the City of New York. The state court had construed the statute to be binding as to that part of the interstate haul which was within the state, although inoperative beyond the boundary. So applied, this Court held the act to be invalid.

But no doubt was entertained of the state's authority to regulate rates for transportation that was wholly intrastate. And, in illustrating the extent of state power

Page 230 U. S. 416

(id., p. 118 U. S. 564), the Court selected transportation across the state from Cairo to Chicago and from Chicago to Alton, all boundary points constituting important centers of commerce -- the one on Lake Michigan, and the others at the confluence of the Mississippi and Ohio Rivers, and of the Mississippi and Missouri Rivers, respectively. After reviewing decisions holding state laws to be ineffective which imposed a direct burden upon interstate commerce, including the cases of the State Freight Tax Case, 15 Wall. 232; Hall v. DeCuir, 95 U. S. 485; Gloucester Ferry Co. v. Pennsylvania, 114 U. S. 196; Pickard v. Pullman Southern Car Co., 117 U. S. 34, the Court emphasized the distinction with respect to the operation of the statute upon domestic transactions, saying:

"Of the justice or propriety of the principle which lies at the foundation of the Illinois statute it is not the province of this Court to speak. As restricted to a transportation which begins and ends within the limits of the state, it may be very just and equitable, and it certainly is the province of the state legislature to determine that question."

Id., p. 118 U. S. 577.

The doctrine was thus fully established that the state could not prescribe interstate rates, but could fix reasonable intrastate rates throughout its territory. The extension of railroad facilities has been accompanied at every step by the assertion of this authority on the part of the states and its invariable recognition by this Court. It has never been doubted that the state could, if it saw fit, build its own highways, canals and railroads. (@ 88 U. S. 470-471.) It could build railroads traversing the entire state, and thus join its border cities and commercial centers by new highways of internal intercourse, to be always available upon reasonable terms. Such provision for local traffic might indeed alter relative advantages in competition, and, by virtue of economic forces, those engaged in interstate trade and transportation might find it necessary to make readjustments

Page 230 U. S. 417

extending from market to market through a wide sphere of influence, but such action of the state would not for that reason be regarded as creating a direct restraint upon interstate commerce, and as thus transcending the state power. Similarly, the authority of the state to prescribe what shall be reasonable charges of common carriers for interstate transportation, unless it be limited by the exertion of the constitutional power of Congress, is statewide. As a power appropriate to the territorial jurisdiction of the state, it is not confined to a part of the state, but extends throughout the state -- to its cities adjacent to its boundaries as well as to those in the interior of the state. To say that this power exists, but that it may be exercised only in prescribing rates that are on an equal or higher basis than those that are fixed by the carrier for interstate transportation, is to maintain the power in name while denying it in fact. It is to assert that the exercise of the legislative judgment in determining what shall be the carrier's charge for the intrastate service is itself subject to the carrier's will. But this statewide authority controls the carrier, and is not controlled by it, and the idea that the power of the state to fix reasonable rates for its internal traffic is limited by the mere action of the carrier in laying an interstate rate to places across the state's border is foreign to our jurisprudence.

If this authority of the state be restricted, it must be by virtue of the paramount power of Congress over interstate commerce and its instruments; and, in view of the nature of the subject, a limitation may not be implied because of a dormant federal power -- that is, one which has not been exerted, but can only be found in the actual exercise of federal control in such measure as to exclude this action by the state which otherwise would clearly be within its province.

(3) When Congress, in the year 1887, enacted the Act to Regulate Commerce (24 Stat. 379, c. 104), it was acquainted

Page 230 U. S. 418

with the course of the development of railroad transportation and with the exercise by the states of the ratemaking power. An elaborate report had been made to the Senate by a committee authorized to investigate the subject of railroad regulation, in which the nature and extent of state legislation, including the Commission plan, were fully reviewed (Senate Report 46, submitted January 6, 1886, 49th Congress, 1st session). And it was the fact that beyond the bounds of state control there lay a vast field of unregulated activity in the conduct of interstate transportation which was found to be the chief cause of the demand for federal action.

Congress carefully defined the scope of its regulation, and expressly provided that it was not to extend to purely intrastate traffic. In the first section of the Act to Regulate Commerce, there was inserted the following proviso:

"Provided, however, That the provisions of this Act shall not apply to the transportation of passengers or property, or to the receiving, delivering, storage, or handling

Page 230 U. S. 419

of property wholly within one state, and not shipped to or from a foreign country, from or to any state or territory as aforesaid."

When, in the year 1906 (Act of June 29, 1906, c. 3591, 34 Stat. 584), Congress amended the act so as to confer upon the federal commission power to prescribe maximum interstate rates, the proviso in § 1 was reenacted. Again, in 1910, when the act was extended to embrace telegraph, telephone, and cable companies engaged in interstate business, the proviso was once more reenacted, with an additional clause so as to exclude intrastate messages from the operation of the statute. Act of June 18, 1910, c. 309, 36 Stat. 545. The proviso in its present form reads:

"Provided, however, That the provisions of this Act shall not apply to the transportation of passengers or property, or to the receiving, delivering, storage, or handling of property wholly within one state, and not shipped to or from a foreign country, from or to any state or territory as aforesaid, nor shall they apply to the transmission of messages by telephone, telegraph, or cable wholly within one state, and not transmitted to or from a foreign country, from or to any state or territory, as aforesaid."

There was thus excluded from the provisions of the act that transportation which was "wholly within one state," with the specified qualification where its subject was going to or coming from a foreign country.

In is urged, however, that the words of the proviso are susceptible of a construction which would permit the provisions of § 3 of the act, prohibiting carriers from giving an undue or unreasonable preference or advantage to any locality, to apply to unreasonable discrimination between localities in different states, as well when arising from an intrastate rate as compared with an interstate rate as when due to interstate rates exclusively. If it be assumed that the statute should be so construed (and it is not necessary now to decide the point), it would inevitably follow that the controlling principle governing the enforcement of the act should be applied to such cases as might thereby be brought within its purview, and the question whether the carrier, in such a case, was giving an undue or unreasonable preference or advantage to one locality as against another, or subjecting any locality to an undue or unreasonable prejudice or disadvantage, would be primarily for the investigation and determination of the Interstate Commerce Commission, and not for the courts. The dominating purpose of the statute was to secure conformity to the prescribed standards through the examination and appreciation of the complex facts of transportation by the body created for that purpose; and, as this Court has repeatedly held, it would be destructive of the system of regulation defined by the statute if the

Page 230 U. S. 420

court, without the preliminary action of the Commission, were to undertake to pass upon the administrative questions which the statute has primarily confided to it. Texas & Pacific Ry. Co. v. Abilene Cotton Oil Co., 204 U. S. 426; Baltimore & Ohio R. Co. v. Pitcairn Coal Co., 215 U. S. 481; Robinson v. Baltimore & Ohio R. Co., 222 U. S. 506; United States v. Pacific & Arctic Co., 228 U. S. 87. In the present case, there has been no finding by the Interstate Commerce Commission of unjust discrimination violative of the act, and no action of that body is before us for review.

The question we have now before us, essentially, is whether, after the passage of the Interstate Commerce Act and its amendment, the state continued to possess the statewide authority which it formerly enjoyed to prescribe reasonable rates for its exclusively internal traffic. That, as it plainly appears, was the nature of the action taken by Minnesota, and the attack, however phrased, upon the rates here involved as an interference with interstate commerce is in substance a denial of that authority.

Having regard to the terms of the federal statute, the familiar range of state action at the time it was enacted, the continued exercise of state authority in the same manner and to the same extent after its enactment, and the decisions of this Court recognizing and upholding this authority, we find no foundation for the proposition that the Act to Regulate Commerce contemplated interference therewith.

Congress did not undertake to say that the intrastate rates of interstate carriers should be reasonable, or to invest its administrative agency with authority to determine their reasonableness. Neither by the original act nor by its amendment did Congress seek to establish a unified control over interstate and intrastate rates; it did not set up a standard for interstate rates, or prescribe, or

Page 230 U. S. 421

authorize the Commission to prescribe, either maximum or minimum rates for intrastate traffic. It cannot be supposed that Congress sought to accomplish by indirection that which it expressly disclaimed, or attempted to override the accustomed authority of the states without the provision of a substitute. On the contrary, the fixing of reasonable rates for intrastate transportation was left where it had been found -- that is, with the states and the agencies created by the states to deal with that subject. Missouri Pacific Ry. Co. v. Larabee Mills, 211 U. S. 612, 211 U. S. 620-621.

How clear was the purpose not to occupy the field thus left to the exercise of state power is shown by the clause uniformly inserted in the numerous acts passed by Congress to authorize the construction of railways across the Indian territory. This clause, while fixing a maximum passenger rate, made the laws of an adjoining state (in some cases Arkansas, in other Texas, and in others Kansas) applicable to the freight rates to be charged within the territory, and while the right to regulate rates on the authorized line of railroad was reserved to Congress until a state government should be established, it was expressly provided that, when established, the state should be entitled to fix rates for intrastate transportation, the right remaining with Congress to prescribe rates for such transportation as should be interstate. Within a month after the Act to Regulate Commerce was enacted, two acts were passed by Congress for this purpose with respect to railways extending across the territory from the Texas to the Kansas boundary. The provision -- in both cases in identical language, save that the one referred to the laws of Texas and the other to the laws of Kansas -- was as follows (Act of February 24, 1887, c. 254, § 4, 24 Stat. 420; Act of March 2, 1887, c. 319, § 4, 24 Stat. 447):

"SEC. 4. That said railroad company shall not charge the inhabitants of said territory a greater rate of freight

Page 230 U. S. 422

than the rate authorized by the laws of the State of Texas for services or transportation of the same kind: Provided, That passenger rates on said railway shall not exceed three cents per mile. Congress hereby reserves the right to regulate the charges for freight and passengers on said railway, and messages on said telegraph and telephone lines, until a state government or governments shall exist in said territory within the limits of which said railway, or a part thereof, shall be located, and then such state government or governments shall be authorized to fix and regulate the cost of transportation of persons and freights within their respective limits by said railway; but Congress expressly reserves the right to fix and regulate at all times the cost of such transportation by said railway or said company whenever such transportation shall extend from one state into another, or shall extend into more than one state: Provided, however, That the rate of such transportation of passengers, local or interstate, shall not exceed the rate above expressed: And provided further, That said railway company shall carry the mail at such prices as Congress may by law provide, and until such rate is fixed by law, the Postmaster General may fix the rate of compensation."

The same provision is found in similar statutes passed in almost every year from 1884 to 1902, and relating to lines intended to serve as highways of interstate communication. [Footnote 6] When Oklahoma became a state, the laws

Page 230 U. S. 423

of other states which were referred to in these various acts ceased to be operative within its limits, and by virtue of its statehood and with the direct sanction of Congress, it became authorized to prescribe reasonable maximum rates for intrastate transportation throughout its extent. Oklahoma v. A., T. & S.F. Ry. Co., 220 U. S. 277, 220 U. S. 285; C., R.I. & Pac. Ry. Co., 220 U. S. 302, 220 U. S. 306.

The decisions of this Court since the passage of the Act to Regulate Commerce have uniformly recognized that it was competent for the state fix such rates, applicable throughout its territory. If it be said that, in the contests that have been waged over state laws during the past twenty-five years, the question of interference with interstate commerce by the establishment of statewide rates for intrastate traffic has seldom been raised, this fact itself attests the common conception of the scope of state authority. And the decisions recognizing and defining the state power wholly refute the contention that the making of such rates either constitutes a direct burden upon the interstate commerce or is repugnant to the federal statute.

In Dow v. Beidelman, 125 U. S. 680, the statute of Arkansas, enacted in April, 1887,

Page 230 U. S. 424

which established three cents a mile as the maximum fare for carrying passengers within the state on railroads over 75 miles in length, was sustained against the objection of the owners of the Memphis & Little Rock Railroad, who attacked the act as confiscatory and arbitrary in its classification. The same statute was again upheld in St. Louis & San Francisco Railway Co. v. Gill, 156 U. S. 649. In Chicago &c. Ry. Co. v. Minnesota, 134 U. S. 418, the statute of that state (March 7, 1887, Gen.Laws 1887, c. 10) creating a Commission with power to prescribe intrastate rates was adjudged to be invalid, but this was upon the ground that the act as construed by the state court made the rates published by the Commission final and conclusive, and precluded any judicial injury whether they were reasonable. In Chicago &c. Railway Co. v. Wellman, 143 U. S. 339, the act of the Legislature of Michigan (June 28, 1889, Pub.Laws 1889, p. 282) fixing the maximu

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MINNESOTA RATE CASE, 230 U. S. 352 (1913)

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Minnesota Rate Case, 230 U.S. 352 (1913)