Document: 405 U.S. 707 92 S.Ct. 1349 31 L.Ed.2d 620 EVANSVILLE-VANDERBURGH AIRPORT AUTHORITY DISTRICT et al., Petitioners,v.DELTA AIRLINES, INC., al. NORTHEAST Appellants, v. NEW HAMPSHIRE AERONAUTICS COMMISSION Nos. 70—99, 70—212. Argued Feb. 23 and 24, 1972. Decided April 19, Syllabus In No. 70—99 respondents challenged a 'use service charge' of $1 'for each passenger enplaning any commercial aircraft operated from the Dress Memorial Airport' in Evansville, Indiana. The funds were to be used for improvement maintenance airport. Indiana Supreme Court, upholding lower court, held charge an unreasonable burden on interstate commerce violation Art. I, § 8, Constitution. 70—212 New Hampshire statute levied scheduled airliner weighing 12,500 pounds or more, 50 less than pounds. Fifty percent allocated State's aeronautical fund, with balance going municipalities airport authorities owning public landing areas. Court sustained constitutionality statute. Held: charges imposed these cases are constitutional. Pp. 711—702. (a) A designed make user state-provided facilities pay reasonable fee their construction may constitutionally intrastate users alike. Crandall Nevada, 6 Wall. 35, 18 L.Ed. 744, distinguished. 711—717. (b) charges, applicable both flights, do not discriminate against travel. P. 717. (c) Although all subject fees, there distinctions among different classes passengers aircraft, reflect fair, albeit imperfect, approximation use by those whose benefit they imposed, exemptions wholly unreasonable. 717—719. (d) airlines have shown excessive relation costs incurred taxing constructing maintaining airports funds. Hampshire's decision reimburse local expenditures through unrestricted revenues is matter concern airlines. 719—720. (e) conflict federal policies furthering uniform national regulation air transportation. 720—721. (f) There no suggestion here that advance permissible objective having bear fair share costs. 722. Ind., 265 N.E.2d 27, reversed; 111 N.H. 5, 273 A.2d 676, affirmed. Howard Trockman, Evansville-Vanderburgh Airport Authority Dist. others. John K. Mallory, Jr., Washington, D.C., Delta Airlines, Inc., Northeast W. Michael Dunn, Concord, N.H., Aeronautics Comm. Mr. Justice BRENNAN delivered opinion Court. 1 question whether State municipality per airline help defray violates Federal Our answer that, as two cases, does violate 2 70—99. District was created Legislature operate Under its authority enact ordinances adopting rates collected services, enacted Ordinance 33 establishing 'a One Dollar ($1.00) Airport.' required collect remit 6% allowed cover airlines' administrative doing so. moneys 'in separate fund purpose defraying present future said construction, improvement, equipment, continued enjoyment thereof.' 3 Respondents action filed Superior Vanderburgh County, court constituted Constitution permanently enjoined enforcement ordinance. affirmed, 27 (1970). We granted certiorari, 404 820, 43, 30 48 (1971). reverse. 4 Chapter 391 1969 Laws Hampshire, amending N.H.Rev.Stat.Ann. §§ 422:3, 422:43, 422:45, requires every 'common carrier hire regular schedule' uses five publicly owned 'pay one dollar respect emplaning1 upon gross weight fifty cents emplaning pounds.' Fifth 50% 'to areas at which fees . imposed.' authorized pass passenger.2 5 Appellants brought this Merrimack flights grounds repugnancy Commerce Clause, Equal Protection Clause Fourteenth Amendment, provisions protecting right without decision, transferred 676 noted probable jurisdiction, 819, 60, 47 (1971).3 affirm. begin our analysis consideration contention invalid under Court's 744 (1868). invalidated Nevada 'tax person leaving railroad, stage coach, other vehicle engaged employed business transporting hire.' approached problem levy 'any tax character,' whatever amount, impermissibly burdened protected citizens holding it did, reasoned: 7 '(I)f can railroad dollar, him thousand dollars. If this, so State. And thus more States covering only practicable routes travel east west, north south, totally prevent seriously transportation part country other.' Id., 46.4 8 charge, however, limited, before us, travelers asked providing further applied traveling privately transportation, such railroads. Thus charged regard provided tax. Cases decided since distinguished ground taxes 'designed (interstate) cost government protection enjoys.' Freeman Hewit, 329 249, 253, 67 274, 277, 91 (1946).5 For example, Hendrick Maryland, 235 610, 35 140, 59 385 (1915), Columbia resident convicted driving Maryland paying road repair. He his conviction rights into rejected argument, that: 9 '(W)here state own expense furnishes special commerce, well domestic, exact compensation therefor. amount method collection primarily determination itself; long fixed according some uniform, practical standard, constitute commerce. Parkersburg & O. River Transportation Co. Parkersburg, 107 691, 699 (2 732, 584, 587); Huse Glover, 119 543, 548, 549 (7 313, 487, 490); Monongahela Navigation United States, 148 312, 329, 330 (13 622, 37 463, 469); Minnesota Rate (Simpson Shephard), 230 352, (33 729, 57 1511, L.R.A.(N.S.) 1151), cited. must treated correct unless contrary made appear. instant case evidence concerning value supplied state, them, fairness methods adopted collecting imposed; we cannot say mere inspection arbitrary unreasonable.' 624, S.Ct., 142. 10 expressly Crandall, saying: 11 'There solid foundation claim directly interferes consequently bad doctrine announced (18 745). direct laid privilege state; while most attempts regulate operation dangerous machines highways, valuable facilities.' Ibid.6 12 therefore settled domestic principle burdens constitutional if necessary promote compelling interest has application context. See Shapiro Thompson, 394 618, 89 1322, 22 600 (1969). facility aids rather hinders sense. 13 Courts differed appraising respective terms aid public. Evansville 'is reasonably related ..' N.E.2d, 31. hand, 'fee furnished public' did 'exceed provided.' 9, A.2d, 678, 679. 14 addressing question, think particularly important himself, airline, passed chooses. either case, act enplanement consequent runways give rise obligation. inquiry occasioned incident regardless formal responsibility payment. 15 decisions highway tolls instructive. They establish empowered develop 'uniform, practical' standards type fee. While unrelated toll based carrier's seating capacity, Interstate Transit, Inc. Lindsey, 283 183, 51 380, 75 953 (1931); Sprout South Bend, 277 163, 502, 72 833 (1928), gasoline over 20 gallons gas tank, McCarroll Dixie Greyhound Lines, 309 176, 60 504, 84 683 (1940), numerous variety measures actual use, including: horsepower, supra; Kane Jersey, 242 160, 30, 61 222 (1916); number capacity vehicles, Clark Poor, 274 554, 702, 71 1199 (1927); mileage within State, Busses Corp. Blodgett, 276 245, 230, 551 (1928); gross-ton mileage, Continental Baking Woodring, 286 52 595, 76 1155 (1932); carrying Hicklin Coney, 290 169, 54 142, 78 247 (1933); manufacturer's rated trailers, Ohio Express Revenue Comm., 306 72, 435, 83 495 (1939). 16 also impose flat using roads, particular excessive. Aero Mayflower Transit Georgia Public Service 295 285, 55 709, 79 1439 (1935); Morf Bingaman, 298 407, 56 756, 80 1245 (1936); Board Railroad Com'rs, 332 495, 68 167, 99 (1947). Capitol Lines Brice, 339 542, 70 806, 94 1053 (1950), '2% market motor vehicles commerce.' That supplemental standard 'the total carriers (did) vary substantially traveled.' 546, 808. It argued, correlation between precise enough sustain valid charge. Noting 'should judged result, formula, stand proven granted,' id., 545, 808, argument: 17 'Complete would require formula factor affecting appropriate use. These factors, like relevant considering taxes, countless content 'rough precision.' International Harvester Evatt, 416, 422—423, 444, 447, 390. Each additional adds enforcement, fall alike taxpayers government. recognized sufficient justify states ignoring even key although result face appears unequal carriers. Comm'n, 289, 710, 1439. Upon tpe reasoning rests general rule excess roads.' 546—547, 809. Thus, standard' relating expenditures, tax, central concern. At least us Greyhound, neither discriminatory nor comparison governmental conferred, will muster, though might exactly relative individual users. 19 meet standards. First, discriminates vast majority who board involved interstate, same charges. Furthermore, showing inherent difference discrimination other. Nippert Richmond, 327 66 586, 90 760 (1946). Second, imposed. recognize imposing boarding exempt whole persons involved. Their includes certain passengers, active members military temporary layovers,7 deplaning passengers,8 noncommercial flights,9 nonscheduled flights,10 light aircraft.11 Also nonpassenger users, delivering receiving air-freight shipments, meeting seeing off dining restaurants, working employers located grounds. Nevertheless, exceptions Certainly class because navigational nonflight activities. shops, private parking concessions, contribute upkeep rent, patrons. visitor merely sees meets confers terminal considered included passenger's 21 rational aircraft. Commercial traffic elaborate navigation facilities, longer costly runway systems, smaller planes.12 aviation, therefore, larger built needs, perflight basis form higher takeoff passenger-use short, versus render irrational measure levied. Nor fact but deplanement. presume deplane approximately times. parties stipulated 1967 virtually same. supposed when deplane.13 Third, authorities. record shows 1965 paid bond retirement $166,000 capital improvements Airport, recovered $9,700 revenue. airport's covered $63,000 Authority's $184,000 1966. $87,000 $182,000 1967, $65,000 $178,000 1968. advanced fee, permitted go effect, past, current, deficits. likewise failed offer proof excessiveness. This omission suffices dispose final attack appellants argue 'on belies legislative intent exaction solely use' revenue remaining cent revenues.' Brief 51—52. Yet received exceed costs, immaterial earmarked choice restricted appellants. U.S., 557, 703; 412, 758; 502—505, 170—173. 24 conclude, constructed maintained No specific congressional declaration evidences deny pre-empt power maintenance. evident Airway Development Act 1970, Stat. 219, 49 U.S.C. 1701 seq. provides condition precedent approval development project,' Secretary determine 25 operator owner maintain rental structure services being self-sustaining possible circumstances existing airport, taking account factors volume economy collection.' 1718(8). 26 proliferation eventually follow wake sustaining validity itself reason adjudge repugnant Clause. 'If levies along traveller's route, effect could prohibitive, competitive affected, compared forms impaired.' 70—212, p. 44. argument relies Bibb Navajo Freight 359 520, 962, 1003 (1959). Illinois requiring trucks trailers highways equipped line contour mudguard specified design. courts had found possessed advantages safety conventional flap indeed hazards. But aiding circumstance, '(a)t until Congress chooses nation-wide rule, denied State(s).' 277; see Southern Pacific Arizona ex rel. Sullivan, 325 761, 775—776, 65 1515, 1523—1524, 1915 (1945). judgment 212 28 ordered. 29 POWELL took cases. DOUGLAS, dissenting. governed overruled taxes. 32 involves Airport. 50¢ responsible paying, accounting for, remitting authority. 34 struck down law rail, common carrier. Miller, speaking citizen abridged: 'He free access sea-ports, operations foreign trade conducted, sub-treasuries, land offices, justice several nature independent soil he exercise it.' 36 quoted dissenting Passenger (Smith Turner) How. 283, 492, 702: 'For great purposes formed people, country. community repass interruption, freely States. entering territories harbors, inconsistent belong Union, objects Union intended attain. Such produce nothing discord mutual irritation, very clearly possess it." Wall., 48—49. 38 Usually been founded Clause.1 Guest, 383 745, 758—759, 86 1170, 1178—1179, 239. Some, including myself, thought immunity citizenship.2 Edwards California, 314 177, 62 164, 168, (Douglas, J., concurring). Whatever source, exists.3 Graham Richardson, 403 365, 1848, 534; Griffin Breckenridge, 88, 105—106, 1790, 1800, 338; Oregon Mitchell, 400 112, 237—238, 260, 321—322, 272 (separate Brennan, White, Marshall, JJ.); 630—631, 1329—1330, 600; 757—758, 1177—1178. 39 Heretofore, measured themselves, passengers. Pickard Pullman Car Co., 117 34, 46, 635, 640, 785; Tax Case, 232, 281, 146. To sure, getting onto plane act. activity integral realistically separated it.4 Michigan-Wisconsin Pipe Line Calvert, 347 157, 166, 74 396, 400, 98 583. processed use—and exit State.' 401. itself.' 402. 40 true here, step away inseparable flight. 41 Of course enjoys. support community, making speech exercising First Amendment right. Like prohibitions obtain licensing exacted rights. Lovell Griffin, 303 451—452, 58 666, 668—669, 82 949; Thomas Collins, 323 516, 540—541, 315, 327—328, 430; Harman Forssenius, 380 528, 85 1177, 1186, 50. Heretofore participate precisely way theory 'power control suppress enjoyment.' Murdock Pennsylvania, 319 105, 63 870, 874, 87 1292. I adhere view; should 'chilled' 'suffocated.' 42 Are now assume Calvert law? 43 affirm reverse Hampshire's. 'Emplane' variant 'enplane.' Webster's Third Dictionary 743 (1961). Before enactment 391, 422:43 issue 1957. Section 422:44 similar planes. All 1957 issue, cease once repayment completed. 422:45. broadened applicability 1959, eliminated terminating issue. small (under pounds) airlines, retained small-plane exemption 140 1971, after expanded 1959. legislature eliminate bond-repayment cut-off, apply Montana Jersey here. Northwest Joint City-County Bd., 154 Mont. 463 P.2d 470 (1970); Allegheny Sills, 110 N.J.Super. 54, 264 268 addition, proposals abandoned opinions officials arguing invalidity. Concurring Justices 49. jurisdiction is, limited due process requirement 'taxing exerted (bear) fiscal protection, opportunities benefits given state.' Wisconsin J. C. Penney 311 246, 250, 267 (1940). distinction drawn striking construed falling 'upon exclusively Spector Motor Service, O'Connor, 340 602, 609, 508, 512, 95 570 (1951) (emphasis original), 'levied highways.' 607, 511. Active layovers distinguish Deplaning Private aviators imposes pounds, lighter planes; lapses n. 2, supra. ordinance flights. scheduled, unscheduled. heavy '(m)ost constituting Terminal Building essential except thereof airlines,' 'runway lengths, approach areas, taxiways ramp extensive sufficiently order accommodate passengers,' 'Dress operates maintains instrument lighting system connection private, aircraft.' App. 55. Because consistent defining legislation, 'some relevance classification made.' Baxstrom Herold, 107, 111, 760, 620; Carrington Rash, 89, 93, 775, 778, 675; Louisville Gas (& Electric) Coleman, 32, 37, 423, 425, 770; F. S. Royster Guano Commonwealth Virginia, 253 415, 560, 561—562, 64 989.' Rinaldi Yeager, 384 305, 309, 1497, 1500, 577 (1966). Helson Randolph Kentucky, 279 251, 279, 73 683; Philadelphia S.S. 122 326, 339, 1118, 1121, 1200; Colgate Harvey, 296 404, 443—444, 252, 266, 299 (Stone, dissenting); Bowman Chicago Northwestern R. 125 465, 480—481, 689, 695—696, 700. 345, (Stewart, concurring Bell 378 226, 255 Douglas, J.), 293—294, 10, 1814, 1827, 1830, 1851, 1852, 822 (Goldberg, concurring); York O'Neill, 1, 12, 564, 571, 585 Kent Dulles, 357 116, 125—127, 1113, 1118—1119, 1204; concurring), 181, 170 (Jackson, Gilbert Minnesota, 254 325, 337, 125, 129, 287 (Brandeis, Twining 211 78, 97, 14, 18, 53 97; Cook 97 566, 1015; Wheeler, 133, 270; 429—430, 258—259, 299; Slaughter-House Cases, 36, 79, 394. Only day Dunn Blumstein, 330, 995, durational residence prerequisite voting 'directly impinges fundamental personal right, travel.' cited host 'right travel' 758, 1178; 702 (Taney, C.J., 744; Paul 180, 357; california, 126, 1118; 629—631, 634, 1328—1330, 1331, 237, 321 JJ.), 285—286, 345 dissenting). deterrence need said: 'It irrelevant disenfranchisement denial welfare potent deterrent rest finding actually deterred always relied presence deterrence. explicitly stated test triggered served penalize (to travel) .' (394 U.S.), 1331 added); 638 1333. noting frank deter migration poor, speculating 'an indigent desires migrate doubtless hesitate knows risk' loss benefits, 628—629, 1328—1329, dispute 'evidence few recipients (from moving) requirements.' 650, 1340 (Warren, 671—672, 1351 (Harlan, Indeed, none litigants themselves deterred.' 339—340, 1001. 683, Kentucky borders, determined instrumentality down. 'The price locomotive car ferryboat, parallel. fuel consumed propelling boat itself? falls means carried subjects definitely held, little repetition medium effected. 'All restraints exactions acts completion, many invasions exclusive portion States." 281.

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