Source: https://supreme.justia.com/cases/federal/us/303/177/
Timestamp: 2019-04-19 10:49:42+00:00

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Justia › US Law › US Case Law › US Supreme Court › Volume 303 › S.C. State Highway Dept. v. Barnwell Bros., Inc.
The Dormant Commerce Clause does not prohibit a state from controlling the weight and width of trucks on its highways because it does not impose an undue burden on interstate commerce.
South Carolina limited the weight of trucks that could drive on its highways to 20,000 pounds and their width to 90 inches. Barnwell Bros., Inc., an interstate trucking company, argued that this was an unconstitutional restriction on interstate commerce. The lower court agreed and granted an injunction. It found that the law would impede the flow of commercial trucking through South Carolina by increasing costs and creating other burdens.
Congress has not enacted regulations in this area, so the states remain free to regulate in it. States are not allowed to impose burdens on interstate commerce by crafting laws that are designed to create an advantage for local businesses, even if they are technically only related to local matters. In this instance, however, the law closely relates to a matter of substantial local concern, since the states own and maintain their own highways. This contrasts from the federal regulation of railroads under the Commerce Clause.
In the absence of action by Congress, federal courts may not determine the details of motor vehicle regulations. To do so would exceed the proper scope of the judicial role and infringe on the powers of the legislature.
The restrictions were not discriminatory against out-of-state enterprises since they applied to in-state enterprises as well. States do have a legitimate interest in protecting their highways from unnecessary wear, which could lead to accidents and congestion.
1. In the absence of national legislation covering the subject in its relation to interstate commerce, a State, in order to conserve its highways and promote safety thereon, may adopt regulations limiting the weight and width of the vehicles that use them, applicable without discrimination to those moving in interstate commerce and to those moving only within the State. P. 303 U. S. 184.
the question whether the restrictions imposed are reasonably adapted to the end sought. P. 303 U. S. 190.
In resolving this question, the court cannot act as Congress does when, after weighing all the conflicting interests, state and national, it determines when and how much the state regulatory power shall yield to the larger interests of a national commerce; nor is it called upon, as are state legislatures, to determine what, in its judgment, is the most suitable restriction to be applied of those that are possible, or to choose that one which in its opinion is best adapted to all the diverse interests affected.
highways of the State, in view of the fact that all other States permit a width of 96 inches, which is the standard width of trucks engaged in interstate commerce.
(1) That since the adoption of one weight or width regulation, rather than another is a legislative not a judicial choice, constitutionality is not to be determined by weighing in the judicial scales the merits of the legislative choice and rejecting it if the weight of evidence presented in court appears to favor a different standard. P. 303 U. S. 191.
(2) The legislative judgment is presumed to be supported by facts known to the legislature unless facts judicially known or proved preclude that possibility. Id.
(3) In reviewing the present determination, this Court must examine the record, not to see whether the findings of the court below are supported by evidence, but to ascertain whether it is possible to say that the legislative choice is without rational basis. Id.
(4) Not only does the record fail to exclude that possibility, but it shows affirmatively that there is adequate support for the legislative judgment. Pp. 303 U. S. 192 et seq.
APPEAL from a final decree of a district court of three judges which enjoined the South Carolina State Highway Department, the State Public Service Commission and numerous state officers, from enforcing, as against the plaintiffs while engaged in interstate commerce on certain specified highways, a statute limiting the weight and width of motor trucks and "semi-trailer" trucks. There was a provision in the decree that the injunction should not extend to bridges not strong enough to support heavy trucks or too narrow to accommodate such traffic safely, with a proviso that the State Highway Department should post certain warning notices at such bridges, and should enforce the law against their use by such trucks. The Interstate Commerce Commission and two private corporations were permitted to intervene as plaintiffs, and two railroad companies and the receiver of another were permitted to intervene as defendants.
Act No. 259 of the General Assembly of South Carolina, of April 28, 1933, 38 Stat. 340, prohibits use on the state highways of motor trucks and "semi-trailer motor trucks" whose width exceeds 90 inches, and whose weight including load exceeds 20,000 pounds. For purposes of the weight limitation § 2 of the statute provides that a semitrailer motor truck, which is a motor propelled truck with a trailer whose front end is designed to be attached to and supported by the truck, shall be considered a single unit. The principal question for decision is whether these prohibitions impose an unconstitutional burden upon interstate commerce.
Appellees include the original plaintiffs below, who are truckers and interstate shippers; the Interstate Commerce Commission, and certain others who were permitted to intervene as parties plaintiff. The suit was brought in the district court for eastern South Carolina against various state officials, to enjoin them from enforcing §§ 4 and 6 of the Act among others, [Footnote 1] on the ground that they have been superseded by the Federal Motor Carrier Act of 1935, c. 498, 49 Stat. 546; that they infringe the due process clause of the Fourteenth Amendment, and that they impose an unconstitutional burden on interstate commerce. Certain railroads interested in restricting the competition of interstate motor carriers were permitted to intervene as parties defendant.
the width limitation of 90 inches, except in the case of vehicles exceeding 96 inches in width. It exempted from the operation of the decree, bridges on those highways "not constructed with sufficient strength to support the heavy trucks of modern traffic or too narrow to accommodate such traffic safely," provided the state highway department should place at each end of the bridge proper notices warning that the use of the bridge is forbidden by trucks exceeding the weight or width limits and provided the proper authorities take the necessary steps to enforce the law against such use of the bridges. The case comes here on appeal under § 266 of the Judicial Code.
The trial court rested its decision that the statute unreasonably burdens interstate commerce, upon findings, not assailed here, that there is a large amount of motor truck traffic passing interstate in the southeastern part of the United States, which would normally pass over the highways of South Carolina, but which will be barred from the state by the challenged restrictions if enforced, and upon its conclusion that, when viewed in the light of their effect upon interstate commerce, these restrictions are unreasonable.
Commerce have recommended for adoption weight and width limitations in which weight is limited to axle loads of 16,000 to 18,000 pounds and width is limited to 96 inches.
It found in detail that compliance with the weight and width limitations demanded by the South Carolina Act would seriously impede motor truck traffic passing to and through the state and increase its cost; that 2,417 miles of state highways, including most of those affected by the injunction, are of the standard construction of concrete or concrete base with asphalt surface, 7 1/2 or 8 inches thick at the edges and 6 or 6 1/2 inches thick at the center; that they are capable of sustaining without injury a wheel load of 8,000 to 9,000 pounds or an axle load of double those amounts, depending on whether the wheels are equipped with high pressure or low pressure pneumatic tires; that all but 100 miles of the specified highways are from 18 to 20 feet in width; that they constitute a connected system of highways which have been improved with the aid of federal money grants, as a part of a national system of highways, and that they constitute one of the best highway systems in the southeastern part of the United States.
when applied to standard concrete highways of the state, in view of the fact that all other states permit a width of 96 inches, which is the standard width of trucks engaged in interstate commerce.
In reaching these conclusions, and at the same time holding that the weight and width limitations do not infringe the Fourteenth Amendment, the court proceeded upon the assumption that the commerce clause imposes upon state regulations to secure the safe and economical use of highways a standard of reasonableness which is more exacting when applied to the interstate traffic than that required by the Fourteenth Amendment as to all traffic; that a standard of weight and width of motor vehicles which is an appropriate state regulation when applied to intrastate traffic may be prohibited because of its effect on interstate commerce, although the conditions attending the two classes of traffic with respect to safety and protection of the highways are the same.
South Carolina has built its highways and owns and maintains them. It has received from the federal government, in aid of its highway improvements, money grants which have been expended upon the highways to which the injunction applies. But appellees do not challenge here the ruling of the district court that Congress has not undertaken to regulate the weight and size of motor vehicles in interstate motor traffic, and has left undisturbed whatever authority in that regard the states have retained under the Constitution.
it did not forestall all state action affecting interstate commerce. Ever since Willson v. Black Bird Creek Marsh Co., 2 Pet. 245, and Cooley v. Board of Port Wardens, 12 How. 299, it has been recognized that there are matters of local concern, the regulation of which unavoidably involves some regulation of interstate commerce but which, because of their local character and their number and diversity, may never be fully dealt with by Congress. Notwithstanding the commerce clause, such regulation in the absence of Congressional action has, for the most part, been left to the states by the decisions of this Court, subject to the other applicable constitutional restraints.
But the present case affords no occasion for saying that the bare possession of power by Congress to regulate the interstate traffic forces the states to conform to standards which Congress might, but has, not adopted, or curtails their power to take measures to insure the safety and conservation of their highways which may be applied to like traffic moving intrastate. Few subjects of state regulation are so peculiarly of local concern as is the use of state highways. There are few, local regulation of which is so inseparable from a substantial effect on interstate commerce. Unlike the railroads, local highways are built, owned and maintained by the state or its municipal subdivisions. The state has a primary and immediate concern in their safe and economical administration. The present regulations, or any others of like purpose, if they are to accomplish their end, must be applied alike to interstate and intrastate traffic both moving in large volume over the highways. The fact that they affect alike shippers in interstate and intrastate commerce in large number within as well as without the state is a safeguard against their abuse.
"[i]n the absence of national legislation especially covering the subject of interstate commerce, the State may rightly prescribe uniform regulations adapted to promote safety upon its highways and the conservation of their use, applicable alike to vehicles moving in interstate commerce and those of its own citizens."
Morris v. Duby, 274 U. S. 135, 274 U. S. 143. This formulation has been repeatedly affirmed, Clark v. Poor, 274 U. S. 554, 274 U. S. 557; Sprout v. South Bend, 277 U. S. 163, 277 U. S. 169; Sproles v. Binford, 286 U. S. 374, 286 U. S. 389, 390; cf. Morf v. Bingaman, 298 U. S. 407, and never disapproved. This Court has often sustained the exercise of that power although it has burdened or impeded interstate commerce. It has upheld weight limitations lower than those presently imposed, applied alike to motor traffic moving interstate and intrastate. Morris v. Duby, supra; Sproles v. Binford, supra. Restrictions favoring passenger traffic over the carriage of interstate merchandise by truck have been similarly sustained, Sproles v. Binford, supra; Bradley v. Public Utilities Comm'n, 289 U. S. 92, as has the exaction of a reasonable fee for the use of the highways. Hendrick v. Maryland, 235 U. S. 610; Kane v. New Jersey, 242 U. S. 160; Interstate Busses Corp. v. Blodgett, 276 U. S. 245; Morf v. Bingaman, supra; cf. Ingels v. Morf, 300 U. S. 290.
In each of these cases, regulation involves a burden on interstate commerce. But so long as the state action does not discriminate, the burden is one which the Constitution permits because it is an inseparable incident of the exercise of a legislative authority which, under the Constitution, has been left to the states.
burdens imposed on it by state regulation, otherwise permissible, are too great, and may, by legislation designed to secure uniformity or in other respects to protect the national interest in the commerce, curtail to some extent the state's regulatory power. But that is a legislative, not a judicial, function, to be performed in the light of the Congressional judgment of what is appropriate regulation of interstate commerce, and the extent to which, in that field, state power and local interests should be required to yield to the national authority and interest. In the absence of such legislation, the judicial function, under the commerce clause as well as the Fourteenth Amendment, stops with the inquiry whether the state legislature, in adopting regulations such as the present, has acted within its province, and whether the means of regulation chosen are reasonably adapted to the end sought. Sproles v. Binford, supra; Stephenson v. Binford, 287 U. S. 251, 287 U. S. 272.
within the scope of its power, fairly debatable questions as to its reasonableness, wisdom and propriety are not for the determination of courts, but for the legislative body, on which rests the duty and responsibility of decision. Jacobson v. Massachusetts, 197 U. S. 11, 197 U. S. 30; Laurel Hill Cemetery v. San Francisco, 216 U. S. 358, 216 U. S. 365; Price v. Illinois, 238 U. S. 446, 238 U. S. 451; Hadacheck v. Sebastian, 239 U. S. 394, 239 U. S. 408-414; Thomas Cusack Co. v. Chicago, 242 U. S. 526, 242 U. S. 530; Euclid v. Ambler Realty Co., 272 U. S. 365, 272 U. S. 388; Zahn v. Board of Public Works, 274 U. S. 325, 274 U. S. 328; Standard Oil Co. v. Marysville, 279 U. S. 582, 279 U. S. 584. This is equally the case when the legislative power is one which may legitimately place an incidental burden on interstate commerce. It is not any the less a legislative power committed to the states because it affects interstate commerce, and courts are not any the more entitled, because interstate commerce is affected, to substitute their own for the legislative judgment. Morris v. Duby, supra, 274 U. S. 143; Sproles v. Binford, supra, 286 U. S. 389, 286 U. S. 390; Minnesota Rate Cases, supra, 230 U. S. 399, 230 U. S. 400; Smith v. St. Louis & S.W. R. Co., 181 U. S. 248, 181 U. S. 257; Reid v. Colorado, 187 U. S. 137, 187 U. S. 152; New York ex rel. Silz v. Hesterberg, 211 U. S. 31, 211 U. S. 42, 211 U. S. 43.
record whether it is possible to say that the legislative choice is without rational basis. Standard Oil Co. v. Marysville, supra; Borden's Farm Products Co. v. Ten Eyck, 297 U. S. 251, 297 U. S. 263; s.c. 11 F.Supp. 599, 600. Not only does the record fail to exclude that possibility, but it shows affirmatively that there is adequate support for the legislative judgment.
In view of the varying conditions of traffic, and lack of uniformity in highway construction in the several States, no uniform gross weight limitations are here recommended for general adoption throughout the country.
need for rigid supervisory enforcement, is for the legislature, and we cannot say that its preference for the one over the other is in any sense arbitrary or unreasonable. The choice is not to be condemned because the legislature prefers a workable standard, less likely to be violated than another under which the violations will probably be increased but more easily detected. It is for the legislature to say whether the one test or the other will, in practical operation, better protect the highways from the risk of excessive loads.
If gross load weight is adopted as the test, it is obvious that the permissible load must be somewhat lighter than if the axle or wheel weight test were applied. With the latter, the gross weight of a loaded motor truck can never exceed twice the axle and four times the wheel limit. But the fact that the rear axle may and often does support as much as 70% or 80% of the gross load, with wheel weight in like proportion, requires that a gross load limit be fixed at considerably less than four times the permissible wheel limit.
uncontradicted testimony that approximately 60% of the South Carolina standard paved highways in question were built without a longitudinal center joint which has since become standard practice, the portion of the concrete surface adjacent to the joint being strengthened by reinforcement or by increasing its thickness, and that, owing to the distribution of the stresses on concrete roads when in use, those without a center joint have a tendency to develop irregular longitudinal cracks. As the concrete in the center of such roads is thinner than that at the edges, the result is that the highway is split into two irregular segments, each with a weak inner edge which, according to the expert testimony, is not capable of supporting indefinitely wheel loads in excess of 4,200 pounds.
load limit the load on the rear axle would be about 8,000 pounds, it might, as we have seen, also conclude that the danger point would then have been reached in the case of some 1,200 miles of concrete state roads constructed without a center joint.
that, if all the states had adopted a single standard, none, in the light of its own experience and in the exercise of its judgment upon all the complex elements which enter into the problem, could change it.
Only a word need be said as to the width limitation. While a large part of the highways in question are from 18 to 20 feet in width, approximately 100 miles are only 16 feet wide. On all, the use of a 96-inch truck leaves but a narrow margin for passing. On the road 16 feet wide it leaves none. The 90-inch limitation has been in force in South Carolina since 1920, and the concrete highways which it has built appear to be adapted to vehicles of that width. The record shows without contradiction that the use of heavy loaded trucks on the highways tends to force other traffic off the concrete surface onto the shoulders of the road adjoining its edges, and to increase repair costs materially. It appears also that, as the width of trucks is increased, it obstructs the view of the highway, causing much inconvenience and increased hazard in its use. It plainly cannot be said that the width of trucks used on the highways in South Carolina is unrelated to their safety and cost of maintenance, or that a 90-inch width limitation, adopted to safeguard the highways of the State, is not within the range of the permissible legislative choice.
"§ 4. Weight. -- No person shall operate on any highway any motor truck or semi-trailer truck [sic] whose gross weight, including load, shall exceed 20,000 pounds."
"§ 6. Width. -- No person shall operate on any highway any motor truck or semi-trailer motor truck whose total outside width, including any part of body or load, shall exceed 90 inches."
State regulations affecting interstate commerce, whose purpose or effect is to gain for those within the state an advantage at the expense of those without, or to burden those out of the state without any corresponding advantage to those within, have been thought to impinge upon the constitutional prohibition even though Congress has not acted. Hall v. DeCuir, 95 U. S. 485, 95 U. S. 497-498; Wabash, St. L. & P. R. Co. v. Illinois, 118 U. S. 557, 118 U. S. 575-578; Bowman v. Chicago & N.W. R. Co., 125 U. S. 465, 125 U. S. 498; Western Union Telegraph Co. v. James, 162 U. S. 650, 162 U. S. 659, with which compare Western Union Telegraph Co. v. Pendleton, 122 U. S. 347, 122 U. S. 358; Foster-Fountain Packing Co. v. Haydel, 278 U. S. 1, with which compare Geer v. Connecticut, 161 U. S. 519, and New York ex rel. Silz v. Hesterberg, 211 U. S. 31; Baldwin v. Seelig, 294 U. S. 511, 294 U. S. 524; see Western Union Telegraph Co. v. Kansas, 216 U. S. 1, 216 U. S. 27 et seq.
Underlying the stated rule has been the thought, often expressed in judicial opinion, that, when the regulation is of such a character that its burden falls principally upon those without the state, legislative action is not likely to be subjected to those political restraints which are normally exerted on legislation where it affects adversely some interests within the state. See Cooley v. Board of Port Wardens, 12 How. 299, 315; Gilman v. Philadelphia, 3 Wall. 713, 70 U. S. 731; Escanaba Co. v. Chicago, 107 U. S. 678, 107 U. S. 683; Lake Shore & M. S. R. Co. v. Ohio ex rel. Lawrence, 173 U. S. 285, 173 U. S. 294; cf. Pound v. Turck, 95 U. S. 459, 95 U. S. 464; Gloucester Ferry Co. v. Pennsylvania, 114 U. S. 196, 114 U. S. 205; Robbins v. Shelby County Taxing District, 120 U. S. 489, 120 U. S. 499.
See Illinois Central R. Co. v. Illinois, 163 U. S. 142; Cleveland, C.C. & St.L. R. Co. v. Illinois, 177 U. S. 514; Mississippi Railroad Comm'n v. Illinois Central R. Co., 203 U. S. 335; Atlantic Coast Line R. Co. v. Wharton, 207 U. S. 328; Herndon v. Chicago, R.I. & P. R. Co., 218 U. S. 135; Chicago, B. & Q. R. Co. v. Railroad Commission, 237 U. S. 220; St. Louis & San Francisco R. Co. v. Public Service Comm'n, 254 U. S. 535. Cf. Gladson v. Minnesota, 166 U. S. 427; Lake Shore & M. S. R. Co. v. Ohio ex rel.Lawrence, 173 U. S. 285; Gulf, C. & S.F. R. Co. v. Texas, 246 U. S. 58, where statutes requiring local service no greater than necessary for fair accommodation of local needs were held constitutional. Although the states have usually been allowed to impose burdens on interstate railroads in the interest of local safety, Smith v. Alabama, 124 U. S. 465; Nashville, C. & St.L. R. Co. v. Alabama, 128 U. S. 96; New York, N.H. & H. R. Co. v. New York, 165 U. S. 628; Chicago, R.I. & P. R. Co. v. Arkansas, 219 U. S. 453; St. Louis, I. M. & S. R. Co. v. Arkansas, 240 U. S. 518; cf. Hennington v. Georgia, 163 U. S. 299, an unnecessarily harsh restriction, even though it is in the interest of safety, has been held to be unconstitutional. Seaboard Air Line R. v. Blackwell, 244 U. S. 310.
Among the state regulations materially affecting interstate commerce which this Court has upheld, Congress not acting, are those which sanction obstructions in navigable rivers, Willson v. Black-Bird Creek Marsh Co., 2 Pet. 245; Ex parte McNiel, 13 Wall. 236; Pound v. Turck, 95 U. S. 459; Wilson v. McNamee, 102 U. S. 572; Huse v. Clover, 119 U. S. 543; cf. Sands v. Manistee River Improvement Co., 123 U. S. 288; approve the erection of bridges over navigable streams, Gilman v. Philadelphia, 3 Wall. 713; Escanaba Co. v. Chicago, 107 U. S. 678; Cardwell v. American River Bridge Co., 113 U. S. 205; Willamette Iron Bridge Co. v. Hatch, 125 U. S. 1; Lake Shore & M. S. R. Co. v. Ohio, 165 U. S. 365; require payment of fees as an incident to use of harbors, Cooley v. Board of Port Wardens, 12 How. 299; Steamship Co. v. Joliffe, 2 Wall. 450; Anderson v. Pacific Coast S.S. Co., 225 U. S. 187; Clyde Mallory Lines v. Alabama ex rel. State Docks Comm'n, 296 U. S. 261; cf. Mobile County v. Kimball, 102 U. S. 691; control the location of docks, Cummings v. Chicago, 188 U. S. 410; impose wharfage charges, Packet Co. v. Keokuk, 95 U. S. 80; Packet Co. v. Catlettsburg, 105 U. S. 559; Transportation Co. v. Parkersburg, 107 U. S. 691; Ouachita Packet Co. v. Aiken, 121 U. S. 444; establish inspection and quarantine laws, Turner v. Maryland, 107 U. S. 38; Morgan's S.S. Co. v. Louisiana Board of Health, 118 U. S. 455; Patapsco Guano Co. v. North Carolina Board of Agriculture, 171 U. S. 345; Rasmussen v. Idaho, 181 U. S. 198; Smith v. St. Louis & S.W. R. Co., 181 U. S. 248; Reid v. Colorado, 187 U. S. 137; New Mexico ex rel. McLean Co. v. Denver & R.G. R. Co., 203 U. S. 38; Asbell v. Kansas, 209 U. S. 251; Red "C" Oil Mfg. Co. v. Board of Agriculture, 222 U. S. 380; Savage v. Jones, 225 U. S. 501; Pure Oil Co. v. Minnesota, 248 U. S. 158; Mintz v. Baldwin, 289 U. S. 346; cf. Railroad Co. v. Husen, 95 U. S. 465; Minnesota v. Barber, 136 U. S. 313; Brimmer v. Rebman, 138 U. S. 78, and regulate the taking or exportation of domestic game, Geer v. Connecticut, 161 U. S. 519; New York ex rel. Silz v. Hesterberg, 211 U. S. 31; cf. Foster-Fountain Packing Co. v. Haydel, 278 U. S. 1, 278 U. S. 13, holding invalid a local regulation ostensibly designed to conserve a natural resource but whose purpose and effect were to benefit Louisiana enterprise at the expense of businesses outside the state.

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