Opinion ID: 1969662
Heading Depth: 1
Heading Rank: 5

Heading: DOT's Refusal to Close Other Crossings.

Text: The ALJ ruled that Soo Line had failed to justify the closing of an existing crossing in view of the substantial use of these crossings by vehicular and pedestrian traffic. Soo Line complains that this conclusion was erroneous. The City contends that the closing of other crossings should not have been considered in this proceeding. It also argues that there was substantial evidence to support the agency's decision not to close other crossings in the City. We defer to an administrative agency's interpretation of a statute that it administers. Furry v. Iowa Dep't of Transp., 464 N.W.2d 869, 873 (Iowa 1991). Additionally, we are bound by the DOT's findings of fact if substantial evidence supports them. Id. at 871. Initially, we hold that the DOT properly considered Soo Line's request that other crossings be closed. During the several years that Soo Line and the City discussed the possibility of placing a crossing at First Avenue West, Soo Line had consistently requested the closing of one or more of the existing crossings. The closing of an existing crossing had always been part of the dispute between these parties. It was not a separate and distinct issue as the City contends; the benefits and burdens of a new crossing and the existing crossings were interrelated. Consequently, we find no error in the DOT's consideration of this issue. Nor do we find a lack of evidence to support the factual findings made by the agency on this issue. At the hearing, Soo Line argued that an additional crossing in the City's downtown area would prevent it from operating its railroad because it would be unable to comply with state and federal requirements. See Iowa Code § 327G.32 (1991) (railroad may not block a highway crossing more than ten minutes); 49 C.F.R. parts 171-174, 179 (1993) (regulations on hazardous material car spacing and movement), part 228 (hours of service rules), part 232 (air brake testing requirements). Soo Line suggested closing one of the six existing crossings so that it would have an adequate length of track uninterrupted by crossings to perform the operations required by law. Soo Line also argued that seven crossings within one mile were too many and that at least one crossing should be closed. The City opposed closing any crossing, arguing that the public use justified all six crossings and that closing them would not solve the railroad's operational problems. It also represented that it would not object to the railroad's blockage of crossings in the downtown area beyond the ten-minute limit when necessary to comply with federal regulations. The ALJ found that all the crossings had substantial vehicular and pedestrian traffic. In addition, the evidence showed that only the closing of the crossing at Tenth Avenue East or Fourth Avenue West would significantly address the operational concerns raised by Soo Line. Tenth Avenue East is an extra-wide thoroughfare that is heavily traveled. It extends northerly along the east boundary of the City, functioning as a bypass of the City for vehicles approaching from the east and traveling to the north. It serves the City's high school and athletic fields, the City's water pollution control facilities, the City's public works facilities and a large baseball and softball complex. These facts support the DOT's decision that closing the crossing at Tenth Avenue East was not a viable option. The need for the crossing at Fourth Avenue West is more debatable. Although that crossing is currently well traveled, the City anticipates that some traffic on Fourth Avenue West will use First Avenue West once a crossing is opened on that street. The City argues that to open First Avenue West and close Fourth Avenue West would simply move the point of congestion from Fourth Avenue West to First Avenue West. On the other hand, Soo Line's need to eliminate this crossing was also debatable. Soo Line's witnesses testified that some of the operational problems Soo Line would experience if a new crossing is added could be reduced by closing the Fourth Avenue West crossing. However, a witness for Soo Line testified that the railroad could still function, although at a higher cost, if a new crossing was allowed and no existing crossing was closed. Although the question is close, we conclude there was substantial evidence to support the DOT's decision not to close the Fourth Avenue West crossing. Finally, we consider Soo Line's argument that an existing crossing should be closed simply because seven crossings within one mile are too many. As this case aptly shows, the benefits and burdens of a crossing vary depending on the use of the street and tracks at that particular crossing. Although proximity to other crossings is a relevant consideration, we see no reason to limit the number of municipal crossings based solely on this factor.