60 Minn. 461 | Minn. | 1895
On proceedings had upon the complaint of Elias Steenerson the railroad and warehouse commission of this state made an order reducing the rates to be charged by the Great Northern Railway Company for carrying grain from Crookston to terminal points, and the company appealed to the district court for Ramsey county. Thereupon the Northern Pacific and two other railway companies made application to the court to file complaints in intervention. The first-named company, in the hands of receivers appointed by the federal courts in proceedings to foreclose certain mortgages, was allowed to file its complaint and to intervene. The applications of the other companies were denied. This appeal is from an order of the court overruling Steenerson’s demurrer to the intervenor’s complaint, and squarely raises the question of the right of a competing line of road to filé a complaint in intervention, and of the commission or the court, on appeal, to allow intervention, at its discretion, and thus to put such road in position to take part in the trial, and, perhaps, control proceedings brought against another carrier to compel a reduction of rates for the carriage of passengers or freight, or to remedy some other matter within the purview of the law establishing the railroad and warehouse commission. And incidentally, but quite naturally, it opens up a field for inquiry and conjecture as to how far intervention by other railway companies which may be affected in a business way by a reduction of rates, one road after and through another, may logically be carried.
The legislation now under consideration is Laws 1887, c. 10, with the amendment, Laws 1891, c. 106, granting the right of an appeal
It is enacted in section 2 of chapter 10 (G. S. 1894, § 380) that all charges made by all common carriers who are subject to the provisions of the law shall be equal and reasonable. Unequal and unreasonable charges are prohibited. The manifest purpose of this; statute was to prevent unjust discrimination between persons as; well as places in the matter of rates and charges, and at the same-time to regulate and control these rates and charges by compelling-reductions in case the commission should be of opinion that those1 made and demanded were excessive and unreasonable. By the1 amendatory statute of 1891 any railroad company or common carrier' affected by any order of the commission, except such as are purely administrative, is given the right of appeal to the district court. It is expressly provided that this right is in addition to all existing legal and equitable remedies; and, where the cause is brought on for trial in such court, all questions are to be tried de novo, full jurisdiction and power being granted and conferred in every respect.,
It is argued that bymeans of the allegations found in the complaint in intervention the Northern Pacific Company has brought itself directly within the spirit and the terms of the statutory enactment providing for and regulating the subject of intervention in this state.
But it is urged that, even if the authority is not vested in the commission to permit intervention, the court, on appeal, has unlimited discretion and the broadest powers on this subject; that it is authorized to adopt its own methods of procedure, and to prosecute its inquiries as it deems needful to form a just judgment; and this is partly true. To establish the claim that the commission may permit interested parties to intervene, we are cited to the following cases determined by the interstate commission: Poughkeepsie Iron Co. v. New York C. & H. R. Ry. Co., 4 Inters. Com. B. 195; McMillan v. Western Classification Committee, Id. 276; Hamilton v. Chattanooga, R. & C. R. Co., Id. 686; Eau Claire Board of Trade v. Chicago, M. & St. P. Ry. Co., 5 Inters. Com. R. 264; Chamber of Commerce v. Great Northern Ry. Co., Id. 571. Of these cases the last two are the only ones which have a bearing on the question now before us, and in neither was the point made that the right of intervention, or the power of the commission to allow parties to intervene, did not exist. And on reading the cases just mentioned we discover that the controversies were not over the reasonableness of rates and charges for the carriage of freight, but related wholly to alleged unjust discriminations between places. The real issue could not be disposed of without bringing in other parties. Here no claim is made that there has been an unjust discrimination between places, but a different one, — that the Great Northern road is charging an excessive and unreasonable rate for transportation of grain oyer its line.
But in an earlier case,—Hurlburt v. Lake Shore & M. S. Ry. Co., 2 Inters. Com. R. 122, a proceeding to correct a classification of freight made by the initial carrier, which freight had to pass over the lines of several other carriers before reaching its destination,— it was held proper to make the other carriers parties, but that if they were not, the proceeding was not defective, and that an order for correction could be made effectual. In speaking of the interest which the subsequent carriers had in a proceeding against the first, Judge Cooley, who spoke for the commission, said: “The interest is so apparent that if any of such carriers had appeared and asked to
We do not think that any of the cases cited sustain the claim made for them by respondent’s counsel, and it seems to us that much is said in the Hurlburt Case in opposition. But, in any event, it is to be remembered that proceedings under both statutes — federal and state — are special in their nature, not involving personal or property rights as they are involved in civil actions inter partes, but may be brought by any citizen in the interest of the public to prohibit a common carrier from making unreasonable or discriminating charges for the performance of a duty imposed on him by law. And, further than this, it is to be observed that neither of these commissions is a judicial body or tribunal in any sense. Their rulings cannot have, and are nowhere given, the force of judicial utterances. Their orders or reports are at most prima facie evidence in the courts of the matters therein stated, and no effort is made to enforce them except through the courts. The proceedings had to regulate rates and charges and to prevent discrimination never become judicial until they pass out of the control of the commission.
But the real question before the railroad and warehouse commission and that before the district court on appeal was the same, and it was a very simple one. It was whether the charges made by this defendant, a common carrier by rail, for the transportation of grain between certain points on its line of road, were reasonable, as they are required by law to be, every unreasonable charge for such service being prohibited and declared unlawful by subdivision a, § 2, of the state law. (G. S. 1894, § 380, subd. a.) If the charges made by this road were unreasonable, and hence prohibited, when all question of a competing line is excluded from consideration, can they be held to be reasonable because, when involuntarily imposed upon the competitor, they are unreasonable as to him? If the competing
Again, if we allow the doctrine of intervention once to gain a foothold in these proceedings, where would it end, and where could
And there is another very serious objection to permitting intervention. If a common carrier be allowed to intervene in proceedings to compel another to reduce its rates and charges, such intervenor becomes a defendant with all the rights that term implies. He is not controlled or bound by the wishes or acts of his codefendant in any way, but pursues his own course in the various steps of the proceedings. Let us suppose that the same rates and charges are fixed for both carriers by the commission, or by the district court, and are satisfactory to one but not to the other, and the latter chooses to appeal. Must the carrier who wishes to' acquiesce and abide by the determination of the commission or the court as to what are reasonable rates and charges for services rendered by him also
The court below seems to have thought that subdivision f of section 1 of the amendatory act of 1891 (G. S. 1894, § 886, subd. f) had some bearing on this question. We are of the opinion that the. “no higher, no lower,” feature of the subdivision is capable of but one construction. It was not the intention of the legislature to prohibit carriers from making reductions in tariffs at will, providing such reductions were uniform, — what are frequently called “horizontal reductions.” This provision was designed, evidently, to thwart every attempt to evade the law or an order made under it by the raising of rates, fares, or charges or the changing of classifications at some stations on a line of road, or to the detriment of some persons, or, what would be the same thing in effect, by lowering or changing, either at other stations or for the benefit of other persons, after an order had been promulgated fixing rates and charges. The result of such raising or lowering would be to unjustly discriminate as between persons and places, and this the statute will not tolerate.
By subdivision d, § 3, of the amendatory act (G. S. 1894, § 393, subd. d), it is provided that “any” railroad or common carrier “affected” may appeal to the district court from orders made by the commission. If the quoted words are to be construed literally, the right of appeal is conferred upon roads and carriers without regard to whether or not they have become parties through intervention or
In deciding, as we do, that there can be no intervention in these cases, and that it is the carrier against whom the proceedings are had whose reasonable rates and charges are to be determined, we do not hold that the commission, or the district court on appeal, should adopt a narrow rule for the ascertainment of what are reasonable rates and charges for the defendant whose case is being inquired into. The investigation and inquiry should be conducted in a liberal spirit, and the rates, fares, charges, or classifications fixed after a careful and comprehensive examination of all the facts and circumstances surrounding the situation. It need not necessarily be confined to matters wholly pertaining to the road or carrier made such defendant, but the question to be disposed of should be considered with reference to the public, and the business interests involved, and among these interests may be the. fact that there is a competition which should not be stifled. To allow competitors to become parties and to control these proceedings is to say that rail
Order reversed.
My objection to the opinion of the court is rather to the way in which the case is put than to the result reached. Briefly and generally stated, my views are these: I think it is inaccurate, as well as misleading, to liken these proceedings to an action inter partes. There is no litigation, and hence no subject of litigation, in the sense in which those terms are used in actions between parties. The rules as to parties, pleadings, and practice which obtain in such actions have no application to these proceedings, except as far as expressly so provided by the statute itself. In fact there are no parties to the proceedings, and no parties interested in the result in the sense in which those terms are understood in actions inter partes. These proceedings involve merely a public question, to wit, a public charge, in which every person, as a member of the public, and not otherwise, is more or less interested. The party making the complaint may not, and under the statute need not, have a dollar of direct and immediate interest in the question, but is merely the agent of the public to bring it before the commissioners. The question is essentially a legislative one, and I think the commissioners, or the court on appeal (which determines the question de novo in the same manner as the commissioners in the first instance), are wholly untrammeled by the rules of pleading, practice, evidence, or parties which obtain in judicial actions, and
I have no doubt of the right of the commissioners, and, on appeal, of the courts, to allow any shipper or other individual or any carrier who has any special interest in the question to come before them, and produce any evidence or arguments which would aid in the determination of the question. How far they are legally required to hear evidence and arguments presented by others than the formal complainant and the particular railway company complained of is uot involved here, but I do say that they would not be properly performing their whole duty in the premises if they refused to hear any material evidence offered by any person pecuniarily interested in either side of the question. While it is undoubtedly true that the financial necessities of the Northern Pacific Railroad Company is by no means decisive of what would be a reasonable rate to be charged by any other railway company, or even by the Northern Pacific Railroad Company itself, yet the fact that that road is a competitor of the G-reat Northern Railway Company, and that, as a business proposition, fixing rates for the latter will fix the rates for the former, Is a consideration that the commissioners, or the court on appeal, should take into account, and is a good reason why they should allow the Northern Pacific Company to come before them, and present such arguments or evidence as they have to offer pertinent to the-question.
As the rules of pleading or of “intervention” in actions have no' application to these proceedings, the so-called “complaint in intervention” of the Northern Pacific Railroad Company, considered as a pleading, had, in my opinion, no proper place in the proceedings,' but, considered merely as an argument or statement of the evidence