Plаintiffs and three other incorporators filed Articles of Incorporation for the Sisseton State Bank in the office of the Superintendent of Banks, together with an application for the approval thereof. The defendants, who constitute the State Banking Commission, denied the application for thе “reason that it appears the public convenience and necessity do not justify the organization of said new bank and that the said City of Sisseton and adjacent territory are now provided with adequate banking facilities”. In this proceeding for mandamus the action of the Commission was reviewed by the trial cоurt and a judgment entered commanding the defendants to approve the proposed Articles of Incorporation. This appeal by the Commission is grounded on the claim that the trial court did not confine its review to the question of whether the Commission had abused its discretion in denying the incorporators’ aрplication for approval, but went further and substituted its determination for that of the Commission.
State banks are engaged in a business subject to legislative control under the police power. Shaw v. Brisbine,
The legislature could have retained in itself the authority to make this fact determination. The impracticability of such retention is obvious. As an alternative it could properly create an administrative, investigatory, fact finding agency to perform this function, administrative and not judicial in nature. Weer v. Page,
While the statutes under consideration do not provide for an appeal to the courts from the decision of the Commission a judicial review of its proceedings may be had by mandamus. However' when the action under judicial scrutiny involves the exercise of discretion by an administrative officer or agency, the judicial review is limited to
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ascertaining whether that discretion has been abused. State ex rel. Cook v. Richards,
Responsibility for the findings of fact rests on the Commission. The function and inquiry of the Court are limited, in respect of factual findings, to ascertaining whether the findings are supported by competent evidence. It is the function of the Commission and not of the court on review to weigh the evidence and to draw the inferences therefrоm. Craig v. Jensen,
The legislature has not attempted to define the phrase “public conveniencе and necessity”. Nor has it declared where or how or .under what circumstances the public convenience and necessity would or would not be promoted by the establishment of a bank. It has left that determination to the Commission. Admittedly this is a difficult determination for anyone but obviously it is one which is better made by persоns possessed of experience in the field of banking. The qualifications prescribed for membership on the Commission seem to recognize this. In making this determination the quoted words must be given a meaning consistent with the purpose of the legislative enactment. It is clear that the legislature in entering upon the regulаtion and control of the banking business was primarily concerned with the creation and maintenance of adequate and sound banking facilities and services. To the extent that
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these goals are achieved the public is protected from the evils of unsound and imprudent banking. While the adequacy of existing banking facilities may be considered in the determination of public convenience and necessity it does not follow that because there are adequate banking facilities that public convenience and necessity justifying another bank cannot exist. If such were the case the statute would tend to deter сompetition and foster monopoly. We are satisfied that this was not the intent of the legislature. State ex rel. Dybdal v. State Sec. Comm., supra; Moran v. Nelson,
Sisseton, the county seat of Roberts County, has only one bank — the Roberts County National Bank. Plaintiffs in their presentation of this matter to the Commission and before the Court charge that the management of the existing bank, a family enterprise, has used its position as the only bank in the community to improperly promote other businesses in which it is interested. The Commission after investigation admitted there was basis for some of these assertions but did not find the situation as serious as charged. Complaint was also made of the servicе charges levied by the bank but the Commission found these to be such as are approved by the United States Comptroller of Currency, under whose supervision the bank is operated. It is obvious that the incorporators and their supporters are displeased with the manner in which the present bank conducts its business, and that this feeling in some measure motivates the pending application.
Plaintiffs also contend that much banking business of the area was being done out of the community and even out *260 of the state. The Commission ascertained that this was not substantial in amount and resulted largely from the limited loaning capacity of locаl institutions and the nearness of some of these outside banks to the community. They also pointed to the apparent prosperous condition of the banking business in the area but no figures relative to this feature appear in the record. It is apparent that Sisseton has grown and expanded in late yeаrs, but it does not appear that the rate of this growth has been more than normal.
The Commission from its records and investigations had before it these facts, which it also presented to the Court in this matter. In 1921 there were 698 banks in South Dakota and now there are 219 including branch banks and offices. The greater part of this reduction in number resulted from closures occurring before 1930. Between January 14, 1924 and June 1940 Roberts County had 21 banks and 16 of these closed because of insolvency or lack of business. Before June 14, 1924 there were four banks in Sisseton and on that date one of them closed. Thereafter two of the remaining banks consolidated and later merged with the remaining bank. This merged remaining bank failed and there was no bank in Sisseton until 1933 when the present bank moved there from White Rock, South Dakota. This bank has been in continuous operation since its incorporation in 1896. It now has about 1,500 depositors with deposits of about $2,500,000 and loans and discounts of $1,267,000. It has a capital of $25,000 and surplus and undivided profits of $190,000. In 1950 the county had a population of 14,896 and Sisseton a population of 2,873. A major portion of the Sisseton-Wahpeton Indian Reservation is in Roberts County. The county has an Indian population of 1,865 with between 700 and 800 in Sisseton. In South Dakota there is one bank for each 3;823 of population and within Roberts County there is one for each 2,979. At the present time and for more than the last ten years there have been five banks in the county, all of which are independent banks. These banks other than the one in Sisseton, with their town, distance from Sisseton and approximate deposits are as follows: Summit, 25 miles, $700,000; Wilmot, 26 miles, $1,200,000; New Effington, 19 miles, $957,000; Rosholt, 25 miles, $2,100,000. *261 During the last ten years all of these banks have had a growth in deposits in roughly the same proportions but it does not appear that this growth has been more than normal. The average ratio of deposits to loans and 'discounts is about 35% over the state. In Roberts County this rаtio is exceeded. In addition to the banks in the county there is one at Browns Valley, Minnesota, a mile and one-half east of Roberts County and fifteen miles from Sisseton.
The main industry of Roberts County is a diversified agriculture. The eastern three-fourths of the county contains the better land while that in the western one-fourth is less productive. The towns with banks are distributed throughout the better land area with Sisseton the farthest west, about two miles from the less productive area of the county. The members of the Commission all interviewed numerous residents of Sisseton and reported that a large majority of them did not favor the establishment of a new bank. Somе of those interviewed were in favor of such action for varying personal reasons. The members of the Commission have all had long and varied experience in the business of banking in South Dakota and they expressed the opinion that the establishment of the proposed bank would result in two weak banks in the cоmmunity and that the size of the city and the volume of the banking business in the city and in its adjacent territory did not warrant or justify an additional bank. Many other facts and circumstances were before the Commission and the Court. In view of the limited scope of judicial review in matters of this kind it is unnecessary to detail them. We believe that thе facts set out sustain the determination made by the Commission.
In argument plaintiffs support their position by statements of this court in State v. Scougal,
It follows that the judgment appealed from must be and is reversed.