A company operating a line of railroad in this state shall not abandon, close for traffic, or remove a spur, industrial, team, switching, or side track which has been used directly by the shipping public for loading or unloading freight without first obtaining the approval of the commissioner of transportation. The commissioner shall consider, if submitted, whether the abandonment, closure, or removal will not substantially reduce the level of safety, health, or welfare of the railroad's customers, its employees or the public.