goldberg sweet argued october decided january light recent technological changes creating billions possible electronic paths interstate telephone call take one point another paths often indirect typically bear relation state boundaries virtually impossible trace record illinois passed telecommunications excise tax act tax act inter alia imposes tax gross charges interstate telecommunications originated terminated state charged illinois service address regardless particular call billed paid provides credit taxpayer upon proof another state taxed call requires telecommunications retailers like appellant gte sprint communications corporation sprint collect tax consumers illinois trial held tax violates commerce clause federal constitution class action brought appellant illinois residents subject paid tax appellee director state department revenue various telephone carriers including sprint director however state reversed ruling tax satisfies test set forth complete auto transit brady progeny determining compliance commerce clause parties concede tax satisfies first prong complete auto test applied activity substantial nexus illinois held illinois tax violate commerce clause since satisfies final three prongs complete auto test pp tax fairly apportioned internally consistent since structured every state impose identical tax interstate phone calls charged service address one state tax call accordingly multiple taxation result tax also externally consistent even though assessed gross charges interstate activity since reasonably limited business activity triggers taxable event light practical economic effects interstate activity assessed individual consumer collected retailer accompanies retail purchase interstate call tax economic effect like sales tax reasonably reflects way consumers purchase interstate calls permissibly based gross charges even though retail purchase triggers simultaneous activity several purely local event moreover risk multiple taxation low since two types state like illinois taxes interstate calls billed address state taxes calls billed paid state substantial enough nexus tax interstate call event actual multiple taxation precluded tax act credit provision furthermore apportionment formula based mileage geographic division interstate calls produce insurmountable administrative technical barriers since calls involve intangible movement electronic impulses vast computerized networks pp tax discriminate interstate commerce allocating larger share burden interstate calls since burden falls consumers rather consumers since unlike mileage state highways exact path thousands electronic signals neither traced recorded american trucking scheiner distinguished pp tax fairly related services state provides benefit taxpayers services limited provided telecommunications equipment used interstate calls also include ability subscribe telephone service rent telephone equipment address within state well police fire protection general services pp marshall delivered opinion rehnquist brennan white blackmun kennedy joined part stevens joined parts iii joined stevens post post filed opinions concurring part concurring judgment scalia filed opinion concurring judgment post together gte sprint communications sweet director illinois department revenue et also appeal walter smith argued cause appellants briefs appellants goldberg et al john roberts john jacobs william clark laura digiantonio richard wiley robert weinberg filed briefs appellant gte sprint communications andrew frey argued cause appellees brief neil hartigan attorney general illinois robert ruiz solicitor general terry moritz special assistant attorney general alan fn william lane filed brief national taxpayers union amicus curiae urging reversal briefs amici curiae urging affirmance filed national conference state legislatures et al benna ruth solomon joyce holmes benjamin james flug martin lobel mci telecommunications frederic lane william barker walter nagel justice marshall delivered opinion appeal must decide whether tax interstate telecommunications imposed state illinois violates commerce clause hold cases come us backdrop massive technological legal changes telecommunications industry years ago interstate telephone calls relayed electric wires transferred human operators working switchboards days past today computerized network electronic paths transmits thousands electronic signals per minute complex system microwave radios fiber optics satellites cables doj report brief mci telecommunications corporation amicus curiae fully connected network offers billions paths one point another doj report direct path full working efficiently computer system instantly activates another path signals may even change paths middle telephone call without perceptible interruption brief national conference state legislatures et al amici curiae thus path taken electronic signals often indirect typically bears relation state boundaries number possible paths nature electronic signals system computerized switching make virtually impossible trace record actual paths taken electronic signals create individual telephone call explosion new telecommunications technologies breakup monopoly led number revise taxes impose telecommunications industry illinois passed illinois telecommunications excise tax act tax act rev ch tax act imposes tax gross charge interstate telecommunications originated terminated illinois hereinafter charged illinois service address regardless telephone call billed paid tax act imposes identical tax intrastate telecommunications order prevent actual taxation tax act provides credit taxpayer upon proof taxpayer paid tax another state telephone call triggered illinois tax facilitate collection tax act requires telecommunications retailers like appellant gte sprint communications corporation sprint collect tax consumer charged call service address eight months tax act passed jerome goldberg robert mctigue illinois residents subject paid telecommunications taxes retailers filed class action complaint circuit cook county illinois named defendants thomas johnson director department revenue state illinois director various telephone carriers including sprint complaint alleged tax act violates commerce clause constitution sprint director seeking declaration tax act unconstitutional commerce clause director filed motion summary judgment sprint carriers sprint responded motion summary judgment director goldberg mctigue turn filed motion summary judgment director sprint briefing hearing trial declared unconstitutional found complete auto transit brady progeny control litigation test originated complete auto state tax withstand scrutiny commerce clause tax applied activity substantial nexus taxing state fairly apportioned discriminate interstate commerce fairly related services provided state view trial tax act satisfy last three prongs complete auto test illinois attempting tax entire cost interstate act takes place partially illinois tax terms fairly apportioned discriminates interstate commerce related services provided illinois reasons act must fail goldberg johnson ch cook county app juris statement discrimination third prong complete auto test held tax act constitutionally valid since tax imposed intrastate well interstate telecommunications turning fourth prong held tax fairly related services provided illinois explained illinois provided services benefits respect portion interstate call occurring within state benefits afforded facilitating interstate telecommunication speculative override substantial benefits extended illinois found tax act satisfied requirements complete auto illinois concluded violate commerce clause sprint goldberg mctigue appealed noted probable jurisdiction affirm ii frequently occasion consider whether state taxes violate commerce clause wavering doctrinal lines auto cases reflect tension two competing concepts view interstate commerce enjoys free trade immunity state taxation view businesses engaged interstate commerce may required pay way complete auto supra see also american trucking scheiner nn commonwealth edison montana blackmun dissenting complete auto sought resolve tension specifically rejecting view tax interstate commerce time placing limits state taxation interstate commerce see also commonwealth edison supra since complete auto decision applied test numerous occasions apply illinois tax parties agree illinois substantial nexus interstate telecommunications reached tax act begin inquiry apportionment second prong complete auto test appellants argue telecommunications tax fairly apportioned illinois taxes gross charge telephone call interpret prior cases specifically pipe line calvert central greyhound lines mealey western live stock bureau revenue require illinois tax fraction gross charge telephone call based miles electronic signals traveled within illinois portion total miles traveled director turn argues illinois apportions telecommunications tax carefully limiting type interstate telephone calls reaches analyzing contentions mindful central purpose behind apportionment requirement ensure state taxes fair share interstate transaction see container america franchise tax long held constitution imposes single apportionment formula therefore declined undertake essentially legislative task establishing single constitutionally mandated method taxation see also moorman mfg bair instead determine whether tax fairly apportioned examining whether internally externally consistent scheiner supra armco hardesty container supra internally consistent tax must structured every state impose identical tax multiple taxation result thus internal consistency test focuses text challenged statute hypothesizes situation passed identical statute conclude tax act internally consistent every state taxed interstate phone calls charged service address one state tax interstate telephone call appellant sprint argues decision armco dictates different standard contends armco evaluating internal consistency challenged tax must also compare tax similar identical taxes imposed sprint misreads armco determine internal consistency one state tax comparing slightly different taxes imposed validity state taxes turn solely shifting complexities tax codes armco supra see also moorman supra event extent passed tax statutes create risk multiple taxation reach issue external consistency test turn external consistency test asks whether state taxed portion revenues interstate activity reasonably reflects component activity taxed container supra thus examine business activity triggers taxable event practical economic effect tax interstate activity appellants first contend tax assessed gross charge interstate activity reasonably reflect business activity therefore must unapportioned director argues tax act economic effect sales tax based gross charge telephone call see mcgoldrick coal mining sales tax cf holmes mcnamara use tax tyler pipe industries washington dept revenue gross receipts believe director better argument tax issue many characteristics sales tax assessed individual consumer collected retailer accompanies retail purchase interstate telephone call even though retail purchase purely local event since triggers simultaneous activity several cf mcgoldrick supra tax act reasonably reflects way consumers purchase interstate telephone calls director contends illinois telecommunications tax fairly apportioned tax act reaches interstate calls originated terminated illinois charged illinois service address appellants goldberg mctigue contrast raise specter many assessing tax gross charge interstate telephone call appellants exaggerated extent tax act creates risk multiple taxation doubt telephone call electronic signals merely pass sufficient nexus tax call see air lines mahin state nexus tax airplane based solely flight state airlines minnesota jackson concurring also doubt termination interstate telephone call provides substantial enough nexus state tax call see national bellas hess department revenue illinois receipt mail provides insufficient nexus believe two nexus substantial enough tax consumer purchase interstate telephone call first state like illinois taxes origination termination interstate telephone call charged service address within state second state taxes origination termination interstate telephone call billed paid within state see ark code ann supp rev code recognize service address billing location taxpayer different interstate telephone calls subject multiple taxation limited possibility multiple taxation however sufficient invalidate illinois statutory scheme see container moorman extent telecommunications taxes pose risk multiple taxation credit provision contained tax act operates avoid actual multiple taxation holmes supra taxing scheme fairly apportioned provides credit use tax sales taxes paid see also tyler pipe supra overlooked moreover external consistency test essentially practical inquiry previous cases endorsed apportionment formulas based upon miles bus train truck traveled within taxing state cases dealt movement large physical objects identifiable routes practicable keep track distance actually traveled within taxing state see central greyhound dispute feasibility apportioning tax see also western live stock cases contrast involve intangible movement electronic impulses computerized networks apportionment formula based mileage geographic division individual telephone calls produce insurmountable administrative technological barriers see scheiner apportionment require state adopt tax pose genuine administrative burdens thus find significant illinois method taxation realistic legislative solution technology telecommunications industry sum hold tax act fairly apportioned economic effect like sales tax risk multiple taxation low actual multiple taxation precluded credit provision moreover conclude mileage geographic division individual telephone calls infeasible turn next third prong complete auto test prohibits state imposing discriminatory tax interstate commerce appellants argue irrespective identical tax gross charge intrastate telephone calls tax act discriminates interstate commerce allocating larger share tax burden interstate telephone calls rely scheiner stated guarantee free trade area among commerce clause deeper meaning may implicated even though state provisions allocate tax burdens insiders outsiders manner facially discriminatory scheiner supra scheiner held pennsylvania flat taxes operation trucks pennsylvania highways imposed disproportionate burden interstate trucks compared intrastate trucks interstate trucks traveled fewer miles per year pennsylvania highways illinois tax differs flat taxes found discriminatory scheiner two important ways first whereas pennsylvania flat taxes burdened truckers difficulty effecting legislative change economic burden illinois telecommunications tax falls illinois telecommunications consumer insider presumably able complain change tax illinois political process purpose commerce clause protect state residents state taxes second whereas pennsylvania flat taxes possible measure activities within state truck mileage state highways tallied reported apportioned exact path thousands electronic signals neither traced recorded therefore conclude tax act discriminate favor intrastate commerce expense interstate commerce finally reach fourth prong complete auto test namely whether illinois tax fairly related presence activities taxpayer within state see holmes purpose test ensure state tax burden placed upon persons benefit services provided state commonwealth edison appellants severely limit test focusing solely services illinois provides telecommunications equipment located within state accept view tax may imposed particular interstate transaction need limited cost services incurred state account particular activity contrary interstate commerce may required contribute cost providing governmental services including services arguably receives direct benefit ibid emphasis original fourth prong complete auto test thus focuses wide range benefits provided taxpayer precise activity connected interstate activity issue indeed last term holmes supra noted taxpayer receipt police fire protection use public roads mass transit advantages civilized society satisfied requirement tax fairly related benefits provided state taxpayer light foregoing little difficulty concluding tax act fairly related benefits received illinois telephone consumers benefits illinois provides limited exact services provided equipment used interstate telephone call illinois telephone consumers also subscribe telephone service illinois rent telephone equipment illinois service address receive police fire protection well general services provided state illinois iii reasons stated hold telecommunications tax imposed tax act consistent commerce clause fairly apportioned discriminate interstate commerce fairly related services state illinois provides taxpayer judgment illinois hereby affirmed footnotes signal traveling one microwave tower another may pass state never touch anything satellite transmission may leave caller building travel outer space remain received satellite dish building housing receiving party brief national conference state legislatures et al amici curiae see american tel tel supp dc summarily aff sub nom maryland see ark code ann supp state supp haw rev stat supp stat subd supp stat ann supp ohio rev code ann supp okla tit supp tex tax code ann supp rev code stat municipalities begun impose taxes telephone calls see greeley colorado ordinance tit et seq wheat ridge colorado ordinance los angeles california ordinance section part tax imposed upon act privilege originating state receiving state interstate telecommunications person state rate gross charge telecommunications purchased retail retailer person gross charge defined amount paid telephone call less charges certain types special equipment issue addition meaning ordinarily popularly ascribed without limitation messages information transmitted use local toll wide area telephone service private line services channel services telegraph services teletypewriter computer exchange services cellular mobile telecommunications service specialized mobile radio stationary two way radio paging service form mobile portable communications transmission messages information electronic similar means among points wire cable laser microwave radio satellite similar facilities although defined tax act understand term service address mean address telephone equipment located telephone number assigned see roger sweet since replaced thomas johnson director department revenue goldberg mctigue also alleged tax act violates due process equal protection clauses abandoned claims appeal brief appellants goldberg mctigue parties conceded trial illinois substantial nexus interstate telecommunications reached tax act collect call one example telephone call originates another state terminates illinois charged illinois service address complete auto transit brady overruled spector motor service prohibited state taxation privilege business within state tax reached interstate commerce complete auto rejected spector formalistic approach stating nder present state law spector rule come known relationship economic realities seek establish consistent rational method inquiry focusing practical effect challenged tax commonwealth edison montana quoting mobil oil commissioner taxes vermont see holmes mcnamara use tax wardair canada florida dept revenue sales tax fuel used international commerce commonwealth edison montana supra severance tax maryland louisiana use tax mobil oil commissioner taxes vermont corporate income tax washington dept revenue association washington stevedoring business occupation tax taxpayers split billing service addresses two different face risk multiple taxation limited number interstate telephone calls example company arkansas headquarters paid telephone bills illinois subsidiary two state taxes paid telephone calls made illinois subsidiary head office arkansas location calls terminate billed paid arkansas also originate charged illinois service address likewise collect call arkansas headquarters illinois subsidiary taxed collect call originate billed paid arkansas also terminate charged illinois service address noncollect calls arkansas headquarters illinois subsidiary however captured illinois tax act likewise arkansas statute tax interstate calls made illinois subsidiary arkansas many commerce clause decisions concern state taxes movement goods instrumentalities interstate transportation see american trucking scheiner trucks japan line county los angeles cargo containers complete auto transit brady motor carriers pipe line calvert oil pipelines central greyhound lines mealey buses cf western live stock bureau revenue tax gross receipts intrastate train travel valid like tax interstate train travel sprint alleges capable administratively billing one state tax single interstate communication brief appellant gte sprint communications statement however tells us sprint computerized billing system capable adding another line consumers bills sprint explain however keep track record exact paths mileage thousands electronic impulses per minute years ago considered rejected certain state taxes interstate telecommunications see cooney mountain tel tel western union tel pennsylvania ratterman western union tel cf pensacola tel western union tel telegraph industry interstate commerce act congress state regulation cases considered telecommunications technology distantly related modern telecommunications technology decided auto era held view interstate commerce taxed see supra justice stevens concurring part concurring judgment reasons concluding illinois tax discriminate interstate commerce different expressed part opinion unlike believe illinois may discriminate among residents placing heavier tax engage interstate commerce merely engage local commerce see ante purpose commerce clause protect state residents state taxes fact holding clear departure precedents see tyler pipe industries washington dept revenue invalidating manufacturing tax discriminated manufacturers sold wholesale state sold wholesale state bacchus imports dias invalidating tax exemption locally produced alcoholic beverages case brought local wholesalers boston stock exchange state tax invalidating securities transfer tax discriminated state residents sold state rather state surely state tax shipment goods intrastate shipment goods interstate violate commerce clause appellants discrimination claim best illustrated example call originating terminating illinois costs taxed full value second call originating illinois terminating indiana costs taxed full value rate illinois may properly tax entire first call technically may tax portion second call jurisdiction namely intrastate portion call say example imposing identical tax two calls illinois imposed disproportionate economic burden interstate call see american trucking scheiner invalidating flat tax imposed disproportionate economic burden interstate commerce argument however overlooks true overall incidence illinois tax although illinois taxes entirety every call charged illinois number tax part calls received illinois number charged elsewhere thus although illinois taxes entire call taxes part reciprocal call rate illinois receives two calls combined precisely amount receives one purely intrastate call taxing half relevant universe interstate calls full value illinois achieves economic result taxing calls half value achieve result interstate phone calls taxed lower effective rate intrastate calls accordingly bear proportional tax burden exception part join opinion perhaps sales attributes tax act persuaded dismiss discrimination claim focusing solely sales impact local residents see ante state may assess sales tax entire value purchased item even though amount value added appellees contended throughout litigation tax involved viewed sales tax cost phone call state refused characterize tax instead concluding tax assessed interstate commerce goldberg johnson per curiam although analysis properly informed sales attributes tax question ultimately challenge state characterization tax rest holding recharacterization tax sales tax thus insufficient say response discrimination argument advanced appellants tax burden falls illinois consumer tax like sales tax similar burden nondiscriminatory premise review tax act applies interstate activity must go responding appellants contention act imposes disproportionate burden interstate commerce half interstate calls taxed half taxed effective rate hand intrastate calls taxed analysis obviated statement agree doubt termination interstate telephone call provides substantial enough nexus state tax call ante one state interstate commerce flows may constitutionally tax commerce mean another state may make gap taxing share well first state share thus even indiana constitutionally tax mere termination call illinois still may tax portion call jurisdiction justice concurring part concurring judgment agree illinois telecommunications excise tax act violate commerce clause join parts iii opinion write separately explain join parts first still unsure need authority applying internal consistency test state taxes challenged commerce clause see american trucking scheiner dissenting therefore join application test tax act ante second agree justice stevens state may discriminate among residents placing heavier tax engage interstate commerce merely engage local commerce ante stevens concurring part concurring judgment accordingly join statement purpose commerce clause protect state residents state taxes ante justice scalia concurring judgment remain view state taxes facially discriminate interstate commerce violate negative commerce clause see tyler pipe industries washington dept revenue scalia concurring part dissenting part american trucking scheiner scalia dissenting illinois telecommunications excise tax assessed upon intrastate interstate calls precisely rate poses constitutional difficulty