In 1944 the United States indicted the South-Eastern Underwriters Association, its nearly 200 member stock fire insurance companies, and 27 individuals in federal district court. The indictment charged two conspiracies under the Sherman Anti-Trust Act: one to restrain interstate trade by fixing arbitrary and non-competitive premium rates and agents' commissions on fire and allied lines of insurance in Alabama, Florida, Georgia, North Carolina, South Carolina, and Virginia, and a second to monopolize that trade in the same states. The member companies controlled 90 percent of the fire insurance and allied lines sold by stock companies in those six states. The conspiracies operated through continuing agreements effectuated by the association, including boycotts, coercion, and intimidation that cut non-members off from reinsurance, disparaged their services, punished independent agents who represented them, and threatened customers who bought from them.
The District Court sustained a demurrer to the indictment on the ground that the business of insurance is not commerce. The case came to the Supreme Court on direct appeal by the Government from the District Court's judgment dismissing the indictment under the Criminal Appeals Act. The indictment described the full range of insurance activities, including negotiations before contract execution and the transactions necessary to perform the contracts, all of which formed a single continuous chain many of which moved across state lines.
Of the nearly 200 combining companies only 18 maintained home offices in one of the six states; 127 were headquartered in New York, Pennsylvania, or Connecticut. Between 1931 and 1941 local agents in the six states collected $488,000,000 in premiums, most of which was transmitted to out-of-state home offices, while $215,000,000 in losses was paid by checks or drafts sent from those home offices to local agents for delivery to policyholders. Local agents solicited prospects, used policy forms supplied by home offices, and reported regularly by mail, telephone, or telegraph; special traveling agents supervised local operations. The policies covered not only fixed local property but also steamboats, tugs, ferries, shipyards, warehouses, terminals, trucks, buses, railroad equipment, and movable goods carried in interstate and foreign commerce.
The modern insurance business held assets exceeding $37,000,000,000 and collected annual premiums exceeding $6,000,000,000. Premiums flowed from policyholders in every state into companies concentrated in eastern financial centers for investment, and payments on policies flowed back to the many states where policyholders resided, creating a continuous stream of interstate collections, payments, documents, and communications essential to negotiation and performance of the contracts.