This cart was originally meant to have the solid shelf on the bottom and the other shelf, (now on the bottom), set up to hold regular or legal length Pendaflex file folders. I switched the shelves, and put the more solid one on top to hold my home made scrap rack. For the bottom, I made a shelf out of a piece of plywood that was here at the house, notching out the corners to accommodate the 4 legs, and covering it with denim cut from an old pair of hubby's jeans. Having the top shelf lower serves many purposes. It keeps the rack at my working level when I'm sitting, the tops of the legs hold the pages back and support them, and the entire thing rolls out of the way underneath my work surface (which is a 10 foot length of kitchen counter top).