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  5. 729 F.2d 811 (1984)
 

WESTERN UNION TELEGRAPH CO. v. F.C.C.

Nos. 82-1502, 82-1658, 82-1698 to 82-1700, 82-1746, 82-1759, 83-1461 and 83-1526.

729 F.2d 811 (1984)

WESTERN UNION TELEGRAPH COMPANY, Petitioner, v. FEDERAL COMMUNICATIONS COMMISSION and The United States of America, Respondents, Western Union International, Inc., RCA Global Communications, Inc., TRT Telecommunications Corporation, Consortium Communications International, Inc., International Relay, Inc., Intervenors. TRT TELECOMMUNICATIONS CORPORATION, Petitioner, v. FEDERAL COMMUNICATIONS COMMISSION and The United States of America, Respondents, Consortium Communications International, Inc., International Relay, Inc., Western Union Telegraph Company, Western Union International, Inc., RCA Global Communications, Inc., FTC Communications, Inc., Graphnet, Inc., Mobile Marine Radio, Inc., Intervenors. ITT WORLD COMMUNICATIONS INC., Petitioner, v. FEDERAL COMMUNICATIONS COMMISSION and The United States of America, Respondents, International Relay, Inc., Consortium Communications International, Inc., Western Union Telegraph Company, RCA Global Communications, Inc., FTC Communications, Inc., Graphnet, Inc., Mobile Marine Radio, Inc., TRT Telecommunications Corporation, Western Union International, Inc., Intervenors. WESTERN UNION INTERNATIONAL, INC., Petitioner, v. FEDERAL COMMUNICATIONS COMMISSION and The United States of America, Respondents, International Relay, Inc., Consortium Communications International, Inc., Western Union Telegraph Company, RCA Global Communications, Inc., FTC Communications, Inc., Graphnet, Inc., Mobile Marine Radio, Inc., TRT Telecommunications Corporation, Intervenors. WESTERN UNION INTERNATIONAL, INC., Petitioner, v. FEDERAL COMMUNICATIONS COMMISSION and The United States of America, Respondents, Consortium Communications International, Inc., Western Union Telegraph Company, International Relay, Inc., Mobile Marine Radio, Inc., FTC Communications, Inc., Graphnet, Inc., TRT Telecommunications Corporation, RCA Global Communications, Inc., Intervenors. ITT WORLD COMMUNICATIONS, INC., Petitioner, v. FEDERAL COMMUNICATIONS COMMISSION and The United States of America, Respondents, Consortium Communications International, Inc., Western Union Telegraph Company, International Relay, Inc., Graphnet, Inc., RCA Global Communications, Inc., TRT Telecommunications Corporation, FTC Communications, Inc., Intervenors. RCA GLOBAL COMMUNICATIONS, INC., Petitioner, v. FEDERAL COMMUNICATIONS COMMISSION and The United States of America, Respondents, Western Union Telegraph Company, Consortium Communications International, Inc., International Relay, Inc., Graphnet, Inc., TRT Telecommunications Corporation, Western Union International, Inc., FTC Communications, Inc., Intervenors. GRAPHNET, INC., Petitioner, v. FEDERAL COMMUNICATIONS COMMISSION and The United States of America, Respondents, International Relay, Inc., Western Union Telegraph Company, TRT Telecommunications Corporation, Consortium Communications International, Inc., ITT World Communications, Inc., Mobile Marine Radio, Inc., RCA Global Communications, Inc., Intervenors. ITT WORLD COMMUNICATIONS, INC., Petitioner, v. FEDERAL COMMUNICATIONS COMMISSION and The United States of America, Respondents, International Relay, Inc., Western Union Telegraph Company, TRT Telecommunications Corporation, Consortium Communications International, Inc., RCA Global Communications, Inc., Intervenors.

United States Court of Appeals, District of Columbia Circuit.

Decided March 7, 1984.

As Amended March 15, 1984.

Attorney(s) appearing for the Case

E. Edward Bruce, Thomas William Mayo and Lloyd D. Young, Washington, D.C., were on the statement in lieu of brief for TRT Telecommunications Corporation, petitioner in No. 82-1658 and intervenor in Nos. 82-1502, 82-1698, 82-1699, 82-1700, 82-1746, 82-1759, 83-1461 and 83-1526.

Robert E. Conn, Washington, D.C., entered an appearance for Western Union International, Inc., petitioner in Nos. 82-1699 and 82-1700 and intervenor in Nos. 82-1502, 82-1658, 82-1698 and 82-1759.

Jane E. Mago, Counsel, F.C.C., Washington, D.C., with whom Bruce E. Fein, Gen. Counsel, Daniel M. Armstrong, Associate Gen. Counsel, John E. Ingle, Nancy E. Stanley, Counsel, F.C.C., John J. Powers, III and William J. Roberts, Attorneys, Dept. of Justice, Washington, D.C., were on the brief for respondents in all cases. Linda L. Oliver, Stephen A. Sharp, Lisa B. Margolis, Counsel, F.C.C., and Barry Grossman, Attorney, Dept. of Justice, Washington, D.C., also entered appearances for respondents.

Alan Y. Naftalin, Washington, D.C., with whom Margot Smiley Humphrey, Washington, D.C., Francis J. DeRosa and Charles M. Lehrhaupt, New York City, were on the brief for RCA Global Communications, intervenor in Nos. 82-1502, 82-1658, 82-1698, 82-1699, 82-1700, 82-1746, 83-1461 and 83-1526, and petitioner in No. 82-1759.

Ian D. Volner and David M. Rickless, Washington, D.C., were on the brief for Consortium Communications International, Inc., intervenor in Nos. 82-1502, 82-1658, 82-1698, 82-1699, 82-1700, 82-1746, 82-1759, 83-1461 and 83-1526.

Steven A. Levy, Washington, D.C., was on the brief for International Relay, Inc., intervenor in Nos. 82-1502, 82-1658, 82-1698, 82-1699, 82-1700, 82-1746, 82-1759, 83-1461 and 83-1526.

Roger P. Newell, New York City, entered an appearance for FTC Communications, Inc., intervenor in Nos. 82-1502, 82-1658, 82-1698, 82-1699, 82-1700, 82-1746 and 82-1759.

Martin W. Bercovici, Washington, D.C., entered an appearance for Mobile Marine Radio, Inc., intervenor in Nos. 82-1658, 82-1698, 82-1699, 82-1700 and 83-1461.

William R. Weissman, Washington, D.C., with whom Joel Yohalem and H. Richard Juhnke, Washington, D.C., were on the brief for petitioner, Western Union Telegraph Company, in No. 82-1502 and intervenor in Nos. 82-1658, 82-1698, 82-1699, 82-1700, 82-1746, 82-1759, 83-1461 and 83-1526. William Warfield Ross and Arthur H. Simms, Washington, D.C., also entered appearances for Western Union Telegraph Company.

Thomas J. Casey, Washington, D.C., with whom Bruce D. Sokler and Stanford B. Weinstein, Washington, D.C., were on the brief for Graphnet, Inc., petitioner in No. 83-1461 and intervenor in Nos. 82-1658, 82-1698, 82-1699, 82-1700, 82-1746 and 82-1759.

John S. Kinzey, Jr., New York City, with whom Grant S. Lewis, Joseph J. Jacobs and John Ligon, New York City, were on the brief for ITT World Communications, Inc., petitioner in Nos. 82-1698, 82-1746 and 83-1526, and intervenor in No. 83-1461. Samuel J. Abate, Jr., New York City, and Eugene R. Fidell, Washington, D.C., also entered appearances for ITT World Communications, Inc.

Before TAMM, EDWARDS and GINSBURG, Circuit Judges.

Opinion for the Court filed by Circuit Judge HARRY T. EDWARDS.

HARRY T. EDWARDS, Circuit Judge:

This case involves the first major challenge to the Federal Communications Commission's ("FCC's") implementation of the Record Carrier Competition Act of 1981 ("the Act"). 47 U.S.C. § 222 (Supp. V 1981). Prior to passage of the Act, the record carrier communications market1 was substantially...

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