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  5. 815 F.2d 1495 (1987)
 

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

Nos. 84-1177, 84-1641, 84-1642, 85-1115, 85-1124, 85-1148, 85-1151, 85-1183, 85-1204 and 85-1300.

815 F.2d 1495 (1987)

The WESTERN UNION TELEGRAPH COMPANY, Petitioner, v. FEDERAL COMMUNICATIONS COMMISSION and United States of America, Respondents, Aeronautical Radio, Inc., Pacific Bell, et al., Centel Corporation, Teltec Saving Communications Co., et al., GTE Corporation, Dow Jones & Company, Inc., ROLM Corporation, Roseville Telephone Company, et al., RCA Global Communications, Inc., Department of Public Utility Control of the State of Connecticut, MCI Telecommunications Corporation, Ad Hoc Telecommunications Users Committee, Telesphere Network, Inc., U.S. Telephone, Inc., American Telephone and Telegraph Company, Satellite Business Systems, United Telephone System, Inc., Ameritech Operating Companies, et al., United States Transmission Systems, Inc., Mountain States Telephone and Telegraph Co., et al., ITT Communications Services, Inc., Intervenors. The WESTERN UNION TELEGRAPH COMPANY, Petitioner, v. FEDERAL COMMUNICATIONS COMMISSION and United States of America, Respondents, MCI Telecommunications Corporation, Bell Operating Companies, Illinois Bell Telephone Co., et al., American Telephone and Telegraph Company, the Mountain States Telephone and Telegraph Co., et al., RCA Global Communications, Inc., ITT Communications Services, Inc., GTE Sprint Communications Corporation, Pacific Bell and Southern New England Telephone Company, Satellite Data Broadcast Networks, Inc., Satellite Business Systems, United Telephone System, Inc., Dow Jones & Company, Inc., the Competitive Telecommunications Association, American Satellite Company, Intervenors. MCI TELECOMMUNICATIONS CORPORATION, Petitioner, v. FEDERAL COMMUNICATIONS COMMISSION and United States of America, Respondents, Illinois Bell Telephone Co., et al., Mountain States Telephone and Telegraph Co., et al., American Telephone and Telegraph Company, GTE Sprint Communications Corporation, Western Union Telegraph Company, Bell Operating Companies, Satellite Data Broadcast Networks, Inc., Dow Jones & Company, Inc., United Telephone System, Inc., Satellite Business Systems, American Satellite Company, ITT Communications Services, Inc., Intervenors. The WESTERN UNION TELEGRAPH COMPANY, Petitioner, v. FEDERAL COMMUNICATIONS COMMISSION and United States of America, Respondents, ITT Communications Services, Inc., MCI Telecommunications Corporation, Bell Operating Companies, GTE Sprint Communications Corporation, Roseville Telephone Company, et al., American Telephone and Telegraph Company, Satellite Business Systems, American Satellite Company, Mountain States Telephone and Telegraph Co., et al., US Telecom, Inc., Intervenors. MCI TELECOMMUNICATIONS CORPORATION, Petitioner, v. FEDERAL COMMUNICATIONS COMMISSION and United States of America, Respondents, ITT Communications Services, Inc., Bell Operating Companies, GTE Sprint Communications Corporation, Roseville Telephone Company, et al., American Telephone and Telegraph Company, Satellite Business Systems, American Satellite Company, Mountain States Telephone and Telegraph Co., et al., Intervenors. MCI TELECOMMUNICATIONS CORPORATION, Petitioner, v. FEDERAL COMMUNICATIONS COMMISSION and United States of America, Respondents, Bell Operating Companies, GTE Sprint Communications Corporation, Roseville Telephone Company, et al., American Telephone and Telegraph Company, Ameritech Operating Companies, Western Union Telegraph Company, American Broadcasting Companies, et al., National Association of Broadcasters, GTE Corporation, ITT Communications Services, Inc., Intervenors. MCI TELECOMMUNICATIONS CORPORATION, Petitioner, v. FEDERAL COMMUNICATIONS COMMISSION and United States of America, Respondents, Bell Operating Companies, GTE Sprint Communications Corporation, Roseville Telephone Company, et al., American Telephone and Telegraph Company, Ameritech Operating Companies, Western Union Telegraph Company, Ad Hoc Telecommunications Users Committee, Public Utilities Commission on the State of California, GTE Corporation, ITT Communications Services, Inc., Intervenors. MCI TELECOMMUNICATIONS CORPORATION, Petitioner, v. FEDERAL COMMUNICATIONS COMMISSION and United States of America, Respondents, Ameritech Operating Companies, Ad Hoc Telecommunications Users Committee, Bell Operating Companies, U.S. Telephone, Inc., ITT Communications Services, Inc., Intervenors. MCI TELECOMMUNICATIONS CORPORATION, Petitioner, v. FEDERAL COMMUNICATIONS COMMISSION and United States of America, Respondents, Western Union Telegraph Company, Ameritech Operating Companies, Bell Operating Companies, ITT Communications Services, Inc., Intervenors. MOUNTAIN STATES TELEPHONE AND TELEGRAPH COMPANY, et al., Petitioners, v. FEDERAL COMMUNICATIONS COMMISSION and United States of America, Respondents, MCI Telecommunications Corporation, Ameritech Operating Companies, American Telephone and Telegraph Company, Western Union Telegraph Company, Roseville Telephone Company, et al., Competitive Telecommunications Association, Bell Operating Companies, US Telecom, Inc., ITT Communications Services, Inc., Ad Hoc Telecommunications Users Committee, Intervenors.

United States Court of Appeals, District of Columbia Circuit.

Decided April 3, 1987.

Attorney(s) appearing for the Case

William J. Byrnes, with whom Michael H. Bader, Kenneth A. Cox, Theodore D. Kramer and John M. Scorce, Washington, D.C., were on the brief, for MCI Telecommunications Corp., petitioner in Nos. 84-1642, 85-1124, 85-1146, 85-1151, 85-1183 and 85-1204, and intervenor in Nos. 84-1177, 84-1641, 85-1115 and 85-1300. Robert Michelson and Thomas R. Gibbon, Washington, D.C., also entered an appearance for MCI Telecommunications Corp.

L. Andrew Tollin, with whom Robert B. McKenna, Jr. and Kenneth D. Patrich, Washington, D.C., were on the brief, for Mountain States Telephone and Telegraph Co., et al., petitioners in No. 85-1300 and intervenors in Nos. 84-1177, 84-1641, 84-1642, 85-1115 and 85-1124.

H. Richard Juhnke, Joel Yohalem, Arthur H. Simms, Lawrence P. Keller, Thomas J. Casey and Terrence J. Leahy, Washington, D.C., were on the brief, for the Western Union Telegraph Co., petitioner in Nos. 84-1177, 84-1641 and 85-1115, and intervenor in Nos. 84-1642, 85-1148, 85-1151, 85-1204 and 85-1300. Peter G. Wolfe also entered an appearance for the Western Union Telegraph Co.

Linda L. Oliver, Counsel, F.C.C., with whom Jack D. Smith, Gen. Counsel, Daniel M. Armstrong, Associate Gen. Counsel, John E. Ingle, Counsel, F.C.C., and Robert B. Nicholson and Andrea Limmer, Attys., Dept. of Justice, Washington, D.C., were on the brief, for respondents. Bruce E. Fein, Counsel, F.C.C., and Nancy C. Garrison and Catherine G. O'Sullivan, Attys., Dept. of Justice, Washington, D.C., also entered appearances for respondents.

Alfred Winchell Whittaker, Washington, D.C., with whom Thomas J. Reiman, Chicago, Ill., was on the brief for intervenors, Ameritech Operating Companies, et al., in Nos. 84-1177, 84-1641, 84-1642, 85-1148, 85-1151, 85-1183, 85-1204 and 85-1300.

Jules M. Perlberg, Jonathan S. Hoak, Chicago, Ill., and J. Richard Devlin, Long Valley, N.J., were on the brief for intervenor, American Telephone and Telegraph Company, in Nos. 84-1177, 84-1641, 84-1642, 85-1115, 85-1124, 85-1148 and 85-1151. Lowell Miller, Basking Ridge, N.J., also entered an appearance for intervenor, American Telephone and Telegraph Co.

Raymond F. Scully, Alan B. Sternstein and Katherine I. Hall, Washington, D.C., were on the brief for intervenor, Bell Operating Companies, in Nos. 84-1177, 84-1641, 84-1642, 85-1115, 85-1124, 85-1148, 85-1151, 85-1183 and 85-1204.

Peter Tannenwald, Washington, D.C., entered an appearance for intervenor, Teltec Saving Communications Co., in No. 84-1177.

Theodore D. Frank, Washington, D.C., entered an appearance for intervenor, Centel Corp., in No. 84-1177.

Thomas Pace, Princeton, N.J., entered an appearance for intervenor, Dow Jones and Co., Inc., in Nos. 84-1177, 84-1641 and 84-1642.

James R. Hobson, Mitchell F. Brecher, and Richard McKenna, Washington, D.C., entered appearances for intervenor, GTE Corp., in Nos. 84-1178, 85-1148 and 85-1151.

Mary Jo Manning, Washington, D.C., entered an appearance for intervenor, ROLM Corp., in No. 84-1177.

Gary C. Tucker, Michael L. Glaser, Denver, Colo., and Francis E. Fletcher, Jr., Washington, D.C., entered appearances for intervenors, Roseville Telephone Co., et al., in Nos. 84-1177, 85-1115, 85-1124, 85-1148 and 85-1151.

Alexander P. Humphrey, Washington, D.C., and Robert F. Heath, Princeton, N.J., entered appearances for intervenor, RCA Global Communications, Inc., in Nos. 84-1177 and 84-1641.

William B. Gundling, Hartford, Conn., entered an appearance for intervenor, Dept. of Public Utility Control of the State of Conn., in No. 84-1177.

John A. Ligon, New York City, entered an appearance for intervenor, U.S. Transmission Systems, Inc., in Nos. 84-1177, 84-1641, 85-1115, 85-1124, 85-1151, 85-1183 and 85-1204.

Joseph M. Kittner, James S. Blaszak and Timothy J. Cooney, Washington, D.C., entered appearances for intervenor, Ad Hoc Telecommunications Users Committee, in Nos. 84-1177, 85-1151 and 85-1183.

Leo I. George, Washington, D.C., entered an appearance for intervenors, Telesphere Network, Inc. and U.S. Telephone, Inc., in No. 84-1177.

Kevin H. Cassidy, McLean, Va., Jeffrey Matsuura, Washington, D.C., J. Manning Lee, McLean, Va., William E. Willis, New York City, Margaret K. Pfeiffer and Robert B. Bell, Washington, D.C., entered appearances for intervenor, Satellite Business Systems, in Nos. 84-1177, 84-1641, 84-1642, 85-1115 and 85-1124.

Carolyn C. Hill, Washington, D.C., entered an appearance for intervenor, United Telephone System, Inc., in Nos. 84-1177, 84-1641 and 84-1642.

John L. Bartlett, Michael Yourshaw and Robert J. Butler, Washington, D.C., entered appearances for intervenors, Aeronautical Radio, Inc., and Satellite Data Broadcast Network, Inc., in No. 84-1177.

Liam S. Coonan, Washington, D.C., William C. Sullivan, Topeka, Kan., and Linda S. Legg, St. Louis, Mo., entered appearances for intervenor, Southwestern Bell Telephone Co., in Nos. 84-1177, 84-1641 and 84-1642.

Michael B. Fingerhut and Leon M. Kestenbaum, Washington, D.C., entered appearances for intervenor, GTE Sprint Communications Corp., in Nos. 84-1641, 84-1642, 85-1115, 85-1124, 85-1148 and 85-1151.

Randall B. Lowe and Thomas K. Crowe, Washington, D.C., entered appearances for intervenor, Competitive Telecommunications Ass'n, in No. 84-1641.

Joan M. Griffin entered an appearance for intervenor, American Satellite Co., in Nos. 84-1641, 84-1642, 85-1115 and 85-1124.

Daniel A. Huber, Washington, D.C., entered an appearance for intervenor, U.S. Telecom, Inc., in Nos. 85-1115 and 85-1183.

Henry L. Baumann and Julian L. Shepard, Washington, D.C., entered appearances for intervenor, National Ass'n of Broadcasters, Inc., et al., in No. 85-1148.

Joseph DeFranco and Howard Monderer, Washington, D.C., entered appearances for intervenors, American Broadcasting Companies, Inc., et al., in No. 85-1148.

J. Calvin Simpson and Peter G. Fairchild, San Francisco, Cal., entered appearances for intervenor, Public Utilities Com'n of the State of Cal., in No. 85-1151.

Before WALD, Chief Judge, and BORK and BUCKLEY, Circuit Judges.

Opinion for the Court filed by Circuit Judge BORK.

BORK, Circuit Judge:

We are called on to review the validity of three orders entered by the Federal Communications Commission. The orders abrogated certain procedural provisions of a settlement agreement, thus clearing the way for the Commission more promptly to approve changes in rates that had been set initially in that same agreement. We find that the Commission...

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