Slip Op. 16 - 108

UNITED STATES COURT OF INTERNATIONAL TRADE

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AK STEEL CORPORATION, ALLEGHENY LUDLUM, :

LLC d/b/a ATI FLAT ROLLED PRODUCTS,

and UNITED STEELWORKERS, :

:

Plaintiffs,

:

 v.

:

UNITED STATES INTERNATIONAL TRADE Consolidated

COMMISSION, : Court No. 14-00220

Defendant, :

-and- :

THYSSENKRUPP ELECTRICAL STEEL GmbH, ABB :

INC., NIPPON STEEL & SUMITOMO METAL

CORPORATION, and JFE STEEL CORPORATION, :

:

Intervenor-Defendants.

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Opinion & Order

[Plaintiffs’ motion for judgment on agency record,

 contesting negative material-injury determinations

 based thereon, denied; action dismissed.]

Decided: November 23, 2016

David A. Hartquist, John M. Herrmann, Grace W. Kim, and

Benjamin Blase Caryl, Kelley Drye & Warren LLP, Washington, D.C.,

for the plaintiffs.

Dominic L. Bianchi, General Counsel, Andrea C. Casson,

Assistant General Counsel for Litigation, and Rhonda M. Hughes,

Attorney-Advisor, Office of General Counsel, U.S. International

Trade Commission, Washington, D.C., for the defendant.
Consol. Court No. 14-00220 Page 2

J. Kevin Horgan and Marc E. Montalbine, deKieffer & Horgan,

PLLC, Washington, D.C., for intervenor-defendant ThyssenKrupp

Electrical Steel GmbH.

John D. Greenwald and Ulrika K. Swanson, Cassidy Levy Kent

(USA) LLP, Washington, D.C., for intervenor-defendant ABB Inc.

Donald Harrison, Gibson, Dunn & Crutcher LLP, Washington,

D.C., for intervenor-defendant Nippon Steel & Sumitomo Metal

Corporation.

Robert Huey, Gregory Husisian, David Hickerson, and Morgan J.

West, Foley Lardner LLP, Washington, D.C., for intervenor-defendant

JFE Steel Corporation.

AQUILINO, Senior Judge: This consolidated action

challenges the final negative determinations of the United States

International Trade Commission (“ITC” or “Commission”) that

imported grain oriented electrical steel (“GOES”) did not

materially injure, or threaten material injury to, the U.S.

domestic industry. See GOES From Germany, Japan, and Poland, Inv.

Nos. 731-TA-1233, -1234, -1236 (USITC Pub. 4491, Sept. 2014), and

GOES From China, Czech Republic, South Korea, and Russia, Inv. Nos.

701-TA-505 and 731-TA-1231, -1232, -1235, -1237 (USITC Pub. 4500,

Nov. 2014), published respectively at 79 Fed.Reg. 54744 (Sept. 12,

2014) and 79 Fed.Reg. 66739 (Nov. 10, 2014), as further articulated

in Confidential Views of the Commission (“Views”) and ITC Final

Proprietary Staff Report dated August 14, 2014 (incorporating

revisions of Aug. 20, 2014) (“Staff Report”).
Consol. Court No. 14-00220 Page 3

According to the agency record developed, that domestic

industry is comprised of two manufacturers, AK Steel Corporation

and Allegheny Ludlum, LLC, which have filed complaints in this

consolidated action pursuant to 19 U.S.C. §1516a(a)(2)(A)(i)(I) and

(B)(ii) and 28 U.S.C. §1581c along with the United Steelworkers.

Together as parties plaintiff, they have interposed a motion for

judgment on that record in accordance with USCIT Rule 56.2.

I

The papers filed in support of that motion (and in

opposition thereto) show that GOES is a flat-rolled alloy steel

product with a chemistry that facilitates the formation of large

grains during production that align uniformly in the rolling

direction (lengthwise) of steel sheet. Such grains enable the

steel to conduct a magnetic field with a high degree of efficiency,

relative to other steels.

GOES is particularly suitable for the manufacture of

cores for transformers used in connection with the generation and

transmission of electricity. It is produced with different levels

of “permeability”, i.e., the degree of efficiency with which the

steel can conduct a magnetic field.

“Conventional” grades of GOES have smaller, but less

precisely oriented, grains. They are typically referred to by
Consol. Court No. 14-00220 Page 4

grades established by the American Iron and Steel Institute that

range from M-2 to M-6, with M-2 being the thinnest gauge (0.007

inches or 0.18 millimeters (“mm”)) and most efficient material, and

M-6 being the thickest gauge (0.0138 inches or 0.35 mm) and least

efficient.

"High-permeability” GOES has larger, more precisely

oriented, grains that result in greater efficiencies (lower

operating losses) relative to conventional grades.

High-permeability GOES may also be subjected to certain surface

treatments (known as domain refining) that further enhance

efficiency.

AK Steel produces both conventional and high-permeability

grades. Allegheny Ludlum produces conventional grades and was

working in 2013 to develop the capacity to produce

high-permeability GOES in commercial quantities. They concurrently

filed antidumping- and countervailing- duty petitions with the

International Trade Administration, U.S. Department of Commerce

(“ITA”) and the Commission, alleging that (1) imports of GOES from

China, the Czech Republic, Germany, Japan, Korea, Poland and Russia

were being sold in the United States at less than fair value; (2)

manufacturers, producers or exporters of GOES in China were

receiving countervailable subsidies; and (3) such imports were
Consol. Court No. 14-00220 Page 5

materially injuring and threatening to injure the domestic GOES

industry.1

Preliminarily, the Commission determined that there was

a reasonable indication that the U.S. industry was materially

injured by reason of imports of GOES from the seven subject

countries. See GOES from China, Czech Republic, Germany, Japan,

Korea, Poland, and Russia, Inv. Nos. 701-TA-505 and

731-TA-1231-1237 (Prelim.), USITC Pub. 4439 (Nov. 2013), PDoc 91.

Concurrently, ITA determined that imports of GOES from each of

those countries were being sold at “less than fair value” (“LTFV”)2

 1 Upon receipt of such petition(s), ITC’s role is to

determine whether material injury or threat of such injury to the

domestic industry is indeed the case by reason of imported sales of

subject merchandise or the likelihood of such sales. 19 U.S.C.

§1673d(b)(1). See, e.g., Gerald Metals, Inc. v. United States, 132

F.3d 716, 719 (Fed.Cir. 1997). “[B]y reason of” subject imports

means “not by reason of a minimal or tangential contribution to

material harm caused by” such imports. Mittal Steel Point Lisas

Ltd. v. United States, 542 F.3d 867, 873 (Fed.Cir. 2008), quoting

id. The Commission evaluates the volume of subject imports, their

effect upon prices in the U.S. market for the domestic like

product, and their impact on domestic producers’ “production

operations” in the context of the U.S. market. 19 U.S.C.

§1677(7)(B)(i).

 2 Plaintiffs’ papers emphasize that ITA’s final LTFV

margins ranged from 3.68% for subject merchandise from the Republic

of Korea to 241.91% for such merchandise from Germany. See GOES

From the People’s Republic of China: Final Determination of Sales

at LTFV, 79 Fed.Reg. 59226, 59227 (Dep’t Commerce Oct. 1, 2014);

GOES From the Republic of Korea: Final Determination of Sales at

LTFV, 79 Fed.Reg. 59224, 59225 (Dep’t Commerce Oct. 1, 2014); GOES

(continued...)
Consol. Court No. 14-00220 Page 6

within the meaning of section 733(b) of the Tariff Act of 1930, as

amended, 19 U.S.C. §1673b(b).

For the final phase, ITC determined that there had been

price underselling of subject merchandise in the United States

during the period of investigation (“POI”), which the parties do

not dispute, but the Commission’s final determination, by a vote of

5 to 1, was that underselling did not have significant adverse

price effects during the POI. See Views at 35.

That is, after consideration and analysis of the

statutory factors of volume of GOES, domestic and imported, and the

price effects of the subject imports, as set forth in their Views,

pp. 26-41, the majority of commissioners found that most of the

industry’s trade, employment, and financial indicators deteriorated

over the POI due to a combination of output-related (e g., loss of

 2 (...continued)

From the Russian Federation: Final Determination of Sales at LTFV

and Final Affirmative Determination of Critical Circumstances, 79

Fed.Reg. 59223, 59223 (Dep’t Commerce Oct. 1, 2014); GOES From the

People’s Republic of China: Final Affirmative Countervailing Duty

Determination, 79 Fed.Reg. 59221, 59222 (Dep’t Commerce Oct. 1,

2014); GOES From the Czech Republic: Final Determination of Sales

at LTFV and Final Affirmative Determination of Critical

Circumstances, 79 Fed.Reg. 58324, 58325 (Dep’t Commerce Sept. 29,

2014); GOES From Germany, Japan, and Poland: Final Determinations

of Sales at LTFV and Certain Final Affirmative Determination of

Critical Circumstances, 79 Fed.Reg. 42501, 42502 (Dep’t Commerce

July 22, 2014).
Consol. Court No. 14-00220 Page 7

export shipments, higher unit costs due to less production) and

adverse revenue effects (i.e., reduced prices due to lower raw

materials costs, unused capacity, and intra-industry competition).

See Views at 42-43. They concluded, however, that those conditions

were due to the decline in exports, resulting in underutilized

capacity and more intense competition over market share, and that

subject imports “did not take significant market share away from

the domestic industry and also did not have significant price

effects”. Id. at 42. Because the domestic industry’s total

capacity remained the same throughout the POI and also because its

market share remained essentially stable while domestic shipments

increased, ITC did not find the domestic industry to have been

materially injured by reason of the subject imports. See id.

Recognizing the existence of potential differences

between the industries in the subject countries (especially between

Japan and the others), ITC found reasonable overlap of competition

among subject imports from all seven, and between subject imports

from each country and the domestic like product; therefore, it

exercised its discretion to cumulate subject imports from all of

them. See id. at 47. Based thereon, it found no threat of

material injury by reason of subject imports, as it found no record

evidence that the trending increase in subject import volume and
Consol. Court No. 14-00220 Page 8

market share (and the reasons therefor) would change in the

imminent future. It also found no evidence on the record that any

increase in subject imports would likely affect the domestic

industry adversely in the imminent future, inasmuch as increasing

imports had not adversely affected the domestic industry, and that

the increasing demand over the POI and the conditions of

competition in the U.S. market were unlikely to change appreciably

(from the perspective of the time of ITC’s investigation). See id.

at 48-49.

ITC also found that capacity in the cumulated subject

countries, although high both absolutely and relative to apparent

U.S. consumption, increased over the POI and was projected to

increase further. Unused capacity was greater in interim 2013 than

in interim 2014, and was projected to decline further in 2014 and

further still in 2015. Production increased over the period and

was expected to increase in 2014 and 2015. See id. at 49. The

Commission noted that a rather high portion of the aggregate

production of GOES in the subject countries was used to meet their

respective home markets’ demand. Shipments to the home markets

increased over the period, which ITC expected to continue to

increase. Exports to other markets increased between 2011 and

2013, and were projected to increase in the future as well. The
Consol. Court No. 14-00220 Page 9

ratio of subject export shipments to the United States as a share

of total shipments was steady throughout the period and was

projected to remain so in the future.

ITC found that the data indicated the United States is

not a principal export market for the cumulated subject industries.

In view of the subject industries’ projection of increasing

shipments to the home markets and exports to other countries and

their very limited reliance on the U.S. export market, the

Commission found that significantly increased imports of the

subject merchandise into the United States were not likely in the

then-imminent future. Although ITC recognized that U.S. prices for

GOES have been and will likely continue to be higher than prices in

other markets, it indicated that this is not a factor that led the

subject industries to direct an appreciably larger share of their

export shipments to the United States from 2011 to 2013, and there

was, at the time, no indication in the record that this is likely 

to change, i.e., even if subject imports from the cumulated subject

countries were to increase, ITC did not find that any such increase

would likely threaten material injury to the domestic industry

given that the significance of the volume of subject imports did

not cause material injury to the domestic industry over the POI.

See Views at 49-50.
Consol. Court No. 14-00220 Page 10

The Commission recognized that China (“PRC”) imposed

antidumping duties on GOES from Russia that became effective in

2010, but it emphasized that those duties were already in effect

throughout the POI. Also, while the Indian Steel Ministry was

reported to have effectively banned imports of low-grade electrical

steel in June 2011, the record did not indicate that such

restriction resulted in diverting a volume of subject imports to

the United States that materially injured the domestic industry

during the period, nor was there any indication that this would

change in the imminent future. See id. at 51. U.S. importers’

inventories also fell over the POI, and although inventories of the

subject merchandise held in the subject countries increased from

2011 to 2013, they were also projected to decline in the future.

See id.

With regard to likely price effects, ITC found that,

notwithstanding prevalent underselling, the subject imports did not

have a significant adverse effect on prices for the domestic like

product and that the domestic industry was therefore not materially

injured by reason thereof. See id. at 52. ITC also found that,

while some continued increase in subject import volume might occur

in the imminent future, any such increase would likely not be

significant nor be sufficient to have any adverse effects on the
Consol. Court No. 14-00220 Page 11

domestic industry because imports of the subject merchandise were

unlikely to enter at prices that would be likely to have a

significant depressing or suppressing effect on domestic prices or

to increase demand for more imports. See id. Moreover, having

found no significant causal relationship between the subject

imports and the domestic industry’s performance during the POI,

notwithstanding the domestic industry’s declines in performance and

operating income levels, the Commission had little reason to

believe that any further deterioration of the condition of the

domestic industry would be “by reason of” the subject imports in

the imminent future. See id. ITC also found that subject imports

had not had significant actual or potential negative effects on the

existing development and production efforts of the domestic

industry, including efforts to develop a derivative or more

advanced version of the domestic like product. See id. at 53.

II

The court necessarily has perused plaintiffs’ submissions

contesting ITC’s determinations as well as those filed by the

intervenor-defendants in support thereof. The content quality of

all the papers is such as to obviate the burdening of the parties

with oral argument, and the motion therefor can be, and it hereby

is, denied. Moreover, the papers contain business confidential
Consol. Court No. 14-00220 Page 12

information that need not be recited or referred to herein, save

two “dramatic” events that occurred during the period of

investigation. See Opposition of intervenor-defendants JFE Steel

Corporation and Nippon Steel & Sumitomo Metal Corporation

(“JFE/NS&SM”) at 3-4.

A

Judicial review examines whether a determination is

supported by substantial evidence on the administrative record and

is in accordance with law, which necessarily frames the issues. 

See 19 U.S.C. §1516a(b)(1)(B)(i). If the record contains “such

relevant evidence as a reasonable mind might accept as adequate to

support a conclusion”3, taking into account the entire record,

including whatever “fairly detracts”, then the determination must

be sustained. E.g., Atlantic Sugar, Ltd. v. United States, 744

F.2d 1556, 1562 (Fed.Cir. 1984). If an agency has “examine[d] the

relevant data and articulate[d] a satisfactory explanation for its

action, including a rational connection between the facts found and

the choice made”4

, that is sufficient, for “two inconsistent

conclusions from the evidence does not prevent an administrative

 3 Consolidated Edison Co. v. NLRB, 305 U.S. 197, 229

(1938).

 4 Motor Vehicle Mfrs. Ass'n v. State Farm Mut. Auto. Ins.

Co., 463 U.S. 29, 43 (1983)(internal quotation marks deleted).
Consol. Court No. 14-00220 Page 13

agency’s finding from being supported by substantial evidence.” 

Consolo v. Fed. Mar. Comm'n, 383 U.S. 607, 620 (1966).

ITC is also presumed to have considered all of the

information in the administrative record. E.g., Granges

Metallverken AB v. United States, 13 CIT 471, 479, 716 F.Supp. 17,

24 (1989). In other words, even if the record contains some

evidence to which a complainant can point that tends to detract

from an administrative conclusion, that does not, necessarily,

render the conclusion unreasonable. E.g., Atlantic Sugar, 744 F.2d

at 1563.

(i)

The plaintiffs first contend ITC’s price effects analysis

is not supported by substantial evidence on the record. The

relevant statute requires consideration of whether (1) “there has

been significant price underselling by the imported merchandise

relative to the price of products manufactured in the United

States” and (2) whether “the effects of subject imports have

depressed prices, or prevented price increases that otherwise would

have occurred, to a significant degree”. 19 U.S.C. §1677(7)(C)(ii). 

The plaintiffs argue that the price effects analysis is undermined

by the fact that ITC merely acknowledged the “direct importer” data

but otherwise ignored them and relied only upon the “traditional”
Consol. Court No. 14-00220 Page 14

pricing data. Compare Plaintiffs’ Memorandum of Law at 21-23 with

Views at 35-37. They claim it was erroneous for the agency not to

have considered the direct importer data “in tandem” with the

“traditional” data, and they tabulate those record data on page 23

of their brief, referencing Staff Report, V-9 to V-16 & Appx. D at

D-6 to D-15, CDoc 254. See also Plaintiffs’ Reply, p. 7.

The Views indicate that, while those data do indicate

that subject imports were priced lower than the domestic like

product in 17 of 30 comparisons for imports from Japan, 25 of 28

comparisons for imports from Poland, and seven of eight comparisons

for imports from Russia, ConfRec at D-3 to D-4, PubRec at D-3, they

already acknowledged that lower prices are prevalent in the price

comparisons. Moreover, for the highest volume of shipments of

U.S.-produced product, 4b, the incidence of higher and lower prices

is mixed. See CR/PR, Table D-5. The volumes of imports involved in

these comparisons are quite small. When compared to the subject

imports that are not directly imported by end users, those few

direct purchases could not have led the prices of the domestic like

product downward. Views at 40 n. 150, referencing Appendix D to

the Staff Report.

The plaintiffs contend that the percent of total subject

imports represented by the direct importer data volume can hardly
Consol. Court No. 14-00220 Page 15

be characterized as “quite small” given that ITC acknowledged the

“significance” of the percentages as compared with shipments of

subject merchandise from the U.S. producers and from Japan, Poland

and Russia; that the direct importer data account for a sizeable

percent of the total volume of pricing data on the subject

imports5

; that ITC has found significant injurious effects in

several recent investigations involving even lower U.S. shipments

of imports6; and that “quite small” is “directly at odds” with

ITC’s findings that the direct importer data accounted for sizeable

percentages of total reported subject imports from Japan, Poland,

and Russia during the POI. Plaintiffs’ Memorandum of Law at 31,

referencing Views at 32 n. 116. Furthermore, the plaintiffs

contend their tabulation confirms that the volume of the direct

 5 I.e., total subject import volume in Appendix D plus

total subject import volume reported in Section V. See Plaintiffs’

Memorandum of Law at 30 & n. 32.

 6 See id. at 31, referencing Calcium Hypochlorite From the

PRC, Inv. Nos. 701-TA-510 and 731-TA-1245 (Final), USITC Pub. 4515

(Jan. 2015) p. 17 (“[t]he pricing data accounted for approximately

. . . 21.3 percent of subject imports in 2013, with lower coverage

for subject imports in other years of the POI”); Multilayered Wood

Flooring From the PRC, Inv. Nos. 701-TA-476 and 731-TA-U79 (Final),

USITC Pub. 4278 (Nov. 2011) p. 27 (“[p]ricing data reported by

these firms accounted for approximately . . . 14 percent of U.S.

shipments of imports from subject producers in [the PRC] in 2010”);

Aluminum Extrusions From the PRC, Inv. Nos. 701-TA-475 and

731-TA-1177 (Final), USITC Pub. 4229 (May 2011), p. 22 (“[p]ricing

data reported by these firms accounted for approximately four

percent of 2010 U.S. shipments of subject imports from [the PRC]”).
Consol. Court No. 14-00220 Page 16

importer data exceeds the comparable “traditional” data for six out

of ten pricing products and that the volume of imports from Japan,

Poland and Russia covered by the direct importer data likewise

exceeds the comparable traditional pricing data.

The defendant maintains that the plaintiffs are

improperly asking the court to substitute judgment for it on such

matters. E.g., Defendant U.S. International Trade Commission’s

Opposition to Plaintiffs’ Motion for Judgment on the Agency Record

(“Defendant’s Response”) at 21, referencing Co-Steel Raritan, Inc.

v. Int’l Trade Comm’n, 357 F.3d 1294, 1309 (Fed.Cir. 2004) (the

“court is not empowered to substitute its judgment for that of the

agency”), and Nippon Steel Corp. v. Int’l Trade Comm’n, 345 F.3d

1379, 1381 (Fed.Cir. 2003) (“[u]nder the statute, only [ITC] may

find the facts and determine causation and ultimately material

injury”). Indeed, the appellate court has recognized that it is

neither “surprising nor persuasive” that parties plaintiff are able

to point to “evidence of record which detracts from the evidence

which supports [ITC]’s decision” or can “hypothesize a reasonable

basis for a contrary determination”, Matsushita Elec. Indus. Co. v.

United States, 750 F.2d 927, 936 (Fed.Cir. 1984), and the

Commission here maintains that it “properly relied on price

comparisons that reflected equivalent stages of trade” as the “best
Consol. Court No. 14-00220 Page 17

information of record”, that the traditional data included end-user

overage, and that “inclusion” of the importer data in accordance

with plaintiffs’ arguments merely increases the amount of subject

import pricing data in percentage terms but does not render

unreasonable ITC’s “reliance on data showing head-to-head

competition between domestic and imported products.” Defendant’s

Response at 4, 25.

It has long been the rule that ITC’s determinations must

take “into account the entire record, including whatever fairly

detracts from the substantiality of the evidence”7

, and plaintiffs’

arguments do not, to this point, precisely show what it is about

the direct importer data that “fairly detracts” from ITC’s reliance

upon the traditional importer data in making its determination. 

The plaintiffs have recast the record to their liking, but it can

not be concluded therefrom that the agency has not taken into

account the entire record or that its apparent assignment of less

weight to the direct importer data was unreasonable. As the

 7 Atlantic Sugar, supra, 744 F.2d at 1562 (footnote

omitted). For example, the direct importer data, covering

approximately [[ ]] percent of U.S. producers’ shipments, would

also seem to have resulted from a form of “head-to-head”

competition. Nonetheless, ITC’s “presumptive awareness” is of ABB

Inc.’s position of paying “premium” prices for domestic sources,

which appears to be indication of willingness to engage in less

“vigorous” competition.
Consol. Court No. 14-00220 Page 18

defendant points out, the traditional pricing data encompass the

majority of pricing data from four subject countries and at least

some of the data from all countries, and plaintiffs’ own

calculations show that the subject import volumes for pricing

products 1a, 1b, and 2b remain “relatively” low even when the

direct import pricing data are included. It points out there are

no product 1a direct imports, product 1b would show relatively few

short tons among the aggregated direct import and traditional

pricing data as compared to the short tons of domestically produced

product, and similarly for pricing product 2b, i.e., imported

versus domestically produced short tons, respectively. Compare

Plaintiffs’ Memorandum of Law at 23 with Staff Report, Tables V-2,

V-3, V-5.

Having acknowledged “lower prices are prevalent in the

price comparisons”, ITC concluded that the “few” direct purchases

by end users as compared with their traditional pricing data

counterparts could not have led the prices of the domestic like

product downward. This court is not positioned, by law, to

overturn valid Commission factual findings or its reasonable

conclusions based thereon. See 19 U.S.C. §1516a(b)(1)(B)(I). For

that matter, contrary to plaintiffs’ argument, the significant

underselling that the direct importer data further reveal (in
Consol. Court No. 14-00220 Page 19

addition to that already indicated by the traditional pricing data)

does not “readily explain the pricing declines experienced by

domestic producers for those products.”8

(ii)

The plaintiffs stress that ITC did not discuss product 3a

at all9, a product that accounted for the second highest volume of

the ten pricing products and a greater volume than any of the three

products identified in the Views as reflecting “a significant

amount of competition between the domestic like product and the

subject imports” but which price declines ITC found to have been

“comparable to the decrease in raw material costs.” Views at 37.

The plaintiffs point out that the decline in domestic industry

prices for product 3a was nearly two times larger than those

declines for products 2a, 4b, and 5b and that the absolute volume

of subject imports under product 3a was nearly twice as great as

 8 Plaintiffs’ Memorandum of Law at 26. To support their

argument, the plaintiffs also tabulate the degrees of underselling

reflected in the direct importer data. See id. at 27, referencing

Staff Report, Appx. D. ITC is presumed, however, to have taken

such information into account.

 9 The plaintiffs also complain of a lack of discussion of

pricing product 3b, but they focus their discussion on pricing

product 3a.

The defendant draws attention to the fact that the

volumes for 3b are “quite small”, and “the margins of overselling

significantly outweighed the margins of underselling.” Defendant’s

Response at 36 n. 30, referencing Staff Report, Table V-7.
Consol. Court No. 14-00220 Page 20

the volume for 2a and approximately three times as high as the

volumes of products 4b and 5b reflected in the traditional importer

pricing data.

The defendant responds that it did not ignore detracting

evidence; the Commission’s discussion, verbatim, of price declines

is as follows:

Some of the pricing comparisons, such as for pricing

products 2a, 4b, and 5b, involve volumes of subject

imports that compete directly with the most comparable

domestic like product. Other pricing comparisons, such

as for pricing products 1a, 1b, and 2b, involve far

smaller volumes of subject imports.

Id. at 35-36 (emphasis added). In other words, it

did not state that these particular correlations applied

to all 10 pricing products. What is evident from what it

did state is that it examined all the pricing products

and found certain correlations and trends with regard to

specific products that indicated that subject imports

were not the cause of the domestic industry’s declining

prices. Given that the evidence pertaining to most of

the pricing products demonstrated these trends and

correlations, [it] was not obligated to explain away a

correlation with respect to one pricing product out of

10.

Defendant’s Response at 35-36.

The plaintiffs reply that product 3a is precisely the

“one pricing product out of 10” that contradicts the majority’s

conclusion that the pricing products with the highest volumes of
Consol. Court No. 14-00220 Page 21

subject imports had the smallest price declines.10 They aver that

the price declines they suffered on product 3a were highly

significant between the first quarter of 2011 and the first quarter

of 2014,11 and that the pricing information therefor “directly

contradicts” ITC’s analysis of products 2a, 4b and 5b, on which it

also found “there was a significant amount of competition between

the domestic like product and subject imports” and upon which ITC

relied “so heavily” in concluding there was no connection between

the price declines suffered by the domestic industry and the

subject imports.12 The plaintiffs argue the absence of any

 10 The plaintiffs contend product 3a reflected the highest

volume of subject imports in direct competition with the comparable

domestic industry product of any of the products in the traditional

importer pricing database on which the ITC majority based its

pricing analysis. Subject imports of this product accounted for

fully [[ ]] percent of the total volume of all cumulated subject

imports. See Plaintiffs’ Memorandum of Law at 23. In their

opinion, subject import volumes of product 3a were significant in

absolute volume and in relation to domestic consumption thereof,

with a total subject import volume of [[ ]] short tons as compared

to total domestic producer shipments of [[ ]] short tons, i.e.,

[[ ]] percent of domestic consumption of the product. See Staff

Report at V-10. Further, they argue underselling by the subject

imports of pricing product 3a was predominant, occurring in a

majority of possible comparisons. See id. at V-13.

 11 See Staff Report at V-13 and V-27.

 12 I.e., because price declines for products 2a, 4b and 5b

were “comparable to the decrease in raw material costs.” Views at

37. See Plaintiffs’ Reply at 11. They emphasize that the decline in

the domestic industry’s prices for product 3a was nearly two times

larger than those for products 2a, 4b and 5b, and the absolute

(continued...)
Consol. Court No. 14-00220 Page 22

discussion of import volumes and pricing trends for product 3a in

the Views majority opinion amounts to “a grievous oversight

indicative of an unwillingness to consider evidence detracting from

its finding that the subject imports were not a cause of the price

depression suffered by the domestic industry.” Plaintiffs’ Reply

at 11-12.

The plaintiffs further contend that, for the defendant to

respond that it “did not state that these particular correlations

applied to all 10 pricing products” but that it nevertheless

“examined all the pricing products and found certain correlations

and trends with regard to specific products that indicated that

subject imports were not the cause of the domestic industry’s”

declining prices amounts to post hoc rationalization. See Usinor

Industeel S.A. v. United States, 26 CIT 467, 478 (2002) (“‘[w]here

an explanation is lacking on the record, post hoc rationalization

for [the Commission’s] actions is insufficient’ and remand may be

appropriate for further explanation”) (quoting The Timken Co. v.

United States, 20 CIT 1115, 1118, 937 F.Supp. 953, 955 (1995)).

 12 (...continued)

volume of product 3a imports was nearly twice as great as the

volume for product 2a, and approximately three times as high as the

volumes for 4b and 5b in the traditional importer pricing data.

Plaintiffs’ Memorandum of Law at 23, referencing Staff Report,

V-27.
Consol. Court No. 14-00220 Page 23

They claim the defendant discusses only the pricing products that

fit within ITC’s conclusions and fails to address the pricing

products that do not.

This court cannot concur that the defendant goes beyond

clarification into the realm of new rationale, and plaintiffs’

overall presentation on this point does not demonstrate or persuade

that the Commission’s determination is either unsupported by

substantial evidence or not in accordance with law. It did not

conclude that all pricing products with the highest volumes of

subject imports had the smallest price declines and vice versa, it

identified three products with the most substantial price declines

and three products in which there had been a significant amount of

competition, with price declines that ITC further found comparable

to the percentage decrease(s) in raw materials costs. It therefore

concluded there was a lack of correlation among all such data

between price declines and imports.

ITC’s conclusion is not unreasonable, and plaintiffs’

arguments on this issue do not persuade that the Commission has

“entirely failed to consider an important aspect of the problem”

within the meaning of Motor Vehicle Mfrs. Ass'n v. State Farm Mut.

Auto. Ins. Co., 463 U.S. 29, 43 (1983). That is, ITC’s presumptive

interpretation of the record as a whole does not appear inaccurate
Consol. Court No. 14-00220 Page 24

or unsupported by the substantial evidence of record even in the

absence of explication on the subject of product 3a in isolation.

Here again, plaintiffs’ argument is essentially for the court to

substitute its judgment for that of the agency on the matter, which

cannot occur in accordance with the standard of its judicial

review. See Universal Camera Corp. v. NLRB, 340 U.S. 474, 488

(1951) (“as to matters . . . requiring expertise a court may [not]

displace the [agency]’s choice between two fairly conflicting

views, even though the court would justifiably have made a

different choice had the matter been before it de novo”).

Because the Commission “‘is presumed to have considered

all of the evidence on the record,’” it is “‘not required to

explicitly address every piece of evidence presented by the

parties’” during an investigation. Nucor Corp. v. United States, 28

CIT 188, 234, 318 F.Supp. 2d 1207, 1247 (2004) (quoting USEC Inc.

v. United States, 34 Fed.Appx. 725, 730-31 (Fed.Cir. 2002)).

Instead, it need only address the “issues material to [its]

determination” so that the “path of the agency may reasonably be

discerned.” Statement of Administrative Action for the Uruguay

Round Agreements Act, H.R. Rep. No. 103-316, vol. I, at 892 (1994).

On the particular point raised here, the plaintiffs do not persuade
Consol. Court No. 14-00220 Page 25

that expanded discussion addressing the data for product 3a is

“material” to ITC’s overall price effects analysis.

(iii)

The plaintiffs next contest ITC’s position on

underselling, namely that it “reasonably found the significance of

[the] underselling to be mitigated by the lack of significant

impact on the domestic industry’s market share, as the domestic

industry lost only [[ ]] percentage points of market share during

the [POI]”. Defendant’s Response at 2. They argue that nowhere in

its analysis does ITC consider the domestic industry’s statements

concerning its strategy of holding market share and lowering its

prices to meet lower-priced competition from subject imports, and

that what reasoning ITC does offer is circular, essentially writing

the price effects analysis requirement out of the statute:

If Congress had wanted ITC never to reach an affirmative

injury determination unless the subject imports

demonstrated a significant market share impact, it would

have written the law to make the market share impact a

necessary prerequisite to proceed to a price effects

analysis. The statute, however, is not written in this

manner. Rather, the volume and price impact analyses are

equal and coextensive elements of the law, and require

ITC to take into account such circumstances, as

demonstrated by the record, where domestic producers

lowered prices rather than cede market share.
Consol. Court No. 14-00220 Page 26

Plaintiffs’ Reply at 12-13 (emphasis in original), referencing

Sioux Honey Ass’n v. Hartford Ins. Co., 672 F.3d 1041, 1052

(Fed.Cir. 2012) (‘“[i]t is a long-held tenet of statutory

interpretation that one section of a law should not be interpreted

so as to render another section meaningless’”) (quoting Princess

Cruises, Inc. v. United States, 201 F.3d 1352, 1362 (Fed.Cir.

2000)). Similarly, the plaintiffs contend defendant’s assertion

that ITC’s “analysis of lost sales and revenues responses was

likewise reasonable, particularly given that there were no shifts

in market share”13 implies that a decline in domestic industry

market share is a necessary precursor to any assessment of the

price effects of the subject imports. This reasoning, the

plaintiffs argue, once again effectively writes out the price

effect section of the statute, as it reflects an assumption that

market share impact is a threshold issue. And, ironically, the

plaintiffs further point out, ITC did find the volume of subject

imports “significant in absolute terms and relative to consumption

in the United States”14, but found that the lack of a shift in

market share away from the domestic industry indicated that no

price impact was evident. The plaintiffs argue ITC must explain

 13 Defendant’s Response at 5.

 14 Id. at 15.
Consol. Court No. 14-00220 Page 27

why a lack of market share shift is evidence of no negative price

effects where domestic producers lowered prices to protect market

share.

From this court’s perspective, the main problem with such

argument is that, notwithstanding the Views’ regard of relatively

stable market share as indicating “mitigation”, the Views do not

unequivocally indicate treatment of market share as a prerequisite

or precursor to determining material injury. Market share is, of

course, but one of many factors the Commission evaluates in order

to determine “impact”, 19 U.S.C. §1677(7)(C)(iii), and it is, of

course, also further directed to consider in its evaluation of

“price” whether “the effect of imports of such merchandise

otherwise depresses prices to a significant degree or prevents

price increases, which otherwise would have occurred, to a

significant degree”15, but finding the existence of domestic

industry price reduction(s), in order to maintain market share, is

not, ipso facto, necessarily indicative of material injury “harm”

within the meaning of the statute, as there may be “such other

economic factors as are relevant to the determination regarding

whether there is material injury by reason of imports” that bear on

 15 19 U.S.C. §1677(7)(C)(ii)(II).
Consol. Court No. 14-00220 Page 28

the analysis of a given situation. 19 U.S.C. §1677(7)(B)(ii). The

Views’ reference to “mitigation” and a lack of market share shift

must be regarded in the context of the other economic factors ITC

considered as present in the investigation, in particular the

decreases in capacity utilization from the “systemic” shocks that

both plaintiffs experienced during the POI, and not solely with

regard to subject imports. See Views at 37-40.

(iv)

The plaintiffs devote much of their briefs arguing

against ITC’s reasoning on the products’ price declines. See,

e.g., id. at 44 (“[t]he price declines . . . were a result of lower

raw materials prices, unused capacity and intra-industry

competition”). The phrase “intra-industry competition” is found

only once, but, as a matter of the record and ITC’s conclusions, it

dominates the Views.

The plaintiffs advance numerous lines of attack thereon,

none of which prove availing. They acknowledge that, if

high-permeability GOES is priced low enough, it may be used in

place of conventional product in certain applications. However,

they argue, the reverse is not true, at least for certain

applications16, and given that demand for high-permeability GOES

 16 See Views at 29 n. l05.
Consol. Court No. 14-00220 Page 29

increased significantly during the POI, largely due to higher

efficiencies mandated by the U.S. government for power

transformers, they contend that “one would [have] expect[ed] to see

prices obtained by the sole domestic producer to be increasing”,

which was not the case.

Considering the record as a whole, ITC concluded why that

was not true. See Views at 37 (“[t]he change in these prices was

comparable to the decrease in raw material costs” and “[d]ecreasing

capacity utilization[ ] contributed to the declines in prices for

domestically produced products”) (footnote omitted). Contesting

that conclusion, the plaintiffs here contend that the Views glide

over the fact that only AK Steel produced the high-permeability

products 4b and 5b and that intra-industry competition was

therefore not a factor in the declines in the prices for those

products17, and that pricing information thereon demonstrates that

subject imports had significant price effects.

Critical of defendant’s response, p. 36, that “[r]esting

the pricing analysis on a product manufactured by only half of the

 17 During the POI, Allegheny Ludlum had only made

substantial investments in research and development of

high-permeability GOES but not in commercial-quantity production

thereof. See Transcript of ITC Hearing on July 24, 2014

(hereinafter “Tr.”), PDoc 184, at 28.
Consol. Court No. 14-00220 Page 30

domestic industry when the record contains pricing data pertaining

to the industry as a whole would run counter to this mandate”, the

plaintiffs argue such reasoning is “confounding” because ITC has

never limited its pricing analysis to those products that are made

by all members of the domestic industry, and it is those exact

products (4b and 5b) on which it rests “so much” of its pricing

analysis and its conclusion that the pricing products with

relatively high import levels showed relatively low price declines.

ITC’s defense (as paraphrased by the plaintiffs) is that,

despite increased demand for products 4b and 5b, and despite

falling prices therefor, and also absent “intra-industry”

competition therefor, ITC recognized that prices declined during

the POI “for all domestically produced pricing products”18 (which

obviously included products 4b and 5b), and that such declines were

due to (1) the domestic industry’s declining exports of GOES; (2)

knowledge by U.S. purchasers of excess U.S. industry capacity; (3)

Allegheny Ludlum’s loss of a contract with a large purchaser; and

(4) decreased raw materials costs. See Defendant’s Response at 37,

quoting Views at 35.

 18 Plaintiffs’ Reply at 15, quoting Defendant’s Response at

31 (court’s limitation of quoted passage).
Consol. Court No. 14-00220 Page 31

The plaintiffs argue “each”19 of the above explanations

is not supported by substantial evidence. See, e.g. Plaintiffs’

Memorandum of Law at 42-49. They begin by contending ITC

“determined” that competition between Allegheny Ludlum and AK Steel

for the business of Howard Industries “resulted” in the significant

declines in prices at which the domestic industry was able to sell

GOES in the U.S. market during the POI. They claim “intra-industry

competition” could not have been the sole or even a primary cause

of U.S. price depression because Allegheny Ludlum did not produce

high-permeability GOES during the POI, and because AK Steel, the

only domestic producer of such GOES, would have had every

motivation to negotiate for the highest price possible for that

product, such that the only price competition that would have

motivated AK Steel to reduce its prices for high-permeability GOES

must have resulted from the other sources that produced these

products, namely, imports of high-permeability GOES from Japan,

Korea, and the PRC. They charge the Views with glossing over the

information on the record of the prices at which Howard Industries

purchased GOES during the POI as well as the circumstances of the

expiration of its contractual arrangement with Allegheny Ludlum at

 19 Noteworthy here is that plaintiffs’ briefing does not

address the domestic industry’s declining exports of GOES during

the POI.
Consol. Court No. 14-00220 Page 32

the end of 2012, which involved Howard Industries countering a

price offer from AK Steel for purchases in 2013 with lower priced

subject imports, all of which demonstrates that the prices at which

Howard Industries purchased GOES was not and could not have been

affected by competition between Allegheny Ludlum and AK Steel.

The plaintiffs also contend defendant’s response raises

a number of points that are incorrect. First, in reply to its

response that they seem to “question the notion that there was

intra-industry competition between the two domestic producers”, the

plaintiffs contend their argument is not that there was no

intra-industry competition in general, but that the facts of record

do not establish that there was any significant intra-industry

competition between them for Howard Industries’ business.20 They

 20 In a footnote, the plaintiffs further complain of ITC’s

response quoting the testimony of an Allegheny Ludlum official for

the proposition that his company and AK Steel “compete vigorously”,

but without quoting testimony by this same official and by his

counterpart at AK Steel that identified unfairly traded subject

imports as the cause of significant price declines in the U.S.

market. See, e.g., Tr. at 30, PDoc 184 (stating that Allegheny

Ludlum was “confronted with very low priced imports as early as

2011, well before our loss of Howard Industries’ business in 2013”

and that the company was “able to earn a reasonable return . . .

until the low-priced imports entered the market and caused

devastating declines in pricing”) (testimony of Mr. Polinski); id.

at 24-25 (“[w]hile our company competes aggressively with Allegheny

Ludlum, our sales staff has been told repeatedly by customers that

we must lower our prices in order to retain their business, or they

(continued...)
Consol. Court No. 14-00220 Page 33

further contend defendant’s response is ironic, given that the only

example in the Views of intra-industry competition cited is over

the Howard Industries account.

Second, the plaintiffs contend that defendant’s response,

as with ITC analysis in its administrative proceedings, errs in

attributing any of the declining prices at which Howard Industries

purchased GOES to competition between Allegheny Ludlum and AK

Steel. See Defendant’s Response at 39 (quoting Views at 38-39). 

See also Response Brief of intervenor-defendant ABB Inc. (“ABB’s

Response”) at 13; JFE/NS&SM Opposition at 31-34; and Response

Memorandum of intervenor-defendant ThyssenKrupp Electrical Steel

GmbH at 6. Defendant’s response attributes declines in prices paid

by Howard Industries for GOES purchased from Allegheny Ludlum

between 2011 and 2012 to intra-industry competition.21 The

 20 (...continued)

will purchase lower-priced imported GOES from the subject

countries”) (testimony of Mr. Petersen of AK Steel).

 21 The plaintiffs also complain of ITC’s attribution of

price declines to “widespread knowledge” among U.S. purchasers of

the domestic industry’s excess capacity, which it concluded allowed

the purchasers to negotiate lower prices. See Views at 39. The

plaintiffs contend the only credible record evidence cited by ITC

in support of “widespread” knowledge is the testimony of a single

industry witness. Thus, they argue that, while ITC also cites the

testimony of a consultant retained by a Japanese producer for ITC’s

investigation, his testimony “makes clear” it is based on

speculation and not personal knowledge. See Plaintiffs’ Memorandum

of Law at 53-54.
Consol. Court No. 14-00220 Page 34

plaintiffs state that Allegheny Ludlum’s pricing during that period

was set by a long-term contract and, thus, Allegheny Ludlum had no

reason to (and did not) negotiate lower prices with Howard

Industries in response to purported competition from AK Steel. See

Plaintiffs’ Memorandum of Law at 43-45 (emphasis added). 

Accordingly, they contend record evidence does not support ITC’s

determination that the declines in prices at which Howard

Industries purchased GOES between 2011 and 2013 were due to

competition between Allegheny Ludlum and AK Steel for that account.

Further, the plaintiffs point out, ITC’s Views do not identify a

single other instance of intra-industry competition that

purportedly drove down prices in the U.S. market.

Summarizing, the plaintiffs maintain that while Howard

Industries is a significant purchaser of conventional GOES, ITC’s

“failure” to identify “any other evidence in support of the intense

intra-industry competition that purportedly drove down market

prices demonstrates its finding is not supported by substantial

evidence.” Plaintiffs’ Reply at 18-19 & n. 27.

Third, in regard to defendant’s response that “whether or

not the two companies believed they were competing with one another

for Howard Industries’ business is beside the point,” because ITC
Consol. Court No. 14-00220 Page 35

“was focused on what transpired with respect to prices”, the

plaintiffs reply that this statement significantly departs from the

analysis in ITC’s Views, which attributes the declining prices for

GOES over the period of the competition between the two domestic

producers. See Views at 39 (attributing the decline in prices that

Howard Industries paid for GOES over the POI to “increased

competition between domestic producers”). They argue this amounts

to a “retreat” from ITC’s findings during the underlying

administrative proceedings and reflects the lack of substantial

evidence supporting that finding.

Fourth, the plaintiffs contend that, in seeking to

identify some record evidence to support ITC’s conclusion that

intra-industry competition was the cause of the declining prices at

which Howard Industries purchased GOES during the period, the

defendant states that the plaintiffs do not contend that AK Steel

had no reason to lower its prices. Defendant’s Response at 40. To

the contrary, the plaintiffs contend, they explained to ITC that AK

Steel lowered the prices it offered to Howard Industries in 2013 in

response to lower priced imports. See Plaintiffs’ Memorandum of

Law at 46, discussing the declaration of one Jeff Tranter of AK

Steel, who was personally responsible for negotiating the contract

under which AK Steel sold GOES to Howard Industries in 2013, and
Consol. Court No. 14-00220 Page 36

citing the petitioners’ July 31, 2014 Post-Hearing Brief, Ex. 7 at

16, CDoc 218, PDoc 200. The defendant asserts the information in

that declaration is inconsequential. The plaintiffs disagree,

claiming it is the only information on the record that specifically

addresses why AK Steel lowered the prices at which it sold GOES to

Howard Industries in 2013. See Petitioners’ July 31, 2014

Post-Hearing Brief, Ex. 7 at ¶6, CDoc 218, PDoc 200. As such, they

contend, “there is no record information to support a conclusion

that the decline in prices in 2013 at which AK Steel sold GOES to

Howard Industries was due to anything other than subject imports”,

leaving unsupported by substantial evidence the Commission

majority’s conclusion that the decline was due to intra-industry

competition.

Fifth, the plaintiffs argue that the explanation in

defendant’s response for why ITC accorded little weight to the

Tranter declaration mischaracterizes its analysis. In particular,

defendant’s response asserts that it “explained that there was

contradictory evidence in the record” and that it “found other

evidence . . . to outweigh the declaration, which was reasonable,

and is supported by substantial evidence.” Defendant’s Response at

41 n. 36. The plaintiffs argue these statements are inconsistent
Consol. Court No. 14-00220 Page 37

with the Views. In its entirety, the plaintiffs point out the

discussion therein of the Tranter declaration states:

[S]ee also Petitioners’ Posthearing Brief, Exh. 1 at 48

(petitioners claim Howard Industries used its knowledge

of low import pricing to leverage down AK Steel’s

contractual prices). This claim was based on a

confidential declaration. As such, it cannot be verified

as Commission staff attempts to do with “lost revenue”

allegations.

Views at 40 n. 148. Thus, the plaintiffs argue, contrary to the

representations in defendant’s response, the Views do not state

that other record evidence outweighs the Tranter declaration, much

less cite to or even reference any such record evidence. They

contend, as argued above, that ITC could not have cited any such

record information because there is none that contradicts that

declaration’s explanation of the circumstances that resulted in AK

Steel’s decision to lower the prices at which it sold GOES to

Howard Industries in 2013.

Sixth, the plaintiffs contend that the defendant also

mischaracterizes ITC’s finding regarding U.S. purchasers

identifying AK Steel and Allegheny Ludlum as “price leaders”. They

argue that ITC misinterpreted the purchasers’ responses in

concluding that the domestic industry was “responsible” for leading

prices down for GOES in the U.S. market. See Plaintiffs’
Consol. Court No. 14-00220 Page 38

Memorandum of Law at 49-52. The defendant counters that “ITC did

not presume that prices moved in any particular direction -- up,

down, or remained stable when it summarized the questionnaire

responses as indicating the domestic producers were the price

leaders”. Defendant’s Response at 43. See also JFE/NS&SM Opposition

at 28-29. The plaintiffs claim that the Commission Views contradict

this statement: “We find such widespread knowledge of existing

domestic unused capacity enabled purchasers to obtain lower prices.

These observations are consistent with evidence in the record that

the domestic producers are the price leaders in the industry.” 

Plaintiffs’ Reply at 21, quoting Views at 39-40 (plaintiffs’

emphasis). Thus, they claim, contrary to the suggestion in

defendant’s response, the Views make clear the agency’s conclusion

that the domestic industry -- as purported price leaders -- was

responsible for leading prices for GOES in the U.S. market

downward. To the contrary, the plaintiffs continue, ITC’s

questionnaire makes clear that a “price leader” is not necessarily

the lower-priced supplier, and other statements made by purchasers

demonstrate that they identified the domestic producers as “price

leaders” based on their efforts to increase the prices at which

GOES was sold in the U.S. market.
Consol. Court No. 14-00220 Page 39

Seventh, the plaintiffs emphasize that the price declines

on products 4b and 5b during the POI far exceeded the declines in

raw materials costs therefor. Indeed, they stress that ITC stated

that those products showed “a significant amount of competition

between the domestic like product and the subject imports”, Views

at 37, and they object to ITC’s conclusion that the declines in the

pricing products (at least for 2a, 4b, and 5b) were attributable to

declines in raw material prices rather than subject imports. See

Plaintiffs’ Memorandum of Law at 36-37.

Here, assuming that delving further into this point might

assist the reader’s understanding, it should be recalled that ITC

observed that prices for products 2a, 4b, and 5b declined, while

the cost of raw materials used to produce one ton of GOES decreased

on average by a comparable percentage. See Views at 37. The

plaintiffs argue that, while the percentage declines in product

pricing may have been similar to the decline in raw materials

costs, examination of the record shows that the absolute price

declines far exceed the decline in raw materials costs. Raw

material costs declined by [[ ]] per ton between 2011 and 2013,

while U.S. prices for the three pricing products fell between [[ ]]

per ton and [[ ]] per ton during the same period, and the average

unit value of U.S. shipments declined by [[ ]] per short ton. See
Consol. Court No. 14-00220 Page 40

Plaintiffs’ Memorandum of Law at 37; Staff Report at C-4, V-15,

V-16, and V-27. The plaintiffs point out that the decline in

domestic producer prices for products 4b and 5b was greater than

was justified by the decline in raw materials costs, and they claim

the “causal connection” to subject imports is demonstrated by the

underselling data itself, which show underselling in comparisons

for product 4b and for product 5b in the traditional pricing data,

as well as in 6 of 13 comparisons for product 4b and 11 of 15

comparisons for product 5b in the direct importer data. See Staff

Report, V-15, V-16, and Appx. D, D-13 and D-15. And, noting

defendant’s response that the plaintiffs cannot “choose” which

methodology (e.g., absolute basis) ITC uses in its analysis and

that it is free to choose its own methodology so long as it is

reasonable22, the plaintiffs counter in their reply that the [[ ]]

decline in raw material costs accounts for just 13 to 17 percent of

the price declines for the products under review.

Eighth, the plaintiffs argue that, although defendant’s

response relies on ABB’s assertions that it “negotiates its sales

with U.S. producers well before it negotiates sales with its

 22 Defendant’s Response at 34 (maintaining that the

plaintiffs “simply assert that [ITC] should choose calculations for

its analysis that are more favorable to the outcome they would

like”).
Consol. Court No. 14-00220 Page 41

foreign suppliers” in support of ITC’s conclusion that “subject

imports of pricing products 4b and 5b did not lead domestic prices

downward,” it is clear from the record that ABB purchased subject

imports of products 4b and 5b that undersold the prices it paid to

the domestic industry in 16 of 26 comparisons. They contend that,

even though the Japanese respondents asserted that their heat

proof, high-permeability products 4a and 5a are superior to the

high-permeability products offered by AK Steel (and should thus

have commanded a premium), the prices paid by ABB for those

products were less than the prices ABB paid for domestic

non-heat-proof GOES products 4b and 5b in every single comparison

during the POI. See Staff Report, D-12 to D-15.

Considering the foregoing, it is plain from the Views and

Staff Report that ITC found various factors apart from import

underselling that were behind the domestic industry’s product

pricing. It fairly recognized that “[p]rices declined during the

[POI] for all domestically produced pricing products”, Views at 35,

and determined that the factors behind the decline(s) were (1) the

large decline in the domestic industry’s exports, (2) the

widespread knowledge of the resulting unused capacity, (3)

Allegheny Ludlum’s loss of a contract with a large purchaser, and

(4) decreased raw material costs, id. at 35-40. It also examined
Consol. Court No. 14-00220 Page 42

the traditional pricing data to observe that prices for Japanese

product 4a are higher than domestic prices for product 4b, Staff

Report, Table V-8; it observed that ABB negotiates its purchases

with U.S. producers well before it negotiates with foreign

suppliers; and it noted that the vast majority of direct imports

for products 4b and 5b, see id., Tables D-2 to D-7, indicated to

ITC that subject imports of those products did not lead domestic

prices downward. ITC pointed to purchaser response to explain its

conclusions on price leadership, Views at 40 n. 149, and the

breadth of knowledge it imputed to purchasers regarding the

domestic industry’s unused capacity, id. at 39 (see also Transcript

of ITC Preliminary Hearing on Oct. 25, 2013, PDoc 67, at 120-21:

“everyone in the industry knows the two reasons why domestic prices

are falling” et cetera), and ITC is, as it states, “required to

assess the domestic industry as a whole”, Defendant’s Response at

36, referencing Committee for Fair Coke Trade v. United States, 28

CIT 1140, 1167 (2004). Plaintiffs’ arguments raised on the

apparent issue(s) here do not persuade that ITC has not done so, or

that its analysis thereof can be held unreasonable, or that the

record does not substantiate its four conclusions above. Thus,

notwithstanding plaintiffs’ attempt to focus “intra-industry

competition” on Howard Industry’s purchases over the POI and/or the
Consol. Court No. 14-00220 Page 43

pricing of products 4b and 5b, it cannot be concluded that the

Views’ overall assessment of domestic competition during the POI is

unreasonable or unsupported by substantial evidence on the record.

(v)

Lastly, with respect to their contention that ITC’s price

effects analysis is unsupported by substantial evidence, the

plaintiffs argue that the record does not support its findings

regarding lost sales and revenues and that the Commission failed to

address substantial issues they raised.

In making its price effects finding, ITC stated that,

“[w]hile there are confirmed lost sales and revenues, they are of

minor magnitude and do not outweigh other data in the record

showing the lack of significant price effects.” Views at 41

(footnote omitted). ITC counted as confirmed only those lost sales

and revenues allegations that purchasers explicitly admitted. See

Staff Report, Table V-12. "The confirmed lost sales do not detract

from our analysis, as there were no shifts in market share as

discussed above." Id. at 41 n. 15 (finding two confirmed lost

sales allegations totaling $11.3 million and three confirmed lost

revenue allegations totaling $2.3 million).
Consol. Court No. 14-00220 Page 44

The plaintiffs argue ITC failed to analyze reasonably the

responses to the domestic industry’s lost sales and revenue

allegations. Plaintiffs’ Memorandum of Law at 55-67. They contend

it could not simply examine whether responding purchasers “agreed”

or “disagreed” with the allegation, because certain purchasers only

“denied” lost sales and lost revenue allegations on “technical”

grounds, based for example on a minor factual dispute, but the

record contains numerous instances of purchasers otherwise

conceding having purchased a lower-priced imported product or using

a lower price offer for subject imports to force domestic producers

to lower their price to secure a sale. See id. at 56, citing

Petitioners’ Pre-Hearing Brief at 39-45, CDoc 203, PDoc 175; Tr. at

47, 133-34, PDoc 184; Petitioners’ Post-Hearing Brief, Ex. 1 at

9-14, 44-49, CDoc 218, PDoc 200.

As exemplar, the plaintiffs point to ABB’s response brief

where it “unequivocally denied Plaintiffs’ lost sales allegations.”

ABB’s Response at 9. They reply that, although ABB claims to have

“disagreed” with the lost sales allegations, its response to ITC’s

questionnaire specifically stated that ABB rejected the U.S. price

in favor of subject imports that demonstrated underselling of

between 15 and 34 percent, totaling $19.5 million. It also

specifically stated that both AK Steel and Allegheny Ludlum were
Consol. Court No. 14-00220 Page 45

forced to reduce their prices from 2011 levels during the 2012

contract negotiation season to maintain sales. In each instance,

ABB rejected the domestic industry’s initial quote, confirming that

there were subject import prices that were being offered at between

[[ ]] and [[ ]] percent below the already depressed 2011 contract

prices. See Plaintiffs’ Memorandum of Law at 58-60.

All told, the plaintiffs argue the record evidence

demonstrates that [[ ]] percent (by value) of the domestic

industry’s lost sales allegations that received a response should

be considered confirmed, and that [[ ]] percent (by value) of its

lost revenue allegations that received a response should be

considered confirmed, on the assumption (or presumption) that a

purchaser would make the strategic decision not to support the

domestic industry’s case by confirming such allegations. See id. at

65. Based on this analysis, the plaintiffs contend the confirmed

lost sales allegations should total $20.1 million and the confirmed

lost revenue allegations should total $14.4 million. Id. They add

that these figures do not include a significant number of

allegations where the purchasers did not respond to ITC’s request

for information, which, if included, would increase the total lost 

sales figure to $40.1 million and the total lost revenues figure to

$15.3 million - or a total of $55.4 million. Id. at 65-66.
Consol. Court No. 14-00220 Page 46

The plaintiffs further add that a certain footnote to the

lost sales and revenue summary table in ITC’s Staff Report confirms

an administrative failure to meaningfully evaluate the responses

received to ITC’s lost sales and lost revenue questionnaires

because it states: “[t]his column is not a staff assessment of

whether the purchaser comments agree or disagree; rather, it is

only reporting whether the purchaser wrote agree or disagree and

comments on the allegations.” Staff Report at V-38.

Defendant’s response, the plaintiffs further contend,

does not in any manner address the substance of their arguments but

asserts they are merely seeking to have the court “reweigh” the

evidence on lost sales and revenues23. To the contrary, the

plaintiffs claim, they seek the court’s requiring ITC “for the

first time” to consider extensive argumentation made by the

domestic industry on three separate occasions in ITC’s final phase

23 The plaintiffs claim defendant’s response minimizes the

significance of the domestic industry’s lost sales and lost revenue

allegations, stating that even if all of the allegations were

accepted as true, they would amount to just 13.4 percent of the

domestic industry’s total shipments of GOES during the period, and

that “[t]hese totals hardly outweigh the other evidence in the

record that ITC considered and explained. Defendant’s Response at

48. See also id. at 49 (“[t]hus, even if all lost sales and

revenue allegations were confirmed, substantial evidence supports

ITC’s findings based on the evidence to which ITC gave the most

weight”). Here again, the plaintiffs charge the defendant with

post hoc rationalization, as they claim the Commission did not

complete such an analysis in the underlying investigation.
Consol. Court No. 14-00220 Page 47

investigation but that remained completely unaddressed in its

Views. Although the plaintiffs interpret defendant’s response as

“belittl[ing]” the significance of the domestic industry’s

allegations, they point out that the $55.4 million in lost revenues

over the period would have more than offset the operating loss of

$52.1 million suffered by the domestic industry in 2013. The

plaintiffs insist that the reduced prices that resulted from those

lost sales and revenues forced U.S. producers to accept even lower

benchmarks for price negotiations on future sales, resulting in an

additional negative impact on the domestic industry’s financial

condition.

The crux of the problem with regard to plaintiffs’

arguments, however, is that they ask the court to interfere in

ITC’s decision to count only “confirmed” lost sales and revenues

allegations. It targets what weight the agency assigns to the

evidence, a matter within its discretion. While it might have been

equally reasonable for ITC to presume the allegations confirmed in

the absence of explicit denial as well, the court cannot conclude

that ITC’s requirement of explicit agreement in order to count an

allegation “confirmed” was unreasonable in accordance with Consolo,

supra, 383 U.S. at 620 (“two inconsistent conclusions from the

evidence does not prevent an administrative agency's finding from
Consol. Court No. 14-00220 Page 48

being supported by substantial evidence”). The remainder of

plaintiffs’ arguments on this issue, therefore, are unavailing.

B

The plaintiffs challenge ITC’s impact analysis, which

found that, because the subject imports did not take significant

market share away from the domestic industry and did not have

significant price effects, the domestic industry was not materially

injured by reason of the subject imports:

The domestic industry’s unfavorable trends in operating

performance were a combination of adverse output-related

effects and adverse revenue effects. These, in turn, were

caused by the loss of export shipments, higher unit costs

resulting from less production, and reduced prices.

However, none of these factors were a function of the

subject imports.

Views at 44.

The plaintiffs contend the Commission majority improperly

applied the statute’s causation standard in not finding subject

imports a cause of material injury24, and they argue it erred in

24 They latch onto ITC’s statement that the law requires it

to determine whether subject imports are “the” cause of material

injury to the domestic industry, and they argue the “by reason of”

standard(s) in 19 U.S.C. §§ 1671d(b)(l) and 1673d(b)(l) do(es) not

require unfairly traded imports to be the “sole” or “principal”

cause of injury. Plaintiffs’ Reply at 26, referencing Nippon Steel

Co. v. USITC, 345 F.3d 1379, 1381 (Fed.Cir. 2003) (“an affirmative

material-injury determination under the statute requires no more

than a substantial-factor showing[; t]hat is, the ‘dumping’ need

(continued...)
Consol. Court No. 14-00220 Page 49

attributing the domestic industry’s deteriorating condition

entirely to factors other than subject imports. In addition to

their arguments over alleged errors in ITC’s price effect analysis,

they contend it improperly attributed the domestic industry’s

declining performance to “higher unit costs resulting from less

production” and not -- at least in part -- to subject imports. See

Plaintiffs’ Memorandum of Law at 70-71, quoting Views at 44.

More precisely, contrary to defendant’s and intervenordefendants’ arguments25, the plaintiffs contend that “higher unit

costs resulting from less production” were not a significant factor

 24 (...continued)

not be the sole or principal cause of injury” and the “by reason

of” standard is satisfied so long as subject imports are more than

a minimal or tangential cause of injury; the existence of factors

other than subject imports that may have been a greater cause of

injury does not prevent an affirmative injury determination). 

See also Mittal Steel Point Lisas, Ltd. v. United States, 542 F.3d

867, 873 (Fed.Cir. 2008).

This court does not regard defendant’s use of “the” when

describing “cause of material injury” (emphasis in original) in its

response brief as amounting to a misstatement of the law, since the

subheading under which that statement directly appears also states

that subject imports were not “a” cause of material injury. In any

event, it is the Views’ statement on the subject that controls, and

therein is specifically stated that “the ‘by reason of’ standard is

satisfied if subject imports are more than a minimal or tangential

cause of injury.” Views at 20 n. 71. See also JFE/NS&SM Opposition

at 5-6.

 25 See Defendant’s Response at 52-53; JFE/NS&SM Opposition

at 41-42; Opposition of intervenor-defendants Baoshan Iron & Steel

Co., Ltd. and Baosteel America, Inc. at 39.
Consol. Court No. 14-00220 Page 50

in the domestic industry’s declining financial performance. They

argue that, although the domestic industry’s unit costs increased

between 2011 and 2013, the record data show no direct correlation

between declining production and increasing unit costs. In

particular, the plaintiffs emphasize that, while domestic

production declined from 2011 to 2012 and from 2012 to 2013, U.S.

producers’ unit costs increased from 2011 to 2012 but declined from

2012 to 2013. See Staff Report, C-4. Thus, they argue, the record

does not support ITC’s finding that the declines in the domestic

industry’s export shipments and domestic production resulted in

significant cost increases that caused the industry’s declining

performance.

Judicial review of these types of matters, however, is

ill-positioned to consider the “significance” of the data to which

the plaintiffs would here point; all that may be reviewed is

whether substantial evidence of record supports the determination

reached. Nonetheless, they argue it is significant that ITC’s

Staff Report attributes the domestic industry’s declining

performance to the reduced prices at which it was able to sell GOES

in the United States. In particular, they point to its variance

analysis, which shows that of the [[$]] decline in the domestic

industry’s operating income between 2011 and 2013, [[$]] - or [[ ]]
Consol. Court No. 14-00220 Page 51

percent - was directly attributable to the negative effect of

decreased prices. Staff Report, VI-13. The plaintiffs argue that

because ITC’s Views do not address the variance analysis contained

in the Staff Report26, defendant’s response now, asserting that the

agency “gave less weight to the variance analysis than to the

evidence regarding the decline in export sales and Allegheny

Ludlum’s loss of the Howard Industries contract”27, is nothing more

than post hoc rationalization unsupported by the record. Equally

unsupported, the plaintiffs continue, is defendant’s assertion,

post hoc, that the variance analysis was not compelling28 because

price was a more dominant factor between 2012 to 2013. The

plaintiffs contend that the record shows that price variance had a

greater negative impact on the domestic industry’s operating income

in each year of the POI than either the cost or volume variances. 

Cf. Staff Report, VI-13 and VI-14. The plaintiffs thus claim that

ITC’s failure to address the Staff Report’s variance analysis,

which establishes that the decline in pricing -- not increasing

costs -- was the primary reason for the U.S. producers’ financial

deterioration during the POI, represents another instance in which

 26 See Views at 33-44.

 27 Defendant’s Response at 53. See also JFE/NS&SM Opposition

at 43-44.

 28 See Defendant’s Response at 52.
Consol. Court No. 14-00220 Page 52

the Commission failed to address record information that is

contrary to its findings and that requires a remand to the agency

for further deliberation.

This court cannot concur with such reasoning. ITC

acknowledged the price declines, and it found that the reasons

therefor were a result of lower raw materials costs, unused

capacity, and intra-industry competition. Regardless of why it did

not rely on the variance analysis in its Views, the use or non-use

was matter within its discretion. See AWP Industries v. United

States, 35 CIT ___, ___, 783 F.Supp.2d 1266, 1280 n. 35 (2011)

(“[v]ariance analysis is a tool that the Commission may use during

an investigation”) (emphasis added); Altx, Inc. v. United States,

26 CIT 1425, 1433 (2002) (ITC need not rely on theoretical model if

“less helpful” than other data in the record), aff’d, 370 F.3d 1108

(Fed.Cir. 2004). And plaintiffs’ arguments do not persuade that,

or explain why, reliance upon the variance analysis would have

altered ITC’s Views on the price declines in any event.

III

In conclusion, and in view of the foregoing, the court

can only observe that there is no bright line between fair and

unfair competition -- each situation must be, and necessarily is,
Consol. Court No. 14-00220 Page 53

evaluated on its own merits, ad hoc.29 Here, the standard of

judicial review precludes de novo review. And the plaintiffs do

not persuade that ITC’s Views are either unsupported by substantial

evidence on the record or not in accordance with law. Accordingly,

their motion for judgment on that record must be denied, with

judgment entered dismissing their complaint.

So ordered.

Decided: New York, New York

November 23, 2016

/s/ Thomas J. Aquilino, Jr. 

Senior Judge

29 See, e.g., Fed. Trade Comm'n, Antidumping Legislation and

Other Import Regulations in the United States and Foreign

Countries, S. Doc. No. 73-112 (1934) (“[d]umping has been

repeatedly recognized as unfair competition in national legislation

and in international conferences and agreements, although it is

sometimes very difficult to draw the line between what is fair and

what is unfair in foreign-trade development”); Susan Bierman, Fair

and Unfair Trade in an Interventionist Era, 77 Am. Soc'y Int'l L.

Proc. 114, 114-15 (1983) (Remarks of Seymour J. Rubin, Chairman)

(“[i]t may well be that the realities of relief against injury from

foreign competition blur the often indistinct line between fair and

unfair trade”).