Task: songer_typeiss

What follows is an opinion from a United States Court of Appeals.
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Opinion for the Court filed by LEVEN-THAL, Circuit Judge.
LEVENTHAL, Circuit Judge:
These cases arise from the final phase, Phase 9, of the Civil Aeronautics Board’s (CAB or Board) comprehensive investigation and re-evaluation of domestic air.fares, the Domestic Passenger Fare Investigation (DPFI). Phase 9 (Fare Structure) was mainly concerned with establishing a formula for coach fares as a function of distance. There have been no challenges to the formula adopted by the CAB. The present challenges concern the Board’s determination of the proper relation (a) between coach class fares and economy class fares (petitioner, Continental Air Lines; intervening respondent Trans World Airlines), and (b) between coach and first class fares (petitioner Northwest Airlines; intervening petitioner, American Airline^).
I. BACKGROUND
Hearings were held between June 29 and September 30, 1971 before Administrative Law Judge Robert M. Johnson. ALJ Johnson issued his initial decision on April 7, 1972. He found that coach fares should be cost-related, f.e., geared to the cost structure, but also reflecting other considerations (notably value of service), rather than be cost-based, i.e. based strictly on costs. He recommended maintenance of the then existing ratios of the 3 permanent class fares — economy fare at 90% of coach fare, first class fare at 130% of coach fare.
In its opinion and order of March 18, 1974, the CAB found that, to be reasonable, permanent fares, such as first class and economy, had to recover their full share of allocated costs. In the case of economy class, the CAB found that the only significant difference from coach class in the service provided, and hence in the cost of providing it, was the absence of the complimentary meal provided on coach flights with meal service. Hence, economy fares could not be set at more than $4 below coach.
As to first class fares, the CAB mandated that minimum first class fares be increased, over a period of 2Vi years, to 150-163% of coach fare, depending on distance. These fares reflect the CAB’s determination of the relative cost of first class service, ascertained primarily by allocating total costs by the cabin space occupied, but also including the cost of a higher level of cabin amenities.
These fare decisions are based on the CAB’s conclusion that unless fares of the different classes reflect the cost of providing the respective services, there will be a subsidy between classes in the long run. In particular, the CAB found that allowing first class and economy fares below their proportionate costs would burden the predominate coach passenger in the long run, either in the form of higher fares or poorer service.
II. ECONOMY. FARE DETERMINATION
A. Continental’s Petition for Reconsidera-'tion and Motion to Reopen the Record
On April 29,1974, Continental and Northwest, as well as other carriers, petitioned the CAB for reconsideration of its March order. In addition, on October 31, 1974 Continental moved to reopen the record on the economy fare to consider the allegedly increased need for a below-coach fare due to the drastic reduction of discount fares subsequent to the 1971 hearings, and to allow Continental to prove that the correctly allocated cost savings of economy vis á vis coach was greater than $4. On December 27, 1974, on reconsideration, the CAB reaffirmed its March decision, making certain adjustments, such as delaying the schedule for increasing first class fares by nine months. At the same time, the Board denied Continental’s motion to reopen the record. It ruled that Continental’s proffer of increased use of economy class, with the elimination of most discount fares, was irrelevant to the Board’s determination that in order to be reasonable in the long run fares for a class of service must reflect pertinent costs for the service. It further stated that Continental had had its chance to support its proposed lower economy fare on the basis of lower costs, knowing as it did that costs are, at least, a prime factor in fare setting.
In support of its challenge of the Board’s refusal to reopen the record, Continental asserts that it was not on notice of the CAB’s intention to require permanent fares to recover their full share of cost until the decision in the U. S. Mainiand-Hawaii Fares Investigation, in which the Board first required economy fares to cover full costs, and which came six weeks after the ALJ’s decision in the, present Phase 9.
The DPFI was instituted in 1970 as a general investigation of all aspects of passenger fares. In the decade since the previous comprehensive fare investigation, the 1960 General Passenger Fare Investigationi, there had been great growth in the airline industry, the introduction of jet aircraft, and the imminence of the introduction of wide-bodied jets. In the DPFI the CAB set out to determine fare policy, balancing the interest of consumers, the air carriers, and the national interests in developing air transport and defense. One of the parties to the investigation, the Department of Transportation (DOT), urged the Board to adopt fares based entirely on the cost of the service (including a fair return), based on its economic theory of the airline industry. Although Continental presented data on cost savings in economy class to support its 85% of coach fare proposal, it did not claim that the 85% was justified “based strictly on cost.” It advocated a “cost related” rather than a “cost based” approach. Continental justified the 15% lower economy fare on grounds of: the public interest in a low fare service, the effect of economy fare in generating new air traffic, value of service, and increasing management flexibility. The Board rejected this position, adopting the position that permanent fares should be cost based. Continental had full opportunity to make the best case possible for its position and cannot now claim unfair surprise because the Board adopted a competing one.
In its motion to reopen the record, Continental sought the opportunity to prove that the “fully allocated” cost difference between economy and coach justified a rate difference in excess of the 10% recommended by the ALJ. The request to reopen the record to prove a greater economy/coach cost difference was based on Continental’s argument of unfair surprise in the Board’s insistence on cost-based fares, which we have rejected. In addition, Continental claims that changed circumstances between 1971 and 1974, primarily the elimination of discount fares, led to a great increase in the use of and “need” for the economy fare at 85-90% of coach, rather than the $4 difference on meal flights established by the Board. Of course, it is unfortunate when the Board must rely on a three year old record. Yet that record is supplemented by official notice, as appropriate, of schedules, fares, traffic, and revenue data. In the nature of things, a rulemaking completely reevaluating the domestic fare structure takes time. In the absence of a compelling showing of unfair surprise or changed circumstances, there is no reason to mandate further delay and reopening of the record. The Board is correct in saying that Continental’s contentions of changed circumstances are “of no decisional significance” in light of its policy determination of the need for permanent fares to return their full share of costs in the long run.
B. Record Support for the Board’s Theory
We turn now to the record support for the premise underlying the Board’s Phase 9 structure determinations, that all permanent fares should be proportionate to the cost allocated to each type of service. The record material appears in Phase 5, which contains both evidence submitted by the Department of Transportation, and its acceptance in the conclusion of the Board, to the effect that in the long run there are roughly constant returns to scale in the airline industry, i.e., that an increase in size of operations does not produce a reduction in unit costs, and that hence there is no cost saving by permitting below-average cost fares to generate additional air traffic, except as a temporary measure to fill excess capacity. Another way of putting it, at least as we understand the matter, is to say that once a carrier reaches the level of air service of these regulated trunk carriers, there are no further economies of scale.
The Board’s conclusion was used in Phase 5 in support of the decision that discount fares would only be permitted (a) for short periods (18 months or less), and (b) on a showing that they would generate sufficient new traffic to offset diversion from regular coach class plus the additional cost of carrying the new traffic (the profit impact test).
Stated in more detail, the Board’s approach in Phases 5 and 9 runs as follows: All costs are variable in the long run. There are constant returns to scale. Traffic-generating discount fares do not produce cost savings but rather burden the normal fare passenger. There will be more traffic in classes where rates are below cost of service than there would be if those classes were paying their full share of costs. The bargain for economy class will lead to an increase in the average load factor impairing the service received by the coach passenger by reducing flight availability, both in flexible scheduling and reasonable assurance of a seat in peak periods when flights run full. In the alternative, or in combination, the airlines could increase capacity, which.would result either in increased fares for coach passengers to cover increased capital costs, or if such increase of coach fares were.denied would result in an adverse effect on the long term financial health of the carriers, a condition that would, in turn, adversely affect service in the long run. In sum, the theory predicts that permanent discounts or below-cost fare classes will burden the coach passenger in the long run in poorer service (higher load factors or financially weak carriers) or higher fares to pay for additional aircraft.
This is a case that turns not on finding of fact, where the legal inquiry on review is whether there.is substantial evidence probative of the fact, but rather on the legal issue whether an agency is arbitrary in adopting a policy based on an economic approach or theory. The Board has adopted a policy for the long run, adopting an economic approach that is based on industry data, as analyzed in studies of economists. The data-cum-analysis provide support for the Board’s order in the sense that it shows the Board’s approach is reasonable, even assuming that the underlying theory is in the realm of expert debate rather than incontrovertible truism. The test of reasonableness is satisfied unless the court is prepared to intervene on some principled basis, say, to assert that the approach is inconsistent with facts of experience that have been established by proof or judicial notice.,
• Here the underlying premise-, constant returns to scale for trunk.carriers, becomes a linchpin of regulatory policy because it is combined with an economic theory that involves a projection of long run carrier response to conditions of below-cost fares for classes of service. This projection is not capable of immediate verification either by way of proof or disproof. The Board faced a similar problem in regard to the long term effect of discount fares in Phase 5 of the DPFI. The Board found support for its theory in the Phase 5 record in the repeated testimony of many carriers that in planning their needs for capacity additions, they considered the total projected reserved seat, i.e., not standby, passenger volume. That is, the purchase of new aircraft was approached on the assumption that expected passengers had to be flown, regardless of whether at a normal or discount fare.
Although this support appears in the record in a different context, we cannot say that this economic regulatory theory cannot travel well, or that its use in the economy fare context reflects such differences of condition that the transfer theory must stand condemned as bereft of reasoned judgment. There is no testimony in the record of such differences of condition, and we have no basis to insist that such differences exist. Indeed, assuming merit in the theory of constant returns to scale for trunk carriers, it seems reasonable to project a more confident application to a permanent, regular reduction in fare for economy service than to discount fares. The economy class service at issue is the same as coach except for meal service. Continental offers economy class service in all its markets. In contrast, discount fares have restrictions such as “blackout” periods and length of stay restrictions, to divert traffic and smooth out the peak load periods. In general, it would not seem unreasonable to treat economy passengers as essentially equivalent (“additive”) to coach passengers in terms of future capacity needs.
A theory of ratemaking must be reasonable, explained, and supported, but is not subject to the same substantiation principle as the substantial evidence test applicable to fact-finding. “Although this is a finding, it is in the area of prediction and projection, as to which particular latitude is accorded the agency.” Western Air Lines v. CAB, 161 U.S.App.D.C. 319, 327, 495 F.2d 145,153 (1974). The Board has the function of regulation of rates but not direct regulation of service, and it must discharge its regulation of rates in the light of a projection of the service that will be provided by the carriers in the light of the rate levels and rate profiles set by the Board. Judicial respect for that kind of agency projection is mandated by Mobil Oil Corp. v. FPC, 417 U.S. 283, 318-19, 94 S.Ct. 2328, 41 L.Ed.2d 72 (1974).
The Board’s approach to the economy fare issue is sustainable as (a) consistent with respectable economic theory, (b) applied in a situation of a regular continuing service that is identical to basic coach service except for the meal, (c) supported by general economic data on costs of the airline industry, and the carriers’ testimony in Phase 5. The Board’s general insistence that fare differences for variations in service be restricted in extent to the cost differences resulting from the variations is unassailable on review — unless we ascertain that countervailing ratemaking policy factors are mandated by the Federal Aviation Act. We now consider whether there is such a showing in this case.
C. CAB Consideration of Ratemaking Factors
Continental claims that the Board erred in relying solely on costs to the exclusion of the other considerations set forth in the Rule of Ratemaking, § 1002(e) of the Federal Aviation Act of 1958. We pointed out, in our 1974 American Airlines opinion upholding the Board’s determination of interline joint fares in Phase 4 of the DPFI:
Of the many factors properly considered in setting rates, cost of service is in most instances the most important, J. Bonbright, Principles of Public Utility Rates 67 (1960), and has frequently predominated in many areas of regulation, (citations omitted). The Board is not required to deviate from the cost principle absent countervailing considerations recognized by statute.
Continental distinguishes American as involving an order “eliminating the above cost fares which unnecessarily burden the public,” while here the Board is requiring an average increase of discount fares, allegedly in conflict with the public interest in law fares and having an adverse effect on “the movement of traffic.”
Section 1002(e) is a reenactment of the provision in the original 1938 statute. Section 1002(e)(1) does identify the public interest in low fares, but it lies in securing “the lowest cost consistent with the furnishing” of “adequate and efficient service.” Subsection (5) expressly identifies the carriers’ need for revenues sufficient to enable efficient management to provide such service. Continental does not seriously challenge the Board’s finding of $4 as the cost savings of not providing a coach meal. Continental’s proposal to offer an economy service at 85-90% of coach is price competition. Price competition is one of the chief objectives of the antitrust law, and almost universally in the public interest in the unregulated sectors of the economy not properly subject to restraints. However, the airline industry is regulated, by the CAB. The legislative history of the Civil Aeronautics Act of 1938 makes it clear that the law delegates authority to the agency to cope with and protect against disastrous rate wars and cutthroat competition. The Act does embody a general policy that regulation be conducted in such a way as to respect the working of competition among entrepreneurs risking private capital. Continental Air Lines v. CAB, 171 U.S.App.D.C. 295, 519 F.2d 944 (1975), cert. denied, 424 U.S. 958, 96 S.Ct. 1436, 47 L.Ed.2d 365 (1976). Continental is willing to take the risks and burdens of price competition to increase its market share and claims that it will not have to add capacity due to economy service because in the absence of such incentives its route structure leaves it with excess capacity. However, the Board has authority to state the basic ground rules for rate competition so that one carrier does not imperil general industry performance.
In Phase 9 the Board established the fare structure for the whole airline industry. The Board has made a not unreasonable determination that where a rate structure generally supplies the industry with reasonable returns that match cost of service, the approach of offering a particular below-basic service at a discount that exceeds the cost savings will operate in the long run to burden the basic coach passenger, with poorer service or higher fares. That determination is binding on this court, at least in the present state of the record and experience. It means that we cannot require the Board to permit Continental to impose these risks on the air transport industry.
Similar reasoning disposes of Continental’s contention that the Board failed to consider the advantageous effect on “the movement of traffic” of a significantly lower basic fare to allow people who can’t afford coach fares to fly. Clearly, Continental’s proposed economy fares would make airplane travel more available to the less affluent and increase traffic volume. However, the Board has considered this effect and concluded that the result, unjustified by the cost of the difference of service, the meal, would be a burden on the coach passenger in the long run. Without considering whether the Act required the Board to adopt that approach, we hold that the Act did not prohibit that approach.
D. Inconsistency With Other Parts of the DPFI
Continental argues that the Board’s rigid, categorical application of its cost-based policy to the economy fare is arbi-
trary and inconsistent with the Board’s concurrent treatment of other non-cost-based fares: Continental identifies these contrasts: (1) As to economy service, the
Board imposed cost-based fares immediately, while it adopted a gradual approach in reaching cost-based fares in the cases of (a) differentials for discount and first class fares and (b) the congruence of costs and fares as a function of distance (the “fare taper”). (2) As to economy service, the Board decided to allow no fare difference between coach and economy fares on flights with no meal service, while it permitted the same fare differential to be maintained for first class fares as against coach fares even on flights where no meal is served. Reasoned decisionmaking requires an agency to explain changes of policy from past decisions and apparent inconsistencies within the same decision.
1. Distinction between Board’s policies for discount and economy fares
In Phase 5 of the DPFI, the CAB decided that discount fares would only be permitted to alleviate temporary excess capacity conditions to prevent “promotional fares from becoming permanently embedded into the fare structure and thereby burdening the general fare level and the normal-fare passenger.” Discount fares were only permitted with a life of 18 months or less and only if they met a “profit impact” test. There is no showing bj* Continental that its economy service meets the “profit impact” test. The Board distinguishes its Phase 9 decision as involving fare differences between permanent classes of service. Continental replies that although each discount plan is “temporary,” they keep cropping up so as to be a permanent feature of the landscape.
We think the Board’s distinction of its discount fare policy is sufficient to satisfy the requirement of reasoned decisionmaking. It is true that in 1975 the Board allowed new discount fare plans, in light of the effect of the recession on the airline industry. But this is no indication that discount fares are a permanent feature of CAB regulation, and will be permitted in a time of recovery of profits. There is a distinction in time limitation; discount fares require reevaluation after 18 months, while Continental’s proposal is for an enduring economy fare. Moreover, the Board imposed other restrictions on discount fares (e. g. blackout periods, length of stay restrictions, and advance purchase requirements) to reduce diversion from coach, which is the objective of the “profit impact” test.
2. Differences in timing of effectiveness of cost based approaches
We turn to the issue that the Board ordered immediate application of the cost-based economy fare at $4 less than coach on meal flights, while it permitted a gradual approach to the “fare taper.” The basic validity of the fare taper is not contested in these cases-. In general air fares embodied a “taper” of reduction (on a per mile basis) with increasing distance. This “taper” has reflected the undisputed economic condition that cost per mile decreases with increasing 'distance. However, prior to Phase 9 coach long hauls did not show fare reduction per mile comparable to the decrease in costs per mile. This resulted in coach fares yielding greater revenue in comparison to costs, for long distance flights than for short distances. The Board adjusted the coach fare taper formula in the direction of the cost formula, to be implemented four months after the order on reconsideration, and even after four months did not go all the way to a cost-based formula.
As to the Board’s requirement of cost-based first class fares, the Board phased that into effect over a period of 2Vi years. Continental protests these differences in timing approach as impermissible inconsistencies.
The Board recognized the possibility of adverse effect on the airlines’ profits in the short run by its new first class fare policy. The first class fare increases were phased in to allow accommodation, e. g., in aircraft configuration, to the new first class rates. The Board’s finding never explain in so many words why a similar phase-in was not allowed for economy fares. Its brief before this court states: “Economy service is but a minor part of the carriers’ total traffic (less than 1 percent) and the establishment of a cost-based coach economy fare differential could have no comparable [to a cost-based coach taper formula] impact on the transportation system and traffic patterns.” However, since, even at the time of the Phase 9 hearings, Continental carried about 75% of all economy passengers, and it constituted about 10% of its total traffic, economy class is significant to Continental. Elimination of the competitive attractiveness of economy service, which Continental aggressively promotes, would likely affect Continental’s ability to compete (and fill its currently purchased and scheduled aircraft) in the routes where it lacks the benefits of beyond segment traffic. Although economy traffic and revenue is small compared to first class, the long-run benefits and immediate burdens are proportionate to the traffic volume involved and the difference between present fares and cost-based fares.
We are not comfortable with the way the Board handled the introduction of cost-based economy fares vis á vis first class ones. However, on March 20, 1974, the Board granted Continental’s motion for a stay of Order 74-12-109’s economy fare provisions. Pending a CAB order following our affirmance of Order 74-12-109, Continental has been able to continue economy service at 90% of coach. Thus, Continental has had a two year delay in implementation of the Board’s order on economy without any phase-in. The actual difference in timing impact does not appear to be significant either in absolute terms or impact on Continental. Further consideration of the difference of treatment of economy and first class is unnecessary.
3. Differences in extent of adoption of cost-based approach
The Board’s decision to move only roughly half-way toward a completely cost-based coach fare taper, was discussed on reconsideration:
To begin with, our determination to proceed with caution in implementing a cost-based structure of coach fares was not grounded upon, as Continental implies, any acceptance of the desirability of cross-subsidization of short-haul traffic by long-haul traffic, or even any acceptance of value-of-service pricing. Instead, our determination to take only a first step in the direction of a cost-based coach-fare structure, rather than prescribing a definite timetable for implementation of such a structure, was primarily based on the fact that since the airlines’ entire systems are geared to the traffic patterns resulting from the present coach-fare structure, and since the parties’ evidence did not permit us to draw definitive conclusions as to the effect on traffic of a major change in the coach-fare formula, it would be unwise to undertake drastic changes in the structure of coach fares.
The Board’s core concern is that a fully cost-based fare taper might have a drastically disruptive effect on passenger traffic volumes in many sectors of the domestic air routes of a magnitude unpredictable on the evidence available. The Board acknowledged that its concern was speculative, voiced on a record without pertinent evidence and therefore dependent solely on “informed judgment.”
The Board’s position that a full application of the cost-based theory to the distance taper problem might well have a drastic, disruptive effect on broad segments of the airline industry, provides justification for implementing the approach by first taking a substantial step in the preferred direction, with opportunity thereafter to gauge the effect by experience. The Board’s intermediate premise is that there was good reason to anticipate that the effect of a cost-based fare taper formula would be distinctly more unsettling than cost-based economy and first class fares. We think this is a situation where “the agency’s path may reasonably be discerned.” Adoption of a fully cost-based fare formula would have resulted in fare increases in some short-haul markets on the order of 50%. The Board feared a severe impact on short haul air traffic volume, which competes with surface transportation. The Board’s judgment of elasticity of the pertinent demand was, in its words, “necessarily speculative.” Although the Board attempted to assure that this would not result in severe losses for the industry, there would inevitably be variations among different carriers, depending on the average length of their routes.
Continental does not complain that the Board failed to determine policy exclusively on industry “average” projections. It would rather go further and argue that the Board should and must invariably consider the effects on various individual carriers. An administrative agency should be able to proceed pragmatically, testing theory in the light of experience. The Board was reasonable in acting cautiously so as to ascertain the possible redistributive effects of its cost-taper policy. In contrast, the economy fare had been found to involve a diversionary effect (attracting from coach) outweighing its new market effect. The converse is that the dropping of the economy fare will not lose passengers in marked degree, that the bulk of economy passengers will continue to fly, either at the higher (cost-based) economy fare, or at coach fare. Even assuming, as Northwest and American claim, the required fare increase for first class drastically reduces that demand, most of the affected passengers will still fly, and while their movement in coach reduces airlines’ revenue, there will be some offsetting reduction in costs. On the other hand, the cost-based fare taper might have drastic effects on revenue, traffic volume and schedules. Raising short-haul fares might divert significant numbers of passengers to surface transportation. Lowering long-haul fares might make these routes less profitable, leading to reductions in scheduling and service. We are not called upon at this juncture to decide whether to what extent or under what conditions an agency could combine a general cost-based rate approach with a different approach, say one that focuses on “value of service”, or the overall effect on revenues of differentials that “charge what the market will bear.” Thus far at least, except for the specialized instance of local service carriers where the Board was trying to reduce Government subsidy, its general cost-based approach is predicated upon the theory expounded by the DOT and respectable economists, that in the long run there will be a constant return to scale. Our acceptance of the Board’s use of a different rate profile, as it were, for the distance taper, as not reflecting an impermissible inconsistency, is based on the reasonableness of the Board’s effort to gain experience in light of the unknown and possibly disruptive effects of a cost-based fare taper. This position has a corollary: when there has been reasonable time to conduct and evaluate this experiment, the Board has a duty to reevaluate the matter. In reviewing its fare structure policy, the Board must take a consistently explained position concerning its cost-based approach to fares.
4. Local service carriers
We turn to the Board’s decision in Phase 9 to allow local service carriers to charge up to 130% of the prescribed coach fare formula. Local service carriers, operating short-haul routes, are not able to operate profitably at the standard formula fare on the often low volume routes they serve. They typically receive subsidies from the government to provide the public service that they do. It is within the CAB’s authority to authorize local service carrier fares to exceed the standard formula prescribed in Phase 9, in order to reduce public subsidy.
5. The missing meal
We turn now to what Continental has dubbed “the mystery of the missing meal.” The issue, it will be recalled, is that the Board permits the $4 economy/coach difference only on flights with meals, reasoning that there is no cost difference between coach and economy services on non-meal flights. This is inconsistent, Continental avers, with the permission of the first class/coach differential regardless of whether a meal is provided, since part of the greater cost of first class is the fancier meal. Implicitly, the Board is saying that the difference in meals is the sole difference between economy and coach, and is only a minor factor in the first class/coach cost difference, which is primarily due to the different space occupied. We might not find this convincing if it were solely an appeal to administrative convenience. On the other hand, there is a certain element of substance in the premise that the first class/coach “class-style” difference is a total package, that the meal difference is only a small part of the cost difference, and that in consumer perception it is a relatively minor part of the package. Continental’s counsel has skillfully argued the problem, but we find the Board’s position barely adequate on this score.
III. APPLICATION OF COST-BASED THEORY TO FIRST CLASS FARES
Having upheld the Board’s adoption of the long term burden/cost theory and its application to the economy class, we turn to Northwest’s challenge to its application to first class service. Essentially the Board’s first class fare orders are congruent with the economy fare orders, in approach and application, and we have no basis for a difference in our decision.
The CAB’s determination of cost differences between first class and coach service reflects higher levels of cabin service and food amenities, but the bulk of the difference results from “space allocation” dividing the total costs of the flight among the classes in proportion to the cabin space occupied by each. While the parties challenging the Board’s order concerning first class fares, Northwest and American, object to this method of cost allocation, they do not seriously challenge the ratios (150-163%, depending on the length of the flight) found by the Board using its method of cost allocation. Various carriers argued in Phase 9 for different methods of determining the cost of first class service based on their premise that capacity is not scarce now, nor is it likely to be in the future based on the Board’s 55% load factor standard for rate-making, scheduling competition, and the Board’s alleged practice of certifying new competition if load factors go significantly above 55%. These carriers argued for incremental cost methods which attribute less flight costs to first class than the Board’s “space-allocation.”
In its Phase 9 decision, the Board considered the rejected proposals for “opportunity” or “displacement” costing. While the Board has an obligation to consider proposals by the parties, the Rule of Administrative Law requiring a statement of the reasons for adoption of standards and approaches does not require comparable detail for the reasons for discarding alternative approaches preferred by the parties. We are satisfied with the Board’s treatment here, beginning with its initial notation that “[wjhatever the relevance of demand considerations may be to the pricing of first class service, they ought not preclude a realistic appraisal of the costs of the service.” (Emphasis in original).
The nub of the carriers’ argument is that in an assumed state of a continuing surplus of capacity, it will maximize the carriers’ revenue to offer first class service at below-space allocation-cost to lure more passengers into buying more of the “excess” airplane space. Maximizing revenues, it is argued, benefits the coach passenger by holding down the need for fare increases.
It appears reasonable to us to allocate flight costs on the basis of space occupied, given that cabin space is interchangeable, with relative ease, between first class and coach accommodations. Whether this is viewed as a problem of cost accounting, economic theory or regulatory judgment, we cannot say that the Board’s conclusion lacks rationality.
Turning to the effect of cost-based fare differentials on revenues, the Board recognized that the required increases in first class fares (to a ratio to coach fares commensurate with relative cost) would operate, by some diversion of first class passengers to coach, to decrease carriers’ revenues, and perhaps profits as well — in the short run. It granted that the carriers’ analysis of the public interest in below-cost first class fares might be correct — in the short run. However, the Board determined to establish its cost-based fare policy for the long run. It took account of the tendency of the carriers to indulge in and perpetuate cycles of overcapacity. The Board used long-run standards and approaches in order to create a favorable environment for sound planning about future capacity, while phasing in the implementation of this policy over a period of 2¼ years to ameliorate the immediate impact, given the existing excess capacity, and to allow gradual adjustment. It viewed the long run consequences of below cost pricing of first class service, by application of its now-familiar long run cost theory, as burdening the coach passenger. The coach passenger will in the long run suffer either poorer service or higher rates. As we have already stated, this regulatory approach is sufficiently grounded in Phase 5 data and in economic theory to permit adoption by the Board as its policy for permanent fare structure.
In further support of its first class fare determination, the Board adduces two factors. First, if, as the carriers contend, and the Board concedes is likely, the substantial increases ordered in first class fares will result in significant short-run diversion from first class to coach with a corresponding reduction of revenues, the rational reaction to the carriers will be to reduce the amount of first class capacity offered. Since coach seating is denser, this transformation will increase capacity without acquisition of any new aircraft, thereby reducing future capacity increase needs and costs. Secondly, the Board bolsters its contention that the carriers have tended to offer too much first class under the existing first elass/coach fare ratios.
These long-run burdens are particularly exacerbated if the carriers offer a volume of first-class capacity which is out of proportion to first-class traffic, as has been the case in recent years. Since 1963, first-class load factors, for domestic operations of the domestic trunks, have been below fifty percent in every year but one, and have not exceeded 45 percent since 1967. In 1972, as we noted earlier, while first-class traffic accounted for only 12.2 percent of the trunks’ domestic traffic, the trunks devoted 18 percent of their capacity to first-class service. In that year their first-class load factor was a mere 35.5 percent.
As we pointed out in our prior opinion, first-class load factors have been considerably below average for the past several years. In the year ended May 1974, the first class load factor for the domestic operations of the domestic trunks was only 38.8%, as compared with a coach load factor of 58.2%. The only reasonable conclusion that can be drawn is that in peak periods, persons who can only afford the coach fare are turned away, while first-class passengers travel in splendid, low load-factor isolation.
Language like this leads Northwest to charge that the Board’s actual goal is the elimination, or drastic reduction, of first class service. Northwest contends that this violates § 401(e)(4) of the Federal Aviation Act, which prohibits CAB regulation of the accommodations and facilities provided by carriers.
We considered § 401(e)(4) in Continental Air Lines, Inc. v. C.A.B., 173 U.S.App.D.C. 1, 522 F.2d 107 (1974). There, we struck down the Board’s policy and implementing orders to eliminate the “unnecessary frill” of coach lounges and five abreast seating on narrow bodied jets. This was to be done by encouraging carriers without these frills to apply for a fare reduction, while prohibiting competitors with lower density coach from matching the reduction. Since the Board’s policy in the very Phase 6A (Seating Configurations) under consideration was to establish fares based on costs in the dense configuration (six abreast and no lounge), this rate reduction, not based on costs, was inconsistent with the Board’s cost based fare policy throughout the DPFI. In the present case, however, the Board has based its fare policy on a determination of cost difference.
Our Continental opinion explicitly distinguishes the type of action taken by the Board here:
Consequently, the TWA Siesta Sleeper-Seat case — based on the principle of preservation of the distinction between classes of service

Question: What is the general category of issues discussed in the opinion of the court?
A. criminal and prisoner petitions
B. civil - government
C. diversity of citizenship
D. civil - private
E. other, not applicable
F. not ascertained
Answer:

Answer: B