Northwest’s proposed service would offer convenient connections through Detroit from a substantial behind-gateway catchment area. However, Northwest’s proposal is largely duplicative of the Detroit-Shanghai service that it currently provides one-stop via Tokyo, and if it chose to do so, it could provide nonstop Detroit-Shanghai service without the award of additional frequencies. Northwest’s election to provide all of its China service over Tokyo -- whatever its commercial basis -- results in the U.S. public’s receiving fewer nonstop choices to China than otherwise might be provided. In these circumstances, we tentatively conclude that an additional award to Northwest would not be an efficient use of valuable frequencies in the restricted U.S.-China market when compared to the benefits of United’s Washington, D.C. (Dulles)-Beijing proposal, which will provide the first-ever nonstop service to China from the largest U.S. metropolitan O&D market without such service. [Footnotes omitted.]