**Before the**

**Federal Communications Commission**

**Washington, D.C. 20554**

In the Matter of )

) File No. EB-00-IHD-0079

The KBOO Foundation ) NAL/Acct. No. 200132080056

) Facility ID \# 65755

Licensee of Noncommercial Educational )

Station KBOO-FM, Portland, OR )

## 

## NOTICE OF APPARENT LIABILITY FOR FORFEITURE

**Adopted:** May 14, 2001 **Released:** May 17, 2001

By the Chief, Enforcement Bureau:

## I. INTRODUCTION

1\. In this Notice of Apparent Liability for Forfeiture (\"NAL\"), we
find that The KBOO Foundation, licensee of noncommercial Station
KBOO-FM, Portland, Oregon, apparently violated 18 U.S.C. § 1464 and 47
C.F.R. § 73.3999, by willfully broadcasting indecent language. Based on
our review of the facts and circumstances in this case, we conclude that
The KBOO Foundation is apparently liable for a forfeiture in the amount
of seven thousand dollars (\$7,000).

# 

# II. BACKGROUND

2\. The Commission received a complaint alleging that KBOO-FM broadcast
indecent material on October 20, 1999 between 7:00 p.m. and 9:00 p.m.
during the "Soundbox." The complainant submitted a tape containing
allegedly indecent material that aired on the "Soundbox" on this date.
After reviewing the complainant's tape, we issued a letter of inquiry to
the licensee.

3\. In its response, The KBOO Foundation argues that the material is not
indecent, and that no sanction is warranted. In this regard, The KBOO
Foundation states that the "Soundbox" program features contemporary rap
and hip hop music often structured around themes that provide a larger
social or cultural context, to explore, for example, topics such as
"violence, racial oppression or the judicial system." The KBOO
Foundation asserts that it "broadcasts rap and hip hop music not to
achieve commercial success, but to fulfill its mission of 'providing a
forum for unpopular, controversial neglected perspective on important
local, national, and international issues,'" and to "reflect the diverse
cultures we serve." The KBOO Foundation also has supplemented its
response by submitting declarations of the author of the lyrics of the
allegedly indecent song cited in the complaint and of a professor at a
local university. These declarations are offered in support of The KBOO
Foundation's argument that, in context, the material allegedly broadcast
on KBOO-FM is not indecent. In addition, The KBOO Foundation states that
it provides training to its local programmers, most of whom are unpaid
volunteers, concerning the Commission's rules and the station's
policies, including its prohibitions against the broadcast of indecent
material. The KBOO Foundation supplement also includes a petition signed
by listeners who support the "Soundbox."

4\. The KBOO Foundation asserts, in the alternative, that the complaint
should be dismissed based on the amount of time that has elapsed since
the allegedly indecent material was broadcast. The KBOO Foundation
states that it cannot determine with certainty whether it aired the
allegedly indecent material cited in our letter of inquiry. However, The
KBOO Foundation has determined that its music library contains the song
"Your Revolution" that was excerpted in our letter of inquiry.

**III. DISCUSSION**

5\. Section 503(b)(1) of the Communications Act (the "Act"), 47 U.S.C. §
503(b)(1), provides in pertinent part:

> Any person who is determined by the Commission, in accordance with
> paragraph (3) or (4) of this subsection to have \-\--
>
> ...
>
> \(D\) violated any provision of section 1304, 1343, or 1464 of title
> 18, United States Code;
>
> shall be liable to the United States for a forfeiture penalty.

18 U.S.C. § 1464 provides criminal penalties for anyone who "utters any
obscene, indecent or profane language by means of radio communication."
As explained below, we believe that "Your Revolution" contains indecent
material and that the licensee's broadcast thereof was willful.

6\. The Commission has defined indecent speech as language that, in
context, depicts or describes, in terms patently offensive as measured
by contemporary community standards for the broadcast medium, sexual or
excretory activities or organs. *Infinity Broadcasting Corporation of
Pennsylvania*, 2 FCC Rcd 2705 (1987) (subsequent history omitted)
(*citing* *Pacifica Foundation*, 56 FCC 2d 94, 98 (1975), *aff'd sub
nom*. *FCC v. Pacifica Foundation*, 438 U.S. 726 (1978). The
Commission's authority to restrict the broadcast of indecent material
extends to times when there is a reasonable risk that children may be in
the audience. *Action for Children's Television v. FCC*, 852 F.2d 1332
(D.C. Cir. 1988). Current law holds that such times begin at 6 a.m. and
conclude at 10 p.m. *Action for Children's Television v. FCC*, 58 F.3d
654 (D.C. Cir. 1995), *cert. denied*, 116 S.Ct. 701 (1996). Thus, to be
actionably indecent, the material in question must not only meet the
standard referenced above but also air after 6 a.m. and before 10 p.m.
*See* 47 C.F.R. § 73.3999.

7\. After carefully considering the record before us, it appears that
KBOO-FM has willfully violated our indecency rule with respect to the
broadcast of "Your Revolution." The KBOO Foundation points to the length
of time that has elapsed since the broadcast that is the subject of the
complaint, and argues that it cannot determine whether the song aired on
the date and time alleged, or whether it might have aired an edited
version of the song. In this regard, the station does not possess tapes
or transcripts of the "Soundbox" for the date in question. However, the
KBOO Foundation does not claim that tapes or transcripts are generated
and retained, or that this material would have been available earlier.
The KBOO Foundation acknowledges that the station's music library
contains the song, and has provided a transcript of the lyrics of "Your
Revolution." Although the KBOO Foundation asserts that an edited version
of the song may have been broadcast, it does not indicate that the
station possesses such an edited version of "Your Revolution." Moreover,
the tape of the October 20, 1999 "Soundbox" submitted by the complainant
contains the unedited version of "Your Revolution," which corresponds to
the transcription included in The KBOO Foundation's response.

8\. The rap song "Your Revolution" contains unmistakable patently
offensive sexual references. We have considered The KBOO Foundation's
arguments concerning the context of this material. Specifically, the
KBOO Foundation asserts that the rap song "Your Revolution" cannot be
separated from its contemporary cultural context. In the alternative,
The KBOO Foundation argues that even if context is limited to the song's
lyrics, "Your Revolution" is "a feminist attack on male attempts to
equate political 'revolution' with promiscuous sex" and as such, is not
indecent. However, considering the entire song, the sexual references
appear to be designed to pander and shock and are patently offensive. In
this regard, we reject The KBOO Foundation's argument that it is
erroneous, as a matter of law, to find that the song is indecent without
considering the artistic merit of the rap music genre. Merit is one of
the variables that are part of the material's context, and the
Commission has rejected an approach to indecency that would hold that
material is not *per se* indecent if the material has merit.[^1] The
contemporary social commentary in "Your Revolution" is a relevant
contextual consideration, but is not in itself dispositive.[^2] The
Commission previously has found similar material to be indecent, and we
see no basis for finding otherwise in this case.[^3] In addition,
although The KBOO Foundation has submitted a petition signed by
listeners who support the "Soundbox," we have previously ruled that
neither the statute nor our case law permits a broadcaster to air
indecent material merely because it is popular.[^4]

9\. Section 503(b) of the Act and 47 C.F.R. § 1.80 both state that any
person who willfully or repeatedly fails to comply with the Act or the
Commission's rules shall be liable for a forfeiture penalty. For
purposes of 47 U.S.C. § 503(b), the term "willful" means that the
violator knew that it was taking the action in question, irrespective of
any intent to violate the Commission's rules.[^5] In assessing a
forfeiture, we take into account the nature, circumstances, extent and
gravity of the violation, and, with respect to the violator, the degree
of culpability, any history of prior offenses, ability to pay, and such
other matters as justice may require.[^6]

10\. The Commission's *Forfeiture Guidelines* set a base forfeiture
amount of \$7,000 for transmission of indecent material.[^7] After
considering all the facts and circumstances, we believe the base
forfeiture amount is the appropriate sanction for the violation
described above and that neither an upward nor downward adjustment
should be made.

**IV. ORDERING CLAUSES**

11\. Accordingly, IT IS ORDERED THAT, pursuant to 47 U.S.C. § 503(b),
and 47 C.F.R. §§ 0.111, 0.311 and 1.80, The KBOO Foundation is hereby
NOTIFIED of its APPARENT LIABILITY FOR A FORFEITURE in the amount of
seven thousand dollars (\$7,000) for willfully violating 18 U.S.C. §
1464 and 47 C.F.R. § 73.3999.

12\. IT IS FURTHER ORDERED THAT, pursuant to 47 C.F.R. § 1.80, within
thirty days of this NOTICE OF APPARENT LIABILITY, The KBOO Foundation
SHALL PAY the full amount of the proposed forfeiture or SHALL FILE a
written statement seeking reduction or cancellation of the proposed
forfeiture.

13\. Payment of the forfeiture may be made by mailing a check or similar
instrument, payable to the order of the Federal Communications
Commission, to the Forfeiture Collection Section, Finance Branch,
Federal Communications Commission, P.O. Box 73482, Chicago, Illinois
60673-7482. The payment should note the NAL/Acct. No. referenced above.

14\. The response, if any, must be mailed to Charles W. Kelley, Chief,
Investigations and Hearings Division, Enforcement Bureau, Federal
Communications Commission, 445 12th Street, S.W., Room 3-B443,
Washington, D.C. 20554 and MUST INCLUDE THE NAL/Acct. No. referenced
above.

15\. The Commission will not consider reducing or canceling a forfeiture
in response to a claim of inability to pay unless the respondent
submits: (1) federal tax returns for the most recent three-year period;
(2) financial statements prepared according to generally accepted
accounting practices ("GAAP"); or (3) some other reliable and objective
documentation that accurately reflects the respondent's current
financial status. Any claim of inability to pay must specifically
identify the basis for the claim by reference to the financial
documentation submitted.

16\. Requests for payment of the full amount of this Notice of Apparent
Liability under an installment plan should be sent to: Chief, Revenue
and Receivables Operations Group, 445 12th Street, S.W., Washington,
D.C. 20554.[^8]

17\. IT IS FURTHER ORDERED THAT a copy of this NOTICE OF APPARENT
LIABILITY shall be sent by Certified Mail Return Receipt Requested to:
The KBOO Foundation,

20 S.E. 8^th^ Ave., Portland, Oregon 97214; with a copy to its counsel,
John Crigler, Esq., Garvey, Schubert & Barer, 1000 Potomac Street, N.W.,
Washington, DC 20007.

FEDERAL COMMUNICATIONS COMMISSION

David H. Solomon

Chief, Enforcement Bureau

[ATTACHMENT]{.underline}

Radio Station: KBOO-FM, Portland, Oregon

Date/Time Broadcast: October 20, 1999, on the "Soundbox," between 7:00
p.m. and 9:00 p.m.

Material Broadcast: "Your Revolution"

(Various female voices)

Your revolution will not happen between these thighs

Your revolution will not happen between these thighs

Your revolution will not happen between these thighs

Will not happen between these thighs

Will not happen between these thighs

The real revolution ain't about bootie size

The Versaces you buys

Or the Lexus you drives

And though we've lost Biggie Smalls

Maybe your notorious revolution

Will never allow you to lace no lyrical douche in my bush

Your revolution will not be you killing me softly with fujees

Your revolution ain't gonna knock me up without no ring

And produce little future M.C.'s

Because that revolution will not happen between these thighs

Your revolution will not find me in the back seat of a jeep

With L.L. hard as hell, you know

Doing it and doing and doing it well, you know

Doing it and doing it and doing it well

Your revolution will not be you smacking it up, flipping it or rubbing
it down

Nor will it take you downtown, or humping around

Because that revolution will not happen between these thighs

Your revolution will not have me singing

Ain't no nigger like the one I got

Your revolution will not be you sending me for no drip drip V.D. shot

Your revolution will not involve me or feeling your nature rise

Or having you fantasize

Because that revolution will not happen between these thighs

No no not between these thighs

Uh-uh

My Jamaican brother

Your revolution will not make you feel bombastic, and really fantastic

And have you groping in the dark for that rubber wrapped in plastic

Uh-uh

You will not be touching your lips to my triple dip of

French vanilla, butter pecan, chocolate deluxe

Or having Akinyele's dream, um hum

A six foot blow job machine, um hum

You wanna subjugate your Queen, uh-huh

Think I'm gonna put it in my mouth just because you

Made a few bucks,

Please brother please

Your revolution will not be me tossing my weave

And making me believe I'm some caviar eating ghetto

Mafia clown

Or me giving up my behind

Just so I can get signed

And maybe have somebody else write my rhymes

I'm Sarah Jones

Not Foxy Brown

You know I'm Sarah Jones

Not Foxy Brown

Your revolution makes me wonder

Where could we go

If we could drop the empty pursuit of props and the ego

We'd revolt back to our roots

Use a little common sense on a quest to make love

De la soul, no pretense, but

Your revolution will not be you flexing your little sex and status

To express what you feel

Your revolution will not happen between these thighs

Will not happen between these thighs

Will not be you shaking

And me, \[sigh\] faking between these thighs

Because the real revolution

That's right, I said the real revolution

You know, I'm talking about the revolution

When it comes,

It's gonna be real

It's gonna be real

It's gonna be real

When it finally comes

It's gonna be real

[^1]: *See Infinity Broadcasting Corporation of Pennsylvania*,
    *Memorandum Opinion and Order on Reconsideration*, 3 FCC Rcd 930,
    932 (1987).

[^2]: *Id* at 932-33. The KBOO Foundation cites a case decided under
    Florida's criminal obscenity statute as support for its argument
    that material with artistic merit is not indecent. *Luke Records,
    Inc. v. Navarro*, 960 F.2d 134 (11^th^ Cir. 1992), *cert. denied,
    Navarro v. Luke Records, Inc*., 506 U.S. 1022 (1992). The court's
    determination that a lower court had not properly applied the
    tripartite obscenity standard of *Miller v. California*, 413 U.S. 15
    (1973), does not control our indecency analysis here.

[^3]: *See Capstar TX Limited Partnership (WZEE(FM))*, 16 FCC Rcd 901
    (EB 2001); *CBS Radio License, Inc. (WLLD(FM))*, 15 FCC Rcd 23881(EB
    2000)(Notice of Apparent Liability for Forfeiture), DA 01-537 (EB
    Mar. 2, 2001)(Forfeiture Order).

[^4]: *See, e.g., CBS Radio License, Inc. (WLLD(FM))*, *supra.*

[^5]: *See* *Jerry Szoka*, 14 FCC Rcd 9857, 9865 (1999); *Southern
    California Broadcasting Co.*, 6 FCC Rcd 4387 (1991).

[^6]: 47 U.S.C. § 503(b)(2)(D). *See also* *The Commission's Forfeiture
    Policy Statement and Amendment of Section 1.80 of the Rules to
    Incorporate the Forfeiture Guidelines*, 12 FCC Rcd 17087, 17100-01
    (1997), *recon. denied*, 15 FCC Rcd 303 (1999) ("*Forfeiture
    Guidelines*").

[^7]: *Forfeiture Guidelines*, 12 FCC Rcd at 17113.

[^8]: *See* 47 C.F.R. § 1.1914.