Opinion ID: 321226
Heading Depth: 2
Heading Rank: 2

Heading: Consideration of Views of Various Groups

Text: 32 As we have noted, Congress has directed the FCC to make the public interest paramount in regulating the broadcast media. Communications Act of 1934 303, 47 U.S.C. 303 (1970). The Supreme Court has repeatedly stressed the primacy of the interests of the viewing public in the FCC's exercise of its powers. See, e.g., Red Lion Broadcasting Co. v. FCC, 395 U.S. 367, 390, 89 S.Ct. 1794, 23 L.Ed.2d 371 (1969). Thus the Commission must place the public interest above private interests in carrying out its duties, FCC v. Pottsville Broadcasting Co., 309 U.S. 134, 138, 60 S.Ct. 437, 84 L.Ed. 656 (1940), and must identify the public interest basis for its actions. Greater Boston Television Corp. v. FCC, 143 U.S.App.D.C. 383, 444 F.2d 841, 852 (1970), cert. denied, 406 U.S. 950, 92 S.Ct. 2042, 32 L.Ed.2d 338 (1971); WAIT Radio v. FCC, 135 U.S.App.D.C. 317, 418 F.2d 1153, 1157 (1969), cert. denied, 409 U.S. 1027, 93 S.Ct. 461, 34 L.Ed.2d 321 (1972). 33 These dictates should apply with even greater force where the Commission's conduct has as broad an impact on the public as the Prime Time Access Rule. The rule directly affects what millions of Americans watch on television for an hour every night and, indirectly, may affect all prime time programming. 34 The courts have held that under such circumstances the FCC and other federal agencies must listen to the views of groups representing various segments of the public before taking action. As we stated in Scenic Hudson Preservation Conference v. FPC, 354 F.2d 608, 620 (2d Cir. 1965), cert. denied, 384 U.S. 941, 89 S.Ct. 1462, 16 L.Ed.2d 540 (1966), the role of the Commission 35 'does not permit it to act as an umpire blandly calling balls and strikes for adversaries appearing before it; the right of the public must receive active and affirmative protection at the hands of the Commission.' 36 The Commission may reach compromises, Gross v. FCC, 480 F.2d 1288, 1290 (2d Cir. 1973); GTE Service Corp. v. FCC, 474 F.2d 724, 729 (2d Cir. 1973); WBEN, Inc. v. United States, 396 F.2d 601, 614 (2d Cir.), cert. denied, 393 U.S. 914, 89 S.Ct. 238, 21 L.Ed.2d 200 (1968), but it may not simply compromise between the interests of different broadcasting groups and gloss over the more fundamental public interest. See WBEN, Inc. v. United States, supra, 396 F.2d at 618. 15 37 If parties do not volunteer to represent the various facets of the public interest the Commission must take the initiative to seek out such parties and develop a meaningful record. Calvert Cliffs' Coordinating Committee v. AEC, 146 U.S.App.D.C. 33, 449 F.2d 1109, 1119 (1971); Office of Communication of United Church of Christ v. FCC, 138 U.S.App.D.C. 112, 425 F.2d 543, 548-549 (1969). 38 We cannot say that the FCC totally failed to entertain or consider the views of groups other than the two major warring groups who are petitioners here. 16 For example, with respect to the 'impact on Hollywood' the Commission took comments from several labor union groups. See Report, Appendix D 1-7, 44 F.C.C.2d at . It also considered the complaints of parents and children in promulgating the exemption for children's specials. Id. at P83, 44 F.C.C.2d at . 39 However, without holding that the Commission's efforts were insufficient as a matter of law or requiring the Commission to conduct further proceedings, we do suggest that the Commission might have done more. Many persons and groups may have comments about the rule. The Commission should not only receive and carefully consider these comments but, as we have said, should affirmatively seek them out. One need not delve too deeply into the agency's report to ascertain that it has concentrated primarily on the comments of the two groups of petitioners, for it has admitted as much. 17 40 We have already mentioned that the Commission might solicit the views of the Department of Justice concerning the impact of the rule on competition. It might also consult consumer groups and others on the effect of the rule on television advertising in prime time. 18 Minority groups might discuss the impart of the rule on programming for minorities. Playwrights and actors could offer their views on the effects of the rule on their professions. These are, of course, merely suggestions as to persons who might participate. The list is not binding and certainly not exclusive.