Opinion ID: 305487
Heading Depth: 2
Heading Rank: 3

Heading: Responsiveness of WMAL-TV's Programming

Text: 38 The determination of whether WMAL-TV's programming raises a substantial and material question of fact with respect to its responsiveness to community needs and interests requires first delineating the station's service area obligations. In the situation presented by the case at bar, WMAL-TV's service area consists of its city of license, Washington, D. C., and the surrounding areas of Maryland and Virginia. While plaintiffs argue that WMAL-TV has a primary obligation to serve the needs and interests of its city of license, with its 70% black population, and that the station's programming should therefore be commensurate with this figure, it is not necessary for us to resolve this issue. In the first place, the Commission in the case at bar recognized . . . the fact that the problems of most cities are particularly complex and pressing and require great efforts on the part of the licensee to fulfill its responsibilities. 38 The FCC further stated: 39 Petitioners assert . . . that the special problems of the District of Columbia (problems enumerated in the Petition to Deny) give rise to a need for specific programming designed to meet the needs and interests of the community. With this contention there is no dispute, but we are of the opinion that the licensee has, by the programming noted in the foregoing paragraphs and in its Opposition, clearly shown that it has broadcast numerous programs which are of particular interest to the District of Columbia's majority Black population. 39 40 In the second place, it is clear that a broadcast licensee has an obligation to meet the needs and interests of its entire area of service. 40 This is particularly the case with respect to television stations, in view of the limited number of stations. Suburban and other outlying area are not cities of license, although their needs and interests must be met by television stations licensed to central cities. 41 How a broadcast licensee responds to what may be conflicting and competing needs of regional or minority groups remains largely within its discretion. It may not flatly ignore a strongly expressed need; on the other hand, there is no requirement that a station devote twenty percent of its broadcast time to meet the need expressed by twenty percent of its viewing public. Until this problem is addressed in a rule-making procedure, the scope of FCC review remains whether or not the licensee has reasonably exercised its discretion. 42 The Commission, after considering plaintiffs' objections in regard to the alleged lack of WMAL-TV responsiveness to community, particularly black community, needs and interests, found that they did not raise questions of fact of such a material and substantial nature to require a hearing. What the Commission found to be in dispute were not the facts, but rather the conclusions to be drawn as to whether the renewal of WMAL-TV's license would be contrary to the public interests. For example, in the record there is a one-month sample news program of WMAL-TV, 41 which arguably shows a concentration on the District of Columbia proper. The Commission found that this programming was responsive to community needs. There was no challenge to the fact that these programs were broadcast. The plaintiffs made the argument before the FCC that this programming was inadequate, and this argument was rejected. We fail to see that a full-scale hearing would have added anything for either the Commission or this court to consider. 43 The Commission found, and we agree, that plaintiffs' objections here lack the requisite specificity. 42 They are largely conclusory and in most instances are not tied to specific programming deficiencies. Where they are so tied, they fail to indicate whether non-blacks are accorded different, more positive treatment. 43 For plaintiffs simply to object to the quality of WMAL-TV's programming in general and conclusory terms offers the Commission little assistance in terms of the guidelines which it requires to implement policy changes. 44 Furthermore, such generalized criticisms run the risk of turning the FCC into a censorship board, a goal clearly not in the public interest. Of course, there must exist in this area a delicate balance between the maintenance of a free competitive broadcast system and reasonable restrictions on such freedom in the public interest, in view of the scarcity of airwaves for broadcasting. In the absence of a competing broadcast application situation, where a hearing is required, 45 plaintiffs bear a substantial burden of specificity, a burden they have not met in the case at bar. The Commission's interpretation of its policies not being arbitrary or unsupported by substantial evidence, must be permitted to stand. 44 Plaintiffs' specific objections as to the number of blacks who have appeared on WMAL-TV religious programming are not borne out in view of the following: First, of the 55 needs and problems suggested by 104 community leaders in WMAL-TV's amended ascertainment showings, and of the 21 needs suggested by the random sampling of 200 private citizens, none related to religious programming. At least some doubt is thus shed on plaintiffs' conclusory statements as to the relative importance of religion for members of the black community. 45 Secondly, a number of black clergymen and laymen did in fact participate in WMAL-TV's religious programming, as well as in a wide variety of other public affairs programming. This participation was of a sufficiently high order to remove the FCC's findings from the category of arbitrary or capricious. 46 46 A more fundamental objection made by plaintiffs-to the quality of television programming in general, both with respect to black and all citizens' needs and interests-is more suitable for rulemaking, where all viewpoints may be aired. 47 47