Legal Document

459 U.S. 498 103 S.Ct. 885 74 L.Ed.2d 705 COMMUNITY TELEVISION OF SOUTHERN CALIFORNIA, Petitioner,v.Sue GOTTFRIED et al. FEDERAL COMMUNICATIONS COMMISSION, Petitioner, v. Sue Nos. 81-298, 81-799. Argued Oct. 12, 1982. Decided Feb. 22, 1983. Syllabus Section 504 of the Rehabilitation Act 1973 provides that no otherwise qualified handicapped individual shall, solely by reason his handicap, be excluded from participation in, denied benefits of, or subjected to discrimination under any program activity receiving federal financial assistance. Respondent Gottfried (respondent) filed a petition with Federal Communications Commission (FCC) requesting it deny renewal public television station's license because station allegedly (1) had failed discharge its obligation 1934 ascertain problems, needs, and interests deaf hearing-impaired population within service area, (2) violated § 504. similar objections seven commercial licenses. Consolidating all eight proceedings, FCC held licensees' efforts special needs community were adequate; facts alleged respondent did not give rise substantial material question whether licensees abused discretion in programming; apply licensees; while might governed 504, allegations against premature unless until agency authority enforce compliance determined Act. The Court Appeals affirmed portion FCC's order relating stations but vacated remanded for further proceedings. Because as recipient assistance was duty comply court, holding programming less satisfactory than efforts, nevertheless stricter "public interest" standard should applied licensee covered licensee, could find adequate justify without at least inquiring into their meet hearing impaired. Held: does require review application different applies licensee's application. Pp. 508-512. (a) Congress intend impose enforcement on FCC. is funding has responsibility enforcing Moreover, there word Act's legislative history suggesting intended alter reviewing decisions licensees. 508-510. (b) fact support conclusion must evaluate more stringent applicable stations. P. 511. (c) Unless differential been promulgated respect stations, acts when declines greater provide impaired licensee. Pp.511-512 210 U.S.App.D.C. 184, 655 F.2d 297, reversed part. Edgar F. Czarra, Jr., Washington, D.C., petitioner Community Tel. Southern Cal. Samuel A. Alito, Newark, N.J., F.C.C. Charles M. Firestone, Los Angeles, Cal., respondents [Amicus Curiae Information page 499 intentionally omitted] Justice STEVENS delivered opinion Court. 1 presented 19731 requires Contrary District Columbia Circuit, we conclude not. 2 * On October 28, 1977, formal KCET-TV Angeles. She advanced two principal grounds denial: First, area; second, violated, remained violation Act.2 3 Correspondence attached Gottfried's included complaints about KCET-TV's failure carry enough captioning3 other aids benefit members audience. exhibits emphasized broadcast ABC evening news captioned form prior May 23, subsequent during prime time. 4 In verified opposition petition, recounted some detail problems served, including impaired, leader survey general survey. App. No. 79-1722 (CADC), pp. 102-105. also described respond impaired,4 explained why daily broadcasts usually scheduled 11:30 p.m. 6:30 a.m. specifically averred an appropriate forum adjudication claims. p. 113. 5 December response, criticizing survey, commenting rebroadcast programs before 1977. response renewed charge 504,5 asserted indeed proper charge.6 6 separate licenses Angeles area. E.g., 199. consolidated proceedings ruled single memorandum adopted August 8, 1978. 69 F.C.C.2d 451. 7 first reviewed own encourage industry serve 1970, issued Public Notice licensees, advising them responding emergency situations well appreciating programming.7 1972, granted Broadcasting System being experimentation "closed" captioning system, which would enable persons specially equipped sets receive information seen remainder viewing audience.8 1976, rule requiring visually. year, however, concluded so many unanswered questions—both technical concerning most effective means improving "the each determine how effectively those needs."9 summarized views mandated forms technology noting "there requirement licensee—commercial noncommercial—provide open closed visual broadcasting information." Id., 455. 8 then turned renewals. It approached renewals interest, convenience, necessity three perspectives: ascertainment, programming, found adequate. Next, selection matter. difficult segments community;10 absence specialized techniques, "no basis fault these options area." 458. 9 they have received agreed need considered proceeding, saw consider adverse finding Department Health, Education, Welfare—"the governmental such matters." 459. 10 29, 1979, second denying reconsideration. 72 273. again provisions. rejected additional argument adopt regulations implement Finally, refused hold either omission "captioning techniques full access broadcast," services, embodied 309 1934, amended. held: "We error nothing inconsistent concluding are serving interest although currently providing captioning, view required undertake activity. Furthermore, judge qualifications retroactive would, our opinion, raise serious questions fundamental fairness. Thus, inconsistency subject met burden even though caption programming." 279. 11 appealed decision pursuant 47 U.S.C. 402. Commission's related 297. 12 "financial assistance" meaning therefore directly persuaded, reflected national policy extending increased opportunities make accommodation hard hearing, given necessity." §§ 307(d), 309(a), 309(d). specific statutory directive contained standard, accepted judgment renewed. "Recognizing possesses competence weighing factors technological feasibility economic viability concept embrace, defer today judgment." 315-316 (footnotes omitted). 13 majority reached KCET-TV. As assistance, admittedly nevertheless, Its narrow "to impaired." 301. 14 Judge McGowan dissented He majority's rulemaking "a better, fairer, vehicle considering enjoyment educational hearing," id., 301, 316, case felt, same Education dealing rights programs.11 stated, "[F]orm favored over substance are, this reason, spared expense uncertainty hearings, noncommercial Neither, record us, advance notice expired terms what was, reasonably be, expected wholly laudable, technically complex, objective 317. 15 Both petitioned certiorari. implications Appeals' status both petitions. 454 1141, 102 998, 71 292. II 16 All parties agree served making available understandable hearing.12 recognized component enactment 1973, see 26 917 (1970), statute confirms developing individuals handicaps live independent lives. No party suggests public, may simply ignore discharging responsibilities serves.13 17 We new Commission.14 originally enacted, expressly allocate responsibility. See Pub.L. 93-112, Title V, 87 Stat. 394. Nevertheless, since patterned after VI Civil Rights 1964, understood it, insofar regulated private recipients funds, lie agencies administering programs. S.Rep. 93-1297, 39-40 (1974), U.S.Code Cong. & Admin.News 1974, 6373. When amended 1978, understanding made explicit. 95-602, I, 119, 92 2982; n. 1, supra. clear never thought 504.15 18 If guilty violating Act, statute, certainly obligated possible relevance determining renew lawbreaker's license.16 But direction itself, expression intent history, unwilling assume instructed take original jurisdiction processing charges regulatees Act.17 19 quite having stations—public viewers equally strong. By token, unfair criticize commercial—for failing notice.18 dissenting observed, generally "better, effective" method implementing industry-wide uneven conditions isolated That observation determinative relicensing station. 20 A may, course, attach subsidy will effect subjecting requirements Or obligations subsidized Conceivably, policies underlying extraordinary certain types universally accessible, thereby placing heightened promulgated, abuse interpreting WNCN Listeners Guild, 450 582, 101 1266, 67 521 (1981); licensee.19 21 unanimous consistent Neither nor suggested anything treating differently if classes judged standard. affirmance rejection objection like disposition license. Accordingly, Commission. 22 ordered. MARSHALL, whom BRENNAN joins, dissenting. 23 KCET-TV, previous term. holds refusal constitute discretion. free disregard emphasizes duties derive statutes," ante, 510 17, evidence vest power 509. Court's supported precedent sound administrative process, I respectfully dissent. 24 This establish where duty, FCC,1 assess particular regulatory scheme, consideration statutes pertinent decision. Although open-ended phrase "take[s] purposes legislation" defines agency's responsibilities, NAACP FPC, 425 662, 669, 96 1806, 1811, 48 284 (1976), focus complete exclusion relevant statutes. 25 principle clearly set forth Rutledge McLean Trucking Co. United States, 321 67, 64 370, 88 L.Ed. 544 (1944). ICC approved proposed consolidation "consistent interest." 75-76, S.Ct., 375, quoting 49 5(2)(b). While recognizing ICC's derived primarily Interstate Commerce legislation regulating commerce, suggestion deciding transaction interest": "To secure continuous, close informed supervision mandates frequently requires, vested expert bodies broad charged execute stated policies. delegation necessarily include numerous laws. here, Sherman such. cannot decide definitively contemplated constitutes restraint trade attempt monopolize forbidden task deals transportation facilities problems. immediate frame reference operates; expressed basic determinants action. 27 "But executing faced overlapping times enacted view. true, cannot, more, latter." 79-80, 376-377 (emphasis added). 28 account approve consolidation, 29 Similarly, Denver Rio Grande Western Railroad 387 485, 1754, 905 (1967), 'public interest' 'lawful object' [in 20a(2) Act] negate existence mandate eyes indicating exceed limitations imposed laws." U.S., 492, 1759. "[c]ommon sense point standards degree control anticompetitive consequences circumstances surrounding transaction." Ibid. Clayton stock issuance carrier confers ICC. 30 Steamship NLRB, 316 31, 62 886, 86 1246 (1942), National Labor Relations Board labor law issue decided Board. acknowledged breadth Board's discretion, 46, 894, laws: commissioned effectuate singlemindedly important Congressional objectives." 47, 894. ordering reinstatement striking seamen strike crew promise obedience superiors provisions Criminal Code proscribing mutiny revolt aboard ship. 31 These that, however scheme Congress. conclusively forbids. 79, 376 (ICC "cannot monopolize"). agency, concludes prevent achievement objectives empowered implement, states reasons conclusion, determination lightly overturned. "close eyes" statute. 32 There good insistence ill permitted authorized enforce. "No entrusted determinations convenience island. fits system industry." Palisades Citizens Association, Inc. CAB, 420 188, 191 (DCCA 1969). observed Steamship, "[f]requently entire scope purpose calls careful one another." can accommodation, otherwise, refuses 33 light established decisions, correctly refuse respondent's allegation Act.3 34 licensing beyond dispute. chief . people States rapid, efficient, Nationwide, world-wide wire radio communication service." 151 319 190, 217, 63 997, 1009, 1344 (1943). segment population. Ante, 508 12. If, "obligation ensure fairly reflects tastes viewpoints minority groups," 670 7, 1812 surely meaningful kind sizeable group. 35 Since interest," "at consideration" depart traditional decision.4 noted "is too much demand body." demanded this, protected entitled less. 794 (1976 ed. Supp. III), provides: "§ 794. Nondiscrimination grants programs; promulgation rules defined section 706(7) title, conducted Executive Postal Service. head shall promulgate necessary out amendments Rehabilitation, Comprehensive Services, Developmental Disabilities Copies regulation submitted authorizing committees Congress, earlier thirtieth day date committees." her alleged, part: "That Licensee remains thereunder, discriminated discriminating Petitioners 'solely [their] handicap', said 'excluded [and denied] being] discrimination' services connection assistance." (brackets original). "Captioning" refers several technologies, Captioning Deaf, 378 project written text onto image communicated others track. infra. "Contrary Petitioners' unsupported (Petition, 3), KCET responded done programming: Captioned Evening News; variety programs, children's signed hearing-impaired; addressed concerns hearing-impaired. "Over past years, 960 captioned, or, rare instances, spoken words all. promoted listing designed During addition News, 'Zoom', 'Once Upon Classic,' 'Nova', films Ingmar Bergman, 'The Tribal Eye', 'Masterpiece Theatre', 'Adams Chronicles', 'President Carter's Clinton, Massachusetts Town Meeting', others. "In hearing-impaired, devoted substantive issues affecting groups." 106, 109. stated: "[T]he responsive percent getting time; areas receiving." 148. continued: "The claims broadcasting, obligation—even apart Act—to discharged trust obligations. merely emphasis already do law." Use Telecasts Inform Alert Viewers Impaired Hearing, 2d (1970). 1970 action follows: "[I]t use oral announcements emergencies, utilize face newscasters wherever permit lip reading, feature visualization materials news, weather, sports hoped alert concern citizen truly valuable medium population—estimated Welfare 13.4 million persons. 'it begin looking toward adoption minimum requirements.' " F.C.C.2d, 454. "Through encoder transmitting end decoder end, supply information—captioning—of aural whose rest normal transmission. differs 'open' utilized, example, PBS News. Open transmitted who printed display transmission bottom transmission." 378, 389 (1976). "Generally speaking, [special community] achieved production utilized regular programming. Obviously, situation confronting wish aurally handicapped. For effective, offer communication: sign language interpretations, extensive utilization charts, signs, facial closeups reading. Even reading according Gottfried, limit number understand methods." pointed January 19, 1981, develop regulations, invited comments March 5, 1981. 46 Fed.Reg. 4954. "Estimates citizens limited receipt entertainment through range 8.5 million. Many persons, appears, alone oftentimes advised neighbors friends." observed: fulfillment broadcaster tastes, desires he licensed equitable basis." Report Statement Policy Re: En Banc Programming Inquiry, 7291, 7295 (1960). Accord, re Applications Alabama Educational Television Comm'n, 50 461, 472 (1975); Capitol Co., 38 1135, 1139 (1965). existed, sufficient create it. (1944), promoting area "ignore" 80, 377. automatically "either 376. motor merger competing carriers over-all policy, 87, 380, yet "not measure proposals all-rail all-motor consolidations anti-trust laws," 85, 379. Here, behind President designated responsible coordinating implementation Exec. Order 11,914, 45 CFR Part A, 374. 1980 revoked replaced 12,250, 72995, transferred coordination HEW Justice. Regulations previously remain pending 41. 40686-40687 (1981). "Normally, declined explore matters litigated courts duplicate ongoing investigative government laws question. Our predicated upon unlikelihood proving law. Indeed, conduct contravene still run afoul forbearance sought maintain working relationship judiciary avoid burdening applicants unnecessary, costly multiple proceedings." 59 750, 763 (1951). say groups public. equal opportunity regarded "necessary reiterated, directed agency: "It useful draw analogy defining ending employment discrimination, unmistakably collective bargaining. Yet hardly supposed directing Power guided interest,' practices part regulatees." 671, 1812. desirability changes prospective. Committee Broadcasting, 436 775, 811, 98 2096, 2120, 56 697 (1978), wrote: "One significant advantages process ability adapt flexible manner, Pottsville 134, 137-138, 60 437, 438-439, 84 656, presume unreasonably decides try change prospective note appropriate, better able afford costs associated sell advertising large airing lack mass appeal network affiliates. grant only finds thereby." 307(d) (1982 Supp.). errs attempting distinguish Rutledge's statement 379, quoted 509 14. here measured proceeding passage text, 86, 380 ("Congress neither inapplicable passing policy."). "[n]o ed., 1982 by, among things, failing, term, version News Service, thereafter time hours. undisputed conducts "program suggestion, 512, involving exercise stop imposing demanding properly explains justified 19. What relevant.

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