Legal Document

395 U.S. 367 89 Supreme Court Reporter 1794 23 United States Reports Lawyer’s Edition 2d Series KF101.8 U54 371 RED LION BROADCASTING CO., Inc., etc., et al., Petitioners,v.FEDERAL COMMUNICATIONS COMMISSION al. UNITED STATES Petitioners, versus RADIO TELEVISION NEWS DIRECTORS ASSOCIATION Nos. 2 and 717. Argued April 3, 1969. Decided June 9, [Syllabus from 368 intentionally omitted] Roger Robb, Washington, D.C., for petitioners Red Lion Broadcasting Co., Incorporated others. Solicitor Gen., Erwin N. Griswold, respondents F.C.C. others the Archibald Cox, Radio Television News Directors Assn. Mr. Justice WHITE delivered opinion of Court. 1 The Federal Communications Commission has many years imposed on radio television broadcasters requirement that discussion public issues be presented broadcast stations, each side those must given fair coverage. This is known as fairness doctrine, which originated very early in history broadcasting maintained its present outlines some time. It an obligation whose content been defined a long series FCC rulings particular cases, distinct statutory § 315 Act1 equal time allotted all qualified candidates office. Two aspects relating to personal attacks context controversial political editorializing, were codified more precisely form regulations 1967. two cases before us now, decided separately below, challenge constitutional bases doctrine component rules. involves application broadcast, RTNDA arises action review FCC's 1967 promulgation attack editorializing regulations, laid down after litigation had begun. I. Atlantic Company licensed operate Pennsylvania station, WGCB. On November 27, 1964, WGCB carried 15-minute by Reverend Billy James Hargis part 'Christian Crusade' series. A book Fred Judge Cook entitled 'Goldwater—Extremist Right' was discussed Hargis, who said fired newspaper making false charges against city officials; then worked Communist-affiliated publication; he defended Alger Hiss attacked Edgar Hoover Central Intelligence Agency; now written 'book smear destroy Barry Goldwater.'2 When heard concluded personally demanded free reply time, station refused. After exchange letters among Cook, Lion, FCC, declared constituted Cook; failed meet under expressed Times-Mirror 24 P & F Reg. 404 (1962), send tape, transcript, or summary offer him time; provide whether not would pay it. Appeals District Columbia Circuit,3 position upheld otherwise proper. 127 U.S.App.D.C. 129, 381 Reporter, 2nd 908 (1967). baron 3 Not begun, issued Notice Proposed Rule Making, 31 Fed.Reg. 5710, with eye aspect precise readily enforceable, specifying rules editorials. considering comments supporting opposing rules, adopted them substantially proposed, 32 10303. Twice amended, 11531, 33 5362, held unconstitutional Seventh Circuit, rulemaking proceeding, abridging freedoms speech press. 400 1002 (1968). 4 As they stand read follows: 5 'Personal attacks; 6 '(a) When, during presentation views issue importance, made upon honesty, character, integrity like qualities identified person group, licensee shall, within reasonable no event later than week attack, transmit group (1) notification date, identification broadcast; (2) script tape (or accurate if available ) (3) opportunity respond over licensee's facilities. 7 '(b) provisions paragraph (a) this section shall applicable foreign groups figures; are legally candidates, their authorized spokesmen, associated campaign, other such persons campaign; bona fide newscasts, news interviews, on-the-spot coverage (including commentary analysis contained foregoing programs, but provisionso f editorials licensee). 8 'NOTE: situations coming ((3)), above, and, specific factual situation, may ((2)), above. See, 315(a) Act, 47 Code KF62 315(a); Public Notice: Applicability Fairness Doctrine Handling Controversial Issues Importance. 29 Register 10415. categories listed ((3)) same specified Act. 9 '(c) Where licensee, editorial, (i) endorses (ii) opposes candidate hours respectively office opposed editorial date editorial; spokesman facilities: Provided, however, That where 72 prior day election, comply sufficiently far advance enable have prepare response it timely fashion.' Regulations §§ 73.123, 73.300, 73.598, 73.679 (all identical). C. 10 Believing RTNDA, both Congress enhance rather abridge press protected First Amendment, we hold valid constitutional, reversing judgment below affirming Lion. II. 11 emergence related legislation shows Commission's case did exceed authority, adopting new implementing congressional policy embarking frolic own. 12 Before 1927, allocation frequencies left entirely private sector, result chaos.4 quickly became apparent scarce resource use could regulated rationalized only Government. Without government control, medium little because cacaphony competing voices, none clearly predictably heard.5 Consequently, established allocate applicants manner responsive 'convenience, interest, necessity.'6 13 Very shortly thereafter view 'public interest requires ample play competition views, commission believes principle applies * discussions importance public.' Great Lakes F.R.C.Ann.Rep. 32, (1929), rev'd grounds, 59 App.D.C. 197, 37 993, cert. dismissed, 281 706, 50 467, 74 L.Ed., 1129 (1930). applied through denial license renewals construction permits, FRC, Trinity Methodist Church, South 61 311, 62 850 (1932), denied, 288 599, 53 317, 77 L.Ed. 975 (1933), successor Young People's Association Propagation Gospel, 178 (1938). extended period obliged cover fairly others, also refrain expressing his own Mayflower Corp., 333 (1940), latter limitation abandoned developed into form. 14 There twofold duty decisions described 1949 Report Editorializing Broadcast Licensees, 1246 (1949). broadcaster give adequate issues, 515 (1945), accurately reflects views. New 258 (1950). done at broadcaster's expense sponsorship unavailable. Cullman 25 895 (1963). Moreover, met programming obtained initiative source. John Dempsey, 615 (1950); see Metropolitan 19 602 (1960); Evening Assn., 283 these basic duties since outset, (1930); Chicago Federation Labor 36 aff'd 333, 41 422 KFKB 60 79, 670 (1931), respects here spelled out greater detail. 15 figure invov ed require individual himself offered respond. Likewise, one endorsed themselves spokesman. These obligations differ general presented, does option presenting party's choosing third party represent side. But insofar there sides affirmative obligation, do preceding doctrine. simple fact men unendorsed agents critical distinction, indeed, unreasonable conclude objective best served allowing most closely affected make response, leaving hands candidacies, opponents, them. 16 authority promulgate derives mandate 'Commission convenience, necessity requires' 'such prescribe restrictions conditions necessary carry chapter *.' 303 303(r).7 specifically directed consider demands course granting licenses. 307(a), 309(a); renewing them, 307; modifying Ibid. included itself operation 309(h). assure broad one, power 'not niggardly expansive,' National company States, 319 190, 219, 63 997, 1010, 87 1344 (1943), validity upheld. Pottsville 309 134, 138, 437, 439, 84 656 (1940); RCA Communications, 346 86, 90, 73 998, 1002, 97 1470 (1953); FRC Nelson Bros. Bond Mortgage 289 266, 285, 627, 636, 1166 (1933). enough encompass regulations. 17 finds recognition form, partm odeled explicit approvingly reflected legislative history. 18 In 1959 amended accorded except certain appearances added exception 'from Act afford conflicting inportance.' September 14, 1959, 1, Statutes-at-Large 557, amending (emphasis added). language makes plain Congress, announced phrase interest,' discuss issues. words, amendment vindicated inhered standard. Subsequent declaring intent earlier statute great weight construction.8 And special force equally venerable charged execution should followed unless compelling indications wrong,9 especially when refused alter administrative construction.10 Here, just kept silence refusing overturn construction,11 ratified positive legislation. Thirty consistent undisturbed until expressly accepted, reinforce natural conclusion licensees stations implement fall short abridgment freedom press, censorship proscribed 326 Act.12 objectives circumvented complementary 315. campaign family, friends, managers, supporters. then, ban air13 proceed deliver supporters slate exclusion way impact favored candidacy simply spot appearance himself. 315, prohibits taking step. 20 reinforces effect amendment. Even relevant added, Senate report noted 'broadcast limited therefore, necessarily considered trust. Every fortunate obtaining mandated assumed important questions without bias.' S.Rep.No.562, 86th Cong., 1st Sess., 8—9 (1959) U.S.Code Cong. Adm.News, Page 2571, See also, adverting id., 13. 21 Rather leave approval solely history, Senator Proxmire suggested 105 Cong.Rec. 14457. amendment, Pastore, manager bill ranking member Committee, 'rather surplusage,' 14462, statement doctrine14 altered merely approving conference committee. explaining committee changes, Pastore said: 'We insisted provision remain bill, continuing reminder admonition broadcastes alike, abandoning philosophy gave birth giving people right full complete disclosure country.' 17830. Scott, another manager, that: 'It intended legitimate areas controversial,' politics. 17831. 22 true actually adjudicated so However, presaged Editorializing, principal ratio decidendi area: 'In determining honor requests will inevitably confronted individuals might appropriate spokesmen point request. latter's involvement controversy factor considered, elementary considerations dictate allocated exist.' F.C.C., 1251—1252. implication not, course, approve every past decision pronouncement subject, completely hand future. go far. cannot say publishes misconstruction standard control either candidacies wish defense. grants candidate, opponents. our competence unauthorized employ similar device station. light interest' encompasses vigorous debate concern public; rested inception discussed, fairly; acknowledged analogous preclusive area, knowingly preserved efforts, think exercise congressionally delegated authority. notable precision substantive standards respect modeled section, generalized Cm mission ordinarily sole guidance, before. 216—217, 1009 (1943); We declaratory ruling beyond scope conferred operated possession serves 'the interest.' III. 26 manifestations conventional Amendment alleging Their contention protects desire continuously whatever choose, exclude whomever choose ever using frequency. No man prevented saying publishing what thinks, utterances right, say, broadcasters. 27 Although Paramount Pictures, 334 131, 166, 68 915. 92 1260 (1948), differences characteristics media justify them.15 Joseph Burstyn, Wilson, 343 495, 503, 777, 781, 96 1098 (1952). For example, ability technology produce sounds raucous human voice justifies sound level, places use, trucks discrimination. Kovacs Cooper, 336 77, 69 448, 93 513 28 Just Government limit sound-amplifying equipment potentially noisy drowns civilized speech, equipment. broadcaster, user truck, any embrace snuff Associated Press 20, 65 1416, 1424, 2013 (1945). converse face face, speak once understood. range meaningful communications half talking listening. clearly, publish read. reach signals incomparably problem interference massive reality. lack know-how keep air, tiny fraction resources intelligence can hope communicate intelligible communication had, even entire spectrum utilized state commercially acceptable technology. 30 fact, chaos ensued permitting anyone frequency level wished, enactment 1927 1934,16 length 210—214, 1006—1009, (1943). reality least necessitated first division portions reserved uses amateur operation, aircraft, police, defense, navigation; subdivision portion, assignment users users. Beyond this, number, essential tell room few. want allocate, idle posit unabridgeable comparable speak, write, publish. If 100 licenses 'right' license; effective radio, few rest barred airwaves. strange aimed protecting furthering communications, possible requiring limiting number overcrowd spectrum. unquestionably grant deny eliminate existing stations. monopolize frequency; 'is speech.' 227, 1014, By token, concerned better whom permits broadcasting, lisensee holds fellow citizens. nothing prevents share conduct proxy fiduciary voices representative community otherwise, necessity, 34 irrelevant broadcasi ng. contrary, major role recognized 326, forbids means communication.' Because scarcity frequencies, permitted put restraints favor unique medium. whole retain collective function consistently ends purposes Amendment. viewers listeners, broadcasters, paramount. Sanders Station, 470, 475, 693, 697, 869 Allentown 349 358, 361—362, 75 855, 857—858, 99 1147 (1955); Z. Chafee, Mass 546 (1947). purpose preserve uninhibited marketplace ideas truth ultimately prevail, countenance monopolization market, licensee. (1945); York Times Sullivan, 376 254, 270, 710, 720, 686 (1964); Abrams 250 616, 630, 40 17, 22, 1173 (1919) (Holmes, J., dissenting). '(S)peech concerning affairs self-expression; essence self-government.' Garrison Louisiana, 379 64, 74—75, 85 209, 216, 125 (1964). Brennan, Meiklejohn Interpretation 79 Harv.L.Rev. (1965). receive suitable access social, political, esthetic, moral, experiences crucial here. constitutionally abridged FCC. 35 confer monopolies relatively small licensees, Nation 200,000,000, surely decreed shared it, being assigned portion week. quite They assert circumstances, amount different already expression endorsement, while dealing issue, triggers sharing. said, confers prevent 'their' unconditional monopoly denied use. terms principle, enforced sharing resource, indistinguishable equal-time set aside circumstances constituent complements. provision, law 18, 44 1170, relieving censor thus insulating liability defamation. constitutionality unquestioned.17 Farmers Educ. Coop. Union WDAY, 360 525, 1302, 1407 (1959). Nor inconsistent goal producing informed capable conducting permit answers occurring discussing opponents chance public.18 Otherwise, owners networks unfettered highest bidders, air agreed. sanctuary unlimited operating open all. 'Freedom governmental sanction repression interests.' 1425, 38 strenuously argued, trigger speakers need unpalatable irresistibly forced self-censorship eliminated rendered wholly ineffective. Such indeed serious matter, stifled. 39 At point, indicated, possibility speculative. industry, networks, taken pains past, intend abandon efforts regard.19 encouragement never induce responsibility. experience administration doctrines indicates net reducing enhancing volume quality coverage, reconsider implications. overall effect. occur seems unlikely, ifp resent suddenly prove timorous, powerless insist attention violate treat privilege proxies community, obligated matters concern. To condition renewal willingness forbidding idly ignore problems beset airways anything fundamental questions. statute, practice, Licenses ownership designated temporary 301. Unless renewed, expire three years. 307(d). mandates issuance thereby.' 307(a). applying based program proposals. 279, 634, 'view licenses.' how needs communities programs needs; moreover, shifted, allocations reflect shifts. Id., 636. vein, 137—138, supple instrument desires 'to maintain grip dynamic transmission' allay fears 'in absence subordinated monopolistic domination field.' Three chain things forbade devoting too much network order local serving needs. unequivocally recognizing traffic policeman technical neither exceeded powers nor transgressed interesting format kinds licensees. D. 42 litigants embellish arguments vague impossible discern. Of that, judging here, vindicate idiosyncratic conception requirements speech. Past adjudications regulations; about provided reply. employed applicability questionable, 10303, 10304 n. 6, impose sanctions warning. decide pass envisioning extreme applications conceivable, 332 689, 694, 331, 334, 297 deal arise. 43 ratify future regard programming. question refusal views; discriminatory airwaves; contrary 326; official dominating broadcasting. raise answer E. argued wished justified Government's choice serve acting differing directly facilities, longer prevails justified. several answers. 45 Scarcity thing past. Advances technology, microwave transmission, led efficient utilization spectrum, grown apace.20 Portions vital unconnected communication, radio-navigational aids used aircraft vessels. Conflicts emerged between functions defense preparedness experimentation methods averting midair collisions warning devices.21 'Land mobile services' ambulance, fire department, utility, systems occupying increasingly crowded spectrum22 are, apart operators' equipment, 5,000,000 transmitters 'citizens' band' congested.23 Among various space, including marine, aviation, amateur, military, common carrier users, easily claimants smaller exists. 46 Comparative hearings space become congested times suspend applications.24 high is, country's markets, almost occupied, although ultra recent development viable alternative, yet filled.25 rapidity technological advances succeed create hand, growing numbers other, unwise speculate space. considerable impelled regulation agency Congress. Nothing record, researches, convinces immediate potential accommodated, wise planning essential.26 mean, wavelength occupied hour sustain judgment. substantial capital investment required uses, addition potentiality confusion inherent scheme continuous kaleidoscopic reallocation unfeasible. breakneck pace imperiled.27 48 gaps utilization, remains often attained initial selection opened opportunities further uses. Long confirmed habits listeners viewers, affiliation, advantages procurement advantage entrants, entry technologically possible. fruit preferred Some enough, itself, render effort ranges widely interest. 49 allocating claims unable assistance gain constitutional.28 affirmed reversed causes remanded proceedings opinion. ordered. 51 having oral argument DOUGLAS took Court's decision. 1934, Tit. III, 1081, 301 seq. Section reads: '315. Candidates office; facilities; n station: material section. allow candidate. Appearance any— '(1) newscast, '(2) interview, '(3) documentary (if incidental subject subjects covered documentary), '(4) events conventions activities thereto), deemed meaning subsection. sentence construed connection documentaries, events, importance. forth purposes. section.' According asserted following statement: 'Now, paperback entitled, 'GOLDWATER—EXTREMIST ON THE RIGHT.' Who Cook? World Telegram charge publicly un-named City government. publishers NEWSWEEK Magazine December 7, showed pal, Eugene Gleason, up story confession Attorney, Frank Hogan. losing job, went work left-wing publication, NATION, scurrilous publications championed communist Its editor, Carry McWilliams, affiliated enterprises, scores cited subversive Attorney General agencies *. Now, wrote o r article absolving wrong doing 208 page FBI Hoover; Agency Goldwater called 'Barry Goldwater—Extremist Right!" initially dismissed petition reviewable order, en banc rule 'a terminating removing uncertainty,' 1.2, Administrative Procedure adjudicating agency, discretion, orders, terminate remove uncertainty.' 5, 239, 1004(d). case, determined Lion's cease-and-desist revocation, 312, failure license's obey implicit revoke justifying license, 312(a)(2), licenses, (d). Since could, adjudication judicial review. formalities adjudicative proceeding petitioner waiving objection procedure adjudication. chaos, Conferences 1922 1925, resolved regulatory ensure 1923 Conference 1912, 302, Secretary Commerce regulate sought claimed penalizing Zenith Corporation frequency, 1912 enforcement. Corporation, 614 (D.C.N.D.Ill.1926). Cf. Intercity 52 339, 286 KF105 F3 1003 (1923) (Secretary empowered assign frequencies). An Hoover's request impotence Op.Atty.Gen. 126 (1926). appel industry appeal largely unheeded. generally L. Schmeckebier, 1—14 (1932). Congressman White, sponsor enacted commented legislation: reached definite enjoy repudiation idea underlying assertion stead service superior squarely. scientific recommended benefit public, contribute art. approved witness your bill. law, selfishness. assurance served.' 67 5479. 4, 1163. Davis, Va.L.Rev. 611 (1927). 1930, Dill questions.' Hearings Committee Interstate S. 71st 1616 (1930): 'Senator DILL. Then you suggesting questions? 'Commissioner ROBINSON. N Dec. Immigration Nationality Decisions legal concept now. legislate evolve days. Somebody court 'I am opportunity,' get Has that? Oh, no. commission, think, subject.' Housing Administration Darlington, 358 84, 141, 145, 132 (1958); Glidden Zdanok, 370 530, 541, 82 1459, 1468, 671 (1962) (opinion Harlan, joined Brennan Stewart). one. Alexander Mayor Commonalty Alexandria, Cranch (1809); Freeman, How. 556, 724 (1845); Stockdale Insurance Companies, Wall. 323, 348 (1874). Zemel Rusk, 11—12, 1271, 1278 1279, 179 (1965); Udall Tallman, 380 16—18, 792, 801—802, 616 Commissioner Internal Revenue Sternberger's Estate, 187, 199, 229, 235, 246 Hastings D.R. Whitney, 357, 366, 112, 115, 363 (1889); Burlington Missouri River R. 98 341, 198 (1879); Alexander, 177, 179—181, (1871); Surgett Lapice, 48, 68, 982 (1850). Bergh, 352 40, 46—47, 106, 109—110, 102 (1956); Alstate Construction Durkin, 345 13, 16—17, 565, 567 568, 745 Costanzo Tillinghast, 287 345, 152, 153, 350 attempt sharply interfere practices emerge 1943. 814, 78th Sess. 814 Commerce, Also, attempts enact 12505 (1926) (agreeingt proposed eliminating 'question affecting public'), proposal 1934 accepted Senate, 78 8854 (1934); S.Rep. Number 73d (1934), reported House H.R.Rep.No. 1850, (1934). came nearest success H.R. 7716, 72d passed pocket-vetoed President 1933, 'equal opportunities' whenever voted election agency. 2106, event, unsuccessful guides intent. Fogarty 340 8, 13—14, 71 95 Mine Workers, 330 258, 281—282, 677, 690, 91 884 years, drawing somewhat conclusion, found Staff Study Foreign Legislative History Doctrine, 90th (Comm.Print.1968). inconclusive was, superseded 1959. '§ 326. Censorship. 'Nothing understood transmitted promulgated fixed Pacific KF135 P2 Crommelin, 1392 (1960). read: '(B)ut changing act, recognizes domain, panel discussions, controversies practically possible.' raised supplants atomized, informal mass prime source national cohesion Zechariah Chafee Debate implications continued unabated. compendium appears Freedom Responsibility (J. Coons ed.) (1961). Kalven, Broadcasting, Policy Law Econ. (1967); M. Ernst, 125—180 (1946); T. Robinson, Networks Government, 75—87 newest brings bear concisely explored Louis Jaffe Equal Time, Reply Personal Attacks, Local Service Obligation; Implications Technological Change, Printed Special Subcommittee Investigations controls last rise successful Court, W. Emery, Government: Responsibilities (1961); Note, Regulation Program Content 701 developing ancillary doctrines. Compare Barrow, Equa Opportunities Doctrines Broadcasting: Pillars Forum Democracy, U.Cin.L.Rev. 447 (1968), Amendment: Observations Years Regulation, Minn.L.Rev. (1967), Editorials Controversy: Broadcaster's Dilemma, Geo.Wash.L.Rev. 719 aired place confined proxies. 'Nor hear adversaries teachers, accompanied refutations. justice arguments, bring real contact mind. He able believe them; defend earnest, utmost them.' Mill, Liberty (R. McCallum ed. 1947). System recently despite 'we continue covering service, exercising independent enterprise. I, refuse enterprise intimidation.' Stanton, Keynote Address, Sigma Delta Chi Convention, Atlanta, Georgia, 21, 1968. Problems viewpoint surveyed Wood, Electronic Journalism Current appear Telecommunication Science Panel, Technical Advisory Board, Dept. Electromagnetic Spectrum Utilization—The Silent Crisis (1966); Joint Institute Electrical Engineers Industries Utilization Frequency Allocation, Iowa L.Rev. 437 released study Final President's Task Force Bendix Aviation 106 304, 272 533 (1959), 361 965, 80 593, 545 1968 Annual 65—69. limitations lay claim protection, sustained comment, 'Here truly situation everybody anything, nothing.' Lafayette Electronics v.U nited 278, (C.A.2d Cir. 1965). Accord, California Citizens Band 375 (C.A.9th Cir.), 389 844, 88 96, 112 Kessler 177 130, 673 table prepared basis statistics current August 31, 1968, VHF UHF channels top market forth: COMMERCIAL Channels Air, Authorized, Available Market Areas Allocated Applied ... VHF. Top 10. 0 50. 157 163 136 100. 264 213 argues invalid findings rule-making Presumably themselves, reason. ignores detailed specification consequences long-standing predicate 1943 reaffirmed 'If hesitation regarding urge broadcastr follow conscience trust.' history; address show somehow radically changed, undercutting judgment; adduce convincing evidence record determinative. 'airways (need not) filled earliest moment due factors.' Community 107 95, 105, 274 753, 763 enforcing Office Communication Church Christ 123 328, 343, 359 994, (1966). nevertheless economic sense grounds support. Hence, equivalent satisfy excluded generally. argument, aside, economic, indirectly multiplying sharing, doctrines, devices dissipate sit astride public. Citizen Publishing 394 927, 148 (1969).

Classification Label: 2