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If you need the complete document, download the WordPerfect version or Adobe Acrobat version, if available. ***************************************************************** Federal Communications Commission Washington, D.C. 20554 October 6, 1997 Released: October 8, 1997 CERTIFIED MAIL - RETURN RECEIPT REQUESTED Renaissance Communications Corporation Licensee, WXIN(TV) 1440 North Meridian Street Indianapolis, IN 46202 Dear Licensee: This letter constitutes a NOTICE OF APPARENT LIABILITY FOR FORFEITURE in the amount of sixteen thousand dollars ($16,000) pursuant to Section 503(b) of the Communications Act of 1934, as amended, 47 U.S.C. 503(b), under authority delegated to the Chief of the Mass Media Bureau by Section 0.283 of the Commission's Rules, 47 C.F.R. 0.283, for repeated violations of the Commission's rule limiting the amount of commercial matter that may be aired during children's programming. In the Children's Television Act of 1990, Pub. L. No. 101-437, 104 Stat. 996-1000, codified at 47 U.S.C. Sections 303a, 303b and 394, Congress directed the Commission to adopt rules, inter alia, limiting the amount of commercial matter that television stations may air during children's programming, and to consider in its review of television license renewals the extent to which the licensee has complied with such commercial limits. Pursuant to this statutory mandate, the Commission adopted Section 73.670 of the Rules, 47 C.F.R. 73.670, which limits the amount of commercial matter which may be aired during children's programming to 10.5 minutes per hour on weekends and 12 minutes per hour on weekdays. The Commission also reaffirmed and clarified its long-standing policy against "program-length commercials". The Commission defined a "program-length commercial" as "a program associated with a product, in which commercials for that product are aired", and stated that the entire duration of any program-length commercial would be counted as commercial matter for the purpose of the children's television commercial limits. Children's Television Programming, 6 FCC Rcd 2111, 2118, recon. granted in part, 6 FCC Rcd 5093, 5098 (1991). The commercial limits became effective on January 1, 1992. Children's Television Programming, 6 FCC Rcd 5529, 5530 (1991). On April 1, 1997, you filed an application for renewal of license (FCC Form 303-S) for Station WXIN(TV), Indianapolis, IN (File No. BRCT-970401LS). In response to Section III, Question 4 of that application you indicate that during the previous license term WXIN(TV) failed to comply with the limitations on commercial matter in children's programming specified in Section 73.670 of the Commission's Rules. In Exhibit 5 to that application you indicate that between July 13, 1992, and September 14, 1996, WXIN(TV) violated the children's television commercial limit rules and policies on 17 occasions. Of these commercial overages, one was 40 seconds in duration; one was one minute in duration; and fifteen were program-length commercials. The 40-second overage and the one-minute overage are attributed to human error. The program-length commercials are attributed to (i) the failure of program distributors or syndicators to notify the station that the programs in question contained commercial advertisements for program-related products; and (ii) human error on the part of station employees who reviewed the commercials, but failed to notify WXIN(TV)'s Traffic Department that the commercials were for program-related products. Finally, you state that "[a]s the station encountered various human errors" it adopted policies and procedures to insure compliance with the childrens' television commercial limits. WXIN(TV)'s record during the last license term of exceeding the Commission's commercial limits on children's television programming on 17 occasions constitutes a repeated violation of Section 73.670 of the Commission's rules. Accordingly, pursuant to Section 503(b) of the Communications Act, Renaissance Communications Corporation is hereby advised of its apparent liability for forfeiture in the amount of sixteen thousand dollars ($16,000) for its apparent repeated violation of Section 73.670 of the Commission's Rules. The amount specified was reached after consideration of the following criteria: (1) the number of instances of commercial overages; (2) the length and nature of each such overage; (3) the period of time over which such overages occurred; (4) whether or not the licensee established an effective program to ensure compliance; and (5) the specific reasons that the licensee gives for the overages. These criteria are appropriate in analyzing violations of the commercial limits during children's programming, since they take into account, inter alia, "the nature, circumstances, extent, and gravity of the violation, and, with respect to the violator, the degree of culpability", as required under 503(b)(2)(D) of the Communications Act. WXIN(TV) violated the children's television commercial limits on 17 occasions. This is a significant number of violations. Further, 15 of the violations were program-length commercials. Congress was particularly concerned about program-length commercials because young children often have difficulty distinguishing between commercials and programs. S. Rep. No. 227, 101st Cong., 1st Sess. 24 (1989). Overages of this frequency and magnitude mean that children have been subjected to commercial matter greatly in excess of the limits contemplated by Congress when it enacted the Children's Television Act of 1990. Children's Television Programming, supra 6 FCC Rcd at 2117-18. You assert that the program-length commercial violations occurred because of the failure of program distributors and/or syndicators to indicate that commercial matter in a children's program was related to the program. However, the Commission has consistently held that a licensee's reliance on a program's source or producer for compliance with the children's television rules and policies will not excuse or mitigate violations which do occur. See, e.g., Max Television of Syracuse, L.P. (WSYT(TV)), 10 FCC Rcd 8905 (1995); Mt. Mansfield Television, Inc. (WCAX-TV), 10 FCC Rcd 8797 (1995); Boston Celtics Broadcasting Limited Partnership (WFXT(TV)), 10 FCC Rcd 6686 (1995). Further, you also state that most of the program-length commercials (and both of the conventional overages) were caused by human error on the part of station employees. The Commission has consistently rejected human error, inadvertence and/or misunderstanding of the children's television commercial limit rules and policies as a basis for excusing violations of the children's television commercial limits. See, e.g., UTV of San Francisco, Inc. (KBHK-TV), 10 FCC Rcd 10986, 10987 & Note 1 (1995); Le Sea Broadcasting Corp. (WHKE(TV)), 10 FCC Rcd 4977, 4978 (1995); Buffalo Management Enterprises Corp. (WIVB-TV), 10 FCC Rcd 4959, 4960 (1995); Gannett Massachusetts Broadcasting, Inc. (WLVI-TV), 9 FCC Rcd 1555 (1994); Ramar Communications, Inc. (KJTV(TV)), 9 FCC Rcd 1831 (1994); Channel 12 of Beaumont, Inc. (KBMT-TV), 9 FCC Rcd 1825; WKBD, Inc., 8 FCC Rcd 5079 (1993). Finally, violations occurred from July 13, 1992, through September 14, 1996, an extended period of four years and two months. When the Commission delayed the effective date of Section 73.670 of the Rules until January 1, 1992, we stated that "giving the additional time to broadcasters and cable operators before compliance with the commercial limits is required will have the effect of enabling broadcasters and cable operators to hone their plans to ensure compliance...." Children's Television Programming, supra 6 FCC Rcd at 5530 n.10. In view of the violations listed and the explanations offered in your renewal application, it is clear that WXIN(TV) initially did not establish an effective program to monitor compliance with the children's television commercial limitations. The fact that WXIN(TV) may have implemented policies and procedures to prevent subsequent violations of the children's television commercial limits does not relieve the licensee of liability for violations which have occurred. International Broadcasting Corp., 19 FCC 2d 793, 794 (1969); KBHK-TV, supra 10 FCC Rcd at 10988; KEVN, Inc., 8 FCC Rcd 5077, 5078 (1993); R&R Media Corporation (WTWS(TV)), 9 FCC Rcd 1715, 1716 (1994); Mountain States Broadcasting, Inc. (KMSB-TV), 9 FCC Rcd 2545, 2546 (1994); WHP Television, L.P., 10 FCC Rcd 4979, 4980 (1995). Consideration of all of these factors warrants a forfeiture in the above-specified amount of $16,000. Cf., Fox Television Stations, Inc. (WNYW(TV)), 10 FCC Rcd 4961 (1995)($15,000 forfeiture assessed for 14 program-length commercials). You are afforded a period of thirty (30) days from the date of this letter "to show, in writing, why a forfeiture penalty should not be imposed or should be reduced, or to pay the forfeiture. Any showing as to why the forfeiture should not be imposed or should be reduced shall include a detailed factual statement and such documentation and affidavits as may be pertinent." Section 1.80(f)(3) of the Commission's Rules, 47 C.F.R. 1.80(f)(3). Other relevant provisions of Section 1.80(f)(3) of the Commission's Rules are summarized in the attachment to this letter. Notwithstanding the substantial nature of the violations described here and the severity with which we regard them, we find you qualified to remain a Commission licensee and conclude that grant of your application would serve the public interest, convenience and necessity. Therefore, the license renewal application of Renaissance Communications Corporation, for Station WXIN(TV), Indianapolis, IN (File No. BRCT-970401LS), IS HEREBY GRANTED. FEDERAL COMMUNICATIONS COMMISSION Roy J. Stewart Chief, Mass Media Bureau Enclosures cc: Thomas P. Van Wazer, Esq. kwxinfr2.rel MSolberg/dsb/vsd/MMB n:\msolberg\kwxinfr2.rel $// RENAISSANCE COMMS. CORP., WXIN(TV)(Indianapolis, IN) DA 97-2159 //$ $/ 300.503(b) FORFEITURES (NAL) /$ $/ 73.670 COMMERCIAL LIMITS ON CHILDREN'S PROGRAMS /$