******************************************************** NOTICE ******************************************************** This document was converted from WordPerfect to ASCII Text format. Content from the original version of the document such as headers, footers, footnotes, endnotes, graphics, and page numbers will not show up in this text version. All text attributes such as bold, italic, underlining, etc. from the original document will not show up in this text version. Features of the original document layout such as columns, tables, line and letter spacing, pagination, and margins will not be preserved in the text version. If you need the complete document, download the WordPerfect version or Adobe Acrobat version, if available. ***************************************************************** Before the Federal Communications Commission Washington, D.C. 20554 In re Applications of) )File No. BAL-970306HJ GREATER LOS ANGELES RADIO, INC.) (Assignor) ) ) and ) ) INFINITY WOAZ-FM, INC.) (Assignee) ) ) For Assignment of the License of KRLA(AM)) Pasadena, California) ) ) GREATER LOS ANGELES RADIO, INC. )File No. BALH-970306HK (Assignor)) ) and ) ) WESTINGHOUSE ELECTRIC ) CORPORATION ) (Assignee)) ) For Assignment of the License of ) KLSX(FM), Los Angeles, California ) ) ) INFINITY WOAZ-FM, INC.)File No. BALH-970306GP (Assignor)) ) and ) ) GREATER LOS ANGELES RADIO, INC.) (Assignee)) ) For Assignment of the License of WOAZ-FM) Lowell, Massachusetts) ) ) ) WESTINGHOUSE ELECTRIC )File Nos. BALH-960306GO CORPORATION)BALH-970306GN (Assignor)) ) and ) ) GREATER LOS ANGELES RADIO, INC.) (Assignee)) ) For Assignment of the Licenses of WBOS(FM),) Brookline, Massachusetts and WMMR(FM), ) Philadelphia, Pennsylvania) MEMORANDUM OPINION AND ORDER Adopted: July 23, 1997 Released: July 23, 1997 By the Chief, Mass Media Bureau 1. The Mass Media Bureau has under consideration: (1) the above-captioned applications to assign the licenses of KRLA(AM), Pasadena, California from Greater Los Angeles Radio, Inc. (GLAR) to Infinity WOAZ-FM, Inc., a subsidiary of Westinghouse Electric Corporation (Westinghouse); (2) the above- captioned application to assign the license of KLSX(FM), Los Angeles, California, from GLAR to Westinghouse; (3) Westinghouse's request for a temporary waiver of the one-to-a-market rule related to proposed acquisitions of KRLA(AM) and KLSX(FM) from GLAR; (4) the above-captioned application to assign the license of WOAZ(FM) Lowell, Massachusetts, from Infinity WOAZ-FM to GLAR; and (5) the above-captioned applications to assign the licenses of WBOS(FM), Brookline, Massachusetts, and WMMR(FM), Philadelphia, Pennsylvania from Westinghouse to GLAR. These applications, and Westinghouse's request for a one-to-a-market rule waiver are unopposed. Background 2. The transactions proposed in the above-captioned applications represent a like-kind exchange of assets between Westinghouse and its subsidiary Infinity WOAZ-FM, Inc., and GLAR. Westinghouse proposes to exchange WOAZ(FM), WBOS(FM), and WMMR(FM) for KRLA(AM) and KLSX(FM), which are owned by GLAR. This exchange will enable Westinghouse to complete the divestiture of stations in Boston and Philadelphia related to its earlier acquisition of Infinity Broadcasting Corporation that is required by the terms of a consent decree between Westinghouse and the Department of Justice settling a civil antitrust case related to the merger of Infinity and Westinghouse. See Stockholders of Infinity Broadcasting Corporation, FCC 96-495 (Dec. 26, 1996). 3. Westinghouse controls KCBS-TV as well as four FM stations and two AM stations in the Los Angeles area. Westinghouse has been granted a permanent one-to-a-market waiver to hold one television station, two AM stations and two FM stations. Westinghouse was granted a conditional, temporary waiver to add two FM stations, KROQ(FM), Pasadena, California, and KRTH(FM), Los Angeles, California, to this radio/television combination when it merged with Infinity. Westinghouse's ownership of KROQ(FM) and KRTH(FM) is subject to the outcome of the television ownership proceeding in which the Commission is considering issues related to radio/television cross-ownership. See  14 infra. Now Westinghouse seeks to acquire, on a temporary basis, another AM station, KRLA(AM), and another FM station, KLSX(FM), to add to its radio/television combination in Los Angeles. The Grade A contour of KCBS-TV totally encompasses the communities of license KRLA(AM) and KLSX(FM). Consequently, Westinghouse has requested a temporary waiver of the Commission's one-to-a-market rule, which would otherwise prohibit the common ownership of KCBS-TV and KRLA(AM) and KLSX(FM). See 47 C.F.R.  73.3555(c). Westinghouse requests this waiver for a period ending six months after the Commission issues its decision in the television ownership proceeding. If Westinghouse's request is approved, it would have a temporary combination of one television station, three AM stations, and five FM stations in this market. 4. Westinghouse's proposed acquisition of KRLA(AM) and KLSX(FM) also implicates the radio local ownership rules. Consequently, Westinghouse has submitted a showing to demonstrate that its acquisition of these stations complies with the radio local ownership rules. Westinghouse's One-to-a-Market Waiver Showing 5. Westinghouse bases its request for a one-to-a-market waiver on the standards adopted in the Second Report and Order in MM Docket No. 87-7, 4 FCC Rcd 1741 ("Second Report and Order"), recon. granted in part, denied in part, 4 FCC Rcd 6489 (1989) ("Second Report and Order Recon."). Under these criteria, the Commission presumptively favors waiver requests involving station combinations serving the top 25 markets where there remain at least 30 separately owned, operated and controlled broadcast licensees or "voices" after the proposed combination is consummated ("top 25 market/30 voice" standard). The Commission also favors requests involving "failed" broadcast stations, that is, stations that have not been operating for a substantial period of time, e.g., four months, or that are involved in bankruptcy proceedings. See 47 C.F.R.  73.3555 note 7. Waiver requests not eligible for consideration under either the "top 25 market/30 voice" standard or the "failed station" standard are evaluated under the more rigorous case-by-case standard, as set forth in the Second Report and Order. 6. Although Los Angeles is the 2nd largest television market, according to Nielsen, Westinghouse's waiver request must be evaluated under the case-by-case standard because the proposed transaction involves the common ownership of a television station and more than one same-service radio station. See Memorandum Opinion and Order in MM Docket 91-140, 7 FCC Rcd 6387, 6394 n.40 Under the case-by case standard, the commission makes a public interest determination using the following criteria: (1) the potential public service benefits of joint ownership of the facilities, such as the economies of scale, cost savings and programming and service benefits; (2) the types of facilities involved; (3) the number of media outlets owned by the applicant in the relevant market; (4) any financial difficulties involving the stations; and (5) the nature of the relevant market in light of the level of competition and diversity after the joint operation is implemented. Second Report and Order, 4 FCC Rcd at 1753-54. Not all five of the factors mentioned are necessarily relevant in each case. See Second Report and Order Recon., 4 FCC Rcd at 6491. In support of its waiver request, Westinghouse has submitted a showing which addresses the case-by-case factors. 7. Benefits of Joint Operation. Westinghouse states that KRLA(AM) and KLSX(FM) will be operated with its existing radio and television combination and asserts that this consolidation will result in substantial cost savings. Specifically, Westinghouse estimates annual cost savings of between $150,000 and $200,000 from combining KRLA(AM) and KLSX(FM) with its other Los Angeles stations. Westinghouse expects to achieve these savings through combined purchasing power, joint promotion and other operating efficiencies. 8. Westinghouse also asserts that the addition of KRLA(AM) and KLSX(FM) to its existing radio- television combination will lead to many public service programming benefits specific to the Los Angeles market. Westinghouse indicates that KRLA(AM) and KLSX(FM) will have access to the newsgathering and weather forecasting resources of KCBS-TV. Westinghouse asserts that standing alone, KRLA(AM) and KLSX(FM) could not afford the same type of in-depth, quality news and information production for their listeners. Additionally, Westinghouse states that the public affairs programming on KRLA(AM) and KLSX(FM) will be augmented by coordinating production of programming on shows like "Sunday Edition" and "Bob Navarro's Journal" with the public affairs programming on its other Los Angeles stations. Westinghouse also anticipates that the combined operation of KRLA(AM) and KLSX(FM) will permit it to undertake more substantial public interest campaigns and community service projects and to devote more resources to these projects. For example, Westinghouse notes that KCBS-TV could enlist the support of KRLA(AM) and KLSX(FM) in its "Fight Hunger Day" campaign that benefits area food banks. Westinghouse states that adding public service announcements and news stories about "Fight Hunger Day" on KRLA(AM) and KLSX(FM) will expand the audience hearing about the campaign. Westinghouse argues that this kind of coordination can be used to cross-promote public service campaigns undertaken by all of its Los Angeles stations, including KRLA(AM) and KLSX(FM) campaigns supporting community organizations and events such as the Alzheimers Association Memory Walk and the MTA Christmas Toy/Food Drive. 9. Types of Facilities/Other Media Outlets. Westinghouse has described the facilities of the stations that comprise its proposed radio-television combination in the Los Angeles market. KCBS-TV is a VHF station operating on Channel 2 with 36.3 kW from an antenna height of 3,632 feet. Westinghouse's two AM stations are: KNX(AM), a Class A clear-channel station operating with 50 kW; and KFWB(AM), a Class B station operating with 5 kW. All four of Westinghouse's FM stations in Los Angeles are Class B stations. KCBS-FM operates with 54 kW from a 5,000-foot antenna. KTWV(FM) operates with 58 kW from a 2,835-foot antenna. KRTH(FM) operates with 51 kW from a 3,130-foot antenna, and KROQ(FM), operates with 5.6 kW from a 2,000-foot antenna. The AM station that Westinghouse proposes to acquire, KRLA(AM), is a Class B AM station operating with 50 kW of power during the day and 20 kW of power at night from a five tower directional antenna array. KLSX(FM), which Westinghouse also proposes to acquire, is a Class B FM station operating with 21 kW of power from an antenna height of 2,998 feet. Westinghouse asserts that there are a large number of comparable facilities licensed to communities in the Los Angeles market. Moreover, Westinghouse points out that it will compete against a radio/television combination licensed to Disney, as well as commonly-owned radio station combinations that have more than one same-service station, e.g., Cox Broadcasting, Inc.'s combination of three FM stations and one AM station and Liberman Broadcasting, Inc.'s combination of two AM and three FM stations. 10. Economic Status of the Stations. Westinghouse does not address this factor, or claim that any of the stations in the proposed combination are in financial distress. 11. Competition and Diversity in the Market. Westinghouse contends that approval of the requested permanent waiver of the one-to-a-market rule to permit it to combine KRLA(AM) and KLSX(FM) with its other commonly-owned radio and television stations in the Los Angeles market will not have an adverse effect on the level of diversity and competition in the market. Westinghouse states that Los Angeles is the 2nd largest television market in the United States and has 24 television stations licensed to 24 separate owners. Additionally, Westinghouse lists 91 radio stations in the Los Angeles television metro market (54 FM and 37 AM), licensed to 61 separate owners. Westinghouse also notes that there is extensive cable penetration in the market, with 61.4 percent of total households receiving cable service. In addition, Westinghouse states that the Los Angeles market is served by 30 daily newspapers. Discussion 12. Radio Ownership- Los Angeles. We turn first to Westinghouse's compliance with our local radio ownership rules. Westinghouse has submitted a showing that demonstrates that the principal community contours of all of its proposed co-owned stations in the Los Angeles market mutually overlap. A local radio market is defined by the area encompassed by the principal community contours of the mutually overlapping stations proposed to be co-owned. See Implementation of Section 202(a) and 202(b)(1) of the Telecommunications Act of 1996, 11 FCC Rcd 12,368 (1996). The radio local ownership rules, as mandated by the Telecommunications Act of 1996, impose numerical restrictions on the number of radio stations in the same service and on the number of radio stations overall which may be commonly owned in any given local radio market. Pub. L. No. 104-104, 202(d), 110 Stat. 56 (1996). See 11 FCC Rcd 12,368. Westinghouse's showing demonstrates that there are at least 45 commercial radio stations in the local radio market at issue. Under the radio local ownership rules, as amended by the Telecommunications Act of 1996, in a market with 45 or more commercial radio stations, a party may own up to eight commercial radio stations, no more than five of which are in the same service. Westinghouse's common ownership of KRLA(AM) and KLSX(FM) and its other stations in this local radio market in Los Angeles would give Westinghouse a total of eight stations in the applicable local radio market -- three AM and five FM. Thus, Westinghouse's acquisition of KRLA(AM) and KLSX(FM) would not exceed the applicable overall numerical ownership limits of eight stations or the limitation on same service station ownership, and complies with the numerical limits of the local radio ownership rules. Moreover, our review of the record in this case reveals no other circumstances that would preclude grant of this application. We conclude that, with respect to local radio ownership, nothing suggests that Westinghouse's acquisition of KRLA(AM) and KLSX(FM) would be inconsistent with the public interest. See, e.g., S.E. Licensee G.P., 11 FCC Rcd 16,727 (1996); Shareholders of Citicasters, Inc., 11 FCC Rcd 19,135 (1996). 13. One-to-a-Market Waiver. Westinghouse already controls, through both permanent and temporary conditional waivers of the one-to-a-market rule, a one television/ four FM/twoAM station combination in the Los Angeles market. The addition of KRLA(AM) and KLSX(FM) to this station combination requires reliance on the statutory radio ownership limitations adopted in the Telecommunications Act of 1996 and incorporated in our rules. Issues related to radio/television cross- ownership remain in the pending television ownership proceeding. See Review of The Commission's Regulations Governing Television Broadcast Ownership in MM Docket Nos. 91-221 and 87-8, FCC 96-438 (Nov. 7, 1996). Consequently, we have concluded that radio-television combinations exceeding a one television/two AM/two FM station combination are eligible for temporary one-to-a-market waivers conditioned on the resolution of the issues raised concerning the one-to-a-market rule in the television ownership proceeding. Such conditional waivers may be approved if they are consistent with precedent and the proposed station combination will not unduly affect competition and diversity in the relevant market. S.E. Licensee; Citicasters. We find that Westinghouse has justified a grant of a temporary waiver pending resolution of the television ownership proceeding. Our view that a temporary, conditional waiver is warranted is based in part on our analysis of Westinghouse's case-by-case showing in support of its waiver request. In addition, we recognize that our approval of the requested temporary waiver will enable Westinghouse to complete the exchange of stations with GLAR, and thus to divest itself of stations in Philadelphia and Boston in order to comply with the terms of its agreement with the Department of Justice settling a civil antitrust case. See paragraph 2 supra. 14. Westinghouse has demonstrated that combining KRLA(AM) and KLSX(FM) with its existing stations will result in substantial cost savings and economic benefits. Westinghouse estimates total additional savings in the range of $150,000 to $200,000 based on operating KRLA(AM) and KLSX(FM) with its other stations. These cost savings will translate into public service and programming improvements. In this regard, KRLA(AM) and KLSX(FM) will have access to the newsgathering and weather forecasting resources of KCBS-TV. Additionally, public service programming and community service initiatives on the stations will be augmented. 15. The second factor of our analysis takes into consideration the types of facilities of the stations involved in the proposed radio-television combination. As we have previously acknowledged, Westinghouse's present station combination in the Los Angeles market includes stations with substantial technical facilities, including a VHF television station, a clear-channel AM station and three Class B FM stations, the most powerful class of FM stations licensed in Zone I, the geographic designation that includes the Los Angeles market. See 47 C.F.R.  73.205. In addition, the three FM stations that Westinghouse now controls are among the most powerful Class B facilities operating in the market. See Stockholders of Infinity Broadcasting Corporation, FCC 96-495 at  41-42, 85-86. However, KRLA(AM) and KLSX(FM), as well as the other stations in Westinghouse's proposed combination are less powerful Class B AM and FM stations. Moreover, we have acknowledged that Los Angeles, the second largest television market in the country, enjoys robust competition and diversity. Id at  42, 44-46, 86, 88. As discussed infra, there is no reason to alter this conclusion in light of Westinghouse's request to acquire KRLA(AM) and KLSX(FM) on a temporary basis, conditioned on the outcome of the television ownership proceeding. In addition, Westinghouse has demonstrated that there are other stations with comparable facilities operating in the market. In this regard, we note that KCBS-TV competes against two other network VHF stations in the Los Angeles television market. Additionally, there are other Class B FM stations in the market operating at maximum facilities. Thus, although Westinghouse's temporary station combination includes stations with significant facilities, we find that comparable facilities do exist and that Westinghouse will not likely be able to dominate the market based on the nature of its facilities. See, e.g., Infinity Holdings Corp. of Orlando, 11 FCC Rcd 17,813 (1996). 16. With regard to the third factor, Westinghouse will not own any media outlets in the Los Angeles market other than those listed in its request for a one-to-a-market waiver. Fourth, regarding the financial status of the stations in the proposed combination, Westinghouse does not claim that any of the stations in the proposed combination is experiencing financial difficulties. However, not all of the five case-by-case factors must be met as a precondition to grant of a one-to-a-market waiver. The Commission has previously granted one-to-a-market waivers absent financial difficulties. See, e.g., Louis C. DeArias, Receiver, 11 FCC Rcd 3662, 3666 (1996); Alta Gulf FM , Inc., 10 FCC Rcd 7750, 7751 (1995); Secret Communications, Ltd., 10 FCC Rcd 6874, 6877-79 (1995). 17. Finally, the fifth factor relates to the level of diversity and competition in the market. Indicia of the level of diversity include the number of broadcast outlets, the number of separately owned and operated "voices" in the market, and the presence of cable and non-broadcast media. The Los Angeles market is ranked 2nd in the country and, according to our independent analysis of the data provided by Westinghouse, there are 87 radio stations (51 FM and 36 AM) and 22 television stations in the market. These 109 broadcast stations will represent 74 separately owned broadcast "voices" following consummation of Westinghouse's acquisition of KRLA(AM) and KLSX(FM). Additionally, the market is served by numerous daily newspapers and has substantial cable penetration. Therefore, the record demonstrates that the robust competition and diversity in the Los Angeles market will not be adversely affected by Westinghouse's acquisition of KRLA(AM) and KLSX(FM) on a temporary basis. 18. Our independent analysis indicates that Westinghouse's radio stations currently garner a 27 percent share of the radio advertising revenue in the Los Angeles market, a number that would increase to 31 percent with the proposed acquisition. In markets of this size, the dollar amounts represented by such percentages are not inconsequential. Los Angeles is the nation's largest radio revenue market with an estimated $540 million total gross market revenues; the 4 percent increase in Westinghouse's share equals over $21 million annually. In addition, after the proposed combination, Westinghouse would have three times the radio advertising market share of its nearest competitors (Westinghouse - 31 percent, Disney/ABC - 11 percent, Chancellor - 9 percent (which would increase to 14 percent if the proposed merger of Chancellor and Evergreen is approved), and Emmis - 5 percent). KCBS-TV receives 8.5 percent of the television advertising revenue in the Los Angeles market. Together, the television and radio stations in Westinghouse's proposed station combination have a combined television and radio advertising revenue share of 17.6 percent. Under all of the circumstances here, including the size of this market and the limited duration of the waiver, we do not believe that this level of advertising revenue is so significant to cause us to conclude that diversity and competition in Los Angeles will be unduly affected. See e.g., S.E. Licensee, G.P., 11 FCC Rcd 16,727 (1996); Shareholders of Citicasters, Inc., 11 FCC Rcd 19,135 (1996). 19. We conclude that grant of a conditional, temporary waiver of the one-to-a-market rule to permit Westinghouse to acquire KRLA(AM) and KLSX(FM), and thus to commonly own KCBS-TV, KRLA(AM), KNX(AM), KFWB(AM), KLSX(FM), KTWV(FM), KCBS(FM), KRTH(FM), and KROQ(FM) in the Los Angeles market for a period of six months from the issuance of an Order in our pending television ownership proceeding is warranted. Additionally, we find that the applicants are fully qualified and that grant of the application for the assignment of the license of KRLA(AM) from GLAR to Westinghouse's wholly-owned subsidiary, Infinity WOAZ-FM, Inc., and the license of KLSX(FM) from GLAR to Westinghouse, would serve the public interest. 20. Radio Ownership-Philadelphia and Boston We have also reviewed GLAR's compliance with the radio local ownership rules in connection with its acquisition of WMMR(FM) in Philadelphia and its acquisition of WBOS(FM) and WOAZ-FM in Boston. Greater Media, Inc. is the ultimate parent corporation of GLAR. In Philadelphia, Greater Media Inc. also controls WPEN(AM) and WMGK(FM) through its wholly-owned subsidiary, Greater Philadelphia Radio, Inc. In addition, we have recently approved Greater Philadelphia Radio, Inc.'s acquisition of WFLN(FM), also in Philadelphia. The principal community contours of WMMR(FM), WPEN(AM), WMGK(FM) and WFLN(FM) all mutually overlap. GLAR's showing indicates that there are at least 19 radio stations in the relevant local radio market encompassed by the mutually overlapping contours of the four stations that will be under common ownership. In radio markets of 15 to 29 radio stations, a party may own up to six stations, no more than four of which are in the same service. See Implementation of Section 202(a) and 202(b)(1) of the Telecommunications Act of 1996, 11 FCC Rcd 12,368 (1996). Therefore, common ownership of these four stations -- three FM stations and one AM station--complies with the numerical limits of the radio local ownership rules. 21. In Boston, Greater Media, Inc. controls WKLB-FM, WMJX(FM), WNFT(FM) through Greater Boston Radio, Inc., its wholly-owned subsidiary. Greater Media, Inc. also controls Greater Washington Radio, Inc., the licensee of WROR(FM), Framingham, Massachusetts. The showing submitted by GLAR demonstrates that the principal community contours of WBOS(FM), Brookline, Massachusetts, and WOAZ- FM, Lowell, Massachusetts, which GLAR proposes to acquire, and the three FM and one AM station under common ownership through its parent all mutually overlap. GLAR's showing also demonstrates that there are at least 45 radio stations in the relevant local radio market encompassed by the mutually overlapping contours of the six stations that will be under common ownership. In radio markets of more than 45 stations, a party may own up to eight stations, no more than five of which are in the same service. Id. Therefore, the common ownership of these six stations -- five FM stations and one AM station--complies with the numerical limits of the radio local ownership rules. 22. Moreover, our review of the record in this case reveals no other circumstances that would preclude grant of GLAR's applications to acquire WMMR(FM), Philadelphia, WBOS(FM), Brookline, Massachusetts, and WOAZ-FM, Lowell, Massachusetts. We conclude that, with respect to local radio ownership, nothing suggests that GLAR's acquisition of these stations in Philadelphia and the Boston area would be inconsistent with the public interest. See, e.g., S.E. Licensee G.P., 11 FCC Rcd 16,727 (1996); Shareholders of Citicasters, Inc., FCC 96-380 (Sept. 17, 1996). 23. Accordingly, IT IS ORDERED, That the request for a waiver of the one-to-a-market rule, 47 C.F.R.  73.3555(c), to permit common ownership of Stations KCBS-TV, Los Angeles, California, KRLA(AM) and KROQ(FM), Pasadena, California, KNX(AM), KFWB(AM), KLSX(FM), KTWV(FM), KCBS(FM), and KRTH(FM), all Los Angeles, California, IS HEREBY GRANTED, subject to the outcome in the pending television ownership rulemaking proceeding, Second Further Notice of Proposed Rulemaking in MM Docket Nos. 91-221 and 87-8. Should divestiture be required as a result of that proceeding, Westinghouse Electric Corporation IS DIRECTED to file an application for Commission consent to sell the necessary stations within six months from the release of the final Order in that rulemaking proceeding. 24. IT IS FURTHER ORDERED, That, having found the applicants fully qualified, the application to assign the license of KRLA(AM), Pasadena, California, from Greater Los Angeles Radio, Inc. to Infinity WOAZ-FM, Inc., File No. BALH-970306HJ and the application to assign the license of KLSX(FM), Los Angeles, California, from Greater Los Angeles Radio, Inc. to Westinghouse Electric Corporation, File No. BALH-970306HK, ARE HEREBY GRANTED. 25. IT IS FURTHER ORDERED, That, having found the applicants fully qualified, the application to assign the license of WOAZ-FM, Lowell, Massachusetts, from Infinity WOAZ-FM, Inc. to Greater Los Angeles Radio, Inc., File No. BALH-970306GP, and the applications to assign the licenses of WBOS(FM), Brookline, Massachusetts and WMMR(FM), Philadelphia, Pennsylvania, from Westinghouse Electric Corporation, Inc. to Greater Los Angeles Radio, Inc. File Nos. BALH-970306GO and BALH-970306GN ARE HEREBY GRANTED. FEDERAL COMMUNICATIONS COMMISSION Roy J. Stewart Chief, Mass Media Bureau