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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 the Matter of ) ) Implementation of Section 551 of the ) CS Docket No. 97-55 Telecommunications Act of 1996 ) ) Video Programming Ratings ) REPORT AND ORDER Adopted: March 12, 1998 Released: March 13, 1998 By the Commission: Commissioners Furchtgott-Roth and Tristani issuing separate statements. I. INTRODUCTION 1. In the Telecommunications Act of 1996 (the "1996 Act"), Congress determined that parents should be provided with timely information about the nature of upcoming video programming and with the technological tools that would allow them to easily block violent, sexual, or other programming they believe is harmful to their children. Congress also provided that distributors of video programming should be given the opportunity to develop a voluntary system to provide parents with ratings information. In response to the 1996 Act, the National Association of Broadcasters ("NAB"), National Cable Television Association ("NCTA") and Motion Picture Association of America ("MPAA") (the "Industry") jointly submitted to the Commission on behalf of their members, a system of voluntary parental guidelines ("TV Parental Guidelines") adopted and implemented by television broadcasters and networks, cable networks and systems, and television program producers. Section 551(e) of the 1996 Act requires the Commission to determine whether video programming distributors (1) have established acceptable voluntary rules for rating video programming that contains sexual, violent or other indecent material about which parents should be informed before it is displayed to children and (2) have agreed voluntarily to broadcast signals that contain such ratings. 2. In this Report and Order, we find that the Industry's TV Parental Guidelines establish acceptable voluntary rating rules and that the concomitant agreement to voluntarily broadcast signals containing ratings pursuant to the TV Parental Guidelines are in compliance with the specific requirements of Section 551(e). In a companion item being issued today we adopt technical rules that require television receivers with picture screens 33 cm (13 inches) or greater to be equipped with features to block the display of television programming with a common rating, commonly referred to as the "v-chip" technology. Although we chose to approach the v-chip and ratings proceedings separately, our deliberations in both proceedings have focused on Congress' goal of achieving an effective method by which the rating system, when used in conjunction with the v-chip technology, will provide parents with useful tools to block programming they believe harmful to their children. II. BACKGROUND 3. In Section 551 of the 1996 Act, Congress made extensive findings with respect to the influence that television has on children, and the need to provide parents with timely information about the nature of upcoming video programming and with the technological tools that allow them easily to block violent, sexual or other programming that they believe harmful to their children. As a result of these findings, Congress called for the establishment of guidelines and recommended procedures for rating certain television programming, and the transmission of rating information for programs which are rated. 4. Congress delayed the Commission's exercise of its authority to establish a rating system to permit the broadcast and cable industries to develop an acceptable voluntary rating system for video programming within one year of the enactment of the 1996 Act on February 8, 1996. Specifically, under Section 551(e)(1): The amendment made by subsection (b) of this section shall take effect 1 year after the date of enactment of this Act, but only if the Commission determines, in consultation with appropriate public interest groups and interested individuals from the private sector, that distributors of video programming have not, by such date -- (A) established voluntary rules for rating video programming that contains sexual, violent, or other indecent material about which parents should be informed before it is displayed to children, and such rules are acceptable to the Commission; and (B) agreed voluntarily to broadcast signals that contain ratings of such programming. 5. Following enactment of the 1996 Act, and over the course of the next year, the broadcasting, cable and program production industries worked together to develop a rating system, which they implemented in early January 1997. Details of the rating system were submitted to the Commission on January 17, 1997. Following the January 17, 1997 Submission, the Commission sought comment from interested parties on the TV Parental Guidelines. Parents groups, public health organizations, members of Congress, public interest groups and others expressed concern about some aspects of the rating system. Discussions between the Industry and certain advocacy groups continued and on August 1, 1997, the Industry submitted to the Commission revisions to the guidelines. The Industry states that the TV Parental Guidelines, as modified, are supported by nine family and child advocacy groups, as well as television broadcasters, cable systems and networks, and television production companies. The revised TV Parental Guidelines were implemented on October 1, 1997. III. THE TV PARENTAL GUIDELINES 6. According to the Industry, the TV Parental Guidelines are designed so that "category and program-specific content indicators will provide parents with information that will help them make informed decisions about what their children should watch on television." The TV Parental Guidelines describe a voluntary rating system consisting of six descriptive labels designed to indicate the appropriateness of television programming to children according to age and/or maturity; content indicators concerning sexual situations, violence, language or dialogue; transmission of the ratings information over line 21 of the Vertical Blanking Interval ("VBI"); display of on-screen rating icons and indicators; and the establishment of an Oversight Monitoring Board. 7. The Industry states that the TV Parental Guidelines will apply to all television programming except for news, sports, and unedited MPAA rated movies on premium cable channels. The TV Parental Guidelines (labels and content indicators, and respective meanings) are: For programs designed solely for children: TV-Y (All Children -- This program is designed to be appropriate for all children). Whether animated or live-action, the themes and elements in this program are specifically designed for a very young audience, including children from ages 2-6. This program is not expected to frighten younger children. TV-Y7 (Directed to Older Children -- This program is designed for children age 7 and above). It may be more appropriate for children who have acquired the developmental skills needed to distinguish between make-believe and reality. Themes and elements in this program may include mild fantasy or comedic violence, or may frighten children under the age of 7. Therefore, parents may wish to consider the suitability of this program for their very young children. Note: For those programs where fantasy violence may be more intense or more combative than other programs in this category, such programs will be designated TV-Y7-FV. For programs designed for the entire audience, the general categories are: TV-G (General Audience -- Most parents would find this program suitable for all ages). Although this rating does not signify a program designed specifically for children, most parents may let younger children watch this program unattended. It contains little or no violence, no strong language and little or no sexual dialogue or situations. TV-PG (Parental Guidance Suggested -- This program contains material that parents may find unsuitable for younger children). Many parents may want to watch it with their younger children. The theme itself may call for parental guidance and/or the program contains one or more of the following: moderate violence (V), some sexual situations (S), infrequent coarse language (L), or some suggestive dialogue (D). TV-14 (Parents Strongly Cautioned -- This program contains some material that many parents would find unsuitable for children under 14 years of age). Parents are strongly urged to exercise greater care in monitoring this program and are cautioned against letting children under the age of 14 watch unattended. This program contains one or more of the following: intense violence (V), intense sexual situations (S), strong coarse language (L), or intensely suggestive dialogue (D). TV-MA (Mature Audience Only -- This program is specifically designed to be viewed by adults and therefore may be unsuitable for children under 17). This program contains one or more of the following: graphic violence (V), explicit sexual activity (S), or crude indecent language (L). 8. As proposed by the Industry, rating icons and associated content symbols appear for 15 seconds at the beginning of all rated programming and through the use of a display button on a remote control device thereafter. Under the TV Parental Guidelines, the rating guidelines will typically be applied to television programs by broadcast and cable networks and producers, while television stations retain the right to substitute the rating they deem appropriate for their audience. The Industry notes that cable networks and television stations will provide rating information to newspapers and publishers of printed and electronic program guides, and will request that these publishers include the appropriate information in their guides. 9. According to the Industry, the TV Parental Guidelines will work with the v-chip technology to permit parents to block programming with a certain rating from coming into their home. The v-chip, which will be installed in television sets, or available through set-top boxes, will read information encoded in the program and block based on the overall age category or by the S, L, V, or D rating assigned to the program, or by a combination of the two. 10. The Industry has established an Oversight Monitoring Board to ensure that the rating guidelines are applied accurately and consistently to television programming. The Board is comprised of a chairman and 23 members, including 6 members each from the broadcast television industry, the cable industry, and the program production community, and 5 non-industry members selected by the Chairman from the advocacy community, for a total of 24 members. The Oversight Monitoring Board will provide information to producers and other program distributors concerning the TV Parental Guidelines, as well as address complaints and requests from the public about the TV Parental Guidelines and their implementation. The Oversight Monitoring Board will explore attitudes about the TV Parental Guidelines and the way in which they are being applied to programming, conduct focus groups and commission quantitative studies to determine whether the TV Parental Guidelines are providing useful information to parents, and consider any needed changes to them. The Industry has also committed to independent, scientific research and evaluation of the rating system once the v-chip is in place. IV. REVIEW OF THE VOLUNTARY PROPOSAL 11. Section 551(e) of the 1996 Act directs the Commission, in consultation with appropriate public interest groups and interested individuals from the private sector, to determine whether distributors of video programming have established acceptable voluntary rules for rating video programming that contains sexual, violent or other indecent material about which parents should be informed before it is displayed to children, and to determine whether distributors of video programming have agreed voluntarily to broadcast signals that contain ratings of such programming. If we determine that these conditions are not present, we are to establish an advisory committee. On the basis of the advisory committee's recommendations, we would then prescribe guidelines and recommended procedures for the identification and rating of such video programming and to prescribe, in consultation with the television industry, rules requiring distributors of any rated video programming to transmit such rating to permit parents to block display of rated programming. (1) Consultation With Appropriate Public Interest Groups and Interested Individuals From the Private Sector 12. To implement Section 551's requirement that we consult with the public regarding the acceptability of the TV Parental Guidelines, we issued public notices on February 7, 1997 (Initial Notice) and on September 9, 1997 (Second Notice) seeking comment on, respectively, the Industry's initial TV Parental Guidelines and the subsequently revised TV Parental Guidelines. In this regard, we developed a full record that includes the views of parents and teachers, public interest groups, medical professionals, industry representatives and interested individuals from the private sector. In addition to the comments filed in response to our public notices, we received numerous informal comments from interested parties, including comments received through electronic mail, and have made those comments part of the record. As a result, however, of the lengthy discussions between the industry and the public on the acceptability of the TV Parental Guidelines after the January 17th filing, as well as a Congressional Hearing on the matter, we determined that an additional public forum at the Commission was unnecessary. We believe that Congress's interest in having the Commission consult with the public on the acceptability of the TV Parental Guidelines was augmented, in large degree, by the negotiations that took place between prominent advocacy groups and the industry. As a result, we considered the results of these negotiations, as well as the formal and informal comments filed in our proceeding, in making our determination. In addition, we have met with various parties about their concerns. 13. Our outreach efforts generated significant input on many important issues. The January 17th filing generated a large number of commenters, with the majority of comments reflecting concern that the rating system did not provide specific information identifying whether a program contained sexual, violent or indecent material. In response to the August 1, 1997 revisions to the TV Parental Guidelines, the Commission received 11 formal comments, 2 reply comments and 2 informal comments, the majority of which reflect general support for the revised TV Parental Guidelines. In addition, on August 6, 1997, the Commission received a letter from Representatives Burton, Markey, Moran and Spratt stating that the revised ratings proposal has the broad support of advocacy groups and the broadcasting industry. 14. Nine prominent advocacy groups have explicitly endorsed the TV Parental Guidelines submitted by the Industry on August 1, 1997. The groups are the American Medical Association; American Academy of Pediatrics; American Psychological Association; Center for Media Education; Children's Defense Fund; Children Now; National Association of Elementary School Principals; National Education Association; and the National PTA (the "Concurring Advocacy Groups"). In a statement of acceptance, the Concurring Advocacy Groups state that: [T]he TV Parental Guidelines have been developed collaboratively by members of the industry and the advocacy community. We find this combined age and content based system to be acceptable and believe that it should be designated as the mandated system on the V-chip and used to rate all television programming, except for news and sports, which are exempt, and unedited movies with an MPAA rating aired on premium cable channels. We urge the FCC to so rule as expeditiously as possible. 15. Most commenters urge the Commission to find that the TV Parental Guidelines, as revised, are acceptable. Commenters representing the interests of children, parents and teachers, medical disciplines, program distributors, film producers and equipment manufactures, as well as several individual commenters support the acceptability of the TV Parental Guidelines. Many commenters find that the TV Parental Guidelines will enable distributors to adequately identify sexual, violent, or other indecent material about which parents should be informed prior to its display to children and to provide parents with timely access to this information. Several commenters, for example, cite specifically the addition of content descriptors for sex, violence, language and dialogue to the TV Parental Guidelines' six age/maturity-based categories as meeting the goal of providing parents with the information they need to make viewing choices for their children. Others cite the addition of the non-industry representatives to the Oversight Monitoring Board in urging acceptance of the TV Parental Guidelines. 16. A few commenters raise concerns about the overall fairness of the Oversight Monitoring Board and consistency in the application of ratings. Some argue for a stronger oversight mechanism, including enforcement and review procedures, that will achieve and maintain consistency of application of the TV Parental Guidelines. Other commenters encourage the Commission to permit the use of alternative rating systems. 17. Two commenters, Morality in Media and Robert Kimball, argue that the TV Parental Guidelines are unacceptable even after revisions were made to the system, including the addition of S, L, V, and D descriptors. These commenters generally contend that the TV Parental Guidelines fail to inform parents of sexual and other indecent material in television programs. Morality in Media believes the TV Parental Guidelines do not give sufficient information to parents because the rating categories do not contain objective and definite criteria for determining a program's rating. Morality in Media also criticizes the Industry's proposed rating system because it is based on the age-based MPAA rating system, a system it claims provides the industry's own assessment as to the appropriateness of films and is designed to keep from alerting parents as to the inappropriateness of many Hollywood films. Kimball requests that the Commission not find the TV Parental Guidelines acceptable because they are inadequate and would fail to inform parents of sexual and other indecent material in television programs they may not want their children to watch. Morality in Media also argues that NBC's failure to rate programs in accordance with the TV Parental Guidelines means that the "Industry" has not voluntarily agreed to transmit the ratings as required by Section 551(e)(1)(B). (2) Establishment and Acceptability Of Voluntary Rules For Rating Video Programming 18. After reviewing the TV Parental Guidelines and considering the comments filed and the viewpoints expressed throughout this proceeding, we find that, in accordance with Section 551(e)(1)(A) of the 1996 Act, distributors of video programming have established acceptable voluntary rules for rating video programming that contains sexual, violent, or other indecent material about which parents should be informed before it is displayed to children. 19. Section 551 requires that the Commission determine whether the TV Parental Guidelines are acceptable. As a preliminary matter, we must determine what it means for the rating system to be "acceptable." The term is not defined in the statute, nor are we aware of any statutory interpretation of the term that would be relevant to our determination here. Applying the general meaning of the term, we believe that it is reasonable to interpret the statute to mean that the rating system is acceptable if it meets both the specific requirements of Section 551(e) and the overall goals of Congress in enacting Section 551. 20. Section 551(e)(1)(A) states that the rating system must provide information about programming that contains sexual, violent or other indecent material about which parents should be informed before it is displayed to children. The TV Parental Guidelines provide a comprehensive system for rating programming that contains violent, sexual, or other indecent material, with specific rating information for programs designed solely for children. Programming designated solely for children is age-based to indicate programming appropriate for all children (including ages two to six), programming for older children (ages seven and above) with a more specific content indicator for fantasy violence. Programming for the entire audience is also age-based and supplemented by content indicators for sex, violence, adult language and suggestive dialogue. Morality in Media argues that the categories are subjective. We agree with the majority of commenters, however, who believe that the age-based, content supplemented system adopted by the Industry is sufficiently objective to provide parents with information necessary to make informed decisions. We do not agree with commenters who argue that we cannot find the system "acceptable" absent the inclusion of more specific details about varying degrees of violent, sexual, or other indecent materials found in the programming. The TV Parental Guidelines provide for weighing of each of the descriptors depending on which of the age-based categories it is associated with, i.e., the "V" in TV-PG-V means "moderate violence" while the "V" in TV-14-V means "intense violence." As a result, we do not believe that additional descriptors are necessary to meet the goals of Congress in adopting Section 551. Congress required that the rating system be sufficient to advise parents of the appearance of sexual, violent or indecent material in certain programming. We find that the TV Parental Guidelines meet this goal. 21. Some commenters raise concerns that the TV Parental Guidelines do not rate sports, news, commercials or promotions. Parties argue that these programs contain sexual or violent material that may be harmful to children. As an initial matter, we note that the EIA standard that we are adopting in the V- chip Proceeding accommodates the rating of programs, including commercials within the program. Since advertisers target specific audiences reached by particular programming, it is not unreasonable for the Industry to rely on the program blocking mechanism to also filter commercials that appear in the program. While it appears that commercials that are not encoded may be passed through, such as locally inserted advertisements, we do not think that failure to rate advertisements individually will defeat the purpose of Congress in enacting Section 551. We also think it is important to recognize that the decision to exclude these categories of programming was made with the support of the advocacy groups that negotiated revisions to the Industry proposal. Similarly, we think it is not unreasonable for the Industry to exempt sports and news programming. In addition to the practical limitations in rating such programming, we note that Congress recognized the danger in requiring rating of political programming, which is often an integral element in news programming. As a result, we conclude that the TV Parental Guidelines are acceptable even though the Industry has decided not to rate these programs as a general rule. 22. We agree with commenters who express concern that to be useful, the rating system must be applied in a consistent and accurate manner. The record here indicates that the Industry has taken steps to insure that this is the case. The agreement reached between the Industry and the advocacy groups commits the Industry to independent, scientific research and evaluation of the rating system once the v-chip is in place. We believe that this independent research and evaluation is important to determine whether the rating system is working and providing parents with the information needed to make viewing choices for their children. We view this research and evaluation effort as an important opportunity for parents to assess the usefulness of the rating system and provide input on the consistency and accuracy of the ratings. We expect that the research and evaluation of the rating system, once the system has been in use, will allow for adjustments and improvements to the system. We view this commitment as an important element in the proposal. 23. We also believe that the Oversight Monitoring Board can play an important role in making the ratings meaningful by helping to ensure a consistency of approach in rating the programs. We note that in response to concerns raised by the public interest groups, the Industry agreed to add 5 non-industry members, drawn from the advocacy community, to the board. While some commenters raise concerns that the board, with 19 industry members, is still unbalanced, we agree with the majority of commenters that the addition of representatives from the advocacy community will provide an important voice for non- industry interests and will permit useful oversight of the rating system. 24. We believe that, based on the record before us, the TV Parental Guidelines serve the goals of Section 551. The voluntary rating system addresses Congress' concern that parents have timely information about the nature of upcoming video programming. The Industry has voluntarily agreed to transmit ratings over line 21 of the VBI. Under the TV Parental Guidelines, rating icons and descriptors will be displayed for 15 seconds at the beginning of a program and may be displayed at any time through the use of a remote control display button. Also, the size of the icon has been increased from the initial proposal so that it will occupy more than 40 scan lines on the television screen. The TV Parental Guidelines, used in conjunction with the v-chip technology, will give parents the tools they need to limit the exposure of their children to video programming that they believe is inappropriate. 25. In the Second Notice we asked for comment on whether the Commission should determine the acceptability of any alternative ratings systems used by video programming distributors. Some commenters asked the Commission to guarantee access to alternative ratings systems, and we are aware of at least one programmer, NBC, that has implemented its own variation of the Industry rating system. We believe, however, that Congress intended that we evaluate only the system of rules established through industry consensus. Section 551 was designed to give the industry an opportunity to come to a consensus on a system of rules before the Commission would establish its own rating guidelines. Just as the Commission would be charged with prescribing one set of guidelines to be followed -- on a voluntary basis -- industry-wide, it is reasonable to conclude that Congress expected any voluntary rules established by distributors under Section 551(e) to be one uniform system arrived at through consensus. This interpretation is borne out by the legislative history, which refers repeatedly to one industry system of rules. The Conference Report, for example, states that the advisory committee provision is only triggered if the Commission determines that "distributors of video programming have not established an acceptable voluntary system for rating programming nor agreed voluntarily to broadcast signals that contain ratings of such programming." The Conference Report further states that the Commission guidelines and recommended procedures discussed in Section 551(b)(1) "are intended to provide industry with a carefully considered and practical system for rating programs if industry does not develop such a system itself." The debate on Section 551 further emphasizes that Congress envisioned the collaborative establishment of one industry rating system. For example, Senator Conrad urged "television broadcasters, cable operators, and other video programmers to take advantage of the 12-month period provided under section 551 to voluntarily develop an identification or rating system that will help parents to make informed decisions about television programming that is appropriate for children." We therefore believe that Congress intended that we evaluate only the single Industry proposal. We make no finding on the acceptability of other ratings systems, including the Industry proposal as it existed prior to the August 1, 1997 modifications. 26. Because we find that Section 551(e) contemplates that the Commission review only the Industry proposal, we similarly conclude that Congress did not intend that we mandate accessibility to alternative ratings systems. Consequently, our companion technical item issued today does not mandate that the v-chip accommodate alternative rating systems, although it does encourage manufacturers to design TV receivers to provide for additional ratings systems to the extent practical. We envision that the Industry and the manufacturers will work together to accommodate industry innovations in the rating system. (3) Voluntary Agreement to Broadcast Signals 27. The statute also requires that we determine whether "distributors of video programming have . . . agreed voluntarily to broadcast signals that contain ratings of such programming." The Industry's original proposal stated: "We have agreed to encode the guideline for each program on line 21 of the Vertical Blanking Interval once the Commission establishes a technical standard. This will enable the 'v- chip' and permit parents to use the TV Parental Guidelines to control children's television viewing when parents are not in the home." According to the original proposal, the industry group that developed the proposed system "represented all segments of the television industry: the national broadcast networks; affiliated, independent and public television stations nationwide; cable programmers, producers and distributors of cable programming; entertainment companies; movie studios; and members of the creative guilds representing writers, directors, producers and actors." In its August 1, 1997 submission, the Industry reiterated that "[t]he TV Parental Guidelines are voluntarily and broadly supported by the television industry which has pledged to begin transmitting ratings information on line 21 of the VBI within six months." 28. We recognize that not all video programming distributors have agreed to transmit the ratings system that we have found acceptable. For example, BET has chosen not to participate in the TV Parental Guidelines system, and NBC has decided to continue to apply the Industry ratings system as it existed prior to the August 1 modifications. Morality in Media argues that because NBC is an integral part of the industry, its failure to commit to the agreed upon system results in failure by the industry to submit a voluntary plan in accordance with the statute. 29. We do not believe that the statute requires that every video programming distributor nationwide agree to transmit the ratings. Such a reading would mean, for example, that the failure of a single small television station to transmit the ratings would cause the entire system to fail. On the other hand, we believe that participation must be sufficiently ubiquitous to achieve Congress' goals in enacting Section 551, including the goal of permitting parents "to easily block violent, sexual or other programming that they believe harmful to their children." The more video programming distributors that do not participate, and the larger the audience reach of the distributors that do not participate, the more difficulty parents will have blocking the programming they consider inappropriate. We stress that we are not forcing any video programming distributor to transmit ratings, or suggesting that they transmit a particular ratings scheme. Under 551(e), we are required to determine whether, as a factual matter, video programming distributors have voluntarily agreed to transmit the Industry proposal. If we find that they have not, the 1996 Act provides that the Commission shall prescribe "on the basis of recommendations from an advisory committee established by the Commission . . . guidelines and recommended procedures for the identification and rating of video programming that contains sexual, violent, or other indecent material about which parents should be informed before it is displayed to children." 30. The decisions of individual parties, such as NBC and BET, not to participate in the current Industry proposal can make it more difficult for parents who wish to use content indicators to block programming using the TV Parental Guidelines. In the case of BET, which will transmit no ratings at all, parents may be required to use a separate date/time/channel blocking mechanism to block programming (assuming that their television set provides such a feature). As for NBC, a major network, parents will not be able to block programming based upon the different content indicators within each age-based category. Under the TV Parental Guidelines, for instance, a parent who was primarily concerned about exposing his or her child to television violence could establish a more restrictive standard for the violent programming that would be allowed to enter the home than for sexual situations or strong language. This will not be possible under the NBC approach. Nonetheless, parents will be able to block programming based on age categories. 31. Based on the record, we conclude that Congress' goals will be achieved to a sufficient degree to warrant a finding that video programming distributors have voluntarily agreed to broadcast the Industry ratings system. To our knowledge, the only national video programming distributors that have elected not to participate are BET and NBC. Given this near-unanimity, we believe that the TV Parental Guidelines will provide parents with a useful and easy-to-use tool to block programming that they consider harmful to their children. V. CONCLUSION 32. In their joint statement of July 10, 1997, the Industry and Concurring Advocacy Groups ask that we give the rating system a fair chance to work and allow parents an opportunity to understand and use the system. Further efforts are underway to provide information and educate parents about the rating system, such as encouraging publishers of periodicals, newspapers and journals to include the ratings with program listings and making available videos and brochures to parents through local cable companies, schools, libraries and civic organizations. As a result of the joint efforts of the Industry and the public groups who have so diligently participated in the development of the TV Parental Guidelines in furtherance of Congress' goals, we believe that parents will be provided with needed information about programming before it is displayed to children and given the technological tools necessary to easily block programming that they consider harmful. 33. Accordingly, IT IS ORDERED that pursuant to the authority found in Section 551(e) of the Telecommunications Act of 1996, the industry's establishment of voluntary rules for rating video programming is consistent with the requirements of Section 551(e) (1) and (2). FEDERAL COMMUNICATIONS COMMISSION Magalie Roman Salas Secretary APPENDIX A Communications Act of 1934 as amended by The Telecommunications Act of 1996 Subtitle B - Violence Section 551. PARENTAL CHOICE IN TELEVISION PROGRAMMING. (a) FINDINGS. -- The Congress makes the following findings: (1) Television influences children's perception of the values and behavior that are common and acceptable in society. (2) Television station operators, cable television system operators, and video programmers should follow practices in connection with video programming that take into consideration that television broadcast and cable programming has established a uniquely pervasive presence in the lives of American children. (3) The average American child is exposed to 25 hours of television each week and some children are exposed to as much as 11 hours of television a day. (4) Studies have shown that children exposed to violent video programming at a young age have a higher tendency for violent and aggressive behavior later in life than children not so exposed, and that children exposed to violent video programming are prone to assume that acts of violence are acceptable behavior. (5) Children in the United States are, on average, exposed to an estimated 8,000 murders and 100,000 acts of violence on television by the time the child completes elementary school. (6) Studies indicate that children are affected by the pervasiveness and casual treatment of sexual material on television, eroding the ability of parents to develop responsible attitudes and behavior in their children. (7) Parents express grave concern over violent and sexual video programming and strongly support technology that would give them greater control to block video programming in the home that they consider harmful to their children. (8) There is a compelling governmental interest in empowering parents to limit the negative influences of video programming that is harmful to children. (9) Providing parents with timely information about the nature of upcoming video programming and with the technological tools that allow them easily to block violent, sexual, or other programming that they believe harmful to their children is a nonintrusive and narrowly tailored means of achieving that compelling governmental interest. APPENDIX B Responses to Industry Submission of January 17, 1997 (electronic mail correspondence not listed) Comments American Academy of Pediatrics American Medical Association American Psychological Association Ameritech New Media Benton Foundation Block, Robert S. Cantor, Joanne (professor, Communication Arts, University of Wisconsin-Madison) Center for Media Education, American Medical Association, Center for Media Literacy, Children's Defense Fund, Children Now, Cultural Environment Movement, Institute for Public Affairs of the Union of Orthodox Jewish Congregations of America, Media Center of the Judge Bater Children's Center, National Alliance for Non-Violent Programming, National Association for Family and Community Education, National Association of Elementary School Principals, National Association of School Psychologists, National Coalition on Television Violence, National Council of La Raza, National Education Association, National Institute on Media and the Family, National Parent Teacher Association, Public Media Center, and Teachers for Resisting Unhealthy Children's Entertainment Children Now Children's Defense Fund Coats, Senator Dan Collings, Tim (professor, Engineering Science, Simon Fraser University, British Columbia) Concerned Women for America Consumer Electronics Manufacturers Association Cosmos Broadcasting Corporation Deem, Richard Douglas, Andre J.T.* EEG Enterprises Hutson, William E. Institute for Public Affairs, Union of Orthodox Jewish Congregations of America Joint Congressional Letter (signed by 16 Representatives and 7 Senators) KAMR-TV KEYC-TV KWWL-TV KXLY-TV Langley, Scott Lessie Bates Davis Daycare* Media Access Project (on behalf of Peggy Charren) Mediascope Michigan Decency Action Council Morality in Media, Inc. National Alliance for Non-Violent Programming National Association of Famity & Community Education National Coalition on Television Violence National Institute on Media and the Family OKTV Para Technologies, Inc. Presbyterian Church (USA) Public Broadcasting Service Raff, James C. Salvatierra, Hector Garcia Thomas Jefferson Center for the Protection of Free Expression University of California, Santa Barbara Research Team VideoFreedom, Inc. Waikman, F. Joseph WBFX-TV WGEM-TV WMTV-TV WOIO-TV and WUAB-TV WUAB-TV WXMI-TV Writer's Guild of America *Received After April 8, 1997 Reply Comments ABC, Inc. American Civil Liberties Union American Library Association American Psychological Administration Bronsnick, Andrew Center for Media Education, American Academy of Child and Adolescent Psychiatry, American Psychological Association, Center for Media Literacy, Children's Defense Fund, Cultural Environment Movement, Institute for Public Affairs of the Union of Orthodox Jewish Congregations of America, Media Center of the Judge Baker's Children's Center, National Alliance for Non-Violent Programming, National Association for Family and Community Education, National Association of Elementary School Principals, National Association of School Psychologists, National Coalition on Television Violence, National Council of La Raza, National Education Association, National Institute on Media and the Family, National Parent Teacher Association, Public Media Center, Teachers Resisting Unhealthy Children's Entertainment. Consumer Electronics Manufacturers Association Family Research Council Media Coalition Inc. National Association of Broadcasters, National Cable Television Association and the Motion Picture Association of America - Joint Reply Comments National Campaign for Freedom of Expression OKTV People for the American Way Public Broadcasting Service Surreply Comments Block, Robert S. Hamilton, James T. Omegapoint Communications (L.Lynn Hinderaker) Soundview Technologies, Inc. (H.Lee Brown) The Reporters Committee for Freedom of the Press Informal Comments Received Aaby, Patrick Abbott, Lori & James Abeyta, Mrs. G. Abrams, Andrea Abro, Christine Ackerhalt, S. Ackerman, Linda Ackerman, Mildred Ackerman, Scott S. Adam, Linda Adams, Bruce & Carol Adams, Penny Adams, Sharon & Mack Adamski, Brenda Adelmann, Debbie & Wally Adgate, Mrs. Charles R. Adkins, Cindy Aetersack, Patricia D. Ager, Pat Ahlmor, Pamela Ahrens, Michelle Ahvens, Arnold J. 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Swisher, Mark Swoverland, Edward L. & Crystal Tabone, Fran Talaue, Christian Tarleton, Ethel B. Tarleton, Betty G. Taschereau, Armand & Donna Tate, Sandra Tate, Mrs. Naita Taylor, Barbara C. Taylor, Debbie Taylor, Mrs. Andrea Taylor, Marjorie Taylor, J.A. PTA Taylor, M. Todd Teachout, Mary Tebo, Lois E. Tebo, Linda Teeter, Sharon & Putman Teevan, Pam Tejo, Vivian Terneus, John Lee Terry, Kathryn TerVeer, Karen Test, Merle W. Testa, Annamarie Thai, Hai Tharp, Bette Jo Tharpe, Yolanda Tharpe, Mrs. Brenda Thein, Hayley A. Theisen, Nancy Thellen, Joan Thibodeau, Rosemary Thomas, Janet Thomas, J.E. Thomas, Catherine M. Thomas, Ajay Thomas, Carol Thomas, Mary Thomas, Heather L. Thompson, Nancy Thompson, Mrs. S. Thompson, Michael Thompson, Anne Thompson, Cynthia Thompson, Lori J. Thompson, Lawrence Thompson, Karen N. Thorpe, Marsha Threadgill, Cindy Throneburg, Olga Thrushman, Lucynda Thullen, Debbie Thurston, Jennifer Tiches, Effie Tidwell, Reed & Sheri Tiedje, Margie Tillent, Jenny Tiller, Judy Tillotson, Ms. Mary Ann Timm, Ethel Timmons, Dee Alice Tisor, Brian Tizekker, David Toelle, Marietta Tom, June K. Toma, Mary U. Torres, M. Torvinen, Elaine Toth, Brandy Tovares, Deborah Towns, Donna Penn Townsend, Leslie J. Tracy, Cindy Traditional Values Coalition Tramontanis, Gail Traylor, Mary L. Treasko, Elaine Treat, Ruth M. Trick, Courtney Trieb, Mr. & Mrs. S.E. Trine, Valerie Triplett, Ted L. Trout, Mary E. Trujillo, Barbara C. Trusty, Kimberli Trutwin, Sister Mary J. Tsai, Lena Tschoepe, Leslie W. Tseng, Catherine Tsioles, Dina Tsuly, Ann Tucker, Gwen Tufty, Betty Ann Tuley, J.B. Tumbarello, Michael Tuminen, Cathi Connelly Tunnell, Russell Tunnell, Judy Turley-Trejo, Lanae Turnball, Rosaline Turner, Billy & Glenda Turner, Betty Turner, Maria Turyn, Mrs. Tush, Beth Tyler, Christi Tyree, Susan W. Ulrich, Robert Ultsch, Mary Unrau, Maren Unswarth, Lydia Updike, V. Lauri Upton, Elvin Upton, Denise Urmetz, Mr. & Mrs. Walter (2) Urmetz, Mr. & Mrs. Walter Vacha, Mr. Charles Valdes, Ernesto Valentin, Nydia Vallieres, Mary Ann Valvove, Beth Van Rautenberg, Brenda Van de Graaff, Mr. Van Antwerp, Margaret Van Schepen, Dr. John VanBrunt, Josephine Vanderpool, Rhonda Vanlishout, Harry & Theckla Vanore, Karen B. Vasko, Susanne Vasquez, Julliette Vatterott, Mary Patricia Vaughn, Arlene Vay, Mr. et. al (Francis McClure Middle School) Vazquez, Sra. Aida L. (Concilio para la Ed.de la Familia) Vazquez, Marina Vazzina, Mrs. J. Vega, W. Veit, Carolyn Vella, K. Ventura, Adelaide, et. al Venugopal, Carol Verdon, Theresa Vergara, Connilee Vero, C. Verrastro, Colleen Vested, Marie Viaud, Anita Villeporteaux, M.T. Villosenor, Marguerite Visser, Carolyn L. Vlach, Michael & Linda Vladeck, Mr. & Mrs. Jil Vogtman, Susan Voliva, Sharon G. Vos, Marie C. Vose, Ann B. Votlz, Kimberly Vuernicz, E. Waber, Patricia D. Wachtlen, James Wachtlen, Ellen Wade, Kimberly Wadhwani, J. Wadzinski, Susan Waggoner, Sherry Wagner, Jim & Rita Wagner, Diana Wagner, Donna J. Waitt, Beverly F. WALB-TV (2) (Jim Wilcox, Bob Campbell) Walees, Susan J. Walker, Ruth G. Walker, Mary Ann Walker, Linda Walker, Ed & Virginia Walker, Gilbert W. Walker, Karen J. Walker, S. Wall, Monica Wallace, Patricia Wallace, Al Wallander, Mary Jo Waller, Mary Frances Walmsley, Lyne Walsh, Donna Jo Walsh, Diana Walters, Debra WAOW-TV (Laurin Jorstad) Ward, Tiffany Ward, Betty Ward, Shari A. Ward, Jeannie Warnecke, M. Warnell, Janet Warsfield, Eileen Washington Center PTA Washington School PTA Watermann, Jody Watermen, Millie Waters, Brandon Watkins, Wanda Watkins, Mrs. Peg Watson, Mark & Beverly Watson, Jill Watson, Carolyn B. Watson, Jill Watt, Cathleen Watt, Beverly Watts, Pamela WCCB-TV (Tarleton, Cullie) WCIA-TV (Robb Gray, Jr.) WCIV-TV (Stephen Brock) WCSC-TV (James H. Smith) WCYB-TV (Joe Macione) WDIV-TV (Alan Frank) WDTV (Mike Smith) Weaver, Ms. Donna E. Weaver, Mrs. Imogene Webb, Mark, et. al Webb, Barbara Weber, Christine Webster, Terri Wegenhoft, John, et. al Weidan, John Weigand, Debora (Missouri Assoc. for Family & Community Education) Weinhan, Annabelle Welch, Mrs. Carl Welch, Helen Wellbrock, Terry Wellnitz, Sally M. Wells, V.F. Wells, Tracey Wells, Andrew Wendel, Jo Wenstead, Wilma Wentworth, Fredrick A. Werd, Corky & Robert C. Werner, Dana Wertke, Elizabeth Wertke, Elizabeth (2) Weseloh, Anna Marie West, Kathleen West, Janice Westbrook, Michael Westbrook, Lee Westmeyer, Mr. & Mrs. F.T. Westmoreland, Jill T. Westmoreland, Iris C. WFTC-TV (Steve Spendlove) WFTS-TV (Jim Major) WGAJ-TV (Louis Gattozzi) WGAL-TV (Paul Quinn) WGGB-TV (Mike Bock) WGMB-TV (Damian Calato) WGME-TV (Bill Stough) WHBF-TV (Porter, Marshall) Whech, Jonathan Wheeler, Martha Whelehan, Renee Whipple, Lori Whitcomb, Carol Whitcomb, Lynn White, Sharon C. White, Mary E. White, Linda Whiting, Marcia Whitley, Dolores S. Whitlow, Fenton Whitlow, Elizabeth Whitlow, Brenda Whitten, Patricia Whitten, Mr. & Mrs. Mark A. Whittore, Anita WHNS-TV (R. Kent Replogle) WIBW-TV (Kirk Black) WICD-TV (Vann, Les) WICS-TV (John Connors) Wiebe, Sharon Wiebler, Gertrude Wight, Colby & Anita Wilbas, Phyllis Wilcock, Gail Wilcox, Patsy Wiley, Diane L. Wilinski, Mrs. Rosalie Wilke, V.E. Wilkerson, Cynthia Wilkes, Mr. & Mrs. Larry E. Wilkinson, Genevie Willey, Lisa & Cliff Williams, Valerie Williams, Phyllis Williams, Judy Williams, Lisa Williams, Jerry & Frances Williams, Lori S. Williams, A. Thomasine Williams, Alma S. Williams, Connie Williams, Jane & Weiver, Ellen Williams, Debra Williams, Wendy Williams, Jeanne Williams, Donna Williamsen, Sarah Williamson, Flo Willie, Barbara Willson, Evelyn O. Wilson, Rev. Eugene Wilson, Penny Wilson, Nell L., et al. Wilson, Leslie Wilson, Florine Windels, Sue Windham, Sherry Winefeldt, Angie Winefeldt, Donald Winn, Karen Winter, Maureen Wise, Peter Wise, Mrs. Lois R. Wiseman, Sallie K. Wiser, Beverly, et. al Witham, Christine Withycombe, Brant Witkowski, Diane Witmer, Mary Witt, Mr. & Mrs. Andrew P. Witte, Renota Witte, Jayne WJZY-TV (Mark Conrad) WKYT-TV (Wayne Martin) WKYT-TV (Wayne Martin) WLBT-TV (Modisett Dan) WLOX-TV (Leon Long) WLTX-TV (Richard Laughridge) WLTZ-TV (Davis, Jim) WLTZ-TV (Bartlett, Ron) WLTZ-TV (Breazeale, Tom) WMTW-TV (Kaufman, David) WNCT-TV (Edward J. Adams) WOKR -TV (Nielsen, Gary R.) Wolfe, Jeannette Wolken, Libby, et.al Wollmann, Jennifer Womack, Stacy Wong, Thomas Wong, Roseta Wood, Suzanna Wood, Tara Wood, Susan K. WOOD-TV (Scott Blumenthal) Woodall, Don Woodard, Galen Woods, Stacey Woods, W. & Julie Woods, Donna Woodside PTA WOWK-TV (Terry Cole) WPMT-TV (John Riggle) Wray, Lina WRBL-TV (Jim Caruthers) Wright, Robin M. Wright, Theresa Wright, Joey Jr. Wrinecki, Marciel WSJV-TV (Sargent, Kevin) WSPA-TV (Conschafter, Jim) WTAJ-TV (Louis Gattozzi) WTOL-TV (Mel Stebbins) WTOL-TV (Mel Stebbins) WTVR-TV (Mark Keown) WTWC-TV (Anderson, William S.) Wubrisch, Pam & Todd Wulf, Joanna & Dennis WWBT-TV (John Shreves) WYFF-TV (David McAtee) Wynn, Terry Yap, Ricky Yarborough, James S. Yates, Beth Yates, Assonia Yates, Sally Yockers, Marcia Yoder, Ron Young, P.S. Young, Michelle Young, Kathy Young, Judy & Michael Young, Jay & Bobbie Young, MaryEllen Young, Heily Zakovid, Kada Zalewski, Mr. & Mrs. Gary Zamora, Rosie Zdrojewski, Arnold Zeigler, Joy & John Ziegler, Katharine Ziegler, Bertha L. Ziemba, Lucie & Jim Zilli, Serena Zillig, Karyn Zimmerman, Susan M. Zimmerman, Karen Zimpfer, Craig & Anne Zito, Cathy Zollinger, Jerri Zummer, Gerry Zummer, George, L. Zwald, Irma APPENDIX C Responses to Industry Submission of August 1, 1997 (electronic mail correspondence not listed) Comments American Academy of Child & Adolescent Psychiatry American Academy of Pediatrics American Psychiatric Association Block, Robert S. Children Now Collings, Tim (Simon Fraser University) Consumer Electronics Manufacturers Association Morality in Media, Inc. National Association of Broadcasters, National Cable Television Association, and Motion Picture Association of America National Broadcasting Company, Inc. National PTA Univerity of Wisconsin-Madison Reply Comments Kimball, Robert National Broadcasting Company, Inc. Informal Comments Life Directions Traylor, Pam APPENDIX D Industry Submission of August 1, 1997 SEPARATE STATEMENT OF COMM. HAROLD W. FURCHTGOTT-ROTH In the Matter of Implementation of Section 551 of the Telecommunications Act of 1996: Video Programming Ratings, CS Docket 97-55 It cannot be gainsaid that the First Amendment prohibits government from either abridging or compelling protected speech. In view of that fundamental constitutional principle, section 551 of the Telecommunications Act prudently provided an alternative to a government-created, government-policed scheme for judging the content of video programming: the establishment of a private, voluntary ratings system by video programming distributors. Under section 551, if the Commission determines that such establishment has occurred, the provision of the Communications Act that creates governmental ratings guidelines, section 303(w), never takes effect. By this Report & Order, the Commission fulfills its limited statutory role of determining that the industry's ratings rules are "acceptable," section 551(1)(A), and that "distributors of video programming have . . . agreed voluntarily to broadcast signals that contain ratings," section 551(1)(B). Under the Act, our involvement in programming ratings is now at an end. This Order should not be interpreted as a basis for future governmental efforts to compel adherence to the industry guidelines at issue in this proceeding. Once the government becomes involved in pressuring distributors to take part in this program, the program of course ceases to be "voluntary" in any real sense of the word. Participation on pain of governmental penalty is simply not willing participation. And forced participation in content-based regulation of speech runs headlong into the First Amendment, as the drafters of section 551 realized. In this regard, I salute the courage and fortitude of those programmers, such as NBC and BET, who have resisted political pressure to effectively convert these voluntary guidelines into mandatory regulations. Whether these companies opt in or out of the guidelines is a matter between them, their colleagues in industry, their advertisers, and last but not least their viewers. In the end, programming distributors should look to their own viewing audience, rather than to government, to determine what type of ratings, if any, to employ. When programmers do so, they should be commended, not condemned, for their independence of mind. That, after all, is what the First Amendment is about. March 12, 1998 SEPARATE STATEMENT OF COMMISSIONER GLORIA TRISTANI In the Matter of Implementation of Section 551 of the Telecommunications Act of 1996, Video Programming Ratings, CS Docket No. 97-55, and In the Matter of Technical Requirements to Enable Blocking of Video Programming Based on Program Ratings, Implementation of Sections 551(c), (d) and (e) of the Telecommunications Act of 1996, ET Docket No. 97-206 As I travel around the country, I hear again and again from parents who are concerned about what their children are being exposed to on TV. The facts support their concern. Children spend about 25 hours a week watching TV, more time each year than they spend in the classroom. And much of what they are watching is violent. By the time they complete elementary school, children have witnessed about 8,000 murders and 100,000 acts of violence. Parents want to protect their children from violent and other kinds of programming that they consider harmful. But the task is daunting. Nowadays there aren't just three channels to monitor, there are dozens. No parent can possibly know what's on all of them all of the time. And in this age of single parent families and families in which both parents must work to make ends meet, it simply isn't possible for parents to always be at home to monitor what their children are watching. These parents want and deserve the ability to protect their children as much as parents who are able to closely monitor their children's viewing habits. Today's actions will give parents a modern tool to help raise their children in the modern world. Under the voluntary Industry rating system we have found acceptable, parents should be able to receive the information they need in order to determine whether an upcoming program contains sex, violence, offensive language or suggestive dialogue. When used in conjunction with the V-chip, parents will be able to prevent their children from viewing programming that they consider harmful, even when they cannot be home. The V-chip will not relieve parents of the responsibility of determining what their children watch on TV. It will help them fulfill that responsibility. Those who urge parents to simply turn off the shows they do not want their children to see should welcome the V-chip. The V-chip is essentially a remote control device with a longer range. It allows parents to "turn off" programs that they believe are harmful to their children while they are at work, at a PTA meeting, or at a Saturday night movie. It will not be a substitute for parents; it will help parents do their jobs. I commend the Industry for developing an Industry-wide consensus on its voluntary ratings proposal. I also commend the Industry for its willingness to broaden this consensus by addressing some of the concerns that the public raised regarding its initial proposal. I note that there are still some entities, such as NBC and BET, whose decision not to participate in the current ratings system will make it more difficult for parents to program the V-chip using the Industry proposal. I am especially concerned that many parents might not realize that NBC -- one of the major networks with some of the highest-rated programming on television -- does not apply content-based indicators. Such a parent, for example, may attempt to block violent programming using the "v" content-based indicator without realizing that they may also have to select an entire age-based category in order to block violent shows on NBC. Once a parent selects an entire age-based category, however, he or she loses the ability to establish different age-based categories for different types of content (e.g., the ability to restrict violence to a TV-PG level while permitting sexual content up to a TV-14 level). In this way, a parent who attempts to compensate for the NBC approach by blocking out an entire age-based category may be unable to take full advantage of the Industry system. As parents begin using the V-chip, I am hopeful that all video programming distributors will perceive the public interest in making the V-chip a more effective and easy-to-use tool for parents to block programming that they deem harmful to their children.