Actions of the FCC towards the regulation of broadcast radio in the 1940s
Durr discusses some of his activities while working for the Federal Communications Commission (FCC) during the 1940s. In particular, he focuses on their efforts to regulate broadcast radio and he describes the Chain Broadcasting Regulations, interactions between the FCC and the National Associations of Broadcasters, and his hope to ensure that the major networks did not entirely dominate the radio waves. Durr's discussion of regulation is quite extensive and he continues to discuss it after the passage ends, offering various anecdotes to illustrate his views on regulation.
Citing this Excerpt
Oral History Interview with Clifford Durr, December 29, 1974. Interview B-0017. Southern Oral History Program Collection (#4007) in the Southern Oral History Program Collection, Southern Historical Collection, Wilson Library, University of North Carolina at Chapel Hill.
Full Text of the Excerpt
- ALLEN TULLOS:
-
Besides the allocation of frequencies and this controversy that was going
on over ownership, what other sorts of issues were going
on?
- CLIFFORD DURR:
-
Well, when I first went on the Commission, the Communications Act was
anti-monopoly oriented, the idea …
[Recorder is turned off and then back on.]
… when I first went on the Commission, the Commission
had already adopted what was called the Chain Broadcasting Regulations.
It was trying to maintain a degree of independence of the local
stations, a protection from the networks. You know, thenetwork contract
was the most valuable assest that a station could have economically. You
see, the network was providing your revenue. They were the ones who had
access to the big advertisers and they provided the programs. So, more
and more time was going to network time and less and less time devoted
to the development of local programs, news discussion or forums for art
and music of the community. So, the network regulations, in the first
place, NBC had one network … there was NBC, CBS and Mutual
and NBC was the biggest one and they were required to divest themselves
of a lot of their stations and that was when you had the NBC and ABC.
ABC was carved off of NBC because NBC's powers were getting
too great. Also, there were limitations on the amount of time, in
particular prime time, that the networks could contract for. Now, they
had a way of getting what they called option time. They would say to a
station. "Well, this nine to ten o'clock
hour, you've got to give us an option
on it, so if we do have a program we want to put in, you can…
we can demand that time." Which mean that the local station
that may have built up a program of its own would have to cancel it if
the network wanted to use that time. So, that was the big issue and the
regulations had been adopted. Well, the National Associations of
Broadcasters and the networks moved into Congress to get that
legislation nullified. Meanwhile, they were challenging the
constitutionality of the regulations in the courts. But Frye was a
pretty tough character. Again, an illustration of how government works,
talk about Congressional pressure. So much power is vested in men on the
key committees, the Corporation Committee or the Interstate Commerce
Committee, which then had jurisdiction over the FCC. The networks would
get to these key guys and win them over, buy them over or what have you,
but Frye was tough enough that he continued to fight this thing and we
had our appropriations cut two or three times and the battle went on for
two or three years. Then, we found that we had more support in Congress
than we ever thought. Some of the other members of Congress who were not
on the key committees began to understand what was going on, so not only
was the case won in the Supreme Court, but Congress
ultimately defeated all of the legislation attempting to nullify the
Chain Broadcasting Regulations. I don't think that turned out
to be too effective, but it helped some on the monopoly standpoint. It
was about this time, because of the attacks on the Commission and the
chiseling away at appropriations … and they were cut several
times to impair our effectiveness … I got interested in
trying to meet this … talking about political control and
free speech and government intervention and so on, to show where the
controls really lay, I began to go into the economic controls and we had
a very good guy who was head of the economic section named Dallas
Smythe. I wrote an article which was carried in the Public
Opinion Quarterly at Princeton, I think the title was
"Freedom of Speech for Whom?" I said that
we talked about government control, but let's see who really
is running the show. Well, here with nine hundred stations on the air,
you would think that you would have enough diversifications and controls
to get some diversification in programming and ideas. But you take a
look at it and 85% of the coverage of these stations was by stations
that had a network affiliation contract and the networks not only
controlled the times that they used for network programs, but they could
bring a lot of pressure to bear on the stations as
to other programs they would carry. Let's say for example
that one station might have a local program that didn't have
too large a listening audience or rating, but it was an enthusiastic
audience. Well, "We don't want all the sets turned
off when our program comes on. You've got to put a more
popular program in there." So, they were doing a lot of
dictating of the programs. You had this seemingly diversification
between nine hundred stations. There were limitations about ownership. I
don't think anyone could own more than seventy-five stations,
but 85% of the coverage was coming through the networks. Then, you take
a look at the networks and you find that they were not such free agents
themselves. Network advertising is per se, national
advertising. You take a local newspaper at that time, I don't
know what the figures are now, but the advertising revenue was about 85%
local and about 15% national or regional. You had the reverse situation
in the case of the networks and broadcasting stations generally. You
take a look at the revenues of the networks and at that time, as I
recall, something like 20% in the case of each network, 20% of the
revenues came from one national advertiser and something like six
national advertisers provided more than 50% of the
revenue. Well, you follow that through into the advertising agencies and
you will find even more concentration, because advertising agencies
might handle quite a number of accounts and the concentration got even
greater. Well, that created some consternation, but it was still on the
economic side. I suppose that programwise, the most significant
development came with the so called "blue book" from
the Public Service Responsibility of Broadcast Licensees, which was
issued in a blue cover. That's the reason it was called a
blue book and it created quite a bit of consternation. Well, the way
these things came about again, Paul Porter was chairman prior to I had
left the Commission, he was a very likeable guy but quite a politician
and ordinarily, renewals of licenses were brought up by the engineering
department in batches of anything from ten to twenty at a time. If we
had no interference problems or technical problems with this station, we
would recommend that their license be renewed and the Commission would
say, "renewed." That was about all there was to it.
Well, I had gone along with this, this was the way they did things, for
quite awhile and then I just happened to take a look at the
Communications Act one day and it said that all renewals shall be
governed by the same considerations as original
grants. The Commission traditionally, going back to the days of the old
Radio Commission, had considered proposed program service as a very
important element. They had to be financially, technically, morally
qualified and all in their proposed program service. Very often, you
might have several applicants for one station and the grant had turned
on the proposed program service. The applicants would make a survey of
the community, at least they said that they had, and if this was an
agricultural community with a good agricultural school, they would try
to tie in with them and have farm programs and not just give them the
weather reports and market reports, but bring to them the newest
developments in seed and fertilizer and so on. Here is a university that
has a good music department there would be a proposal giving them time
for concerts for their students there or if there was a little theater
group that was interested in radio drama, they would give time available
for that. It sounded great. So, after I took a look at the provisions of
the Act, the next batch of applicants that came along presented by the
engineering department, I said, "Well, wait just a minute here,
we haven't got enough information. We are entirely acting on
engineering reports." The Commission also had required every
station once a year to present a composite
program log. It was sort of like the comptroller's office
requiring a statement from a bank and not letting you know exactly the
time. But these composite logs had gone right in the files and nobody
had even taken a look at them. So, I said, "We
haven't got enough information." Well, the response
was, "This is the way that we have always done it." I
said, "But that's not what the act says and I want
the record to show that I am refraining from voting because of lack of
information." So, then everytime a batch of renewals appeared
on the agenda,
[unclear]
was one that I worked with
closely and several other members of the staff, well, when a station
would come up for renewal, I would say, "Got down and get me
the original application and see what their proposed program service was
and dig out their latest program log and see if they have any
relationship between promise and performance."'
There was none whatsoever. The one that had promised all these things
about the agricultural programs and the music programs and disucssion
programs, well, 85% of their time was devoted to nothing but network
programs or plotters, this kind of thing. So, I laid the promise and
performance beside each other and said. "Look here,
here's what we are doing. In this case, there were three
competing applicants and we granted the grant on
this proposed program service and look what this guy is doing. We are
granting it not to the best applicant, but the biggest. This is not fair
to the public or to the competing applicants who may make more modest
promises but go about it in a more responsible way.