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NewtonN.Minow:TelevisionandthePublicInterestThank you for this opportunity to meet with you today. This is my first public address since I took over my new job. When the New Frontiersmen rode into town, I locked myself in my office to do my homework and get my feet wet. But apparently I havent managed to stay out of hot water. I seem to have detected a certain nervous apprehension about what I might say or do when I emerged from that locked office for this, my maiden station break.First, let me begin by dispelling a rumor. I was not picked for this job because I regard myself as the fastest draw on the New Frontier. Second, let me start a rumor. Like you, I have carefully read President Kennedys messages about the regulatory agencies, conflict of interest, and the dangers of ex parte contacts. And, of course, we at the Federal Communications Commission will do our part. Indeed, I may even suggest that we change the name of the FCC to The Seven Untouchables!It may also come as a surprise to some of you, but I want you to know that you have my admiration and respect. Yours is a most honorable profession. Anyone who is in the broadcasting business has a tough row to hoe. You earn your bread by using public property. When you work in broadcasting you volunteer for public service, public pressure, and public regulation. You must compete with other attractions and other investments, and the only way you can do it is to prove to us every three years that you should have been in business in the first place.I can think of easier ways to make a living.But I cannot think of more satisfying ways.I admire your courage - but that doesnt mean I would make life any easier for you. Your license lets you use the publics airwaves as trustees for 180 million Americans. The public is your beneficiary. If you want to stay on as trustees, you must deliver a decent return to the public - not only to your stockholders. So, as a representative of the public, your health and your product are among my chief concerns.As to your health: lets talk only of television today. 1960 gross broadcast revenues of the television industry were over $1,268,000,000; profit before taxes was $243,900,000, an average return on revenue of 19.2 per cent. Compared with 1959, gross broadcast revenues were $1,163,900,000, and profit before taxes was $222,300,000, an average return on revenue of 19.1 per cent. So, the percentage increase of total revenues from 1959 to 1960 was 9 per cent, and the percentage increase of profit was 9.7 per cent. This, despite a recession. For your investors, the price has indeed been right.I have confidence in your health.But not in your product.It is with this and much more in mind that I come before you today.One editorialist in the trade press wrote that the FCC of the New Frontier is going to be one of the toughest FCCs in the history of broadcast regulation. If he meant that we intend to enforce the law in the public interest, let me make it perfectly clear that he is right - we do. If he meant that we intend to muzzle or censor broadcasting, he is dead wrong. It would not surprise me if some of you had expected me to come here today and say in effect, Clean up your own house or the government will do it for you. Well, in a limited sense, you would be right - Ive just said it.But I want to say to you earnestly that it is not in that spirit that I come before you today, nor is it in that spirit that I intend to serve the FCC. I am in Washington to help broadcasting, not to harm it; to strengthen it, not weaken it; to reward it, not punish it; to encourage it, not threaten it; to stimulate it, not censor it. Above all, I am here to uphold and protect the public interest.What do we mean by the public interest? Some say the public interest is merely what interests the public. I disagree. So does your distinguished president, Governor Collins. In a recent speech he said,Broadcasting to serve the public interest, must have a soul and a conscience, a burning desire to excel, as well as to sell; the urge to build the character, citizenship and intellectual stature of people, as well as to expand the gross national product. .By no means do I imply that broadcasters disregard the public interest. .But a much better job can be done, and should be done.I could not agree more.And I would add that in todays world, with chaos in Laos and the Congo aflame, with Communist tyranny on our Caribbean doorstep and relentless pressure on our Atlantic alliance, with social and economic problems at home of the gravest nature, yes, and with technological knowledge that makes it possible, as our President has said, not only to destroy our world but to destroy poverty around the world - in a time of peril and opportunity, the old complacent, unbalanced fare of action-adventure and situation comedies is simply not good enough.Your industry possesses the most powerful voice in America. It has an inescapable duty to make that voice ring with intelligence and with leadership. In a few years, this exciting industry has grown from a novelty to an instrument of overwhelming impact on the American people. It should be making ready for the kind of leadership that newspapers and magazines assumed years ago, to make our people aware of their world.Ours has been called the jet age, the atomic age, the space age. It is also, I submit, the television age. And just as history will decide whether the leaders of todays world employed the atom to destroy the world or rebuild it for mankinds benefit, so will history decide whether todays broadcasters employed their powerful voice to enrich the people or debase them.If I seem today to address myself chiefly to the problems of television, I dont want any of you radio broadcasters to think weve gone to sleep at your switch - we havent. We still listen. But in recent years most of the controversies and cross-currents in broadcast programming have swirled around television. And so my subject today is the television industry and the public interest.Like everybody, I wear more than one hat. I am the chairman of the FCC. I am also a television viewer and the husband and father of other television viewers. I have seen a great many television programs that seemed to me eminently worthwhile and I am not talking about the much bemoaned good old days of Playhouse 90 and Studio One.I am talking about this past season. Some were wonderfully entertaining, such as The Fabulous Fifties, The Fred Astaire Show, and The Bing Crosby Special; some were dramatic and moving, such as Conrads Victory and Twilight Zone; some were marvelously informative, such as The Nations Future, CBS Reports, and The Valiant Years. I could list many more - programs that I am sure everyone here felt enriched his own life and that of his family. When television is good, nothing - not the theater, not the magazines or newspapers - nothing is better.But when television is bad, nothing is worse. I invite you to sit down in front of your television set when your station goes on the air and stay there without a book, magazine, newspaper, profit and loss sheet or rating book to distract you - and keep your eyes glued to that set until the station signs off. I can assure you that you will observe a vast wasteland.You will see a procession of game shows, violence, audience participation shows, formula comedies about totally unbelievable families, blood and thunder, mayhem, violence, sadism, murder, western bad men, western good men, private eyes, gangsters, more violence, and cartoons. And, endlessly, commercials - many screaming, cajoling, and offending. And most of all, boredom. True, you will see a few things you will enjoy. But they will be very, very few. And if you think I exaggerate, try it.Is there one person in this room who claims that broadcasting cant do better?Well, a glance at next seasons proposed programming can give us little heart. Of 73 and 1/2 hours of prime evening time, the networks have tentatively scheduled 59 hours to categories of action-adventure, situation comedy, variety, quiz, and movies.Is there one network president in this room who claims he cant do better?Well, is there at least one network president who believes that the other networks cant do better?Gentlemen, your trust accounting with your beneficiaries is overdue.Never have so few owed so much to so many.Why is so much of television so bad? I have heard many answers: demands of your advertisers; competition for ever higher ratings; the need always to attract a mass audience; the high cost of television programs; the insatiable appetite for programming material - these are some of them. Unquestionably, these are tough problems not susceptible to easy answers.But I am not convinced that you have tried hard enough to solve them.I do not accept the idea that the present over-all programming is aimed accurately at the public taste. The ratings tell us only that some people have their television sets turned on and of that number, so many are tuned to one channel and so many to another. They dont tell us what the public might watch if they were offered half-a-dozen additional choices. A rating, at best, is an indication of how many people saw what you gave them. Unfortunately, it does not reveal the depth of the penetration, or the intensity of reaction, and it never reveals what the acceptance would have been if what you gave them had been better - if all the forces of art and creativity and daring and imagination had been unleashed. I believe in the peoples good sense and good taste, and I am not convinced that the peoples taste is as low as some of you assume.My concern with the rating services is not with their accuracy. Perhaps they are accurate. I really dont know. What, then, is wrong with the ratings? Its not been their accuracy - its been their use.Certainly, I hope you will agree that ratings should have little influence where children are concerned. The best estimates indicate that during the hours of 5 to 6 P.M. sixty per cent of your audience is composed of children under twelve. And most young children today, believe it or not, spend as much time watching television as they do in the schoolroom. I repeat - let that sink in - most young children today spend as much time watching television as they do in the schoolroom. It used to be said that there were three great influences on a child: home, school, and church. Today, there is a fourth great influence, and you ladies and gentlemen control it.If parents, teachers, and ministers conducted their responsibilities by following the ratings, children would have a steady diet of ice cream, school holidays, and no Sunday school. What about your responsibilities? Is there no room on television to teach, to inform, to uplift, to stretch, to enlarge the capacities of our children? Is there no room for programs deepening their understanding of children in other lands? Is there no room for a childrens news show explaining something about the world to them at their level of understanding? Is there no room for reading the great literature of the past, teaching them the great traditions of freedom? There are some fine childrens shows, but they are drowned out in the massive doses of cartoons, violence, and more violence. Must these be your trademarks? Search your consciences and see if you cannot offer more to your young beneficiaries whose future you guide so many hours each and every day.What about adult programming and ratings? You know, newspaper publishers take popularity ratings too. The answers are pretty clear: it is almost always the comics, followed by the advice to the lovelorn columns. But, ladies and gentlemen, the news is still on the front page of all newspapers; the editorials are not replaced by more comics; the newspapers have not become one long collection of advice to the lovelorn. Yet newspapers do not need a license from the government to be in business - they do not use public property. But in television, where your responsibilities as public trustees are so plain, the moment that the ratings indicate that westerns are popular there are new imitations of westerns on the air faster than the old coaxial cable could take us from Hollywood to New York. Broadcasting cannot continue to live by the numbers. Ratings ought to be the slave of the broadcaster, not his master. And you and I both know that the rating services themselves would agree.Let me make clear that what I am talking about is balance. I believe that the public interest is made up of many interests. There are many people in this great country and you must serve all of us. You will get no argument from me if you say that, given a choice between a western and a symphony, more people will watch the western. I like westerns and private eyes too, but a steady diet for the whole country is obviously not in the public interest. We all know that people would more often prefer to be entertained than stimulated or informed. But your obligations are not satisfied if you look only to popularity as a test of what to broadcast. You are not only in show business; you are free to communicate ideas as well as relaxation. You must provide a wider range of choices, more diversity, more alternatives. It is not enough to cater to the nations whims; you must also serve the nations needs.And I would add this: that if some of you persist in a relentless search for the highest rating and the lowest common denominator, you may very well lose your audience. Because, to paraphrase a great American who was recently my law partner, the people are wise, wiser than some of the broadcasters - and politicians - think.As you may have gathered, I would like to see television improved. But how is this to be brought about? By voluntary action by the broadcasters themselves? By direct government intervention? Or how?Let me address myself now to my role not as a viewer but as chairman of the FCC. I could not if I would, chart for you this afternoon in detail all of the actions I contemplate. Instead, I want to make clear some of the fundamental principles which guide me.First: the people own the air. They own it as much in prime evening time as they do at six oclock Sunday morning. For every hour that the people give you - you owe them something. I intend to see that your debt is paid with service.Second: I think it would be foolish and wasteful for us to continue any worn-out wrangle over the problems of payola, rigged quiz shows, and other mistakes of the past. There are laws on the books which we will enforce. But there is no chip on my shoulder. We live together in perilous, uncertain times; we face together staggering problems; and we must not waste much time now by rehashing the clichs of past controversy.To quarrel over the past is to lose the future.Third: I believe in the free enterprise system. I want to see broadcasting improved, and I want you to do the job. I am proud to champion your cause. It is not rare for American businessmen to serve a public trust. Yours is a special trust because it is imposed by law.Fourth: I will do all I can to help educational television. There are still not enough educational stations, and major centers of the country still lack usable educational channels. If there were a limited number of printing presses in this country, you may be sure that a fair proportion of them would be put to educational use. Educational television has an enormous contribution to make to the future, and I intend to give it a hand along the way. If there is not a nation-wide educational television system in this country, it will not be the fault of the FCC.Fifth: I am unalterably opposed to governmental censorship. There will be no suppression of programming which does not meet with bureaucratic tastes. Censorship strikes at the tap root of our free society.Sixth: I did not come to Washington to idly observe the squandering of the publics airwaves. The squandering of our airwaves is no less important than the lavish waste of any precious natural resource. I intend to take the job of chairman of the FCC very seriously. I believe in the gravity of my own particular sector of the New Frontier. There will be times perhaps when you will consider that I take myself or my job too seriously. Frankly, I dont care if you do. For I am convinced that either one takes this job seriously - or one can be seriously taken.Now, how will these principles be applied? Clearly, at the heart of the FCCs authority lies its power to license, to renew or fail to renew, or to revoke a license. As you know, when your license comes up for renewal, your performance is compared with your promises. I understand that many people feel that in the past licenses were often renewed pro forma. I say to you now: renewal will not be pro forma in the future. There is nothing permanent or sacred about a broadcast license.But simply matching promises and performance is not enough. I intend to do more. I intend to find out whether the people care. I intend to find out whether the community which each broadcaster serves believes he has been serving the public interest. When a renewal is set down for hearing, I intend - wherever possible - to hold a well-advertised public hearing, right in the community you have promised to serve. I want the people who own the air and the homes that television enters to tell you and the FCC whats been going on. I want the people - if they are truly interested in the service you give them - to make notes, document cases, tell us the facts. For those few of you who really believe that the public interest is merely what interests the public, hope that these hearings will arouse no little interest.The FCC has a fine reserve of monitors - almost 180 million Americans gathered around 56 million sets. If you want those monitors to be your friends at court, its up to you.Some of you may say, Yes, but I still do not know where the line is between a grant of a renewal and the hearing you just spoke of. My answer is: Why should you want to know how close you can come to the edge of the cliff? What the Commission asks of you is to make a conscientious, good-faith effort to serve the public interest. Everyone of you serves a community in which the people would benefit by educational, religious, instructive or other public service programming. Every one of you serves an area which has local needs - as to local elections, controversial issues, local news, local talent. Make a serious, genuine effort to put on that programming. When you do, you will not be playing brinkmanship with the public interest.What Ive been saying applies to broadcast stations. Now a station break for the networks:You know your importance in this great industry. Today, more than one half of all hours of television station programming comes from the networks; in prime time, this rises to more than three quarters of the available hours.You know that the FCC has been studying network operations for some time. I intend to press this to a speedy conclusion with useful results. I can tell you right now, however, that I am deeply concerned with concentration of power in the hands of the networks. As a result, too many local stations have foregone any efforts at local programming, with little use of live talent and local service. Too many local stations operate with one hand on the network switch and the other on a projector loaded with old movies. We want the individual stations to be free to meet their legal responsibilities to serve their communities.I join Governor Collins in his views so well expressed to the advertiser
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