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For purposes of this calculation, both overtheair and cable television  S`-viewing are included.$`V  yOV-  KԍBecause of the topography involved, certain counties are divided into more than one sampling unit. Also, in   certain circumstances, a station may have its home county assigned to an ADI even though it receives less than a  {O-  preponderance of the audience in that county. For a more complete description of how counties are allocated, see  {O-Arbitron's Description of Methodology.   S-  ~3. ` ` Under the Act, however, the Commission is also directed to consider changes in market areas. Section 614(h)(l)(C) provides that the Commission may: with respect to a particular television broadcast station, include additional communities within its television market or exclude communities from such station's television market to better effectuate the purposes of this section. In considering such requests, the 1992 Cable Act provides that: the Commission shall afford particular attention to the value of localism by taking into account such factors as (I) whether the station, or other stations located in the same area, have been historically carried on the cable system or systems within such community; (II) whether the television station provides coverage or other local service to such community; (III) whether any other television station that is eligible to be carried by a cable system in such community in fulfillment of the requirements of this section"B,`(`(88"Ԍprovides new coverage of issues of concern to such community or provides carriage or coverage of sporting and other events of interest to the community; and (IV) evidence of viewing patterns in cable and noncable households within the areas served by the cable system or systems in such community.  S-4. ` ` The legislative history of this provision indicates that: where the presumption in favor of ADI carriage would result in cable subscribers losing access to local stations because they are outside the ADI in which a local cable system operates, the FCC may make an adjustment to include or exclude particular communities from a television station's market consistent with Congress' objective to ensure that television stations be carried in the areas in which they serve and which form their economic market.  S -X` hp x (#%'0*,.8135@8:entitled to do so, and, therefore, Petitioners should not be permitted to exclude it from carriage in the   >greater Chicago market. WWTOTV argues that the remedial purpose of the statute is to expand the   carriage rights of stations, not reduce them. While the four modification factors are perfectly logical   considerations for determining whether to include additional communities within a station's market,   WWTOTV states that it is far less clear how these same factors could be used to further "the value of  SD-  localism" in an exclusion case.8D  yO!-ԍOpposition at 5.8 WWTOTV maintains that the only conceivable circumstance in which   deletion of a local market station would enhance localism is the rare instance of a capacityconstrained   =system being unable to carry another signal without being forced to delete an existing station. Measured   [against this selfevident interpretation of the statute, WWTOTV argues that the carriage of WWTOTV serves the goal of localism and better effectuate[s] the purposes of the must carry provisions.  ST-   11. ` ` WWTOTV further argues that while Petitioners have stated that WWTOTV has no   >historical carriage on their systems, this is because Petitioners have been unwilling to carry its signal. ",R ,`(`(88{"   WWTOTV points out that the Commission has stated in previous cases that historical carriage is not   Lcontrolling with respect to smaller stations, such as WWTOTV, because "the 1992 Cable Act would, in   effect, prevent weaker stations which cable systems had previously declined to carry, from ever being  S-  Lcarried."  {O-  -ԍSee, e.g., Time Warner Cable, 10 FCC Rcd 8045, 8048 (1995); Greater Worcester Cablevision, 10 FCC Rcd  {O-12569, 12572 (1995); and Time Warner Cable, 10 FCC Rcd 6663, 6667 (1995).  In addition, WWTOTV points out that, despite Petitioners' allegation that WWTOTV does   !not satisfy the local service prong because of a lack of Grade B coverage, a substantial number of  S8-  jresidents in the cable communities can indeed receive an overtheair signal.8$ yO-ԍWWTOTV states that the TV & Cable Factbook shows an estimated 31,750 TV households. WWTOTV states that the   [fact that the must carry provisions expressly contemplate a station enhancing its signal quality at a cable   operator's headend underscores Congress' intent to create a right of carriage beyond a station's Grade B   contour. WWTOTV asserts that Petitioners' arguments as to geographic distance are irrelevant as   Congress specifically rejected a mileagebased approach in preference to an ADI market approach. By   using ADIs (or DMAs), WWTOTV states that Congress intended to promote competition and the development of small, specialty stations such as WWTOTV throughout a market area.  S -   12. ` ` WWTOTV maintains that its format, and its over 20 hours per week of local   programming, provide a valuable and effective platform for local ministries and other service organizations   =and provides a means for local community organizations to communicate and provide information to the  S -  \residents of the Chicago ADI.  yO-  ԍWWTOTV submits a partial listing of its recent 1998 local programs which include guests from Chicago, Northbrook, Arlington Heights, LaGrange, Hazel Crest, Elgin, and Flossmoor, Illinois. WWTOTV states that Petitioners' reliance on carriage of other local   -stations provides no basis for the requested deletion. WWTOTV also points out that Nielsen's July 1998,   <DMA Total Activity Report, shows an overall net weekly circulation for WWTOTV of 0.6 in the Chicago   =market. Even if WWTOTV reported no viewership, however, WWTOTV states that the Commission   has stated in previous cases that specialty stations "are capable of 'offer[ing] a desirable diversity of  S-programming. . .' yet typically attract limited audiences."  {Od-  ԍSee, e,g,, Nationwide Communications, Inc. d/b/a EagleVision, 10 FCC Rcd 13050, 13053 (1995); and Home  {O.-Shopping Report and Order, 8 FCC Rcd 5321, 5327 (1993).  Sh-   13. ` ` Finally, WWTOTV argues that Petitioners have presented an insufficiently compelling   justification for the deletion of WWTOTV's religious service. WWTOTV states that the Religious  S-  Freedom Restoration Act ("RFRA"),Th  yO -ԍ107 Stat. 1488, 42 U.S.C. 2000bb (1993).T which was signed into law on November 16, 1993, expressly   prohibits the FCC or any federal agency from generally applying its rules in a way which uniquely   burdens a religious station. Therefore, WWTOTV maintains, any policy or ruling which excludes  S-  markets outside of a station's Grade B contour coverage area would violate RFRA./Z  {O8$-  ,ԍWWTOTV states that while the Supreme Court in City of Boerne v. Flores, 117 S. Ct. 2157 (1997), held that   yRFRA was unconstitutional as applied to state governments, RFRA remains good law as applied to the federal government./ WWTOTV argues   that RFRA sets forth insurmountable obstacles for the Commission in the applications of the exclusion   requested herein. First, the RFRA states that the government may burden religious exercise only if the"P,`(`(88"  S-  .regulation is "in furtherance of a compelling governmental interest."9 yOh-ԍRFRA 3(b)(1).9 Petitioners have made no showing   that the Commission's redefining of the Chicago market is required by or based on a compelling interest.   .Second, the RFRA requires that religious exercise may only be burdened if the government is employing  S-  "the least restrictive means of furthering that compelling governmental interest."9X yO-ԍRFRA 3(b)(2).9 The least restrictive   Lmeans here is not to terminate nonprofit religious broadcasting, especially when that broadcasting would   normally be carried under federal must carry rules. Third, the RFRA mandates that the government must  S-  "demonstrate" that it has used the least restrictive means in abridging religious liberty rights.6 yO -ԍRFRA 3(b).6 Petitioners   have offered no demonstration that a compelling reason exists for redefining the Chicago market.   Consequently, pursuant to the RFRA, WWTOTV asserts that Petitioners must demonstrate that there is   ma compelling governmental interest for impinging upon the religious liberty rights of a religious broadcaster by denying its right to exert must carry claims outside of its Grade B coverage area.  S -   14. ` ` In a consolidated reply, Petitioners argue that WWTOTV expends little effort rebutting   their showing that WWTOTV overwhelmingly fails the fourpart statutory test for market modification,   but instead attempts to recharacterize the fundamental objectives of must carry and the market   modification mechanism and the Commission should not allow such manipulation of the must carry rules.   .Petitioners state that WWTOTV's arguments ignore the underlying purpose of the market modification   procedures incorporated into the 1992 Cable Act's must carry regime. Petitioners point out that WWTO  TV fails to rebut the fact that WWTOTV has never been carried on the systems herein, does not provide   Ncoverage or a reliable history of local service to the cable communities, does not attract significant   viewership in either the cable or noncable households in the cable communities, nor do broadcast stations   .already carried by the systems provide coverage of news and other local events. Petitioners state that it is clear that WWTOTV lacks an adequate local nexus to the cable communities herein.  S@-  15. ` ` Petitioners argue that this situation does not involve a cable operator serving as a   j"bottleneck" and denying a broadcast station access to its intended television audience. Instead, it would   allow WWTOTV to extend its viewership well beyond the area the station reaches through its own offair   transmission and according WWTOTV an unwarranted commercial windfall. Petitioners argue that   granting WWTOTV carriage on its systems would disserve their subscribers by limiting Jones' and TCI's   ability to provide the programming and services desired by their customers. Petitioners state that WWTO SP-  TV fails to mention the Bureau's recent decision in Time Warner/WWTO,9Px yOh -ԍSee footnote 12. 9 in which the Bureau found that   all of the statutory criteria for market modification were met and granted Time Warner's request to  S-  exclude WWTOTV from carriage on its system.3 yO#-ԍReply at 4.3 Petitioners point out that the communities at issue here  S-  are similarly situated to those at issue in Time Warner/WWTO and a denial of the instant requests could  S-not be reconciled with the earlier grant.1 {O&-ԍId.1"* ,`(`(88-"Ԍ S-  $ԙ16. ` ` In opposition, Petitioners state that WWTOTV is essentially arguing that the market   .modification process should be used only to expand a station's must carry zone and never to contract it.   <Petitioners point out, however, that Congress clearly envisioned that the market modification process could   jbe used to both expand and contract a broadcast station's initial must carry zone and observed that ADIs  S`-  "may, in some instances, inaccurately reflect the stations which are local to a particular community."\` yO-ԍH.R. Rep. No. 102628 at 97 (1992) ("House Report").\   Congress stated further that the market modification provisions "reflect a recognition that . . . a community   within a station's ADI may be so far removed from the station that it cannot be deemed part of a station's  S-  market."2X {O -ԍId. 2 Petitioners argue that while Congress admittedly created the must carry regime out of concern   for the fate of the broadcast industry, that does not mean that the Commission must guarantee the success   of every broadcast station. They state that the legislative history of Section 614 makes clear that an initial   =must carry assignment can be eliminated where a cable system "can point to particularized evidence that  SH -  >its community is not part of one station's market . . .">H  {O-ԍId. at 98.> Petitioners state that that is what they have   demonstrated here. Petitioners maintain that WWTOTV does not lack historic carriage because it was   >improperly refused carriage, as claimed, but because it failed to provide a signal of adequate strength.   -Petitioners contend that the fact that in nearly 12 years of operation WWTOTV never previously asserted   =its carriage rights suggests that WWTOTV never truly considered itself to share a common market with the instant communities.  S0-  17. ` ` In addition, Petitioners state that WWTOTV's argument that it is essentially irrelevant   that the cable communities herein are geographically distant belies Commission precedent in this regard.   Petitioners indicate that the Commission has repeatedly endorsed the use of mileagebased evidence in  S-  Levaluating a station's nexus to the communities served by a cable system.| {O-  ԍSee, e.g., Greater Worcester Cablevision, Inc., DA 872221 (released October 21, 1997); Time Warner Cable,  yO-DA 971009 (released May 13, 1997). Petitioners state further that   -WWTOTV's opposition says little about programming specifically tailored to the cable communities other   than a meaningless list of Chicagoarea TV guests, but instead asserts that it provides a "platform for local  S@-  zministries and other service organizations."9@ yO-ԍOpposition at 10.9 With regard to viewership, although WWTOTV cites a   Bureau Order noting that a broadcast station should not be "deleted from its market solely because its  S-  yaudience share is not as significant as the several other stations it competes with," f  {O -ԍOpposition at 13 citing Greater Worcester Cablevision, 10 FCC Rcd 12569, 12572 (1995). Petitioners state that   they have made it clear that they are not requesting exclusion of WWTOTV solely on the basis of viewership evidence, but due to a combination of factors.  SP-  18. ` ` Finally, Petitioners argue that WWTOTV's religious freedom argument is seriously  S(-  flawed. First, they point out the RFRA has been invalidated by the Supreme Court in City of Boerne v."( ,`(`(88"  S-  .Flores,?! yOh-ԍ117 S. Ct. 2157 (1997).? and although a few courts, including those identified by WWTOTV,>"X yO-ԍSee footnote 19 above.> have attempted to limit   the scope of that decision, the overwhelming trend has been to treat that decision as completely  S-  [invalidating RFRA and the majority of federal courts entertaining RFRA claims after City of Boerne have  S-  yadhered to that decision and treat RFRA as unconstitutional.X# {O-  xԍSee, e.g., Condon v. Reno, 155 F. 3d 453, 46364 (4th Cir. 1998); Coolbaugh v. State of Louisiana, 136 F.  {O-  3d 430, 434 (5th Cir. 1998); Goshtasby v. Bd. of Trustees of the Univ. of Illinois, 141 F. 3d 761, 769 (7th Cir.  {O -  1998); Anderson v. Angelone, et al., 123 F. 3d 1197, 1198 (9th Cir. 1998); Migneault v. Peck, et al., 1998 U.S. App.  {Or -  yLEXIS 26969 at *1213 (10th Cir. 1998); Solomon v. Chin, 1998 U.S. Dist. LEXIS 12307 (S.D.N.Y. 1998);  {O< -  Garlington v. James, 1998 U. S. Dist. LEXIS 14044 at *23 (S.D. Ala. 1998); and Young v. Pennsylvania House of  {O -Reps., 994 F. Supp. 282, 285 (M.D. Penn. 1998).X Therefore, Petitioners maintain, WWTO Sd-  0TV's statement that Boerne does not apply to the federal sphere is, at best, misleading. Even so,  S>-  ]Petitioners assert that WWTOTV has failed to make a prima facie  showing under RFRA and its   opposition is completely silent with respect to how the must carry statute and any resulting market   modification decision would substantially burden WWTOTV's free exercise of religion. Petitioners argue   .that a decision to grant the instant market modification would not interfere with WWTOTV's ability to   continue broadcasting to its licensed local area and would properly correct against a potential unwarranted commercial windfall to WWTOTV by extending its viewership well beyond its own offair transmission.  S( -  B19. ` ` In its surreply, WWTOTV states that Petitioners either misunderstand constitutional   principles or have misstated the holdings of several courts with regard to RFRA. WWTOTV argues that   Petitioners ignore that there is a fundamental constitutional difference between federal laws applied to the   MStates through the Fourteenth Amendment, and federal laws which the federal government decides to   apply to itself. While Petitioners cite a host of cases where, purportedly, RFRA "has been invalidated by  S`-  >the Supreme Court,"4$`l  yOl-ԍReply at 15.4 they ignore the proceedings in the District of Columbia Circuit and the Eighth  S8-  Circuit that indicated that RFRA remains good law as applied to the federal government.%8  {O-  ԍSee e.g., Bynum v. United States Capitol Police Board et al., Civil Action No. 971337 (PLF) (D.D.C. 1997);  {O-and Young v. Crystal Evangelical Free Church,1998 WL 166642 (8th Cir. (Minn)). Moreover,   WWTOTV states that even the Justice Department maintains that RFRA applies to the federal  S-  government despite the Boerne decision.6&X  yO-ԍSurreply at 3.6 Finally, WWTOTV states that Petitioners misstate the burden   of proof under the plain language of RFRA. Since the term "demonstrates" as defined in 42 U.S.C.   {2000bb Sec. 5(3) means to meet the "burden of going forward with the evidence and persuasion,"   -WWTOTV argues that it is the role of Commission, not WWTOTV, to produce evidence which supports   the abrogation of not only WWTOTV's religious liberty rights, but the cancellation of the must carry  S"-rules in conjunction with those rights.6'" yO%-ԍSurreply at 6.6 " x',`(`(884"Ԍ S-@ hDISCUSSION ă  S-  20. ` ` We grant Petitioners' modification requests. Based on geography and other relevant   information, we believe that the cable systems herein are sufficiently removed from KMPX that the  S`-communities ought not be deemed part of the station's market for mandatory carriage purposes.D(` yO-ԍH.R. Rep. 102628, at 9798.D h  S-  `21. ` ` As an initial matter, we note that, according to the legislative history of the 1992 Cable   Act, the use of ADI market areas is intended "to ensure that television station be carried in the areas  S-  kwhich they service and which form their economic market."Z)X yO -ԍH.R. Rep. 102628, 102d Cong., 2d Sess. 97 (1992).Z Changes may be sought and granted by  S-  the Commission "to better effectuate the purposes" of the mandatory carriage requirements.=* yO -ԍ47 U.S.C. 534(h).= The market   change process incorporated into the Communications Act, however, is not intended to be a process   whereby cable operators may seek relief from the mandatory signal carriage obligations apart from the   0question of whether a change in the market area involved is warranted. When viewed against this   backdrop and considering all of the relevant factual circumstances in the record, we believe that   Petitioners' deletion petitions appear to be legitimate requests to redraw ADI boundaries to make them   =congruous with market realities. Petitioners' actions do not reflect an intention to skirt its signal carriage   jresponsibilities under the 1992 Cable Act and the Commission's Rules, nor do they evidence a pattern of  SX-discriminatory conduct against the station.+Xx yOp-ԍAs noted earlier, it does not appear that WWTOTV has ever requested carriage on the subject cable systems.  S-  22. ` ` Considering the above, the task in this proceeding is to reflect the statutory factors in our   ldecision while at the same time recognizing the difficulties of applying these factors to stations of   >specialized formats. A decision based strictly on the four statutory modification factors historical   carriage, service, other stations' presence, and audience information would simply exclude Petitioners'   .communities from WWTOTV's market. However, even taking into account the difficulties of applying   these factors to those with specialized formats, there is no supporting evidence demonstrating that   Petitioners' communities warrant inclusion. The fact that a station is of specialized appeal does not mean   that its logical market area is without limits or that it should be exempt from the Section 614(h) market   [modification process. Given the difficulty of direct reliance on the statutory factors (which demonstrate   only limited connections between the cable communities and WWTOTV) we focus here more heavily   on basic geographic and technical features, mileage and Grade B contour, that provide the best available alternative evidence of the market boundaries of the station subject to deletion here.   S-15 Historic Carriage ă  S-  23. ` ` WWTOTV began operations in December 1986. While Petitioners stated they could not   zfind the station to be carried on any other nearby cable system in the relevant counties our records do   Mindicate some sporadic carriage, but not in any of the communities at issue here. Given the statutory   zdirective, weight must be given to this factor, but that must be done bearing in mind that the objective" +,`(`(88 "   of the Section 614(h) process is to "better effectuate the purposes" of the broadcast signal carriage  S-  scheme.=, yOh-ԍ47 U.S.C. 534(h).= Thus, with respect to the question of historical carriage patterns, attention must be paid to the   circumstances from which such patterns developed. Some stations have not had the opportunity to build   a record of historical carriage for specific reasons that do not necessarily reflect a judgment as to the   geography of the market involved. Therefore, the historical carriage factor to the extent such lack of   carriage is reflective of factors outside of the shape of the market is not by itself controlling in these   circumstances because such an implementation of the 1992 Cable Act would, in effect, prevent weaker   stations, that cable systems had previously declined to carry, from ever obtaining carriage rights. As such,   the evidence relating to this statutory factor does weigh in favor of excluding Petitioners' cable systems   zfrom WWTOTV's market but is not outcome determinative by itself, particularly in light of fact that   station has been on the ontheair for twelve years and has thus had a considerable period of time to establish a connection with the communities involved.  S -  Grade B Coverage/Local Service ă  S -  $24. ` ` A station's local service to cable communities is one of the relevant factors to consider   lin this particular case that is not influenced by the type or age of the station involved or historical   kcarriage. Service may be measured through geographic means: by examining the distance between the   station and the cable communities subject to the deletion request and taking into account natural   =phenomena such as waterways, mountains and valleys which tend to separate communities. A station's   Mbroadcast of local programming, which has a distinct nexus to the cable communities, is also evidence   kof local service. Finally, a station's Grade A or Grade B contour coverage is an additional indicator of  S-  local service and we will weigh the presence or absence of such technical coverage accordingly.X- yO-  ԍAs a general matter, Grade B coverage demonstrates service to cable communities and serves as a measure  {Ox-  [of a station's natural economic market. See Broadcast Signal Carriage Issues, 8 FCC Rcd at 2977. See also  {OB-  Amendment of Section 76.51 (OrlandoDaytona BeachMelbourne, and Cocoa, Florida), 102 FCC 2d at 1070 ("We   Lbelieve that television stations actually do or logically can rely on the area within their Grade B contours for economic support.").X In the   !instant case, while WWTOTV, appears to be making some attempts to provide locallyoriented   programming, the examples cited are an insufficient basis from which to conclude that WWTOTV has   =a specific nexus to the subject areas. Further, all but 3 of the 223 cable communities involved lie outside   of WWTOTV's predicted Grade B contour, and LaSalle, WWTOTV's city of license, is on average 7279 miles from the cable communities.  Sx-  a25. ` ` We note that the arguments raised by WWTOTV in this proceeding with regard to  SP-  geographic proximity are analogous to those addressed at length in the Commission's New York ADI  S*-  Appeals Memorandum Opinion and Order, ("New York ADI Order")..*4 {O!-  ZԍSee 12 FCC Rcd 12262 (1997). This Order disposed of 26 separate must carry/market modification appeals involving seven New York ADI cable operators and five New York ADI television stations. In that case, the Commission   generally affirmed the Cable Services Bureau's decision to retain certain communities and to delete other   communities in the New York ADI with regard to certain local broadcast television stations, based on the   four statutory factors, and other evidentiary considerations. WLNY, WHAI, and WRNN, three television" .,`(`(88"  S-  stations involved in the New York ADI Order, filed a court appeal of the Commission's ruling in late  S-  1997./ {Oh-  ԍ The case, WLNYTV, Inc. et. al. v. FCC and USA, was heard in the United States Court of Appeals for the   KSecond Circuit. On December 21, 1998, the Second Circuit, in a unanimous decision, affirmed the Commission's  {O-Order. WLNYTV, Inc. et. al. v. FCC, __ F. 3d __, 1998 WL 887054, (2d Cir. 1998). The stations argued that the Commission's decision to modify their market areas, based on Grade   =B contour coverage, mileage, and other factors, was contrary to the Act's must carry provisions and was   arbitrary and capricious decisionmaking under the Administrative Procedure Act. The United States Court   of Appeals for Second Circuit held that the Commission "properly applied the statute by considering the  S:-  kfour factors in the statute as well as others not enumerated in order to preserve local programming."10: {O-ԍId.1   The Court rearticulated the Commission's approach stating that, in deciding market deletion cases, the Commission should:  BX(1) observe the presumption that a broadcast station's market is the ADI in which it is  located; (2) consider the four statutory factors in an exclusion proceeding to evaluate  particularized evidence of local origination of programming; and (3) if the four factors  &alone would trigger widespread exclusion, consider Grade B contours, distance,  geographical and political boundaries, and other unenumerated factors to limit the scope  S -of exclusion.11  {O-ԍId.1    The Court's opinion fully endorsed the Commission's approach to market modifications and agreed that   Lthe Commission's careful balancing of the enumerated statutory factors, and other unenumerated factors, was entirely consistent with the language and intent of the Act. We reach a similar conclusion here.  S- Carriage of Other Stations ă  S-  }26. ` ` We also believe that Petitioners' carriage of other local television stations provides support   Lfor the action requested. Where a cable operator is seeking to delete a station's mandatory carriage rights   in certain communities, the issue of local coverage by other stations becomes a factor to which we will   .give greater weight than in cases where a party is seeking to add communities. In this case, the Chicago  area stations carried by Petitioners have a closer nexus to the cable systems herein. These market facts,   xcoupled with the distance between the cable systems and WWTOTV, support Petitioners' arguments under the third factor.  SR-1I Viewership ă  S-  27. ` ` Petitioners also show that WWTOTV has little or no audience in any of the subject   jcounties. Moreover, out of the 10 counties herein, the A.C. Nielsen 1997 County/Coverage Survey does   not even list WWTOTV and for the one where it is listed, Will County, only minimal viewership is  S-  recorded.`26 yO`%-ԍNielsen indicates 0/2 viewership shares for Will County.` This dearth of viewership is of evidentiary significance when tied with the lack of both   historical carriage and Grade B coverage. WWTOTV correctly notes that the Commission has recognized   that specialty stations, such as itself, typically attract limited audiences. Consequently, while of some": 2,`(`(88 " significance, we do not heavily rely upon this factor.  S-,6 Other Arguments  S-  S`-  28. ` ` Finally, with regard to WWTOTV's arguments regarding Federal Religious Freedom   .Restoration Act ("RFRA"), we find no relevance to our action herein. As stated in the Supreme Court's  S-  decision in Turner Broadcasting System, Inc. et al. v. FCC, "[t]he mustcarry rules are contentneutral,   and thus are not subject to strict scrutiny. They are neutral on their face because they distinguish between   speakers in the television programming market based only upon the manner in which programmers   transmit their messages to viewers, not the messages they carry. The purposes underlying the mustcarry   >rules are also unrelated to content. Congress' overriding objective was not to favor programming of a   particular content, but rather to preserve access to free television programming for the 40 percent of  S" -Americans without cable."F3"  yO -ԍ512 U.S. 622, 245864 (1994). F ` `  S -6I Conclusion ăpp  S -  29. ` ` Following Commission precedent, and cognizant of the Second Circuit's holding, we have   ]carefully considered each statutory factor, as well as other market indicators, in the context of the   circumstances presented here. Given the evidence as to the lack of Grade B coverage, the lack of   >viewership in the cable communities at issue, the lack of carriage of WWTOTV on Petitioners' cable   /systems, and the absence of local programming, we conclude that it is logical and consistent with the   {objective of Section 614 of the Communications Act to delete Petitioners' cable communities from  S-WWTOTV's market for mandatory carriage purposes. ` `  SB- 15 Ordering Clauses у  S-  S-  130. ` ` Accordingly, IT IS ORDERED , pursuant to 614(h) of the Communications Act of 1934,   as amended (47 U.S.C. 534(h)) and 76.59 of the Commission's Rules (47 C.F.R. 76.59), that the   captioned petitions for special relief filed on behalf of Jones Cable TV Fund 12A, Ltd./Jones Cable TV  Sz-Fund 15A, Ltd. and TCI of Illinois, Inc. and its Affiliates  IS GRANTED.  SR-  S*-31. ` ` This action is taken pursuant to 0.321 of the Commission's Rules.<4*X yO"-ԍ47 C.F.R. 0.321.< ` `  hh,VFEDERAL COMMUNICATIONS COMMISSION ` `  hh,VWilliam H. Johnson, Deputy Chief ` `  hh,VCable Services Bureau " 4,`(`(88e""  X-#Xj\  P6G;W XP#  X-  H Appendix A ă  X-Community` `  CountyVCUID  Xv-Libertyville` `  Lakehh,VIL0525  X_-Grayslake` `  ""hh,VIL0528  XH-Mundelein` `  ""hh,VIL0526  X1-Wauconda` `  ""hh,VIL0527  X -Unin. Lake County ""hh,VIL0527  X -Lake Zurich` `  ""hh,VIL0451  X -Vernon Hills` `  ""hh,VIL0475  X -Hawthorn Woods ""hh,VIL0451  X -Kildeer` `  ""hh,VIL0622  X -Long Grove` `  ""hh,VIL1542  X-Indian Creek` `  ""hh,VIL0986  Xy-Lake Barrington Shores""hh,VIL1259  Xb-Lake Barrington ""hh,VIL1259  XK-Deer Park` `  ""hh,VIL1432  X-Barrington` `  Cookhh,VIL1436  X-Unin. Cook County ""hh,VIL1482  X-LaGrange` `  ""hh,VIL0848  X-Western Springs ""hh,VIL0666  X-Riverside` `  ""hh,VIL0871  X-Indian Head Park ""hh,VIL0847  X-Lansing` `  ""hh,VIL0684  X|-Flossmoor` `  ""hh,VIL0682  Xe-University Park ""hh,VIL0687  XN-Thornton` `  ""hh,VIL0689  X7-Hazel Crest` `  ""hh,VIL0683  X -Matteson` `  ""hh,VIL0685  X -Olympia Fields ""hh,VIL0686  X-Richton Park` `  ""hh,VIL0688  X-Unin. Cook County ""hh,VIL1484  X -Orland Park` `  ""hh,VIL0411 Unin. Cook County  X"-(Palos Park) ""hh,VIL1215  X#-LaGrange Park ""hh,VIL0849*   XQ%-Elgin` `  Kanehh,VIL0500  X:&-South Elgin` `  ""hh,VIL0500  X#'-Unin. Kane County ""hh,VIL0897"#'4,`(`(88%"Ԍ X-ԙCrete` `  Willhh,VIL0870  X-Unin. Will County ""hh,VIL1483  X-Park Forest` `  ""hh,VIL0529   *Although Jones listed this community as being located in Bond County, Illinois, our records indicate that it is located in Cook County. "v4,O(O(88F"  X-H Appendix B ă  X-Community` `  CountyVCUID  X-Arlington Heights Cookhh,VIL0554  X-Chicago` `  ""hh,V  Xv-Chicago (Area 1) ""hh,VIL1104  X_-Chicago (Area 4) ""hh,VIL0955  XH-Chicago (Area 5) ""hh,VIL1105  X1-Chicago Heights ""hh,VIL0754  X -South Chicago Heights""hh,VIL0755  X -Steger` `  ""hh,VIL0756  X -Cook` `  ""hh,VIL1497  X -Glencoe` `  ""hh,VIL1220  X -Winnetka` `  ""hh,VIL1243  X -Kenilworth` `  ""hh,VIL1400  X-Harvey` `  ""hh,VIL0672  Xy-Phoenix` `  ""hh,VIL0674  Xb-Maywood` `  ""hh,VIL0492  XK-Park Ridge` `  ""hh,VIL0559  X4-Glenview NAS ""hh,VIL1437  X-Cook (UO Glenview)""hh,VIL1661  X-Prospect Heights ""hh,VIL0560  X-Mt. Prospect` `  ""hh,VIL0558  X-Des Plaines` `  ""hh,VIL0556  X-Glenview` `  ""hh,VIL0840  X-Northbrook` `  ""hh,VIL0841  X-Wheeling` `  ""hh,VIL0563  X|-Golf` `  ""hh,VIL1089 Cook (UO Arlington  XN-Heights) ""hh,VIL1662  X7-Cook (Mt. Prospect) ""hh,V  X -Cook (UO Oak Forest)""hh,VIL1125  X -Cook (UO Markham)""hh,VIL1124  X-Markham` `  ""hh,VIL0673  X-Oak Forest` `  ""hh,VIL0578  X -Robbins` `  ""hh,VIL1450  X!-Streamwood` `  ""hh,VIL0562  X"-Schaumburg` `  ""hh,VIL0561  X#-Cook (NE) (Schaumburg)""hh,VIL1634  Xh$-Bartlett` `  ""hh,VIL0555  XQ%-Hanover Park` `  ""hh,VIL0557  X:&-Skokie` `  ""hh,VIL0657  X#'-South Holland ""hh,VIL0924"#'4,O(O(88%"Ԍ X-ԙGlenwood` `  ""hh,VIL1255  X-Cook (SE)` `  ""hh,VIL1659  X-Ford Heights` `  ""hh,VIL1253  X-Lynwood` `  ""hh,VIL1254  X-Alsip` `  ""hh,VIL0838  X-Chicago Ridge ""hh,VIL0604  Xv-Cook (UO Alsip) ""hh,VIL1123  X_-Evergreen Park ""hh,VIL0603  XH-Hometown` `  ""hh,VIL0605  X1-Oak Lawn` `  ""hh,VIL0445  X -Barrington Hills ""hh,VIL0252  X -Inverness` `  ""hh,VIL1303  X -S. Barrington` `  ""hh,VIL1302  X -Algonquin` `  McHenryVIL0137  X -Crystal Lake` `  ""hh,VIL0138  X-Lake In The Hills ""hh,VIL0140  Xy-Cary` `  ""hh,VIL0142  Xb-Fox River Grove ""hh,VIL0143  XK-Lakewood` `  ""hh,VIL0149  X4-Oakwood Hills ""hh,VIL0163  X-McHenry (Carpentersville)""hh,VIL0178  X-Huntley` `  ""hh,VIL0579  X-Harvard` `  ""hh,VIL0405  X-McHenry (UO Harvard)""hh,VIL1563  X-Fox River Valley Gardens""hh,VIL0464  X-Wonder Lake` `  ""hh,VIL0308  X-Woodstock` `  ""hh,VIL0288  X|-Island Lake` `  ""hh,VIL0394  Xe-Holiday Hills` `  ""hh,VIL0388  XN-Lakemoor (McHenry)""hh,VIL0305  X7-McCullom Lake ""hh,VIL0307  X -McHenry (McHenry) ""hh,VIL0304  X -Timber Creek Trailer Park""hh,V  X-Spring Grove` `  ""hh,VIL1177  X-Johnsburg` `  ""hh,VIL0309  X -McHenry` `  ""hh,VIL0303  X!-McHenry (Genoa City)""hh,VIL1561  X"-Richmond` `  ""hh,VIL0627  X#-Barrington Hills ""hh,VIL1422  XQ%-West Dundee` `  Kanehh,VIL0138  X:&-East Dundee` `  ""hh,VIL0141  X#'-Carpentersville ""hh,VIL0144"#'4,O(O(88%"Ԍ X-Sleepy Hollow ""hh,VIL0550  X-Kane (Carpentersville)""hh,VIL1236  X-Barrington Hills ""hh,VIL1680  X-Batavia` `  ""hh,VIL0537  X-Blackberry` `  ""hh,VIL1299  X-Campton` `  ""hh,VIL1297  Xv-Elgin` `  ""hh,VIL1301  X_-Kane (E)` `  ""hh,VIL1014  XH-Lily Lake` `  ""hh,VIL1605  X1-Plato` `  ""hh,VIL1298  X -Rutland` `  ""hh,VIL1523  X -St. Charles` `  ""hh,VIL1300  X -Lake (UO Cary) Lakehh,VIL1569  X -Highwood` `  ""hh,VIL0430  X -Deerfield` `  ""hh,VIL0613  X-Deerfield` `  ""hh,VIL1221  Xy-Lake Eleanor` `  ""hh,VIL0851  Xb-Fort Sheridan` `  ""hh,VIL1120  XK-Delmar Woods ""hh,VIL0850  X4-Lake` `  ""hh,VIL1526  X-Lincolnshire` `  ""hh,VIL1262  X-Bannockburn` `  ""hh,VIL1318  X-Riverwoods` `  ""hh,VIL1537  X-Great Lakes Naval Center""hh,VIL0581  X-Highland Park ""hh,VIL0614  X-Lake Bluff` `  ""hh,VIL1387  X-Lake Forest` `  ""hh,VIL1386  X|-Island Lake` `  ""hh,VIL0393  Xe-Hainesville` `  ""hh,VIL0583  XN-Lake` `  ""hh,VIL0208  X7-Round Lake` `  ""hh,VIL0390  X -Round Lake Heights ""hh,VIL0392  X -Round Lake Park ""hh,VIL0391  X-Round Lake Beach ""hh,VIL0396  X-Lake` `  ""hh,VIL1110  X -Beach Park` `  ""hh,VIL1658  X!-Winthrop Harbor ""hh,VIL1097  X"-Third Lake` `  ""hh,VIL1196  X#-Lindenhurst` `  ""hh,VIL0676  Xh$-Wadsworth` `  ""hh,VIL1111  XQ%-Fox Lake` `  ""hh,VIL0680  X:&-Gurnee` `  ""hh,VIL0679  X#'-Green Oaks` `  ""hh,VIL1197"#'4,O(O(88%"Ԍ X-Lake Villa` `  ""hh,VIL0677  X-Waukegan` `  ""hh,VIL0001  X-Antioch` `  ""hh,VIL0678  X-Park City` `  ""hh,VIL0469  X-North Chicago ""hh,VIL0468  X-Zion` `  ""hh,VIL0198  Xv-Barrington Hills ""hh,VIL1421  X_-N. Barrington` `  ""hh,VIL1304  XH-Tower Lakes` `  ""hh,VIL1522  X -Steger` `  Willhh,VIL0757  X -Will (NW)` `  ""hh,VIL1660  X -DuPage (SW)` `  DuPagehh,VIL1015  X -Four Lakes Village ""hh,VIL0839  X -Lisle` `  ""hh,VIL0538  X-DuPage (UO Villa Park)""hh,VIL1679  Xy-DuPage (NE)` `  ""hh,VIL1015  Xb-Villa Park` `  ""hh,VIL1055  X4-Gary` `  Lakehh,VIN0079  X-Griffith` `  ""hh,VIN0225  X-New Chicago` `  ""hh,VIN0333  X-Merrillville` `  ""hh,VIN0495  X-Cedar Lake` `  ""hh,VIN0434  X-Whiting` `  ""hh,VIN0406  X-Lake` `  ""hh,VIN0493  X-Schererville` `  ""hh,VIN0407  X|-Lake Station` `  ""hh,VIN0334  Xe-Lowell` `  ""hh,VIN0226  XN-Hobart` `  ""hh,VIN0494  X7-Highland` `  ""hh,VIN0221  X -Munster` `  ""hh,VIN0408  X -Dyer` `  ""hh,VIN0332  X-St. John` `  ""hh,VIN0435  X-Crown Point` `  ""hh,VIN0747  X -East Chicago` `  ""hh,VIN0104  X!-Hammond` `  ""hh,VIN0103  X"-Lakes of Four Seasons""hh,VIN0554  Xh$-Porter (NW)` `  Porterhh,VIN0424  XQ%-Hebron` `  ""hh,VIN0423  X:&-The Pines` `  ""hh,VIN0628  X#'-Porter (NE)` `  ""hh,VIN0794"#'4,O(O(88%"Ԍ X-Lakes of Four Seasons""hh,VIN0555  X-Shorewood` `  ""hh,VIN0657  X-Beverly Shores ""hh,VIN1095  X-Chesterton` `  ""hh,VIN0252  X-Dune Acres` `  ""hh,VIN1016  X-Porter` `  ""hh,VIN0254  Xv-Valparaiso` `  ""hh,VIN0091  X_-Valparaiso (UO Porter)""hh,VIN0220  X1-Jasper` `  Jasperhh,VIN0943  X -Demotte` `  ""hh,VIN0651  X -Long Beach` `  La PorteVIN0414  X -Pottawatomie Park ""hh,VIN0413  X -Michiana Shores ""hh,VIN0412  X -Duneland Beach ""hh,VIN0416  X-Trail Creek` `  ""hh,VIN0415  Xy-Michigan City ""hh,VIN0301  Xb-La Porte` `  ""hh,VIN0425  XK-Kingsbury` `  ""hh,VIN0599  X4-Kingsford Heights ""hh,VIN0598  X-La Porte (W)` `  ""hh,VIN0576  X-La Porte` `  ""hh,VIN0445