January 28, 1960 (2)

The PRESIDENT pro tempore. The · Chair lays before the Senate the unfinished business, which will be stated by title. ·

The CHIEF CLERK. A joint resolution (S.J. Res. 39) to amend the Constitution to authorize Governors to fill temporary vacancies in the House of Representatives.

NEEDED: EARLY ACTION ON NORTH AMERICAN BROADCASTING AGREEMENT AND CASTING AGREEMENT WITH

MEXICO . . Mr. WILEY. Mr. President, currently there is pending before the Senate . Foreign Relations Committee two proposed international · agreements: First. the North American Regional Broadcasting Agreement and second, the Broadcasting Agreement With Mexico.

Generally. the agreements would establish a pattern for utilization of radio frequencies in the standard broadcast band between 535 and 1605 kilocycles. by prescribing engineering standards. procedures, classes of stations, radio frequency priorities, and similar regulation by participating countries.

These include Canada, Cuba, the Dohas minican Republic, the United Kingdomfor Jamaica and the Bahamas-and the United States. Provision is also made for the adherence of Haiti to the agreements.

The need for the agreements arises out of the basic fact . that airways do not stop at international boundaries. With the tremendous growth of the broadcasting industry, nationally and internationally, there is a need for assuring the least amount of interference by stations in one nation with stations in another nation.

We recognize, of course, that once such treaties are ratified, our stations will necessarily be required · to operate within their confines with whatever problems that may arise from such limitations. . In the interests of protecting alL segments of the industry-for example, that of the daytime broadcasters who seek from time to time to extend their broad casting time-! hope the subcommittee will make a real attempt to find answers to the objection which has been raised.

Despite the objections, however, there is widespread feeling in the broadcasting industry that the agreements should be · approved .

· As I underStand, the matters are scheduled for consideration in early executive session by the special subcom­ mittee established for the consideration of the treaties. I . respectfully urge, in 'View of the 10-year period during which this matter has been under consideration that it be handled · expeditiously andreported as early as possible.

Having received a number of communications . from outstanding stations in my home State of · Wisconsin, I request unanimous consent to have printed at this point in the RECORD the following items: First, messages from Wisconsin stations urging approval of the agreements; second, an editorial from the _ January 25 issue of Broadcasting magazine, entitled "NARBA, Now or . Never'"; and third, a resume of "Reasons for Supporting . Ra . Ratification . of NARBA and the Mexican Agreement," prepared by Mr. Hollis M. Seavey. director of Regional Broadcasters.

There being no objection, the material was ordered to be printed in the RECORD.

as follows: · WTMJ-TV, WTMJ~ WTMJ-FM,

THE . MILWAUKEE JOURNAL STATIONS,

Milwaukee, Wis., January, 14, 1960.

Senator ALEXANDER WILEY, . U.S. Senate, Washington, D.a.

DEAR SENATOR . WILEY: I am writing to you . as a constituent and as a broadcaster in the hope that you will interest yourself in the matter o! the North American . Regional Broadcasting Agreement and the Mexican. Broadcasting Agreement.

. Because o! the importance . e which I · as a broadcaster attach to the aforementioned agreements I have taken considerable · time over the past several months to acquaint myself with the background and history of . the negotiations as well as. the broadcast principles upon which they were , founded.

From all I can gather. the negotiations were consummated by our State Department and Federal Communications Commission people with considerable . distinction and potential benefit, to the United States and its citizens. . ens.

It 1s understandable that some broadcasters or small groups o! broadcasters, as reflected iD the hearings before the subcommittee, should have some objection to the agreements. However, it is my firm beliefand I am of the opinion that the State Department and the FCC feel the same waythat these agreements by and large are i:n the best, interests of the broadcasting industry as a whole. Most of my background information comes from a publication by the Government Printing Office of the hearing before the subcommittee of the Committee on Foreign Relations, U.S. Senate, 86th Congress. As a member of the Foreign Relations Committee I. presume you are acquainted with the document.

It is obvious to any broadcaster that sound waves or electronic waves cannot be captured within boundaries and that, under the circumstances, there must be some . working agreement between parties concerned to forestall any inevitable chaotic situation. The history o! U.S. broadcasting will show numerous periods of annoying foreign interference to , the detriment of our citizens and our ' broadcast service. It 1s only because of working agreements · between the countries concerned that the situation over the past several years has . been amicable.

The agreements in question have been sitting in. the · Foreign . n Relations Subcommit- tee · for the past 9 years · and. as I understand it, it has been only by the goodwill of the other countries involved that interference difficulties have not arisen. One cannot wonder at the adverse diplomatic effect on the goodwill of our neighbors because of the inaction · of the committee and the Senate Certainly one would expect that it should not take almost a decade for · a great country such as ours to make up its mind in an area in which there must be an international agreement if any sort of adequate broadcasting operation is to exist. One would feel . that it would be difficult to explain to neighbors why action has not been taken. One would likewise feel that the inaction of the United States would give cause to a feeling on the part of those . who have already signed that they should go their separate ways without consideration · for the United States. If this attitude should pertain it could only result in exceeding harm to broadcasters on clear channels, regional channels such as that owned by my company, and hundreds of local operations lying within border areas.

The exact interference which would be caused to a station can only be pointed out case by case by competent engineers, but it is not unreasonable to believe that all stations lying within our great State of Wisconsin could be adversely affected by interference from stations in Canada if that nation chose suddenly to increase power on certain of its wave bands, or grant additional stations on wave bands not now being used because Canada has thus far upheld the letter of the treaty. The interference would reduce the listenable signal of Wisconsin stations and thus reduce service to the people of the State. It would be tragic if this were allowed to happen.

There is a general feeling, as I have sensed it, among competent people that in the agreements the United States has come off exceedingly well. It seems to b~ the general belief among competent people that if an in- _ evitable chaotic state did not result from the U.S. Senate inaction we would at least have to renegotiate an agreement which would in all likelihood result in something less than we now have. In other words, delay is jeopardizing the future status of radio in the United States.

I urge you to do all you possibly can to clarify this matter. The broadcasting industry cannot exist without an agreement between neighbor nations. It is intolerable to think . that the United States has waited this long without taking action in an area where chaos is the only alternative to mutual understanding. If the U.S. Senate does not feel, after proper discussion of the matter, that the agreements can be ratified then it must direct the proper parties under our Constitution to carry on negotiations which w'ill be satisfactory to it. If only in the interest of international goodwill, it would seem to me action is a must.

Sincerely,

GEORGE COMTE,

General Manager of Radio and Television.

RADIO STATION WKBH,

La Crosse, Wis., January 20, 1960.

Senator ALEXANDER WILEY, Washington, D.O.

DEAR SENATOR WILEY: This letter is written to urge you in all sincerity to vote and work for the ratification, without reservation, of the North American Regional Broadcasting Agreement and the Bilateral Agreement Between the United States and Mexico. I know you are already familiar with the main points of these agreements. As you know they give the Federal Communications Commission complete freedom of action in its domestic allocations policy. This feature alone is of great value to U.S. daytime radio stations which can petition for changes in their facilities without fear i:>f international complications. We in the industry believe that if attempts were made to negotiate new agr · agreements with the countries involved, several unpredictable years would elapse and the U.S. broadcasting industry would end up either with no agreements or ones with terms much less favorable than those contained in · the present agreements. I believe it should be pointed out to you tha,t since practically all radio transmitters are located in or adjacent to cities or towns, and since these agreements are intended to prevent interference between stations of our country with stations of other countries parties to these agreements, that the chief area where such interference could take effect are those areas some distance from the transmitters. This of course is because of the fact that radio signals get weaker as you get further from the transmitter. For this reason, if and when any interference should result, it would undoubtedly take place some distance from the radio transmitter and its location would be in the rural areas of our country. You are very well aware that radio is a very important part of the lives of these people .

For this reason and the other reasons mentioned I trust that you may see fit tO work and vote for the passage of these agreements.

Very truly yours,

HOWARD DAHL,

Manager.

GREEN BAY PRESS-GAZETTE,

Green Bay, Wis., January 21, 1960.

Hon. ALEXANDER WILEY,

Senate Office Building, Washington, D.C.

DEAR SENATOR WILEY: We are very much concerned about the North American Regional Broadcasting Agreement and the Bilateral agreement Between the United States and Mexico.

We understand that the hearings on this agreement are to begin on January 25 and I regret that I cannot be there in person. I am convinced that ratification is essential to the national public interest as well as to the individual business interest of each and every broadcaster.

As a member of the Senate Committee on Foreign Relations I thought you would like to know how we feel about this at home, and hope you will do all in your power to assure the ratification.

Yours respectfully,

JOSEPH HORNER, Jr.,

General Manager, Green Bay Press­

Gazette and Radio Station WJPG.

MILWAUKEE, WIS., January 27, 1960.

Senator ALEXANDER WILEY, U.S. Senate, Washington, D.O.:

We urge immediate ratification of North American Regional Broadcasting Agreement and broadcasting agreement with Mexico without reservations.

We would appreciate your making this wire part of the record of your subcommittee hearing which we understand is open until 5 p.m. Friday.

JAMES T. BUTLER,

Vice President and General Manager,

W ISN-R{ldio, Milwaukee.

LA CRossE, Wis., January 27, 1960.

Senator ALEXANDER WILEY, Senate Office Building, Washington, D.O.:

We urge immediate ratification North American Regional Broadcasting Agreement and broadcasting agreement with Mexico without reservation.

Please make this wire part of the record of your subcommittee hearing.

HERBERT H. LEE,

Radio Station WKTY,

La Crosse, Wis.

EAU C!.AmE, WIS., January 27, 1960.

Sen a tor WILEY, Washington, D.O.:

We urge immediate ratification North American Regional Broadcasting Agreement and broadcasting .. agreement with Mexico without reservations. · _ WoUld appreciate you making this wire part of your record of your subcommittee hearing now in progress. ·

LEO HOWARD,

General Manager, WEAU-TV.

NARBA Now OR NEVER

All but lost in the turmoil involving broadcasting is the 10-year-old treaty on AM broadcasting on the North American Continent which has languished before the Senate Foreign Relations Committee. Failure to rat­ ify the NARBA treaty, and the collateral 1956 agreement with Mexico, at this session could trigger an allocations war of indiscriminate channel-jumping with disastrous effects on reception.

The Daytime Broadcasters Association which asserts representation of some 250 of the 1,700 stations now operating from sunrise ' (io sunset, has openly lobbied against Senate ratification. Two bills are pending to instruct the FCC to authorize 6 a . m. to 6 p.m. operation. The FCC, the State Department, and virtually all other entities in AM radio, have implored the Senate to ratify the agreements or invite chaos. But the daytimers have been able to muster sUfficient strength to block action.

There has been one significant development, however. The regional stations, which heretofore have put up no organized resistance, have now established regional broadcasters for the avowed purpose of fostering Senate ratification. At long last, they realized that while the daytimers have ostensibly sought fixed hours only on Mexican and United States clears, the legislation they espouse would strike at domestic regionals, and without directional or any other protection. The FCC has twice rejected the daytimers' proposals, so they now seek from Congress what they cannot get from the expert body charged with the responsibility of providing maximum interference-free service to the public.

The daytimers cannot be criticized for wanting to improve their lots, notably during the most lucrative radio hours. But they should not seek to do it at the expense of old-established services or through legislative pressure. - The new Regional Broadcasters, organized at the call of Payson Hall, director of broadcast properties of Meredith, has no simple task, because it is easier to block legislation than to enact it. Ratification hearings begin today (January 25) before the Senate Foreign Relations Subcommittee.

Among the regionals are many of the oldestablished and most respected stations. This is their opportunity to cite the facts. And there isn't too much time in which to do it with Congress eyeing adjournment by July.

REASONS FOR SUPPORT - ING RATIFICATION 01' NARBA AND THE MEXICAN AGREEMENT

1. The agreements establish international regulation in the standard broadcast band. Countries signing the agreements are restricted to the assignments · contained therein, preventing the threat of chaotic interference and drastically reduced coverage by all classes of stations. ·

2. If attempts were made to negotiate new agreements with the countries involved, several . unpredictable years would elapse and the U.S . broadcasting industry would end up either with no agreements or ones with terms much less favorable than those contained in the present agreements.

3. Two agreements are definitely in the best interests of U.S. broadcasters as a whole and the listening public. All segments · of the industry were entitled to participate in the negotiations of both treaties and to confer with Government representatives. Diverse views of industry observers were fully explored and every . attempt was made tQ satisfy them.

4. The agreements give the Federal Communications Commission complete freedom of action in its domestic allocations policy. This feature alone is of great value to U.S. daytime radio stations which can petition for changes in their facilities without fear of international complications.

5. The agreements provide for consultations between governments for the investigation and elimination of objectionable interfer- ence: as well as. compulsory arbitration of disputes in the event they are not settled otherwise.

6. Important priority rights established for the United States through the provisions of these agreements would be completely lost in the absence of ratification.

7. U.S. daytime radio stations operating on Mexican clear channels benefit greatly from one provision in the Mexican agreement . . Presently, all U.S. daytime radio stations operating on channels on which the Mexican Government has a I-A priority may operate with a power of no more than 1 kilowatt. 'Plis ceiling is raised to 5 kilowatts under the terms of this agreement.

8. The rapid growth of standard broadcast Stations in all countries of the North American region since the signing of NARBA in November 1950, makes the need for treaty protection all the more urgent.

THE LIBRARY SERVICES ACT IN WISCONSIN

Mr . . WILEY. Mr. President, throughout the country our ' libraries are per-: forming a necessary and tremendously valuable service for our citizens.

We realize, of course, that education is not a process which stops at graduation from formal schooling. Rather, in this fast-changing world, education must be · continued on a day-to-day basis, if we hope to keep pace with, understand, and make contribution to the progress in life · going on around us.

Through our libraries, invaluable opportunities are provided for individuals of all ages, in all walks of life.

Currently, there is pending before the Senate Labor and Public Welfare Committee a recommendation for extending the library services under which our library program has been substantially strengthened and improved for the benefit of people throughout the country. Particularly, it has provided library services for small communities and rural areas, many of which, until now, have not had such services.

In view of the significant need for improvement and expansion of these services to the people of the United States, I believe that Congress should favorably consider the necessary continuation and improvement of this program.

Today, I was pleased to receive from S. Janice Kee, secretary of the Wisconsin Free Library Commission, a brief resume of the splendid work that has been made possible through operation of the Library Services Act in Wisconsin. In addition, there was recently published in the Wisconsin Library Bulletin · an informative article by George D. Russell, under the ' title "The Public Library: A Touch- stone to a Good Community."

I ask unanimous consent to have the articles printed · at this point in the RECORD.

There being no objection, the articles were ordered to . be printed in the RECORD, as follows: ·

THE LlBRART SERVICES . Acr IN WISCONSIN

Using Federal funds appropriated under the Library Services Act of 1956 (Public Law 597), the free library commissi.on is sponsoring library extension and development projects in 18 Wisconsin counties; has initiated a scholarship program to provide more trained personnel, through University of Wisconsin extension division, and graduate study, for Wisconsin's public libraries; and has made a grant to the university extension division's bureau of government for a statewide survey of public libraries.

The six projects for improving, developing, and extending public library service in rural areas are:

:MILWAUKEE PUBLIC LmRARY RURAL SERVICE

A cash grant was awarded the Milwaukee Public Library in 1958 to provide bookmobile service on a demonstration basis to rural areas in Milwaukee County. Following the . trial period, eight communities of fewer than 10,000 population voted, in October 1959, to continue this service at their own expense.

SOUTHWEST WISCONSIN LmRARY PROCESSING CENTER

Nineteen independent public libraries in five counties of southwest Wisconsin banded together in a federation, early in 1959, for cooperative purchasing and processing of books. Since founding of the center, located in Fennimore, two additional libraries have contracted for this service. Central bookselection aids are available, and the center's librarian, Mrs. Janet Jahns, assists area librarians in workshops and other community library service activities.

SHAWANO CITY-COUNTY LmRARY IMPROVEMENT PROJECT

A cash grant to the Shawano Library was made to strengthen extension services to rural adults and provide in-service training for staff members. Two trained librariansan assistant director (Isabel Harding, who joined the staff in October 1959) and a bookmobile librarian (being recruited)-are being added to the staff, and a second bookmobile, for adult services, is in operation.

FOUR-COUNTY LmRARY PROJEC'r

County library committees in Ashland, Bayfield, Iron, and Price Counties are jointly sponsoring this project, which includes developmental book loans in 9 small libraries and bookmobile service to 43 area communities that do not have libraries. The Vaughn Library at Ashland is the reference and information center for this project. Bookmobile service began October 21, 1959; John R. Dols is the librarian.

SIX-COUNTY LIBRARY PROJECT

- Similar in service to the four-county activity, this project is based on the public libraries in Antigo, Merrill, and Rhinelander, which will serve as coequal centers for operation in Langlade, Lincoln, Oneida, Forest, Florence, and Vilas Counties. Bookmobile service started January 20, 1960; Mary Claire Pansch is the librarian.

BARRON COUNTY LmRARY PROJECT

This project is a result of an intensive study by the Barron County Library Committee. A central collection of books has been deposited at the Rice Lake Public Library and is available to all the libraries in the county; the county . library committee is continuing to explore ways of establishing countywide library service.

Mrs. Edna W. Holland, Antigo, is regional consultant to library projects. in northern Wisconsin.

COUNTY LmRARY COMMITrEES •

Section 43.255 of the Wisconsin statutes provides · for the ap:pointment ~f coUnty 11 7 brary committees by county boards, to survey and study the library needs of the county and to develop and report to the county board plans and proposals for improving library service wi . within the county.

For more information about the free library commission's program, and for specific information about the Library Services Act-­ and what it can mean to your communitywrite to: S. Janice Kee, secretary, Wisconsin Free Library Commission, 217 North, State Capitol, Madison, Wis.

THE PUBLIC LIBRARY: A TOUCHSTONE TO A GOOD COMMUNITY

(By George D. Russell)

Until a happy set of circumstances brought me to the free library commission, the public library as a community institution was something quite obscure in my mind. Obscure because, having been born and raised on a farm in rural Wisconsin, I was one of what we on the commission staff have referred to as "unserved people"-people with no legal access to a public library. Make no mistakes: I had been able to read some books as a youngster in grade school since we received traveling library boxes of books from the office of the county superintendent of schools. But this, I have . learned, is certainly not good library service, and even this service ended with my graduation from that rural school. And. oddly enough, no one-not once, to my recollection--ever did mention that there was such a thing as a. Wisconsin Free Library Commission, with good books just waiting to be borrowed.

Nor can . I say that there were no public libraries in my area. In the nearest town, there was what was called a. public library, and, if I'm not mistaken; I could have used · it without paying a. fee, even though I lived outside the city limits. The important point here is that I did not make use of this public library on any occasion. I would be the first to admit that part of this failure to use this facility must be attributed to my own lack of initiative, but I a.m by no means prepared to admit that I alone should bear the blame. How many teenagers would be tempted to enter one of the dingiest buildings in town? I had never been encouraged, nor even told that I could do so. I can offer no accolades to the teaching profession for any special effort in introducing me to the wonderful world of books and reading. Perhaps I assume that the teaching profession has an obligation which is not properly theirs, but I believe not, and in fact . I believe that it ought to be one of their primary concerns.

Although this has been my own experience, I would wager that it matches that of thousands of others in many communities in Wisconsin. The fact is that in many places in Wisconsin people do not have libraries ; or, if they have them, they are not encouraged to use them, or, at most, they have tried to use them and have come away discouraged and empty-handed because they couldn't find the book they wanted. Good library serviceadequate library service-is not just any old collection of nondescript books on a few dirty shelves; rather, in simplest terms, good library service means bringing together the right person and the right book--and at the right time, I might add.

MARKETPLACE FOR IDEAS

A public library need not be a dingy, forlorn place, with a few books tended in a slipshod manner by just anyone that happens to need a job for a few hours a week. A good library-! mean the kind that every Wisconsin citizen has a right to-sh~ld be as bright, cheerful, inviting, and busy as the nearest supermarket. It should be a marketplace for ideas. · When we go into the supermarket, shopping for such everyday thing~ as groceries, we don't look for just milk; we want homogenized milk with vitamin D added. Th~ farmer isn't satisfied with planting just corn; he wants hybrid 110-day maturity. So it is with the discriminating reader of today: he doesn't want just any ' book; he wants a specific book on a specific subject, published during a certain year. To be · able to pl~ that book in the hands of the inquiring reader is approaching good library service. Why should one expect the reader to be any less specialized in searching for his mental sustenance than he is in fulfilling his physical and material needs?

ROLE OF THE INDIVIDUAL

And for those who argue that the . majority don't use the public libraries, that it's only a small minority that do use them, I say forget about majorities and minorities-­ they're for election returns; let's talk about individuals and individual needs. History shows that the great developments, technological, philosophical, or ideological, and the solutions to critical problems, and discoveries have always been and will be made by individuals, not majorities.

It is the individual that counts, and where library service is concerned, any individualno matter who he is or where-'-ought to be able to get the particular book or information he seeks.

This is not saying that every community ought to buy every book that has been or is going to be published. This would be ridiculous and prohibitively expensive. But most public libraries in Wisconsin ought to have a great many more and better books than they do have, and, more important, if they cannot provide the serious reader with the particular book he wants, they should be able to connect him with a larger resource center which does have the materials he seeks.

This, of course, calls for cooperation among libraries and governmental units-:-the kind of cooperation that makes the resources of all the units available to all the libraries participating 1n the cooperative venture. This is a concept which is sound, both economically and politically, and one which the free library commission is working to ha'Ve publicly accepted. It is, however, one which has met with the least favor with those who would benefit the most--the smaller communities and especially the rural areas of Wisconsin.

WHOSE RESPONsmn.ITY?

And who is to blame for this unhappy state of affairs? Is it the librarians, library board members, government officials, or the . public at large? The answer is not an "either-or" one; perhaps the blame should be shared by all. But a curious thing does come to my mind after these 2 years: It often seems that those who raise the greatest hullabaloo about preserving our democratic · way of life are quite often the same ones who are the most resistant who do the least--to promote and support the institutions of government which common sense tells us will do the most to preserve the way of life they say they cherish.

Of all the reasons--or perhaps excuses is a better word-that one hears from people who resist providing adequate support for good libraries, perhaps the most common are that library service is not demanded or used by enough. people to justify the expenditures and that it can't be afforded-taxes are already too high. I have answered the first of these charges, at least to my own satisfaction, because I believe that the individual's importance must not be neglected.

To the people who continually raise the cry that they do not have enough tax money, I say, not enough money for what? I don't want ¥> take the car out of anyone's garage, the bright picture tube out of anyone's comfortable living room, or all the highballs or cigarettes out of anyone's hand. But I do make a plea for striking some kind of balance between the material things so commonly but perhaps somewhat wrongly associated with the good life and those things which, in the long pull, will do the most to prese:r:ve what we so loudly cherish.

My challenge is to library board members, librarians, and to anyone interested in, and aware of, the importance of good · public library service-but particularly to the librarians and most particularly to library trustees. You are in a position to do something about public libraries. I often think that library board members-and even many librarians--must not really be aware of the opportunities, the really significant contributions they can make to the education of mankind. Or if they are aware of this, then a lot of them should not be board members or librarians because their performance cer tainly doesn't reflect their understanding.

FUNCTIONAL FREEDOM TO READ

Every so often we hear a great to-do about the legal freedom to read-about the suppression of a free press. I am concerned that so few people ever view with alarm the more practical freedom to read; that is the funct i onal freedom to read, to be able to get that which has not been suppressed. It s e ems to me that there is a tyranny of nonavailability, of nonaccessibility to man's recorded knowledge that, at this point in our history, is equally as vicious as the suppression of any of our other precious freedoms. To do something · about this functional freedom to read seems to me the special job, the responsibility, the duty of librarians and library board members. If your efforts don't receive the attention and publicity that is associa.ted with schools when you make your c a se for better library service in your community, your opportunities and responsibilities are no less serious; whether your efforts are applauded or criticized, they are important.

Today, not tomorrow or the next day, is the time to do something about your library, for it ought to be planned for the future and not impelled by crisis. Everything you do in the name of good public library service will make your community a better one, for I believe that the good public library is a touchstone to a good community.