Full opinion text
OPINION OF THE COURT AMBRO, Circuit Judge. Table of I. Background and Procedural History.........................................438 A. Our Review of the Commission’s 2003 Report and Order...................438 1. Newspaper/Broadcast and Radio/Broadcast Cross-Ownership Rules.....438 2. Local Television Ownership Rule....................................439 3. Local Radio Ownership Rule........................................439 4. Dual Network Rule................................................440 5. Promoting Minority Ownership: Definition of Eligible Entities in Transfer Rule and MMTC Proposals...............................440 B. The Commission’s 2006 Quadrennial Review, 2008 Order, and Diversity Order.............................................................440 1. Newspaper/Broadcast Cross-Ownership (“NBCO”) Rule...............440 2. Radio/Broadcast Cross-Ownership Rule..............................441 3. Local Television Ownership Rule....................................442 4. Local Radio Ownership Rule........................................442 5. Diversity Order...................................................442 6. Subsequent Procedural History.....................................443 II. Jurisdiction and Standard of Review.........................................444 A. Standard of Review under the APA.....................................444 B. Standard of Review under Subsection 202(h)..............................444 III. Newspaper/Broadcast Cross-Ownership (“NBCO”) Rule.......................445 A. Notice and Comment Process...........................................445 B. The FCC Failed to Meet the APA Notice and Comment Standard...........449 1. The APA Standard................................................449 2. Analysis of Compliance with the APA Standard.......................450 C. Permanent Waivers of Cross-Ownership Rule............................454 IV. Radio/Television Cross-Ownership Rule.....................................456 V. Local Television Ownership Rule............................................458 A. Retention of the Pre-2003 Rule.........................................458 B. Retention of the “Top Four/Eight Voices” Test...........................459 C. Declining to Tighten the Television “Duopoly Rule” ........................461 VI. Local Radio Ownership Rule ...............................................462 VII. Retention of the Dual Network Rule.........................................463 VIII. Constitutionality of Media Ownership Rules..................................464 IX.The Diversity Order and the Issue of Minority and Women Broadcast Ownership..............................................................465 A. Prometheus I Remand on Minority and Women Ownership Issues...........465 B. Rulemaking Process regarding Minority and Female Ownership Issues during the 2006 Quadrennial Review...................................466 1. The FNPR in 2006 and Second FNPR in 2007 ........................466 C. The Diversity Order and Third FNPR in 2008 ............................468 D. The Eligible Entity Definition is Arbitrary and Capricious .................469 X. Conclusion...............................................................472 In Prometheus Radio Project v. F.C.C., 373 F.3d 372 (3d Cir.2004) (“Prometheus I ”), we considered revisions by the Federal Communications Commission (the “Commission” or “FCC”) to its regulations governing broadcast media ownership promulgated following its 2002 Biennial Regulatory Review. See 2002 Biennial Regulatory Review — Review of the Commission’s Broadcast Ownership Rules and Other Rules Adopted Pursuant to Section 202 of the Telecommunications Act of 1996, Report and Order and Notice of Proposed Rulemaking, 18 F.C.C.R. 13,620, 2003 WL 21511828 (July 2, 2003) (the “2003 Order”). We affirmed the Commission’s authority to regulate media ownership but remanded aspects of the Commission’s 2003 Order that were not adequately supported by the record, including its numerical limits for local television ownership, local radio ownership rule, rule on cross-ownership of media within local markets, and repeal of the failed station solicitation rule. Prometheus I, 373 F.3d at 382, 421. In these consolidated appeals, we consider the Commission’s most recent revisions to its media ownership rules. In December 2007, following its 2006 Quadrennial Regulatory Review, the Commission announced an overhaul of its newspaper/broadcast cross-ownership rule and granted permanent waivers of the rule to five specific newspaper/broadcast combinations. 2006 Quadrennial Regulatory Review — Review of the Commission’s Broadcast Ownership Rules and Other Rules Adopted Pursuant to Section 202 of the Telecommunications Act of 1996, Report and Order and Order on Reconsideration, 23 F.C.C.R. 2010, 2055-56, 2008 WL 294635 (Dec. 18, 2007) (the “2008 Order”). It chose to retain its radio/television cross-ownership rule and local television and radio ownership rules in existence prior to the 2003 Order. It also retained its failed station solicitation rule, and set out a series of other measures to address broadcast ownership diversity, in a separate order. See Promoting Diversification of Ownership in the Broadcasting Services, 2006 Quadrennial Regulatory Review — Review of the Commission’s Broadcast Ownership Rules and Other Rules Adopted Pursuant to Section 202 of the Telecommunications Act of 1996, Report and Order and Third Further Notice of Proposed Rulemaking, 23 F.C.C.R. 5922, 2008 WL 612180 (Dec. 18, 2007) (the “Diversity Order*’). The 2008 Order was challenged by multiple parties. In 2009, the FCC moved for voluntary remand of the 2008 Order. We denied that opposed motion. Today we affirm the 2008 Order with the exception of the newspaper/broadcast cross-ownership rule, for which the Commission failed to meet the notice and comment requirements of the Administrative Procedure Act (the “APA”), 5 U.S.C. §§ 551 et seq. We also remand those provisions of the Diversity Order that rely on the revenue-based “eligible entity” definition, and the FCC’s decision to defer consideration of other proposed definitions (such as for a socially and economically disadvantaged business (“SDB”)), so that it may adequately justify or modify its approach to advancing broadcast ownership by minorities and women. 1. Background and Procedural History We need not reiterate our lengthy discussion of the history and parameters of the Commission’s regulatory authority contained in Prometheus I. See 373 F.3d at 382-86. However, to place our decision in context, we briefly recount the Commission’s 2003 modifications to its ownership rules, the resulting objections, and our decisions with respect to each rule. We also summarize the Commission’s most recent modifications to its rules arising out of its 2006 Quadrennial Regulatory Review process. A. Our Review of the Commission’s 2003 Report and Order In September 2002, the Commission issued a Notice of Proposed Rulemaking, announcing that it would review six of its broadcast ownership rules in its 2002 Biennial Regulatory Review. Id. at 386 (citing 2002 Biennial Regulatory Review — Review of the Commission’s Broadcast Ownership Rules and Other Rules Adopted Pursuant to Section 202 of the Telecommunications Act of 1996, Notice of Proposed Rulemaking, 17 F.C.C.R. 18,503, ¶ 6, 2002 WL 31108252 (2002) (the “2002 Notice”)). In 2003, it issued an Order modifying the rules. See 2003 Order. We provide below a brief description of the rules, and the actions we took with respect to each. 1. Newspaper/Broadcast and Radio/Broadcast Cross-Ownership Rules Starting in 1975, the Commission banned common ownership of a full-service broadcast television station and a daily public newspaper. Prometheus I, 373 F.3d at 387 (citing Amendment of Sections 73.3k, 73.2k0, and 73.636 of the Commission’s Rules Relating to Multiple Ownership of Standard, FM and Television Broadcast Stations, 50 F.C.C.2d 1046, 1975 WL 30457 (1975)). Prior to 2003, it also regulated common ownership of television and radio stations. Id. In its 2003 Order, the Commission determined that the existing rules were no longer in the public interest, repealed them, and replaced them with a single set of Cross-Media Limits using a methodological tool called the “Diversity Index.” Id. at 387-88. In Prometheus I, we upheld the Commission’s decision that a complete ban on newspaper/broadcast cross-ownership was no longer necessary to protect diversity, but that continuing to regulate cross-ownership was in the public interest. Id. at 399-400. However, we did not uphold the Cross-Media Limits themselves because the Commission had failed to provide reasoned analysis to support them. Id. at 402-12. Specifically, we concluded that it “did not justify its choice and weight of specific media outlets ... [selected] for inclusion in the Diversity Index,” “did not justify its assumption of equal market shares ... [for] all outlets within the same media type (that is, television stations, daily papers, or radio stations),” and “did not rationally derive its Cross-Media Limits from the Diversity Index results.” Id. at 404, 408, 409. 2. Local Television Ownership Rule The local television ownership rule allowed one entity to own two television stations in a market (a television duopoly) as long as at least one of the stations was not ranked among the market’s four largest stations and at least eight independently owned and operated stations (called “eight voices”) would remain post-merger. Id. at 386. In 2003, the Commission amended this rule to permit triopolies in markets with 18 or more stations and duopolies in markets with 17 or fewer. Id. at 386-87. The Commission also repealed its failed station solicitation rule, which required applicants seeking waivers of the local television rule to provide notice of the sale to potential out-of-market buyers before it could sell a failed, failing, or unbuilt station to an in-market buyer. Id. at 420. The failed station solicitation rule was adopted in 1999 to alleviate concerns that the FCC’s decision to allow local television duopolies — hence more concentration of ownership — would undermine station ownership by minorities. Id. We upheld the retention of the ban on cross-ownership of the top four stations in a market (known as the “top four” restriction), and the relaxation of the eight voices rule, but remanded the specific numerical limits for the Commission to “support and harmonize its rationale.” Id. at 415-16, 420. We also remanded its repeal of the failed station solicitation rule, as the Commission had failed to consider the effect on minority ownership of the repeal despite the rule being the only existing regulation intended to promote minority television ownership. Id. at 421. 3. Local Radio Ownership Rule Congress established specific numerical limits on radio ownership in the Telecommunications Act of 1996, Pub.L. No. 104-104, 110 Stat. 56, 110 (1996) (codified as amended at 47 U.S.C. § 202(b)(1)) (the “1996 Telecommunications Act”). The 2008 Order retained these limits, but replaced the “contour-overlap” method for determining radio markets with a geographic method and announced that the Commission would include noncommercial stations in the station count for each market. Prometheus I, 373 F.3d at 387. We upheld the new market definition and the inclusion of noncommercial stations but remanded the numerical limits for further consideration, including the AM “sub-caps.” Id. at 423-426, 431-35. Specifically, we held that the Commission had failed to support its proposition that the existence of five equal-sized competitors shows that local markets are sufficiently competitive (or that the Commission’s limits would actually ensure five competitors) and to explain why it was necessary to impose an AM subcap at all. Id. at 432-35. 4. Dual Network Rule Under the dual network rule, a television station is prohibited from affiliating with more than one of the four largest networks. The top four restriction prohibits common ownership by ABC, CBS, Fox, and NBC. Id. at 388. We upheld the Commission’s decision to retain this rule in 2003, as it was supported by ample record evidence. Id. at 417-18. 5. Promoting Minority Ownership: Definition of Eligible Entities in Transfer Rule and MMTC Proposals In Prometheus I we concluded that the FCC had failed to consider proposals to promote minority broadcast ownership that the Minority Media and Telecommunications Council (the “MMTC”) had submitted during the Commission’s 2002 biennial review proceeding. The 2003 Order proposed a separate proceeding to address proposals for advancing minority and female ownership in broadcasting. See 2003 Order ¶¶ 49-50 (promising to issue a Notice of Proposed Rulemaking to address the MMTC’s 13 specific proposals). We remanded this decision (in effect, to defer consideration of these proposals) and ordered the Commission to address them at the same time that it addressed the other remanded issues from the 2003 Order. Prometheus I, 373 F.3d at 421 n. 59. We also rejected concerns regarding the FCC’s new transfer rule that prohibits “the transfer or sale of grandfathered [radio/television] combinations that violate its local ownership limits except to certain ‘eligible entities’ that qualify as small businesses.” Id. at 426-427 (internal citation omitted). In upholding the transfer rule, however, we “antieipate[d] ... that by the next quadrennial review the Commission will have the benefit of a stable definition of SDBs, as well as several years of implementation experience, to help it reevaluate whether an SDB-based waiver will better promote the Commission’s diversity objectives” than the small business definition it used in the rule. Id. at 427-28 n. 70. B. The Commission’s 2006 Quadrennial Review, 2008 Order, and Diversity Order In July 2006, the FCC began another quadrennial review. Marking the culmination of the review process in December 2008, the FCC issued its 2008 Order containing changes to its ownership rules made in response to our remand, and deemed necessary to the public interest in the course of its own review, offering justifications for those changes, and issuing five permanent waivers of its newspaper/broadcast cross-ownership rule. Simultaneously, the FCC issued the Diversity Order in response to our remand and to carry out its statutory duty to enhance opportunities for minorities and women in broadcast ownership. We consider the proposed rule changes, the waivers, and the Diversity Order below. The following is a brief description of the rule changes made by the Commission following its 2006 Quadrennial Review that are challenged by one or more of the parties. 1. Newspaper/Broadcast Cross-Ownership (“NBCO”) Rule In its 2008 Order, the Commission abandoned the cross-media limits announced in the 2003 Order, declined to retain the ban abandoned in the 2003 Order (but still in existence due to our stay), and adopted an entirely new rule. Under the new rule, the Commission will consider newspaper/broadcast cross-ownership proposals on a case-by-case basis using a four-factor test, set forth below, guided by reversible presumptions. In the top 20 Designated Market Areas (“DMAs”), the Commission will presume “that it is not inconsistent with the public interest for an entity to own ... either (a) a newspaper and a television station if (1) the television station is not ranked among the top four stations in the DMA, and (2) at least eight independent ‘major media voices’ remain in the DMA; or (b) a newspaper and a radio station.” 2008 Order• ¶ 53. In all other markets, the Commission will presume “that it is inconsistent with the public interest for an entity to own newspaper and broadcast combinations.” Id. at ¶ 63. However, the Commission will reverse that negative presumption if either (1) the proposed combination initiates at least seven hours a week of additional local news programming, or (2) the newspaper or broadcast outlet qualifies as failed or failing. Id. at ¶¶ 65-67. Guided by these reversible presumptions, the Commission will consider the following four factors in determining whether to approve a proposed combination: (1) the extent to which cross-ownership will serve to increase the amount of local news disseminated through the affected media outlets in the combination; (2) whether each affected media outlet will exercise its own independent news judgment; (3) the level of concentration in the Nielsen DMA, and (4) the financial condition of the newspaper or broadcast station, and if the newspaper or broadcast station is in financial distress, the owner’s commitment to invest significantly in newsroom operations. Id. at ¶ 68. However, the presumptions— negative and positive — present a “high hurdle” for opposing parties to overcome. Id. 2. Radio/Broadcast Cross-Ownership Rule The Commission also abandoned the cross-media limits proposed in 2003 with respect to radio/broadcast cross-ownership. Instead, it announced that it would retain its pre-2003 rule (still in effect at that time due to our stay of the 2003 rule), which “limits the number of commercial radio and television stations an entity may own in the same market, with the degree of common ownership permitted varying depending on the size of the relevant market.” Id. at ¶ 80. More specifically, an entity may own up to two television stations and up to six radio stations (or one and seven) in a market where 20 independently owned media “voices” would remain post-merger, and up to two television stations and four radio stations where 10 voices would remain. Id. at ¶ 80 n. 259. An entity may own two television stations and one radio station regardless of the number of voices remaining in the market. Id. 3.Local Television Ownership Rule The Commission also chose to retain the pre-2003 local television ownership rule, under which an entity may own two television stations in the same DMA if (1) the station contours do not overlap; or (2) at least one of the stations in the combination is not ranked among the top four in terms of audience share and at least eight independently owned broadcast television stations would remain in the DMA after the combination. Id. at ¶¶ 87, 96. It abandoned completely the relaxed numerical limits in the 2003 Order. Additionally, the Commission reinstated the failed station solicitation rule. 4.Local Radio Ownership Rule As it did in the 2003 Order, the Commission retained the numerical limits prescribed by Congress in the 1996 Telecommunications Act (and the revised market definition we upheld in Prometheus I). See 2008 Order ¶¶ 110-11. However, it offered a new justification for those limits and for the AM/FM subcaps, as we had rejected as unreasonable the rationales given in its 2003 Order. Id. at ¶¶ 130-34; Prometheus I, 373 F.3d at 430-35. The rule provides that an entity may own, operate, or control (1) up to eight commercial radio stations, not more than five of which are in the same service (ie., AM or FM), in a radio market with 45 or more full-power, commercial and non-commercial radio stations; (2) up to seven commercial stations, not more than four of which are in the same service, in a radio market with between 30 and 44 (inclusive) full-power, commercial and noncommercial radio stations; (3) up to six commercial radio stations, not more than four of which are in the same service, in a radio market with between 15 and 29 (inclusive) full-power, commercial and non-commercial radio stations; and (4) up to five commercial radio stations, not more than three of which are in the same service, in a radio market with 14 or fewer full-power, commercial and noncommercial radio stations, except that an entity may not own, operate, or control more than 50 percent of the stations in such a market. 2008 Order ¶ 110. 5.Diversity Order In its separate Diversity Order, the FCC adopted, with modifications, 13 proposals submitted during the rulemaking proceeding and rejected 10 other proposals intended to increase broadcast ownership by minorities and women. It also sought comment on nine separate proposals in the accompanying Third Further Notice of Proposed Rulemaking (the “Third FNPR”). Diversity Order ¶¶ 80-101. It did not consider proposed SDB definitions. The Diversity Order adopts a number of measures to increase ownership opportunities for “eligible entities,” which are defined to include all entities that qualify as small businesses under the standards of the Small Business Administration (the “SBA”) for industry groupings based on revenue. Among other provisions, the Diversity Order also establishes several measures intended to eliminate fraud and discrimination in broadcast ownership. 6. Subsequent Procedural History In March 2008, Common Cause and several other groups filed a Petition for Reconsideration of the Commission’s 2008 Order. See Common Cause et al, Petition for Reconsideration, MB Docket 60-121 (Mar. 24, 2008) (“Petition for Reconsideration”). In July 2008, Citizen Petitioners filed for review of that Order in our Court. Subsequently, several other petitions for review were filed before us, all of which were consolidated with that of Citizen Petitioners. In December 2008, Citizen Petitioners filed a motion to hold these cases in abeyance pending the FCC’s action on the Petition for Reconsideration. We granted that motion and ordered the parties to show cause why the stay entered in 2003, and continued in Prometheus I, should not be lifted. On consideration of their responses, we requested that the parties file status reports regarding the pending Petition for Reconsideration and our stay. Order Requesting Status Reports, June 12, 2009. After reviewing the status reports, we requested that the Commission advise us “when it expect[ed] to issue its decision on reconsideration of the 2006 Quadrennial Regulatory Review.” Order Requesting Further Information, Nov. 4, 2009. (emphasis in original). In response, the Commission made clear that it was “already working hard to reexamine” the issues raised in the Petition for Reconsideration. Thus, it did “not intend to issue a decision on reconsideration of the 2008 Order until that decision [could] be made harmoniously with the current Quadrennial Regulatory Review.” Memorandum from Austin C. Schlick, FCC General Counsel, to Marcia M. Waldron, Clerk, U.S. Court of Appeals for the Third Circuit 1 (Nov. 25, 2009). The Commission requested that we “continue to hold these cases in abeyance.” Id. It asked that, in the alternative, we “remand the 2008 Order to the Commission so that it may revisit the determinations made in that order in conjunction with” its 2010 Quadrennial Review. Id. at 2. We dedined to do either, and in March 2010 we lifted the stay and set a briefing schedule for the consolidated cases pending before us. II. Jurisdiction and Standard of Review We have jurisdiction over the rule-making portions of the FCC’s 2008 Order under 47 U.S.C. § 402(a) and 28 U.S.C. § 2342(1). A. Standard of Review under the APA In reviewing agency rulemaking, our standard of review is governed by the APA, 5 U.S.C. § 706. Under this standard, we must “hold unlawful and set aside agency action, findings, and conclusions” that are “arbitrary, capricious, an abuse of discretion, or otherwise not in accordance with law ... [or] unsupported by substantial evidence.” Id. § 706(2)(a). As the Supreme Court elaborated in Motor Vehicle Manufacturers Association of the United States v. State Farm Mutual Automobile Insurance Company (“State Farm ”): The scope of review under the arbitrary and capricious standard is narrow and a court is not to substitute its judgment for that of the agency. Nevertheless, the agency must examine the relevant data and articulate a satisfactory explanation for its action[,] including a rational connection between the facts found and the choices made.... Normally, an agency rule would be arbitrary and capricious if the agency has relied on factors which Congress has not intended it to consider, entirely failed to consider an important aspect of the problem, offered an explanation for its decision that runs counter to the evidence before the agency, or is so implausible that it could not be ascribed to a difference in view or the product of agency expertise. 463 U.S. 29, 43, 103 S.Ct. 2856, 77 L.Ed.2d 443 (1983) (internal quotations and citations omitted). B. Standard of Review under Subsection 202(h) Subsection 202(h) of the 1996 Telecommunications Act requires the Commission to determine whether media concentration rules are “necessary in the public interest as the result of competition” and to “repeal or modify any regulation it determines to be no longer in the public interest.” § 202(h), 110 Stat. at 111-12. In Prometheus I, we set out our standard of review under § 202(h) in detail. 373 F.3d at 390-97. With no need to repeat that detail here, we note our summary of the § 202(h) standard: In a periodic review under § 202(h), the Commission is required to determine whether its then-extant rules remain useful in the public interest; if no longer useful, they must be repealed or modified. Yet no matter what the Commission decides to do to any particular rule — retain, repeal, or modify (whether to make more or less stringent) — it must do so in the public interest and support its decision with a reasoned analysis. Id. at 395. As we did in Prometheus I, “[w]e shall evaluate each aspect of the Commission’s Order accordingly.” Id. III. Newspaper/Broadcast Cross-Ownership (“NBCO”) Rule All sides challenge the Commission’s decision to repeal its ban on newspaper/broadcast cross-ownership in favor of a case-by-case approach guided by presumptions and a four-factor test. Citizen Petitioners argue that the FCC failed to provide adequate notice of the rule as required by the APA, that elements of the rule are unsupported by the record evidence, and that several components are too vague and ill-defined to be enforceable or to promote the public interest. In contrast, Deregulatory Petitioners contend that the FCC erred by failing to relax the rule further. They also challenge the validity of the rule under our Constitution’s First and Fifth Amendments. Several of the Petitioners point to record evidence that they believe the FCC did not adequately consider in promulgating the new NBCO rule. Because we conclude that the Commission did not meet the APA’s notice and comment requirements for this rule, we do not reach any of these challenges to its substance. A. Notice and Comment Process In remanding the Commission’s cross-media limits in Prometheus I, we advised that “any new ‘metric’ for measuring diversity and competition in a market be made subject to public notice and comment before it is incorporated into a final rule.” 373 F.3d at 412. The FCC’s “decision to withhold” its previous metric (the Diversity Index) from “public scrutiny was not without prejudice” to the public’s ability to discuss and rebut it during comment, as evidenced by its significant flaws, and the Commission thus should have noticed the methodology publicly. Id. We noted that our remand would “give[ ] the Commission an opportunity to cure its questionable notice.” Id. at 411. Two years after our remand, in July 2006, the FCC issued a Further Notice of Proposed Rulemaking (“FNPR”) to begin its 2006 Quadrennial Review and to request comments on how to address our remand. 2006 Quadrennial Regulatory Review — Review of the Commission’s Broadcast Ownership Rules and Other Rules Adopted Pursuant to Section 202 of the Telecommunications Act of 1996, Further Notice of Proposed Rulemaking, 21 F.C.C.R. 8834, 2006 WL 2067989 (July 24, 2006). The FNPR contained only the following paragraph directly relevant to revising the NBCO rule: We invite comment on all of the issues remanded by the Prometheus court regarding cross-ownership. Many of these issues relate to the [Diversity Index (“DI”) ]. In light of the court’s extensive and detailed criticism of the DI, we tentatively conclude that the DI is an inaccurate tool for measuring diversity. Moreover, we recognize that some aspects of diversity may be difficult to quantify. To the extent that we will not use the DI to justify changes to the existing cross-ownership rules, we seek comment on how we should approach cross-ownership limits. Should limits vary depending upon the characteristics of local markets? If so, what characteristics should be considered, and how should they be factored into any limits? We seek comment on the newspaper/broadcast rule and the radio/television cross-ownership rule. Are there aspects of television and radio broadcast operations that make cross-ownership with a newspaper different for each of these media? If so, should limits on newspaper/radio combinations be different from limits on newspaper/television combinations? Lastly, are the newspaper/broadcast cross-ownership rule and the radio/television cross-ownership rule necessary in the public interest as a result of competition? FNPR ¶ 32 (emphasis added). Two commissioners dissented in part from the order adopting the FNPR, criticizing its “vague,” “open-ended” nature and its failure to discuss proposals to foster minority and female ownership, among other “major flaws” and “infirmities.” Statement of Commissioner Jonathan S. Adelstein, Concurring in Part, Dissenting in Part, 21 F.C.C.R. 8834, 8865-67, 2006 WL 2067989 (July 24, 2006). Commissioner Adelstein noted that the FNPR failed to give notice regarding any new metric for measuring diversity and that the Commission had not committed to allowing public comment before such a measuring device would be incorporated into “rules that are likely to change the media landscape for generations to come.” Id. at 8866. Commissioner Copps similarly noted: “A transparent process is especially critical for issues of this magnitude when the Notice asks broad, general questions.... I do not see how we can be transparent and comply with the dictates of the Third Circuit [in Prometheus I ] without letting the American people know about and comment on any new standards of measurement that we adopt in developing our ultimate decision.” Statement of Commissioner Michael J. Copps, Concurring in Part, Dissenting in Part, 21 F.C.C.R. 8834, 8863, 2006 WL 2067989 (July 24, 2006). Despite the brevity of the relevant portion of the FNPR, the FCC relied entirely on the two sentences emphasized in this single paragraph as providing adequate notice of the new NBCO rule adopted in its 2008 Order. FCC Br. 37. As its counsel reiterated at oral argument: “I want to emphasize that for APA purposes we think that Paragraph 32 of the further notice was sufficient, because all we have, all the agency is required to do is [set out] general issues.” Oral Argument Transcript (“Tr.”) 92; see also Tr. 87 (“Well[,] Paragraph 32 of the further notice ... does have two sentences, but sentences that talk specifically to this question relevant to newspaper broadcast co-ownership.”). Only when pressed at oral argument did counsel add that the 2003 Order and our decision in Prometheus I provided useful background for interested parties, but he stopped short of asserting that the FNPR incorporated the entire record that preceded it: “Indeed, I would say that ... parties who are interested in any of these issues should have paid attention, not only to the Commission’s 2003 order but to this court’s opinion and to its instructions on remand in order to figure out what the Commission was going to deal with and had to deal with in the 2008 Order, because that was indeed in part a response to this court’s order on remand.” Tr. 94-95. Following publication of the FNPR, there was an initial 90-day comment period and a further 60 days for reply comments. However, after that period, the procedures followed by the Commission were irregular. On November 22, 2006, the Commission announced that it had commissioned 10 economic studies. Both of the Commissioners who had dissented from the FNPR issued statements criticizing “the [poor] transparency of the process undertaken to develop the studies and select the authors,” “the truncated period of time to complete the studies,” and the peer review process proposed. News Release, FCC, Commissioner Adelstein’s Comments on the FCC’s Media Ownership Studies (Nov. 22, 2006); News Release, FCC, Commissioner Copps’ Comments on the FCC’s Media Ownership Studies (Nov. 22, 2006). On July 31, 2007, the FCC released the 10 studies (and large underlying data sets) and asked for comments on those studies to be filed 60 days later, with 15 additional days to submit reply comments. In a joint statement, Commissioners Copps and Adelstein criticized the short time for public comment given the volume of data released and raised questions about the peer review process. In September 2007, about halfway through the comment period, the Commission released peer review analyses of the ownership studies and some additional underlying data. A few days later, Free Press, Consumer Federation of America, and Consumers Union filed a complaint with the Commission under the Data Quality Act (“DQA”), 44 U.S.C. § 3516. Free Press et al., Complaint under the DQA and Motion for Extension of Time (Sept. 11, 2007) (“First DQA Complaint”). It alleged that the Commission had (1) suppressed studies with results contrary to its purportedly predetermined goal of relaxing the ownership rules; (2) violated the Office of Management and Budget’s guidelines under the DQA, as well as the FCC’s own guidelines implementing the DQA, because the FCC’s peer review process was “woefully inadequate” and the results of its commissioned studies were not reproducible; and (3) failed to give peer reviewers and the public enough time to comment on the studies. Id. On November 1, 2007, the last day for reply comments on the studies, the FCC posted to its website several additional peer review comments, “revised” versions of four of the studies, and new peer review studies, but did not extend the time for public comment. Free Press, Consumer Federation of America, and Consumers Union responded by filing a second complaint alleging continued violations of the DQA and the APA. Free Press et al., Second Complaint under the DQA and Motion for Extension of Time (Nov. 9, 2007). Between October 2006 and November 2007, the Commission held six public hearings on media ownership in cities around the country. Citizen Petitioners object to the manner in which the final public hearing, held on November 12, 2007, was handled, as the hearing date and location (Seattle, Washington) were announced just 10 calendar days beforehand. On November 13, 2007, then-FCC Chairman Kevin J. Martin published an Op-Ed in The New York Times unveiling his own proposal for a new NBCO rule. He simultaneously put out a Press Release (together, the “Op-Ed/Press Release”) that set a 28-day deadline for the public to “comment” on his proposal. Responses were due December 11, 2007. Commissioners Copps and Adelstein objected to his decision. On November 28, 2007, Chairman Martin circulated an internal draft of the Order to the other Commissioners. The Op-Ed/Press Release generated much criticism. The Senate Committee on Commerce, Science, and Transportation, the FCC’s oversight committee in the Senate, approved by unanimous consent a bill that, among other provisions, required the FCC to delay its vote on the proposal until a meaningful notice and comment period occurred for the NBCO rule. Media Ownership Act of 2007, S. 2332, 110th Cong. (2007). A similar bill was introduced in the House of Representatives. Media Ownership Act of 2007, H.R. 4835, 110th Cong. (2007). On December 17, 2007, a bipartisan group of 25 Senators urged the FCC to delay its vote scheduled for the next day “to provide a reasonable period for comment” “that would normally accompany a rule change of this type,” and threatened to revoke the new NBCO rule legislatively if the vote went ahead. The hours before the final vote were a scramble. The 2008 Order was not circulated to the Commissioners until 9:44 p.m. the night before the vote. Even that draft had sections missing. The Commissioners received a new version of the NBCO rule at 1:57 a.m. on the day of the vote. At 11:12 a.m. that same morning, another version of the NBCO rule was circulated that contained revisions to the four-factor test that would be employed in every case. Nevertheless, later that same day the Commission, by a three to two vote, adopted the 2008 Order and the Diversity Order. B. The FCC Failed to Meet the APA Notice and Comment Standard 1. The APA Standard The APA requires agencies to provide notice of proposed rulemaking that contains “either the terms or substance of the proposed rule or description of the subjects and issues involved.” 5 U.S.C. § 553(b). Following notice, “the agency shall give interested persons an opportunity to participate in the rulemaking through submission of written data, views, or arguments with or without opportunity for oral presentation.” Id. § 553(c). As we stated in Prometheus I, “ ‘the adequacy of the notice must be tested by determining whether it would fairly apprise interested persons of the ‘subjects and issues’ before the agency.’ ” 373 F.3d at 411 (citing Am. Iron & Steel Inst. v. EPA, 568 F.2d 284, 293 (3d Cir.1977)). To assess whether the public was fairly apprised of a new rule, a reviewing court asks “whether the purposes of notice and comment have been adequately served.” Am. Water Works Ass’n v. EPA, 40 F.3d 1266, 1274 (D.C.Cir.1994) (internal quotation and citation omitted); see also Natural Res. Def. Council v. EPA, 279 F.3d 1180, 1186 (9th Cir.2002). Among the purposes of the APA’s notice and comment requirements are “(1) to ensure that agency regulations are tested via exposure to diverse public comment, (2) to ensure fairness to affected parties, and (3) to give affected parties an opportunity to develop evidence in the record to support their objections to the rule and thereby enhance the quality of judicial review.” Int’l Union, United Mine Workers of Am. v. Mine Safety & Health Admin., 407 F.3d 1250, 1259 (D.C.Cir.2005). In addition, “a chance to comment ... [enables] ‘the agency [to] maintain[ ] a flexible and open-minded attitude towards its own rules.’ ” McLouth Steel Prods. Corp. v. Thomas, 838 F.2d 1317, 1325 (D.C.Cir.1988) (internal citation omitted). To achieve those purposes, there must be an exchange of views, information, and criticism between interested persons and the agency.... Consequently, the notice required by the APA ... must disclose in detail the thinking that has animated the form of a proposed rule and the data upon which that rule is based.... [A]n agency proposing informal rulemaking has an obligation to make its views known to the public in a concrete and focused form so as to make criticism or formulation of alternatives possible. Home Box Office, Inc. v. FCC, 567 F.2d 9, 35-36 (D.C.Cir.1977) (emphasis added) (internal citations and footnotes omitted). In sum, “[t]he opportunity for comment must be a meaningful opportunity.” Rural Cellular Ass’n v. FCC, 588 F.3d 1095, 1101 (D.C.Cir.2009). That means enough time with enough information to comment and for the agency to consider and respond to the comments. 2. Analysis of Compliance with the APA Standard No party disputes that Chairman Martin’s Op-Ed/Press Release did not satisfy the APA’s notice requirements. The proposal was not published in the Federal Register, the views expressed were those of one person and not the Commission, and the Commission voted days after substantive responses were filed, allowing little opportunity for meaningful consideration of the responses before the final rule was adopted. In effect conceding these points, the FCC states that the Op-Ed/Press Release is “immaterial” to its compliance with the APA’s notice requirement. FCC Br. 38 n. 10. As noted earlier, the Commission relies on paragraph 32 of the FNPR to satisfy its notice obligations under the APA. Id. at 37. It argues that “[a] notice that contains no rule proposals complies with the APA so long as it is 'sufficient to fairly apprise interested parties of all significant subjects and issues involved.’ ” Id. (quoting NVE, Inc. v. Dep’t of Health & Human Servs., 436 F.3d 182, 191 (3d Cir.2006)). However, an agency also “must ‘describe the range of alternatives being considered with reasonable specificity. Otherwise, interested parties will not know what to comment on, and notice will not lead to better-informed agency decision-making.’ ” Horsehead Res. Dev. Co., Inc. v. Browner, 16 F.3d 1246, 1268 (D.C.Cir.1994) (internal citations omitted). On these facts, we cannot conclude that the Commission met this obligation, as we fail to see how the FNPR, with its two general questions related to the NBCO rule, and the irregular comment period that followed, satisfy the APA. The FNPR makes plain that the FCC was planning significant revision to the NBCO rule and looking for an alternative to the Diversity Index for measuring diversity. Paragraph 32 of the FNPR asks only whether cross-ownership limits should vary “depending upon the characteristics of local markets,” and, “if so, what characteristics should be considered ... ?” While the new rule varies limits depending on characteristics of markets — specifically, market size and the number of media voices — it was not clear from the FNPR which characteristics the Commission was considering or why. The phrase “characteristics of markets” was too open-ended to allow for meaningful comment on the Commission’s approach. In addition, many central elements of the rule are not based on “characteristics of markets” at all. For example, key aspects of the rule rely on: the amount of “local news” produced by an individual station involved in a potential merger and how that term is defined; the definition of “major media voices,” including what counts as a major newspaper; how “market concentration” is measured; whether a station is “failing”; whether a station exercises “independent news judgment” and how that term is defined; and whether a case-by-ease approach or a categorical approach to proposed mergers would better serve the public interest. The FNPR also did not solicit comment on the overall framework under consideration, how potential factors might operate together, or how the new approach might affect the FCC’s other ownership rules. These were significant omissions. Our dissenting colleague suggests that the FNPR subsumes the entire record surrounding the 2002 Biennial Review, in-eluding the 2002 Notice, the 2003 Order, and our decision in Prometheus I. As noted above, the FCC did not argue this. Rather, it contended that “the four corners of [the FNPR were] sufficient” under the APA. Tr. 88. But even if the FNPR implicitly incorporated those sources, it still did not provide sufficient notice of the Commission’s new approach to cross-ownership. During the 2006 Quadrennial Review, the FCC departed entirely from its approach in the 2003 Order and adopted a rule with significant elements that were not previously noticed in 2002 or analyzed in the 2003 Order or our remand. Although it was clear from those sources, taken together, that the Commission was planning to overhaul its approach to newspaper/broadcast cross-ownership, they did not contain enough information about what it was planning to do, or the options it was considering, to provide the public with a meaningful opportunity to comment. Until Chairman Martin’s November 2007 personal Op-Ed/Press Release, the public did not know even what options he was considering, let alone the Commission. In further support of our conclusion, we note that the FNPR is sparse in comparison to the Commission’s May 2010 Notice of Inquiry initiating its 2010 Quadrennial Review of the ownership rules. See 2010 Quadrennial Regulatory Review — Review of the Commission’s Broadcast Ownership Rules and Other Rules Adopted Pursuant to Section 202 of the Telecommunications Act of1996, Notice of Inquiry, 25 F.C.C.R. 6086, 2010 WL 2110771 (May 25, 2010) (the “2010 NOP’). The 2010 NOI is much more specific and covers many more issues. It contains many pages of questions regarding potential approaches to the NBCO rule, discusses data motivating the Commission’s questions, and inquires into various regulatory options. For example, it asks: With regard to the newspaper/broadcast cross-ownership rule, should the Commission treat newspaper-television combinations differently from newspaper-radio combinations, as we do in the 2006 presumptive standard? Are some goals or metrics more relevant for one or the other type of combinations? Are particular market participants more heavily affected by the rule? Which elements of market structure are most important for measuring the effects of this rule on our policy goals? Would relaxing the newspaper/broadcast cross-ownership rule result in economies of scale and scope that could help newspapers to survive? Alternatively, do the problems faced by newspapers result from extraneous factors that make relief in this area irrelevant? For example, statistics show that fewer people are reading newspapers and, instead, are increasingly getting news and information from nontraditional sources. Statistics also demonstrate an increase in the degree of penetration of new media, including online websites, and social media. Given the fragmentation of sources of news, would structural relief help newspapers sufficiently to result in a net gain in local news and information? Should any such relief operate via a revised rule or via a waiver standard? If the latter, what type of waiver standard should be applicable? Is the presumptive standard adopted in the 2006 Quadrennial Review Order able to further our competition, diversity, and localism goals as well as result in economies of scale and scope that could help newspapers survive? Is a rule that relies on presumptions preferable in order to achieve our goals? What factors should a relaxed rule or waiver standard take into account? Should any relaxation of the rule continue to account for the number of voices in a community? For instance, is there a basis in the current marketplace for finding that cross-ownerships only in the largest markets would be in the public interest? Should it take into account market share of the media entities that would be combined? If the number of voices is relevant, how should voices be defined for this purpose? 2010 NOI ¶ 87; see also id. at ¶¶ 90-100 (detailing “structural” inquiries regarding use of “bright line rules,” “case-by-case approach,” “hybrid approach,” and “broad cross-media approach”); id. at ¶¶ 101-06 (inquiring into effect of “digital contours” and “national broadband plan” on NBCO and other ownership rules). Moreover, a comparison of the comments submitted during the official comment period (July 24, 2006-January 16, 2007) and the responses to the Chairman’s Op-Ed/Press Release (November 13, 2007-December 11, 2007) indicates that interested parties were prejudiced by the inadequacy of the FNPR. During the official comment period, some commenters noted that their submission would be limited because the FNPR “makes no proposals and suggests no options.” Comments of UCC et al, MB Docket No. 06-121 at 60 (Oct. 23, 2006) (“10/23/06 UCC Comments”). Indeed, in an 87-page submission, there was only one paragraph on how a relaxed approach to cross-ownership “might work” if the FCC eliminated the existing ban, but over 11 pages discussing data on the benefits of retaining a ban and several more pages regarding closing “loopholes” in the ban. 10/23/06 UCC Comments at 61-74. These comments, like many others, were largely limited to discussing whether the ban should be retained or eliminated. See, e.g., Comments of Bonneville International Corp., MB Docket No. 06-121 at 15 (Oct. 23, 2006) (arguing that the ban should be eliminated); Comments of Belo Corp., MB Docket No. 06-121 at 9-10 (Oct. 23, 2006) (same); Comments of AFL-CIO, MB Docket No. 06-121 at 57 (Oct. 23, 2006) (urging retention of the ban); Comments of American Federation of Radio and Television Artists, MB Docket No. 06-121 at 20-22 (Oct. 23, 2006) (same). This occurred, we suspect, in large measure because a discussion of the actual issues involved — including the factors, presumptions, and exceptions the FCC was considering — was impossible based on the sparse FNPR. In contrast, responses to Chairman Martin’s Op-Ed/Press Release began to raise for the first time substantive issues with his new approach to cross-ownership. For example, the response submitted by Consumers Union, Consumer Federation of America and Free Press on December 11, 2007 (“12/11/07 Response”) began to discuss the following issues, among others, that had not been noticed in the FNPR: the eight-voices test and considerations regarding how it should be employed in a newspaper/broadcast cross-ownership rule; options for how market concentration should be measured if it is to be used as a factor in allowing mergers (which they argue is a new “metric” that had to be noticed under Prometheus I and was still too vague in the Op-Ed/Press Release for a meaningful response); the implications of the distinction between increased local news on a particular station (or merged entity) and increased local news production in the overall market (which they argue should be the appropriate level of analysis); and other perceived ambiguities in Chairman Martin’s proposal that they argued could change the effects of the rule considerably depending on how various terms are defined and how the factors and presumptions work together. 12/11/07 Response at 12-39. Regardless whether the FCC eventually rejected the views expressed in those responses (as it would have been free to do after considering them fully and with plausible reasoning after adequate notice), they merit consideration in a rulemaking of great public concern. The APA requires that the public have a meaningful opportunity to submit data and written analysis regarding a proposed rulemaking. 5 U.S.C. § 553(c). Yet, commenters did not have sufficient time to do so after the Op-Ed/Press Release. The Chairman gave only 28 days for response, not the usual 90 days. As Consumers Union, Consumer Federation of America, and Free Press stated, “[sjince the time frame allowed for a response to the Chairman’s off-the-cuff proposal was short, we rely primarily on the evidence already in the record.” 12/11/07 Response at 17. After the FCC began to formulate an approach to this important and complex rule, the public was entitled to “a new opportunity to comment” in which “commenters would [ ] have their first occasion to offer new and different criticisms which the Agency might find convincing.” BASF Wyandotte Corp. v. Costle, 598 F.2d 637, 642 (1st Cir.1979); see also Natural Res. Def. Council, 279 F.3d at 1186. ' In addition, the FCC had an obligation to remain “open-minded” about the issues raised and engage with the substantive responses submitted. Rural Cellular Ass’n, 588 F.3d at 1101 (“in order to satisfy [the APA], an agency must :.. remain sufficiently open-minded”); McLouth Steel Products, 838 F.2d at 1325. The timeline reveals, however, that the Commission could not have done so. Two weeks before the Chairman’s response period closed, and before most of the responses were received, a draft of the order was circulated internally. The final vote occurred within a' week of the response deadline. This is not the agency engagement the APA contemplates. In this context, we have little choice but to conclude that the FCC did not, through the FNPR, fulfill its “obligation to make its views known to the public in a concrete and focused form .so as to make criticism or formulation of alternatives possible.” Home Box Office, 567 F.2d at 36. The two sentences in paragraph 32 of the FNPR are simply too general and open-ended to have fairly apprised the public of the Commission’s new approach to cross-ownership. Criticism and the formulation of alternative options only began to be possible after the Chairman’s Op-Ed/Press Release, and there is no dispute those documents did not satisfy the APA’s requirements. For these reasons, we vacate and remand the NBCO rule for failure to comply with the APA’s notice and comment requirements.' We expect the Commission to comply with this remand in the context of its ongoing 2010 Quadrennial Review. C. Permanent Waivers of Cross-Ownership Rule In its 2008 Order, the FCC granted five permanent waivers of its NBCO rule — one to Gannett Company, Inc.’s newspaper/broadcast combination in Phoenix, Arizona, and four to Media General, Inc.’s combinations in Myrtle Beach-Florence, South Carolina; Columbus, Georgia; Panama City, Florida; and in the Tri-Cities DMA in Tennessee/Virginia. 2008 Order ¶ 77. Temporary waivers for these combinations were pending when the quadrennial review proceeding ended. The FCC justified its decision to grant these waivers on the ground that it took similar action in 1975, when it grandfathered certain combinations while imposing an outright ban. Id. It stated that “divestiture introduces the possibility of disruption for the industry and hardship for individual owners,” and asserted that “the public interest warrants a waiver [in these cases] in light of the synergies that have already been achieved from the newspaper/broadcast station combination[s].” Id. (quotations and footnotes omitted). Citizen Petitioners disagree, arguing that these waivers are unprecedented in number and scope. They also contend that the waivers are not analogous to those granted in 1975 because the combinations here were acquired in a post-regulatory world (that had been characterized by a complete ban before the mergers occurred). Although we have several concerns about these permanent waivers, we conclude that we do not have jurisdiction to reach the merits of Citizen Petitioners’ claims. Under 47 U.S.C. § 405(a), a party seeking judicial review of an FCC “order, decision, report, or action” must file a petition for reconsideration if it “(1) was not a party to the proceedings resulting in such order, decision, report, or action, or (2) relies on questions of fact or law upon which the Commission ... has been afforded no opportunity to pass.” It is undisputed that Citizen Petitioners did not file a petition for reconsideration of the FCC’s grant of the waivers before seeking judicial review. Because we conclude that the FCC has not been afforded an opportunity to pass on Citizen Petitioners’ objections to the permanent waivers, they have failed to meet the requirements of § 405(a)(2) and we lack jurisdiction to hear their challenge. Citizen Petitioners’ arguments that the objections were before the Commission, or in the alternative that administrative exhaustion would be futile, do not persuade us otherwise. First, the Citizen Petitioners contend that, because the waivers were placed in the draft order the night before the vote, the Commission had the opportunity to consider the dissenting Commissioners’ objections to granting the waivers, which are substantially similar to Citizen Petitioners’ objections. Citizen Petitioners Reply Br. 23. They cite Office of Communication of United Church of Christ v. FCC, 465 F.2d 519 (D.C.Cir.1972), in which judicial review was not precluded by § 405 because “the dissenting Commissioners ... raise[d] the very argument pressed ... by the [petitioners],” and thus the argument “was surely before the Commissioners at the time of their decision.” Id. at 523. We believe that case is distinguishable. Here, it is far from clear whether the full Commission considered the dissenters’ arguments given the brief time for discussion between the introduction of the waivers into the Order and the vote. In addition, the two dissenting Commissioners’ arguments against the waivers were short (one to two sentences each) and focused on the process by which these waivers were adopted rather than their substance. See Dissenting Statement of Commissioner Michael J. Copps, 23 F.C.C.R. at 2116; Dissenting Statement of Commissioner Jonathan S. Adelstein, 23 F.C.C.R. at 2124. Second, Citizen Petitioners argue that it would be futile for them to seek reconsideration because the FCC majority has refused to address the concerns of the dissenting Commissioners and Common Cause, which filed a petition for reconsideration challenging the permanent waivers in March 2008. See Petition for Reconsideration. We are skeptical that the facts here establish the futility of reconsideration such that this rare exception should apply. It is true that the waiver requests had been before the FCC for some time prior to the 2008 Order. Media General and Gannett acquired the combinations at issue prior to 2001. 2008 Order ¶ 77. They then requested temporary waivers during their license renewal proceedings. Free Press, a Citizen Petitioner, filed objections to the waiver requests. Those proceedings were still pending at the time the 2008 Order was issued. Subsequently, the FCC granted the license renewals and found that the issue of the temporary waivers had been rendered moot by the 2008 Order, which granted permanent waivers and thus effectively concluded the adjudicatory license-renewal proceedings. Free Press filed a timely petition for review of those license renewals in April 2008, which remains pending after more than three years. Citizen Petitioners argue that the FCC is playing an administrative “shell game,” and has denied Free Press’s right to be heard by failing to address in the 2008 Order its licensing renewal objections when the Commission granted the waivers, and now failing to pass on Free Press’s petition for review of the licenses. Citizen Petitioners Reply Br. 27. Even though the Commission failed to respond to the initial objections of Free Press, and has not acted on its petition for review of the license renewals, this is not the proceeding in which Free Press may seek relief from those decisions. Rather, it must challenge the FCC’s licensing decisions in the Court of Appeals for the D.C. Circuit, which has exclusive jurisdiction over licensing proceedings under 47 U.S.C. § 402(b). Third, that Common Cause (not a party to this action) filed a petition for reconsideration on which the FCC has yet to pass does not resolve matters. Citizen Petitioners claim that the lapse of time between that filing and this litigation (three years) demonstrates that the FCC has had the opportunity to rule on these arguments, and that further delaying judicial review is futile. Citizen Petitioners Reply Br. 23. Though a close question, we disagree. While at some time the FCC’s delay in deciding Common Cause’s petition would establish the futility of requiring administrative exhaustion, we do not think that time is now, as the FCC has informed us that it intends to consider Common Cause’s petition “harmoniously with the [2010] Quadrennial Review.” Memorandum from Austin C. Schlick, FCC General Counsel, to Marcia M. Waldron, Clerk, U.S. Court of Appeals for the Third Circuit 1 (Nov. 25, 2009). In this context, we conclude that we do not have jurisdiction to hear the Citizen Petitioner’s challenge of these permanent waivers. IV. Radio/Television Cross-Ownership Rule In the 2008 Order, the FCC retained its radio/television cross-ownership rule initially adopted in 1999. In 2003, however, it determined that the rule was no longer necessary because the combination of the local ownership rules and the cross-media limits would provide sufficient protection of viewpoint diversity. FCC Br. 70. However, we invalidated