Starr is Asked to Delay Report

And I believe that most newspaper readers are aware, at least unconciously, of this convention and, as the lovely AnnaS noted, the non-use of the past tense, which means that what appears to be past tense is normally the passive. Unfortunately, following these conventions leads to the misinterpretation of the headline, since the article stated that Starr was doing the asking. The headline should have read:

Starr Asks to Delay Report