Foreign Relations of the United States, 1977–1980, Volume XXX, Public Diplomacy

70. Memorandum From Gregory Treverton of the National Security Council Staff to the President’s Assistant for National Security Affairs (Brzezinski)¹

Washington, June 18, 1977

SUBJECT

• Reorganization of USIA and State Cultural Affairs

After Paul Henze left, Lance sent his comments on the original Vance proposal and David added a long dissent. The Vance memo is at Tab A,² the Lance (and Jagoda) comments at Tab B,³ and David’s comments are at Tab II, along with Paul’s original memorandum.⁴ Here is the situation:

—Everyone agrees that consolidating USIA and State CU makes sense, except David. His comments are of a somewhat different order. He argues that USIA is bloated and uncreative, and so fears that if Duffey and CU were merged with USIA they would simply disappear in the mush. David also argues that USIA’s information programs are largely obsolete, and he would have any reorganization require that those programs be rigorously justified against a zero-based budgeting criterion.

—There is also general agreement that VOA should remain within an amalgamated “public diplomacy” agency, thus preserving a relationship akin to its current one in USIA, although Lance suggests further study of that issue.⁵

—There is disagreement on where to put the consolidated agency. Vance argues for an AID relationship to State; Henze and Jagoda ⁶ (and Reinhardt) for continued independence, thus facilitating close links to the White House; and Lance again argues for further study.

The Vance memorandum asks for the President’s approval of the general approach he outlines. Christopher would then present it in testifying to the Fascell Subcommittee of the HIRC on Tuesday, June 21.⁷

I have rewritten Paul’s suggested memorandum from you to the President (Tab I)⁸ to incorporate the Lance and Jagoda comments. It registers your agreement with consolidation but indicates your preference for sustaining the consolidated agency’s independence of State. It offers the President the choice of deciding that issue now or, as Lance suggests, deferring it for further study. It recommends the latter. If the President chooses that option, Christopher would be authorized to outline only the Administration’s general inclination to consolidate, and would solicit views on other issues.

RECOMMENDATION

That you forward the memorandum at Tab I to the President.

1. Source: Carter Library, National Security Affairs, Brzezinski Material, Agency File, Box 17, State: 6/77. Confidential. Sent for action. There is no indication that Brzezinski saw the memorandum.
2. Not attached but printed as Document 64.
3. Neither are attached. For information about Jagoda’s memorandum, see footnote 4, Document 69. Lance’s undated memorandum to the President, which McIntyre and Wellford also signed, is in the Carter Library, National Security Affairs, Brzezinski Material, Agency File, Box 17, State: 6/77.
4. Not attached. Aaron’s memorandum is printed as Document 66. Henze attached a copy of the “original memorandum” to his June 15 memorandum to Brzezinski, printed as Document 65.
5. In his undated memorandum (see footnote 3, above), Lance stated: “We believe that further study is needed of such specifics as the relationship of the consolidated agency to the Department and how to assure the independence of the news gathering and reporting activities of the Voice of America (specifically, whether VOA needs to be reconstituted as an independent agency in order to achieve this end). We, therefore, propose that the various alternatives to these and other specifics be further explored before any Administration positions on them are presented.” (Carter Library, National Security Affairs, Brzezinski Material, Agency File, Box 17, State: 6/77)
6. In his June 16 memorandum (see footnote 4, Document 69), Jagoda wrote: “I urge that the USIA structure be left independent (subject to informal State Department policy guidance) rather than be subordinated to State under the AID model as recommended by Secretary Vance. USIA will continue to report to the President through Dr. Brzezinski and would have a close working relationship with Powell, Schecter, and Jagoda—as is now the case. Putting this group under State might make it difficult to get fast-turnaround action. That is an obvious problem with other elements of the bureaucracy already. USIA needs to be mandated to work closely with the State Department on Cultural Exchange. As for the present personnel, I am confident that USIA Director John Reinhardt is the right man to take on these added responsibilities.” (Carter Library, National Security Affairs, Brzezinski Material, Agency File, Box 17, State: 6/77)
7. An unknown hand underlined “HIRC on Tuesday, June 21.”
8. Not attached. Brzezinski’s memorandum to the President is printed as Document 71.