84. Memorandum for the President1
From June 8 to June 24, 1977 the Subcommittee on International Operations of the House International Relations Committee heard testimony from 45 witnesses on issues related to reorganization of public diplomacy programs.2 A list of witnesses is attached.3 In addition, the Subcommittee received more than a score of additional unsolicited statements for inclusion in the hearing record.
Based on the hearing record, the Subcommittee has reached the following general conclusions.
1. The key to effective use of our public diplomacy resources is an awareness of the utility of these resources and a willingness to use them to further policy objectives. Reorganization is important, but only of marginal concern in dealing with this basic problem.
2. The head of the USIA (or successor agency) should be included in NSC and Cabinet meetings. Participation by the USIA Director will (a) substantially increase opportunities for maximum effective use of public diplomacy resources, and (b) allow the Agency to perform its responsibilities for explaining policy for the entire government.
3. USIA should not be merged into the Department of State. USIA must work closely with the Department of State. It is important that USIA or a successor bureau or agency have sufficient budgetary, personnel and administrative autonomy to ensure a corps of officers qualified and inspired to carry out the full range of public diplomacy in our national interests. The Director of USIA or his successor should be included in all major policy decisions within the Department of State. Similarly, lower level officials concerned with public diplomacy [Page 238] should be involved in all major policy formulation sessions at all appropriate lower and intermediate levels.4
4. The programs administered by the Bureau of Educational and Cultural Affairs should be merged into the USIA.
5. The VOA should remain in the USIA.
6. The present authority and organization of the Board for Foreign Scholarships should be maintained.
7. The integrity of both our educational and cultural programs and of the programming of the Voice of America is of paramount concern.
Inevitably conflicts will arise over both programs in an attempt to resolve both (a) competitive short-term and long-term objectives, and (b) the distinctions between government policy and divergent opinions in the country as a whole.5
No structural reorganization including the establishment of separate agencies for exchange activities or broadcasting will provide immunity from political pressures. Changes can be made, however, which will minimize the abuse of exchange programs or broadcasting activities.
8. The United States Advisory Commission on Information and the United States Advisory Commission on International Educational and Cultural Affairs can be restructured to more effectively safeguard the integrity of both exchange programs and of Voice of America programming. The following measures can ensure and safeguard the integrity and credibility vital to the success of our long-term public diplomacy programs: (a) higher caliber membership, (b) mandatory periodic reports, (c) independent staff to investigate alleged improper actions,6 (d) requirements for officials to notify the advisory group of pressures which would contravene the mandate of the programs, and (e) obligation of the Director to respond to the Administration and the Congress on advisory commission reports and staff investigation findings.
9. The USIA needs a fundamental internal reorganization. There are far too many officials at the assistant director level.7 It is important, however, that if either or both the Bureau of Educational and Cultural Affairs or the Voice of America are within a reorganized USIA that [Page 239] the Directors of these programs be at the highest level beneath the Agency Director and that their independent access to Congress be assured.8 This would further ensure the integrity and credibility of these two programs.
10. Regardless of the future relationship of USIA and CU to the Department of State, clear responsibility should be assigned to a high official of the Department of State for (a) all issues relating to the freedom of communication, (b) technical matters which may impinge on freedom of communication, and (c) coordination of public diplomacy activities of Defense, Treasury, Commerce, HEW and other agencies.9
11. The mandate governing USIA operations which was issued by President Kennedy10 should be reviewed and updated.
12. While it is important to resolve the long debate about possible merger of USIA and CU, it should be recognized that a further reorganization may be advisable once the President and Congress have more completely reviewed the entire structure of the Federal Government and especially its foreign policy agencies.11
- Source: National Archives, RG 306, USIA Historical Collection, Subject Files, 1953–2000, Entry A–1 1066, Box 43, USICA, Reorganization, 1974–1978. No classification marking. Fascell sent the letter to the President under an August 3 letter, indicating that the House Subcommittee on International Operations had completed its hearings on USIA reorganization. In addition to Fascell, Buchanan, Ryan, Burke, Diggs, Meyner, and Wolff signed the letter. (Ibid.) Both letters are scheduled for publication in Foreign Relations, 1977–1980, vol. XXVII, Organization and Management of Foreign Policy. The copy of the memorandum printed here is part of a larger collection of documents collated by Dwight Mason (M/MO) and attached to a November 11 memorandum entitled “Background Material on the Reorganization of CU and USIA.” (National Archives, RG 306, USIA Historical Collection, Subject Files, 1953–2000, Entry A–1 1066, Box 43, USICA, Reorganization, 1974–1978)↩
- See footnote 1, Document 72.↩
- Not found attached.↩
- An unknown hand placed two parallel lines in the left-hand margin next to the last two sentences in this paragraph.↩
- An unknown hand placed two parallel lines and an arrow in the left-hand margin next to this paragraph.↩
- An unknown hand underlined this point.↩
- An unknown hand placed two parallel lines in the left-hand margin next to this sentence.↩
- An unknown hand underlined the portion of this sentence beginning with the word “independent.”↩
- An unknown hand placed two parallel lines in the left-hand margin next to this paragraph.↩
- Reference is presumably to a January 25, 1963, memorandum from Kennedy to Murrow, printed in Foreign Relations, 1961–1963, vol. XXV, Organization of Foreign Policy; Information Policy; United Nations; Scientific Matters, Document 144. In it, the President stated: “The influencing of attitudes is to be carried out by overt use of the various techniques of communication—personal contact, radio broadcasting, libraries, book publication and distribution, press, motion pictures, television, exhibits, English-language instruction, and others.”↩
- In a September 14 letter to Fascell, the President thanked him and his colleagues for their letter and memorandum, terming them “very useful” in assisting him in his decisions on reorganization. The President added, “I share your conviction that our information and cultural exchange efforts are one of the most important aspects of our foreign policy effort. I want to ensure that we have imaginative programs in this area which are energetically managed and led. For the money we spend, these are among the least costly operations of the government; nevertheless, the effect can continue for years after the money has been spent. When I ask for additional money for these fields, I want the Congress to be able to feel confident that we are making the best use of it we can. The reorganization we are now undertaking will put us in a better position to do that.” (Carter Library, White House Central Files, Subject File, Foreign Affairs, Information-Exchange Activities, Executive, Box FO–35, FO–5 1/20/77–9/30/77)↩