Foreign Relations of the United States, 1981–1988, Volume XLI, Global Issues II

290. Telegram From the Department of State to All Diplomatic Posts¹

Washington, August 25, 1984, 0554Z

252992. Subject: International Conference on Population, Mexico City, August 6–14. Ref: State 241996.²

1. Summary: Representatives from 148 countries met August 6–14 at the International Conference on Population (ICP) to review progress since the 1974 World Population Conference in Bucharest and to chart a path for future action. After lengthy negotiation, delegates approved two documents: The Mexico City Declaration on Population and Development (text follows) and Recommendations for the Further Implementation of the World Population Plan of Action.³ Despite the inclusion of extraneous political references, conference demonstrated considerable agreement on substantive population issues. Conference reaffirmed support for the World Population Plan of Action (WPPA),⁴ which recognizes the problem rapid population growth poses for many developing countries and its interrelationship with economic and social development. End summary.

2. Delegates from 148 countries, approximately 150 non-governmental organizations, and over 700 reporters⁵ from the international press attended the ICP. Mexico’s President De la Madrid, Jordan’s Queen Noor, Kenya’s Vice President Kibaki, UN Secretary-General Perez de Cuellar, and World Bank President Clausen were among the many dignitaries who addressed the conference.

3. National and international organization representatives presented statements throughout the plenary session, where all procedural matters were decided. The laborious review of the 85 “recommendations for further implementation of the WPPA” (drafted at UN preparatory committee meetings in January and March)⁶ took place in a separate main committee meeting, chaired by Fred Sai of Ghana, which met in 14 sessions.

4. Initial main committee sessions focused on lengthy procedural debates and minor changes in introductory text. By mid-week, only 12 introductory paragraphs had been reviewed, leaving 11 introductory paragraphs, the preamble, and 85 recommendations still to be examined. Pressures of short time frame and growing familiarity with the negotiating process helped subsequent meetings to move more quickly through the text, nevertheless, discussions of procedural questions and non-germane political issues continued to interrupt the sessions.

5. Main committee focused much time and energy on two extraneous issues, disarmament and illegal settlements in occupied territories, which appeared as recommendations in the text prepared at the PrepComs. The disarmament recommendation, supported by the Eastern bloc, was strongly opposed by the Western countries and Japan as inappropriate for discussion at a population conference. An informal working group of interested parties was established to reach a compromise. The issue was settled by moving less strident language on the links between peace and development to a new section entitled “Peace, Security and Population” which appears between the preamble and the recommendations.

6. The settlements recommendation, which interpreted Article 49 of the Geneva Convention as “condemning” the “illegal” establishment of settlements in territories occupied by force, proved more difficult to resolve. The recommendation’s Arab supporters insisted upon retaining the offending language, even after the Secretariat and Conference President worked with interested parties on a compromise redraft. The U.S. and Israel, who objected strongly to the introduction of this divisive political issue and to the recommendation’s interpretation of Article 49, insisted that the offending language be dropped from the text. With no compromise possible, the U.S. called for a vote on the competency of the conference to make such an interpretation. While considerable doubt on this issue was expressed (over half of the delegations abstained on this vote), only two countries voted “no” with the U.S. and the effort was defeated. The original language was approved by the main committee, with strong objections by the U.S. and Israel, and sent to the plenary with the other recommendations. The final plenary session again took up the issue with similar results—only the U.S. and Israel opposed the recommendation. The U.S., although joining the consensus on the recommendations document, expressed formal reservation on this paragraph and insisted that its reservation be recorded in the document. FYI: The U.S. also formally clarified its interpretation of a recommendation concerning action on improving earnings from commodity exports and on increasing bilateral and multilateral lending, to underline that U.S. endorsement of the recommendations document did not change known U.S. positions on commodity agreements or future lending resources for international financial institutions. End FYI.

7. On population issues there was little disagreement. Delegates recognized that progress has been made in the past 10 years in pursuing the objectives of the WPPA to improve the quality of life of the world’s inhabitants, but concluded that much remains to be done. Countries recognized that socio-economic development is essential to achieving national population objectives and that population and development programs are mutually reinforcing. Strong support for the basic rights of couples and individuals to decide freely, responsibly, and without coercion the number and spacing of their children was voiced. To this end, countries agreed that family planning information, education and means should, as a matter of urgency, be made universally available (with the exception of abortion, which countries stated in no case should be promoted as a method of family planning). The conference paid particular attention to the role and status of women; governments were urged to integrate women fully into all phases of the development process. Additional resources were called for in research on human reproduction and fertility regulation, in order to improve the safety and efficacy of existing family planning methods. Governments and multilateral organizations were urged to increase the level of assistance or, in the case of developing countries, allocate increased resources for population activities. Non-governmental organizations were urged to continue their pioneering role in the population field.

8. The new U.S. population policy and its perceived implications attracted considerable attention at the ICP. The U.S. Delegation, headed by Ambassador James Buckley, clarified the new policy, stating that it does not reflect radical change; rather, it signifies a sharpening of the focus of our foreign assistance program in this area. That policy does, however, combine U.S. population and economic development policies in a comprehensive whole, and stresses the critical role economic reform plays in achieving the stated goals of the WPPA.

9. Much of the concern focused on the new U.S. abortion policy. The delegation stated that it is U.S. policy to withhold funding from private organizations that perform or actively promote abortion abroad. Funds are not withheld from a nation which includes abortion in family planning programs, provided American contributions are placed in segregated accounts. This policy will not affect the UN Fund for Population Activities with respect to the FY 1984 contribution since the U.S. has officially accepted the fund’s affirmation that its policies support neither abortion nor coercive programs.

10. As evidence of its support for international family planning programs, the delegation pointed out that the U.S. will provide $240 million for such programs in FY 1984 (or 44 percent of the total amount contributed by developed countries for such programs). In addition, the administration has requested from Congress an increase in international family planning funding for FY 1985.

11. Wide agreement on population issues at the conference is illustrated by the “Mexico City Declaration on Population and Development” which delegates approved by consensus, without reservation.

Begin text:⁷

1. The International Conference on Population met in Mexico City from 6 to 14 August 1984 to appraise the implementation of the World Population Plan of Action, adopted by consensus at Bucharest, ten years ago. The conference reaffirmed the full validity of the principles and objectives of the World Population Plan of Action and adopted a set of recommendations for the further implementation of the plan in the years ahead.

2. The world has undergone far-reaching changes in the past decade. Significant progress in many fields important for human welfare has been made through national and international efforts. However, for a large number of countries it has been a period of instability, increased unemployment, mounting external indebtedness, stagnation and even decline in economic growth. The number of people living in absolute poverty has increased.

3. Economic difficulties and problems of resource mobilization have been particularly serious in the developing countries. Growing international disparities have further exacerbated already serious problems in social and economic terms. Firm and widespread hope was expressed that increasing international co-operation will lead to a growth in welfare and wealth, their just and equitable distribution and minimal waste in use of resources, thereby promoting development and peace for the benefit of the world’s population.

4. Population growth, high mortality and morbidity and migration problems continue to be causes of great concern requiring immediate action.

5. The conference confirms that the principal aim of social, economic and human development, of which population goals and policies are integral parts, is to improve the standards of living and quality of life of the people. This declaration constitutes a solemn undertaking by the nations and international organizations gathered in Mexico City to respect national sovereignty to combat all forms of racial discrimination including apartheid, and to promote social and economic development, human rights and individual freedom.

6. Since Bucharest the global population growth rate has declined from 2.03 to 1.67 percent per year. In the next decade the growth rate will decline more slowly. Moreover, the annual increase in numbers is expected to continue and may reach 90 million by the year 2000. Ninety percent of that increase will occur in developing countries and at that time 6.1 billion people are expected to inhabit the earth.

7. Demographic differences between developed and developing countries remain striking. The average life expectancy at birth, which has increased almost everywhere, is 73 years in developed countries, while in developing countries it is only 57 years and families in developing countries tend to be much larger than elsewhere. This gives cause for concern since social and population pressures may contribute to the continuation of the wide disparity in welfare and the quality of life between developing and developed countries.

8. In the past decade, population issues have been increasingly recognized as a fundamental element in development planning. To be realistic, development policies, plans and programmes must reflect the inextricable links between population, resources, environment and development. Priority should be given to action programmes integrating all essential population and development factors, taking fully into account the need for rational utilization of natural resources and protection of the physical environment and preventing its further deterioration.

9. The experience with population policies in recent years is encouraging. Mortality and morbidity rates have been lowered, although not to the desired extent. Family planning programmes have been successful in reducing fertility at relatively low cost. Countries which consider that their population growth rate hinders their national development plans should adopt appropriate population policies and programmes. Timely action could avoid the accentuation of problems such as overpopulation, unemployment, food shortages, and environmental degradation.

10. Population and development policies reinforce each other when they are responsive to individual, family and community needs. Experience from the past decades demonstrates the necessity of the full participation by the entire community and grass-roots organizations in the design and implementation of policies and programmes. This will ensure that programmes are relevant to local needs and in keeping with personal and social values. It will also promote social awareness of demographic problems.

11. Improving the status of women and enhancing their role is an important goal in itself and will also influence family life and size in a positive way. Community support is essential to bring about the full integration and participation of women into all phases and functions of the development process. Institutional, economic and cultural barriers must be removed and broad and swift action taken to assist women in attaining full equality with men in the social, political and economic life of their communities. To achive these goals, it is necessary for men and women to share jointly responsibilities in areas such as family life, child-caring and family planning. Governments should formulate and implement concrete policies which would enhance the status and role of women.

12. Unwanted high fertility adversely affects the health and welfare of individuals and families, especially among the poor, and seriously impedes social and economic progress in many countries. Women and children are the main victims of unregulated fertility. Too many, too close, too early and too late pregnancies are a major cause of maternal, infant and childhood mortality and morbidity.

13. Although considerable progress has been made since Bucharest, millions of people still lack access to safe and effective family planning methods. By the year 2000 some 1.6 billion women will be of childbearing age, 1.3 billion of them in developing countries. Major efforts must be made now to ensure that all couples and individuals can exercise their basic human right to decide freely, responsibly and without coercion, the number and spacing of their children and to have the information, education and means to do so. In exercising this right, the best interests of their living and future children as well as the responsibility towards the community should be taken into account.

14. Although modern contraceptive technology has brought considerable progress into family planning programmes, increased funding is required in order to develop new methods and to improve the safety, efficacy and acceptability of existing methods. Expanded research should also be undertaken in human reproduction to solve problems of infertility and subfecundity.

15. As part of the overall goal to improve the health standards for all people, special attention should be given to maternal and child health services within a primary health care system. Through breast-feeding, adequate nutrition, clean water, immunization programmes, oral rehydration therapy and birth spacing, a virtual revolution in child survival could be achieved. The impact would be dramatic in humanitarian and fertility terms.

16. The coming decades will see rapid changes in population structures with marked regional variations. The absolute numbers of children and youth in developing countries will continue to rise so rapidly that special programmes will be necessary to respond to their needs and aspirations, including productive employment. Aging of populations is a phenomenon which many countries will experience. This issue requires attention particularly in developed countries in view of its social implications and the active contribution the aged can make to the social, cultural and economic life in their countries.

17. Rapid urbanization will continue to be a salient feature. By the end of the century, 3 billion people, 48 percent of the world’s population, might live in cities, frequently very large cities. Integrated urban and rural development strategies should therefore be an essential part of population policies. They should be based on a full evaluation of the costs and benefits to individuals, groups and regions involved, should respect basic human rights and use incentives rather than restrictive measures.

18. The volume and nature of international migratory movements continue to undergo rapid changes. Illegal or undocumented migration and refugee movements have gained particular importance; labour migration of considerable magnitude occurs in all regions. The outflow of skills remains a serious human resource problem in many developing countries. It is indispensable to safeguard the individual and social rights of the persons involved and to protect them from exploitation and treatment not in conformity with basic human rights; it is also necessary to guide these different migration streams. To achieve this, the co-operation of countries of origin and destination and the assistance of international organizations are required.

19. As the years since 1974 have shown, the political commitment of heads of state and other leaders and the willingness of governments to take the lead in formulating population programmes and allocating the necessary resources are crucial for the further implementation of the world population plan of action. Governments should attach high priority to the attainment of self-reliance in the management of such programmes, strengthen their administrative and managerial capabilities, and ensure co-ordination of international assistance at the national level.

20. The years since Bucharest have also shown that international co-operation in the field of population is essential for the implementation of recommendations agreed upon by the international community and can be notably successful. The need for increased resources for population activities is emphasized. Adequate and substantial international support and assistance will greatly facilitate the efforts of governments. It should be provided wholeheartedly and in a spirit of universal solidarity and enlightened self-interest. The United Nations family should continue to perform its vital responsibilities.

21. Non-governmental organizations have a continuing important role in the implementation of the world population plan of action and deserve encouragement and support from governments and international organizations. Members of parliament, community leaders, scientists, the media and others in influential positions are called upon to assist in all aspects of population and development work.

22. At Bucharest, the world was made aware of the gravity and magnitude of the population problems and their close interrelationship with economic and social development. The message of Mexico City is to forge ahead with effective implementation of the world population plan of action aimed at improving standards of living and quality of life for all peoples of this planet in promotion of their common destiny in peace and security.

23. In issuing this declaration, all participants at the international conference on population reiterate their commitment and rededicate themselves to the further implementation of the plan. End text.

Dam

1. Source: Department of State, Organization and Conference Files—Meetings/Governing Council 1984 Meetings/Governing Council, 1983–1984, Lot 87D37, Conference Results (Recommendations) ICP, Mexico City, August 1984. Unclassified. Drafted by Oveson; cleared in OES/CP, C, EAP, E, IO/ECO, AF/RA, NEA/RA, ARA/ECP, EUR/P, AID/PPC, EAP/RA, and AID/S&T/POP; and approved by Malone.
2. In telegram 241996 to all diplomatic and consular posts, August 16, the Department provided press guidance regarding the conference. (Department of State, Central Foreign Policy File, D840521–1081)
3. See “Recommendations for Implementation of World Population Plan of Action,” United Nations, 1984.
4. See footnote 4, Document 284.
5. An unknown hand underlined the phrase “and over 700 reporters.”
6. In telegram 600 from New York, March 23, USUN reported on the March session of the Preparatory Committee and discussed the recommendations for the further implementation of the World Population Plan of Action. (Department of State, Central Foreign Policy File, D840195–0141)
7. An unknown hand drew an arrow to the left of this phrase.