INTRODUCTION

On February 29, 1980, President Carter sent to the Congress a Message on Science, Technology, and American Diplomacy (PM_174) and a report of the same title prepared by the Department of State, pursuant to Section 503 (b) of Title V of the Foreign Relations Authorization Act of 1979, Public Law 95-426. The House Committee on Foreign Affairs, which initiated legislation that became Title V and a principal recipient of the reports, asked the Congressional Research Service to assist in analyzing these reports as part of the committee's oversight activity on Title V. Based on that analysis and its own review of these documents, the staff developed the following staff analysis.

This analysis begins with a summary of the legislative history of Title V, continues with a summary of the President's message and the Department of State report, and then focuses on the latter.

This analysis reveals a useful first response by the President and the Department of State to Section 503 (b) of the Title V as well as a need for improvement in analysis of the foreign policy implications of scientific and technological issues. Improvement of the latter will require continued cooperation and dialogue between the executive and legislative branches insure that the important mandates in the Act will be fulfilled.

CHAPTER I—LEGISLATIVE HISTORY

A. Introduction

Title V of Public Law 95-426 has a special meaning to the Department of State and to the Congress. The statute resulted from an extensive series of congressional studies, seminars, and hearings. In adopting the Title, the Congress implied that its oversight of it would extend beyond examining reports and policies formulated in response to the legislation, to include a review of processes and procedures developed to comply with the Title's provisions such as personnel staffing, training, and funding-all with particular congressional interest in the foreign policy implications of and benefits for the United States.

B. History of the Statute

In December 1969, the House Committee on Foreign Affairs requested CRS to examine congressional and executive branch decisionmaking in 15 major issues-areas of science, technology, and diplomacy.1 The product of the CRS study was a three-volume, 2,100-page report, entitled "Science, Technology, and American Diplomacy."2 The study found that the impact of modern science and technological change on foreign policy had been neglected in modern diplomacy. Specifically, it concluded that long-range planning, technical expertise, interagency coordination of international technological programs, enhanced contacts with private sector institutions skilled in the uses of science and technology, and new processes of technology assessment, were all necessary ingredients of American foreign relations planning and management.

Besides requesting these studies, the committee also sponsored seven seminars on the subject. Participants included congressional staff, executive branch officials, and representatives from private and nongovernmental organizations.3

1 Subjects analyzed include: the role of technology as a factor of change in international relations, the politics of global health, exploiting the resources of the seabed, the interrelation of food and population, the Mekong project, the Baruch Plan to bring atomic energy and weapons under international control, commercial nuclear power in Europe, United States-Soviet commercial relations, the political legacy of the International Geophysical Year, examination of programs which send scientists and technical personnel abroad, the brain drain, organization of the Department of State to deal with science, technology, and diplomacy, a review and assessment of the implications of the findings of the series, introductory and bibliographic materials.

Each chapter of the three volume study was published separately shortly after it was written. All studies were collated and republished with new analytical material as: U.S. Congress. House. Committee on International Relations. Science, Technology, and American Diplomacy: An Extended Study of the Interactions of Science and Technology with United States Foreign Policy. Three volumes. Washington, U.S. Govt. Print. Off., 1977, 2107 pp.

* In January 1975, the Hon. Charles W. Robinson, Under Secretary of State for Economic Affairs, requested Dr. T. Keith Glennan to undertake a study of the "interaction of science, technology, and foreign affairs." Dr. Glennan's report, entitled "Technology and Foreign Affairs," was published in December 1976. The Report made frequent mention of the congressional study of "Science, Technology and American Diplomacy," and indeed arrived at almost the same conclusions.

In addition, the House Foreign Affairs Subcommittee on International Operations held hearings April 19, 1978 on the subject of Science, Technology, and American Diplomacy, during which time its members discussed and supported legislative provisions which became Title V of the 1978 Foreign Relations Authorization Act.*

Title V had several purposes. First, it enunciated as a national policy goal the importance of applying science and technology to foreign policy. Second, it charged the President with improving coordination of all U.S. Government international scientific and technological activities. And, third, it directed the Secretary of State to assist the President by serving as his agent in coordinating and overseeing international scientific and technological activities of the Government. More particularly, the Secretary of State was authorized to "have primary responsibility for coordination and oversight with respect to all major science or science and technology agreements and activities. . .," to make grants or contracts for analyses dealing with the application of science and technology, to utilize consultants to obtain the information required to fulfill his or her responsibility, and to train Foreign Service Officers and other civil servants in applying science and technology to development, and in undertaking long-range planning and analysis of these issues.

Section 504 of Title V required the Secretary to assess progress in implementing these activities and to report on its assessment to the Congress by January 20, 1979.*

The Secretary transmitted a preliminary version of this report to Congress in January 1979. Subsequently, at the request of the House Foreign Affairs Committee, the Congressional Research Service held a seminar to evaluate the document. Later, on September 6, 1979, the Secretary of State transmitted to the Congress a supplemental report incorporating main points raised during the seminar.

Title V did not require additional reports under section 504(e). However, section 503 (b) of Title V does require the President to provide the Congress, not later than January 31, 1980, and annually thereafter a report with recommendations on:

(1) Personnel requirements, standards, and training for any Federal personnel whose assignments involve "foreign relations and science or technology,"

U.S. Congress. House. Committee on International Relations. Subcommittee on International Operations. Science, Technology, and American Diplomacy. Hearings. April 19. 1978. 95th Congress, second session. Washington, U.S. Govt. Print. Off., 1978, 128 p.

There was considerable controversy when the legislation was being discussed about how much responsibility the Secretary of State would be given to compel other departments, especially military and intelligence agencies, to provide State with information to fulfill its responsibilities. An interpretation of these isses is given in: Fascell, Dante B. Science, Technology and American Diplomacy. Remarks in the House. Congressional Record, [Daily edition], v. 124, June 14, 1978: H5587-H5588.

(U.S. Department of State.) Report to Congress on Science, Technology, and United States Foreign Policy. Submitted pursuant to Section 504 (e) of Public Law 95-426 (January 1979), 40 p. plus appendices.

The report contained: (1) an assessment of the personnel required to carry out such responsibilities; (2) existing and planned programs for research and analysis to support long-range planning for the application of science and technology to foreign policy; (3) existing and planned programs for training officers of the U.S. Government pursuant to this section; and (4) existing and planned programs to enter into long-term contracts with academic and other organizations for assistance in training and in obtaining studies, analyses, and recommendations dealing with the application of science or technology to foreign policy.

7 Op. cit.

8 [U.S. Department of State.] Supplemental Report to Congress on Science and Technology and United States Foreign Policy, Sept. 6, 1979, 34 p.

(2) The continuation of existing bilateral and multilateral activities and agreements dealing with science and technology, particularly including:

A. an analysis of the foreign policy implications and the scientific and technological benefits of such activities or agreements for the United States and other parties,

B. the adequacy of the funding for and administration of such activities and agreements, and

C. plans for future evaluation of such activities and agreements on a routine basis.

The first report required under section 503 (b) of Title V was transmitted to Congress in February 1980. In the next section, the highlights of that report are summarized.