To Influence Political Leaders and Public Opinion by S&T leadership and resources give the U.S. the opportunity to increase its influence through cooperative programs that demonstrate U.S. understanding of other countries' basic problems and goals and the U.S. desire to contribute to their solution. These are often goals that in themselves are worthy priority objectives of U.S. foreign policy--the cases of the common defense and of economic development and political stability have been discussed above--and our association with them may encourage recognition of the fundamental common interests we share. There is no certainty that recognition of such common interests will carry over into understanding and cooperation in other fields, but S&T cooperation can increase that possibility and can have a beneficial impact on how others view the U.S. as a constructive force in the world. Development in its various facets--economic, social, cultural--is assigned the highest priority among those aspirations in many countries, and science and technology are seen as key elements in the drive to achieve it. Some countries, dissatisfied with the failures and limited successes of past development efforts, are seeking what is sometimes called a "new development style"--new approaches to development that make the best use of modern technologies as well as proven economic systems. The U.S., with its economic success and its S&T prestige, is frequently identified as an important partner as countries seek the goals of development. Chinese leaders look to the U.S. for the technologies they need. In Thailand, public awareness of the importance of S&T has increased, as has the understanding of the U.S. as a partner in that effort. U.S. AID assistance in Kenya that focuses primarily on developing the National Agricultural Research System has the potential for making a significant impact on Kenyan public opinion and Kenya's perception of the U.S. Kenyans are increasingly looking to the U.S. as the prime source of technology, new ideas, and academic training. The breadth and depth of U.S. S&T cooperation with India is well-publicized in that country and has had an important positive impact on our diplomatic relations and specifically on the large Indian S&T community's view of the U.S. The Indian government places high priority on S&T in development. Prime Minister Gandhi himself holds the cabinet portfolio for Science and Technology, and he spent nearly half of his time on S&T-related issues and events during his 1985 visit to the U.S., which received extensive positive press coverage. In Family planning is increasingly recognized as a critical element of the development process in many Third World countries. As discussed in Chapter 8, the U.S. devotes substantial resources to population assistance programs. Kenya, as an example, the population growth rate is four percent, and family planning has become a priority domestic policy objective. U.S. Government assistance in that program has been highly publicized and well received. In the industrialized countries, while S&T development for economic growth is an important goal, unemployment and environmental problems in some cases also have high priority, again with a common perception that S&T in these areas can be important in raising the quality of life. These are frequently highly political topics, and U.S. association, through private channels, official programs, and the adoption of standards based on U.S. practice, for instance, can demonstrate the relevance of the U.S. to the solution of important problems. Research and exploration in space is of great interest especially in countries that have cooperative space programs with the U.S. American space flights for example, are reported prominently and exhaustively in the German press, and direct involvement through German astronauts, the German Spacelab and German participation in the European part of the space station has given a very favorable image to the U.S. and to activities that have made Germany our leading space research partner. The U.S. gains wide and favorable publicity also in the developing world for its cooperative space programs. This is especially noticeable in countries like Mexico, India, Brazil and Indonesia with the prospect of sending shuttle crew members on future flights, but it reflects also communications, remote sensing, and other programs that benefit countries in development. In some areas that are important to our S&T cooperation partners--for example, population, nuclear sciences, advanced computer technologies, geostationary satellite placement--there are legislative/political limits to the cooperation the U.S. can offer, and in some cases there have been negative reactions to these limitations. Also, the offers of cooperation on aspects of the Strategic Defense Initiative have met mixed reactions--some are opposed to the concept, but many are enthusiastic about being involved in the leading edge of space technology as embodied in the SDI program. S&T cooperation is valuable for its own sake, and the influence the U.S. may gain is a bonus that relates to the manner of cooperation as well as to its scientific and technological objectives. We have much to learn from our cooperative partners (as shown in Part III). Respect for local and national sensitivities and for the abilities, contributions and potential of our partners is essential to our foreign policy goals. To Create and Strengthen Understanding of U.S. Culture, In S&T leadership and prestige give unique opportunities in communicating with the S&T populations of other countries. some cases, such populations are politically important-directly, as in the case of the government of Egypt, which draws heavily on the S&T community to fill key positions, or indirectly, where S&T leaders have acquired new roles because of heightened interest in using S&T to address national problems. Those links may provide contacts where otherwise bilateral communications are at a low ebb--as with countries in Eastern Europe. In the Soviet Union, S&T cooperation gives a means of communicating with an influential stratum of society. In many parts of the world, significant parts of the scientific and technological leadership have received their training in the U.S. The results of these interchanges within the world scientific and technological community can be an understanding, and in some cases adoption, of the methods and ideals that are associated with the U.S. China has adopted structures similar to those in the U.S. to fund S&T programs. German environmental regulations parallel ours. Scientists from countries with all kinds of political structures have been exposed to the democratic ideals and freedoms of the U.S. Also, in cases of multilateral relations, shared values and common interests can be identified and strengthened through communications among S&T communities of different countries. One special example of that phenomenon is the AID-financed regional cooperation program that supports joint Egyptian-Israeli-U.S. projects, mostly in the S&T area. program has been among the few continuing contacts between Israel and Egypt since the 1982 Israeli invasion of Lebanon and in the long run may lay the groundwork for meaningful cooperation between the two countries in other areas. That To Signal the State of Relations or a Change in the State of Relations The return to democracy in Brazil was followed quickly by a significant expansion in bilateral cooperative S&T activities. Our S&T programs in Eastern Europe differentiate among those countries on the basis of demonstrated national independence and observance of basic human rights. S&T cooperation with neutral countries serves to link them with the U.S. and the Western world when their neutral status would not permit links of a more political nature. A revival of S&T cooperation is serving to signal a rebuilding of U.S. relationships with the Soviet Union following the low point reached in 1983-84. None of these actions indicates a diminution of the importance of cooperation for reasons solely of S&T. They show, however, that there is flexibility in S&T cooperative programs that can be useful in the conduct of foreign policy when broader objectives take precedence. Like other elements of bilateral relations, S&T cooperation adds to the tools that the President and the Secretary of State have at their disposal to seek foreign policy goals. Because S&T programs can be (and usually are) distinct in the public mind from security and political elements of a relationship, they can be seen as non-threatening, non-political means of establishing, maintaining or, if necessary, reducing contacts. A Look to the Future Scientific and Technological cooperative arrangements have long been a part of U.S. international relations and foreign policy. They have made a significant contribution to the accomplishment of U.S. foreign policy goals. More needs to be done to understand how S&T cooperation can best fit into a total foreign policy package. The foresight of Title V is a stimulus to that end. This chapter is an attempt to record in greater detail than in previous Title V reports the experience of the past year and the Administration's understanding of the role and usefulness of S&T in foreign relations. Succeeding reports will build on this approach and on the constructive dialogue with the Congress on Science, Technology and American Diplomacy. Chapter 2 Role and Resources of the Department of State in International Science and Technology Activities Role of Department of State in International S&T Activities The Congress, through Title V of Public Law 95-426, of October 7, 1978, conferred upon the Secretary of State the primary responsibility for coordination and oversight of all major science or science and technology agreements and activities between the United States and foreign countries and international organizations. The role of the Department of State is thus to manage U.S. Government international S&T activities as a fundamental element of foreign relations consistent with U.S. foreign policy. The Department of State carries out its responsibilities in close consultation and cooperation with the President's Office of Science and Technology Policy, the National Security Council, the Office of Management and Budget, the National Science Foundation, and other relevant federal technical agencies. As appropriate, concerned committees and sub-committees of the Congress are consulted. Within the Department of State, under the overall supervision and guidance of the Secretary of State, the Under Secretary for Security Assistance, Science and Technology, and the Special Adviser on Non-Proliferation Policy and Nuclear Energy Affairs, the Bureau of Oceans and International Environmental and Scientific Affairs (OES) is responsible for assuring that the oceans, non-proliferation, scientific, technological, environmental, population and related concerns are taken into account in the formulation of U.S. foreign policy. The OES Bureau, together with agency personnel, represents the U.S. Government in international organizations on S&T matters. OES also represents the Department on interagency policy groups and committees. It serves as the central point of contact for liaison on international functional S&T policies and programs with other agencies and provides foreign policy guidance and coordination. The Bureau, in coordination with other elements of the Department and relevant agencies, develops overall negotiating policies, U.S. Government positions, and texts for new or expired government-to-government bilateral science and technology agreements, represents the U.S. Government in multilateral and bilateral negotiations, and acts as a point of contact and liaison between the Department, U.S. industry, and other components of the private sector. At many of our Diplomatic Posts abroad, Science Officers provide advice on S&T issues to the Chiefs of Mission, serve as liaison between the governmental and non-governmental S&T communities in the United States and their host country, and keep the U.S. Government informed on foreign S&T policies and developments. Science Officers often participate in negotiations and in some cases manage and oversee sizeable cooperative programs. They are an integral and valuable part of the international S&T activities of the Department and the U.S. Government. More detailed information on how the Department carries out its role in multilateral organizations and bilateral cooperative S&T programs is provided in Chapters 3 and 4. Highlights of FY 1985 Actions The Department of State during FY 1985 actively carried out its central coordinating role in the formulation and implementation of United States international S&T policy in consultation with the technical agencies of the federal government and non-governmental institutions. Awareness of the importance of S&T in American diplomacy was further heightened by the personal message from Secretary Shultz to Chiefs of Mission in November 1984 requesting them to outline their plans, goals, and S&T objectives for FY 1985, with special focus on the impact that S&T had on relations with their host country. The responses were positive and informative and reflected the significant role that S&T plays in our relations with many countries and the commitment of our Chiefs of Mission to give S&T issues full attention and needed support. The Chiefs of Mission were further sensitized to the significance attached by the U.S. Government to S&T in foreign affairs through copies of the address on "Science and Foreign Policy: The Spirit of Progress", which Secretary Shultz gave on March 6, 1985 at the National Academy of Sciences. The S&T awareness was again reinforced in September 1985 by a message from Ambassador John Negroponte, Assistant Secretary for the Bureau of Oceans and International Environmental and Scientific Affairs (OES), inviting the Chiefs of Mission in key countries to submit their views on the importance of S&T for the conduct of U.S. relations with their host country. This invitation brought our overseas missions into the preparation of the Title V Report for the first time. The responses are reflected in Chapters 1 and 4. Knowing that personnel and other resources are stretched to the limit at many of our overseas posts, OES Assistant Secretary Malone in November 1984 in a message to our Chiefs of Mission shared specific steps which had been found useful at other posts in enhancing the utilization of full and part-time Science Officers. In response to Assistant Secretary Malone's request, fifteen posts also identified positions filled by part-time Science Officers who devote at least 20% of their time to S&T work. This made it possible during FY 1985 to provide appropriate orientation, training, and consultations for officers assigned to these positions. It also made it possible to institute a new system to provide these officers with additional informational materials tailored to their particular needs. During FY 1985 the process of identifying positions in OES and other bureaus of the Department suitable as developmental assignment positions for officers interested in S&T as a specialty was completed. OES also prepared special position descriptions on all OES Foreign Service positions which will be open in 1986 and distributed this information through the Department's personnel system. A new reimbursable detail position for a Foreign Service Officer with S&T interests/experience was established by the International and Interagency Affairs Unit of the National Oceanic and Atmospheric Administration (NOAA) in coordination with the Department of State. |