Foreign Relations of the United States, 1969–1976, Volume XXXVIII, Part 2, Organization and Management of Foreign Policy; Public Diplomacy, 1973–1976

98. Memorandum From the Chairman of the National Security Council Subcommittee for Joint Commission Educational and Cultural Affairs (Richardson) to the Chairman of the National Security Council Under Secretaries Committee (Ingersoll)¹

Washington, November 15, 1974.

Conduct of Educational and Cultural Relations Through Bilateral Joint Commissions

This subcommittee, whose membership is listed on the last page of this memorandum, met as provided for by NSDM 248² on November 15, and agreed on what follows.

An educational and cultural component has been included in most of the Joint Commissions so far discussed. Sometimes this element has been an initial part of the Joint Commission concept; sometimes it has been added later. Improved intercultural relations are seen as central to a sound rebuilding of relations with a few of these countries; in other instances they seem to be an afterthought, programs to be undertaken because they might do some good and are unlikely to be a problem.

In our judgment, inadequate attention seems to have been given to the contributions U.S. governmental and private educational and cultural programs can make, indeed are making, to a central purpose of the Joint Commissions, the development of wider networks of constructive relations between the U.S. and other societies.

I. The Current Status of Existing Joint Cultural Sub-Commissions:

All the Joint Commissions so far agreed upon or expected imminently are in the Near East and South Asian region. In this part of the world we are witnessing a massive turning toward education and manpower development as a principal engine for the modernization of historic societies.³

Egypt—A Joint Commission was agreed to by Presidents Nixon and Sadat in a statement of “Principles of Relations and Cooperation between Egypt and the United States” signed at Cairo on June 14, 1974.⁴ Six Working Groups were provided in the Statement, one of which covers education and cultural affairs. These six have now been consolidated into four.

The Joint Working Group on Education and Culture had an initial and exploratory meeting in Washington, August 12–15, 1974; the second meeting took place in Cairo, October 24–27, 1974 with agreement to initiate exchanges involving U.S. and Egyptian professors and subject matter specialists, assistance to English language training programs at Ain Shams University, review of material contained on each country in standard textbooks in their respective primary and secondary schools, and other related educational and cultural activities. The U.S. delegation included representatives from several agencies and the university community.

A limited meeting of the Joint Working Group on Education and Culture is planned for May 1975 in Washington to review the progress in carrying out the 12 projects to be initiated before July 1, 1975. The full Working Group plans to convene in Cairo sometime in January 1976.

Jordan—A Joint Commission was agreed to by King Hussein and President Nixon during the President’s visit to Amman on June 17–18, 1974.⁵ AID Administrator Parker will chair the U.S. delegation at its first meeting in early January of 1975. Included among the provisions for various types of cooperation was agreement for a sub-commission on social and cultural affairs; however, Ambassador Pickering subsequently informed the Department that no formal mechanism is currently required to implement this part of the agreement.

The Department and Embassy Amman have agreed to review the current educational and cultural exchange programs with Jordan to decide whether currently available resources can be more efficiently and effectively used. The Embassy’s review will include consultation with Jordanian officials. Further, the review should consider whether a more institutional arrangement is either necessary or desirable.

Israel—No new bilateral mechanisms were introduced in the cultural field as a result of President Nixon’s meeting of June 16–17 with Prime Minister Rabin at Jerusalem. However, a joint statement issued on June 17 by the two principals included the following: “The President and the Prime Minister agreed to develop further the cultural ties between the two countries through exchanges of scholars, students, artists, exhibitions, mutual visits and musical and other cultural events.”⁶ Secretary Simon during a subsequent visit to Israel discussed increased U.S. support for the bilateral science foundation in Israel.

India—Agreement was reached to establish a joint commission in India during the visit of the Secretary of State to New Delhi, October 27–29.⁷ Three sub-commissions (titled in this agreement committees) were specified, one concerning educational and cultural affairs. Plans are now in process for convening the sub-commission in India in January 1975, and consideration is being given to such broad agenda topics as: private cooperation and business involvement in educational and cultural relations, the performing arts, museology, the role of foundations, and exchanges in the communications media. The American delegation of 10 members has been appointed and will be chaired by Dr. Robert Goheen, Chairman of the Council on Foundations.

Iran—Agreement was reached on the formation of an Intergovernmental Commission at the Ministerial level during Secretary Kissinger’s visit with the Shah of Iran, November 1, 1974.⁸ The Commission will be concerned with political, economic, scientific and cultural relations between Iran and the United States; and it is expected that separate sub-commissions will be designated to pursue each of these subjects.

The Secretary has requested the Deputy Secretary to prepare suggestions by the end of the month as to the best means of carrying out this cooperation. Major emphasis will be on economic and technological affairs. Nevertheless, an educational and cultural working group would seem highly desirable, particularly in view of the status education and human resources development enjoy as great national objectives now in Iran.

Syria—Although no Joint Commission with Syria has yet been formed, the Secretary made a public statement on his visit to Damascus in June 1974 that the U.S. would expand its educational and cultural exchange programs with Syria.⁹ At present the Department has authorized the Embassy at Damascus to reinstitute exchanges through its established channels. It is expected we will support the opening of a student counseling office in Damascus by the American Friends of the Middle East (AFME).

Saudi Arabia—During the visit of Prince Fahd to Washington on June 8, 1974 a Joint Commission on Economic Cooperation with four sub-commissions was announced by the Secretary of State.¹⁰ The head of the U.S. delegation is the Secretary of the Treasury.

The Joint Working Group on Manpower and Education has to date largely developed its proposed programs through the Labor and the Treasury Departments. The NEA Coordinator in the Department of State takes the position that, because of NSDM 278, CU should henceforth become involved. CU agrees and would propose also to review possible participation with other agencies engaged in exchange programs.

II. Problems:

Sub-commissions in the cultural field may present fewer problems than in some other areas of international relations less accustomed to developing programs binationally. Nevertheless, we expect to confront several of the difficulties all sub-commissions will face. These relate principally to satisfying the high level of expectations, managing a shortage of personnel and financial resources, developing real mutuality of effort, convincing our bilateral partners to work for the long haul, and encouraging a broader range of cultural cooperation between American and foreign private groups and institutions.

III. Managing Educational and Cultural Commission Activities:

The success of a productive and lasting bilateral relationship in the educational and cultural affairs field rests on the quality of the work of the U.S. delegations in their periodic discussions and the support and follow-up they receive at home. Thus we have formulated the following operating principles and inter-agency coordination procedures for cultural activities related to Joint Commissions.

A. Operating Principles:

In support of the general objectives sought through Joint Commissions, the goal of each Educational and Cultural Sub-Commission will be to develop between the governmental and private organizations of both countries a more constructive basis for educational and cultural interchange. Primary efforts will be made to broaden dialogue between the two societies and thus to contribute to improved stability and permanence in a particular bilateral relationship. These Sub-commissions provide a most useful opportunity to focus the regular attention of the participating countries on shared interests and concerns throughout the entire range of educational and cultural relations. The Sub-commissions are expected to develop recommendations for action by the governments or the private sectors of both countries. They should not be responsible for implementing the projects so identified, even though they will periodically monitor progress. Decisions as to implementation would be a national responsibility. (See B below.)

Given the major significance of non-governmental activities to the educational and cultural relations between any two nations, representatives of private organizations will be adequately represented on all U.S. delegations to joint cultural meetings.

B. Interagency Support in Washington:

Smooth and coordinated consultation on a regular basis among U.S. Government agencies concerned with the various Joint Commissions can do much to overcome some of the above problems. Thus, this Educational and Cultural Affairs Subcommittee in Washington (based on the existing NSC Subcommittee on International Exchange), chaired by the Assistant Secretary of State for Educational and Cultural Affairs will be the mechanism used to ensure government-wide coordination of U.S. participation in current and yet to be named Joint Sub-commissions in this field. The U.S. delegations for each such Joint Commission meeting will be selected by the chairman, in consultation with the other members of the subcommittee.

The subcommittee will be responsible for developing such instructions as it believes are needed by delegations to the meetings of each Joint Educational and Cultural Sub-Commission. The reports of delegations will be reviewed by the Subcommittee. Required U.S. Government actions will be assigned and progress monitored between meetings of each Joint Sub-commission. To assist the Subcommittee, a working group, to be chaired by CU, will be named by the Chairman to provide operational support for each delegation, including preparing background materials for meetings and monitoring the implementation of recommendations emerging from Joint Commission meetings.

The members, in addition to State, of the existing Subcommittee on International Exchange are: AID, USIA, HEW, ACTION (Peace Corps), Defense, the Joint Chiefs of Staff, the National Science Foundation, and the National Security Council. When a meeting is limited to questions falling under NSDM 278, Defense and the Joint Chiefs of Staff will be so informed and may exercise the option not to participate. For the consideration of NSDM 278 problems, the following additional agencies will also form part of the Subcommittee:

Department of the Treasury

Department of Labor

The Smithsonian Institution

National Endowment for the Humanities

National Endowment for the Arts

Office of Management and Budget

1. Source: Washington National Records Center, RG 59, Records of the Bureau of Educational and Cultural Affairs, Office of Policy and Plans, Subject Files, 1961–1977, FRC 306–81–24, CU—Joint Commissions. Confidential. Drafted by Deputy Assistant Secretary Hitchcock (CU) and Roth (CU/OPP). Printed from a copy that Richardson did not initial.
2. NSDM 278 (not 248), “Joint Cooperation Commissions,” October 22, called upon the USC Chairman “to review the composition and terms of reference of joint Cooperation Commissions established since May 1, 1974, and to coordinate the work of these Commissions.” NSDM 278 also called for a report to the President. (Ford Library, National Security Adviser, National Security Decision and Study Memoranda, Box 1) On October 25, Ingersoll sent a memorandum to various officials establishing four subcommittees: Cultural Affairs (to be chaired by Richardson), Science and Technology, Economic, and Security. (Washington National Records Center, RG 59, Records of the Bureau of Educational and Cultural Affairs, Office of Policy and Plans, Subject Files, 1961–1977, FRC 306–81–24, NSDM 278—Joint Commissions—Kissinger, I)
3. In addition to those outlined below, Joint Commissions also existed with the Soviet Union, Japan, and Mexico.
4. For the text, see Public Papers: Nixon, 1974, pp. 503–506.
5. For the text of the joint statement, June 18, following Nixon’s discussions with King Hussein, see ibid., pp. 534–535.
6. For the text of the joint statement, see ibid., pp. 525–528.
7. For the text of the agreement, October 28, see the Department of State Bulletin, November 25, 1974, pp. 746–747.
8. For the text of the joint communiqué, issued on November 2, see ibid., pp. 729–730.
9. As he departed Damascus on May 27 after talks with Assad, Kissinger stated that Syria and the United States had “made a decision to continue toward an improvement of our relations on a very broad front.” (Ibid., June 24, 1974, p. 693)
10. For the text of Kissinger and Prince Fahd’s joint statement on cooperation, see ibid., July 1, 1974, pp. 10–11.