but we can understand their cultural concerns, and we cannot fault the developing countries for their concerns on the need to develop indigenous communications and information capabilities.

THE MASS MEDIA DECLARATION

The issue of state authority over the media arises not only in a context of political oppression, but also in those countries that would "use" the media as a policy tool, i.e., to promote national economic, Social and political objectives. The Soviet Union and many developing countries support restrictions on the media. For us that is unacceptable state control of the media, no matter how subtle, violates basic human freedoms.

An early version of a Mass Media Declaration grew out of a Soviet initiative. Although non-binding it would have enunciated the principle that states are directly responsible for the behavior of media operating within their borders; prescribed "obligations" of the media. with respect to racism, peace, economic development, etc.; and limited the rights of journalists to acting in accordance with the declaration. The draft declaration had substantial support at the 19th General Conference at Nairobi in 1976. But, recognizing that UNESCO could be seriously weakened if a divisive declaration were approved, a number of Third World nations joined the United States, Canada and Western European countries in deferring the question to 1978. The resolution which deferred consideration of the draft declaration invited the UNESCO Director General to hold "further broad consultations with experts" with a view to drafting a new text "which could meet with the largest possible measure of agreement" for submission to member states. He circulated widely a trial balloon text in 1977. Based on responses to it, last August 21 he submitted another draft text to member states.

The State Department in consultation with other agencies concluded that the August text was unacceptable because it retained language mandating responsibilities for the mass media, implying restrictions on some of their operations and endorsing state control. A letter to Director General M'Bow enumerated specific and severe U.S. objections.

The Department also instructed our diplomatic posts in 57 key countries to convey to host governments our concern with this draft and the threat it posed to global free flow of information. Department officers and members of the U.S. Permanent Delegation to UNESCO met with Western counterparts in Paris early in October to lay out common strategies for achieving another deferral of the draft declaration. Soon after the General Conference convened on October 24, two things became apparent to our delegation:

-There was a strong and widespread preference of developing countries for adoption of some kind of media declaration, but not necessarily the one which had been submitted to Member States.

-The Director General and the UNESCO Secretariat were disposed to work for a consensus agreement through low-visibility negotiations, rather than endanger Western support for UNESCO by adopting a declaration over their objections.

Confronted with the assessment of our delegation that there was virtually no chance of further postponement of the item, we decided to negotiate for an acceptable text, always retaining the option of opposing one which did not meet our minimum requirements. The Department consulted extensively with media leaders who agreed that working to produce the best possible text was preferable to continued opposition to any text, a course that seemed likely to result in adoption by a large majority of an unacceptable declaration endorsing state control of the media.

The result of intensive negotiations was a text [Annex] not only stripped of all language implying state authority over the mass media, but which also included positive language on freedom of information. Instead of imposing duties and responsibilities upon journalists, as had previous drafts, it proclaimed the "necessity for them to enjoy the best conditions for the exercise of their profession." It recognized that the exercise of freedom of opinion, expression and information is an integral part of human rights and fundamental freedoms, and it asserted the public's right of access to information through a diversity of sources. It charged states with the responsibility of providing favorable conditions for the operation of the mass media. It affirmed the necessity to help the developing countries overcome their handicaps in communication development as a cooperative measure. The developing countries overwhelmingly supported the new draft and successfully resisted communist bloc demands for extensive counter-amendments. The concerned U.S. media leaders, both within and outside the Delegation, declared the draft acceptable and it was adopted by consensus on the final day of the General Conference. Cooperation and assistance programs

In his statement to the General Conference, the chairman of the U.S. delegation, Ambassador John E. Reinhardt, offered concrete proposals of cooperation and assistance to respond to developing countries' needs in communication development:

-Cooperation, through educational exchange programs, to improve the regional training institutions for mass communication and journalism in the developing world.

-In cooperation with INTELSAT or other appropriate satellite entities, provision of management, training and funding for demonstration projects for satellite delivery systems of health, education, population and agricultural information to rural audiences in poor areas lacking terrestrial telecommunications infrastructure.

-A planning conference, hosted by the United States, to explore formation of a consultative group on international communication assistance. The group would be formed from existing international bodies to respond to requests, provide counseling and seek funding for developing countries communication aid requests.

The United States sponsored a resolution, adopted by consensus, inviting the Director General to call this planning conference (now scheduled for Washington later in 1979). Another U.S.-sponsored consensus resolution urged the identification by the International Commission for the Study of Communication Problems of concrete and

practical measures leading to "a more just and effective world information order."

"New world information order"

As one of its original objectives, UNESCO sought to promote the free flow of information and of international exchanges. As more developing countries came into being and joined the U.N. system, this objective became "a free and balanced flow of information;" a growing emphasis was placed on the balancing element. Third World Countries have sought recognition within UNESCO of their demand for a "New World Information Order," the rhetorical complement of the New International Economic Order.

A nonaligned resolution adopted by the 1978 UNESCO General Conference called for the establishment of a "new world information order (NWIO)." We abstained because NWIO, is an undefined concept, which may summarize non-aligned demands for a better balance. in information flows and capacities, but which may also have suggested to some countries that steps restricting the free flow of information may be taken in order to achieve this balance.

However at the U.N. General Assembly in December, the United States did join in consensus adoption of a new world information order resolution because we had successfully achieved language tying a NWIO to the free flow of information and to practical measures to overcome the communication imbalance. The pertinent operative paragraph reads:

The General Assembly affirms the need to establish a new, more just and more effective world information and communication order, intended to strengthen international peace and understanding and Lased on a free flow and wider and better balanced dissemination of information.

By incorporating the concept of free flow of information, the resolution lays the foundation for both communications development and removal of all restrictions on the free flow of information.

POLICY/OBJECTIVES

U.S. objectives in UNESCO are:

1. To emphasize that the problems of developing countries can best be solved by increasing their ability to generate and disseminate information, not by strengthening state controls over the mass media or by restricting the flow of information among nations.

2. To build on the consensus we achieved at the November 1978 UNESCO General Conference for protecting the free flow of information and cooperation with the developing countries in realizing their information/communication goals.

3. To support UNESCO studies and technical assistance programs, along with efforts by other advanced countries, multilateral institutions and private sector information industries designed to strengthen the communications capabilities of developing countries.

4. To encourage direct contacts between developed and developing countries' media so that the private sector can assume a larger responsibility for technical and other assistance.

5. To reaffirm the principle of a free flow of information as an essential element of a new, more just and more effective world information and communication order, thus securing Western participation in the definition of a new information order and preempting Third World efforts to exclusively define the goals of communications development.

III. WARC 1979

BACKGROUND

The 1979 World Administrative Radio Conference (WARC 79) is a technical conference which will have strong political, economic, national security and commercial consequences. It will review and revise as necessary allocation of radio frequencies to different communications services. It will also review, and revise as necessary, procedures for international management of the spectrum. By directly affecting radio frequency allocations and use, WÂRC 79 will influence the overall pattern of United States telecommunications activities, here and abroad, through the end of the century.

WARC 79 will meet in Geneva under ITU auspices in September 1979. In size and complexity WARC 79 will be one of the largest international conferences in which the United States has ever participated. Eleven hundred delegates from over 130 countries are expected to gather for the ten-week session.

It is the first ITU conference in twenty years competent to review and revise the entire international table of radio frequency allocations and related technical criteria and coordination procedures. (Specialized conferences deal frequently with particular service regulations and provisions.) As with previous radio conferences, the product of WARC 79 will be a treaty.

In general terms the agenda for WARC 79 establishes the basis for, among other things:

-New and changed frequency allocations for various services to meet changing needs.

-Revision of technical standards for sharing and use of frequencies.

-Revision of general principles for allocations, orbital utilization and procedures for coordination, notification, registration, and enforcement of frequencies.

PRESENT STATUS OF U.S. WARC POLICY DEVELOPMENT

FCC/NTIA/State Department

The Federal Communications Commission (FCC) has responsibility for assigning frequencies to non-federal government users. It has been formed, chaired by the chairman of the U.S. WARC Delegaings for over four years and issued a Report and Order containing a recommended U.S. position on private sector needs in late 1978. The National Telecommunications and Information Administration (NTIA) has responsibility for assignment of freqeuncies to the Federal Government. Together the FCC and NTIA have developed the basic U.S. requirements for public and private sector users. Their

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recommendations to the State Department are in general contained in a Report and Order issued by the FCC in December 1978. From this document the Department will draft U.S. proposals reflecting national security, political and economic, as well as technical, considerations.

To ensure coordination in refining U.S. positions, an informal group has been formed, chaired by the chairman of the U.S. WARC Delegation, representing the Secretary of State, and including the Chairman. of the FCC and the Administrator of NTIA. Other agencies participate when issues affecting them are discussed.

U.S.delegation

On January 6, 1978, Glen O. Robinson, Professor of Law at the University of Virginia, was named Chairman of the U.S. Delegation to the WARC. He reports directly to the Deputy Secretary of State. Professor Robinson will hold the personal rank of ambassador during the Conference.

The delegation is being formed in two major stages. An initial delegation group of twenty persons has been formed with membership drawn from Federal Government agencies active in WARC preparations. This core group will be expanded to include Congressional and non-government members, that is, industry and general public interest advisers. The expansion of the delegation to its final size-presently envisaged at approximately sixty full-time delegates-will occur between now and mid-1979 and will include N/S and area specialists as well.

Advisory committee

In order to provide for comprehensive non-governmental participation, a public advisory committee was established in May 1978. Chaired by Glen Robinson, the committee's membership is drawn from industry and the general public. The committee is broken down into five working groups.

Domestic planning coordination

A number of political issues related to WARC 79 are the subject of discussion in other forums. For example, the U.N. Outer Space Committee consideration of whether consent should be obtained by one country before seeking to broadcast by satellite into another country's territory. UNESCO is considering the more general issue of information "dominance" by developed countries vis-a-vis developing countries. The OECD, the Council of Europe, the Nordic Council, and a number of individual countries, are considering regulation of transfer of computer-based personal data across national boundaries. WARC delegation staff members are monitoring and receiving regular reports on these activities, in addition to maintaining informal contacts and regular meetings with appropriate State Department offices and other agencies concerning related foreign affairs matters.

Foreign consultations

Since 1977 the United States has engaged in extensive international consultations on WARC with a view to explaining emerging U.S. positions for the Conference and obtaining information on foreign