Foreign Policy Agency Reorganization in the 105th Congress (CRS Report for Congress)
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| Release Date |
Revised Nov. 6, 1998 |
| Report Number |
97-538 |
| Authors |
Susan B. Epstein, Larry Q. Nowels, and Steven A. Hildreth, Foreign Affairs and National Defense Division |
| Source Agency |
Congressional Research Service |
| Older Revisions |
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Summary:
On April 18, 1997, the Clinton Administration announced a plan to reorganize the foreign policy
agencies. The two-year plan would require significant internal restructuring of the State Department,
and eliminate two other agencies--the Arms Control and Disarmament Agency (ACDA) and the U.S.
Information Agency (USIA) whose functions and personnel would be absorbed by State. It would
integrate ACDA into State within the first year, and USIA into State by the end of 1999. The
implementation process would begin after a 120-day planning period. The U.S. Agency for
International Development (USAID) would remain a separate agency with its own appropriation, but
would be brought under the direct authority of the Secretary of State.
Administration interagency task forces reviewed and analyzed the possible options for
consolidating and restructuring the potentially affected agencies. Reportedly, a draft reorganization
plan, including some major unresolved issues, was submitted to the Office of the Secretary in mid-
1997. Selected elements of the proposal have been implemented in the period since, although a
complete consolidation had to await enactment of explicit authorization.
Congress debated reorganization of the foreign affairs agencies in the context of foreign
relations authorizing legislation for FY1998/99, consideration that spanned most of the 105th
Congress. Although the House and Senate approved bills in June 1997 ( H.R. 1757 and
S. 903 ), conference negotiations continued for over nine months. During this time, the
reorganization issue, which conferees had resolved in November, became entwined with other
foreign policy controversies in dispute between Congress and the President, including international
family planning policy and abortion restrictions, U.N. reform and arrears payment authorization, and
U.S. contributions to the International Monetary Fund. As approved by the House (March 26, 1998;
voice vote) and by the Senate (April 28; 51-49), the conference report on H.R. 1757
directed the President to 1) abolish ACDA and USIA and merge them into the State Department,
2) establish the Broadcasting Board of Governors as an independent agency, and 3) maintain USAID
as a separate agency but require the Administrator to report directly to the Secretary of State.
After President Clinton said he would veto the bill primarily because of the abortion provision,
congressional leaders held H.R. 1757 until the end of the 105th Congress. On the eve
of adjournment, Congress lifted the foreign affairs agency consolidation authorization from
H.R. 1757 and attached a slightly revised version to the Omnibus Consolidated and
Emergency Supplemental Appropriations Act of 1999. President Clinton signed the omnibus
measure on October 21, 1998 ( P.L. 105-277 ). Congress also sent to the White House
H.R. 1757 , legislation that the President vetoed on October 21.
