    [Public Papers of the Presidents of the United States: William J. Clinton (1996, Book I)]
    [April 12, 1996]
    [Pages 578-579]
    [From the U.S. Government Publishing Office www.gpo.gov]

    Message to the House of Representatives Returning Without Approval
    Foreign Relations Legislation
    April 12, 1996

    To the House of Representatives:
        I am returning herewith without my approval H.R. 1561, the ``Foreign
    Relations Authorization Act, Fiscal Years 1996 and 1997.''
        This legislation contains many unacceptable provisions that would
    undercut U.S. leadership abroad and damage our ability to assure the
    future security and prosperity of the American people. It would
    unacceptably restrict the President's ability to address the complex
    international challenges and opportunities of the post-Cold War era. It
    would also restrict Presidential authority needed to conduct foreign
    affairs and to control state secrets, thereby raising serious
    constitutional concerns.
        First, the bill contains foreign policy provisions, particularly
    those involving East Asia, that are of serious concern. It would amend
    the Taiwan Relations Act (TRA) to state that the TRA supersedes the
    provisions of the 1982 Joint Communique between the United States and
    China. The 1982 Communique has been one of the cornerstones of our bi-
    partisan policy toward China for over 13 years. The ongoing management
    of our relations with China is one of the central challenges of United
    States foreign policy, but this bill would complicate, not facilitate
    that task. The bill would also sharply restrict the use of funds to
    further normalize relations with Vietnam, hampering the President's
    ability to pursue our national interests there and potentially
    jeopardizing further progress on POW/MIA issues. If read literally, this
    restriction would also raise constitutional concerns.
        Second, the bill would seriously impede the President's authority to
    organize and administer foreign affairs agencies to best serve the
    Nation's interests and the Administration's foreign policy priorities. I
    am a strong supporter of appropriate reform and, building on bipartisan
    support, my Administration has already implemented significant steps to
    reinvent our international operations in a way that has allowed us to
    reduce funding significantly, eliminate positions, and close embassies,
    consulates, and other posts overseas. But this bill proceeds in an
    improvident fashion, mandating the abolition of at least one of three
    important foreign affairs agencies, even though each agency has a
    distinct and important mission that warrants a separate existence.
    Moreover, the inflexible, detailed mandates and artificial deadlines
    included in this section of the bill should not be imposed on any
    President.
        Third, the appropriations authorizations included in the bill, for
    fiscal years 1996 and 1997, fall unacceptably below the levels necessary
    to conduct the Nation's foreign policy and to protect U.S. interests
    abroad. These inadequate levels would adversely affect the operation of
    overseas posts of the foreign affairs agencies and weaken critical U.S.
    efforts to promote arms control and nonproliferation, reform
    international organizations and peacekeeping, streamline public
    diplomacy, and implement sustainable development activities. These
    levels would cause undue reductions in force of highly skilled personnel
    at several foreign affairs agencies at a time when they face
    increasingly complex challenges.
        Fourth, this bill contains a series of objectionable provisions that
    limit U.S. participation in international organizations, particularly
    the United Nations (U.N.). For example, a provision on intelligence
    sharing with the U.N. would unconstitutionally infringe on the
    President's power to conduct diplomatic relations and limit Presidential
    control over the use of state secrets. Other provisions contain
    problematic notification, withholding, and certification requirements.
        These limits on participation in international organizations,
    particularly when combined with the low appropriation authorization
    levels, would undermine current U.S. diplomatic efforts--which enjoy
    bipartisan support--to reform the U.N. and to reduce the assessed U.S.
    share of

    [[Page 579]]

    the U.N. budget. The provisions included in the bill are also at odds
    with ongoing discussions between the Administration and the Congress
    aimed at achieving consensus on these issues.
        Fifth, the bill fails to remedy the severe limitations placed on
    U.S. population assistance programs by the Foreign Operations, Export
    Financing, and Related Programs Appropriations Act, 1996 (Public Law
    104-107). That law imposes unacceptable spending restrictions pending
    authorization for U.S. bilateral and multilateral population assistance
    programs. But H.R. 1561 does not authorize these programs. Consequently,
    these restrictions will remain in place and will have a significant,
    adverse impact on women and families in the developing world. It is
    estimated that nearly 7 million couples in developing countries will
    have no access to safe, voluntary family planning services. The result
    will be millions of unwanted pregnancies and an increase in the number
    of abortions.
        Finally, the bill contains a number of other objectionable
    provisions. Some of the most problematic would: (1) abruptly terminate
    the Agency for International Development's housing guaranty (HG)
    program, as well as abrogate existing HG agreements, except for South
    Africa, and prohibit foreign assistance to any country that fails to
    make timely payments or reimbursements on HG loans; (2) hinder
    negotiations aimed at resolving the plight of Vietnamese boat people;
    (3) unduly restrict the ability of the United States to participate in
    the United Nations Human Rights Committee; and (4) extend provisions of
    the Nuclear Proliferation Prevention Act that I have objected to in the
    past. I am also concerned that the bill, by restricting the time period
    during which economic assistance funds can be expended for longer-term
    development projects, would diminish the effectiveness of U.S.
    assistance programs.
        In returning H.R. 1561, I recognize that the bill contains a number
    of important authorities for the Department of State and the United
    States Information Agency. In its current form, however, the bill is
    inconsistent with the decades-long tradition of bipartisanship in U.S.
    foreign policy. It unduly interferes with the constitutional
    prerogatives of the President and would seriously impair the conduct of
    U.S. foreign affairs.
        For all these reasons, I am compelled to return H.R. 1561 without my
    approval.

                                                          William J. Clinton

    The White House,

    April 12, 1996.