I refer to my memorandum UN46/Ed.1 of 20th June, referring to
documents of the committees of the Preparatory Commission of
UNESCO. [1] You will appreciate that in view of the preliminary
work done by these committees various issues affecting policy in
the field of international education, scientific and cultural co-
operation will arise at the Preparatory Commission meeting. The
comments which follow express the views of this Department
concerning the development of UNESCO as a specialised agency of
the United Nations. [2] It is realised that many of the issues
facing UNESCO are of a nature which is more directly the concern
of your office than of this Department.

The Department's comments are as follows:

1. General Considerations.

A survey of the documentation concerning UNESCO's activities and
projected programme indicates certain trends which Australian
influence in the organisation should endeavour to offset:

(a) While recognising that UNESCO in virtue of its constitution
has a very wide field of responsibility, present indications are
that it is trying to spread its resources, as yet limited, over
much too wide a field of enterprises.

(b) There is little evidence of a careful appraisal and separating
out of the practicable short term and long term activities which
the organisation might effectively undertake. As a permanent
organisation UNESCO should begin with a reasonably limited and
practicable field of activity and broaden its scope as it develops
adequate staff, administrative efficiency and experience. (c) Many
of the proposals and projects submitted to the Preparatory
Commission and its committees seem to have been approved without
critical examination as to whether they are appropriate for the
organisation to engage on at the present stage. (d) There is a
danger of much duplication of activity with the work of existing
international and national agencies, particularly in the field of
research projects (e.g. proposals submitted to the Social Science
Committee include a study of international trade, of social
security and an international conference on housing, etc. Such
activities are directly within the scope of the Economic and
Social Council of the United Nations, I.L.O., and other
established international agencies).

2. Programme of Activities.

In the light of the foregoing the following is suggested as a
basis for a more limited and practicable programme for the
organisation and one which attempts to combine immediate and
practicable tasks with more long range planning and research
projects:

(a) Educational and cultural rehabilitation of devastated areas:

It is considered that this should be in the forefront of UNESCO's
major undertakings and should have priority in the disposition of
UNESCO's resources. The attention of the Preparatory Commission
should be drawn to two factors bearing on this:

(i) The projected winding up of UNRRA at the end of this year.

(ii) The need to co-ordinate such work not only with UNRRA (while
it continues) but with the Temporary Sub-Commission of the
Economic and Social Council set up in June 1946 to assist in the
economic reconstruction of devastated areas (Australia is a member
of the Sub-Commission).

(b) Provision of facilities for widening international contacts in
education and culture (e.g. exchange of teachers, provision of
travelling scholarships, bursaries, etc.)
(c) Re-education of defeated Axis powers: UNESCO should have a
positive role to play in advising Allied occupation and control
authorities on this problem.

(d) Backward areas: UNESCO should be prepared to provide advice
and technical assistance to countries requesting such aid.

(e) Research: Careful consideration should be given to selecting a
limited number of appropriate study projects and every effort made
to see that such projects are undertaken by really competent
authorities. Priority should be given to studies which take into
account the present stage of international relationships and
emphasis placed upon those which lend themselves to objectivity of
treatment rather than grandioseness of design.

(f) Information and Statistics: The proposal already submitted for
an Educational Year Book should be supported as an example of a
concrete and useful project. Work in the statistical field should
be coordinated with that of the Statistical Commission of the
Economic and Social Council.

(g) Co-ordination: UNESCO has an important role in coordinating
the activities of existing agencies with a view to reducing
overlapping and duplication of effort. (e.g. International
conferences).

3. Organisation.

(a) Regional: The proposal to be discussed at the Preparatory
Commission that UNESCO be organised on a regional basis with a
central secretariat requires close examination. It is recognised
that there are definite advantages to be gained from a
decentralising of some functions and specialisation according to
special needs of certain areas. It is considered doubtful,
however, whether this is the time in UNESCO's development for
establishing a formal regional organisation. it is plain that the
secretariat is by no means adequately staffed or competently
established at the present time and the added burden of
coordination imposed by a regional scheme would be very
considerable. At the same time full use can and should be made of
existing regional agencies which are concerned inter alia, with
education and culture. In this connection Australia will wish
UNESCO, whether organised regionally or no, to make full use of
the South Seas Regional Commission, soon to be established, which
will have as one of its functions the educational welfare of the
dependent peoples of the South West Pacific.

It is recognised that a regional organisation of UNESCO, which
might have Australia as one of its regional headquarters, would do
much both to stimulate Australian interest in the Organisation and
to make our participation more effective. It would also lessen the
danger of UNESCO's becoming over-centralised and removed from real
contact with its members, particularly those situated remote from
Paris. But such advantages can be gained only when UNESCO is
adequately prepared to adopt an effectively coordinated plan of
regional organisation.

(b) Existing Inter-governmental Agencies: It is in keeping with
declared Australian policy to see UNESCO established as the sole
inter-governmental agency in its field. (e.g. by the incorporation
of other inter-governmental agencies such as the Institute of
Intellectual Cooperation and the Bureau of Education).

(c) National Cooperation Bodies: Attention is drawn to the view
expressed by the Australian representative on the Committee on
Education that 'UNESCO should consider working closely and
positively with governmental and private organisations in its
member States.' It is understood that Australian conditions do not
call for establishing either a national commission or national
cooperating bodies in any formal sense. Consideration will
doubtless be given by your Office to the manner in which
educational, cultural and scientific bodies in Australia will be
drawn into consultation in accordance with the constitution of
UNESCO. (Art. VII, para. 1).

The foregoing comments have not as yet received ministerial
consideration. No doubt you will take the opportunity of
communicating by cable from London any important matters of policy
which arise at the Conference, so that ministerial direction on
these matters can be obtained and transmitted to you. [3]

W. L. DUNK