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The original documents are located in Box 41, folder "1976/03/24 HJR549 Northern
Mariana Islands-Commonwealth Status (1)" of the White House Records Office:
Legislation Case Files at the Gerald R. Ford Presidential Library.
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Digitized from Box 41 of the White House Records Office Legislation Case Files at the Gerald R. Ford Presidential Library
APPROVED
ACTION
MAR 24 1976
THE WHITE HOUSE
WASHINGTON
Last Day: March 27
March 24, 1976
statement at
ceremony Gramony for Issued
MEMORANDUM FOR
THE PRESIDENT
FROM:
JIM CANNON
Jo archines
SUBJECT:
H.J. Res. 549 - Northern
3/25/76
Mariana Islands -- Commonwealth Status
Attached for your consideration is H.J. Res. 549, sponsored
by Representative Burton and twenty-four others, which
approves the "Covenant to Establish a Commonwealth of
the Northern Mariana Islands in Political Union with
the United States of America."
A detailed discussion of the enrolled bill is provided
in OMB's enrolled bill report at Tab A.
OMB, Max Friedersdorf, Jack Marsh, Counsel's Office
(Lazarus), NSC and I recommend approval of the
enrolled bill and the proposed signing statement
which has been cleared by Bob Hartmann.
RECOMMENDATION
That you sign H.J. Res. 549 at Tab B.
That you approve MC7 the signing statement at Tab C.
Approve
Disapprove
STATE FORD
ESIDENT
EXECUTIVE OFFICE OF THE PRESIDENT
UNITED
OFFICE OF MANAGEMENT AND BUDGET
SECUTIVE
STATES
WASHINGTON, D.C. 20503
MAR 19 1976
MEMORANDUM FOR THE PRESIDENT
Subject: Enrolled Bill H. J. Res. 549 - Northern
Mariana Islands --- Commonwealth status
Sponsors - Rep. Burton (D) California and
24 others
Last Day for Action
March 27, 1976 - Saturday
Purpose
Approves the "Covenant to Establish a Commonwealth
of the Northern Mariana Islands in Political Union
with the United States of America."
Agency Recommendations
Office of Management and Budget
Approval
Department of the Interior
Approval
Office for Micronesian Status
Approval (Signing State-
Negotiations
ment attached)
Department of Defense
Approval (Informally)
Department of State
Approval
Department of Justice
Approval
National Security Council
Approval
Discussion
The Northern Marianas consist of 21 small islands
which together with Guam (an unincorporated U.S.
territory) form the western Pacific island group
known as the Mariana Islands. Some 14,500 people
inhabit the Northern Marianas and this archipelago
plus the Carolines and the Marshall Islands consti-
tute the Trust Territory of the Pacific Islands
or as it is popularly known, Micronesia, a United
Nations strategic trusteeship under United States
administration. Under the U.N. Trusteeship Agree-
ment, the United States: (1) has maintained military
2
facilities in Micronesia for preserving peace and
international security while (2) being responsible
for furthering Micronesian political, economic, and
social development toward self-government and/or
independence in accordance with the will of the
peoples concerned. Largely because of cultural and
language differences, Micronesia presently is
subdivided into six administrative districts of which
the Northern Marianas is one.
The United States policy concerning any new status
for Micronesia initially was to strive for a single
new status for the entire Trust Territory rather
than to conduct separate status discussions with
any of the individual districts. In the early 1970's,
when it became increasingly clear that most of the
Micronesian negotiators were striving for a less
close future relationship with the United States,
the Northern Mariana District requested and the
United States agreed to initiate separate status
negotiations with them. Since the very beginning
of the U.N. Trusteeship Agreement, the people of the
Northern Marianas repeatedly have expressed a strong
desire for a close political relationship with the
United States, and in light of the continuing
uncertainty concerning the other Micronesian
districts' future status, separate status negotiations
were agreed upon.
Accordingly, in 1972, the President's Personal
Representative for Micronesian Status Negotiations,
Ambassador Franklin Haydn Williams, commenced the
Marianas' Status Talks which were concluded in
February of 1975 with the signing of the "Covenant
to Establish a Commonwealth of the Northern Mariana
Islands in Political Union with the United States of
America." The Covenant's ten Articles are briefly
outlined below:
I. Political Relationship, upon termination
of the Trusteeship Agreement, to be a self-
governing Commonwealth under the sovereignty
of the United States which will have complete
responsibility for and authority over
foreign affairs and defense matters.
3
II. Constitution to be locally formulated to
provide for a republican form of government
similar to that of United States.
III. United States Citizenship to be conferred on
those qualified Marianans desiring it,
at the time the Presidential Proclamation to
terminate the Trusteeship Agreement is
promulgated.
IV. Judicial Authority to be divided between
the judiciary established by the Northern
Mariana Constitution and a U.S. District
Court which will be part of the same U.S.
judicial circuit as Guam.
V. Applicability of Laws of the United States,
including specific sections of the U.S.
Constitution, certain specific laws
itemized in the Covenant, including Section
228 of Title II and Title XVI of the
Social Security Act as it applies to the
several States, and other laws as enacted
by the Congress pursuant to recommendations
by a Commission on Federal Laws required by
Section 504 of the Covenant.
VI. Revenue and Taxation provisions apply United
States income taxes as a territorial tax and
customs duties, but the Northern Marianas
Government may levy additional taxes. The
Northern Marianas will not be included
within the Customs Territory of the United
States. Taxes and duties will be rebated
for use by the Northern Marianas Government.
VII. U. S. Financial Assistance in the form of
direct grants of $14 million each year for
seven years for government operations,
capital improvement projects, and economic
developments; to be adjusted to reflect
changes in Gross National Product Implicit
Price Deflation and to be continued after
4
the original seven years at the same
levels unless otherwise provided by
Congress. In addition, the Northern
Marianas will receive the full range of
Federal programs and services which are
available to the territories of the United
States.
VIII. Trust Territory Property to be transferred
to the Government of the Northern Marianas;
United States to hold a five-year option to
lease for up to one hundred years, 17,799
acres on Tinian Island together with
various other sites to enable it to carry
out its defense responsibilities upon pay-
ment of $19,250,000.
IX. Representation for the Northern Marianas
provided by a Resident Representative to
the United States if provided for by the
Northern Marianas' constitution or law.
X. Effective Dates provide for a phasing in of
the provisions with (a) some becoming
effective upon approval of the Covenant by
the United States, (b) others within 180
days after approval by the United States
of the Northern Mariana constitution, and
(c) the rest upon the termination of the
U.N. Trusteeship Agreement and the establish-
ment of the Commonwealth of the Northern
Mariana Islands.
The above cited Covenant was presented, as required,
for approval by the people of the Northern Marianas
in a plebiscite called by the United States with
United Nations Trusteeship Council observers, on
June 17, 1975. Of the registered voters, 95 percent
participated, and of those who voted, 78.8 percent
voted in favor of the Covenant. Subsequently, on
July 1, 1975, you transmitted the Covenant to Congress
and requested prompt and favorable consideration of the
measure.
H. J. Res. 549, as enrolled, is identical to the
Covenant you submitted to Congress last year except
5
that the Senate added a new section 2 which expresses
the sense of Congress that it supports the consulta-
tion procedure contained in section 902 of the
Covenant.
In its letter on H. J. Res. 549, Interior reflected
the general position taken by all the Executive
Branch agencies making recommendations on the
enrolled bill when it stated that:
"Presidential approval of H. J. Res. 549
as enrolled will represent one more
important step toward fulfillment of the
obligations which the United States
undertook when the Congress approved, by
joint resolution, the United Nations
Trusteeship Agreement on July 18, 1947.
The Covenant, as approved by the Congress,
represents the freely expressed wish of
the people of the Northern Mariana
Islands, and will enable them to move
toward their long sought goal of self-
government in political union with the
United States."
James M. James Frey
They
Assistant Director for
Legislative Reference
Enclosure
STATEMENT BY THE PRESIDENT
I am signing today an historic document -- H.J. Res. 549,
the Joint Resolution of the Congress approving the Northern
Mariana Islands Commonwealth Covenant.
It is an important occasion. First, it is a significant
step in carrying out our obligations under the United Nations
Trusteeship Agreement which has been the basis of the
United States' administration of these islands since 1947.
Second, it confirms our national commitment to the principle
of self-determination by honoring the freely expressed wishes
of the peoples of these islands for political union with the
United States. And third, the joining together of all of
the Marianas under one flag and one common citizenship
represents the first major addition to United States territory
in the Pacific since 1898.
History will show that this action has been in clear
response to the persistent desires of the Marianas people
to become permanently associated with the United States -- a
desire recorded formally through resolutions, referendums and
petitions to the United Nations and to the United States
dating as far back as 1950. History will also show that the
negotiations leading to the Covenant were conducted in an
open and highly democratic fashion, and that the Covenant's
provisions are responsive to the wishes of both the people
of the Northern Mariana Islands and the Congress of the
United States.
Those who were involved in this careful and thorough
process are to be congratulated: The Marianas Political
Status Commission; Ambassador Haydn Williams and members
of the American Delegation; those members of the Congress
2
who worked closely with Ambassador Williams during the
negotiations; and those who provided the leadership in
moving the joint resolution through its final stages in
the House and the Senate. I refer to the members of the
Senate and House Interior Committees including Senator
J. Bennett Johnston, Senator Paul J. Fannin, Senator
Clifford P. Hansen, Chairman James Haley, Congressman
Phil Burton, Congressman Joe Skubitz and Congressman
William M. Ketchum.
The decision to approve the Covenant was not taken
lightly by either the people of the Northern Mariana Islands
or by the Congress of the United States. Its provisions
and the significance of the islands becoming a part of the
United States were subjected to careful scrutiny and weeks
and months of debate in the Marianas and in Washington.
The plebiscite of last June was conducted in a fair and
impartial manner under the able supervision of Mr. Erwin D.
Canham, the Plebiscite Commissioner. U.N. observers were
also present. The final plebiscite vote, with 95% of those
eligible to vote casting their ballots, was a resounding
78.8% popular approval of the Covenant. Following months
of open hearings the final vote in the House and Senate
resulted in equally impressive majorities in favor of the
Commonwealth of the Northern Mariana Islands in Political
Union with the United States of America.
Next will come the challenge of planning carefully and
well for the new government of the Northern Marianas under
its own locally drawn and ratified Constitution. The framers
of that Constitution will draw on our 200 years of experience
as an independent democracy, and those residents of the
3
Northern Marianas who will one day be citizens of the
United States will receive the full protection of our
Bill of Rights which protects the rights of all American
citizens.
As I sign this Bill, I cannot help but remember that
these islands were once the scene of bitter armed conflict.
My hope now is that they will contribute to the continuing
maintenance of peace and stability and growing cooperation
and friendship among all of the peoples and nations of the
Western Pacific.
Finally, to the peoples of the Northern Marianas, I
extend to you on this historic day my personal greetings
and my best wishes as you move progressively closer to your
long-sought goal of self-government within the political
framework of the American family. Your entrance into
union with the United States is warmly welcomed in this
our bicentennial year.
Herald P. Ford
FOR IMMEDIATE RELEASE
MARCH 24, 1976
OFFICE OF THE WHITE HOUSE PRESS SECRETARY
THE WHITE HOUSE
REMARKS OF THE PRESIDENT
UPON SIGNING H.J. RES. 549
THE MARIANAS COVENANT
THE EAST ROOM
3:14 P.M. EST
Distinguished representatives of the Northern
Marianas, distinguished Members of the Congress, members
of the Executive Branch, ladies and gentlemen:
The signing today of the joint resolution of the
Congress providing the Northern Marianas Islands Common-
wealth Covenant marks a very important moment in our
nation's history. It reaffirms our commitment to the
principles of self-determination, and it honors the freely
expressed wishes of the peoples of these islands for the
political union with the United States.
Those wishes have been recorded formally through
the resolutions, referendums and petitions to the United
Nations and to the United States, dating as far back as
1950. We can be proud of the fact that open democratic
negotiations led to the Covenant. The plebiscite con-
ducted on the islands last June resulted in a resounding
78.8 percent popular approval of the Covenant. The final
vote in the House and Senate reflected equally impressive
majorities.
I congratulate all those involved in the process--
the Marianas Political Status Commission, Ambassador Haydn
Williams, members of the American delegation, and those
Members of the Congress who worked very closely with
Ambassador Williams during the negotiations.
Let me also thank the distinguished Members, past
as well as present, of the House and Senate Interior
Committees, particularly Senator Bennett Johnston, Cliff
Hansen, Chairman James Haley, Congressmen Phil Burton, Joe
Skubitz and Bill Ketchum.
To the people of the Northern Marianas I extend
my personal greetings and my best wishes as you move
closer to your goal of self-government within the political
framework of the American family.
MORE
Page 2
I warmly welcome your eventual entrance into
the union with the United States, and as I sign this bill,
we might recall that these islands were once the scene of
bitter armed conflict. My hope now is that they will
contribute to the continuing maintenance of peace and
stability and friendship among all the peoples in all of
the nations in the Western Pacific.
Thank you all very much for coming. I can't
say enough for the cooperation that came from not only
the people of the Northern Marianas, but the Congress and
all others associated, and to you, Ambassador Williams,
we owe a great debt of gratitude.
END
(AT 3:18 P.M. EST)
FOR IMMEDIATE RELEASE
MARCH 24, 1976
Office of the White House Press Secretary
THE WHITE HOUSE
STATEMENT BY THE PRESIDENT
I am signing today an historic document -- H.J. Res. 549,
the Joint Resolution of the Congress approving the Northern
Mariana Islands Commonwealth Covenant.
It is an important occasion. First, it is a significant
step in carrying out our obligations under the United Nations
Trusteeship Agreement which has been the basis of the
United States' administration of these islands since 1947.
Second, it confirms our national commitment to the principle
of self-determination by honoring the freely expressed wishes
of the peoples of these islands for political union with the
United States. And third, the joining together of all of
the Marianas under one flag and one common citizenship
represents the first major addition to United States territory
in the Pacific since 1898.
History will show that this action has been in clear
response to the persistent desires of the Marianas people
to become permanently associated with the United States -- a
desire recorded formally through resolutions, referendums and
petitions to the United Nations and to the United States
dating as far back as 1950. History will also show that the
negotiations leading to the Covenant were conducted in an
open and highly democratic fashion, and that the Covenant's
provisions are responsive to the wishes of both the people
of the Northern Mariana Islands and the Congress of the
United States.
Those who were involved in this careful and thorough
process are to be congratulated: The Marianas Political
Status Commission, Ambassador Haydn Williams and members
of the American Delegation; those members of the Congress
who worked closely with Ambassador Williams during the
negotiations; and those who provided the leadership in
moving the joint resolution through its final stages in
the House and the Senate. I refer to the members of the
Senate and House Interior Committees including Senator
J. Bennett Johnston, Senator Paul J. Fannin, Senator
Clifford P. Hansen, Chairman James Haley, Congressman
Phil Burton, Congressman Joe Skubitz and Congressman
William M. Ketchum.
The decision to approve the Covenant was not taken
lightly by either the people of the Northern Mariana Islands
or by the Congress of the United States. Its provisions
and the significance of the islands becoming a part of the
United States were subjected to careful scrutiny and weeks
and months of debate in the Marianas and in Washington.
The plebiscite of last June was conducted in a fair and
impartial manner under the able supervision of Mr. Erwin D.
Canham, the Plebiscite Commissioner. U.N. observers were
also present. The final plebiscite vote, with 95% of those
more
2
eligible to vote casting their ballots, was a resounding
78.8% popular approval of the Covenant. Following months
of open hearings the final vote in the House and Senate
resulted in equally impressive majorities in favor of the
Commonwealth of the Northern Mariana Islands in Political
Union with the United States of America.
Next will come the challenge of planning carefully and
well for the new government of the Northern Marianas under
its own locally drawn and ratified Constitution. The framers
of that Constitution will draw on our 200 years of experience
as an independent democracy, and those residents of the
Northern Marianas who will one day be citizens of the
United States will receive the full protection of our
Bill of Rights which protects the rights of all American
citizens.
As I sign this Bill, I cannot help but remember that
these islands were once the scene of bitter armed conflict.
My hope now is that they will contribute to the continuing
maintenance of peace and stability and growing cooperation
and friendship among all of the peoples and nations of the
Western Pacific.
Finally, to the peoples of the Northern Marianas, I
extend to you on this historic day my personal greetings
and my best wishes as you move progressively closer to your
long-sought goal of self-government within the political
framework of the American family. Your entrance into
union with the United States is warmly welcomed in this
our bicentennial year.
####
glibl-E
EXECUTIVE OFFICE OF THE PRESIDENT
OFFICE OF MANAGEMENT AND BUDGET
WASHINGTON, D.C. 20503
MAR 19 1976
MEMORANDUM FOR THE PRESIDENT
Subject: Enrolled Bill H. J. Res. 549 - Northern
Mariana Islands -- Commonwealth status
Sponsors - Rep. Burton (D) California and
24 others
Last Day for Action
March 27, 1976 - Saturday
Purpose
Approves the "Covenant to Establish a Commonwealth
of the Northern Mariana Islands in Political Union
with the United States of America."
Agency Recommendations
Office of Management and Budget
Approval
Department of the Interior
Approval
Office for Micronesian Status
Approval (Signing State-
Negotiations
ment attached)
Department of Defense
Approval (Informally)
Department of State
Approval
Department of Justice
Approval
National Security Council
Approval
Discussion
The Northern Marianas consist of 21 small islands
which together with Guam (an unincorporated U.S.
territory) form the western Pacific island group
known as the Mariana Islands. Some 14,500 people
inhabit the Northern Marianas and this archipelago
plus the Carolines and the Marshall Islands consti-
tute the Trust Territory of the Pacific Islands
or as it is popularly known, Micronesia, a United
Nations strategic trusteeship under United States
administration. Under the U.N. Trusteeship Agree-
ment, the United States: (1) has maintained military
PAINT PRESIDENT CHECK a
EXECUTIVE OFFICE OF THE PRESIDENT
OFFICE OF MANAGEMENT AND BUDGET
.
DATE: 3-22-76
TO:
Bob Linder
FROM:
Jim Frey
Attached is the Defense views
letter on HJRes 549. Please
have it included in the
enrolled bill file.
OMB FORM 38
REV AUG 73
GENERAL COUNSEL OF THE DEPARTMENT OF DEFENSE
WASHINGTON, D. C. 20301
19 March 1976
Honorable James T. Lynn
Director, Office of Management
and Budget
Washington, D. C. 20503
Dear Mr. Lynn:
This is in response to your request for the views of the Department
of Defense on the enrolled enactment of H.J. Res. 549, 94th Congress,
"To approve the 'Covenant to Establish a Commonwealth of the North-
ern Mariana Islands in Political Union with the United States of America',
and for other purposes. 11
The covenant to establish a Commonwealth of the Northern Marianas
in political union with the United States clearly supports this Nation's
national security interests and defense posture in the Western Pacific.
The Department of Defense recommends that the President approve
H. J. Res. 549, in which the Congress expresses its approval of the
covenant.
Sincerely,
Rilect Richard A. a. Wiley
STATEMENT BY THE PRESIDENT
I am signing today an histric document -H.J. Res. 549,
I welcome you here today to witness an historic
event -- the signing of the Joint Resolution of the
Congress approving the Northern Mariana Islands
Commonwealth Covenant.
It is an important occasion. First, it is a
significant step in carrying out our obligations
under the United Nations Trusteeship Agreement which
has been the basis of the United States' administra-
tion of these islands since 1947. Second, it confirms
our national commitment to the principle of self-
determination by honoring the freely expressed wishes
of the peoples of these islands for political union
with the United States. And third, the joining
together of all of the Marianas under one flag and one
common citizenship represents the first major
addition to United States territory in the Pacific
since 1898.
History will show that this action has been in
clear response to the persistent desires of the
Marianas people to become permanently associated
with the United States a desire which has been
recorded formally through resolutions, referendums
and petitions to the United Nations and to the
states
United Nations dating as far back as 1950. History
will also show that the negotiations leading to the
Covenant were conducted in an open and highly
democratic fashion, and that the Covenant's provisions
are
were responsive to the wishes of both the people of
the Northern Mariana Islands and the Congress of the
United States.
Those who were involved in this careful and
thorough process are to be congratulated: The
Marianas Political Status Commission; Ambassador
Haydn Williams and members of the American Delega-
tion; those members of the Congress who worked
closely with Ambassador Williams during the
negotiations; and those who provided the leadership
in moving the joint resolution through its final
stages in the House and the Senate. I refer
to the members of the Senate and House Interior
recording
Cafford
Committees in-particular to Senator J. Bennett
and Souelar fined 7 Sension Handa
Johnston of=bouisions and Representative Phillip
Burtomer
Cakiforni Channan Jun Halay, any Phil Benton
cong goc strubily and cong Bill Hetalium
The decision to approve the Covenant was not
taken lightly by either the people of the Northern
Mariana Islands or by the Congress of the United
States. Its provisions and the significance of
the islands becoming a part of the United States were
subjected to careful scrutiny and weeks and months of
debate in the Marianas and in Washington. The United
Nations-observed plebiscite of last June was
conducted in a fair and impartial manner under the
able supervision of Mr. Erwin D. Canham, the Plebiscite
UN observers were also presents
Commissioner. The final plebiscite vote, with 95%
of those eligible to vote casting their ballots, was
a resounding 78.8% popular approval of the Covenant.
Following months of open hearings the final vote
in the House and Senate resulted in equally impressive
3
majorities in favor of the Commonwealth of the
Northern Mariana Islands in Political Union with
the United States of America.
will coml
Next comes the challenge of planning carefully
and well for the new government of the Northern
Marianas under its own locally drawn and ratified
Constitution. The framers of that Constitution will
draw on our 200 years of experience as an independent
democracy, and those residents of the Northern
Marianas who will one day be citizens of the United
States can be assured that they will receive the
full protection of our Bill of Rights which protects
the rights of all American citizens.
As I sign this Bill, I cannot help but remember
that these islands were once the scene of bitter
armed conflict. My hope now is that they will
contribute to the continuing maintenance of
peace and stability and growing cooperation and
friendship among all of the peoples and nations of
the Western Pacific.
Finally, to the peoples of the Northern Marianas,
I extend to you on this historic day my personal
greetings and my best wishes as you move progressively
closer to your long-sought goal of self-government
within the political framework of the American
family. Your entrance into union with the United
States is warmly welcomed in this our bicentennial year.
THE WHITE HOUSE
March
,
1976
THE INTERIOR
United States Department of the Interior
OFFICE OF THE SECRETARY
March
1849
WASHINGTON, D.C. 20240
3,
MAR 1 5 1976
Dear Mr. Lynn:
This responds to your request for our views on the enrolled bill
H.J. Res. 549, "To approve the 'Covenant to Establish a Common-
wealth of the Northern Mariana Islands in Political Union with
the United States.
We strongly recommend that the President approve the enrolled bill.
On July 1, 1975, the President submitted to both Houses of Congress
for their approval a "Joint Resolution Approving the 'Covenant
to Establish a Commonwealth of the Northern Mariana Islands in
Political Union with the United States of America. As enrolled,
H.J. Res. 549 is the Joint Resolution and the Covenant as trans-
mitted by the President.
On June 17, 1975, the people of the Northern Mariana Islands voted
in a plebiscite to approve the Commonwealth status as set forth in
the Covenant. This plebiscite represented the capstone to more
than twenty years of local efforts by the people of the Northern
Mariana Islands to become a permanent part of the United States.
The Covenant Agreement in H.J. Res. 549 was signed on February 15,
1975, by the Marianas Political Status Commission for the Northern
Mariana Islands, and by Ambassador F. Haydn Williams for the United
States. It is the result of more than two years of negotiations
between the United States and a broadly representative delegation
from the Northern Mariana Islands.
Because of our responsibilities in the Trust Territory of the Pacific
Islands, this Department has had an important role in the Marianas
Commonwealth negotiations. Representatives of this Department
were on the U.S. Delegation for the Marianas negotiations from the
opening round in December 1972, and provided policy assistance on
Interior Department matters.
REVOLUTION
AMERICAN
BICENTENNIAL
1776-1976
Presidential approval of H.J. Res. 549 as enrolled will represent
one more important step toward fulfillment of the obligations which
the United States undertook when the Congress approved, by joint
resolution, the United Nations Trusteeship Agreement on July 18,
1947. The Covenant, as approved by the Congress, represents the
freely expressed wish of the people of the Northern Mariana Islands,
and will enable them to move toward their long sought goal of
self-government in political union with the United States.
Sincerely yours,
Kent
Acting
Secretary of the Interior
Honorable James T. Lynn
Director, Office of
Management and Budget
Washington, D.C. 20503
2
DEPARTMENT OF STATE
Washington, D.C. 20520
MAR
16
-
Honorable James T. Lynn
Director,
Office of Management and Budget
Washington, D. C. 20503
Dear Mr. Lynn:
This is in response to Mr. James M. Frey's March 12,
1976 request for the Department's views and recom-
mendations on enrolled bill H.J. Resolution 549, to
approve the "Covenant to Establish a Commonwealth of
the Northern Mariana Islands in Political Union with
the United States of America", and for other purposes.
The Department has testified in favor of this legisla-
tion and strongly approves of this enactment.
Sincerely,
Robert Robert J McCloskey Closkey
Assistant Secretary
for Congressional Relations
ASSISTANT ATTORNEY GENERAL
LEGISLATIVE AFFAIRS
Department of Justice
Washington, D.C. 20530
March 17, 1976
Honorable James T. Lynn
Director
Office of Management and Budget
Washington, D.C. 20503
Dear Mr. Lynn:
In compliance with your request, I have examined a
facsimile of the enrolled bill H.J. Res. 549, 94th Cong.,
2d Sess., To approve the "Covenant To Establish a Common-
wealth of the Northern Mariana Islands in Political Union
with the United States of America," and for other purposes.
Section 1 of the Joint Resolution would approve the
Covenant to establish the Commonwealth of the Northern
Mariana Islands. This part of the Joint Resolution was
introduced into Congress in response to President Ford's
letters to the Speaker of the House of Representatives and
the President of the Senate of July 1, 1975, 11 Weekly
Compilation of Presidential Documents 695. At the time of
the introduction of the Joint Resolution the Department of
Justice commented in favor of the Joint Resolution not only
because it was introduced at the request of the President
but also in view of its own involvement in the drafting of
the Covenant. Since then, in a letter dated January 19,
1976, addressed to Senator Percy, the Attorney General stated
that the Department of Justice is satisfied that the Covenant
"is consistent with our constitutional system and our inter-
national obligations, and, above all, that it deals fairly
with the interests of the people of the Northern Mariana
Islands."
The Joint Resolution as originally introduced in the
House of Representatives, contained two additional sections.
The Department of Justice deferred to the views of other
directly involved agencies with respect to the first one
and was opposed to the other one. Those two sections were
deleted by the Senate.
The Senate added a new section 2 to the Joint Resolution
which expresses the sense of Congress that it supports the
consultation procedure contained in section 902 of the
Covenant. We perceive no objection to that provision.
The Department of Justice recommends Executive approval
of the bill.
Sincerely,
Wichael M. Wilmaum
Michael M. Uhlmann
Assistant Attorney General
Office of Legislative Affairs
- 2 -
MEMORANDUM
1537
NATIONAL SECURITY COUNCIL
March 15, 1976
MEMORANDUM FOR:
JAMES M. FREY
FROM:
JEANNE W. DAVIS
WH
SUBJECT:
for
NSC Recommendation on
HJ Resolution 549
The NSC concurs in HJ Resolution 549 "to establish a commonwealth
of the Northern Mariana Islands in political union with the United States
and for other purposes."
The NSC recommends that the President sign HJ Resolution 549.
THE WHITE HOUSE
WASHINGTON
March 22, 1976
MEMORANDUM FOR:
JIM CAVANAUGH
FROM:
MAX L. FRIEDERSDORF M.G.
SUBJECT:
H.J. Res. 549 - Northern Mariana Islands
Commonwealth Status
The Office of Legislative Affairs concurs with the agencies
that the
subject bill be signed.
Attachments
THE WHITE HOUSE
ACTION MEMORANDUM
WASHINGTON
LOG NO.:
Date: March 19
Time: 600pm
FOR ACTION:
George Humphreys
CC (for information):
Jim Cavanaugh
Ed Schmults
Max Friedersdorf
Rogers Morton
Ken Lazarus
NSC/S
Jack Marsh
Robert Hartmann (signing statement attached)
FROM THE STAFF SECRETARY
DUE: Date: March 22
Time:
300pm
SUBJECT:
H.J. Res. 549 - Northern Mariana Islands
Commonwealth Status
ACTION REQUESTED:
For Necessary Action
For Your Recommendations
Prepare Agenda and Brief
Draft Reply
x
For Your Comments
Draft Remarks
REMARKS:
Please return to Judy Johnston, Ground Floor West Wing
No objection -- Ken Lazarus 3/22/76
PLEASE ATTACH THIS COPY TO MATERIAL SUBMITTED.
If you have any questions or if you anticipate a
delay in submitting the required material, please
telephone the Staff Secretary immediately.
James M. Cannon
For the President
THE WHITE HOUSE
ACTION MEMORANDUM
WASHINGTON
LOG NO.:
Date: March 19
Time: 600pm
FOR ACTION:
George Humphreys
cc (for information):
Jim Cavanaugh
Ed Schmults
Max Friedersdorf
Rogers Morton
Ken Lazarus
NSC/S
Jack Marsh
Robert Hartmann (signing statement attached)
FROM THE STAFF SECRETARY
DUE: Date: March 22
Time:
300pm
SUBJECT:
H.J. Res. 549 - Northern Mariana Islands
Commonwealth Status
ACTION REQUESTED:
For Necessary Action
For Your Recommendations
Prepare Agenda and Brief
Draft Reply
x
For Your Comments
Draft Remarks
REMARKS:
Please return to Judy Johnston, Ground Floor West Wing
I Concur . 3/22/76
Gu #unphreys
PLEASE ATTACH THIS COPY TO MATERIAL SUBMITTED.
If you have any questions or if you anticipate a
delay in submitting the required material, please
telephone the Staff Secretary immediately.
James M. Cannon
For the President
THE WHITE HOUSE
ACTION MEMORANDUM
WASHINGTON
LOG NO.:
Date: March 19
Time: 600pm
FOR ACTION:
George Humphreys
CC (for information):
Jim Cavanaugh
Ed Schmults
Max Friedersdorf
Rogers Morton
Ken Lazarus
NSC/S
Jack Marsh
Robert Hartmann (signing statement attached)
FROM THE STAFF SECRETARY
DUE: Date: March 22
Time:
300pm
SUBJECT:
3/19 6:18 pm
H.J. Res. 549 - Northern Mariana Islands
Commonwealth Status
ACTION REQUESTED:
For Necessary Action
For Your Recommendations
Prepare Agenda and Brief
Draft Reply
x
For Your Comments
Draft Remarks
REMARKS:
Please return to Judy Johnston, Ground Floor West Wing
Approgable
PLEASE ATTACH THIS COPY TO MATERIAL SUBMITTED.
If you have any questions or if you anticipate a
delay in submitting the required material, please
telephone the Staff Secretary immediately.
James M. Cannon
For the President
OFFICE FOR MICRONESIAN STATUS NEGOTIATIONS
WASHINGTON, D.C. 20240
March 15, 1975
James M. Frey
Assistant Director for
Legislative Reference
Office of Management and Budget
Washington, D.C. 20503
Dear Mr. Frey:
Your office has asked our views and recommendations
on HJR 549, as amended, to approve the "Covenant to Establish
a Commonwealth of the Northern Mariana Islands in Political
Union with the United States of America, and for other
purposes". The resolution would act to extend the approval
by the United States of the political status agreement
earlier negotiated with representatives of the Northern
Mariana Islands and overwhelmingly approved by the people
of the Northern Mariana Islands in a plebiscite observed
by the United Nations Trusteeship Council. Upon termina-
tion of the United Nations Trusteeship Agreement for the
Trust Territory of the Pacific Islands the Northern Mariana
Islands would become a territory of the United States as
set forth in the Commonwealth Covenant.
On July 1, 1975, the President personally transmitted
the Commonwealth Covenant to the United States Congress for
its consideration. The President urged that the Senate
and the House take early, positive action to approve the
Northern Mariana Islands Commonwealth Covenant which will
thereupon become law in accordance with its provisions.
Favorable consideration by the Congress will represent one
more important step in the fulfillment of its obligations
which the United States undertook when the Congress approved
by joint resolution the Trusteeship Agreement on July 18,
1947. Congressional approval of the freely expressed wish
of the people of the Northern Mariana Islands will enable
them to move toward their long sought goal of self-govern-
ment in political union with the United States. The final
realization of this desired goal will be an historic event
for the people of the Northern Mariana Islands and for the
United States--an event to which I look forward with great
pleasure.
-2-
The Congress has now responded positively to the
President's request by enactment of the enrolled bill.
We strongly recommend the President approve the legis-
lation. We believe the Covenant follows the best traditions
of this nation and approval would be in the national interest.
Sincerely yours,
Mary Vance that
Mary Vance Trent
Acting Director
AdeG:kkc
STATEMENT BY THE PRESIDENT
I welcome you here today to witness an historic
event --- the signing of the Joint Resolution of the
Congress approving the Northern Mariana Islands
Commonwealth Covenant.
It is an important occasion. First, it is a
significant step in carrying out our obligations
under the United Nations Trusteeship Agreement which
has been the basis of the United States' administra-
tion of these islands since 1947. Second, it confirms
our national commitment to the principle of self-
determination by honoring the freely expressed wishes
of the peoples of these islands for political union
with the United States. And third, the joining
together of all of the Marianas under one flag and one
common citizenship represents the first major
addition to United States territory in the Pacific
since 1898.
History will show that this action has been in
clear response to the persistent desires of the
Marianas people to become permanently associated
with the United States -- a desire which has been
recorded formally through resolutions, referendums
and petitions to the United Nations and to the
United Nations dating as far back as 1950. History
will also show that the negotiations leading to the
Covenant were conducted in an open and highly
democratic fashion, and that the Covenant's provisions
were responsive to the wishes of both the people of
2
the Northern Mariana Islands and the Congress of the
United States.
Those who were involved in this careful and
thorough process are to be congratulated: The
Marianas Political Status Commission; Ambassador
Haydn Williams and members of the American Delega-
tion; those members of the Congress who worked
closely with Ambassador Williams during the
negotiations; and those who provided the leadership
in moving the joint resolution through its final
stages in the House and the Senate. I refer
to the members of the Senate and House Interior
Committees and in particular to Senator J. Bennett
Johnston of Louisiana, and Representative Phillip
Burton of California.
The decision to approve the Covenant was not
taken lightly by either the people of the Northern
Mariana Islands or by the Congress of the United
States. Its provisions and the significance of
the islands becoming a part of the United States were
subjected to careful scrutiny and weeks and months of
debate in the Marianas and in Washington. The United
Nations-observed plebiscite of last June was
conducted in a fair and impartial manner under the
able supervision of Mr. Erwin D. Canham, the Plebiscite
Commissioner. The final plebiscite vote, with 95%
of those eligible to vote casting their ballots, was
a resounding 78.8% popular approval of the Covenant.
Following months of open hearings the final vote
in the House and Senate resulted in equally impressive
3
majorities in favor of the Commonwealth of the
Northern Mariana Islands in Political Union with
the United States of America.
Next comes the challenge of planning carefully
and well for the new government of the Northern
Marianas under its own locally drawn and ratified
Constitution. The framers of that Constitution will
draw on our 200 years of experience as an independent
democracy, and those residents of the Northern
Marianas who will one day be citizens of the United
States can be assured that they will receive the
full protection of our Bill of Rights which protects
the rights of all American citizens.
As I sign this Bill, I cannot help but remember
that these islands were once the scene of bitter
armed conflict. My hope now is that they will
contribute to the continuing maintenance of
peace and stability and growing cooperation and
friendship among all of the peoples and nations of
the Western Pacific.
Finally, to the peoples of the Northern Marianas,
I extend to you on this historic day my personal
greetings and my best wishes as you move progressively
closer to your long-sought goal of self-government
within the political framework of the American
family. Your entrance into union with the United
States is warmly welcomed in this our bicentennial year.
THE WHITE HOUSE
March
, 1976
THE WHITE HOUSE
WASHINGTON
Jack Marsh: in response to your
comment on the Northern Mariana
Islands statement, Bob Wolthius
has made the attac ed change. Is this
o.k.
Judy Johnston 3/23
OR
THE WHITE HOUSE
MAR 10 1976
ACTION MEMORANDUM
WASHINGTON
LOG NO.:
due dui3/22 3/22
Date: March 19
Time: 600pm
3.00
FOR ACTION:
cc (for information):
Jim Cavanaugh
George Humphreys
Ed Schmults
Max Friedersdorf
Rogers Morton
Ken Lazarus
NSC/S
Jack Marsh
Robert Hartmann (signing statement attached)
FROM THE STAFF SECRETARY
DUE: Date: March 22
Time:
300pm
SUBJECT:
H.J. Res. 549 - Northern Mariana Islands
Commonwealth Status
ACTION REQUESTED:
For Necessary Action
For Your Recommendations
Prepare Agenda and Brief
Draft Reply
X For Your Comments
Draft Remarks
REMARKS:
Please return to Judy Johnston, Ground Floor West Wing
Cancer, but in statement Ba2
mention Senate of House minai hy
too members as well as golucton +
But on.
PLEASE ATTACH THIS COPY TO MATERIAL SUBMITTED.
If you have any questions or if you anticipate a
delay in submitting the required material, please
telephone the Staff Secretary immediately.
James M. Cannon
For the President
the Northern Mariana Islands and the Congress of the
United States.
Those who were involved in this careful and
thorough process are to be congratulated: The
Marianas Political Status Commission; Ambassador
Haydn Williams and members of the American Delega-
tion; those members of the Congress who worked
closely with Ambassador Williams during the
negotiations; and those who provided the leadership
in moving the joint resolution through its final
stages in the House and the Senate. I refer
to the members of the Senate and House Interior
recording
Committees
in
Senator J. Bennett
cafford
Somelar
jant
Janssin
Seve-tor
Have
Johnston
of
Chanman Jun Halay, cong
cong goe shubity and cong Bill /detalism
The decision to approve the Covenant was not
taken lightly by either the people of the Northern
Mariana Islands or by the Congress of the United
States. Its provisions and the significance of
the islands becoming a part of the United States were
subjected to careful scrutiny and weeks and months of
debate in the Marianas and in Washington. The United
Nations-observed plebiscite of last June was
conducted in a fair and impartial manner under the
able supervision of Mr. Erwin D. Canham, the Plebiscite
Commissioner. The final plebiscite vote, with 95%
of those eligible to vote casting their ballots, was
a resounding 78.8% popular approval of the Covenant.
Following months of open hearings the final vote
in the House and Senate resulted in equally impressive
er)
March 23, 1976
SECOND DRAFT
PRESIDENTIAL TALKING POINTS AT SIGNING OF MARIANAS CONVENANT,
WEDNESDAY, MARCH 24, 1976
The signing today of the Joint Resolution of the Congress
approving the Northern Marianas Islands Commonwealth Covenant
marks an important moment in our Nation's history. It reaffirms
our commitment to the principle of self-determination. And it honors
the freely expressed wishes of the peoples of these islands for political
union with the United States.
Those wishes have been recorded formally through
resolutions, referendums and petitions to the United Nations and to
the United States, dating as far back as 1950.
We can be proud of the fact that open, democratic
negotiations led to the Covenant.
The plebiscite, conducted in the Islands last June,
resulted in a resounding 78.8 percent popular approval of the Covenant.
Following months of open hearings, the final vote in the House and
Senate reflected equally impressive majorities.
-2-
I congratulate all those involved in this process: the
Marianas Political Status Commission, Ambassador Haydn Williams
and members of the American Delegation and the distinguished members
of the Senate and House [Interior] Committees on cerned have with us today.
To the people of the Northern Marianas, I extend my
personal greetings and my best wishes as you move closer to your
goal of self-government within the political framework of the American
family. I warmly welcome your eventual entrance into union with the
United States.
As I sign this Bill, we might recall that these islands
were once the scene of bitter armed conflict. My hope now is that
they will contribute to the continuing maintenance of peace, stability,
and friendship among all of the people and nations of the Western
Pacific.
###
THE WHITE HOUSE
MAR 10 1976
ACTION MEMORANDUM
WASHINGTON
LOG NO.: dui3/22
Date: March 19
Time: 600pm
3:00
FOR ACTION:
CC (for information):
Jim Cavanaugh
George Humphreys
Ed Schmults
Max Friedersdorf
Rogers Morton
Ken Lazarus
NSC/S
Jack Marsh
Robert Hartmann (signing statement attached)
FROM THE STAFF SECRETARY
DUE: Date: March 22
Time:
300pm
SUBJECT:
H.J. Res. 549 - Northern Mariana Islands
Commonwealth Status
ACTION REQUESTED:
For Necessary Action
For Your Recommendations
Prepare Agenda and Brief
Draft Reply
x
For Your Comments
Draft Remarks
REMARKS:
Please return to Judy Johnston, Ground Floor West Wing
Cancer, but in statement B92
mention Senate I Honse minai hy
the members as well as golucton +
Benton.
PLEASE ATTACH THIS COPY TO MATERIAL SUBMITTED.
If you have any questions or if you anticipate a
delay in submitting the required material, please
telephone the Staff Secretary immediately.
James M. Cannon
For the President
OFFICE PTM TM PRESIDENT STATE a UNITED
EXECUTIVE OFFICE OF THE PRESIDENT
OFFICE OF MANAGEMENT AND BUDGET
DATE: 3-22-76
TO:
Bob Linder
FROM:
Jim Frey
Attached is the Defense views
letter on HJRes 549. Please
have it included in the
enrolled bill file.
OMB FORM 38
REV AUG 73
OF DIFENSE
GENERAL COUNSEL OF THE DEPARTMENT OF DEFENSE
WASHINGTON, D. C. 20301
STATES OF of AMERICA
19 March 1976
Honorable James T. Lynn
Director, Office of Management
and Budget
Washington, D. C. 20503
Dear Mr. Lynn:
This is in response to your request for the views of the Department
of Defense on the enrolled enactment of H.J. Res. 549, 94th Congress,
"To approve the 'Covenant to Establish a Commonwealth of the North-
ern Mariana Islands in Political Union with the United States of America',
and for other purposes. "
The covenant to establish a Commonwealth of the Northern Marianas
in political union with the United States clearly supports this Nation's
national security interests and defense posture in the Western Pacific.
The Department of Defense recommends that the President approve
H. J. Res. 549, in which the Congress expresses its approval of the
covenant.
Sincerely,
Richard Ribul A. a. Wiley nilaz
NATIONAL SECURITY COUNCIL
March 23, 1976
TO:
JUDY JOHNSTON (WW)
FROM:
JAY TAYLOR
Draft Statement for President Ford at
Marianas Covenant Signing
I welcome you here today to witness an historic event -- the
signing of the Joint Resolution of the Congress approving the Northern
Marianas Islands Commonwealth Covenant.
It is an important occasion. First, it is a significant step in
carrying out our obligations under the United Nations Trusteeship
Agreement which has been the basis of the United States' administration
of these islands since 1947. Second, it confirms our national commitment
to the principle of self-determination by honoring the freely expressed
wishes of the peoples of these islands for political union with the
United States. And third, it represents the joining of all of the Marianas
under one flag and one common citizenship for the first time since 1898.
History will show that this action has been in clear response to
the persistent desires of the Marianas people to become permanently
associated with the United States -- a desire recorded formally
through resolutions, referendums and petitions to the U.N. and to the
U.S. dating as far back as 1950. History will also show that open
and highly democratic negotiations led to the Covenant, and that the
Covenant's provisions are responsive to the wishes of both the people
of the Northern Marianas Islands and the Congress of the United States.
I congratulate all those involved in this careful and thoroughn
process; the Marianas Political Status Commission; Ambassador Haydn
Williams and members of the American Delegation; those members
of the Congress who worked closely with Ambassador Williams during
2
the negotiations and those who provided the leadership in moving the
joint resolution through its final stages in the House and the Senate. I
refer to the members of the Senate and House Interior Committees
and in particular to Senator J. Bennett Johnston of Lousiana, and
Representative Phillip Burton of California.
Neither the people of the Northern Marianas Islands nor the
Congress of the United States took lightly the decision to approve the
Covenant. There was careful scrutiny and weeks and months of
debate in the Marianas and in Washington on its provisions and the
significance of the islands becoming a part of the United States. The
plebiscite of last June was conducted in a fair and impartial manner
under the able supervision of Mr. Erwin D. Canham, the Plebiscite
Commissioner. U.N. observers were also present. The final plebiscite
vote, with 95 percent of those eligible to vote casting their ballots, was
a resounding 78. 8 percent popular approval of the Covenant. Following
months of open hearings the final vote in the House and Senate resulted
in equally impressive majorities in favor theof the Commonwealth of
the Northern Marianas Islands in Political Union with the United States
of America.
Next comes the challenge of planning carefully and well for the
new government of the Northern Marianas under its own locally drawan
and ratified Constitution. The framers of that Constitution will draw
on our 200 years of experience as an independent democracy, and those
residents of the Northern Marianas who will one day be citizens of the
3
United States will receive the full protection of our Bill of Rights
which protects all American citizens.
As I sign this Bill, I cannot help but remember that these islands
were once the scene of bitter armed conflict. My hope now is that they
will contribute to the continuing maintenance of peace and stability
and growing cooperation and friendship among all of the peoples and
nations of the Western Pacific.
Finally, to the peoples of the Northern Marianas I extend to you
on this historic day my personal greetings and my best wishes as you
move progressively closer to your long-sought goal of self-government
within the political framework of the American family. I warmly
welcome your eventual entrance into union with the United States in
this our bicentennial year.
DRAFT STATEMENT FOR PRESIDENT FORD AT
MARIANAS COVENANT SIGNING
I welcome you here today to witness an historic event--
the signing of the Joint Resolution of the Congress approving
the Northern Mariana Islands Commonwealth Covenant.
It is an important occasion. First, it is a significant
step in carrying out our obligations under the United Nations
Trusteeship Agreement which has been the basis of the United
States' administration of these islands since 1947. Second,
it confirms our national commitment to the principle of self-
determination by honoring the freely expressed wishes of the
peoples of these islands for political union with the United
it peprednts
States. And third, the joining together of all of the
first
Marianas under one flag and one common citizenship epresents
the first major addition to United States territory in the
Pacific since 1898.
Hístory will show that this action has been in clear
response to the persistent desires of the Marianas people
to become permanently associated with the United States--a
desire which has been recorded formally through resolutions,
referendums and petitions to the U.N. and to the U.S. dating
open and hig democlatic
as far Led back as 1950. History will also show that the negoti-
ations leading to the Covenant, were conducted in an open and
highly democratic fashion, and that the Covenant's provisions
were responsive to the wishes of both the people of the Northern
Mariana Islands and the Congress of the United States.
all
Congratulate
those
-2-
Those who were involved in this careful and thorough pro-
cess, are to be congratulated:] The Marianas Political Status
Commission; Ambassador Haydn Williams and members of the
American Delegation; those members of the Congress who worked
closely with Ambassador Williams during the negotiations and
those who provided the leadership in moving the joint resolu-
tion through its final stages in the House and the Senate. I
refer to the members of the Senate and House Interior Commit-
tees and in particular to Senator J. Bennett Johnston of
Louisiana, and Representative Phillip Burton of California.
The decision to approve the Covenant was not taken lightly
non
by either the people of the Northern Mariana Islands or by
took Lightly
the Congress of the United States
provisions and the
significance of the islands becoming
a part of the United
There
States, were subjected.to careful scrutiny and weeks and months
on
of debate in the Marianas and in Washington
The
United
Nations-observed plebiscite of last June was conducted in a
you
fair and impartial manner under the able supervision of
UN observers weals present.
yrs
Mr. Erwin D. Canham, the Plebiscite Commissioner The final
plebiscite vote, with 95% of those eligible to vote casting
their ballots, was a resounding 78.8% popular approval of the
Covenant. . Following months of open hearings the final vote
in the House and Senate resulted in equally impressive majorities
in favor of the Commonwealth of the Northern Mariana Islands in
Political Union with the United States of America.
-3-
Next comes the challenge of planning carefully and well
for the new government of the Northern Marianas under its own
locally drawn and ratified Constitution. The framers of that
Constitution will draw on our 200 years of experience as an
independent democracy, and those residents of the Northern
Marianas who will one day be citizens of the United States
gle
can be assured that they will receive the full protection of
our Bill or Rights which protects the rights of all American
citizens.
As I sign this Bill, I cannot help but remember that these
islands were once the scene of bitter armed conflict. My hope
now is that they will contribute to the continuing maintenance
of peace and stability and growing cooperation and friendship
among all of the peoples and nations of the Western Pacific.
Finally, to the peoples of the Northern Marianas I extend
to you on this historic day my personal greetings and my best
wishes as you move progressively closer to your long-sought
goal of self-government within the political framework of the
Eventual
American family Your/entrance into union with the United
States is warmly welcomed in this our bicentennial year.
STATEMENT BY THE PRESIDENT
I am signing today anhistric document, -H.J. Res. 549,
I welcome you here today to witness an historic
event -- the signing the Joint Resolution of the
Congress approving the Northern Mariana Islands
Commonwealth Covenant.
It is an important occasion. First, it is a
significant step in carrying out our obligations
under the United Nations Trusteeship Agreement which
has been the basis of the United States' administra-
tion of these islands since 1947. Second, it confirms
our national commitment to the principle of self-
determination by honoring the freely expressed wishes
of the peoples of these islands for political union
with the United States. And third, the joining
together of all of the Marianas under one flag and one
common citizenship represents the first major
addition to United States territory in the Pacific
since 1898.
History will show that this action has been in
clear response to the persistent desires of the
Marianas people to become permanently associated
with the United States a desire which
recorded formally through resolutions, referendun
and petitions to the United Nations and to the
United Nations states dating as far back as 1950. History
will also show that the negotiations leading to the
Covenant were conducted in an open and highly
democratic fashion, and that the Covenant's provisions
are
were responsive to the wishes of both the people of
2
the Northern Mariana Islands and the Congress of the
United States.
Those who were involved in this careful and
thorough process are to be congratulated: The
Marianas Political Status Commission; Ambassador
Haydn Williams and members of the American Delega-
tion; those members of the Congress who worked
closely with Ambassador Williams during the
negotiations; and those who provided the leadership
in moving the joint resolution through its final
stages in the House and the Senate. I refer
to the members of the Senate and House Interior
nceding
Committees Senator J. Bennett
and
Someon
Paul
,
Lena
cofford
Johnston
Chairman Jun Hally, any Phil Benter
cong goe shulity and cong Bill Hetelim
The decision to approve the Covenant was not
taken lightly by either the people of the Northern
Mariana Islands or by the Congress of the United
States. Its provisions and the significance of
the islands becoming a part of the United States were
subjected to careful scrutiny and weeks and months of
debate in the Marianas and in Washington. The United
Nat aved plebiscite of last June was
conducted in a fair and impartial manner under the
able supervision of Mr. Erwin D. Canham, the Plebiscite
UN observer were also presents
Commissioner. The final plebiscite vote, with 95%
of those eligible to vote casting their ballots, was
a resounding 78.8% popular approval of the Covenant.
Following months of open hearings the final vote
in the House and Senate resulted in equally impressive
3
majorities in favor of the Commonwealth of the
Northern Mariana Islands in Political Union with
the United States of America.
will come
Next comes the challenge of planning carefully
and well for the new government of the Northern
Marianas under its own locally drawn and ratified
Constitution. The framers of that Constitution will
draw on our 200 years of experience as an independent
democracy, and those residents of the/Northern
Marianas who will one day be citizens of the United
States can be assured that they will receive the
full protection of our Bill of Rights which protects
the rights of all American citizens.
As I sign this Bill, I cannot help but remember
that these islands were once the scene of bitter
armed conflict. My hope now is that they will
contribute to the continuing maintenance of
peace and stability and growing cooperation and
friendship among all of the peoples and nations of
the Western Pacific.
Finally, to the peoples of the Northern Marianas,
I extend to you on this historic day my personal
greetings and my best wishes as you move progressively
closer to your long-sought goal of self-government
within the political framework of the American
family. Your entrance into union with the United
States is warmly welcomed in this our bicentennial year.
THE WHITE HOUSE
March
,
1976
April 15, 1976
SUBJECT: Presidential action with regard to the establishment of the "Commonwealth
of the Northern Mariana Islands"
INFO FROM: Mary Trent and Mr. Adrian DeGraffenried, Office of Micronesian Status
Negotiations (Interagency Group headed by the President's Personal
Representative for Micronesian Status Negotiations - Ambassador Franklin
Haydn Williams) PHONE: 343-9143
Mr. James Berg, Office of Territorial Affairs (Interior) PHONE: 343-6973
1. On March 24, 1976, the President signed H.J. Res. 549, thereby approving the
"Covenant to Establish a Commonwealth of the Northern Mariana Islands in Poli-
tical Union with the United States of America." (P.L. 94-241) NOTE: The
Northern Mariana Islands currently make up one of the Districts of the Trust
Territory of the Pacific Islands (popularly known as Micronesia), which is
administered by the United States as a result of the Trusteeship Agreement
between the Security Council of the U.N. and the U.S.A. (1947).
2. The new constitution for the Northern Mariana Islands will be drawn up at a local
constitutional convention. It will be submitted to the President on behalf of
the Government of the United States, and will be deemed to have been approved six
months after its submission unless earlier approved or disapproved (Section 202
of the Covenant). Procedure for the consideration of the constitution, including
the question of to what extent, if any, Congress will be involved, has not yet
been determined.
3. Within 180 days of the approval of the constitution the President will proclaim an
effective date for the constitution and certain provisions of the Covenant (Section
1003(b)). The Secretary of the Interior will recommend a date to the President.
However, if the President finds that the effectiveness of any of the provisions of
the Mariana constitution would be inconsistent with the Trusteeship Agreement, he
may declare them ineffective until the termination of the Trusteeship Agreement
(Section 1004(b)).
4. Target date for completion of all actions described in #2 and #3 is January 1, 1978.
5. Section 1004(a) provides that the application of any provision of the Constitution
or laws of the United States which would otherwise apply to the Northern Mariana
Islands may be suspended until termination of the Trusteeship Agreement if the
the President finds and declares that the application of such provision prior to
termination would be inconsistent with the Trusteship Agreement. This is intended
to give the President some flexibility to prevent a law which otherwise might be
made applicable by the formula set forth in Section 502 or otherwise, from being
applicable if it would conflict with the international obligations which the U.S.
undertook in the Trusteeship Agreement.
(Continued)
-2-
6. Interior, through its Office of Territorial Affairs, will be contacting the White
House as to its recommendations for the President's appointments to the Commission
on Federal Laws (Section 504). These recommendations are not expected to be made
until 6-8 months from now (perhaps around November of 1976).
7. The President will issue a Proclamation announcing the termination of the Trusteeship
Agreement and the establishment of the Commonwealth of the Northern Mariana Islands
(Section 1002). The termination of the Trusteeship Agreement will affect all of the
Districts of the Trust Territory, and negotiations with the other Districts as to
what their political status will be after the Agreement is terminated is still con-
tinuing and not expected to be completed until 1981 or later. The Trusteeship
Agreement will not be terminated until these negotiations have been completed, and
the procedure. by which the Agreement will be terminated has not yet been defined.
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"ocrText": "The original documents are located in Box 41, folder \"1976/03/24 HJR549 Northern\nMariana Islands-Commonwealth Status (1)\" of the White House Records Office:\nLegislation Case Files at the Gerald R. Ford Presidential Library.\nCopyright Notice\nThe copyright law of the United States (Title 17, United States Code) governs the making of\nphotocopies or other reproductions of copyrighted material. Gerald R. Ford donated to the United\nStates of America his copyrights in all of his unpublished writings in National Archives collections.\nWorks prepared by U.S. Government employees as part of their official duties are in the public\ndomain. The copyrights to materials written by other individuals or organizations are presumed to\nremain with them. If you think any of the information displayed in the PDF is subject to a valid\ncopyright claim, please contact the Gerald R. Ford Presidential Library.\nExact duplicates within this folder were not digitized.\nDigitized from Box 41 of the White House Records Office Legislation Case Files at the Gerald R. Ford Presidential Library\nAPPROVED\nACTION\nMAR 24 1976\nTHE WHITE HOUSE\nWASHINGTON\nLast Day: March 27\nMarch 24, 1976\nstatement at\nceremony Gramony for Issued\nMEMORANDUM FOR\nTHE PRESIDENT\nFROM:\nJIM CANNON\nJo archines\nSUBJECT:\nH.J. Res. 549 - Northern\n3/25/76\nMariana Islands -- Commonwealth Status\nAttached for your consideration is H.J. Res. 549, sponsored\nby Representative Burton and twenty-four others, which\napproves the \"Covenant to Establish a Commonwealth of\nthe Northern Mariana Islands in Political Union with\nthe United States of America.\"\nA detailed discussion of the enrolled bill is provided\nin OMB's enrolled bill report at Tab A.\nOMB, Max Friedersdorf, Jack Marsh, Counsel's Office\n(Lazarus), NSC and I recommend approval of the\nenrolled bill and the proposed signing statement\nwhich has been cleared by Bob Hartmann.\nRECOMMENDATION\nThat you sign H.J. Res. 549 at Tab B.\nThat you approve MC7 the signing statement at Tab C.\nApprove\nDisapprove\nSTATE FORD\nESIDENT\nEXECUTIVE OFFICE OF THE PRESIDENT\nUNITED\nOFFICE OF MANAGEMENT AND BUDGET\nSECUTIVE\nSTATES\nWASHINGTON, D.C. 20503\nMAR 19 1976\nMEMORANDUM FOR THE PRESIDENT\nSubject: Enrolled Bill H. J. Res. 549 - Northern\nMariana Islands --- Commonwealth status\nSponsors - Rep. Burton (D) California and\n24 others\nLast Day for Action\nMarch 27, 1976 - Saturday\nPurpose\nApproves the \"Covenant to Establish a Commonwealth\nof the Northern Mariana Islands in Political Union\nwith the United States of America.\"\nAgency Recommendations\nOffice of Management and Budget\nApproval\nDepartment of the Interior\nApproval\nOffice for Micronesian Status\nApproval (Signing State-\nNegotiations\nment attached)\nDepartment of Defense\nApproval (Informally)\nDepartment of State\nApproval\nDepartment of Justice\nApproval\nNational Security Council\nApproval\nDiscussion\nThe Northern Marianas consist of 21 small islands\nwhich together with Guam (an unincorporated U.S.\nterritory) form the western Pacific island group\nknown as the Mariana Islands. Some 14,500 people\ninhabit the Northern Marianas and this archipelago\nplus the Carolines and the Marshall Islands consti-\ntute the Trust Territory of the Pacific Islands\nor as it is popularly known, Micronesia, a United\nNations strategic trusteeship under United States\nadministration. Under the U.N. Trusteeship Agree-\nment, the United States: (1) has maintained military\n2\nfacilities in Micronesia for preserving peace and\ninternational security while (2) being responsible\nfor furthering Micronesian political, economic, and\nsocial development toward self-government and/or\nindependence in accordance with the will of the\npeoples concerned. Largely because of cultural and\nlanguage differences, Micronesia presently is\nsubdivided into six administrative districts of which\nthe Northern Marianas is one.\nThe United States policy concerning any new status\nfor Micronesia initially was to strive for a single\nnew status for the entire Trust Territory rather\nthan to conduct separate status discussions with\nany of the individual districts. In the early 1970's,\nwhen it became increasingly clear that most of the\nMicronesian negotiators were striving for a less\nclose future relationship with the United States,\nthe Northern Mariana District requested and the\nUnited States agreed to initiate separate status\nnegotiations with them. Since the very beginning\nof the U.N. Trusteeship Agreement, the people of the\nNorthern Marianas repeatedly have expressed a strong\ndesire for a close political relationship with the\nUnited States, and in light of the continuing\nuncertainty concerning the other Micronesian\ndistricts' future status, separate status negotiations\nwere agreed upon.\nAccordingly, in 1972, the President's Personal\nRepresentative for Micronesian Status Negotiations,\nAmbassador Franklin Haydn Williams, commenced the\nMarianas' Status Talks which were concluded in\nFebruary of 1975 with the signing of the \"Covenant\nto Establish a Commonwealth of the Northern Mariana\nIslands in Political Union with the United States of\nAmerica.\" The Covenant's ten Articles are briefly\noutlined below:\nI. Political Relationship, upon termination\nof the Trusteeship Agreement, to be a self-\ngoverning Commonwealth under the sovereignty\nof the United States which will have complete\nresponsibility for and authority over\nforeign affairs and defense matters.\n3\nII. Constitution to be locally formulated to\nprovide for a republican form of government\nsimilar to that of United States.\nIII. United States Citizenship to be conferred on\nthose qualified Marianans desiring it,\nat the time the Presidential Proclamation to\nterminate the Trusteeship Agreement is\npromulgated.\nIV. Judicial Authority to be divided between\nthe judiciary established by the Northern\nMariana Constitution and a U.S. District\nCourt which will be part of the same U.S.\njudicial circuit as Guam.\nV. Applicability of Laws of the United States,\nincluding specific sections of the U.S.\nConstitution, certain specific laws\nitemized in the Covenant, including Section\n228 of Title II and Title XVI of the\nSocial Security Act as it applies to the\nseveral States, and other laws as enacted\nby the Congress pursuant to recommendations\nby a Commission on Federal Laws required by\nSection 504 of the Covenant.\nVI. Revenue and Taxation provisions apply United\nStates income taxes as a territorial tax and\ncustoms duties, but the Northern Marianas\nGovernment may levy additional taxes. The\nNorthern Marianas will not be included\nwithin the Customs Territory of the United\nStates. Taxes and duties will be rebated\nfor use by the Northern Marianas Government.\nVII. U. S. Financial Assistance in the form of\ndirect grants of $14 million each year for\nseven years for government operations,\ncapital improvement projects, and economic\ndevelopments; to be adjusted to reflect\nchanges in Gross National Product Implicit\nPrice Deflation and to be continued after\n4\nthe original seven years at the same\nlevels unless otherwise provided by\nCongress. In addition, the Northern\nMarianas will receive the full range of\nFederal programs and services which are\navailable to the territories of the United\nStates.\nVIII. Trust Territory Property to be transferred\nto the Government of the Northern Marianas;\nUnited States to hold a five-year option to\nlease for up to one hundred years, 17,799\nacres on Tinian Island together with\nvarious other sites to enable it to carry\nout its defense responsibilities upon pay-\nment of $19,250,000.\nIX. Representation for the Northern Marianas\nprovided by a Resident Representative to\nthe United States if provided for by the\nNorthern Marianas' constitution or law.\nX. Effective Dates provide for a phasing in of\nthe provisions with (a) some becoming\neffective upon approval of the Covenant by\nthe United States, (b) others within 180\ndays after approval by the United States\nof the Northern Mariana constitution, and\n(c) the rest upon the termination of the\nU.N. Trusteeship Agreement and the establish-\nment of the Commonwealth of the Northern\nMariana Islands.\nThe above cited Covenant was presented, as required,\nfor approval by the people of the Northern Marianas\nin a plebiscite called by the United States with\nUnited Nations Trusteeship Council observers, on\nJune 17, 1975. Of the registered voters, 95 percent\nparticipated, and of those who voted, 78.8 percent\nvoted in favor of the Covenant. Subsequently, on\nJuly 1, 1975, you transmitted the Covenant to Congress\nand requested prompt and favorable consideration of the\nmeasure.\nH. J. Res. 549, as enrolled, is identical to the\nCovenant you submitted to Congress last year except\n5\nthat the Senate added a new section 2 which expresses\nthe sense of Congress that it supports the consulta-\ntion procedure contained in section 902 of the\nCovenant.\nIn its letter on H. J. Res. 549, Interior reflected\nthe general position taken by all the Executive\nBranch agencies making recommendations on the\nenrolled bill when it stated that:\n\"Presidential approval of H. J. Res. 549\nas enrolled will represent one more\nimportant step toward fulfillment of the\nobligations which the United States\nundertook when the Congress approved, by\njoint resolution, the United Nations\nTrusteeship Agreement on July 18, 1947.\nThe Covenant, as approved by the Congress,\nrepresents the freely expressed wish of\nthe people of the Northern Mariana\nIslands, and will enable them to move\ntoward their long sought goal of self-\ngovernment in political union with the\nUnited States.\"\nJames M. James Frey\nThey\nAssistant Director for\nLegislative Reference\nEnclosure\nSTATEMENT BY THE PRESIDENT\nI am signing today an historic document -- H.J. Res. 549,\nthe Joint Resolution of the Congress approving the Northern\nMariana Islands Commonwealth Covenant.\nIt is an important occasion. First, it is a significant\nstep in carrying out our obligations under the United Nations\nTrusteeship Agreement which has been the basis of the\nUnited States' administration of these islands since 1947.\nSecond, it confirms our national commitment to the principle\nof self-determination by honoring the freely expressed wishes\nof the peoples of these islands for political union with the\nUnited States. And third, the joining together of all of\nthe Marianas under one flag and one common citizenship\nrepresents the first major addition to United States territory\nin the Pacific since 1898.\nHistory will show that this action has been in clear\nresponse to the persistent desires of the Marianas people\nto become permanently associated with the United States -- a\ndesire recorded formally through resolutions, referendums and\npetitions to the United Nations and to the United States\ndating as far back as 1950. History will also show that the\nnegotiations leading to the Covenant were conducted in an\nopen and highly democratic fashion, and that the Covenant's\nprovisions are responsive to the wishes of both the people\nof the Northern Mariana Islands and the Congress of the\nUnited States.\nThose who were involved in this careful and thorough\nprocess are to be congratulated: The Marianas Political\nStatus Commission; Ambassador Haydn Williams and members\nof the American Delegation; those members of the Congress\n2\nwho worked closely with Ambassador Williams during the\nnegotiations; and those who provided the leadership in\nmoving the joint resolution through its final stages in\nthe House and the Senate. I refer to the members of the\nSenate and House Interior Committees including Senator\nJ. Bennett Johnston, Senator Paul J. Fannin, Senator\nClifford P. Hansen, Chairman James Haley, Congressman\nPhil Burton, Congressman Joe Skubitz and Congressman\nWilliam M. Ketchum.\nThe decision to approve the Covenant was not taken\nlightly by either the people of the Northern Mariana Islands\nor by the Congress of the United States. Its provisions\nand the significance of the islands becoming a part of the\nUnited States were subjected to careful scrutiny and weeks\nand months of debate in the Marianas and in Washington.\nThe plebiscite of last June was conducted in a fair and\nimpartial manner under the able supervision of Mr. Erwin D.\nCanham, the Plebiscite Commissioner. U.N. observers were\nalso present. The final plebiscite vote, with 95% of those\neligible to vote casting their ballots, was a resounding\n78.8% popular approval of the Covenant. Following months\nof open hearings the final vote in the House and Senate\nresulted in equally impressive majorities in favor of the\nCommonwealth of the Northern Mariana Islands in Political\nUnion with the United States of America.\nNext will come the challenge of planning carefully and\nwell for the new government of the Northern Marianas under\nits own locally drawn and ratified Constitution. The framers\nof that Constitution will draw on our 200 years of experience\nas an independent democracy, and those residents of the\n3\nNorthern Marianas who will one day be citizens of the\nUnited States will receive the full protection of our\nBill of Rights which protects the rights of all American\ncitizens.\nAs I sign this Bill, I cannot help but remember that\nthese islands were once the scene of bitter armed conflict.\nMy hope now is that they will contribute to the continuing\nmaintenance of peace and stability and growing cooperation\nand friendship among all of the peoples and nations of the\nWestern Pacific.\nFinally, to the peoples of the Northern Marianas, I\nextend to you on this historic day my personal greetings\nand my best wishes as you move progressively closer to your\nlong-sought goal of self-government within the political\nframework of the American family. Your entrance into\nunion with the United States is warmly welcomed in this\nour bicentennial year.\nHerald P. Ford\nFOR IMMEDIATE RELEASE\nMARCH 24, 1976\nOFFICE OF THE WHITE HOUSE PRESS SECRETARY\nTHE WHITE HOUSE\nREMARKS OF THE PRESIDENT\nUPON SIGNING H.J. RES. 549\nTHE MARIANAS COVENANT\nTHE EAST ROOM\n3:14 P.M. EST\nDistinguished representatives of the Northern\nMarianas, distinguished Members of the Congress, members\nof the Executive Branch, ladies and gentlemen:\nThe signing today of the joint resolution of the\nCongress providing the Northern Marianas Islands Common-\nwealth Covenant marks a very important moment in our\nnation's history. It reaffirms our commitment to the\nprinciples of self-determination, and it honors the freely\nexpressed wishes of the peoples of these islands for the\npolitical union with the United States.\nThose wishes have been recorded formally through\nthe resolutions, referendums and petitions to the United\nNations and to the United States, dating as far back as\n1950. We can be proud of the fact that open democratic\nnegotiations led to the Covenant. The plebiscite con-\nducted on the islands last June resulted in a resounding\n78.8 percent popular approval of the Covenant. The final\nvote in the House and Senate reflected equally impressive\nmajorities.\nI congratulate all those involved in the process--\nthe Marianas Political Status Commission, Ambassador Haydn\nWilliams, members of the American delegation, and those\nMembers of the Congress who worked very closely with\nAmbassador Williams during the negotiations.\nLet me also thank the distinguished Members, past\nas well as present, of the House and Senate Interior\nCommittees, particularly Senator Bennett Johnston, Cliff\nHansen, Chairman James Haley, Congressmen Phil Burton, Joe\nSkubitz and Bill Ketchum.\nTo the people of the Northern Marianas I extend\nmy personal greetings and my best wishes as you move\ncloser to your goal of self-government within the political\nframework of the American family.\nMORE\nPage 2\nI warmly welcome your eventual entrance into\nthe union with the United States, and as I sign this bill,\nwe might recall that these islands were once the scene of\nbitter armed conflict. My hope now is that they will\ncontribute to the continuing maintenance of peace and\nstability and friendship among all the peoples in all of\nthe nations in the Western Pacific.\nThank you all very much for coming. I can't\nsay enough for the cooperation that came from not only\nthe people of the Northern Marianas, but the Congress and\nall others associated, and to you, Ambassador Williams,\nwe owe a great debt of gratitude.\nEND\n(AT 3:18 P.M. EST)\nFOR IMMEDIATE RELEASE\nMARCH 24, 1976\nOffice of the White House Press Secretary\nTHE WHITE HOUSE\nSTATEMENT BY THE PRESIDENT\nI am signing today an historic document -- H.J. Res. 549,\nthe Joint Resolution of the Congress approving the Northern\nMariana Islands Commonwealth Covenant.\nIt is an important occasion. First, it is a significant\nstep in carrying out our obligations under the United Nations\nTrusteeship Agreement which has been the basis of the\nUnited States' administration of these islands since 1947.\nSecond, it confirms our national commitment to the principle\nof self-determination by honoring the freely expressed wishes\nof the peoples of these islands for political union with the\nUnited States. And third, the joining together of all of\nthe Marianas under one flag and one common citizenship\nrepresents the first major addition to United States territory\nin the Pacific since 1898.\nHistory will show that this action has been in clear\nresponse to the persistent desires of the Marianas people\nto become permanently associated with the United States -- a\ndesire recorded formally through resolutions, referendums and\npetitions to the United Nations and to the United States\ndating as far back as 1950. History will also show that the\nnegotiations leading to the Covenant were conducted in an\nopen and highly democratic fashion, and that the Covenant's\nprovisions are responsive to the wishes of both the people\nof the Northern Mariana Islands and the Congress of the\nUnited States.\nThose who were involved in this careful and thorough\nprocess are to be congratulated: The Marianas Political\nStatus Commission, Ambassador Haydn Williams and members\nof the American Delegation; those members of the Congress\nwho worked closely with Ambassador Williams during the\nnegotiations; and those who provided the leadership in\nmoving the joint resolution through its final stages in\nthe House and the Senate. I refer to the members of the\nSenate and House Interior Committees including Senator\nJ. Bennett Johnston, Senator Paul J. Fannin, Senator\nClifford P. Hansen, Chairman James Haley, Congressman\nPhil Burton, Congressman Joe Skubitz and Congressman\nWilliam M. Ketchum.\nThe decision to approve the Covenant was not taken\nlightly by either the people of the Northern Mariana Islands\nor by the Congress of the United States. Its provisions\nand the significance of the islands becoming a part of the\nUnited States were subjected to careful scrutiny and weeks\nand months of debate in the Marianas and in Washington.\nThe plebiscite of last June was conducted in a fair and\nimpartial manner under the able supervision of Mr. Erwin D.\nCanham, the Plebiscite Commissioner. U.N. observers were\nalso present. The final plebiscite vote, with 95% of those\nmore\n2\neligible to vote casting their ballots, was a resounding\n78.8% popular approval of the Covenant. Following months\nof open hearings the final vote in the House and Senate\nresulted in equally impressive majorities in favor of the\nCommonwealth of the Northern Mariana Islands in Political\nUnion with the United States of America.\nNext will come the challenge of planning carefully and\nwell for the new government of the Northern Marianas under\nits own locally drawn and ratified Constitution. The framers\nof that Constitution will draw on our 200 years of experience\nas an independent democracy, and those residents of the\nNorthern Marianas who will one day be citizens of the\nUnited States will receive the full protection of our\nBill of Rights which protects the rights of all American\ncitizens.\nAs I sign this Bill, I cannot help but remember that\nthese islands were once the scene of bitter armed conflict.\nMy hope now is that they will contribute to the continuing\nmaintenance of peace and stability and growing cooperation\nand friendship among all of the peoples and nations of the\nWestern Pacific.\nFinally, to the peoples of the Northern Marianas, I\nextend to you on this historic day my personal greetings\nand my best wishes as you move progressively closer to your\nlong-sought goal of self-government within the political\nframework of the American family. Your entrance into\nunion with the United States is warmly welcomed in this\nour bicentennial year.\n####\nglibl-E\nEXECUTIVE OFFICE OF THE PRESIDENT\nOFFICE OF MANAGEMENT AND BUDGET\nWASHINGTON, D.C. 20503\nMAR 19 1976\nMEMORANDUM FOR THE PRESIDENT\nSubject: Enrolled Bill H. J. Res. 549 - Northern\nMariana Islands -- Commonwealth status\nSponsors - Rep. Burton (D) California and\n24 others\nLast Day for Action\nMarch 27, 1976 - Saturday\nPurpose\nApproves the \"Covenant to Establish a Commonwealth\nof the Northern Mariana Islands in Political Union\nwith the United States of America.\"\nAgency Recommendations\nOffice of Management and Budget\nApproval\nDepartment of the Interior\nApproval\nOffice for Micronesian Status\nApproval (Signing State-\nNegotiations\nment attached)\nDepartment of Defense\nApproval (Informally)\nDepartment of State\nApproval\nDepartment of Justice\nApproval\nNational Security Council\nApproval\nDiscussion\nThe Northern Marianas consist of 21 small islands\nwhich together with Guam (an unincorporated U.S.\nterritory) form the western Pacific island group\nknown as the Mariana Islands. Some 14,500 people\ninhabit the Northern Marianas and this archipelago\nplus the Carolines and the Marshall Islands consti-\ntute the Trust Territory of the Pacific Islands\nor as it is popularly known, Micronesia, a United\nNations strategic trusteeship under United States\nadministration. Under the U.N. Trusteeship Agree-\nment, the United States: (1) has maintained military\nPAINT PRESIDENT CHECK a\nEXECUTIVE OFFICE OF THE PRESIDENT\nOFFICE OF MANAGEMENT AND BUDGET\n.\nDATE: 3-22-76\nTO:\nBob Linder\nFROM:\nJim Frey\nAttached is the Defense views\nletter on HJRes 549. Please\nhave it included in the\nenrolled bill file.\nOMB FORM 38\nREV AUG 73\nGENERAL COUNSEL OF THE DEPARTMENT OF DEFENSE\nWASHINGTON, D. C. 20301\n19 March 1976\nHonorable James T. Lynn\nDirector, Office of Management\nand Budget\nWashington, D. C. 20503\nDear Mr. Lynn:\nThis is in response to your request for the views of the Department\nof Defense on the enrolled enactment of H.J. Res. 549, 94th Congress,\n\"To approve the 'Covenant to Establish a Commonwealth of the North-\nern Mariana Islands in Political Union with the United States of America',\nand for other purposes. 11\nThe covenant to establish a Commonwealth of the Northern Marianas\nin political union with the United States clearly supports this Nation's\nnational security interests and defense posture in the Western Pacific.\nThe Department of Defense recommends that the President approve\nH. J. Res. 549, in which the Congress expresses its approval of the\ncovenant.\nSincerely,\nRilect Richard A. a. Wiley\nSTATEMENT BY THE PRESIDENT\nI am signing today an histric document -H.J. Res. 549,\nI welcome you here today to witness an historic\nevent -- the signing of the Joint Resolution of the\nCongress approving the Northern Mariana Islands\nCommonwealth Covenant.\nIt is an important occasion. First, it is a\nsignificant step in carrying out our obligations\nunder the United Nations Trusteeship Agreement which\nhas been the basis of the United States' administra-\ntion of these islands since 1947. Second, it confirms\nour national commitment to the principle of self-\ndetermination by honoring the freely expressed wishes\nof the peoples of these islands for political union\nwith the United States. And third, the joining\ntogether of all of the Marianas under one flag and one\ncommon citizenship represents the first major\naddition to United States territory in the Pacific\nsince 1898.\nHistory will show that this action has been in\nclear response to the persistent desires of the\nMarianas people to become permanently associated\nwith the United States a desire which has been\nrecorded formally through resolutions, referendums\nand petitions to the United Nations and to the\nstates\nUnited Nations dating as far back as 1950. History\nwill also show that the negotiations leading to the\nCovenant were conducted in an open and highly\ndemocratic fashion, and that the Covenant's provisions\nare\nwere responsive to the wishes of both the people of\nthe Northern Mariana Islands and the Congress of the\nUnited States.\nThose who were involved in this careful and\nthorough process are to be congratulated: The\nMarianas Political Status Commission; Ambassador\nHaydn Williams and members of the American Delega-\ntion; those members of the Congress who worked\nclosely with Ambassador Williams during the\nnegotiations; and those who provided the leadership\nin moving the joint resolution through its final\nstages in the House and the Senate. I refer\nto the members of the Senate and House Interior\nrecording\nCafford\nCommittees in-particular to Senator J. Bennett\nand Souelar fined 7 Sension Handa\nJohnston of=bouisions and Representative Phillip\nBurtomer\nCakiforni Channan Jun Halay, any Phil Benton\ncong goc strubily and cong Bill Hetalium\nThe decision to approve the Covenant was not\ntaken lightly by either the people of the Northern\nMariana Islands or by the Congress of the United\nStates. Its provisions and the significance of\nthe islands becoming a part of the United States were\nsubjected to careful scrutiny and weeks and months of\ndebate in the Marianas and in Washington. The United\nNations-observed plebiscite of last June was\nconducted in a fair and impartial manner under the\nable supervision of Mr. Erwin D. Canham, the Plebiscite\nUN observers were also presents\nCommissioner. The final plebiscite vote, with 95%\nof those eligible to vote casting their ballots, was\na resounding 78.8% popular approval of the Covenant.\nFollowing months of open hearings the final vote\nin the House and Senate resulted in equally impressive\n3\nmajorities in favor of the Commonwealth of the\nNorthern Mariana Islands in Political Union with\nthe United States of America.\nwill coml\nNext comes the challenge of planning carefully\nand well for the new government of the Northern\nMarianas under its own locally drawn and ratified\nConstitution. The framers of that Constitution will\ndraw on our 200 years of experience as an independent\ndemocracy, and those residents of the Northern\nMarianas who will one day be citizens of the United\nStates can be assured that they will receive the\nfull protection of our Bill of Rights which protects\nthe rights of all American citizens.\nAs I sign this Bill, I cannot help but remember\nthat these islands were once the scene of bitter\narmed conflict. My hope now is that they will\ncontribute to the continuing maintenance of\npeace and stability and growing cooperation and\nfriendship among all of the peoples and nations of\nthe Western Pacific.\nFinally, to the peoples of the Northern Marianas,\nI extend to you on this historic day my personal\ngreetings and my best wishes as you move progressively\ncloser to your long-sought goal of self-government\nwithin the political framework of the American\nfamily. Your entrance into union with the United\nStates is warmly welcomed in this our bicentennial year.\nTHE WHITE HOUSE\nMarch\n,\n1976\nTHE INTERIOR\nUnited States Department of the Interior\nOFFICE OF THE SECRETARY\nMarch\n1849\nWASHINGTON, D.C. 20240\n3,\nMAR 1 5 1976\nDear Mr. Lynn:\nThis responds to your request for our views on the enrolled bill\nH.J. Res. 549, \"To approve the 'Covenant to Establish a Common-\nwealth of the Northern Mariana Islands in Political Union with\nthe United States.\nWe strongly recommend that the President approve the enrolled bill.\nOn July 1, 1975, the President submitted to both Houses of Congress\nfor their approval a \"Joint Resolution Approving the 'Covenant\nto Establish a Commonwealth of the Northern Mariana Islands in\nPolitical Union with the United States of America. As enrolled,\nH.J. Res. 549 is the Joint Resolution and the Covenant as trans-\nmitted by the President.\nOn June 17, 1975, the people of the Northern Mariana Islands voted\nin a plebiscite to approve the Commonwealth status as set forth in\nthe Covenant. This plebiscite represented the capstone to more\nthan twenty years of local efforts by the people of the Northern\nMariana Islands to become a permanent part of the United States.\nThe Covenant Agreement in H.J. Res. 549 was signed on February 15,\n1975, by the Marianas Political Status Commission for the Northern\nMariana Islands, and by Ambassador F. Haydn Williams for the United\nStates. It is the result of more than two years of negotiations\nbetween the United States and a broadly representative delegation\nfrom the Northern Mariana Islands.\nBecause of our responsibilities in the Trust Territory of the Pacific\nIslands, this Department has had an important role in the Marianas\nCommonwealth negotiations. Representatives of this Department\nwere on the U.S. Delegation for the Marianas negotiations from the\nopening round in December 1972, and provided policy assistance on\nInterior Department matters.\nREVOLUTION\nAMERICAN\nBICENTENNIAL\n1776-1976\nPresidential approval of H.J. Res. 549 as enrolled will represent\none more important step toward fulfillment of the obligations which\nthe United States undertook when the Congress approved, by joint\nresolution, the United Nations Trusteeship Agreement on July 18,\n1947. The Covenant, as approved by the Congress, represents the\nfreely expressed wish of the people of the Northern Mariana Islands,\nand will enable them to move toward their long sought goal of\nself-government in political union with the United States.\nSincerely yours,\nKent\nActing\nSecretary of the Interior\nHonorable James T. Lynn\nDirector, Office of\nManagement and Budget\nWashington, D.C. 20503\n2\nDEPARTMENT OF STATE\nWashington, D.C. 20520\nMAR\n16\n-\nHonorable James T. Lynn\nDirector,\nOffice of Management and Budget\nWashington, D. C. 20503\nDear Mr. Lynn:\nThis is in response to Mr. James M. Frey's March 12,\n1976 request for the Department's views and recom-\nmendations on enrolled bill H.J. Resolution 549, to\napprove the \"Covenant to Establish a Commonwealth of\nthe Northern Mariana Islands in Political Union with\nthe United States of America\", and for other purposes.\nThe Department has testified in favor of this legisla-\ntion and strongly approves of this enactment.\nSincerely,\nRobert Robert J McCloskey Closkey\nAssistant Secretary\nfor Congressional Relations\nASSISTANT ATTORNEY GENERAL\nLEGISLATIVE AFFAIRS\nDepartment of Justice\nWashington, D.C. 20530\nMarch 17, 1976\nHonorable James T. Lynn\nDirector\nOffice of Management and Budget\nWashington, D.C. 20503\nDear Mr. Lynn:\nIn compliance with your request, I have examined a\nfacsimile of the enrolled bill H.J. Res. 549, 94th Cong.,\n2d Sess., To approve the \"Covenant To Establish a Common-\nwealth of the Northern Mariana Islands in Political Union\nwith the United States of America,\" and for other purposes.\nSection 1 of the Joint Resolution would approve the\nCovenant to establish the Commonwealth of the Northern\nMariana Islands. This part of the Joint Resolution was\nintroduced into Congress in response to President Ford's\nletters to the Speaker of the House of Representatives and\nthe President of the Senate of July 1, 1975, 11 Weekly\nCompilation of Presidential Documents 695. At the time of\nthe introduction of the Joint Resolution the Department of\nJustice commented in favor of the Joint Resolution not only\nbecause it was introduced at the request of the President\nbut also in view of its own involvement in the drafting of\nthe Covenant. Since then, in a letter dated January 19,\n1976, addressed to Senator Percy, the Attorney General stated\nthat the Department of Justice is satisfied that the Covenant\n\"is consistent with our constitutional system and our inter-\nnational obligations, and, above all, that it deals fairly\nwith the interests of the people of the Northern Mariana\nIslands.\"\nThe Joint Resolution as originally introduced in the\nHouse of Representatives, contained two additional sections.\nThe Department of Justice deferred to the views of other\ndirectly involved agencies with respect to the first one\nand was opposed to the other one. Those two sections were\ndeleted by the Senate.\nThe Senate added a new section 2 to the Joint Resolution\nwhich expresses the sense of Congress that it supports the\nconsultation procedure contained in section 902 of the\nCovenant. We perceive no objection to that provision.\nThe Department of Justice recommends Executive approval\nof the bill.\nSincerely,\nWichael M. Wilmaum\nMichael M. Uhlmann\nAssistant Attorney General\nOffice of Legislative Affairs\n- 2 -\nMEMORANDUM\n1537\nNATIONAL SECURITY COUNCIL\nMarch 15, 1976\nMEMORANDUM FOR:\nJAMES M. FREY\nFROM:\nJEANNE W. DAVIS\nWH\nSUBJECT:\nfor\nNSC Recommendation on\nHJ Resolution 549\nThe NSC concurs in HJ Resolution 549 \"to establish a commonwealth\nof the Northern Mariana Islands in political union with the United States\nand for other purposes.\"\nThe NSC recommends that the President sign HJ Resolution 549.\nTHE WHITE HOUSE\nWASHINGTON\nMarch 22, 1976\nMEMORANDUM FOR:\nJIM CAVANAUGH\nFROM:\nMAX L. FRIEDERSDORF M.G.\nSUBJECT:\nH.J. Res. 549 - Northern Mariana Islands\nCommonwealth Status\nThe Office of Legislative Affairs concurs with the agencies\nthat the\nsubject bill be signed.\nAttachments\nTHE WHITE HOUSE\nACTION MEMORANDUM\nWASHINGTON\nLOG NO.:\nDate: March 19\nTime: 600pm\nFOR ACTION:\nGeorge Humphreys\nCC (for information):\nJim Cavanaugh\nEd Schmults\nMax Friedersdorf\nRogers Morton\nKen Lazarus\nNSC/S\nJack Marsh\nRobert Hartmann (signing statement attached)\nFROM THE STAFF SECRETARY\nDUE: Date: March 22\nTime:\n300pm\nSUBJECT:\nH.J. Res. 549 - Northern Mariana Islands\nCommonwealth Status\nACTION REQUESTED:\nFor Necessary Action\nFor Your Recommendations\nPrepare Agenda and Brief\nDraft Reply\nx\nFor Your Comments\nDraft Remarks\nREMARKS:\nPlease return to Judy Johnston, Ground Floor West Wing\nNo objection -- Ken Lazarus 3/22/76\nPLEASE ATTACH THIS COPY TO MATERIAL SUBMITTED.\nIf you have any questions or if you anticipate a\ndelay in submitting the required material, please\ntelephone the Staff Secretary immediately.\nJames M. Cannon\nFor the President\nTHE WHITE HOUSE\nACTION MEMORANDUM\nWASHINGTON\nLOG NO.:\nDate: March 19\nTime: 600pm\nFOR ACTION:\nGeorge Humphreys\ncc (for information):\nJim Cavanaugh\nEd Schmults\nMax Friedersdorf\nRogers Morton\nKen Lazarus\nNSC/S\nJack Marsh\nRobert Hartmann (signing statement attached)\nFROM THE STAFF SECRETARY\nDUE: Date: March 22\nTime:\n300pm\nSUBJECT:\nH.J. Res. 549 - Northern Mariana Islands\nCommonwealth Status\nACTION REQUESTED:\nFor Necessary Action\nFor Your Recommendations\nPrepare Agenda and Brief\nDraft Reply\nx\nFor Your Comments\nDraft Remarks\nREMARKS:\nPlease return to Judy Johnston, Ground Floor West Wing\nI Concur . 3/22/76\nGu #unphreys\nPLEASE ATTACH THIS COPY TO MATERIAL SUBMITTED.\nIf you have any questions or if you anticipate a\ndelay in submitting the required material, please\ntelephone the Staff Secretary immediately.\nJames M. Cannon\nFor the President\nTHE WHITE HOUSE\nACTION MEMORANDUM\nWASHINGTON\nLOG NO.:\nDate: March 19\nTime: 600pm\nFOR ACTION:\nGeorge Humphreys\nCC (for information):\nJim Cavanaugh\nEd Schmults\nMax Friedersdorf\nRogers Morton\nKen Lazarus\nNSC/S\nJack Marsh\nRobert Hartmann (signing statement attached)\nFROM THE STAFF SECRETARY\nDUE: Date: March 22\nTime:\n300pm\nSUBJECT:\n3/19 6:18 pm\nH.J. Res. 549 - Northern Mariana Islands\nCommonwealth Status\nACTION REQUESTED:\nFor Necessary Action\nFor Your Recommendations\nPrepare Agenda and Brief\nDraft Reply\nx\nFor Your Comments\nDraft Remarks\nREMARKS:\nPlease return to Judy Johnston, Ground Floor West Wing\nApprogable\nPLEASE ATTACH THIS COPY TO MATERIAL SUBMITTED.\nIf you have any questions or if you anticipate a\ndelay in submitting the required material, please\ntelephone the Staff Secretary immediately.\nJames M. Cannon\nFor the President\nOFFICE FOR MICRONESIAN STATUS NEGOTIATIONS\nWASHINGTON, D.C. 20240\nMarch 15, 1975\nJames M. Frey\nAssistant Director for\nLegislative Reference\nOffice of Management and Budget\nWashington, D.C. 20503\nDear Mr. Frey:\nYour office has asked our views and recommendations\non HJR 549, as amended, to approve the \"Covenant to Establish\na Commonwealth of the Northern Mariana Islands in Political\nUnion with the United States of America, and for other\npurposes\". The resolution would act to extend the approval\nby the United States of the political status agreement\nearlier negotiated with representatives of the Northern\nMariana Islands and overwhelmingly approved by the people\nof the Northern Mariana Islands in a plebiscite observed\nby the United Nations Trusteeship Council. Upon termina-\ntion of the United Nations Trusteeship Agreement for the\nTrust Territory of the Pacific Islands the Northern Mariana\nIslands would become a territory of the United States as\nset forth in the Commonwealth Covenant.\nOn July 1, 1975, the President personally transmitted\nthe Commonwealth Covenant to the United States Congress for\nits consideration. The President urged that the Senate\nand the House take early, positive action to approve the\nNorthern Mariana Islands Commonwealth Covenant which will\nthereupon become law in accordance with its provisions.\nFavorable consideration by the Congress will represent one\nmore important step in the fulfillment of its obligations\nwhich the United States undertook when the Congress approved\nby joint resolution the Trusteeship Agreement on July 18,\n1947. Congressional approval of the freely expressed wish\nof the people of the Northern Mariana Islands will enable\nthem to move toward their long sought goal of self-govern-\nment in political union with the United States. The final\nrealization of this desired goal will be an historic event\nfor the people of the Northern Mariana Islands and for the\nUnited States--an event to which I look forward with great\npleasure.\n-2-\nThe Congress has now responded positively to the\nPresident's request by enactment of the enrolled bill.\nWe strongly recommend the President approve the legis-\nlation. We believe the Covenant follows the best traditions\nof this nation and approval would be in the national interest.\nSincerely yours,\nMary Vance that\nMary Vance Trent\nActing Director\nAdeG:kkc\nSTATEMENT BY THE PRESIDENT\nI welcome you here today to witness an historic\nevent --- the signing of the Joint Resolution of the\nCongress approving the Northern Mariana Islands\nCommonwealth Covenant.\nIt is an important occasion. First, it is a\nsignificant step in carrying out our obligations\nunder the United Nations Trusteeship Agreement which\nhas been the basis of the United States' administra-\ntion of these islands since 1947. Second, it confirms\nour national commitment to the principle of self-\ndetermination by honoring the freely expressed wishes\nof the peoples of these islands for political union\nwith the United States. And third, the joining\ntogether of all of the Marianas under one flag and one\ncommon citizenship represents the first major\naddition to United States territory in the Pacific\nsince 1898.\nHistory will show that this action has been in\nclear response to the persistent desires of the\nMarianas people to become permanently associated\nwith the United States -- a desire which has been\nrecorded formally through resolutions, referendums\nand petitions to the United Nations and to the\nUnited Nations dating as far back as 1950. History\nwill also show that the negotiations leading to the\nCovenant were conducted in an open and highly\ndemocratic fashion, and that the Covenant's provisions\nwere responsive to the wishes of both the people of\n2\nthe Northern Mariana Islands and the Congress of the\nUnited States.\nThose who were involved in this careful and\nthorough process are to be congratulated: The\nMarianas Political Status Commission; Ambassador\nHaydn Williams and members of the American Delega-\ntion; those members of the Congress who worked\nclosely with Ambassador Williams during the\nnegotiations; and those who provided the leadership\nin moving the joint resolution through its final\nstages in the House and the Senate. I refer\nto the members of the Senate and House Interior\nCommittees and in particular to Senator J. Bennett\nJohnston of Louisiana, and Representative Phillip\nBurton of California.\nThe decision to approve the Covenant was not\ntaken lightly by either the people of the Northern\nMariana Islands or by the Congress of the United\nStates. Its provisions and the significance of\nthe islands becoming a part of the United States were\nsubjected to careful scrutiny and weeks and months of\ndebate in the Marianas and in Washington. The United\nNations-observed plebiscite of last June was\nconducted in a fair and impartial manner under the\nable supervision of Mr. Erwin D. Canham, the Plebiscite\nCommissioner. The final plebiscite vote, with 95%\nof those eligible to vote casting their ballots, was\na resounding 78.8% popular approval of the Covenant.\nFollowing months of open hearings the final vote\nin the House and Senate resulted in equally impressive\n3\nmajorities in favor of the Commonwealth of the\nNorthern Mariana Islands in Political Union with\nthe United States of America.\nNext comes the challenge of planning carefully\nand well for the new government of the Northern\nMarianas under its own locally drawn and ratified\nConstitution. The framers of that Constitution will\ndraw on our 200 years of experience as an independent\ndemocracy, and those residents of the Northern\nMarianas who will one day be citizens of the United\nStates can be assured that they will receive the\nfull protection of our Bill of Rights which protects\nthe rights of all American citizens.\nAs I sign this Bill, I cannot help but remember\nthat these islands were once the scene of bitter\narmed conflict. My hope now is that they will\ncontribute to the continuing maintenance of\npeace and stability and growing cooperation and\nfriendship among all of the peoples and nations of\nthe Western Pacific.\nFinally, to the peoples of the Northern Marianas,\nI extend to you on this historic day my personal\ngreetings and my best wishes as you move progressively\ncloser to your long-sought goal of self-government\nwithin the political framework of the American\nfamily. Your entrance into union with the United\nStates is warmly welcomed in this our bicentennial year.\nTHE WHITE HOUSE\nMarch\n, 1976\nTHE WHITE HOUSE\nWASHINGTON\nJack Marsh: in response to your\ncomment on the Northern Mariana\nIslands statement, Bob Wolthius\nhas made the attac ed change. Is this\no.k.\nJudy Johnston 3/23\nOR\nTHE WHITE HOUSE\nMAR 10 1976\nACTION MEMORANDUM\nWASHINGTON\nLOG NO.:\ndue dui3/22 3/22\nDate: March 19\nTime: 600pm\n3.00\nFOR ACTION:\ncc (for information):\nJim Cavanaugh\nGeorge Humphreys\nEd Schmults\nMax Friedersdorf\nRogers Morton\nKen Lazarus\nNSC/S\nJack Marsh\nRobert Hartmann (signing statement attached)\nFROM THE STAFF SECRETARY\nDUE: Date: March 22\nTime:\n300pm\nSUBJECT:\nH.J. Res. 549 - Northern Mariana Islands\nCommonwealth Status\nACTION REQUESTED:\nFor Necessary Action\nFor Your Recommendations\nPrepare Agenda and Brief\nDraft Reply\nX For Your Comments\nDraft Remarks\nREMARKS:\nPlease return to Judy Johnston, Ground Floor West Wing\nCancer, but in statement Ba2\nmention Senate of House minai hy\ntoo members as well as golucton +\nBut on.\nPLEASE ATTACH THIS COPY TO MATERIAL SUBMITTED.\nIf you have any questions or if you anticipate a\ndelay in submitting the required material, please\ntelephone the Staff Secretary immediately.\nJames M. Cannon\nFor the President\nthe Northern Mariana Islands and the Congress of the\nUnited States.\nThose who were involved in this careful and\nthorough process are to be congratulated: The\nMarianas Political Status Commission; Ambassador\nHaydn Williams and members of the American Delega-\ntion; those members of the Congress who worked\nclosely with Ambassador Williams during the\nnegotiations; and those who provided the leadership\nin moving the joint resolution through its final\nstages in the House and the Senate. I refer\nto the members of the Senate and House Interior\nrecording\nCommittees\nin\nSenator J. Bennett\ncafford\nSomelar\njant\nJanssin\nSeve-tor\nHave\nJohnston\nof\nChanman Jun Halay, cong\ncong goe shubity and cong Bill /detalism\nThe decision to approve the Covenant was not\ntaken lightly by either the people of the Northern\nMariana Islands or by the Congress of the United\nStates. Its provisions and the significance of\nthe islands becoming a part of the United States were\nsubjected to careful scrutiny and weeks and months of\ndebate in the Marianas and in Washington. The United\nNations-observed plebiscite of last June was\nconducted in a fair and impartial manner under the\nable supervision of Mr. Erwin D. Canham, the Plebiscite\nCommissioner. The final plebiscite vote, with 95%\nof those eligible to vote casting their ballots, was\na resounding 78.8% popular approval of the Covenant.\nFollowing months of open hearings the final vote\nin the House and Senate resulted in equally impressive\ner)\nMarch 23, 1976\nSECOND DRAFT\nPRESIDENTIAL TALKING POINTS AT SIGNING OF MARIANAS CONVENANT,\nWEDNESDAY, MARCH 24, 1976\nThe signing today of the Joint Resolution of the Congress\napproving the Northern Marianas Islands Commonwealth Covenant\nmarks an important moment in our Nation's history. It reaffirms\nour commitment to the principle of self-determination. And it honors\nthe freely expressed wishes of the peoples of these islands for political\nunion with the United States.\nThose wishes have been recorded formally through\nresolutions, referendums and petitions to the United Nations and to\nthe United States, dating as far back as 1950.\nWe can be proud of the fact that open, democratic\nnegotiations led to the Covenant.\nThe plebiscite, conducted in the Islands last June,\nresulted in a resounding 78.8 percent popular approval of the Covenant.\nFollowing months of open hearings, the final vote in the House and\nSenate reflected equally impressive majorities.\n-2-\nI congratulate all those involved in this process: the\nMarianas Political Status Commission, Ambassador Haydn Williams\nand members of the American Delegation and the distinguished members\nof the Senate and House [Interior] Committees on cerned have with us today.\nTo the people of the Northern Marianas, I extend my\npersonal greetings and my best wishes as you move closer to your\ngoal of self-government within the political framework of the American\nfamily. I warmly welcome your eventual entrance into union with the\nUnited States.\nAs I sign this Bill, we might recall that these islands\nwere once the scene of bitter armed conflict. My hope now is that\nthey will contribute to the continuing maintenance of peace, stability,\nand friendship among all of the people and nations of the Western\nPacific.\n###\nTHE WHITE HOUSE\nMAR 10 1976\nACTION MEMORANDUM\nWASHINGTON\nLOG NO.: dui3/22\nDate: March 19\nTime: 600pm\n3:00\nFOR ACTION:\nCC (for information):\nJim Cavanaugh\nGeorge Humphreys\nEd Schmults\nMax Friedersdorf\nRogers Morton\nKen Lazarus\nNSC/S\nJack Marsh\nRobert Hartmann (signing statement attached)\nFROM THE STAFF SECRETARY\nDUE: Date: March 22\nTime:\n300pm\nSUBJECT:\nH.J. Res. 549 - Northern Mariana Islands\nCommonwealth Status\nACTION REQUESTED:\nFor Necessary Action\nFor Your Recommendations\nPrepare Agenda and Brief\nDraft Reply\nx\nFor Your Comments\nDraft Remarks\nREMARKS:\nPlease return to Judy Johnston, Ground Floor West Wing\nCancer, but in statement B92\nmention Senate I Honse minai hy\nthe members as well as golucton +\nBenton.\nPLEASE ATTACH THIS COPY TO MATERIAL SUBMITTED.\nIf you have any questions or if you anticipate a\ndelay in submitting the required material, please\ntelephone the Staff Secretary immediately.\nJames M. Cannon\nFor the President\nOFFICE PTM TM PRESIDENT STATE a UNITED\nEXECUTIVE OFFICE OF THE PRESIDENT\nOFFICE OF MANAGEMENT AND BUDGET\nDATE: 3-22-76\nTO:\nBob Linder\nFROM:\nJim Frey\nAttached is the Defense views\nletter on HJRes 549. Please\nhave it included in the\nenrolled bill file.\nOMB FORM 38\nREV AUG 73\nOF DIFENSE\nGENERAL COUNSEL OF THE DEPARTMENT OF DEFENSE\nWASHINGTON, D. C. 20301\nSTATES OF of AMERICA\n19 March 1976\nHonorable James T. Lynn\nDirector, Office of Management\nand Budget\nWashington, D. C. 20503\nDear Mr. Lynn:\nThis is in response to your request for the views of the Department\nof Defense on the enrolled enactment of H.J. Res. 549, 94th Congress,\n\"To approve the 'Covenant to Establish a Commonwealth of the North-\nern Mariana Islands in Political Union with the United States of America',\nand for other purposes. \"\nThe covenant to establish a Commonwealth of the Northern Marianas\nin political union with the United States clearly supports this Nation's\nnational security interests and defense posture in the Western Pacific.\nThe Department of Defense recommends that the President approve\nH. J. Res. 549, in which the Congress expresses its approval of the\ncovenant.\nSincerely,\nRichard Ribul A. a. Wiley nilaz\nNATIONAL SECURITY COUNCIL\nMarch 23, 1976\nTO:\nJUDY JOHNSTON (WW)\nFROM:\nJAY TAYLOR\nDraft Statement for President Ford at\nMarianas Covenant Signing\nI welcome you here today to witness an historic event -- the\nsigning of the Joint Resolution of the Congress approving the Northern\nMarianas Islands Commonwealth Covenant.\nIt is an important occasion. First, it is a significant step in\ncarrying out our obligations under the United Nations Trusteeship\nAgreement which has been the basis of the United States' administration\nof these islands since 1947. Second, it confirms our national commitment\nto the principle of self-determination by honoring the freely expressed\nwishes of the peoples of these islands for political union with the\nUnited States. And third, it represents the joining of all of the Marianas\nunder one flag and one common citizenship for the first time since 1898.\nHistory will show that this action has been in clear response to\nthe persistent desires of the Marianas people to become permanently\nassociated with the United States -- a desire recorded formally\nthrough resolutions, referendums and petitions to the U.N. and to the\nU.S. dating as far back as 1950. History will also show that open\nand highly democratic negotiations led to the Covenant, and that the\nCovenant's provisions are responsive to the wishes of both the people\nof the Northern Marianas Islands and the Congress of the United States.\nI congratulate all those involved in this careful and thoroughn\nprocess; the Marianas Political Status Commission; Ambassador Haydn\nWilliams and members of the American Delegation; those members\nof the Congress who worked closely with Ambassador Williams during\n2\nthe negotiations and those who provided the leadership in moving the\njoint resolution through its final stages in the House and the Senate. I\nrefer to the members of the Senate and House Interior Committees\nand in particular to Senator J. Bennett Johnston of Lousiana, and\nRepresentative Phillip Burton of California.\nNeither the people of the Northern Marianas Islands nor the\nCongress of the United States took lightly the decision to approve the\nCovenant. There was careful scrutiny and weeks and months of\ndebate in the Marianas and in Washington on its provisions and the\nsignificance of the islands becoming a part of the United States. The\nplebiscite of last June was conducted in a fair and impartial manner\nunder the able supervision of Mr. Erwin D. Canham, the Plebiscite\nCommissioner. U.N. observers were also present. The final plebiscite\nvote, with 95 percent of those eligible to vote casting their ballots, was\na resounding 78. 8 percent popular approval of the Covenant. Following\nmonths of open hearings the final vote in the House and Senate resulted\nin equally impressive majorities in favor theof the Commonwealth of\nthe Northern Marianas Islands in Political Union with the United States\nof America.\nNext comes the challenge of planning carefully and well for the\nnew government of the Northern Marianas under its own locally drawan\nand ratified Constitution. The framers of that Constitution will draw\non our 200 years of experience as an independent democracy, and those\nresidents of the Northern Marianas who will one day be citizens of the\n3\nUnited States will receive the full protection of our Bill of Rights\nwhich protects all American citizens.\nAs I sign this Bill, I cannot help but remember that these islands\nwere once the scene of bitter armed conflict. My hope now is that they\nwill contribute to the continuing maintenance of peace and stability\nand growing cooperation and friendship among all of the peoples and\nnations of the Western Pacific.\nFinally, to the peoples of the Northern Marianas I extend to you\non this historic day my personal greetings and my best wishes as you\nmove progressively closer to your long-sought goal of self-government\nwithin the political framework of the American family. I warmly\nwelcome your eventual entrance into union with the United States in\nthis our bicentennial year.\nDRAFT STATEMENT FOR PRESIDENT FORD AT\nMARIANAS COVENANT SIGNING\nI welcome you here today to witness an historic event--\nthe signing of the Joint Resolution of the Congress approving\nthe Northern Mariana Islands Commonwealth Covenant.\nIt is an important occasion. First, it is a significant\nstep in carrying out our obligations under the United Nations\nTrusteeship Agreement which has been the basis of the United\nStates' administration of these islands since 1947. Second,\nit confirms our national commitment to the principle of self-\ndetermination by honoring the freely expressed wishes of the\npeoples of these islands for political union with the United\nit peprednts\nStates. And third, the joining together of all of the\nfirst\nMarianas under one flag and one common citizenship epresents\nthe first major addition to United States territory in the\nPacific since 1898.\nHístory will show that this action has been in clear\nresponse to the persistent desires of the Marianas people\nto become permanently associated with the United States--a\ndesire which has been recorded formally through resolutions,\nreferendums and petitions to the U.N. and to the U.S. dating\nopen and hig democlatic\nas far Led back as 1950. History will also show that the negoti-\nations leading to the Covenant, were conducted in an open and\nhighly democratic fashion, and that the Covenant's provisions\nwere responsive to the wishes of both the people of the Northern\nMariana Islands and the Congress of the United States.\nall\nCongratulate\nthose\n-2-\nThose who were involved in this careful and thorough pro-\ncess, are to be congratulated:] The Marianas Political Status\nCommission; Ambassador Haydn Williams and members of the\nAmerican Delegation; those members of the Congress who worked\nclosely with Ambassador Williams during the negotiations and\nthose who provided the leadership in moving the joint resolu-\ntion through its final stages in the House and the Senate. I\nrefer to the members of the Senate and House Interior Commit-\ntees and in particular to Senator J. Bennett Johnston of\nLouisiana, and Representative Phillip Burton of California.\nThe decision to approve the Covenant was not taken lightly\nnon\nby either the people of the Northern Mariana Islands or by\ntook Lightly\nthe Congress of the United States\nprovisions and the\nsignificance of the islands becoming\na part of the United\nThere\nStates, were subjected.to careful scrutiny and weeks and months\non\nof debate in the Marianas and in Washington\nThe\nUnited\nNations-observed plebiscite of last June was conducted in a\nyou\nfair and impartial manner under the able supervision of\nUN observers weals present.\nyrs\nMr. Erwin D. Canham, the Plebiscite Commissioner The final\nplebiscite vote, with 95% of those eligible to vote casting\ntheir ballots, was a resounding 78.8% popular approval of the\nCovenant. . Following months of open hearings the final vote\nin the House and Senate resulted in equally impressive majorities\nin favor of the Commonwealth of the Northern Mariana Islands in\nPolitical Union with the United States of America.\n-3-\nNext comes the challenge of planning carefully and well\nfor the new government of the Northern Marianas under its own\nlocally drawn and ratified Constitution. The framers of that\nConstitution will draw on our 200 years of experience as an\nindependent democracy, and those residents of the Northern\nMarianas who will one day be citizens of the United States\ngle\ncan be assured that they will receive the full protection of\nour Bill or Rights which protects the rights of all American\ncitizens.\nAs I sign this Bill, I cannot help but remember that these\nislands were once the scene of bitter armed conflict. My hope\nnow is that they will contribute to the continuing maintenance\nof peace and stability and growing cooperation and friendship\namong all of the peoples and nations of the Western Pacific.\nFinally, to the peoples of the Northern Marianas I extend\nto you on this historic day my personal greetings and my best\nwishes as you move progressively closer to your long-sought\ngoal of self-government within the political framework of the\nEventual\nAmerican family Your/entrance into union with the United\nStates is warmly welcomed in this our bicentennial year.\nSTATEMENT BY THE PRESIDENT\nI am signing today anhistric document, -H.J. Res. 549,\nI welcome you here today to witness an historic\nevent -- the signing the Joint Resolution of the\nCongress approving the Northern Mariana Islands\nCommonwealth Covenant.\nIt is an important occasion. First, it is a\nsignificant step in carrying out our obligations\nunder the United Nations Trusteeship Agreement which\nhas been the basis of the United States' administra-\ntion of these islands since 1947. Second, it confirms\nour national commitment to the principle of self-\ndetermination by honoring the freely expressed wishes\nof the peoples of these islands for political union\nwith the United States. And third, the joining\ntogether of all of the Marianas under one flag and one\ncommon citizenship represents the first major\naddition to United States territory in the Pacific\nsince 1898.\nHistory will show that this action has been in\nclear response to the persistent desires of the\nMarianas people to become permanently associated\nwith the United States a desire which\nrecorded formally through resolutions, referendun\nand petitions to the United Nations and to the\nUnited Nations states dating as far back as 1950. History\nwill also show that the negotiations leading to the\nCovenant were conducted in an open and highly\ndemocratic fashion, and that the Covenant's provisions\nare\nwere responsive to the wishes of both the people of\n2\nthe Northern Mariana Islands and the Congress of the\nUnited States.\nThose who were involved in this careful and\nthorough process are to be congratulated: The\nMarianas Political Status Commission; Ambassador\nHaydn Williams and members of the American Delega-\ntion; those members of the Congress who worked\nclosely with Ambassador Williams during the\nnegotiations; and those who provided the leadership\nin moving the joint resolution through its final\nstages in the House and the Senate. I refer\nto the members of the Senate and House Interior\nnceding\nCommittees Senator J. Bennett\nand\nSomeon\nPaul\n,\nLena\ncofford\nJohnston\nChairman Jun Hally, any Phil Benter\ncong goe shulity and cong Bill Hetelim\nThe decision to approve the Covenant was not\ntaken lightly by either the people of the Northern\nMariana Islands or by the Congress of the United\nStates. Its provisions and the significance of\nthe islands becoming a part of the United States were\nsubjected to careful scrutiny and weeks and months of\ndebate in the Marianas and in Washington. The United\nNat aved plebiscite of last June was\nconducted in a fair and impartial manner under the\nable supervision of Mr. Erwin D. Canham, the Plebiscite\nUN observer were also presents\nCommissioner. The final plebiscite vote, with 95%\nof those eligible to vote casting their ballots, was\na resounding 78.8% popular approval of the Covenant.\nFollowing months of open hearings the final vote\nin the House and Senate resulted in equally impressive\n3\nmajorities in favor of the Commonwealth of the\nNorthern Mariana Islands in Political Union with\nthe United States of America.\nwill come\nNext comes the challenge of planning carefully\nand well for the new government of the Northern\nMarianas under its own locally drawn and ratified\nConstitution. The framers of that Constitution will\ndraw on our 200 years of experience as an independent\ndemocracy, and those residents of the/Northern\nMarianas who will one day be citizens of the United\nStates can be assured that they will receive the\nfull protection of our Bill of Rights which protects\nthe rights of all American citizens.\nAs I sign this Bill, I cannot help but remember\nthat these islands were once the scene of bitter\narmed conflict. My hope now is that they will\ncontribute to the continuing maintenance of\npeace and stability and growing cooperation and\nfriendship among all of the peoples and nations of\nthe Western Pacific.\nFinally, to the peoples of the Northern Marianas,\nI extend to you on this historic day my personal\ngreetings and my best wishes as you move progressively\ncloser to your long-sought goal of self-government\nwithin the political framework of the American\nfamily. Your entrance into union with the United\nStates is warmly welcomed in this our bicentennial year.\nTHE WHITE HOUSE\nMarch\n,\n1976\nApril 15, 1976\nSUBJECT: Presidential action with regard to the establishment of the \"Commonwealth\nof the Northern Mariana Islands\"\nINFO FROM: Mary Trent and Mr. Adrian DeGraffenried, Office of Micronesian Status\nNegotiations (Interagency Group headed by the President's Personal\nRepresentative for Micronesian Status Negotiations - Ambassador Franklin\nHaydn Williams) PHONE: 343-9143\nMr. James Berg, Office of Territorial Affairs (Interior) PHONE: 343-6973\n1. On March 24, 1976, the President signed H.J. Res. 549, thereby approving the\n\"Covenant to Establish a Commonwealth of the Northern Mariana Islands in Poli-\ntical Union with the United States of America.\" (P.L. 94-241) NOTE: The\nNorthern Mariana Islands currently make up one of the Districts of the Trust\nTerritory of the Pacific Islands (popularly known as Micronesia), which is\nadministered by the United States as a result of the Trusteeship Agreement\nbetween the Security Council of the U.N. and the U.S.A. (1947).\n2. The new constitution for the Northern Mariana Islands will be drawn up at a local\nconstitutional convention. It will be submitted to the President on behalf of\nthe Government of the United States, and will be deemed to have been approved six\nmonths after its submission unless earlier approved or disapproved (Section 202\nof the Covenant). Procedure for the consideration of the constitution, including\nthe question of to what extent, if any, Congress will be involved, has not yet\nbeen determined.\n3. Within 180 days of the approval of the constitution the President will proclaim an\neffective date for the constitution and certain provisions of the Covenant (Section\n1003(b)). The Secretary of the Interior will recommend a date to the President.\nHowever, if the President finds that the effectiveness of any of the provisions of\nthe Mariana constitution would be inconsistent with the Trusteeship Agreement, he\nmay declare them ineffective until the termination of the Trusteeship Agreement\n(Section 1004(b)).\n4. Target date for completion of all actions described in #2 and #3 is January 1, 1978.\n5. Section 1004(a) provides that the application of any provision of the Constitution\nor laws of the United States which would otherwise apply to the Northern Mariana\nIslands may be suspended until termination of the Trusteeship Agreement if the\nthe President finds and declares that the application of such provision prior to\ntermination would be inconsistent with the Trusteship Agreement. This is intended\nto give the President some flexibility to prevent a law which otherwise might be\nmade applicable by the formula set forth in Section 502 or otherwise, from being\napplicable if it would conflict with the international obligations which the U.S.\nundertook in the Trusteeship Agreement.\n(Continued)\n-2-\n6. Interior, through its Office of Territorial Affairs, will be contacting the White\nHouse as to its recommendations for the President's appointments to the Commission\non Federal Laws (Section 504). These recommendations are not expected to be made\nuntil 6-8 months from now (perhaps around November of 1976).\n7. The President will issue a Proclamation announcing the termination of the Trusteeship\nAgreement and the establishment of the Commonwealth of the Northern Mariana Islands\n(Section 1002). The termination of the Trusteeship Agreement will affect all of the\nDistricts of the Trust Territory, and negotiations with the other Districts as to\nwhat their political status will be after the Agreement is terminated is still con-\ntinuing and not expected to be completed until 1981 or later. The Trusteeship\nAgreement will not be terminated until these negotiations have been completed, and\nthe procedure. by which the Agreement will be terminated has not yet been defined."
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