Updated May 16, 2024
U.S.-China Science and Technology Cooperation Agreement
On January 31, 1979, weeks after the United States and the
other years limited to an S&T Executive Secretariat.
People’s Republic of China (PRC, or China) established
Duration: initially five years, subject to modification or
diplomatic relations, U.S. President Jimmy Carter and PRC
extension by the parties. The STA was last extended on June 27,
leader Deng Xiaoping signed the U.S.-China Science and
2018, and was amended to address U.S. concerns about China’s
Technology Cooperation Agreement (STA), the first major
approach to technology, innovation, and practices of concern
agreement between the two governments. The STA was a
(e.g., lax IP enforcement, IP theft, and forced technology transfer).
Sub-agreements: an estimated 30 agency-level protocols and
part of U.S. strategy at the time to build ties with China to
40 sub-agreements accompany the STA in areas that include
counter the influence of the Soviet Union. During the 1980s
agriculture; basic science; biomedical research and health; energy;
and 1990s, U.S. strategy shifted and science and technology
environment; earth, atmospheric, marine sciences and remote
(S&T) ties became part of a broader U.S. effort to integrate
sensing; standards and metrology; nuclear fusion and safety; and
China into the global system and influence its development
transportation. The Departments of Agriculture, Energy, and
trajectory and behavior. President Barack Obama expanded
Health and Human Services have the most agreements.
S&T ties with China to address global challenges, such as
health, energy, and climate. Since that time, U.S. views and
Broad Functions of STAs
strategy toward China have been shifting to protect and
The U.S.-China STA is an umbrella agreement that governs
advance U.S. interests vis-à-vis China as a strategic
U.S. government S&T work with China and is part of a
competitor. STA proponents and critics both say that the
broader S&T ecosystem of universities, firms, professional
current STA does not reflect these shifts or U.S. concerns
bodies, and nongovernmental organizations. The
about China’s S&T practices and industrial policies. Some
Department of State Office of S&T Cooperation, which
say the STA does not address China’s growing research and
negotiates and oversees U.S. STAs, says that STAs and
technological capabilities and increasingly restrictive and
related activities “strengthen international cooperation in
risky operating environment for cross-border research.
scientific areas aligned with American interests, ensure
Just before the STA was to lapse on August 27, 2023, the
open data practices, promote reciprocity, extend U.S. norms
two sides extended it for six months. On February 24, 2024
and principles, and protect American intellectual property.”
the two sides agreed to another six-month extension to
The United States has 60 bilateral and multilateral STAs—
negotiate renewal terms. Congress might consider its
including with the European Union (and separately with
oversight role with regard to the STA and any U.S. STA-
certain EU member states), Japan, South Korea, Australia,
related activities and negotiations with China.
Brazil, and Canada—and over 2,000 sub-agreements.
U.S. and PRC Views of the Agreement
STA Provisions
The United States has used the U.S.-China STA as a tool to
Stated objective: to provide opportunities for cooperation in
S&T fields of mutual interest, thereby promoting S&T progress
deepen diplomatic ties, address global challenges, and
for the benefit of both countries. Cooperation is to be “on the
advance science. Advocates say it guides U.S. S&T work
basis of equality, reciprocity, and mutual benefit.” Both parties are
with China without mandating activity; provides access and
to promote, where appropriate, mutually beneficial activities.
protections for U.S. scientists in China, including in the
Types of activities: exchange of scientists, scholars, specialists,
social sciences (where access has been more restricted); and
and students; exchange of scientific, scholarly, and technological
benefits U.S. researchers by providing access to large pools
information; joint projects; joint research; and joint courses,
of research subjects and longitudinal health studies. China’s
conferences, and symposia; among others.
cooperation has not been consistent, however, as it has
Implementing accords: may include information about the
developed domestic S&T competencies and has sought to
nature of cooperation, responsibilities for activity costs, and
restrict U.S. researcher access in certain areas. STA critics
treatment of information derived from STA cooperation,
say that China is an unreliable or untrustworthy research
including intellectual property rights (IPR). Information from STA
partner, citing data restrictions and a lack of forthrightness
projects is to be made publicly available unless otherwise agreed.
in sharing scientific results. China reportedly withheld
Activities are subject to the laws and regulations of each country.
avian influenza strains required for U.S. vaccines and in
External participation: scientists, technical experts, and
2019, cut off U.S. access to coronavirus research, including
entities of third countries or international organizations at U.S.
U.S.-funded work at the Wuhan Institute of Virology.
and PRC invitation.
Governance: a U.S.-PRC Joint Commission on Scientific and
China takes a competitive approach to innovation and has
Technological Cooperation (JCM), with co-chairs appointed by
used the STA to catch up in its S&T capabilities. The
each country, is to plan and coordinate activities. The JCM
state’s role in China’s economic and research ecosystems
includes senior officials from the technical agencies of both
has allowed the PRC to shape S&T ties with the United
countries. The U.S. executive agent is the Office of Science and
States to fill research gaps, develop competencies and IP in
Technology Policy (OSTP); the PRC agent is China’s Ministry of
priority areas targeted in its industrial policies, and develop
Science and Technology (MOST). The JCM is to meet once a
PRC talent. The STA has provided the framework for PRC
year, alternating between countries. Ful meetings led by the
students and scholars to study in the United States, a
heads of OSTP and MOST typically occur every two years, with
https://crsreports.congress.gov

---

U.S.-China Science and Technology Cooperation Agreement
phenomenon that has been central to China’s S&T
the United States out of its S&T development efforts as it
advances. An estimated 42.5% of the international graduate
gains competencies, similar to its actions in other sectors.
students in the United States are from China. Some say that
Figure 1. Gross Expenditures on R&D for Top 5 R&D
the decentralized and open approach to S&T that
Funding Nations, 2000-2019
characterizes the U.S. research ecosystem, while beneficial
in millions of current dol ars, adjusted for PPP
to U.S. innovation, has hindered the U.S. ability to develop
a strategic approach to S&T ties with China, effectively
oversee joint research, and restrict China from gaining
sensitive capabilities. In 2017, U.S. patent and trademark
officials identified over 400 PRC patents tied to STA
projects that the PRC commercialized without U.S. benefit.
U.S.-China S&T activity increased in November 2009 with
new agreements on joint projects in electric vehicles (EV),
energy efficiency, renewable energy, coal, and shale gas,
and the creation of the U.S.-China Clean Energy Research
Center (CERC), a ten-year research effort between the U.S.
Department of Energy and China’s MOST. CERC involved
over 1,000 participants from U.S. universities, national labs

and industry. The former head of MOST said that CERC is
Source: CRS analysis of OECD data.
a model STA project; U.S. proponents point to clean energy
Notes: The data China provided for 2019-2021 is “under review” by
advances. The effort was controversial among some U.S.
the OECD. PPP is purchasing power parity, a methodology that uses
stakeholders, however. Some U.S. firms expressed concerns
a basket of goods and services to equalize prices among countries.
about sharing foundational IP; others said the efforts’ focus
Issues and Options for Congress
on commercializing and deploying emerging technologies
U.S. options regarding the U.S.-China STA (not mutually
seeded PRC capabilities in areas such as EV batteries.
exclusive) include (a) renew the U.S.-China STA as is; (b)
Rise of China: A Changing Global S&T Landscape.
renew the STA and modify sub-agreements; (c) modify and
China’s global S&T position has changed substantially
renew the STA; (d) significantly rework and renegotiate the
since 1979, when China lagged behind most developed
STA; (e) let the STA expire; (f) shift focus to deepen STAs
nations in S&T. In 1991, China ranked seventh in research
with Europe, Japan, and others; and (g) work with allies and
and development (R&D) funding among countries reporting
partners to develop a common approach to S&T work and
data to the Organization for Economic Cooperation and
with regard to China. Experts debate the extent to which
Development (OECD). By 2019, the most recent year for
canceling the STA would affect U.S.-China S&T ties,
which comprehensive data are available, China ranked
including sub-agreements and federally funded research.
second in R&D investments, behind the United States
Renegotiating the STA might or might not address specific
(Figure 1). China has emerged as a leading patent holder,
concerns that Congress could address through legislation.
source of academic papers, and home to technology-
Congress might consider its preferred role in overseeing the
intensive industries, although some U.S. and PRC experts
U.S.-China STA and its negotiation. It is not a treaty
have questioned the integrity and quality of some research.
requiring Senate ratification.
Measured by co-authored scientific research papers, U.S.
Section 1027 of the Bob Stump National Defense
collaboration with China exceeds U.S. work with other
Authorization Act for Fiscal Year 2003 (P.L. 107-314)
partners, such as Germany, Japan, and the United Kingdom.
required the President to create an interagency process and
China’s trajectory has benefitted from its ties with advanced
a repository for S&T agreements with China. Section 1207
S&T partners in the United States, Japan, and Europe.
directed the Department of State to track all protocols and,
China is also using S&T projects to deepen ties with lesser
until Congress repealed the reporting provision in 2016,
developed countries. China’s 14th Five-Year Plan (2021-
required the Departments of State, Defense, and Commerce
2025) prioritizes basic research capabilities to advance
and the Central Intelligence Agency to report to Congress
China as a global center for S&T research. It focuses on
biennially on how the U.S.-China STA benefits the PRC
strengthening foreign research ties to achieve these goals.
economy, military, and industrial base, including the role of
National S&T and innovation capabilities are increasingly
technology transfer and compliance with U.S. export
central to U.S.-China strategic competition. U.S. benefits
controls. To date some of these reports have not been made
and risks of joint research with China are different from
public.
those in 1979 due to the dramatic growth in China’s S&T
Congress might reconstitute STA reporting requirements,
capabilities. STA proponents say that a more developed
make such reporting public, hold hearings, require the
China has more to offer U.S. researchers and that cutting
executive branch to conduct an assessment, or conduct its
off access could affect U.S. S&T advances. Skeptics say
own assessment to evaluate the benefits and costs of U.S.
that the agreement and the structure of joint research
research with China performed under the STA.
benefits China asymmetrically in S&T areas identified by
the PRC as priorities. China’s ambitions to become a global
S&T leader, and to develop technology and military
Karen M. Sutter, Specialist in Asian Trade and Finance
competencies, depend on U.S. ties. While U.S. leaders may
Emily G. Blevins, Analyst in Science and Technology
see continued value in S&T ties, some say China may push
Policy
https://crsreports.congress.gov

---

U.S.-China Science and Technology Cooperation Agreement

IF12510


Disclaimer
This document was prepared by the Congressional Research Service (CRS). CRS serves as nonpartisan shared staff to
congressional committees and Members of Congress. It operates solely at the behest of and under the direction of Congress.
Information in a CRS Report should not be relied upon for purposes other than public understanding of information that has
been provided by CRS to Members of Congress in connection with CRS’s institutional role. CRS Reports, as a work of the
United States Government, are not subject to copyright protection in the United States. Any CRS Report may be
reproduced and distributed in its entirety without permission from CRS. However, as a CRS Report may include
copyrighted images or material from a third party, you may need to obtain the permission of the copyright holder if you
wish to copy or otherwise use copyrighted material.

https://crsreports.congress.gov | IF12510 · VERSION 5 · UPDATED

---