The never ending argument among linguists and teachers about whether reading difficulties of the non native speakers of English are a reading problem or a language problem is an interesting study to start with. This was one of the questions examined in the study leading to the development of an ESP syllabus for undergraduate students at Bogor Agricultural University (IPB). Chapter One outlines the current English course at IPB where the focus of language teaching is on teaching grammar and reading. Chapter Two looks at the theoretical background and the development of ESP as well as the role of the ESP teachers which is different from the role of General English teachers. Since reading is the only target skill students need to acquire, Chapter Three looks at the theory of reading, outlines necessary reading skills and examines a 'good1 reading teacher. Chapter Four consists of a study and its analysis into whether difficulties in reading is a reading problem or a language problem. These findings are expected to give a clearer idea to the teachers of reading about the problems encountered by the students in reading English texts so they can decide whether the focus of the course should be on grammar development or reading development. Chapter Five discusses several types of syllabus as well as relating to the importance of needs analysis in designing a course, and suggests an outline syllabus for the IPB students i.e. the proportional syllabus including the profile of communication needs, aims and objectives of the course, language content, and the syllabus content.