SL INC; TERRORISTS ■ INTERNATIONAL CHILD ABDUCTION ■ CAMBODIA IN RUINS

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Focus ON LOYALTIES WHEN VICTIMS SUE TERRORISTS / 39 16 / INTRODUCTION: INTERROGATING “LOYALTY” U.S. law now permits the victims of terrorists to sue the By Bob Guldin governments that sponsored the terror — and to seize foreign governments’ property. Is this any way to conduct foreign policy? 17 / ETHNIC AMERICANS, By George Gedda LOYALTIES AND POLITICAL POWER Ethnically identified Americans feel more comfortable these days C O L U M N S — lobbying for their ancestral PRESIDENT’S VIEYVS / 5 homelands, exporting American Americas National Interests on “Hold” values back to the mother By Marshall P. Adair country, even being open 4^4 about their ethnicity Page 16 SPEAKING OUT / 13 within the Foreign Service. Making Child Custody an International Issue By Yossi Shain By Teresa C. Jones and David T. Jones

POSTCARD FROM AJBROAD / 60 25 / MULTINATIONALS AMONG US: Cambodia’s Eternal Tug of War THE RISE OF DUAL CITIZENSHIP By Johnnie E. Prather Dual citizenship used to be strongly discouraged in the United States. Today, our increasing willingness to accept the status speaks volumes about our changing notions of national allegiance. DEPARTMENTS By Peter J. Spiro LEI TEIIS / 7 CLIPPINGS / 10 29 / WHY SPY? DISLOYALTY AS A PRINCIPLE BOOKS / 48 During the 1930s and ’40s, some American Communists IN MEMORY / 52 felt they were being loyal to a higher cause when they INDEX TO ADVERTISERS / 58 passed secrets to Soviet intelligence. By Maurice lsserman

Cover and inside illustrations by Adam Niklewicz

THE MAGAZINE FOR FOREIGN AFFAIRS PROFESSIONALS FOREIGNOERVICE Foreign Service Journal (ISSN 0146-3543), 2101 E Street, N.W., Washington, D.C. 20037-2990 is published _I_J 0 U R N A I monthly by the American Foreign Service Association, a private, non-profit organization. Material appearing here¬ Editor Editorial Board in represents the opinions of the writers and does not necessarily represent the views of the Journal, the Editorial BOB GULDIN EDWARD MARKS, Board or AFSA. Writer queries are invited. Journal subscription: AFSA Members - $9.50 included in annual dues; Managing Editor CHAIRMAN CAROLINE BENNER others - $40. For foreign surface mail, add $18 per year; foreign airmail, $36 per year. Periodical postage paid at Associate Editor ELIZABETH SPIRO CLARK Manchester, N.H., and at additional mailing offices. Postmaster: Send address changes to Foreign Service STEVEN ALAN HONLEY MITCHELL A. COHN Ad. & Circulation Manager THEODORE CRAIG Journal, 2101 E Street N.W., Washington, D.C. 20037-2990. Indexed by Public Affairs Information Service ED MILTENBERGER MAUREEN S. DUGAN (PAIS). The Journal is not responsible for unsolicited manuscripts, photos or illustrations. Advertising inquiries AFSA News Editor AURELIUS FERNANDEZ SHAWN DORMAN are invited. The appearance of advertisements herein does not imply the endorsement of the services or goods Art Director CAROL A. GIACOMO offered. FAX: (202)338-8244or (202) 338-6820. E-MAIL: [email protected]. WEB: www.afsa.org. TELEPHONE: CARYN J. SUKO CAROLINE MEIRS (202) 338-4045. © American Foreign Service Association, 2000. Printed in the U.S.A. Send address changes Editorial Intern WAYNE MOLSTAD CARRIE REILING to AFSA Membership, 2101 E Street N.W, Washington, D.C. 20037-2990. Printed on 50 percent recycled Advertising Intern ARNOLD SCHIFFERDECKER paper, of which 10 percent is post-consumer waste. KARL GEISEL WILLIAM WANLUND

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In August, American diplomacy security affairs impact die interests, suffered an important loss with die Senators have used and sometimes the very existence, of premature retirement of veteran diplo¬ die entire nation. For tiiis reason die mat Peter Burleigh. Burleigh left the holds to pursue Constitution centralized authority for service after waiting in Washington for their personal views die conduct of foreign affairs in one a year while his nomination to be person, die president. It gave Congress ambassador to die Philippines was of how foreign die power to advise and consent. held up by one U.S. senator. That sen¬ policy should be Congress could vote, as a body, to ator put a “hold” on die nomination to reject a presidents nominees, but pressure the State Department to conducted. diere is nothing anywhere to suggest resolve a whistieblower case in which diis nations founders envisaged a situ¬ the senator had an interest. The case, ation where 100 members of Congress however, was in the hands of die spe¬ could exercise veto power as individu¬ cial counsel, an office created by legis¬ reduces American access to die highest als. lation sponsored by that same senator. levels of the host government and cor¬ The United States Senate is one of The special counsel eventually ruled respondingly reduces our influence. die most impressive and respected tiiere was no basis for die case, and die That can impact important strategic, democratic institutions in die world. senator dropped his hold — but not political and economic interests. Each of die senators referred to above before the damage was done. What are diese holds? There is no has made important contributions to This was not an isolated incident. mention of such a power in the both domestic and foreign policy. Last year, several senators placed holds Constitution, or in Senate rules or However, it is time for die Senate s col¬ on the nomination of Richard precedents. There is no formal record lective membership to take a new look Holbrooke to be ambassador to die of who places holds or how long they at some of that institution’s old cus¬ United Nations. This summer another are maintained. Llolds are an informal toms. Individual holds in die national senator is holding the nominations of device permitting any senator to stop security area should be eliminated or seven ambassadorial nominees while Senate action on virtually anydiing severely curtailed. insisting that die State Department temporarily or permanently. They are The executive branch bears some make changes to its personnel system not new, but have been used extensive¬ responsibility as well. It has created to strengdien security awareness. In ly throughout the congressional incentives for congressional holds with each case, individual senators have process to seek more information, poor communication and die State used die holds to pursue tiieir person¬ manage die schedule of legislation, Departments lack of responsiveness to al views of how foreign policy or gov¬ increase bargaining power, retaliate die concerns of individual members of ernment administration should be con¬ against others or simply kill an action. Congress. An excellent proposal to ducted. Widiin the environment of the Senate address diat problem has been lan¬ Each of diese actions imposes a cost. tiiey are considered a completely legit¬ guishing in die State Department for The absence at post of an ambassador, imate tool of die trade, and staunchly months: the creation of State die presidents personal representative, defended. Department legislative liaison offices However, die legitimacy of holds as on Capitol Hill, similar to those the Marshall P. Adair is the president of a tool of die Senate should be serious¬ military has operated for years. Those the American Foreign Service ly questioned when exercised in the offices should be established immedi¬ Association. national security domain. National ately. ■

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‘Wristonization’ Worked and paralyzed by Joseph McCarthy’s those contributions in different ways AFSA President Adairs thoughtful witch-hunt, and then almost de-pro- than do Foreign Service employees. “Prescription for Diplomatic Health” fessionalized by ‘Wristonization’ (the AFSA has been encouraging the (Presidents Views, FSJ, July/August) integration of massive numbers of department to address the differences has an error that ought to be correct¬ Civil Service personnel).” Does Adair and better coordinate the two services ed. One is the attack on the mean to imply that Civil Service more directly and dynamically Wristonization program of the early employees were/are not professional through better workforce planning, 1950s as something that “almost de- in carrying out their duties? If so, how better training and possible structural professionalized” the Foreign Service. can AFSA in good faith bless the changes. It would be more accurate to say excursion tour policy whereby Civil Wristonization professionalized the Service employees fill Foreign Service Nairobi, Remembered FS, bringing into it tire variety of skills positions both domestically and As one of the many victims of the and talents, and the numbers of peo¬ abroad? Are those employees consid¬ August 1998 bombings, I want to ple, that enabled the FS to perform ered by Adair to be “de-professional- extend my appreciation to the vast increase in responsibilities izing” the FS? Ambassador Prudence Bushnell and thrust upon it as a result of World War I ask that Adair rethink his com¬ FSO Lucien Vandenbroucke for their II and the Cold War. ment and give credit where it is due wonderful, insightful articles about I should know: I was a Wristonee — and was due back in the 1950s — the events in Nairobi (FSJ, June and — a Wharton School and SAIS- to the vast majority of Civil Service July/August). Both stories were beau¬ trained economist who joined the employees who each day proudly tifully written and made me cry with State Department in 1950. serve the department. the memories drey evoked. That day’s William E. Culbert Patricia C. Berzins events and the aftermadi could not FSO, retired Program Analyst have been described more accurately. Maple Valley, Wash. Bureau of Diplomatic Bonita Estes Security Office Management Civil Service Professionals Washington, D.C. Specialist Marshall Adairs comments are an Embassy Lima insult to the hard-working and dedi¬ Marshall Adair Responds: cated Civil Service employees of the Civil Service employees brought Dulles, Defended department. He discusses the “profes¬ many talents and substantial expertise I read Lincoln Bloomfield's article sional diplomatic service” and states, to the Foreign Service in the 1950s. on John Foster Dulles (“The “In the 1950s it was first intimidated What they did not bring was experi¬ Genetically Engineered Secretary of ence or expertise in diplomacy, which State,” FSJ, July/August), but was had to be developed on the job. stunned by his flip attitude and poor The Foreign Service Journal welcomes Wristonization was necessary, and was understanding of his subject. your signed letters to the editor. Please the right thing to do. Today, the pro¬ In 1956, my husband returned mail letters to the Journal, 2101 E St., fessional Civil Service employees of from Vietnam to become councilor of NW, Washington, DC., 20037; fax to the Department of State continue to the State Department, which meant (202) 33S-8244; or send via e-mail to make extremely important contribu¬ he was in daily contact with the secre¬ [email protected]. I^ettcis, which are tions to American foreign policy and tary' and accompanied him on most of subject to editing, should include full American national security interests. his trips. My husband had great admi¬ name, title and post, address and day¬ However, in most cases they make ration and affection for- the secretary time telephone number.

OCTOBER 2000/FOREIGN SERVICE JOURNAL 7 ADVERTISEMENT LETTERS marketplace connections Direct access to our major advertisers about products and and grieved at Ms death. The secre¬ news that a meeting with Cooper services they promote in the tary and Mrs. Dulles had stayed with was in the offing for a general dis¬ Foreign Service Journal. us in Saigon and were charming and cussion of the problem. considerate house guests, interesting Several months later, I received a AFSPA and amusing in small groups and flaw¬ message from Ms. Cooper noting www.afspa.org less in their representation roles. that she had met with retiree liaison Alexandria Suites Hotel Secretary Dulles and my husband Ward Thompson and explaining she www.alexandriasuites.com worked well together. On returning had been out for an extended peri¬ Avalon Bay from a trip to Chile, my husband was od, but that her office should have confined to bed with a strange fever. answered my queries in her absence. www.execlubdc.com The secretary called me daily for Bukkehave She apologized for tire unrespon¬ news of Ms health, insisting that he siveness and said a letter was on the www.bukkehave.com stay home until he was completely way. Charles E. Smith Corp. well. He was a thoughtful boss. On Hopefully tMs is a sign that we Living retuiMng home from a trip, the secre¬ have the attention of at least one www.smithliving.com tary would always come over to the PER office. We should keep man¬ Clements & Company barrier to greet me and the children. agement’s feet to the fire until there www.clements.com The whole diplomatic and political is solid evidence of a more general Diplomatic Auto. Sales world traveled to Washington for the change of attitude and efficiency. www.diplosales.com secretary’s funeral, even General de Alan D. Berlind Executive Club Suites Gaulle. They all understood that John FSO, retired www.execlubdc.com Foster Dulles was the conscience of Couleuvre, France Feed The Children America and the world. www.feedthechildren.org Solie Reinhardt Pulp Fiction Georgetown Suites Foreign Service spouse During my 38 years of active ser¬ www.georgetownsuites.com New York City vice and now some years of retire¬ Harry Jannette IntDl ment, I have always looked forward Getting Personnel’s Attention to the Foreign Service Journal for www.jannetteintl.com You may not need yet another hor¬ the many interesting and accurate Hirshorn Company, The ror stoiy to add to Roger Johnsons accounts of incidents and events www.hirshorn.com tale of PER's (now HR) utter ineffi¬ abroad. Long & Foster ciency, wMch borders on total con¬ In recent years it seems that www.simunek.com tempt for its clients (FSJ, June). I add more and more the Journal is filled Oakwood mine nevertheless to provide AFSA with fiction stories that you would www.oakwood.com with more ammunition in what I more likely expect to find in a pulp Randolph Macon Academy hope will be an insistent campaign magazine and that certainly have no www.rma.edu for reform. place in a publication such as the Remington Eight months ago, having heard Foreign Service Journal. The July- www.remington-dc.com nothing in response to a simple August issue is a good example. The State Dept. Fed. Cred. Un. request to Personnel for informa¬ space in the Journal would be better [email protected] tion, I asked PER/RET for assis¬ used for articles which describe State Plaza tance. Three months later I repeat¬ actual experiences abroad and stim¬ www.stateplaza.com ed my plea. On May 12, I wrote to ulating articles on Foreign Service WJD Management Cecilia Cooper, PER/RET director, issues. complaining about the unrespon¬ www.wjdpm.com The fiction stories are a waste of siveness and urging an answer to my time and money and often contain query. One month later I asked undiplomatic slurs aimed at other For further information about the AFSA mission and AFSA to intervene, and got a rapid countries or cultures. membership programs, response from the AFSA retiree liai¬ Robert E. Waska, Sr. log onto www.afsa.org son, providing both the information FSO, retired I had been seeking and the good Santa Rosa, Calif.

8 FOREIGN SERVICE J OU RN AL/OCT O B ER 2000 L ETTEHS

Cross-Cultural Insults agement, of dissent is essential to fire I had believed the Journal was fostering of creativity in the manage¬ supposed to foster cross-cultural ment of foreign affairs. understanding and provide informa¬ In December 1970, the depart¬ Mercedes-Benz tion about other cultures. I am very ment published “Diplomacy for tire angiy about the article “When in 70s: A Program of Management Rome Wear Running Shoes” (FSJ, Reform for the Department of State.” July/August) because of its derogatory The task force noted the existence of remarks about my fellow Germans. “a strong tradition in the Foreign Has Neu lived in my country? How Service that the mission speaks with Diplomacy else could she attempt to interpret one voice. However desirable this tra¬ people’s facial expressions? Has it ever dition may be, it can have the effect of occurred to her that people just simply stifling creativity if it is observed too has its enjoy the sun? And I would certainly inflexibly.” The task force recom¬ not consider a shoe size six huge. I mended “that the Department revise rewards. have asked my husband not to bring FAM 262 to establish it as a general home your magazine anymore. principle, rather than a departure Anne Elmo therefrom, that officers who cannot At American Service Center, your Foreign Service spouse concur in a report or recommenda¬ diplomatic or official passport* Milan, Italy tion submitted by the mission are free will allow you to purchase a new to submit a dissenting statement.” Political Appointees The fate of reports like dris is gen¬ Mercedes-Benz at dramatic In die May issue of the Journal, erally to be filed and forgotten. The savings. Contact Erik Granholm, Charles Stuart Kennedy’s letter was fate of Tex Harris indicates that this our Diplomat and Tourist Sales relatively accurate about the valuable one was too quickly forgotten. Manager. A native of Munich, contributions to our country bv career Chris G. Petrow officers. But, as a political appointee FSO, retired Germany, Erik has been who served eight years as a U.S. Neidlly sur Seine, France with ASC for 33 years. ambassador, I take exception to Kennedy depicting political appoin¬ USIA’s Original Mission Applies only while on official business tees as “significant problems” for Wes Pedersons letter (FSJ, or diplomatic assignment. career officers — linking us with other July/August) disagrees with my asser¬ problems such as hardship posts, tion that anti-communism was not the strains on marriage, and terrorism. sole purpose for USIA’s creation. But, Kennedy owes all of us who served the historical record is quite clear as lencan alongside fine career officers, served to the agency’s original mission. in hardship posts, and were targets of Neither the Smith-Mundt Act (PL Service Center terrorists, an apology. 402), which to tins day serves as the Mercedes. Just Mercedes. Michael Sotirhos legislative basis for USIA’s (now Retired ambassador State’s) public diplomacy activities, 585 N. Glebe Road, Pompano Beach, Fla. nor President Eisenhower’s initial instructions to the new agency, con¬ Aldington, VA 22203 In Support of Dissent tain a word about anti-communism. In your June issue, Marshall Adair Opposing international commu¬ 703.525.2100 says, “The traditional culture of diplo¬ nism and fighting Soviet imperialism macy does not readily support dis¬ was an important objective of USIA. Telefax: 703.284.2482 sent.” Taken as a generality, the state¬ It was, however, never tire main rea¬ ment is undoubtedly true. Yet it is son for its creation and existence. H Mobile: 703.405.4018 worth recalling that the Department Hans N. Tuch www.justmercedes.com of State is on record as recognizing FSO, retired that toleration, if not actual encour¬ Bethesda, Md.

OCTOBER 2000/FOREIGN SERVICE JOURNAL 9 CLIPPINGS

CLIFF’S NOTES FOR been very positive. In May, the site received 414,332 hits and 15,452 new FOREIGN AFFAIRS users. Interestingly, Foreignpolicy2000 To many Americans, foreign policy is appeals to a global audience: The Web site boring. A new Web site, Foreignpolicy2000 has been visited by Bulgarians, Japanese, (www.foreignpolicy2000.org), is out to South Africans and British users. change peoples minds. As was reported by Chris Suellentrop in Slate magazine, the Web site, published by the Council on PLEASE DON’T Foreign Relations, is trying to educate vot¬ ers and spark debate between candidates on SEND ME TO ZAIRE foreign policy during the 2000 presidential Jimmy Buffett meets Madeleine “We may be campaign. Albright. That’s die way Tony Doggett, The site, which calls itself “an evolving USAID FSO by day, singer/songwritert able to open educational tool designed to encourage guitarist by night, describes his new CD, debate on issues of foreign policy,” fea¬ Please Don’t Send Me to Zaire. This the borders, tures a very useful “Briefing Room” where reviewer considers diat a pretty fair descrip¬ voters can read accessible summaries of tion, though (fortunately?) the former is major foreign policy concerns — arms much more in evidence than the latter-. not just to control, defense, Iraq, humanitarian inter¬ Most of the songs are in a mellow vention — 28 topics in all, plus a handy country idiom mixed with rock and capital or introduction to “central foreign policy blues, with occasional nods to Celtic principles.” To learn more about any of music and bluegrass. Doggett not only goods, bnl tire issues in the Briefing Room, voters wrote the words and music for all selec¬ can turn to “Experts and Advisers”: This tions but does a nice job as lead singer section contains citations for reports and and guitarist, with strong back-up vocals also to articles from leading American experts, and instrumentals by friends and studio candidate advisers, and foreign commen¬ musicians. As a bonus, the recordings people." tators for each issue. sound quality is first-rate. “Candidate Positions” is a repository of The amusing tide track, one of 10 on public statements made by the this 28-minute recording, captures in just —MFXICAX PHESIDE.XT- Democratic and Republican candidates a few rueful lines the vagaries of the on these foreign policy topics. It is orga¬ Foreign Service assignment process as I I.I.( i VICKXTE Fox nized so that you can compare Bush and only an FSO could. Two other songs, SPEAKIXG TO Gores positions on each issue. ‘Taounde Bound” and “Christmastime at In September, the Web site began A.I.D.” will also resonate strongly widi HEPUESE. XT Till FS OF hosting online debates between campaign FSOs. Some of the other selections are so XGOs At a. 24 i \ advisers. The advisers debate the positions tied to country-specific experiences diat of each sides foreign policy platform and probably only Africa hands will truly “get” WisirixGTOx. welcome e-mailed questions from the the references (diough even the weaker public. numbers are entertaining). However, the It seems this strategy for interesting CD liner notes not only give die full texts Americans in foreign affairs is working. but do a nice job of explaining what Public response to Foreign policv2000 has inspired each song. —Steven Alan Honley

10 FOREIGN SERVICE J OU RN AL/O C TO B E R 2000 CLIPPINGS

ROBERT OLSEN CASE Rebecca Cooper on ABCNEWS.com, diplomatic enthusiasm for Napster, the SETTLED AT LAST software that allows for the free exchange The case of former FSO Robert Olsen of music files called MP3s, was reeentiy has been settled. Olsen was a junior con¬ squelched by State Department officials sular officer in Sao Paulo Brazil who who blocked government employee would not follow visa line procedures that access to the Web site. he said were in effect racist. (See The motivation, officials said, was not to November 1998 FSJ for the whole story.) prevent copyright violation but to clean up YEARS AGO The State Department fired Olsen in the computer system which had been over¬ 1994, but in 1997 U.S. District Court whelmed by die volume of MP3 down¬ Judge Stanley Sporkin ruled that the FSO loads. A single employee clogged the sys¬ had legally stood up for his principles, and tem and blocked many users’ access to ordered Olsen reinstated. In May 1998, their official computers when he sent an “Let him finish, Olsen rejoined die Foreign Service, but enormous MP3 file from Iris home com¬ Bill. He’s declaring his case did not end there. puter to his State Department computer. Olsen and the department disagreed Incidents such as this one prompted a war on us.” about his next assignment, as well as pay recent “Department Notice” to all employ¬ —FIRST SECRETARY i t and benefits. Olsen failed to report for ees, which warned that “downloading these EMU i.s.si TOKYO \II> duty, and State cut off his salary. large files is causing a bottleneck at depart¬ Eventually, in February 2000, with the ment firewalls and subsequently having an CROCKER TO FSO intercession of the District Court, Olsens adverse effect on our networks.” WILLIAM T. TERSER. attorneys and the department reached a THE SEPTEMBER settlement. Is Olsen resigned from the Foreign CUBA VERSUS IRAQ: 1950 FSJ. TERSER Service, and received a lump sum settle¬ TOLD IIOII HE ment of $250,000, from which he had to Do SANCTIONS KILL? pay his attorneys. The health consequences of economic REPEATEDLY ‘The setdement is OK.” Olsen told the sanctions are troubling: medical supplies IS TERRI P EED J \ PA SI SI. Journal. “My major interest all along has dwindle, lack of electricity and water ham¬ been to advance a principle — that FSOs per hospital functioning, and governments LORt K. \ MISISTRY should be able to act in accordance with lack the funds to keep health care systems Ol TR IAL iSD I RUM) the law.” Olsen is currently an attorney in operating. Iraq and Cuba are two nations MR. OH SO WHILE private practice in the Washington area. hit hard by sanctions, and keeping citizens healthy has proven difficult in both coun¬ OIISO. iIASDS SIIAKI.xo tries. Yet according to a recent article by ASD VOICE STRAISED, STATE DEPARTMENT Richard Garfield in Middle East Report, the health of Cubans has fared far better READ A DEA L \R iTIOS CAUGHT NAPSTERING than that of Iraqis, though both are under Of HAD AGAISST THE It seems that die musical habits of similar sanctions regimes. Cubans are l SI TED STATES OS State Department employees could very healthier, Garfield reports, because their well have attracted legal attention from government has refocused health policy DEC. S, 1941. angry rock bands. According to reports by on maximizing scarce resources and Al Kamen in the Washington Post and by emphasized preventive medicine.

OCTOBER 2000/FOREIGN SERVICE JOURNAL 11 CLIPPINGS

Maternal health and child health often ed through die mass media on the impor¬ suffer disproportionately in a nation under tance of immunization and proper nutri¬ “Loyalty,, if it sanctions. The incidence of low-weight tion. These efforts have paid off: Though requires births increases, and children do not Cuba’s GNP per capita was about one- receive adequate nutrition. Yet in Cuba, tenth of that of the United States when the anything, mortality among infants and children embargo was tightened and has declined under five has declined (to about 7.6 by about a third since 1992, child and requires the deaths per 1000 births in 1998) since 1992 infant mortality rates are almost as low as S when the United States tightened its those in the United States. giving oj one embargo. The collapse of aid and trade Sanctions have been harder on Iraq best judgment from the former Soviet bloc between than on Cuba, and much of Iraq’s infra¬ 1989 and 1992 also hit Cuba hard. structure was destroyed by war in the at all times." The Cuban government has promoted 1980s and 1990s. Still, Cuba’s health breast-feeding and provided extra medi¬ record is impressive, and Iraq could allevi¬ —WILLIAM MACOMBEH cine and food to maintain the health of ate much suffering by following Cuba’s children and mothers. Cubans are educat¬ example, Garfield concludes. ■ You'll Find 100 Weiys To Spend 30 Days At Georgetown Suites. Coming to Washington for an extended stay? Our oversized, luxurious suites put you close to the business district and historic sights, world-class dining and eclectic shops that make Georgetown so exceptional.

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12 FOREIGN SERVICE ] O U RN AL/O C T O B E R 2000 SPEAKING OUT Making Child Custody An International Issue

BY TERRY AND DAVID JONES

Child custody disputes — where a ly washed its hands of die issue. After parent illegally takes a child to a State managed all, child custody cases, like most con¬ countiy outside the U.S., effectively sular work, are grungy, not glam¬ denying the other parent access — to look both orous; they require placating whiny, are a topic the State Department has unhappy people for whom little can long relegated to an obscure comer incompetent and be done and plunging into the “he of the consular affairs bureau. Now, callous in its said, she said, they said” realm of per¬ however, the Elian Gonzalez saga sonal differences. and a poignant U.S.-German case handling of Yet not a few consular officers involving the children of U.S. citizen have won awards and promotions for Joseph Cooke, first highlighted in the these cases. doing more than required to help May 7 edition of the Washington Post U.S. citizens. We recall a consular (“A Family Kept Apart”), have trans¬ officer in a Latin American country muted international child custody who took the initiative to have issues from the agonizingly personal leaflets dropped over a remote area into the intensely public. After all, we act vigorously in areas offering real “gold” coins as a reward Happily, Elian is back with his where the U.S. has identified a prior¬ for locating a missing American. father in Cuba now, and there has ity: for example, imprisoned citizens, Likewise, a consular officer in been high-level involvement to move female circumcision, and trafficking Guangzhou braved the streets during Joseph Cooke’s case toward a just res¬ in women and children. Is it right, for the May 1999 riots against Embassy olution (though the most recent example, that we put more pressure Beijing (following the accidental media reports on our discussions on the German government to safe¬ bombing of China’s Belgrade with Berlin suggest palliative damage guard the rights of Scientologists embassy) to meet with 30 couples to control more than viable solutions). dran to protect die welfare of U.S. facilitate their adoption of Chinese Even so, State has managed to come citizen children? Yet it is obvious that children. across as both incompetent and cal¬ child custody cases have no compara¬ lous in its handling of both these ble status in Foggy Bottom. Maintain Pressure For Results causes celebres, and international In the 55 years of our combined The department’s announcement child custody issues in general. Foreign Service experience, we don’t in May that 10 case officers would be We say this without any special remember a single country team assigned to abduction issues is clearly insights into tire merits of tire report¬ meeting where the need for concert¬ a move in the right direction. But edly 1,100-plus open international ed action to help a U.S. citizen in a much more needs to be done. Are custody cases, each of which has its child custody case was raised. Nor do our country teams now coordinating own unique mix of pain and blame. any of our peers whom we have can¬ to bring U.S. influence to bear in What we can say, however, is that if the vassed on this score. When did the child custody cases? Is there a record official remarks regarding the Cooke secretary of State or any senior offi¬ of regular demarches and follow-ups case accurately reflect our approach, cial ever personally support a U.S. for each individual case? And above then that qualifies as a feeble effort citizens positions? Our impression all, these efforts have to be sustained indeed. State needs to recognize and persists that outside of die officials in even when the issue no longer makes adjust to die new reality’: child custody CA who have to cope with it (and do headlines. cases can no longer be dismissed as their best, we readily acknowledge), To succeed, we need to remember trivial irritants to bilateral relations. die rest of the department has happi¬ some points:

OCTOBER 2000/FOREIGN SERVICE JOURNAL 13 SPEAK/ N G OUT

First, these children are United more than lip service to these fami¬ the welfare of the children but would States citizens who need and deserve lies’ plights. enhance our ability to help all U.S. official protection and attention. At the least, parents should be citizens — their constituents — who Consular officers should demand able to get the same kind of support need assistance overseas. access to each of them on a regular given to U.S. businesses: assistance in Third, sometimes the congres¬ basis, just as we visit all U.S. prisoners getting their message to the right sional reputation for blithe irrespon¬ held in foreign jails, and assure that people and help in making their way sibility in foreign affairs can be a use¬ individuals suffering from Alzheimer’s through a foreign culture and ful lever. Remember, for example, disease overseas are properly attended bureaucracy. After all, Gennany is the Toshiba machine tool diversion to and their Social Security checks are not tire only country where judicial case where congressional moves to not misappropriated. obstructionism has become an art ban all U.S. military purchases of Nor is it up to the U.S. govern¬ form. Japanese products, as well as to ban ment to judge the facts of the indi¬ Second, yes, this approach will imports of Toshiba products, was vidual cases, any more than consular cost money! Don’t pretend that it can used by State to get more coopera¬ officers can decline to visit prisoners be done on the cheap and tossed tion from Tokyo on a knotty export- they believe guilty. But it is our onto the heap of everything else that import case. Likewise, we have cited responsibility to fulfill the other part is being done. Instead, use this pro¬ congressional interest in topics as of the implicit contract that allows posal to persuade Congress to diverse as the U.N. dues structure, taxes to be collected, young males increase State’s budget. Point out that trade with China, and military bur¬ subjected to the military draft, and an infusion of funds to substantially den-sharing in NATO. citizens to be punished for not obey¬ increase the number of consular Fourth, “quiet diplomacy” just ing the laws — for Uncle Sam to pay employees would not only protect means private; it can still be constant

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14 FOREIGN SERVICE J OURN AL/OCTOBER 2000 SPEAKING 0 U T

and even aggressive. Child custody those offered by tire German foreign disagree. Defending the interests of ought to be a basic item in every ministry) that the central govern¬ American children and their families human rights demarche to a foreign ment can do nothing because local is, quite simply, the right thing to do, office and in every meeting widi courts and officials are independent both on an individual and a societal senior officials. Overseas, we should are disingenuous. Of course no gov¬ level. After all, the U.S. talks endless¬ regularly send official correspondence ernment wants to expend political ly about the rule of law. What better on each case with strong requests for capital and ruffle feathers for the demonstration of that principle could action and then have our ambassadors sake of a few foreigners. But our there be than the willingness to com¬ make follow-up phone calls. Back states are at least as “independent” of mit resources and personnel to safe¬ here, let us call these countries’ senior Washingtons control as German’s guard the rights of American citizens diplomats into the department and lander are of Berlin’s, yet that does and their children? Even if our emphasize our concerns, over and not prevent Washington from putting efforts produce no more than over again. One demarche can be extensive pressure on states to improved access to the child or an ignored; a dozen or more just may achieve specific objectives — e.g., no occasional trip to the U.S. parent’s stimulate a response. Thus, following highway funds without seatbelt laws; home, surely such small victories are liigh-level U.S. intervention, Berlin no college education funds without well worth the fight. ■ has now indicated it will revamp its equal support for women’s athletics. judicial procedures to expedite cus¬ This level of activism is controver¬ Teresa C. and David T. Jones are tody cases such as Joseph Cookes, sial, admittedly. Some might regard it retired senior Foreign Service offi¬ though sustained follow-through as special interest pleading, even cers. They are frequent contributors remains very much in doubt. interference with legitimate court to the Journal. In that regal'd, excuses (such as actions within another state. But we

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OCTOBER 2000/FOREIGN SERVICE JOURNAL 15 Focus ON LOYALTIES

he concept of loyalty at first glance seems pure and simple. Back in elementary school, we pledged allegiance to the flag, and our sense of loyalty to the United States went unchallenged. But as with so many things, loyalty becomes more compli¬ cated as we mature. In addition to loyalty to family and friends, we develop complex webs of loyalties — to our home¬ towns, to our alma maters, to sports teams, to political ideals, to our professions. Undoubtedly, many readers of this Journal feel loyalty to the U.S. Foreign Service — an esprit de corps. More than that, loyalty is often seen as moral quality or behavior. One of the authors in this issue, political scientist Yossi Shain, has written that loyalty is “a value-laden concept that power seekers use to rally support and undermine opposing claims.” This issue of the Journal seeks to interrogate the concept of loyalty — to probe its complexities and permutations in the modem world. Our authors examine the loyalties of immigrant diaspora communities, of Americans with dual nationalities, of those who in an earlier era spied on the U.S. government for ideological reasons. By exploring instances in which Americans have felt multiple or conflicting or changing loyalties, the Journal hopes to shed light on this little-examined topic. — Bob Guldin

16 FOREIGN SERVICE ] O U RN AL! O C T O B E R 2000 Focus

FOR ETHNIC AMERICANS, THE OLD COUNTRY CALLS

Last March, when Marie AMERICAN ETHNICS nativist fears — that Americans Jana Korbelova returned with emotional ties to their DON’T JUST LOBBY FOR to her birth city, Prague, ancestral homelands cannot be this time as Madeleine Albright, THEIR ANCESTRAL fully loyal to the United States — U.S. secretary of State, Czech HOMELANDS — are rapidly disappearing. Those President Vaclav Havel declared, THEY ALSO EXPORT people once disparagingly called “I would personally consider it AMERICAN VALUES. “hyphenated Americans” feel excellent [if Madeleine Albright increasingly free to organize and

could succeed me as President of BY YOSSI SHAIN lobby on behalf of the “old coun- the Czech Republic] because into tiy.” Even within Americas for¬ this rather staid provincial envi¬ eign policy establishment, one ronment this would bring an finds increasing acceptance of international spirit, someone who the legitimacy of ethnic lobbies knows the world well, understands it, and would be and full participation by ethnically identifiable players able to act.” In the Czech Republic, the president such as Jews and Cuban-Americans. must be a Czech citizen over 40 years of age. Albright, But what is arguably the most interesting new a naturalized U.S. citizen, qualifies for Czech citizen¬ development is that the flow of political influence is ship under the law that enables those who fled the becoming more of a two-way street. American diaspo- communist regime after 1948 to reclaim citizenship. ras — of Arabs, Jews, Armenians, Chinese — are play¬ Albright smiled and said “I am not a candidate and will ing significant roles in their ancestral homelands. They not be a candidate. ... My heart is in two places, and bring American ideologies and influence into the poli¬ America is where I belong.” tics of the mother country. At times - taking up the Havel’s vision, that transnational allegiance to both challenge that Secretary Albright declined - U.S. citi¬ an ancestral homeland and to the U.S. can exist with¬ zens have even returned to their countries of origin to out conflict, is quite remarkable. It represents not only play leading political roles. his own liberal-humanistic vision of world affairs — where boundaries of state and culture are no longer so Diversity and Diasporas rigid — but also the perception that Americans are the The signs of this more flexible world of multiple best conveyors of this mentality. As members of an loyalties are easy to find. For example, The open liberal society where multiple ethnic identities Washington Post reported this year a sharp increase in are no longer suspect and where, in fact, ancestral the number of young Americans who are spending identities are welcomed as the cornerstone of rnulti- summers in their parents’ homeland. These parents culturalism, Americans in the post-Cold War world are apparently no longer fear that their children will be often perceived as the best representatives of a more stigmatized; in fact, many now consider their chil¬ flexible concept of citizenship and loyalty. dren’s bilingual abilities and familiarity with ancestral Havels extraordinary invitation is just one sign of a culture an asset in a globalized world order. Indeed, as changing configuration of national and ethnic loyalties. America recognizes the value of diversity, homeland For the United States, a nation of immigrants, the countries that previously restricted their kin abroad to meaning of ethnic identity is being transformed. Old single citizenship now permit them dual nationality.

OCTOBER 2000/FOREIGN SERVICE JOURNAL 17 Focus

(See article by Peter Spiro, p. Eastern European their kin, especially in the United 25 of this issue.) These coun¬ States. Armenia, for example —which tries have also enabled their kin countries have welcomed is involved in a bitter territorial strug¬ diasporas to retain broad eco¬ gle with a neighboring state — works nomic and political rights in American expatriates as hard to maintain the intensity of dias¬ their kin states, including poric involvement in the motherlands absentee voting, even though leaders, hoping they’ll cause. the individuals have clearly During the past decade, Eastern established themselves as loyal bring American values European countries have evoked kin¬ citizens in the U.S. ship ties even more dramatically by The December 1996 pas¬ with them. inviting expatriates in the U.S. to take sage of Mexican legislation per¬ leading roles in their countries of ori¬ mitting dual nationality is but gin. Consider Milan Panic, a one example. That law affects the lives of millions of California pharmaceutical industrialist who became Mexican-Americans — the fastest-growing voting bloc the prime minister of Yugoslavia in 1992; Alexander in American politics. With Mexican politicians now Eiseln, an American Army colonel who became the routinely courting support of the Mexican community defense minister of Estonia in 1993; and Valdas in the United States, Mexico has laid to rest the image Adamkus, a Lithuanian-American who moved to of the “pocho” — a derogatory term that questions the Lithuania in 1997 and was elected Lithuania’s presi¬ loyalty of diasporic Mexicans seen as having aban¬ dent in 1998. In the words of one Lithuanian voter, doned their roots in order to assimilate into American “He lived in America for a long time. ... He knows society. how die system works there. I drink he will bring There are many reasons that Mexico and other democracy from America to us.” Also, in Armenia, for¬ countries have reversed course and now encourage mer foreign minister Raffi Hovannisian and energy rather than prohibit dual nationality. Most important¬ minister Sebuth Tashjian are both from California. ly, they see numerous advantages in cultivating the These are of course radier rare cases of ethnically continued loyalty of their kin diasporas. For countries identified Americans taking posts in their countries of such as Colombia, Nicaragua, the Dominican Republic origin at a rime when American political and business and El Salvador, remittances and investments from kin expertise is sought in nascent states or in new democ¬ communities in the United States play an important racies emerging from the shadow of communism. economic role. Diaspora money also now influences Because of their American experience, these individu¬ national politics and political campaigns in many coun¬ als with dual attachments are in a special position to tries, so politicians may want to win the approval of help their ancestral homelands. their financial backers abroad. More generally, they Leaders in other countries, realizing that ethnic want to keep their diasporas loyalty intact, and thus Americans can be a powerful lobbying force, have at they use citizenship as an incentive for ethnic or times encouraged their kin to become involved in U.S. national pride. foreign policy. However, they fail to recognize that in Many states also want to use tire lobbying power of the process of empowerment, these edmic Americans may become even more American, and in turn bring Yossi Shain is the Aaron and Cecile Goldman Visiting back unexpected messages and ideas, such as democ¬ Professor at Georgetown University. His regular ratic reforms, much to the chagrin of the kin state. appointment is as a professor of political science at Tel Take, for example, Arab-American relations with Saudi Aviv University, His latest book, Marketing the Arabia. American Creed Abroad: Diasporas in the U.S. and In April 1999, Jeddah’s conservative newspaper Their Homeland (Cambridge University Press, 1999) Al-Madina ran an editorial entitled “A Clinton Victory recently received the Israel Political Science Best Book and Arab Americans.” Noting that the peace accord in of the Year Award. Ulster showed the great political clout of Ixish-

18 FOREIGN SERVICE J O U RN Ah! O C T O B ER 2000 Focus

Americans, the editorial stated, Ethnic lobbies country of origin could gain access “The Arab minority in the United to decision-makers mostly when States must move toward influen¬ benefit from the decline their views coincided with tial centers in a society where America’s hostility to communism. domestic politics [is so crucial].” of traditional foreign Richard Allen, Ronald Reagan’s However, when Arab-Ameriean first national security adviser, lobbyists like Jim Zogby and Khalil policy elites. encouraged Cuban-Americans to Jashan were welcomed by the build up an ethnic lobby that would Clinton administration as harbin¬ serve as a tool furthering the gers of peace in the Middle East and subsequently administration’s effort to delegitimize the Castro began to contemplate advocating greater openness in regime. Over time, Jorge Mas Canosa and the Cuban- the Arab world, they were immediately rebuffed by American National Foundation became a major power Arab states, including Saudi Arabia. broker in American foreign policy. With the changing nature of America’s ethnic mix Fear of Hyphenated Americans — i.e., with the proliferation of non-European immi¬ The question of expatriate loyalty has evolved over grants arriving mostly from Latin America and Asia, the years. In the 19th and early 20th centuries, the and with the growing advancement of minority groups, idea of hyphenated Americans was used by nativists to especially African-Americans — ethnic Americans question the allegiance of immigrants, despite the began to consider a voice in foreign policy an addi¬ newcomers’ claims that their ancestral identities were tional form of empowerment. In America today, there not incompatible with their loyalty to America. Even are many new ethnic voices making themselves heard. cultural assimilation in America did not shield many Even groups which are satisfied with their accomplish¬ immigrants from feeling threatened because of a per¬ ments in the American economic arena no longer shy ceived affinity to their homelands. This was especially away from foreign policy. Thus, in contrast to their his¬ the experience of diasporas whose homelands were torical timidity in American public affairs, the 1.4 mil¬ enemy states at war with the U.S. lion Indian-Americans have found a political voice and American fear of transnational allegiance was also are raising the stature of India in Washington. behind the exclusionary laws of the late 1910s and the early 1920s. During World War I, the issue of dual loy¬ Ethnic Lobbies’ Growing Power alties became particularly prominent with the growing At a time when global foreign relations are no Suspicion of pan-German organizations, which longer defined in strictly East-West terms and U.S. prompted America’s demand for total assimilation and foreign policy is characterized by a diminished cohe¬ unqualified renunciation of German-American past siveness, ethnic lobbies are becoming more important loyalties. President Woodrow Wilson feared that in influencing foreign policy makers. The fact that American involvement against Germany might American society and politics permit, or even wel¬ unleash “serious domestic clashes inside the U.S.” come, expressions of ethnic solidarity and no longer The most vivid example of misguided fear manifest¬ discourage preoccupation with motherlands lends ed itself during World War II after the attack on Pearl itself to special diasporic influences on the U.S. for¬ Harbor. The belief that Japanese-Americans might still eign policy agenda. This reality has raised concerns be loyal to the ancestral homeland resulted in the relo¬ about the ability of the U.S. to develop foreign policy cation and internment of 120,000 Japanese- in the “American national interest.” Will its foreign Americans. As recently as 1991, this animosity sur¬ policy be tainted and confused by partisan and divi¬ faced again (albeit in a much milder form), as Arab- sive ethnic voices? On this point, Samuel Huntington Americans became vulnerable to attack during the says that by accepting the validity of multiculturalism Gulf War with Iraq. and by heeding ethnic voices, American decision¬ During the Cold War years, ethnic Americans who makers are at risk of compromising American nation¬ sought a voice in foreign policy matters regarding a al interests.

OCTOBER 2000/FORE1GN SERVICE JOURNAL 19 Focus

Such concerns are usually exag¬ Young Iranian-Americans remain silent, lest they be accused gerated. In my book, Marketing of being traitors at home or spies the American Creed Abroad: are American enough to abroad. Over time, however, their Diasporas in the U.S. and Their offspring become sufficiently com¬ Homeland, I document that ethnic lobby, and Iranian fortable to organize as ethnic Americans who engage in U.S. for¬ Americans, and eventually to act as eign policy are frequently carriers enough to care about a liaison between the U.S. and of American foreign policy mes¬ their homeland. In the case of the sages and values, rather than being their homelatid. million-strong and economically agents or fifth columns for their thriving Iranian-American com¬ countries of origin. munity, Negar Akhvi has recently For example, Iranian radicalism is said to be waning noted that after the revolution of 1979, first-genera¬ as reformist politicians win elections in Teheran. Even tion immigrants were too timid either to speak against Iranian-Americans now see the possibility of building Ayatollah Khomeini or to organize as diasporic an ethnic lobby without compromising their American Americans. Describing the younger generation of loyalties or without being suspected of treason by their Iranian-Americans in Los Angeles, Akhvi maintains, kin in Iran. Especially when a homeland is at odds with “the fatigue and the stress that enveloped the genera¬ America, first-generation exiles may feel compelled to tion that fled Iran has not been passed on to my own.

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20 FOREIGN SERVICE ]O URNAL/OC TO B ER 2000 Focus

My generation is less scared by the Revolution and at and importance in the foreign policy arena. When in greater ease in democratic forums. In short, we are 1994 President Clinton was hesitant about restoring American enough to form a lobby, yet Iranian enough deposed President Jean-Bertrand Aristide in Haiti, it to care about what happens in our homeland.” was the Congressional Black Caucus and the hunger Other American ethnic communities, both new¬ strike of Randall Robinson, director of the African- comers and those of long standing, have discovered American lobby TransAfrica, which forced him to act. they can unify and mobilize their particular communi¬ The recent case of Elian Gonzalez is a fascinating ty by pursuing goals related to the homeland as well as example of how disapora community leaders tty to safe¬ domestic issues in the U.S. That was certainly true of guard the exile mentality against the atrophy that would African-Americans as they effectively protested be quite natural for a community of immigrants after apartheid in South Africa in the mid-1980s. When in 40 years in the United States. It appeared that the 1988 a number of American black leaders announced Cuban-American community found itself at a critical their preference for the appellation “African- juncture: Was its identity that of exiles and refugees American” over “black,” the Rev. Jesse Jackson nurturing their old rhetoric and the hope of return — declared, “Every ethnic group in this country has a ref¬ or were they to become ethnic Americans plain and erence to some land base, some historical cultural simple? For Cuban-Americans, the Gonzalez case base. African-Americans have hit that level of maturi¬ served as the impetus for reassessing the question of ty.” Indeed, in recent years African-American activists their loyalty, and the community found itself in a pre¬ inside and outside Congress have gained high visibility carious dilemma. The difficulty is that if Cuban-

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OCTOBER 2000/FOREIGN SERVICE JOURNAL 21 Focus

Americans are perceived as acting Henry Kissinger case officers are minorities and 18 outside the laws of America regard¬ percent are women, while the ing child custody, or in opposition downplayed his Jewish agency’s top managers are predom¬ to congressional tendencies to relax inantly white men. But the increas¬ the economic sanctions against origins in his handling of ing focus on terrorists, narcotics Cuba, they endanger the sympathy traffickers, weapons sellers and they enjoy as adherents of the Middle East conflict, other “hard targets” has prompted American interests and values and the agency to recognize that non- opponents of the Castro regime. and angered white spies fluent in many lan¬ That struggle over the loyalty' and guages are invaluable to furthering identity of Cuban-Americans is cer¬ Israeli militants. the organization’s goals. Although tain to continue. CIA officials concede some initial In todays America it becomes difficulties in fulfilling this new more and more difficult to distinguish between domes¬ imperative, given the agency’s past support for coups in tic and foreign politics. Americas divided government, Latin America and tire Middle East, CIA officials insist which empowers single members of Congress and that they are nevertheless able to find recruits who are even local municipal leaders in foreign policy, enhances motivated by a sense of U.S. patriotism. die stature and the clout of well-organized ethnic lob¬ At the same time that such diversity' initiatives are bies. These lobbies also benefit from die declining lauded, they have not been universally endorsed. Thus, power of traditional foreign policy elites — the old some critics maintain that opportunities for ethnic “Eastern establishment.” For example, the highly Americans continue to be limited to positions of lesser mobilized and well-funded Armenian-American com¬ prestige and importance. The U.S. Foreign Service is a munity' has gained its reputation over die past decade case in point. Cresencio Arcos, former U.S. ambassador as the most important element in shaping U.S. foreign to Honduras, has charged, in the December 1999 policy posture toward the newly independent states in Foreign Service Journal, that the issue of diversity in the the Caucasus and especially toward the condict in Foreign Sendee has yet to be fully addressed. Although Nagorno-Karabakh, a territory claimed by both most members of the Foreign Service welcome diversi¬ Armenia and Azerbaijan. While Congress continues to ty, and tire position of African-Americans and Hispanics support the lobby’s position and prohibits direct U.S. has improved in past years, these minorities are often assistance to Azerbaijan under Section 907, the Clinton relegated to consular or administrative positions and are administration strongly opposes Section 907 and has still not granted posts of strategic importance to testified in favor of repeal of these sanctions. In his America. inaugural address in 1998, Armenian President Robert Findings provided by Rodolfo O. de la Garza of the Kocherian emphasized the importance of “the unifica¬ Tomas Rivera Policy Institute, a U.S. institute for tion of efforts of all Armenians, and ensuring the research on Plispanic issues, further reveal that 54 per¬ Armenian diaspora’s active participation in the social, cent of Hispanic Foreign Service officers say that political and economic life of our republic. ... Armenia Anglo officials “treat them differently than they treat should be a holy motherland for all Armenians, and its other non-Hispanic white officers.” Moreover, 44 per¬ victory should be their victory.” cent of Hispanic officers felt that their assigned posi¬ tions in Latin America have hindered their career Ethnic Americans and the Foreign Service prospects. Yet 95 percent of Hispanic officers report The growing acceptance of diversity and multicultur- that they have never felt divided loyalties even though alism within U.S. foreign affairs agencies also opens the 34 percent of officers have been accused of divided policy-making process to new influences. Take, for loyalties. Extrapolating from this and other data, the example, the CIA’s recent operational imperative to push message appears to be one of significant discontent for diversity in its clandestine branch, the Directorate of among Hispanic Foreign Service officers with regard Operations. Presently, just 11 percent of the agency’s to their career prospects.

22 FOREIGN SERVICE JOURNAL/OCTOBER 2000 Focus

Despite the discontents expressed by Hispanic downplayed his Jewish origin in his work on this policy FSOs, there is a growing perception within U.S. gov¬ area. Kissinger was attacked vehemently by the ernment agencies that ethnic identities do not really American-Israel Political Action Committee when he present a threat to the effective work of U.S. foreign attempted to push Israel into a deal with the Arabs. In affairs professionals. To the contrary, the ethnic origin light of Israel’s reluctance to accept an American dictate, factor is seen as an asset that may actually augment AIPAC mobilized the Congress against President Ford’s diplomats’ expertise thanks to linguistic capabilities and decision to reassess U.S. policy in the Middle East and cultural knowledge—skills that enable Foreign Service U.S. relations with Israel. When 76 senators wrote to die officers to operate more effectively in their posts. Thus, president urging him to declare that “the U.S. acting in with the passage of time, there is less tendency to sus¬ its own national interest stands firmly with Israel,” pect or stigmatize the ethnic American Foreign Service Kissinger responded angrily. He berated Israeli employee as having a potential for divided loyalties. Ambassador Simcha Dinitz and told him that the letter This trend is illustrated well by the decline of stigmati¬ “will increase anti-Semitism, it will cause people to zation of the Jewish-American diplomatic role in charge that Jews control Congress.” As a result, Middle East affairs. Kissinger was accused of betrayal and hounded by demonstrators in Israel. His insistent loyalty to die Jewish Americans and Middle East Policy United States dius resulted in his being pulled from When U.S. foreign policy was determined by tradi¬ both sides of die ethnic bridge. tional professional elites, there was a tendency to per¬ The allegation that Jews cannot always be both good ceive Jewish-American affinity with Israel as a liability, Americans and good Jews surfaced on various occasions especially since the Foreign Service held that Americas when there was a contest between the White House and close ties to Israel could jeopardize its interest in the the Israel lobby. Today, however, as foreign policy-mak¬ Arab world or the oil-rich countries. In the 1950s, U.S. ing in Washington is becoming more dispersed and foreign policy-makers under Eisenhower viewed Israel influenced by, among other things, think tanks, public as, at best, a benign presence in the Middle East and, opinion and the media, edmic lobbyists are no longer more commonly, as an irritant in Americas strategic perceived as an inherent threat to the national interest, planning in the region. At the height of the Cold War, and the dreaded charge of “divided loyalties” is less and Jewish Americans were leery about breaking with the less persuasive. In fact, the end of the Cold War and American official line. For instance, during the Suez deep splits within Israel regarding the direction of the Crisis of 1956, the Jewish-American lobby emphasized Palestinian peace process and die character of die its allegiance to American interests and was reluctant to Jewish state have tended to divide the U.S. Jewish com¬ push Israels case for fear of being labeled disloyal. munity. Thus, when President Clinton wanted to A Jewish-American FSO-Ol who joined the service in demonstrate his frustration witii former Israeli Prime tire 1960s told me that his greatest challenge as an eth¬ Minister Benjamin Netanyahu, he could call upon cer¬ nic Jew was adjusting to the normative profile of a tain Jewish-American community leaders to mobilize Foreign Service officer. Having grown up in New York tiieir constituencies to reprimand the Israeli govern¬ City and attended a city college, he had to acquire the ment for its behavior. culture of courtesy and purify New York “Jewish” At times, individuals associated witii ethnic lobbies speech patterns. “Serving in the Near East and Asian have even established themselves as leading experts in Bureau was for me a cultural education into an Ivy their respective kin states and, as such, are mobilized by League world I was not familiar with,” lie said. “I never the American government as more effective messengers felt, however, that my loyalty was questioned regardless in die United States or in their ancestral homelands. of the Arabist tendencies in the bureau at the time.” When persons of Jewish origins, such as Aaron Miller, The emphasis on American allegiance by Jewish Dennis Ross, or Martin Indyk (who was a member of Americans could also be seen in Secretary of State the pro-Israel lobby before he established the Henry Kissingers handling of the Middle East conflict. Washington Institute for Near East Policy) are situated During the Nixon and Ford administrations, Kissinger at the forefront of American foreign policy in the Middle

OCTOBER 2000/F O RE IGN SERVICE JOURNAL 23 Focus

East, the idea that committed Jews We should not forget tha t munity was much less merciful cannot be trusted as brokers in the toward Pollard than was the Arab-Israeli peace process is no America’s generally Israeli government, which has longer viable. Even Arab leaders been trying for years to secure his and Arab-Americans have grudg¬ benign attitude toward release from prison. More recent¬ ingly accepted this as a fact of life, ly, Wen Ho Lee, the physicist for¬ despite ongoing Arab-Israeli con¬ questions of ethnic loyalty merly at Los Alamos National flicts. Take, for example, Daniel Laboratory who is alleged to have Kurzer, Americas current ambas¬ does have its limits. passed nuclear secrets to China, sador to Egypt, who is a deeply has reportedly caused a cloud of committed and publicly identified suspicion to be cast over other Jew. The prominence of these individuals in Middle Chinese-American scientists. East policy-malting is a clear indication that in America Despite these rare cases, the overall trend in the at least, Jewish identity does not provoke serious suspi¬ United States has clearly moved in recent decades in a cions of divided loyalties. more positive direction. There is an ever greater accep¬ Finally, we should not forget that America’s gener¬ tance of the legitimacy of ethnic Americans in national ally benign attitude toward questions of ethnic loyal¬ policy-making, as well as a growing appreciation that in ty does have its limits. After Jonathan Pollard, an the present period of globalization, Americas ethnic Israeli-American, was convicted of spying for Israel, groups can strengthen and expand U.S. influence it was not surprising that the Jewish-American com¬ around the world. ■

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24 FOREIGN SERVICE J O U RN A L / O C T O B E R 2000 Focus ON LOYALTIES

MULTINATIONALS AMONG US: THE RISE OF DUAL CITIZENSHIP

IN TODAY’S GLOBALIZED WORLD, NATIONS NO LONGER FEEL THREATENED BY CITIZENS WHO HOLD ALLEGIANCES TO MULTIPLE COUNTRIES.

BY PETER J. SPIRO

or centuries, the notion that individuals should have one and only one nation¬ ality was an organizing principle of interstate relations. Just as nation-states carved up the worlds territory to the end that all was spoken for but nodiing shared, so too did they try to allocate the worlds population. People who were cit¬ izens of more than one country presented too great a risk of sparking bilateral conflicts through tire human equivalent of turf contests between states. But that risk has dissipated in the face of globalization and the development of human rights norms. States are increasingly tolerant of tire status, and the incidence of dual nationality is exploding. To the extent that any distaste for dual nationality still lingers, it is a fading echo of another era. Though migration has always resulted in some cases of dual nationality — for example, sometimes children born on

OCTOBER 2000/FOREIGN SERVICE JOURNAL 25 Focus

foreign soil were claimed as nationals “Nations should as sovereign discretion over its own of the countries from which their par¬ nationals. ents emigrated, and dreir essentially soon tolerate a man Disputes over the treatment of dual passive nationality went unchallenged nationals were often serious irritants in by audiorities — until reeendy, dual with two wives as a bilateral relations of the 19th and early nationality remained an anomaly and 20th centuries; at one time or another, was considered by some to be man with two such disputes were central to U.S. immoral. The venerable American relations with the major European

diplomat George Bancroft observed in countries. ” powers. A frequent cause of these dis¬ 1849 diat nations should “as soon tol¬ putes was the ref usal of the “sending” —George Bancroft, 1849 erate a man with two wives as a man states (that is, states with high emigra¬ with two countries; as soon bear with tion) — including Great Britain, Italy, polygamy as that state of double allegiance.” In 1915, and the German principalities — to recognize the right of Teddy Roosevelt labeled the “dieory” of dual nationality individuals to abandon their original nationality and “a self-evident absurdity.” Dual nationality was thought to become Americans. For example, immigrants who had represent an intolerable division of the loyalty owed to naturalized in the U.S. could be prosecuted for failing to ones country. Almost all states canceled citizenship upon satisfy military service obligations in their country of ori¬ naturalization elsewhere; until the late 1960s, one forfeit¬ gin when they returned for a visit. Conflict would arise ed American citizenship for so much as voting in another when American diplomats tried to shield the naturalized states elections. American from such prosecution. But U.S. authorities were sometimes put in the posi¬ Dual Nationality Abhorred tion of defending someone whose claim to protection was The antipathy once associated with dual nationality shaky at best. Many immigrants to the U.S. during tire was so entrenched that it was almost reflexive. In the 19th centuiy returned to their homelands for permanent popular mind, dual nationality has been loosely identified resettlement at the same time that they retained their with shadowy fifth columns and saboteurs. The status was naturalized American citizenship. (One generally did not considered an affront to a nation; one could not be equal¬ automatically lose American citizenship for simply ly loyal to two different countries. Even today, many still returning home.) These dual nationals would attempt to believe dual nationality to be illegal or wTong. use their status to their advantage — to get out of obliga¬ The historical explanation for efforts to eradicate dual tory military sendee, for example — even though they nationality is far more prosaic, though it will resonate had effectively abandoned their adopted country. The with any Foreign Service officer who has completed a State Department was forced to decide which nationals it tour on consular duty. It had nothing to do with spies, and should protect and which were appropriately subject to little to do with loyalties; rather, it was rooted in the chal¬ home country obligations, a line that wasn’t always easy to lenges that dual nationals posed to the institution of draw and which rarely satisfied either immigrant com¬ diplomatic protection. Before World War II and the munities in tire U.S. or European governments. In 1874 modem human rights revolution, the rights of individuals President Grant expressed his disapproval of those who depended entirely on nationality, and sovereigns could do used “claims to citizenship of the United States simply as as they pleased with their own. In the case of a dual a shield from the performance of the obligations of a cit¬ national, the right of one state to protect its citizen from izen elsewhere.” As one congressman observed in 1940 mistreatment by another ran headlong into the others hearings on nationality law reforms, “these people have gotten awfully patriotic along about the time that they Peter ]. Spiro, a law professor at Hofstra University, is have had trouble abroad.” a former State Department lawyer and National Conflict over the rights of dual nationals could result Security Council staff member. In 1998-99, he under¬ in war. The War of 1812 was in large part provoked by took a study of the law of U.S. citizenship as an Open Great Britain’s attempt to conscript U.S. citizens whose Society Institute Individual Project Fellotv. naturalization it did not recognize. U.S. foreign relations

26 FOREIGN SERVICE JOURNAL/OCTOBER 2000 Focus

compilations from the 19th and early Through the middle their emigrant populations to natural¬ 20th century are replete with high- ize in their new countries so as to level disputes relating to dual nation¬ of the 20th century, cement economic and political ties als. To solve the problem, the U.S. with diasporic populations. negotiated treaties (most notably the dual nationality in any Even in most “receiving” countries, Bancroft conventions of the 1860s and including the United States, Great 1870s with several German principali¬ active sense was Britain, Canada, France, and Italy, the ties and Scandinavian countries) pro¬ quiet rise in dual nationality has viding for the attribution ol sole U.S. effectively prohibited attracted little controversy. In the nationality for immigrants, with a United States, the prospect of millions reversion to sole original nationality under U.S. law. of dual Mexican-American nationals upon permanent return to a home concentrated on the southern border country. These bilateral arrangements has failed to provoke any policy initia¬ found a backstop in U.S. nationality law under which a tives for deterring dual nationality. Even Germany, with variety of acts — voting, holding office, serving in the its notoriously restrictive naturalization policy, increasing¬ armed forces, or naturalizing in another country — ly tolerates the retention of original nationality by natu¬ resulted in the automatic loss of American citizenship. ralizing aliens. As globalization fuels migration, and states Through the middle of the 20th century, dual nation¬ no longer attempt to suppress dual nationality, the status ality in any active sense was thus effectively prohibited is now almost commonplace. under U.S. law. But the American governments decision How did we get from there to here? The shift is a pro¬ to adopt such a regime, whose lead the vast majority of found one. The state has long demanded exclusive alle¬ other countries followed, had little to do with fear of dis¬ giance. The abandonment of that demand speaks impor¬ loyal citizens. There is little evidence that conflicting loy¬ tantly to the transformation of international relations. alties led citizens to participate in anti-American activi¬ ties. During World War II, some Americans who held Less Risk of Conflict passive nationality through parentage in Axis nations If the rule against dual nationality was rooted in issues chose to join Ads armies with little complication; they of diplomatic protection, that foundation has been simply lost their U.S. citizenship in the act of enlisting washed away. In todays world, internationally accepted elsewhere. There appears not a single notable instance of standards of human rights discourage sovereigns from a dual national having engaged in espionage — perhaps doing as they please with their subjects. Other countries not surprisingly, as any real spy would be foolish to adver¬ now' protest the treatment of individuals regardless of tise a competing attachment. nationality; it is unlikely today that a dual national could rupture diplomatic relations between states. The sticking Welcoming Dual Nationality points drat once caused interstate conflict over dual But historical antipathy towards dual nationality is fast nationals — especially military service and taxes — have eroding, and its incidence is now growing rapidly. Today, largely been resolved under bilateral agreements which many are bom with dual nationality, the product of bina¬ make residence, not citizenship, die criterion that deter¬ tional parentage. Others acquire dual national status with mines a dual nationals obligations to his or her countries. new citizenships, retaining birth citizenship upon natu¬ Of course, diplomatic protection is hardly on the ralization in another country. In both cases, states are minds of most who persist in opposing dual citizenship, moving to recognize the retention of other nationalities. nor can drey plausibly assert drat dual nationals pose Mexico, Turkey, the Dominican Republic, Italy, and some sort of security risk. Rather, opponents of dual Thailand are among many recent additions to the list of nationality are left to raise the specter of an electoral countries which allow birth citizens to retain nationality fifth column. As the political columnist and ardent dual when they naturalize elsewhere; Korea, India, and the nationality critic Georgie Anne Geyer wrote of Mexico’s Philippines are poised to follow. Some “sending” states, recent acceptance of the status: it “creates a kind of such as Mexico and Turkey, are actually encouraging Mexican political lobby of newly enfranchised citizens of

OCTOBER 2000/FOREIGN SERVICE JOURNAL 27 Focus

cultural allegiance would remain in National identity may staffer participating in a campaign Mexico.” Similarly, the restrictionist finance investigation recently had Federation of Americans for note resemble his clearance revoked because he Immigration Reform claims that the had acquired Irish nationality. Mexican government is “attempting membership in other And so what of such solemn to maintain the allegiance of a huge terms as “loyalty” and “allegiance” voting bloc in U.S. elections.” groups in civil society. that have draped discussions of dual But to what end? Globalization and nationality? Nationality may still the end of the Cold War have gready represent an important element of reduced die number of issues on which states suffer con¬ identity, which explains the motivation of many who flicting interests. On trade issues, for example, the acquire or retain the status. But national identity may Mexican national interest in most cases coincides witii die now resemble something akin to membership in other interests of American consumers. In diat case, can it be groups, religions, corporations, localities, and the innu¬ deemed somehow against the “national” interest to vote in merable other elements of civil society. It is not neces¬ a way calculated to benefit another country? It is increas¬ sarily primary, and not inherently exclusive. ingly difficult to isolate distinct national interests on such Maintaining membership in another national commu¬ other global issues as transnational crime, the environ¬ nity may have become no more threatening than main¬ ment, and human rights. taining membership in the Catholic Church, the Sierra Of course, the citizenship tie will hardly be deter¬ Club, or Amnesty International; just as it is consistent minative of voting behavior. Americans often vote to be both American and Catholic, for example, it is with an eye to the interests of their ethnic communi¬ consistent to be both American and French. Nations ty; indeed, that is at the core of our political tradition. can no longer jealously demand that their membership Mexicans who naturalize as U.S. citizens and who remain a monogamous one. abandon their Mexican nationality in the process could of course continue to vote Mexican interests No Going Back even in the absence of the formal link. On the other It seems clear that multiple nationality is here to hand, it overestimates the current significance of citi¬ stay. Building on the Supreme Court’s watershed 1968 zenship to assume that an individual who retains alter¬ decision in Afroyim v. Rusk, which found unconstitu¬ nate nationality will necessarily vote accordingly. tional the involuntary forfeiture of citizenship, U.S. law Citizens are hardly a docile herd, ready to do the bid¬ now fully tolerates the status. Americans who natural¬ ding of their governmental masters. Emigrants, espe¬ ize elsewhere retain their U.S. citizenship, unless they cially, tend not to accept the command of homeland really want to renounce it. Foreigners who naturalize in rulers, and their political conduct is likely to be driven the U.S. may retain their original nationality to the more by interests other than those of their alternate extent permitted by their home country; the American nationality. oath of naturalization, under which new citizens are Indeed, it is not clear why tire political identities of required to renounce absolutely allegiance to foreign dual nationals should be restricted in any significant powers, has never been enforced. way. In the U.S., nothing bars dual nationals from elec¬ It is remarkable how little opposition has surfaced in tive office. There are already cases of dual nationals this country to dual nationality. One would have expect¬ serving in state and local governments, and it may not ed immigration restrictionists on tire Hill and elsewhere be long before we find one in high federal office. As for to have jumped on the issue. They have not and will not, appointed office, dual nationality would not seem to be at least not with any success. Too many of us, a disqualification for most domestic policy-making Republicans and Democrats, individuals of Irish, positions. Dual nationals should not categorically be Jewish, and Italian, as well as of Mexican and denied work in national security, although under cur¬ Dominican descent have spouses, children, nephews rent practice dual nationality is a significant obstacle to and nieces who are dual nationals, and also good gaining most security clearances; A congressional Americans. ■

28 FOREIGN SERVICE J O V RN AL / O C T O B E R 2000 Focus ON LOYALTIES

DISLOYALTY AS A PRINCIPLE: WHY COMMUNISTS SPIED

DURING THE 1930S AND ESPECIALLY DURING WORLD WAR II, SOME COMMUNISTS FELT THEY SERVED A GREATER CAUSE BY SPYING FOR THE SOVIET UNION.

BY MAURICE ISSERMAN

n the early 1950s, Americans were confronted by deeply disturbing questions and charges regarding tire loyalty of federal government employees to their own country. “A conspiracy on a scale so immense as to dwarf any previous such venture in the history of man” was afoot, Wisconsin Sen. Joseph McCarthy declared sensationally on the floor of the U.S. Senate in 1951. According to McCarthy, Communist infiltrators had extended their influence to the very highest councils of the executive branch of the U.S. government during the years in which Franklin Roosevelt and his successor, Harry Truman, sat in the White House. Newspaper headlines and courtroom verdicts seemingly buttressed the Republican senator’s fervently partisan accu¬ sation that there had been “20 years of treason” in Washington. In 1948, in testimony before the House Committee on

OCTOBER 2000/FOREIGN SERVICE JOURNAL 29 Focus

Un-American Activities, Whittaker Chambers, a self-con¬ forces among our own people.” The Rosenbergs, fessed former agent of Soviet military intelligence, Kaufman concluded, had “altered the course of history to accused a long list of former government employees the disadvantage of our country.” including Alger Hiss, a senior American diplomat in World War II, and Harry Dexter White, a former assis¬ When Secret Archives Open tant secretary of the treasury, of having provided secret A half century after ffiese events, die Rosenbergs, government documents to him in the 1930s. All of them Chambers, Hiss, White, and others from diat turbulent denied the charges. White died of a heart attack before era were once again making headlines and provoking he had to face the legal consequences of Chambers’ accu¬ debate. Old controversies took on new life, thanks to the sation. But Hiss was convicted in federal court on peijury release of previously secret documents from official charges in 1950 for having denied his involvement with archives in the United States and the former Soviet Chambers in the 1930s. Union. Among the most significant of these new sources The Truman administrations efforts to purge the gov¬ are the files of the Venona project (Soviet diplomatic ernment of Communists and their fellow-travelers cables intercepted by U.S. intelligence during World War through an extensive “loyalty-review” program, though II and painstakingly deciphered in a decades-long, top- resulting in hundreds of firings and forced resignations, secret effort), as well as the partial opening of did little to reassure an increasingly panicked public. In Communist Party and Soviet intelligence agency archives fact, the program did little to reinforce national security: in Moscow. most of those who lost their jobs were guilty of nothing These archives have provided evidence that confirms more than signing the wrong petition or subscribing to the guilt of many of those previously accused of espi¬ the wrong periodical. The triumph of the Communist onage, and have revealed the names of scores of other revolution in China in 1949 led to an ill-tempered debate individuals who were eidier active participants in Soviet in the United States over “who lost China?” and to the espionage, or at die least compromised by dieir contacts resignations of a number of the State Department’s most with Soviet agents in the 1930s and 1940s. While some experienced “China hands” from government service. sensationalist and unreliable accounts, in their own way One case in particular seemed to dramatize the poten¬ all too reminiscent of die excesses of the McCarthy era, tially disastrous consequences of unchecked disloyalty. have drawn on these sources to tarnish die names and Julius Rosenberg, a civilian wartime employee of the reputations of die innocent, Venona and tile Moscow Army Signal Corps, along with his wife Ethel, were archives have also provided die basis for such sober and arrested in 1950, convicted in 1951, and executed in 1953 searching accounts as Joseph Albright and Marcia for having aided the Soviets in their penetration of the Kunstel’s Bombshell: The Secret Story of America’s top-secret Manhattan Project that developed nuclear Unknown Atomic Spy Conspiracy (1997), Sam weapons dining World War II. In sentencing the two Tanenhauss Whittaker Chambers: A Biography (1997), “atom spies” to death, Judge living Kaufman declared Allen Weinstein and Alexander Vassiliev’s The Haunted that the American people had to realize that they were Wood: Soviet Espionage in America — The Stalin Era engaged in “a life and death struggle with a completely (1999), and John Earl Haynes and Harvey Klehr’s different system.” Not only were the two sides engaged in Venona: Decoding Soviet Espionage in America (1999). a struggle for supremacy abroad, but “this case indicates Taken together, ffiese books offer a detailed and authori¬ quite clearly that [the struggle] also involved the employ¬ tative account of the successes and limits of Soviet espi¬ ment by die enemy of secret as well as overt outspoken onage efforts in the United States in the 1930s and 1940s. The heyday of Soviet espionage occurred in a single Maurice Isserman is the William R. Kenan Jr. Professor decade, roughly 1935 through 1945. Before then, very lit¬ of History at Hamilton College in Clinton, N.Y., and is tle actual spying went on, at least insofar as it affected the the author of numerous books on the history of 20th American government. Soviet agents had been arriving century American radicalism. His most recent pub¬ on American shores since shortly after the 1917 lished work is The Other American: The Life of Bolshevik revolution, but they had concentrated on Michael Harrington, Public Affairs Press, 2000. rather mundane tasks, such as acquiring American pass-

30 FOREIGN SERVICE ] O V RN Ah! OCT O B ER 2000 EYE ON SECURITY m New Security Measures Introduced This Issue in Brief: NEWS BRIEF: By State Management SCHOLARSHIPS, TSP, HHE 2-3 TAKING CARE OF THE TROOPS 3 Q&A: PERSONNEL ISSUES 4 Responding to concerns about to be strong enough security, heightened in May when to effect positive ONUNE DATABASE 4 it came to light that the admin¬ change but not so “NEW STATE” IS AN OXYMORON 5 istration had nominated several FSOs for Draconian that they ambassadorships who had numerous demoralize SECURITY GETS HARDER 6 security infractions in their files, State employees and THE SEASON OF CHANGE 7 management has developed a package generate resis¬ AFSA CALL FOR of new measures designed to tighten tance. AFSA has NOMINATIONS 8-9 security policies. AFSA has held meet¬ also argued that ONE PERCENT SOLUTION 10 ings with State management to discuss State must give the policy proposals, although only employees the FUNDS TO REMEMBER 10 some of the changes require AFSA’s con¬ tools necessary to currence prior to adoption. AFSA has do their jobs in a secure expressed to management the ^ environment, including LEGISLATIVE VICTORY view that the new policies need V Continued on page 6 Passage of H.R. 4040 GRIEVANCE BOARD RESCINDS PCM ASSIGNMENT AFSA played a pivotal role in mak¬ Foreign Service Wins Historic ing sure the Foreign Service was included in two new laws passed Legal Victory in late July by the House and Senate, and sent to the president for signature and The Foreign Service Grievance within the service qualified and available enactment. The legislation in H.R. 4040 Board ruled Aug. 18 that State to fill the position. will allow active and retired federal Department managers violated The board has directed the depart¬ employees to purchase long-term care the Open Assignments Agreement and ment to rescind that assignment and to insurance at a discounted rate, and will the Agreement on Foreign Service comply with legal and regulatory require¬ provide for a correction for those feder¬ Appointments when they assigned ments in refilling the position. al employees who were placed in the someone from outside the Foreign AFSA instituted the grievance out of wrong retirement system. Service (a career Civil Service employ¬ concern that the assignment under¬ The long-term care insurance section of ee) to be the deputy chief of mission at mined the professional FS. AFSA believes H.R 4040 authorizes the Office of Person¬ a U.S. embassy. The board’s decision the decision does not disadvantage the nel Management (OPM) to negotiate with affirms the requirement that DCM department but protects it and the insurance companies to develop a long¬ positions be filled from within the integrity of the assignment process. The term care insurance package for active Foreign Service unless there is no one Continued on page 6 Continued on page 5 AFSANEWSBRIEF Legislative Action Fund Progress on Changing Thrift Savings Plan Participation $60,000 GOAL AFSA has been working with other federal unions and with members of Congress to support legislation that would allow new federal employees immediate participation in the Thrift $50,000 P .ISP Savings Plan (TSP) and would allow the transfer of a limited portion of a new employee’s eligible rollover distribution into 8. the TSP. Currently, new employees must wait until the sec¬ i ond TSP open season to begin participating, which can mean $40,000 a wait of six to 12 months. On July 21, the Senate passed H.R. 208, the bill that includes the changes to the TSP program. The House is currently studying Senate changes, but AFSA is optimistic the bill will be sent to the President $30,000 AFSA Distributes Financial Aid Awards AFSA has awarded 51 students need-based financial aid scholarships totaling $124,050 for the 2000/2001 academic $20,000 year. Financial support for the scholarships comes from Send Your DACOR, AAFSW (Associates of the American Foreign Contribution Today Service Worldwide), and from individuals and organizations that have established scholarships with AFSA. To:AFSA Legislative $10,000 During the 1999/2000 academic year, $118,000 was distrib¬ Action Fund, uted to 62 students. The maximum award was increased by $500 to $3,500 per stu¬ P.0. Box 98026, dent for the 2000/2001 academic year in an effort to keep pace with increasing college Washington, D.C. $0 20090-8026 costs. Six students received the maximum award amount All students receive bio¬ graphical information about their donors so they can understand the FS connection. Reminder AFSA scholarship applications will be available on AFSA’s Web page (www.afea.org) beginning Nov. 1. The application deadline is Feb. 4,2001. FShigh school seniors can apply for academic, art merit or need-based financial aid awards, and college undergraduates can apply for need-based financial aid awards. For more information regarding applying for an AFSA scholarship award, please call Lori Dec at (202) 944-5504 or 1-800-704-2372 ext. 504 or email [email protected].

HOUSEHOLD EFFECTS (HHE) CAN GO FARTHER

AFSA has successfully convinced State management to change the regulations and now permit HHE to be delivered to a local address outside the 50-mile radius from Washington, DC.

News Brief continued on page 3

AFSA News Editor Shawn Dorman Governing Board: Staff: President Marshall P. Adair Executive Director Susan Reardon (202) 338-4045 x 503 Business Department State Vice President John Naland Controller Kalpna Srimal Internet Addresses: USAID Vice President Frank Miller Accounting Assistant Thomasina Johnson [email protected] (Association) Labor Management CS Vice President Peter Frederick General Counsel: Sharon Papp [email protected] (President) FAS Vice President Evans Browne Labor Management Attorney: Zlatana Badrich [email protected] (FSJ) Specialist James Yorke Retiree Vice President Willard De Pree Labor Relations Specialist Carol Lutz Secretary: Aurelius Fernandez Grievance Attorneys: Harry Sizer, Tracy Smith AFSA Headquarters: Law Clerk: Neera Parikh Treasurer Thomas Tieman (202) 3384045 FAX: (202) 338-6820 Office Manager. Naida Harrington; Christine Warren State Representatives: Marilyn Bruno, Daniel Geisler, Member Services State Department Office: Stephen J. Klein, Lauren May, David Robinson, J. Riley Director Janet Hedrick Representative: Christine Spaulding (202)647-8160 FAX: (202) 647-0265 Sever, Adviser. Bruce Byers Administrative Assistant Ana Lopez USAID Representative: James Dempsey Retiree Liaison: Ward Thompson USAID Office: Professional Programs Retiree Representatives: Harry Cahill, Garber Davidson, (202) 712-1941 FAX: (202) 216-3710 Professional Issues Coordinator. Vacant George Jones, Robert Lamb Congressional Affairs Director Ken Nakamura SA44 Office: Communications Coordinator. Lauren McCuen FAS Representative: Ed Porter Scholarship Administrator Lori Dec (202)401-6405 FAX: (202) 401-6410 CS Representative: Eric Sletten Corporate Relations- Barbara BowieWhitman

2 AFSA NEWS • OCTOBER 2000 0nP!7!*3^ STATE ■ BY JOHN NALAND Taking Care of the Troops Serving as a U.S. Army officer in the early 1980s, I got used to eating bread-ends because those were often the only slices left after my soldiers had gone through the chow line during field maneuvers. I recendy recalled this example of how military leaders take care of their troops after someone suggested that one solution for State’s staffing gaps would be to fill seventh floor staff positions only after Home Businesses at Post all other vacancies had been filled. That, he argued, would A new policy on home-based businesses quickly focus senior management’s attention on resolving the problem. allows FS family members to use their govern¬ Of course, State does not work that way. At times, taking care of employees seems ment housing for private business as long as to be the department’s last priority. Here are several examples: the conduct either fosters cultural understand¬ ■ State’s long-term per diem rate drops to 25 percent after 120 days. This despite ing between the embassy community and the the fact that a) no temporary accommodation can be obtained at that rate and b) sev¬ local community or is approved by the chief of mission under certain conditions. The regula¬ eral other federal agencies maintain their tions are detailed in 6 FAM 725.7 Businesses, employees long-term per diem at a 50 per- Department officials and can also be found online at cent rate after 120 days. http://aafsw.org/workathome.htm. . State, unlike other agenctes, has not argUe that theV Sim^

taken advantage ofthe law permitting agen- do not have adequate funding Bylaws Amended to Change cies to reimburse employees who pay Timing of AFSA Election property management fees for their per- ^0 be as employee-friendly

The AFSA membership has approved the manent residence when they are assigned to ag they WOU Id like amendment of the AFSA bylaws by a vote of an overseas post. 2512 in favor and 32 against. The amend¬ ■ State had no one working with Congress to make sure that the Foreign Service ment now makes it possible for the AFSA was covered by legislation establishing the new long-term care insurance program. Elections for the 2001/2003 Governing Board Luckily, AFSA filled this vacuum and saw to it that we were included. to begin this month with the Call for Nominations (see page 8) and ballots to be Department officials argue that they simply do not have adequate funding to be counted on March 1, 2001. The new board as employee-friendly as they would like. However, other agencies manage to do bet¬ takes office July 15, 2001. ter. For example, last summer’s $11.2 billion emergency appropriation referred to as the Colombia supplemental actually provided more money for “unfunded person¬ Don’t Forget Absentee Voting nel and readiness requirements” at the Pentagon and Coast Guard than it did to counter Federal elections are upon us. Voting is a drug production in the Andes. civic duty, and it also Of course, the Bureau of Human Resources and the Bureau of Administration helps you maintain have implemented a number of employee-friendly policies in recent years (some in your legal domi¬ response to AFSA proposals). However, much remains to be done. The new direc¬ cile back home, tor general has said that he wants to make employees “proud of being in the Foreign which can be important Service.” The best way to do that is for the Foreign Service to show that it is proud when it of its employees. comes to filing Again, I can only contrast this with the situation at other agencies. When the new legal motions. chief of naval operations took office last July, the focus of a full one-half of his first Some employees message to the field was his “commitment to our people as our most important resource.” overseas have had He went on to say: “We are bound by a voluntary covenant to our country and to problems when authorities each other, up and down the chain of command. As part of that covenant, leaders in the state they call home have questioned promise respect, clear direction, meaningful work and the tools and training to do their ties to that state. The American citizens services unit in your embassy should have fed¬ that work, recognition of a job well done, and opportunity for personal and profes¬ eral post card applications for voter registration sional growth. The measure of any leader is the extent to which he or she fulfills that and requests for absentee ballots. Information promise.” can also be obtained from the Web site of the Compare those words to anything issued by our own leaders in recent years. More federal voting assistance program at importantly, let’s compare them in a few months to the initial message of the next www.fvap.ncr.gov. □ secretary of State. □

OCTOBER 2000* AFSA NEWS 3 amounts that were donated may not be the needs of an approved leave recipi¬ revealed, including to the recipient, ent. How widely the information is unless the donor asks that the recipient made known will depend on the esti¬ be informed. mated needs. Information circulated The Voluntary Leave Transfer Program about a leave recipient should normal¬ (3 FAM 3342.1) is administered by the exec¬ ly be limited to a discreet description of utive director of a bureau domestically or the employee’s emergency situation and Personnel Issues the administrative officer overseas. These an estimate of the number of hours of BY JAMES YORK, officials approve or deny applications to be leave that will be needed The recipient’s LABOR MANAGEMENT SPECIAUST a designated leave recipient and approve or name may not be used in such public¬ ity unless he/she has authorized Q. I slipped and fell on a polished floor in the If you fail to file that it be used A potential donor embassy. I do not appear to have any lasting responding to publicity must be injuries except a slight bruise on my hip. because the injury given the name, however, unless Should I file for worker’s compensation? appears to be the recipient has requested com¬ A Yes. Always file a CA-1 within 30 plete anonymity on his/her appli¬ • days, however minor the injury. minor and the cation. This is not the same as filing a claim, but “minor” injury later Employees expressed con¬ it gives notice to your agency and OWCP cern in the past about the lack (Office of Workers’ Compensation ! develops of privacy in connection with Programs) that an accident has occurred. making an appeal for leave into something If you fail to file because the injury donations. In response to these appears to be minor and the “minor” injury more serious, concerns, AFSA proposed that later develops into something more seri¬ the Department institute a it will be ous, it will be harder to prove that the injury Voluntary Leave Bank to work actually occurred. harder to prove in parallel to the VLTP. We believe that the information that the injury GL If I am sick and exhaust all my leave, can provided above has met the my request for leave donations under the actually occurred. concerns, and that a leave bank Voluntary Leave Transfer Program (VLTP) be program would impose anoth¬ anonymous? er bureaucratic layer. AFSA A Yes. Although many people deny written requests to donate leave. The will not, therefore, pursue the leave bank • prefer that their names be following quotation from the cable 92 State proposal further. revealed, because they know their friends 149983 — “Revised Voluntary Leave The VLTP is run by Anita Brown in and colleagues will be more likely to Transfer Program and Guidelines,” gives HR/ER (tel: (202) 261-8171), who is ready donate leave, 3 FAM 3344 states that more information on how to manage to answer any questions. As always, do information concerning individual leave anonymity; not hesitate to contact me in the AFSA recipients and donors is considered per¬ Locating Donors: Depending on the Labor Management Office by phone, sonnel sensitive. The names of leave recip¬ wishes of the leave recipient, as stated (202) 647-8160, on DOS Opennet, or on ients may be revealed only if authorized on the application form, Executive the Internet at [email protected] if you by the recipient on the application form. Directors may use memoranda, notices have any questions or problems con¬ Similarly, the names of donors and the and telegrams to inform colleagues of cerning personnel matters. □

Online Database The new AFSA skills database is now While anyone can use the database, you online. It already contains information on must be a retired AFSA member to be Matches Retirees nearly 300 retired members who agreed to included in it. You are invited to visit the make their data available to the public for database. If you are a retiree, you can check with Jobs and use by prospective employers and/or for your own record and edit it as necessary. potential speaking engagements. AFSA is Registrants are also urged to encourage Speaking making a special effort to encourage State other retired members to sign up. Find the Department offices to draw on the data¬ skills database on the AFSA web page at Engagements base for their temporary staffing needs. www.afsa.org. □

4 AFSA NEWS • OCTOBER 2000 Legislative • Continued from page 1 PUBUC DIPLOMACY ■ BY RILEY SEVER and retired federal civilian and uniformed 9 employees. Participants will pay the full "New State’ Is an Oxymoron premium, but the group rate should be about 15-20 percent below market rates. In public remarks at a recent ceremony, a senior State The program should be fully imple¬ Department official was looking back on the past few mented by 2002. AFSA, working with years and proudly referred to “New State.” Not only would I argue that it is not “new,” I would contend that the phrase “New State” is an oxymoron. There is no way to create something new without change. While change is a challenge for any established bureaucracy, it appears to be anathema to the State Department. After three years working as an elected official of AFSA, first as the USLA AFSA Vice President (1997-99) and then as the AFSA representative for integration issues, I have watched the State Department bureaucracy struggle to deal with change. For the most part it isn’t a pretty sight. Good ideas, policies, and proposals with sup¬ Former AFSA President port within management as well as AFSA repeatedly come to naught because of State’s culture of inflexibility and resistance Dan Geisler met with to change. If the department is truly congressional staff and testified As the oldest Cabinet office, the State serious about attracting and department appropriately takes pride in its before the Flouse and Senate to long tradition. However, State’s inability to keeping “the best and the make sure they were aware the take advantage of the integration with USIA brightest,” it needs to and ACDA to review its operating style and FS should not be left out of any structure was a great disappointment. rethink where and how to corrective legislation. State’s ability to ignore three different stud¬ conduct diplomacy in the ies last year that recommended sweeping changes for the department was even more Rep. Connie Morelia, R-Md., and House 21st century. frustrating. Even a basic concept like the Civil Service Subcommittee staff drafting introduction of a “maxi-flex” work sched¬ the legislation, made sure the Foreign ule, which has been adopted by other government agencies, remains “under review” Service was covered under the legislation. at State. Threatened by change, the response to new ideas continues to be a renewed The correction of employees in the commitment to “business as usual.” wrong retirement system section requires Perhaps the State Department’s ties to tradition and the reluctance to accept that all government agencies make change or embrace reform should not surprise us. There is ample evidence all around efforts to identify and notify individuals of the triumph of tradition over innovation. Despite having a modern building, affected by retirement coverage errors. In the Department created on the top floor of Main State a series of 18th century draw¬ the mid-1980s when the “new” retire¬ ing rooms in which to conduct diplomacy. The computers in the library have been ment system (FERS/FSPS) was created, removed in order to avoid a “security risk,” thereby giving us another period room many agencies made errors when plac¬ instead of an information center. The initiation in other parts of the government ing newly hired federal employees, or of “casual Fridays” resulted in several State bureaus banning the practice as inap¬ those re-entering federal service or trans¬ propriate dress for the conduct of diplomacy. ferring from one agency to another, into It is no wonder there is a problem with the perceptions held by Congress and a retirement system. The new law should the public of the role of diplomacy in the new information age. We have not been help ensure the errors are corrected. effective in redefining our work and responsibilities or in demonstrating that we Efforts to provide for the correction of are changing with the times. those FS personnel in the wrong retire¬ This is my last column for the Foreign Service Journal I suggest that if the depart¬ ment system began in 1997. Former ment is truly serious about attracting and keeping “the best and the brightest” as AFSA President Dan Geisler met with well as developing a constituency on the Hill and support from the American pub¬ congressional staff and testified before the lic, it needs to rethink where and how to conduct diplomacy in the 21st century. House and Senate to make sure they were Thomas Jefferson might feel at home on the top floor of the building or even in aware the FS should not be left out of any its library, but he would probably be one of the first to say that receptivity to change corrective legislation. □ and new ideas is crucial to intellectual development as well as good diplomacy. □

OCTOBER 2000 • AFSA NEWS 5 Security • Continued from page 1 RETIREE ■ BY RETIREE REP. GEORGE JONES

Security Gets Harder adequate staffing, physical structures, and information technology. u ecurity is a very difficult issue and it’s only going A few of the proposed changes from ^^to get harder,” said Carol Rodley, accepting State management to look for: ^JAFSA’S 2000 Christian Herter Award. She also ■ The number of infractions that deserved an award for prescience, in light of Assistant triggers the placement of a letter of rep¬ Secretary for Diplomatic Security David Carpenter’s rimand in the performance file will be recent letter telling retirees they will no longer be permit¬ reduced from five to three. ted unescorted access to department buildings. The only ■ The period during which the trig¬ reason given was that “to be effective,... access control must gering infractions are counted will be comprehensive and uniformly enforced.” Apparently this means it must be applied increase from the current 18 months to to all those not currently employed, regardless of the number or duration of their three years. prior security clearances. ■ Tenure boards will be allowed to No one who is not an active duty employee will be allowed to visit the credit deny tenure for a pattern of failure to union, library, Foreign Service lounge, AAFSW housing office, AFSA offices in Main ensure the proper safeguarding of clas¬ State, and even the retirement office in Columbia Plaza, without waiting in the lobby sified material. for an escort responsible for the visitor for as long as he/she is in the building. AFSA ■ EER instructions will require rat¬ will provide escorts for retirees ing officers to comment on any pattern wishing to visit our Main State of failure to safeguard classified mate¬ “How can the department office (of course AFSA’s main rials. n exclude retired personnel, who have office on E Street will not require an escort). It is still unclear whether worked with classified material the other facilities mentioned have Grievance • Continued from page 1 most of their lives, and continue to the staff or the time to provide escorts. board’s decision is significant in sup¬ provide unrestricted access to When the department gave porting both the professional Foreign contract, cleaning and catering AFSA an early draft of Carpenter’s Service and the principle of honoring letter on July 20, AFSA President negotiated agreements. personnel who have no Marshall Adair responded quick¬ AFSA President Marshall Adair said, clearances?” ly, asking “how can the department “This is a welcome decision. It protects exclude retired ... personnel, who the integrity of our professional diplo¬ have worked with classified mate¬ matic service, and strengthens the ser¬ rial most of their lives... and continue to provide unrestricted access to ... contract, vice’s ability to carry out its statutory cleaning and catering personnel who have no clearances?” State Vice President John mission of assisting the president and Naland, Retiree Liaison Ward Thompson and I met with the acting director of the secretary of State in conducting our office of DS domestic operations. Although the Carpenter draft said the decision nation’s foreign affairs. We still have to withhold access had been made in August 1999 — meaning it was held up by a great deal of work to do to coordinate discussions within the department for a full year — no thought appeared to have better the management and work of the been given to its consequences. No provision had been made for escorts to the pub¬ Foreign and Civil Services — the issue lic facilities we listed. When we mentioned the credit union, we were told that DS which lies at the heart of this case — but understood it had branch offices. We replied that indeed it had — in Northern this decision makes it easier for all par¬ Virginia — but none in D.C. or Maryland. ties to approach that task construc¬ Marshall’s letter and our visit resulted in a new draft but not, unfortunately, in tively.” AFSA will keep employees a new bottom line, which remains a blanket edict. We were assured that ID cards informed of progress towards compli¬ will continue to be issued to all retirees who request them, even though they are ance with the grievance board’s instruc¬ no longer useful for building access. DS staff also told us they had urged moving tions. Note: AFSA has intentionally the “hard line” from the Department lobby to the second floor, which would open avoided naming the individual and the up the ground floor to retirees and other visitors. As usual, the problem is money. post to protect the individual from pos¬ Until we learn that better security requires appropriations, not shutting out our sible adverse impacts. The focus of the own people or visitors we need to see, security will continue to get tighter, but not grievance was not on an individual but necessarily better. □ on an institution. □

6 AFSA NEWS • OCTOBER 2000 CffTfffnE FAS ■ BY EVANS BROWNE The Season of Change It’s the season of change again. Fall colors are one of the true joys of a Washington assignment The “end in sight” of presidential campaigns is another October bonus. October also marks the beginning of change for AFSA, and AAFSW’s that includes AFSA/FAS. It is now time for you to decide whether you or someone of your choosing will run for AFSA 40th Annual office. Here in USDA, the main choice is for the VP, the only full-time position in AFSA/FAS. BOOKFAIR If you are already here in D.C. and did not get that posting you wanted for next year, consider running for VP. If you are already here in D.C. and want a change October 13-22: from your current job, run for VP. If you are being returned to D.C. put your hat Oct. 14,15, 21 and 22: open to the in the ring now, and if you get elected, you won’t need to go through that game public from 10:00 a.m. to 4:00 p.m. of chance called the WPP. Now, the BIG QUESTION — Oct. 13 and 16-20: open to State why in the world would I want to be Department pass holders from 11:00 a VP? a.m. to 3:00 p.m. The most rewarding part of the Answer: you could help those Location: Diplomatic Exhibit Hall job is helping individuals who who, mistakenly, had their pay advances submitted to the IRS (it’s the have been hurt by an oversight. Proceeds benefit penalties that hurt); you could con¬ the AFSA/AAFSW tribute to increase in home leave for scholarship It is also challenging to research program, other FS returnees; you could help those who issues and then hear others community missed getting some of their language projects, and local quote untruths on why incentive pay, you could head the charities. team to re-negotiate our collective something is as it is. bargaining agreement (CBA); you AAFSW would like donations for the Art Corner, for the Collector’s Corner could protect the interests of all FAS (rare books) and regular books, stamps Foreign Service employees in the partnership council; you could work with AFSCME and coins. to support good things for all FAS employees, such as the availability of metro check for all (including FS employees), and developing a leave bank program; you could In the Washington, D.C. Area: help increase our FAS Foreign Service numbers; you could help protect manage¬ Donation pick-ups can be arranged by calling Virginia Jones in the Book ment from violating the CBA — and when they do violate it, you could let them Room at (202) 223-5796. know how they can compensate for their error; you could use the AFSA/FAS VP In the Department: Donations may be position as your stepping stone to... who knows, becoming the next Ronald Reagan. dropped off in the Book Room, Monday You may wonder how a VP job could be full time. It is, if you are doing your to Friday between 10:00 a.m. and noon homework. Sometimes it is even if you are not doing your homework. The most or by appointment. rewarding part of the job is helping individuals who have been hurt by an over¬ From Overseas: Donations may sight. It is also challenging to research issues and then hear others quote untruths be pouched to on why something is as it is. It requires leadership to plan your presentation of the AAFSW issues. It requires patience in watching your plans materialize. And, it requires com¬ Book Room, munication, which often absorbs vast amounts of time. But again, the biggest reward Room #1524 Main State. Careful is helping individuals resolve problems that, without you, would not get resolved. packaging is essential as items are often handled roughly. It’s time to get involved. Nominations will close the 6th of November — ACT NOW. □ The Book Room in Main State is open daily from noon to 2:30 p.m. for State Department pass holders. For more information contact Robin Jones, Book Room manager, at (202) 223-5796.

OCTOBER 2000 • AFSA NEWS 7 2001 ELECTION OF AFSA OFFICERS AND CONSTITUENCY REPRESENTATIVES CALL FOR NOMINATIONS This election call, issued in accordance Article V (4)(b) of the AFSA bylaws individual who: is a chief of mission or prin¬ with Article VII (2)(a) of the AFSA authorizes a constituency vice president for cipal officer, occupies a position of compa¬ bylaws, constitutes a formal notice to each constituency with a minimum of 100 rable importance to chief of mission or prin¬ all AFSA members of the opportunity to par¬ members and one constituency represen¬ cipal officer, is serving as a deputy to the fore¬ ticipate in nomination and election of a new tative position for every 1,000 members or going positions; is assigned to the Office of governing board. All of the officer and rep¬ fraction thereof The calculation of the num¬ the Inspector General; or is engaged in labor resentative positions listed below are for two- ber of constituency vice president and rep¬ management relations or the formulation year terms beginning July 15,2001. Please resentative positions to be filled in this elec¬ of personnel policies and programs of the note that the AFSA governing board posi¬ tion is based upon the membership rolls as foreign affairs agency. Confidential employ¬ tions have changed to reflect the consolida¬ of September 30,2000. ees are employees who act in a confidential tion of USIA into the Department of State. capacity with respect to an individual who The USIA board positions are eliminated The B. Nomination Procedures formulates or carries out management poli¬ Department of State constituency gains an 1. Any AFSA member in good standing cies in labor management relations. additional representative for a total of six. A (i.e., a member whose dues are automati¬ Furthermore, the Foreign Service Act also group of Foreign Service employees formerly cally deducted or who has paid dues as of places a two-year restriction on the move¬ part of the USIA bargaining unit became November 6, 2000) may submit names ment of Foreign Service personnel between employees of the International Bureau of (including his or her own name) in nomi¬ certain positions in AFSA and certain Broadcasting (IBB). AFSA continues to rep¬ nation for any or all of the above-mentioned Washington-based jobs in the foreign resent these employees so they are the IBB positions for which the nominee is eligible. affairs agencies. The pre-AFSA restrictions: constituency entitled to 1 representative. No member may nominate more than one Any individual who has served 1) in a man¬ person for each officer position or more than agement position in Washington in which A. Positions to be Riled the number of representatives established for he or she has engaged in labor management 1. Theeach officer constituency. positions Noto be member’s filled in this name may relations or the formulation of personnel election are: appear on the ballot for more than one posi¬ policies and programs or 2) as a confiden¬ President tion. tial employee (as defined above) within two Vice President for State 2. In order to be nominated, a person years prior to taking office in AFSA is inel¬ Vice President for USAID must be a member in good standing and igible to hold the position of AFSA president Vice President for CS remain in good standing through the elec¬ or constituency vice president. Post-AFSA Vice President for FAS tion process and, if elected, for his/her term restrictions: In addition, any individual who Vice President for Retirees of office. has held one of the foregoing positions in Secretary 3. The Foreign Service Act restricts AFSA may not serve 1) in a management Treasurer employees occupying certain positions in the position in Washington which involves labor The President and State, USAID, and foreign affairs agencies from serving on the management relations or the formulation FAS Vice Presidents are full-time positions governing board. Only employees in AFSA’s of personnel policies and programs or 2) as detailed to AFSA. The CS Vice President is bargaining unit may serve on the AFSA gov¬ a confidential employee, for two years after detailed for 50% time to AFSA. erning board or nominate others to serve on leaving AFSA. 2. Thethe constituency board. Therefore, representative individuals posi¬ who will Members should consider these restric¬ tions to be filled in this election are: be serving as management officials and con¬ tions before deciding whether to run for State Department Representatives fidential employees (as defined below) AFSA governing board positions covered by (six positions) when the new board takes office on July 15, these restrictions. Please direct questions USAID Representative (one position) 2001 are ineligible to occupy a position on regarding this issue to Sharon Papp, General CS Representative (one position) the governing board. In addition, manage¬ Counsel, 202-647-8160, FAX 202-647- FAS Representative (one position) ment officials and confidential employees 0265, email [email protected]. IBB Representative (one position) may not make nominations for governing 4. Nominations may be submitted indi¬ Retired member Representatives board positions. For the purpose of the above vidually or in slates. To qualify as a slate, a (four positions) discussion, management official means an proposed slate must have a minimum of

8 AFSA NEWS • OCTOBER 2000 four candidates from at least two con¬ opportunity to submit campaign statements ed candidates will take office on July 15,2001, stituencies. Slate designations will be noted for dissemination to the AFSA membership as provided in the bylaws. on the ballot in a special mailing. Further information 5. All nominations must be submitted regarding such statements and editorial dead¬ F. Questions, Suggestions, Complaints or in writing by letter, cable, fax or email. All lines will be contained in the “Instructions Challenges written nominations must be addressed to to Candidates,” which will be issued by the Any member may file a written question, the AFSA Elections Committee, 2101 E Elections Committee on or before suggestion, or complaint concerning the con¬ Street, NW, Washington, DC 20037. To be November 6,2000. duct of the 2001 election. Such question, sug¬ valid, they must, without exception, be 2. The AFSA bylaws provide that, gestion, or complaint should be addressed received at this address no later than 12 noon should candidates wish to mail supple¬ to “Chair, AFSA Elections Committee” and on November 6, 2000. Members overseas mentary statements to the membership, the mailed or delivered to either AFSA, Room can send “AFSA channel” cables marked for association will make available to them on 1251, Department of State, Washington, delivery to the AFSA Elections Committee. request, and at their expense, the member¬ D.C. 20520 or AFSA, 2101 E Street NW, They must be received in the Department’s ship mailing list or address labels. Further Washington, D.C. 20037 by May 30,2001. Communications Center within the same information on this and other campaign pro¬ Members may also file a written challenge time limit. Faxes can be sent to 202-338- cedures will be included in the “Instructions to the outcome of the election. Such chal¬ 6820 and email to [email protected]. to Candidates” mentioned above. lenge must be filed by April 15,2001 and Alternatively, nominations can be hand- should be addressed to “Chair, AFSA delivered to a committee member who will D. Voting Elections Committee” and mailed or deliv¬ be in the AFSA office, Room 1251, Ballots will be distributed on or about Jan. ered to either address stated above The AFSA Department of State, from 11 am. to 12 10, 2001 to each person who is a regular Elections Committee will respond in writ¬ noon on November 6, or to a Committee AFSA member as of December 31, 2000. ing to the challenge within three months of representative at AFSA headquarters at 2101 Candidates or their representatives may receipt of the challenge. If the member is not E Street NW during that same time period. observe the ballot distribution process if they satisfied with the AFSA Elections 6. A nominee can indicate his or her so desire. Each member may cast one vote Committee’s response the member may file acceptance of a nomination by appending for President, Secretary, Treasurer, and con¬ a written complaint with the U.S a letter to the letter of nomination or by stituency Vice President, and, in addition, Department of Labor, Office of Labor- appropriate notation on that letter, or by one vote for each Representative position in Management Standards. Such complaint communicating with the Elections the member’s constituency. Votes may be must be filed within one month of receipt Committee, AFSA, Room 1251, Department cast by voting for candidates listed on the offi¬ of the Elections Committee’s response. of State, or AFSA, 2101 E Street NW. cial ballot, or by writing in the name(s) of Washington, D.C. 20037, or by fax or email member(s) eligible as of Nov. 6,2000, or by ELECTIONS COMMITTEE MEMBERS as described in paragraph 5 above. Otherwise, doing both. To be valid, a ballot must be Robert J. Wozniak, Chair 202-686-0996 an authorized representative of the Elections received by Wednesday, February 28,2001 John Biercke 202-712-1049 Committee will communicate with each at the address indicated on the envelope Shirlie Pinkham 202-647-5910 nominee (excluding members who nomi¬ accompanying the ballot More detailed bal¬ Richard Thompson 301-229-6442 nate themselves) as quickly as possible after loting instructions will accompany the bal¬ the receipt of each nomination to determine lots. STAFF whether the nominee wishes to be a candi¬ Susan Reardon 202-944-5505 date Any member who so accepts the nom¬ E. Vote Counting and Announcement ination must confirm his or her acceptance of Results in writing through one of the channels On or about March 1, 2001, the 2001/2003 AFSA Governing Board Election Schedule described above addressed to the AFSA Elections Committee will count the ballots Elections Committee to be received no later and declare elected the candidate receiving Oct 2000 — Call for nominations than 12 noon on November 22,2000. Any the greatest number of votes for each posi¬ published in Foreign Service Journal nominee whose written acceptance of nom¬ tion. Candidates or their representatives may Nov. 6, 2000 — Deadline for ination has not been received by the be present during the tally and may challenge nominations Elections Committee by the above time limit the validity of any vote or the eligibility of Jan. 10,2001 — Ballots mailed will be considered to have declined candidacy. any voter. The committee will inform can¬ Feb. 28,2001 — Deadline for Ballots didates individually of the election results by March 1,2001 — Ballots Counted C. Election Campaign the swiftest possible means and will publish 1. All candidates nominated under the the names of all elected candidates in the next July 15,2001 — New Board takes office procedure outlined above will be given the issue of the Foreign Service Journal. The elect¬

OCTOBER 2000 • AFSA NEWS 9 LUNCH WITH AMBASSADOR GARDNER foreign affairs account Harry Blaney, pres¬ ident of COLEAD, plans to create a steer¬ The One Percent Solution is No Solution ing committee to lead the campaign. Ambassador Donald Norland, repre¬ oreign policy should not be carried urgency to three factors: an incoming new senting DACOR, led a discussion of the out with barely one percent of the administration; the budget surplus, which need for a “redefinition of security,” a shift F;federal budget. That is the thesis of could allow for consideration of expanding from a military focus on security to one Ambassador Richard Gardner’s foreign affairs programs; and the growing that includes health, humanitarian and Juty/August Foreign Affairs consensus that the U.S. is under-funding the diplomatic efforts. □ article, “The One Percent Solution.” At a July 26 lunch hosted by COLEAD TWO FUNDS TO REMEMBER (The Coalition for American Leadership Scholarship Fund and Ambassador Abroad), Gardner took FSN Emergency Relief Fund Gardner part in a general discus¬ "unds donated to the Federal Diplomatic Family Assistance Fund—Africa will con- sion with NGO leaders and AFSA repre¬ p1 tinue to be accepted to assist with the education of the children of the American vic¬ sentatives on strategies for pushing for an htims of the East Africa bombings. Checks may be made payable to the Federal Employee increase in the 150 account (the non-mil¬ Education and Assistance Fund (with a notation on the memo line that itary costs of protecting U.S. national secu¬ it is for “FDFAF-AF”) and mailed to FEEAF, 8441 West Bowles Ave, Suite rity). Gardner argued that there is a crit¬ 200, Littleton, CO 80123. ical need to push for a new consensus, The FSN Emergency Relief Fund was established in 1994 to respond which sees the international affairs budget to humanitarian requests by FSNs of all agencies. In the last two years, as part of the national security budget. the fund has assisted FSNs around the world, and aid has been given Gardner spoke of the urgency of mov¬ following earthquakes, floods, and terrorist attacks. Contributions can be made by check ing forward with the campaign to increase payable to the Department of State, marked for the Foreign Service National Emergency the foreign affairs budget. He tied the Relief Fund, and sent to FSN Emergency Relief Fund, c/o Donna Bordley, FMP, Room 7427, Department of State, Washington, DC 20520. □ AFSACLASSIFIEDS ATTORNEY GRIEVANCES a DISCRIMINATION GRIEVANCES: MANDATORY FORMER FOREIGN SERVICE OFFICER RETIREMENT OR ATTORNEY PRACTICING IN areas of FS SEPARATION? DEFECTIVE EER? NOW PRACTICING LAW IN DC/MD. General grievances at State, Commerce, USAID; ATTORNEY WITH 21 years successful practice; estate planning: wills, trusts, living wills, MSPB and Employment Discrimination actions experience SPECIALIZING IN FS GRIEV¬ powers of attorney; probate administration; under Title VII; the Rehabilitation Act; and ANCES will represent you to protect vital inter¬ domestic relations; FS grievances. Gregory V. Privacy Act/FOIA litigation. 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12 AFSA NEWS • OCTOBER 2000 Focus

ports for use abroad by other agents, or Recently opened least in the beginning. Clandestine keeping tabs on Russian exile groups. meetings, secret reports, even the As late as 1934, according to docu¬ archives give an occasional theft of an official letter or ments uncovered by Allen Weinstein memorandum, could all be rational¬ and Alexander Vassiliev in the Moscow authoritative account ized as a kind of rebellious bureau¬ archives of the NKVD (the Russian cratic counterpart to the raucous acronym for the Peoples of Soviet spying protests then being led by radical Commissariat of Internal Affairs, die organizers in the streets and work¬ Soviet intelligence agency known in during the 1930s places of die United States. later years as die KGR), Soviet spy- Washington Communists didn’t masters were complaining among and ’40s. have die luxury of openly proclaiming diemselves that they didn’t have “any dieir political affiliations, which would agents” in Washington, D.C. have led in short order to dieir dis¬ missal from federal employment. They were even The First Soviet Spies instructed by Ware to avoid purchasing The Daily That would shortly change. Starting diat very year, die Worker or odier Communist publications from news¬ Soviets gained dieir first significant contacts within die stands or bookstores. Instead, they could aid the cause federal government. The key initiator was an American by odier means. They would be making their contribu¬ Communist organizer, Harold Ware, who drew together tion to die revolution by bending die rules of official a network of left-wing sympathizers in Washington. Many confidentiality. of diem were lawyers who had recently been hired on to staff the New Deals Agricultural Adjustment Steps to Espionage Administration — and among their number was Alger Soviet spymasters were quite expert at this kind of Hiss, a young, ambitious, and politically and socially well- incremental cultivation of sources. Rarely if ever did they connected graduate of Harvard Law School. send even die most eager recruits out after really big At first the Ware group — as it has come to be called secrets until they had gotten them used to the idea of in subsequent histories — functioned mostly as a kind of handing along materials of considerably less consequence eamesdy radical if otiierwise unobjectionable study cir¬ with no obvious harm done to the security interests of the cle, meeting periodically to read and discuss the writings United States. Harry Gold, later to gain notoriety as the of Marx, Lenin and die like. But in time, and apparently courier who carried data on the atomic bomb from Los without much self-reflection, members of the group Alamos to his Soviet controller in New York, got his start began passing along government documents to Ware, in industrial espionage in the 1930s by stealing the secret who in turn passed them on to the headquarters of the of how best to use dry ice to keep ice cream from melt¬ American Communist Party in New York. As one mem¬ ing. Anodier important figure in wartime atomic espi¬ ber of the Ware group, John Abt, acknowledged in his onage, Morris Cohen, accepted as his first NKVD assign¬ 1993 memoir Advocate and Activist, “If there were ment die task of keeping tabs on the pro-Nazi activities of developments we thought were particularly interesting or German-American Bundists in New York City. The initial important,” in terms of government policy or the internal steps into espionage were, by design, made easy to take, politics of the Roosevelt administration, “someone would really nodiing more dian a political good deed involving be asked to draft a report to be given to Hal [Harold at most a trifling indiscretion — and given the stakes, Ware], who presumably passed it on to the national who could quibble over legal or ediical niceties? [paily] leadership in New York for its consideration.” The 1930s were ideologically charged years. In die Abt chose his words witii lawyerly care, admitting midst of die most catastrophic depression in die history only to passing along “reports” of his own drafting to of capitalism, and with war looming ever closer on the Ware, and not purloined documents. He never admitted horizon, it seemed to many people — and not just that his actions or diose of his comrades amounted to Communists — as if the entire world was choosing up espionage. And in their own minds, it may not have, at sides in a titanic international struggle that would deter-

OCTOBER 2 000/FO RE 1GN SERVICE JOURNAL 31 Focus

mine die fate of humanity for the foreseeable future, if their son Michael Meeropol, The Rosenberg Letters not forever. Franklin Roosevelt spoke of his generation of (1994). Never once in those letters did they explicitly Americans as having a “rendezvous with destiny.” For acknowledge their membership in the Communist Party, Americans to the left of FDR, the road to that ren¬ let alone any illegal activities. Alger Hiss was similarly cir¬ dezvous often seemed to require a detour to Moscow. cumspect in his two memoirs, In the Court of Public The American Communist Party grew from fewer than Opinion (1957), and Recollections of a Life (1988). 10.000 or so members at die start of the 1930s to over To reconstruct the worldview of the few who engaged 75.000 at decades end, and tens of thousands of other in espionage, we thus have to rely on the memories of tire Americans adopted what was at least a mildly benevolent many who were drawn to Communism in the 1930s — attitude toward what was commonly referred to in those bearing in mind that accounts written many years later days as the “Soviet experiment.” may, for many reasons, reflect imperfectly tire reality of Most of those accused in later years of espionage on that period of political turbulence. Sympathy for the behalf of the Soviet Union would prove reluctant, for Soviet Union did not automatically translate into willing¬ obvious reasons, to discuss the political views they had ness to engage in espionage on its behalf, even when the held in the 1930s. While awaiting trial, and then execu¬ opportunity presented itself. (The director of the tion, the Rosenbergs wrote literally hundreds of letters — Manhattan Project, physicist J. Robert Oppenheimer — to each other, to their children, to friends and associates whose brother was a Communist, whose wife was a — with excerpts published by their supporters in The Communist, and who may well have been a Communist Death House Letters of Ethel and Julius Rosenberg himself — was ideally placed to help the Soviets leam (1954), and in a more extensive edition later edited by about American progress with nuclear weapons during

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World War Two. But nothing uncovered in Venona or the Browder was proclaiming that “Communism is 20th cen¬ Moscow archives provides any credible evidence that he tury Americanism.” Writing in Iris memoir Inside Out did so.) (1997), published many years after he had left the move¬ ment in disillusionment, Bernstein remembered of his How Communists Saw The World younger self circa tire nrid-1930s: “I believed in antifas- How did ordinary Communists view the world in the cisnr and international solidarity and brotherhood and 1930s? First of all, not every Communist was the same. tire liberation of man, and tire Soviet Union stood for all There were those who were virtually bom into the move¬ of these. ... I was in the grip of a new land of patriotism, ment, and accepted on faith its preachments. Peggy one that transcended borders and unified disparate peo¬ Dennis, bom in Los Angeles to exiled Russian revolu¬ ples.” tionary parents, joined a Communist Party childrens group at the age of 13. In her memoir The The Popular Front Against Fascism Autobiography of an American Communist (1977) she That “new kind of patriotism,” of which Bernstein recalled of her childhood political enthusiasm how she spoke, plus a genuine horror at the prospects of a world and her young comrades thought of themselves as “a van¬ hr which Hitler and Mussolini could spread their power guard far removed from mainstream America, and we unchallenged, made it all too easy to overlook the grim were fiercely proud of being different. For public occa¬ realities of Stalin’s rule in tire Soviet Union. In 1936, sions we wore die flaming red, embroidered shirts of the when Bernstein became a Communist, there was dis¬ Soviet Russians, our songs pledged our lives to die turbing news coming from Moscow about tire trials of the International Soviet diat would free the human race. We Old Bolsheviks who were now accused of conspiring to were confident tiiat we alone were tapped by history to betray tire Soviet Union to its enemies. But 1936 was also fulfill its mission for humanity’s liberation from exploita¬ tire year in which Spanish fascists, backed by Nazi tion and oppression.” Germany and Fascist Italy, launched air uprising against For a young Communist like Peggy Dennis, the Soviet tire democratically elected Spanish republic. The purge Union was her real homeland, while life in the United trials were distant, bluny, poorly understood , while the States was a land of unfortunate exile she had to endure horrors unleashed in Spain seemed all too vivid and close until die great day came when American workers over¬ at hand. threw their own oppressors. Others, who came to Writing in the liberal weekly New Republic hr January Communism at a less tender age, sought to combine 1937, editor Malcolm Cowley declared that for support¬ their new political convictions with their older national ers of the Soviet Union like himself, “tire personal char¬ identity and loyalties. Walter Bernstein, who would later acter of Stalin [seenrs] relatively unimportant.” Cowley become a well-known Hollywood screenwriter, was a never joined tire Communist Party, but counted Irinrself fairly representative figure. Like Dennis, he was the child a strong supporter of the “Popular- Front,” tire Soviet- of immigrants, and like her he had some family connec- supported movement in the Western democracies that tions to die radical left — his father’s sister was a charter called for domestic anti-fascist unity, and international member of the American Communist Party. But his collective security in the face of German, Japanese, and aunt’s politics was regarded by the rest of the f amily in the Italian expansionism. The purges and other repressive 1920s as “a stain” and “something to be avoided.” He measures then under way in the USSR were, in Cowleys identified much more closely with two uncles who had view, “the inevitable result” of Stalins efforts “to unify served in the American military during the First World and strengthen the Soviet Union in the face of an inter¬ War, and spent a childhood immersed, not in tales of the national fascist alliance.” wonders of tire Soviet homeland, but rather in Tom Swift “Disloyalty is a matter of principle with every member adventure tales, the Brooklyn Dodgers “and, above all, of tire Communist Party,” Whittaker Chambers declared the movies.” It wasn’t until he left Brooklyn for his under¬ in his testimony before Congress in 1948. Thus it was not graduate education at Dartmouth College that he finally at all surprising, he suggested, that American joined tire Young Communist League — doing so in Communists should agree to spy on behalf of the Soviet 1936, a year in which Communist Party leader Earl Union — that was part and parcel of their decision to

34 FOREIGN SERVICE J OU RN A L/O C T O B ER 2000 Focus

become revolutionaries in the first “I was in the grip for the same complicated mixtures of place. But Venona and the Moscow reasons tiiat almost always motivate archives suggest otherwise. Robert of a new kind of people to break with accepted pat¬ Oppenheimer was not the only hold¬ terns of behavior and belief. Some out. Soviet spymasters often had to go patriotism, one that craved die fraternity of common, clan¬ to elaborate lengths to draw even die destine bonds, others the sense of most committed Communists into transcended borders,” power that came from working behind agreeing to cooperate, and then, after the scenes, knowing more about what documents had begun to change wrote one really mattered than those who did hands, diey often had to maintain elab¬ not share in their secret world; still orate fictions about die final destina- ex-Communist of his otiiers craved die excitement of taking don and purpose of the purloined on such a risky assignment. No one materials. As one NKVD agent report¬ 1930s beliefs. seems to have done it for the money ed to Moscow of a potential espionage — indeed, die archives are full of recruit in 1937: “He has very little anecdotes about spies indignantly experience and sometimes behaves like a child in his refusing payment from their Soviet controllers. romanticism. He thinks he is working for die Comintern [the Communist International], and he must be left in “Romantic Anti-fascism” tiiis delusion for a while.” There were lots of small, personal reasons why tiiis or Those who agreed to become spies did so, no doubt, tiiat individual became a spy. But beyond the individual

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OCTOBER 2000/FOREIGN SERVICE JOURNAL 35 Focus

idiosyncrasies lay the spirit of the age — an age that, important chiefly as a dress rehearsal for later and more today, in the aftermath of tire fall of the Soviet Union and significant Soviet efforts to acquire official secrets from the discrediting of Communist doctrine, requires an enor¬ the U.S. government. The inside scoop on New Deal agri¬ mous leap of historical imagination to understand. Alien cultural policies couldn’t be all that interesting, after all, to Weinstein and Alexander Vassiliev argue persuasively that tiie men in the Kremlin. But when veterans of tiie Ware what the men and women drawn into die Soviet espi¬ group began to find their way into more important jobs, onage network in the United States in the 1930s shared in such as the new position Alger Hiss took on in tiie fall of common was a “romantic anti-fascism.” This seems much 1936 as aide to Assistant Secretary of State Francis B. more persuasive to me than the “they-sold-their-souls-to- Sayre, tiie potential value of their contributions increased. the-devil-so-what-else-would-you-expect?” interpretation Ov er the next half-decade, the Soviet espionage effort so popular in die years after Whittaker Chambers took the in tiie United States remained a surprisingly haphazard stand. The 1930s and early 1940s — unlike the later 1940s enterprise. As most of the Ware veterans drifted off to and 1950s — were years when tenns like “underground” other pursuits, a few new sources like State Department and “resistance” were celebrated in popular culture as employees Laurence Duggan and Noel Field were drawn standards of moral purity and commitment. in. We still lack an exact head count. Writing in his auto¬ This was the atmosphere in which, by ones and twos in biography Witness in 1952, Whittaker Chambers declared tiie years leading up to and during die Second World War, that to his knowledge tiie Soviets had five “active sources” certain American Communists began to find their way to and four “contacts” in Washington as of 1938, but as he tiie Soviet espionage network. The Ware group itself was noted, and as recently released documents also show, short-lived (Ware died in a traffic accident in 1935). It was there were others working in networks of which he was

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36 FOREIGN SERVICE ]OURNAh!OCTOBER 2000 Focus

kept in ignorance. Still, it is likely that there were no more Worried Over Stalin’s Purges than a few dozen reliable sources for Soviet espionage The spectacle of die self-devouring of the Soviet elite operating in any kind of official capacity in Washington was not good for die morale of die Americans who had through the end of the 1930s. (Other non-governmental risked so much in agreeing to spy on dieir behalf. On the sources, most of whom were engaged in industrial espi¬ whole, ironically, those Americans who had crossed over onage, were run by a separate network operating out of into die Communist underground in die 1930s seemed to New York City). Some reported directly to American pay closer attention to the dark side of the “Soviet experi¬ Communist leaders, odiers to couriers working for Soviet ment” tiian tiieir peers in the aboveground movement. military intelligence (among their number was Chambers, Laurence Duggan badgered Iris NKVD controller, Itzak who took over some of the Ware group contacts, includ¬ Akhmerov, witii his doubts. “He claims he cannot digest ing Alger Hiss), and still odiers to die NKVD. events in die Soviet Union,” Akhmerov cabled Moscow in Clandestine Washington was a small place in die early 1938. “He thinks something is fundamentally wrong, 1930s, and spies from one network were always crossing since there cannot be so many members of die Right and paths with spies from odier networks — a violation of ele¬ Left oppositions [within the Soviet Communist Party] mentary tradecraft that horrified the espionage profes¬ who become traitors.” sionals in Soviet intelligence. It didn’t help that diere was Whittaker Chambers was also worried — not so much a constant turnover among the resident Soviet spies about whether or not Stalins purges were trumped up, entrusted with coordinating espionage efforts in the but whedier he might find himself among the victims United States, as many of them were recalled to Moscow, (one of Chambers’ fellow agents, Juliet Stuart Poyntz, had arrested, and shot in Stalins great purge of the late 1930s. already disappeared under mysterious circumstances in

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OCTOBER 2000/FOREIGN SERVICE JOURNAL 37 Focus

New York in 1937). Chambers’ anxieties led to Iris defec¬ a Battering portrait of Soviet NKVD chief Lavrenti tion in 1938. He broke all ties widr his former associates Beria, and describe the NKVD as die equivalent of the in both the Communist movement and Soviet intelli¬ American FBI.) gence, and shortly made a new life for himself as an edi¬ tor of Time magazine. Fortunately for the Soviets, World War, then Cold War Chambers proved a fairly indecisive character, who The few dozen American spies of the 1930s grew to wrestled for many years with die question of whether or scores, perhaps hundreds, during die war (diere are not he would turn on all his erstwhile comrades in espi¬ coded references to about 350 Americans in Venona, onage. Though making an initial effort in 1939 to warn about half of whom have been identified — although not State Department officials in general terms of tire dan¬ all of tiiese code-named individuals were successfully gers of Soviet penetration, he did not specifically accuse recruited as agents). Much of die purely political intelli¬ Alger Hiss of spying for another nine years. gence passed along by sources in Washington was of lit¬ The popular image of Soviet spies as crisply efficient tle ultimate consequence — nothing that “altered the super-villains does not accurately capture the reality of course of history” as Judge Kaufman would say of the dieir operations in die United States in die 1930s. The Rosenbergs at dieir sentencing in 1951. It was the Soviet Americans involved in die effort were, almost without penetration of the Manhattan Project, undoubtedly die exception, rank amateurs, playing at a conspiratorial greatest triumph ever achieved by die NKVD, diat cre¬ craft they were far from mastering. But even their ated the illusion in the United States after the war diat Russian controllers seemed to be decidedly second- an infamous conspiracy of traitors had gained die upper string. Throughout the 1930s die United States was sim¬ hand in Washington. ply not very important as a target of Soviet espionage, However spectacular its wartime record, NKVD suc¬ save as a kind of listening post from which information cesses widiin the United States were short-lived. The could be gleaned about places of greater concern to defection of espionage courier Elizabeth Bendey to die Soviet policymakers. The NKVD first team was sent off FBI in 1945 crippled Soviet intelligence gathering in to places diat counted, like Great Britain, Japan, and Washington. The defection of a Soviet cipher clerk in Nazi Germany. Canada in 1946, and the subsequent decoding of Soviet That changed in 1941. The war saw the expansion, wartime diplomatic messages in the Venona project, led professionalization, and centralization of Soviet espi¬ in a few years time to the detection and arrest of most of onage efforts in die United States. Wartime cooperation those involved in die theft of atomic secrets during between the two great anti-Nazi partners made it much World War II. By the time Joe McCarthy came on the easier for die Soviet Union to move experienced spy scene with his charges that hundreds of Soviet agents handlers into the United States under diplomatic and and spies remained in positions of induence within the trade cover identities. It also became easier to recruit American government, the reality was quite different. In sources in Washington, because of the vast expansion of a 1951 memorandum uncovered in die Moscow NKVD the wartime bureaucracy, because of the relative ease archives by Weinstein and Vassiliev, Soviet spymasters with which Communists and other Soviet sympathizers acknowledged to their superiors diat they no longer had could gain government employment, and because of die any inside sources in the American government: “the widespread public gratitude to die Red Army for hand¬ most serious drawback in organizing intelligence in die ing the Nazis their first significant military defeats in the U.S. is ... the lack of agents in the State Department, war. The Russophilia of die war years would be forgot¬ intelligence service, counterintelligence service, and ten by die time Whittaker Chambers took the stand in odier most important U.S. governmental institutions.” 1948, but only five years earlier such an ultra¬ By 1953, the FBI had quietly written off the respectable organ of American mainstream opinion as American Communist Party as a serious espionage Life magazine would pay the Russians the supreme com¬ direat. In subsequent decades, Soviet espionage could pliment of being “one hell of a people,” who “look like no longer tap the resources of “romantic anti-fascism”: Americans, dress like Americans, and think like The only sources it was able to recruit, such as Aldrich Americans.” (In die same issue Life’s editors would offer Ames in the 1980s, were in it strictly for die money. ■

38 FOREIGN SERVICE J O U RN AL/O CT O B ER 2000 WHEN VICTIMS SUE TERRORISTS

IT SEEMS ONLY FAIR THAT AMERICAN VICTIMS OF FOREIGN TERRORISM SHOULD BE ABLE TO

SUE THE GOVERNMENTS THAT SPONSORED THE ATTACKS. BUT IS IT REALLY THAT SIMPLE?

BY GEORGE GEDDA

efore April 10, 1995, few people had achievement of that goal is not being helped by the efforts B heard of Stephen Flatow, of West Orange, of Flatow and other litigants with similar grievances to pun¬ N.J. On that day, his 20-year old daughter, ish Iran for its misdeeds. Complicating matters for the Alisa, was killed when the bus in which administration is the strong support such plaintiffs have she was traveling in the Gaza Ship was received from Congress, including many in the leadership of rammed by a van packed with explosives. both houses. Attempts at compromise have not succeeded. Also killed were seven Israeli soldiers. The driver of the van was identified as a member of Islamic Jihad, an Iranian- Simple Justice? backed group. Five years ago, in die immediate aftermath of his daugh¬ Although it happened over five year's ago, Alisas death is ters death, Flatow was confident die administration was on continuing to have reverberations in Washington. Stephen his side. Indeed, on the night that Alisa died, President Flatow wants Iran to pay for Alisas Clinton telephoned him to offer condo¬ murder, and in that quest has biparti¬ On the night that Alisa lences and promised help in obtaining san congressional support. He also has justice. And, three years later, on the day the backing of a U.S. court, which last Flatow died, President die U.S. court decided that Iran was year held Iran liable in tire case and obligated to pay him a huge judgment, awarded him $247 million. But the Clinton telephoned her Flatow felt that justice was within reach. Clinton administration has grave reser¬ "Here I was, an average taxpayer, receiv¬ vations about the processes being used father to offer condolences ing what seemed to be the full support to force Iran to pay and worries that of the mighty United States of America key foreign policy interests could be and promised help in in my quest to find justice in the death sacrificed. of my daughter,” he recalled in House One such interest is the administra¬ obtaining justice. testimony this past spring. tion s goal of resuming official dealings But his elation was short-lived. Hours with Iran. With the increasing strength of moderate political after the judgment was announced, the State Department forces in Iran, reflected most recently in parliamentary elec¬ said the United States did not believe in judgments against tions last February, the administration sees its best hope for foreign countries but in negotiations with them. wanner ties with Iran in more than 20 years. Toward that Flatow was flabbergasted. He felt he had done all the end, Secretary of State Madeleine Albright announced in right things. March a series of measures in trade and other areas Congress had laid the groundwork for his suit by passing designed to build on the momentum generated by the a law in 1996 that gave U.S. citizens the right to use U.S. ascendancy of the moderates. The administration believes civil courts to sue foreign governments that sponsor terror¬ ist attacks. True, the legislation did not mean much initially George Gedda, a frequent contributor to the Journal, because there was no means of collection. But in 1998, covers the State Department for the Associated Press. Congress strengthened the law by specifically authorizing

OCTOBER 2000/FOREIGN SERVICE JOURNAL 39 the seizure of assets owned by nations deemed to be terrorist states. Eleanor Roosevelt Center at Val-Kill - ERVK However, it also included a broad national security waiver that allowed ERVK is proud to be listed for the first time the president to prevent the assets of as a National Organization for The Fall 2000 Combined Federal Campaign- an offending country from being used CFC-number 2636 to collect legal judgments.

ERVK is a non-profit, non-partisan, UN-associated NGO that saved Eleanor Sending A Signal Roosevelt’s Val-Kill home, the only National Historic Site dedicated to a First A new bill before Congress, with Lady. Today we carry out programs to keep Eleanor Roosevelt’s legacy alive: the evocative name “Justice for the Human Rights Education Workshops and Lectures Victims of Terrorism Act,” would National High School Girls ’ Leadership Workshops remove the president’s waiver author¬ Community Programs on Race Relations and Welfare Reform ity. It would also allow U.S. citizens to satisfy judgments against foreign gov¬ Elderhostel Programs ernments with the help of assets that The Eleanor Roosevelt Val-Kill Medal Ceremony are not used for diplomatic reasons, such as commercial properties or For more information, we invite you to visit our website: www.ervk.org rents from seized buildings. “There is no earthly reason why a profit made Daniel A. Strasser, Executive Director, Foreign Service Officer Retired Eleanor Roosevelt Center at Val-Kill (ERVK) here by a government-owned facility PO Box 255, Hyde Park. NY 12538 ... should be exempt” from seizure, Tel: 845-229-5302 / Fax: 845-229-0742 says Sen. Frank Lautenberg, D-N.J., E-mail: [email protected] who counts Flatow among his con¬ stituents. Lautenberg and Sen. Connie Mack, R-Fla.., have intro¬ duced the Senate version of tire bill. Rep. Bill McCollum, R-Fla., who All New Suites, Same Great Prices! introduced the identical House ver¬ sion, says, “It is time to send a strong message to terrorists and their state sponsors that they cannot get away with murder.” The House passed the bill on July 25 and sent it to the Senate, where the Judiciary Committee has already approved it and sent it to die floor. According to the Wall Street Starting at Journal, Hillary Rodham Clinton met he Virginian Suites has just undergone ♦ Spacious suites with Flatow in New York last t a major room renovation. Everything's with full kitchens $68 new, from floor to ceiling. We’ve heard ♦ Pool and exercise Based on a 30 day December and told him the adminis¬ the suggestions of our loyal guests and facilities minimum slay tration was wrong to encourage the we’ve responded. ♦ Free local phone calls, on-site parking, Flatows and others to file lawsuits and Now you’re not only staying just minutes and cable TV with HBO then not help them enforce their from National Airport, the National Foreign ♦ Complimentary Continental judgments. A spokeswoman for Mrs. Affairs Training Center, most government Breakfast on weekdays Clinton told the newspaper diat die buildings, and Metro—you're getting a great ♦ Free shuttle to NFATC weekdays price for a brand new suite! at 7:30am, returning at 4:30pm First Lady supports die bill and the efforts to collect the judgment. 1500 Arlington Blvd., Arlington, VA 22209 Anodier supporter of die bill is 703-522-9600 • 800-275-2866 • Fax: 703-525-4462 TheTcL&i Terry Anderson, the former E-mail [email protected] Virginian Suites www.virginiansuites.com Associated Press chief Middle East correspondent. Pie was taken hostage

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Web site: www.diplosales.com ♦ Phone: 516-496-1806 ♦ Fax: 516-667-3701 ♦ E-mail: diplosalcs^aol.com by an Iranian-sponsored group in (Iran’s property at the United Nations Lebanon in 1985 and held captive for was not an issue because, under U.N. 2,454 days, the longest of the many The Justice for the rules, such properties are considered Americans held captive in Lebanon. immune from bilateral disputes). If Throughout his ordeal, he was Victims of Terrorism Act the tribunal sides with Iran on this chained and blindfolded, fed only point and the properties are not avail¬ bread, cheese and water, moved from would remove the able because they have been liquidat¬ cell to cell numerous times, and was ed to pay private judgments, U.S. gov¬ constantly made to fear for his life. He president’s waiver ernment lawyers say that American told a House Judiciary subcommittee taxpayers would be asked to foot the hearing last April that until Iranian authority. bill for die value of the properties. money “is actually seized and distrib¬ However, a spokesman for Rep. uted to that country’s victims, there is McCollum insists that this is not the no reason for Iran or any other state case; he says Iran would have to go to sponsor of terrorism to think twice monarchy for U.S. weapons and relat¬ court and sue the individual recipients about doing it again.” Anderson also ed parts that were never delivered. of the funds in order to collect. says normal relations with Iran should The funds have been sitting for two not be reestablished until that country decades in an account officially desig¬ The Cuba Corollary “has acknowledged its past sponsor¬ nated the “Iranian Foreign Military Iran is not the only target of terror¬ ship of terrorism, compensated its vic¬ Sales Trust Fund.” ist victims. Families of four Cuban- tims and publicly vowed not to do it The disposition of tire funds is in Amerieans whose two unarmed again.” the hands of tire Iran-U.S. Claims planes, sponsored by Brothers to the Last March, U.S. District Judge Tribunal, an arbitration court set up in Rescue, were shot down north of Thomas Penfield Jackson awarded the Netherlands as part of the agree¬ Cuba in 1996 have been awarded him a judgment of $.341 million. Like ment that led to the freeing of the $187 million by a U.S. court. This past Flatow, Anderson is embittered by American hostages in 1981. The panel spring, they filed suit to attach $39 the Clinton administrations resis¬ consists of American, Iranian and million worth of Cuban government tance to using frozen Iranian assets to independent members. Most of the assets on deposit in a U.S. bank. Their punish Iran. They have company. claims taken up by the tribunal have efforts are being contested by Justice Other Americans who were held been settled. The claim relating to the Department lawyers. hostage — David Jacobsen, Joseph long-ago military sales is the largest Months after the $187 million Cicippio and Frank Reed — have still pending. award was announced, Cuba struck won a combined judgment against The administrations point man for back with a suit of its own against the Iran totaling $65 million, but also resolving this and other claims issues United States. Last November, a have yet to collect a dime. is David Andrews, a San Francisco Cuban court, the Provincial Popular Four months after the Anderson lawyer and former State Department Tribunal, found the U.S. government verdict, a federal judge awarded $.327 legal adviser. Andrews says resolving liable for deaths and damage to the million to relatives of an American the weapons sales claims alone has island during 40 years of “aggressive couple, Sara Duker and Mathew been excruciatingly slow because mil¬ policies” and ordered the United Eisenfield, who were killed in a 1996 lions of pieces of equipment are States to pay $181.1 billion in repara¬ terrorist bombing in Jerusalem. As in involved. The transactions spawned tions, almost 1,000 times the award the other cases, the judge held Iran enough documents to fill entire ware¬ against Cuba granted by the U.S. responsible based on evidence that houses, he says. court. However, no U.S. representa¬ the perpetrator had links to an The administration rules out use of tive attended the trial, and the U.S. Iranian-backed terrorist group. these funds for compensation in the government did not respond to a terrorism cases, noting a suit filed by summons issued by the court. Who Will Pay? Iran in the claims tribunal. That suit Cuba’s main target was the U.S. In theory, the claimants who contends that the United States embargo against the island. Havana already have been awarded judg¬ should have transferred Iran’s diplo¬ maintains the embargo has made it ments could be compensated from matic and consular property in the impossible for Cuba to acquire prod¬ the estimated $400 million in funds United States back to it in 1981 at the ucts, equipment, services and tech¬ paid by the pre-revolutionary Iranian time the hostages were released. nology, and severely damaged its for-

42 FOREIGN SERVICE ] O V RN AL/O C T O B E R 2000 eign trade and ability to get funding The administration says it recog¬ tion, as written, could cause the and credits. nizes the need for immediate com¬ United States to violate its obligations While obviously sympathetic to pensation and is proposing alternate to protect diplomatic property, and Americans suffering as a result of ter¬ legislation that would make “partial would undermine die legal protec¬ rorist acts, the administration strongly and advance” payments of 20 percent tions for U.S. diplomatic property on opposes the proposed remedy. It of compensatory damage awards to which the government relies to pro¬ believes, in line with previous admin¬ those with judgments against the tect the safety of its property and per¬ istrations of both parties, that individ¬ Iranian and Cuban governments. The sonnel abroad. ual recovery should not take prece¬ funds would be obtained partly out of According to government figures, dence over the interests of the entire blocked assets and partly out of an the United States owns over 3,000 nation. appropriation in the case of Iran and buildings and other structures abroad. Administration officials point out entirely out of blocked assets in the Their total value is estimated at that denying terrorist states access to case of Cuba. Once the payments are between $12 billion and $15 billion. their assets by freezing them is one of made, the United States would seek Officials point out drat the United the most significant sanctions a presi¬ to recoup the outlays as part of any States could suffer great harm if dent has in dealing with such issues. normalization of relations. diplomatic protections are eroded They point out that shortly after the The administration also wants to because it has more overseas property Iran hostage crisis erupted in 1979, amend the legislation to ensure the and personnel dian any other country. President Carter blocked almost $10 president would continue to have full ‘We should not give those states who billion in Iranian assets. They believe waiver authority (the proposed bill wish the United States ill an easy the safe release of the U.S. hostages in contemplates only partial authority) to means to strike at us by declaring early 1981 would not have been possi¬ protect blocked assets. Failure to pro¬ diplomatic property fair game,” said ble if the administration had not been vide such protection would violate one official. able to use these assets as a bargaining international law, officials say. Beyond that, the administration is chip. In addition, they say the legisla¬ concerned that the legislation would

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OCTOBER 2000/FOREIGN SERVICE JOURNAL 43 benefit a narrow group of individuals would be fruitiess since the bill is with claims against Iran and Cuba clearly designed to benefit only based on terrorist acts but would The Clinton Americans. leave out others with legitimate griev¬ ances. administration is Iranian Reaction They point to the 5,911 U.S. Not surprisingly, Iranians resent nationals who have certified claims sympathetic but still the new front opened against their against Cuba resulting from expropri¬ country in U.S. courts. After the judg¬ ation of property. Additionally, there prefers negotiations to ment in the Flatow case was are claims by family members of two announced in 1998, an official Iranian individuals whom die Cuban govern¬ judgments against statement said, “The allegations ment executed for alleged crimes raised in die hurried proceedings of against the Cuban state. Officials foreign countries. the court are without a shred of sub¬ point out that none of those claimants, stantiation, have no basis in fact and even though they have already waited fail any standard of evidence.” Iranian more than 35 years for compensation, award was $300 million out of the officials also contended that they had would be helped by the proposed leg¬ $341 million total. been sewed with no papers concern¬ islation. In addition, some critics of die leg¬ ing die suit. The administration also wants to islation are concerned that passage of In addition, die Islamic Jihad, the strike from the bill a provision that the legislation could pave the way for Palestinian group held responsible for would require the defendant nation to foreign governments or groups to sue Alisa Flatows death, ridiculed the pay punitive damages. It contends the U.S. government based on die court finding in her case. “This is a big that such damages are not recognized dozens of U.S. military interventions joke, because thousands of under international law. In die Terry in recent years. But supporters are Palestinians have been killed during Anderson case, die punitive damage convinced that any such litigation the past 50 years without anyone car-

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1716 N St. NW Washington, DC 20036-2902 AMERICAN FOREIGN Phone: (202) 833-4910 Fax: (202) 833-4918 S E R v i c E PROTECTIVE Email: [email protected] ASSOCIATION MimjflL^OmaHfl© Website: www.afspa.org Companies Underwritten by Mutual of Omaha Insurance Company ing about them or about their family,” In addition, despite American said Mohammed Said, a leader of the overtures, Iran sees itself as the group. Former hostage Terry aggrieved party. Mohammadreza The Clinton administration seems Khatami, brother of the president to recognize that the terrorist acts Anderson insists that and head of Iran’s largest and most which triggered the lawsuits against influential reformist group, said last Iran did not occur in a vacuum. Iran must admit its links February, “The United States sup¬ Accordingly, while the State ported the totalitarian regime of the Department deplores the acts of ter¬ to terrorists and shah. And now drat Iran has become ror blamed on Iran, it also concedes one of the most free nations, it con¬ that Iran has its own grievances compensate its victims tinues its policy of sanctions.” against the United States. Clinton did lift restrictions in 1999 A major sore point for Iran was die before the U.S. on the sale of food, medicine and CIAs role in the 1953 coup in Iran medical supplies to Iran and other that deposed Iran’s popular prime normalizes relations. sanctioned countries but the action minister, Mohammed Mossadegh, has had little impact on the overall and reinstated the monarchy. “The relationship. coup was clearly a setback for Iran’s Still, given Iran’s size, location and political development,” Albright said spoke those words just a month after oil reserves, the administration wants in a March speech. “And it is easy to the murder of Stephen Flatow’s to be able to influence events there see now why many Iranians continue daughter. again some day. It is not about to to resent this intervention by America A year later, Congress approved allow its policies to be shaped by law¬ in their internal affairs.” She also legislation mandating sanctions suits, however legitimate the cause. noted that the regime of the Shah of against any person or business that Albright recognizes that change in Iran received strong American back¬ invests $40 million or more in any one U.S.-Iranian relations can only come ing for die next quarter century even year in Iran’s energy sector. Attitudes in small steps. Barely a month after though it “brutally repressed political toward Iran changed sharply with die the parliamentary elections, Albright dissent.” After the 1979 revolution, election of Mohammad Khatami, an responded to the strong moderate Albright noted, the United States tilt¬ avowed moderate, as president in showing with several gestures, ed toward Iraq in the Iran-Iraq war of 1997. Khatami’s election and, in par¬ including an end to restrictions on die 1980 s, a policy diat she conceded ticular, this year’s parliamentary elec¬ the import of Iranian carpets and was “regrettably shortsighted” in light tions have created the hope of a new, certain food items and a reduction in of die subsequent U.S. experiences less contentious relationship with “unnecessary impediments” to con¬ with Iraqi President Saddam Hussein. Washington. tacts between American and Iranian Albright remains hopeful that her The changing political climate has artists, scholars and atiiletes. She also admissions of past U.S. wrongdoing not yet led to Iranian policy changes said the United States was prepared against Iran could start a healing on issues of vital interest to the United to seek a settlement of the remaining process; and certainly there is a lot of States, however. Tehran is still viewed outstanding claims between the two healing to do. During Clintons first as a terrorist state and apparently is countries. term, the administration and the still intent on pursuing programs to “Our goal now is to settle the rela¬ Congress collaborated in building up develop nuclear, biological and chem¬ tively few but very substantial claims layer upon layer of sanctions against ical weapons. There remain lingering that are still outstanding between our Iran, supplementing earlier punitive suspicions drat Iran was behind the two governments at the Hague,” she actions resulting from Iran’s designa¬ 1996 Khobar Towers bombing in said. “And by so doing, to put this tion as a terrorist state. Saudi Arabia that killed 19 American issue behind us once and for all.” But In May 1995, announcing a sever¬ servicemen. And, unfortunately for die claims issue won’t go away if ing of all remaining U.S. economic Washington, the moderate president Congress decides to use it to try to ties with Iran, Clinton said, “If we are is still subservient to anti-American punish Iran for past abuses of inno¬ to succeed in getting other nations to conservative mullahs on national cent Americans. And if that happens, make sacrifices in order to change security issues. Proposals by administration hopes for a new day in Iran’s conduct, we, too, must be wall¬ Washington for an official dialogue relations wltii Iran no doubt will be ing to sacrifice and lead die way.” He witir Iran continue to be rebuffed. dashed. ■

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HOMEGROWN and local law enforcement officers. The plotters obtained the beans TOXIC TERROR Lone actors and through the mail and one of them extracted the ricin, but before they Toxic Terror: Assessing Terrorist small groups are the could mix it with hand lotion and Use of Chemical and Biological apply it to objects the victims were Weapons most likely to turn to likely to touch, the FBI penetrated Jonathan B. Tucker, editor; MIT the council and arrested four key Press, 2000, $20.00, paperback, chemical and members. 287 pages. Which of these cases should biological terrorism. cause the greatest concern about REVIEWED BY JAMES T. DUNNE unconventional terrorism? The books answers might not be what The inherent difficulty in analyz¬ you expect. While the diversity of ing terrorist acts involving the use of cases makes generalizing difficult, chemical and biological weapons Jonathan Tucker, of the Monterey the researchers conclude that the (also known as “weapons of mass Institute of International Studies, most likely perpetrators of chemical destruction”) and coming up with has assembled 12 diverse examples and biological terrorism are not preventive measures is that there and framed them with a thoughtful groups with outside constituencies have been so few such “superterror¬ introduction and conclusion. (He and established support groups, but ist” attacks to date (fortunately!). For has also provided several useful lone actors and cultish, paranoid, a variety of reasons, terrorist groups charts to assist the reader in compar¬ disaffected groups (often with goals have so far largely avoided such ing various aspects of the case stud¬ that are more apocalyptic than polit¬ “unconventional” weaponry in favor ies.) Although several chapters deal ical), whose only audience is them¬ of less sophisticated devices such as with well-known foreign groups like selves. Judging from the incidents car bombs. the Japanese Aum Shinri Kyo cult described here, these conclusions Any book that offers in-depth and the Middle East-affiliated seem quite reasonable. analysis of a problem that essentially World Trade Center bombers, it is Precisely for this reason, howev¬ does not yet exist therefore automat¬ particularly noteworthy, even sober¬ er, the book does have one short¬ ically merits a degree of admiration. ing, to realize that just over half of coming: it offers no clear prototype Writing such a book must be like the incidents profiled are U.S.- or profile that authorities can use to juggling soap bubbles — as soon as based. identify a likely chemical or biologi¬ you get your hand on an essential Perhaps the most provocative cal terrorist, even though such a pro¬ element, it disappears. Despite chapter describes an attempt at bio¬ file may be what is needed most at these obstacles, Toxic Terror: logical terrorism planned by the this time. The analysts’ ambiguity Assessing Terrorist Use of Chemical Minnesota Patriots Council in the reflects reality, but it also adds to our and Biological Weapons succeeds in early 1990s. This small group of anti- unease. bringing its elusive subject to life government, tax-protesting “patri¬ Nonetheless, Toxic Terror pro¬ through persuasive case studies of ots” intended to use ricin, a deadly vides the clearest and most realistic real or suspected chemical or biolog¬ poison found in castor beans, against description of the threat to date. By ical activity. IRS agents, a federal deputy marshal the end of the book, the reader will

48 FOREIGN SERVICE ]OURNAL/OCTOBER 2000 better understand the relevance of groups ranging from the Weather Underground to the Rajneeshee cult of Oregon, even for a regional security officer protecting a remote U.S. embassy. It is highly recom¬ mended for anyone — professionals and lay people alike — concerned about our national security.

James Dunne is an analyst for the Office of Intelligence and Threat Analysis in the Bureau of Diplomatic Security. The opinions expressed in this review are solely his and do not represent the views or policies of the U. S. government.

OUR MAN IN MOGADISHU

Safirka: An American Envoy Peter Bridges, Kent State University Press, 2000, $24.00, hardcover, 241 pages.

REVIEWED BY JAMES E. MILLER

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OCTOBER 2000/FOREIGN SERVICE JOURNAL 49 B 0 0 K s

book is pail personal memoir and about American diplomacy during travelogue, part analysis of embassy die Cold War era. operations, part dissection of a thor¬ Bridges provides useful oughly rotten Third World dictator¬ James Miller chairs the European ship, and part review of American background to the area studies program at FSI. His lat¬ diplomacy in the Horn of Africa. est book, Politics in a Museum: The first 56 pages of Safirka (the Somali debacle and is Governing Postwar Florence, will be Somali word for ambassador) published next year by Praeger. recount Bridges’ rise through the admirably frank in his Foreign Service to the position of DCM in Rome, where he bid on the analysis of U.S. policy. WHY AMBASSADORS Mogadishu appointment (a logical follow-on). But the bulk of the book STILL MATTER details his efforts, despite daunting obstacles, to carry out major aid pro¬ First Line of Defense: grams to address unsustainably high frank in his analysis of U.S. policy Ambassadors, Embassies and fertility rates, mass migration into and its implementation as well as the American Interests Abroad pre-industrial cities, a crumbling politics and personalities of the soci¬ Robert V Keeley, editor; The infrastructure and widespread illiter¬ eties in which he served. His judg¬ American Academy of Diplomacy, acy. ments on the Reagan administration 2000, paperback, $9.95, 124 pages. To make matters worse, President are scathing, so it comes as no sur¬ Mohammad Si ad Bar re brutally prise that he resigned from the REVIEWED BY STEVEN ALAN HONLEY presided over a thoroughly corrupt Foreign Service in April 1986. political system rife with clan ten¬ In reconstructing his career, Most readers of the Journal would sion. He tirelessly sought military aid Bridges has read widely, made use of obviously have no difficulty witii the to retain power and pursue his pet a personal diary and consulted other proposition that ambassadors matter. project, a senseless war with documentary sources. His excep¬ But as this volume recognizes, the dif¬ Ethiopia that uprooted countless tional powers of recollection, partic¬ ficulty lies in convincing those less refugees. Recognizing the futility of ularly for the details of his personal familiar widi diplomacy. the situation, Bridges lobbied for a travels, give the book charm and First Line of Defense fills tills gap reduction in U.S. assistance and color. On occasion, however, the by relating dozens of instances where staffing levels, targeting aid towards author pushes his flair for the dra¬ chiefs of mission intervened success¬ food programs to keep the Somalis matic a bit too far, asking the reader fully in all sorts of foreign situations to from starving and education as the to believe he can recall his exact further U.S. interests, even sometimes key to building civil society over the droughts during events nearly 15 at the risk of their personal safety. long term. years ago. Some stories, like die one that As he dueled with Siad Barre on a One factor that is virtually miss¬ opens the book, are quite dramatic. variety of fronts, from administration ing from Bridges’ recounting of his Ambassador Robert Strauss arrived in of aid projects to the release of polit¬ Somali experience (and indeed of his Moscow in 1991 in the midst of die ical prisoners, Bridges also had to whole diplomatic career) is the role attempted coup against Soviet deal with embassy security, resolve of intelligence in his decision-mak¬ President Mikhail Gorbachev. Days interagency squabbles and try to ing. This is especially regrettable afterward, even diough he had not yet revive flagging staff morale. He pro¬ since Bridges served in a series of had a chance to present his creden¬ vides a detailed and interesting posts (Rome, Moscow, Prague, and tials, Strauss approached Gorbachev account of these facets of his duties. Mogadishu) where intelligence just prior to a memorial service for Bridges then concludes with operations were a critical part of three young men who had died some reflections on the realities of U.S. activities. defending the pro-democracy forces. aid to failed states and on the grim In spite of this unnecessary' reti¬ Through sheer force of personality, he future of Somalia itself. Throughout cence, Bridges has produced a first- persuaded Gorbachev to add him to the book, the author is admirably rate memoir that tells us a great deal die program literally at the last minute

50 FOREIGN SERVICE ]O VRNAL/OCTOBER 21)00 BOOKS SEVEN MINUTES TO STATE DEPARTMENT

COLUMBIA PLAZA APARTMENTS Defense relates instances Capital Living where chiefs of mission With Comfort and Convenience furthered U.S. interests, SHORT TERM FURNISHED APARTMENTS AVAILABLE sometimes at the risk of Utilities Included 24 Hour Front Desk Complimentary Voice Mail Garage Parking Available personal safety. Courtyard Style Plaza Shopping on Site Polished Hardwood Floors Cardkey Entry/Access Private Balconies River Views Huge Walk-In Closets Minutes to Fine Dining Walk to the Kennedy Center and Georgetown so he could read words of support Minutes to Foggy Bottom Metro from President Bush. Most other case studies in the (202) 293-2000 book are less “sexy” but still highlight 2400 Virginia Ave., N.W. ambassadors who were arguably just Washington, D.C., 20037 as effective as Strauss in advancing by $#4*4*04* ^ Co. various U.S. interests in their respec¬ tive countries. This is particularly true of the chapter dealing with promot¬ ing American business abroad, which makes clear the importance of involv¬ Have ing all mission elements, under strong leadership, in carrying out this increasingly important diplomatic a Bone objective. (In general, however, the subtitle of the book notwithstanding, to Pick? its focus is much more on the chief Why not write a “Speaking Out” for the Foreign Service Journal? than on the mission, which is under¬ standable but nevertheless regret¬ “Speaking Out” is the FSf’s op-ed section, the place where writ¬ table.) ers can express opinions on issues specific to the Foreign Sendee, Robert Keeleys editing respects the inherent strength and appeal of its employees and its work. the stories he has compiled and lets Writers are encouraged to take strong stands, but all claims must them speak for themselves, which they do, quite eloquently. Perhaps be supported and documented. Length of submitted articles Ted Turner or some other interna¬ should be from 1,500 to 2,000 words. tionally-minded philanthropist could pony up the funds to send a copy to All submissions go to the Journal’s Editorial Board for discussion. each senator and representative? If an article is accepted, writers will be expected to meet the Even if only a handful of the recipi¬ magazine’s editorial and style requirements. ents read the volume, it would still be money well spent. ■ Please make submissions via e-mail to [email protected], Steven Alan Honley is associate edi¬ by fax to (202) 338-8244, or bv mail. tor of the Journal.

FOREIGN SERVICE JOURNAL 51 IN MEMORY

Richard H. Courtenaye, 76, Calif.; and his sister, Yvonne Brown of 1999. During retirement, Mr. retired FSO, died of cancer March 5 La Jolla, Calif. Heimann was tapped for special pro¬ at his home in La Mesa, Calif. Mr. jects for the department in Croatia, Courtenaye was born in Pomona, Luxembourg and the State Calif, in 1923. He received a B.A. Department Archives. from UCLA in 1944. After serving in John Paul Heimann, 67, retired Mr. Heimann belonged to AFSA, die U.S. infantry, he was sent by the FSO, died of cancer on June 9 at his DACOR, and the Cercle Gaulois in U.S. Army to the Japanese Language home in Washington, D.C. Brussels. He is survived by his wife of School at the University of Michigan. Mr. Heimann was bom in New 44 years; son John Paul Heimann, Jr. As a language officer in Japan, he han¬ York City in 1933, and grew up in of Columbus, Ohio; daughter Mary dled press and radio work. Shanghai, Mexico City, New Delhi, Elizabeth Heimann of Glasgow, After taking the Foreign Service and Washington, as his father seived Scotland; sister Barbara Filson of exam in Japan, he was sworn in as an in tire U.S. Public Health Service. He Bluffton, S.C.; and aunt Nathalie FSO in Washington, D.C., in 1947. graduated from Western High School Brooks of New York City. He went on to earn a masters degree in Washington, served two years in in public administration from the U.S. Army, and graduated from Harvard University? in 1956. Llarvard University in 1957. He Foreign posts included Barcelona, entered the Foreign Service later in Sheila L. Kachmar, wife of Mexico City, Quito, Kobe/Osaka, 1957, and his first posts were in retired FSO George Kachmar, died of Madrid, and Tijuana. He served as Indonesia at Embassy Jakarta and cancer on June 24 in Carlisle, Pa. consul general in Quebec City, in Consulate General Surabaya. He Mrs. Kachmar was a native of New Windsor, Ontario, and in Tangier, served in Belgium several times, York City? and a graduate of Hunter Morocco. In the department from including a period as consul general in College of die City University of New 1959 to 1961, he served in the Middle Antwerp. York. She accompanied her husband America branch of the office of From 1964 to 1965, he studied at to posts in Argentina, Sweden, research and analysis, and as chief of Yale University’s graduate program in Paraguay, the Republic of Korea, the inter-American political division Southeast Asian studies. He seived in England, Norway, Pakistan, and from 1961 to 1962. From 1970 to Kuala Lumpur and later in Kuching Soudi Africa. She taught English, 1972, he was on loan to tire Denver as principal officer for East Malaysia Spanish and French in New York City Office of Economic Opportunity and and Brunei. In the department, he and Scarsdale, N.Y., and at die served as federal regional representa¬ seived as a Foreign Sendee inspector American schools of Oslo and tive for a six-state area. Following his and as an Indonesia-Malaysia desk Karachi. retirement in 1975, Mr. Courtenaye officer. She was country director of the worked as a volunteer adviser for for¬ After retiring in 1987, Mr. Girl Scouts of America in Norway, eign student exchange programs at Heimann accompanied his wife on community liaison officer at the various San Diego high schools. her assignments as consul general in American consulates general in Survivors include his wife, Nonna Bordeaux and to Manila. Mrs. Juditir Karachi and Johannesburg, and did Jean Drew Courtenaye of La Mesa, Heimann retired in 1992, after which volunteer and education work for Calif.; two daughters, Mary-Ann the couple maintained homes in schools and otiier organizations Courtenaye of San Diego and Oxford, Md., and Brussels, until they throughout her life. Catherine Courtenaye of Emeryville, moved to die District of Columbia in Survivors include her husband,

52 FOREIGN SERVICE ] OU RN AL! OCT O BER 2000 IN MEMORY

George; daughters Alisia and Jill grandchildren; and two great-grand¬ and sons Arthur J. Bassin of Kachmar of Carlisle, Pa; and son children. Ancramdale, N.Y., and N. Jay Bassin Shawn Kachmar of Mount Pleasant, of Silver Spring, Md. ■ S.C. Memorial contributions may be made to the Senior Living Beatrice- K. Bassin, 85, wife of CONDOLENCES Foundation of the American Foreign retired FSO Jules Bassin, died Aug. 5 Service, 1716 N St. NW, Washington, at the Carriage Hill Home in The Foreign Service com¬ D.C. 20036, or the American Cancer Bethesda, Md. Mrs. Bassin accompa¬ munity offers condolences Society, 1500 N. Second St., nied her husband on assignments to to the wife, family and Harrisburg, Pa. 17102. Tokyo; Karachi; the Aimed Forces friends of diplomatic courier Staff College in Norfolk, Va., where Seth J. Foti, who died in the —— he served as a member of tire faculty; Washington, D.C.; and Geneva. tragic August 23 crash of a Robert A. Stevenson, 81, former Mrs. Bassin was a speech and Gulf Air flight from Cairo to ambassador, died of Parkinsons dis¬ English teacher in the New York City Manama. The Journal ease on June 23 in Sterling, Va. school system from 1937 to 1944, and received this news as we Mr. Stevenson lived in Sterling, Va. a speech pathologist in the were going to press. A full at the time of Iris death, and was a Washington, D.C., school system obituary wall follow in the winter resident of Naples, Fla. The from 1962 to 1969. Vermont native was a graduate of the Survivors include her husband December issue. University of North Carolina and the Jules, who lives in Washington, D.C.; National War College, and received a master’s degree in public service from Harvard University. He seived with the Navy in the Pacific during World War II. ' He joined the Foreign Service in 1947 and retired in 1978 following Grace Towse Borell, 94, whdcrwof FSO Charles B. Borell, four years as ambassador to Malawi. died after a short illness October 17, 1997, at her home in From 1958 to 1960, he served as Center Harbor, N.H. Mrs. Borell accompanied her husband Cuba desk officer at the department and as coordinator of Cuban affairs to his postings as an Immigration and Naturalization Service from 1966 to 1967. He also served at officer to Northern Ireland, Italy, and Belgium in the 1920s posts in Germany, Latin America and and 1930s. Mr. Borell joined the State Department in 1945 Africa. In retirement, Mr. Stevenson was a and Mrs. Borell accompanied him to postings in London; tireless advocate of the dwindling Montreal; Cork, Ireland; and Frankfurt. Mrs. Borell was a American bluebird population, Red Cross volunteer and served as president of the Frankfurt designing, building and donating bluebird houses to neighbors and women’s club. She had many fond memories of her Foreign conservation groups. His hobbies Service friends. included fishing and tennis. Survivors include his wife of 60 years, Dorothy McIntyre Stevenson Survivors include her son Barry T. Borella of Merrimack, of Sterling and Naples; son Gordon N.H.; grandson Benjamin Borell of Somerville, Mass.; and Stevenson of Yorktown, Va.; two granddaughter Nicoya M. Borella of Merrimack, N.H. (22 daughters, Roberta Schrage of Boulder Way, Merrimack, NH 03054). Vienna, Va. and Monica Stevenson of Boston; a brother; two sisters; eight

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56 FOREIGN SERVICE J O U RN A L / O C T O B E R 2000 REAL ESTATE

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Donna Brewer 11094-A Lee Highway, Suite 103 • Fairfax, Virginia 22030 Aiatu Busairu 703-934-8800 • Fax 703-934-8802 Alana Clark Diane Galliek Sue Malick Ron Daly, PC RESIDENTIAL PROPERTY Vanessa Hardee, Esq. Hello! As a Foreign Service Spouse of 32 years and a licensed MANAGEMENT Realtor of 22 years, I know what moving is all about! JP Properties lists and sells houses for Foreign Service families Visit our website for AND provides outstanding PROPERTY MANAGEMENT SERVICES for "worry-free" overseas assignments. detailed information. In addition, we provide you with legal and tax services. Vanessa Hardee, Esq. and Ron Daly, CPA are members of www.northernvahomes.com/propmgmt.htm the JP Properties' team and have been working with the Foreign Service community for years. • Experienced • Licensed Let JP Properties assist you with all your housing needs. • Professional • Insured WE CARE!!! CALL, FAX OR E-MAIL US TODAY!!! • Reliable • Competitive Rates 301 Maple Avenue West 4C, Vienna, VA 22180 (703) 938-0909; FAX: (703) 281-9782 E-Mail: [email protected] E-mail: [email protected] Website: www.foreignservicehomes.com \ Z_ /

The

Simun-fgEAM About The ? Sirnunek Team Send Us E-Mail % Newsletter .“«& View Our S Vf Listings Search For Your A Dream Home Zorita & Home Buyer & Seller Guides Richard Get A Free School Report Simunek Temporary Housing Neighborhood Rochelle Ruffin - 4 Focus Mortgage Client Care Specialist Information Financial Calculators Tachiea Roland - Property Management Listing Coordinator i Contact Into r/jSsHOa

www.simunek.com [email protected] D.C. & MD Direct Line: (202) 296-4304 Virginia Direct Line: (703) 284-9365

OCTOBER 2000/FOREIGN SERVICE JOURNAL 57 REAL ESTATE

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Call us today! Send your address correction to: AFSA (301) 657-3210 Attention: Membership 2101 ESt. N.W. 6923 Fairfax Road ♦ Bethesda, MD 20814 Washington, D.C. 20037 email: [email protected] OR E-mail it to: [email protected] PROPERTY MANAGEMENT FOR FOREIGN SERVICE OFFICERS ♦

ADVERTISING INDEX When contacting one of our advertisers, kindly mention you saw their advertisement in the Foreign Service Journal.

Automobiles Housing UNIRISC / 14 McGrath Real Estate American Service Alexandria Suites / 33 Miscellaneous Services / 54 Center / 9 Avalon Bay/4 Air Service / 47 Meyerson Group / 58 Northern Virginia Homes & Bukkehave / C2, C4 Columbia Plaza / 51 Amazon.com / 59 Property Management / 57 D&M Auto / 32 Charles E. Smith / 24 Combined Federal Peake / 59 Diplomatic Automobile / 41 Executive Club Suites / 44 Campaign / 47 Property Specialists / 59 Don Beyer Volvo / 32 State Plaza / 6 Creative Options / 47 Prudential Carruthers / 56 Martens Volvo / 49 Georgetown Suites / 12 Diplomatic Relations / 36 Reguard / 55 State-Side Auto Supply / 36 Executive Lodging Eleanor Roosevelt / 40 Stevens Property Alternatives / 35 Feed Children / 2 Management / 56 Financial and FARA / 49 Scholarship Fund / 47 Oakvvood / 21 Stuart & Maury/54 Tax Services Remington / 37 WJD Property Money Concepts BRC / 11 The Virginian Suites / 40 Real Estate and Management / 55 MCG Financial Property Management Washington Management Planning / 35 Insurance Avery Hess / 54 Services / 54 Raymond James / 47 Charles Hoof / 55 AFSPA 45 State Department Federal Executive Housing / 56 Clements & Co. / 1 Schools Credit Union / 43 J.P. Properties / 57 Harry Jannette AFSA school chart / 47 Long & Foster International / 20 Randolph Macon -Simunek / 57 The Hirshorn Academy /15 MGMB/56 Company / C3

58 FOREIGN SERVICE ]OURNAL/OCTOBER 2000 REAL ESTATE PEAKE MANAGEMENT. INC. Just property management and leasing.

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OCTOBER 2 000/FOREIGN SERVICE JOURNAL 59 POSTCARD FROM ABROAD

The Eternal Tug Of War

BY JOHNNIE E. PRATHER

An awesome tableau has wel¬ sandstone. Thieves with an eye on comed visitors to Angkor Thom for A half-cent my the high prices Khmer carvings more than a thousand years. Newer, bring on the black market have car¬ bigger, cruder than Angkor Wat, its of greed, ried out much of this vandalism. far more famous neighbor, Angkor neglect, Some of the statuary has been taken Thom is nevertheless a magnificent away by conservationists, who have ruin, rich in remnants of Cambodia’s vandalism and put it in the national museum. But celebrated ancient past and wound¬ stupid cruelty even there, safekeeping is a relative ed by its grim recent history. concept; pieces regularly disappear On a recent visit, I lingered on has ravagedO the from its collection. the causeway that leads to the site, sculptures. The Khmer Rouge, who mur¬ taking a few moments to acquaint dered as many Cambodians as they myself with the vision of the ancient could during their heyday of builders. On one side of the cause¬ t=^=f destruction, have also left their ugly way, there is a row of 54 identically mark on Angkor Thom and other carved demons, each glowering ancient edifices. Members of Pol fiercely and so tall that even though Pot’s ragtag army used the figures they are kneeling, they still tower at on the causeway for target practice, least a foot over my head. Opposite waters of the world. Whoever pos¬ leaving gaping bullet holes. them, there is a row of 54 deities, sessed it gained power over water, Man’s malice aside, the famous stem but serene, and also identical the element essential to the pros¬ heat and humidity of Southeast Asia to one another. perous rice culture that provided also bear a share of the blame. So Well-matched in size and the economic foundation of the do well-intentioned but sloppy strength, the two sides are having a Khmer empire. repair jobs: replacement heads set tug of war over possession of a For a thousand years, this vision at haphazard angles; limbs and snake. Its stone body goes down of opposing forces fixed in struggle other body parts attached with thick one line of figures, then extends on over the source of life and wealth globs of adhesive that spill out of a metaphorical path that takes it to has guarded the entrance to Angkor their seams and onto the limestone the center of the city. There, the Thom. Grasping the full meaning of in ugly smears of a different color body loops around an actual tower the ancient vision requires more than the statuary. representing the center of the background than I had brought to Nevertheless, the vision of the world, and comes all the way back the scene, but I had no difficulty ancients stubbornly survives. The down the other side of figures. interpreting a set of signs that told 108 figures are still there, each side This serpent is indeed a prize of the half-century of greed, playing its part in the eternal tug of worth)’ of a cosmic struggle, for its neglect, vandalism, and stupid cru¬ war. Cambodia’s recent history sug¬ Khmer carvers believed the snake, elty that has ravaged the sculptures. gests that the demons have gained called a naga, held dominion of the Not one of the demons or deities control of the serpent. But as I sur¬ is whole. Heads, hands, arms, and veyed the scene, I found myself Johnnie Prather is a Washington ears have been hacked off and car¬ strangely hopeful that the deities writer and editor. The stamp is ried away; eyes and noses have been will regain the upper hand — not courtesy of the AAFSW Bookfair gouged out leaving abrupt and just for the sake of Angkor Thom “Stamp Comer.” jagged scars to gather lichen in the but for all of us. ■

60 FOREIGN SERVICE ] OU RN AL / O C T O B ER 2000 If you're about to be stationed

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