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2117 E Street, N.W. Washington, D.C. 20037 (800) 424-2859 (202) 861-8200 COVER: When making important decisions during the clutter of diplomatic work, the Foreign Service officer has had little guidance in seeing right from urong. Our story on doing “The Right Thing" begins on page 26.

Officers and Members of the Governing Board Two to Tango 18 DENNIS K. HAYS, President ANTHEA S. DE ROUVILLE, Vice U.S. and Argentine foreign policies have been out of step since President the last century. Author Joseph S. Tulchin argues that the DOUGLAS P. BROOME, Second Vice President United States, through mistakes and insensitivity, has re¬ IRVING A. WILLIAMSON JR., Secretary BROOKE HOLMES, Treasurer peatedly strengthened those Argentines hostile to the U.S. RALPH E. BARNETT, JUANITA L. NOFFLET, Lessons in Diplomacy 24 AID Representatives JAROSLAVJ. VERNER, LJSIA A former ambassador reflects on the role of diplomacy and Representative ADRIAN A. BASORA, diplomats in this less-than-perfect world. By Martin F. THOMAS J. MILLER, Herz. State Representatives L. DOUGLAS HECK, SPENCER KING, CHARLES S. WHITEHOUSE, The Right Thing 26 Retired Representatives Every day Foreign Service officers face difficult moral choices Staff ROBERT M. BEERS, Exec. Director concerning policies and personnel. Yet guidelines for making SUSAN HOLIK, General Counsel these decisions cannot be found in either academics or at the SABINE SISK, Members’ Interest! Grievance Representative State Department, says author James W. Spain. PAT GUILD, Executive Secretary CECIL B. SANNER, Membership and Circulation The Bombing Officer 32

Scholarship Programs FSO Fred Upson called the strikes for part of the largest air DAWN CUTHELL war in history — until his sense of duty collided with his conscience. By Jerome Doolittle. Foreign Service Journal Letters 2 Association News 20A Editorial Board Book Reviews 8 Foreign Service People 39 JOHN D. STEMPEL, Chairman DAVID WILSON, Vice Chairman Editorial 17 FRANCIS X. CUNNINGHAM MELINDA L. KIMBLE JAMES ROUSH TAIRA ST. JOHN JAROSLAV VERNER The Foreign Service Journal is the magazine of profes¬ Association is open to the professionals in foreign sionals in foreign affairs, published 11 times a year affairs overseas or in Washington, as well as to Staff by the American Foreign Service Association, a persons having an active interest in, or close associ¬ non-profit organization. Material appearing herein ation with, foreign affairs. Membership dues are: STEPHEN R. DUJACK, Editor represents the opinions of the writers and does not Active Members—Dues range from $52 to $117 FRANCES G. BURWELL, Associate necessarily represent the official views of the De¬ annually. Retired Active Members—Dues are $40 Editor partment of State, the U.S. Information Agency, annually for members with incomes over $20,000; SIMONE A. DECARO, Ed. Asst. the Agency for International Development, the $25 annually for less than $20,000. Associate United States Government as a whole, or AFSA. Members—Dues are $25 annually. All dues pay¬ While the Editorial Board is responsible for general ments include $7.50 allocation for the Journal and Advertising Representatives content, statements concerning the policy and ad¬ Association News, per AFSA Bylaws. JAMES C. SASMOR ASSOCIATES, ministration of AFSA as employee representative Subscription to the Journal: one year (11 issues), 521 Fifth Ave., Suite 1700, under the Foreign Service Act of 1980 on the edito¬ $10.00; two years, $18.00. For subscriptions go¬ rial page and in the Association News, and all ing abroad, except Canada, add $1.00 annually. New York, N.Y. 10017. communications relating to these, are the responsi¬ Second-class postage paid at Washington, D.C. (212) 683-3421 bility of the AFSA Governing Board. and at additional post office. JOSHUA B. POWERS, LTD., Microfilm copies of current as well as of back ©American Foreign Service Association, 1982. 46 Keyes House, Dolphin Sq., issues of the Foreign Service Journal are available 2101 E Street, N.W., Washington, D.C. through the University Microfilm Library Services, 20037. Telephone (202) 338-4045. Offices in London SW1. 01-834-8023/9. Ann Arbor, Michigan 48106, under a contract State Dept.: 632-8160/2548 International Representatives. signed October 30, 1967. October 1982. Volume 59, No. 9. ISSN Membership in the American Foreign Service 0015-7279. questions in my mind about his objectivity. AUTHORIZED EXPORTER GENERAL ELECTRIC DEAN E. FISCHER Former Assistant Secretary of State for -U.S.A.- Public Affairs and Department Spokesman LETTERS Washington, D.C.

GENERAL ELECTRONICS AP and UPI often do not see eye to eye, INC. Broken Silence and it shouldn’t come as much of a surprise that I dissent somewhat from UPI’s Jim The article by Jim Anderson in your July/ Anderson on his article, “Administration REFRIGERATORS • FREEZERS August issue, “Administration of Si¬ of Silence,” in the July/August issue. RANGES • MICROWAVE OVENS lence,” ordinarily should not be dignified Jim got off on the wrong foot by making AIR CONDITIONERS • DRYERS with a response. But because it savages the an unfair comparison between Dean Fi¬ WASHERS • SMALL APPLIANCES integrity of a dedicated staff of State De¬ scher and Nicholas Fenn, the gregarious AUDIO EQUIPMENT • TELEVISION partment press officers, I believe an excep¬ British Foreign Office spokesman who DISHWASHERS • TRANSFORMERS tion must be made. wowed the American press during his vis¬ Mr. Anderson’s accusation that the its to Washington during the Falkland Is¬ Available for All Electric press office frequently fails to provide ac¬ lands dispute. Currents/Cycles cess to information is absurd. As he is Yes, Fenn was good but he had a big aware, the press office is manned 24 hours advantage. He was dealing with a readily Immediate Shipping/Mailing a day, 365 days a year, and duty officers identifiable enemy, Argentina, which, as From our Local Warehouse respond to every reporter’s query in accor¬ Britain saw it, was engaged in unprovoked dance with their instructions. While those aggression against an integral part of Brit¬ We Can Also Furnish responses may not fully satisfy a reporter’s ish territory. His job was to be as unam¬ Replacement Parts for thirst for information, they do represent biguous as possible in promoting the idea Most Manufactures the informed judgments of U.S. policy¬ that Argentina was guilty of heinous makers as to the administration’s official aggression. public posture on a particular issue. Jim, how do you think Fenn would act SHOWROOM Similarly, the daily press briefing at the if he were in Fischer’s shoes? In addressing, General Electronics, Inc. State Department is primarily a forum for say, the West Beirut situation, do you 4513 Wisconsin Avenue, N.W. articulating and explaining U.S. foreign think Fenn would be out there every day at Washington, D.C. 20016 policy. After 18 months of verbal jousting noon giving chapter and verse on Phil Ha¬ Tel. (202) 362-8300 with the press, I am aware of the tempta¬ bib’s dealings with the Lebanese and the TWX 710-822-9450 Israelis? Not if he wanted to keep his job. GENELECINC WSH tion to go beyond the spokesman’s brief. But a disciplined, coherent foreign policy, Jim also complains about the lid being which Secretary Haig fought so hard to on in this administration and its “lack of achieve, precluded impromptu policy¬ candor.” Well, he has a short memory. making by his official spokesman. Mr. An¬ The Carter administration, perceived by some as being “open,” engaged in some of CO p derson’s complaint about the press oper¬ <5 o ation appears to reflect his own frustration the most secretive diplomacy in American § I that it in fact satisfied Secretary Haig’s history. As an example, the United States o © insistence on precision in the enunciation and China negotiated for a full six months © ~ of the president’s foreign policy. in 1978 on normalizing diplomatic rela¬ I find Mr. Anderson’s admission that he tions without so much as a clue from the DC O relies on “unhappy partisans who leak or administration that the talks were even .» S’ fabricate information” an extraordinary taking place. And the 1978 Camp David c o 5 self-indictment. To assert that Secretary peace talks, which lasted more than two I* Haig was inaccessible (the statement that weeks, were held amidst a total news < $ “information aboard his plane became blackout. CL O ^ mundane or even nonexistent” is patently I might add that the Camp David talks N 3 and the China negotiations are generally C c false) or that reporters were unable to con¬ © O duct background interviews with other perceived as the two biggest foreign policy CO o senior State Department officials is belied achievements of the Carter administration. to "o ~ 1c0 by a careful reading of such publications as The press doesn’t like being cut out but LU o> the New York Times, the Washington Post, sometimes there is no substitute for co CO CO CO 0) the Wall Street Journal, the Baltimore Sun, secrecy. LU © CO the Christian Science Monitor, and the Los Jim is right in suggesting that the pres¬ LU CC O 3 S Q Angeles Times. ence of TV cameras has had an inhibiting < Q 5l While Mr. Anderson is certainly enti¬ effect on State Department spokesmen. I, z < O LU tled to his opinion, his failure to interview too, miss the days when the spokesman, me or any other member of the press office for the sake of clarity, explained what was staff in the preparation of his article raises really happening on the condition that he

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FORD EXPORT DIVISION not be quoted by name. Jim and I agree GEORGE GEDDA Haig-Fischer regime at State. It should be those days were better. The real fault, State Department Correspondent explained and revealed, and if it runs into then, lies with the technological revolu¬ Associated Press opposition or skepticism, well, that is one tion, not with any particular “administra¬ Washington, D.C. of the tests which will determine if it is a tion of silence.” viable foreign policy. And let’s give this administration its I do “read carefully” the publications due credit. I defy Jim to come up with a Jim Anderson responds: Dean Fischer mentions, almost every day. single instance of a prior department I find it touching, but symptomatic, I also talk, almost daily, with the corre¬ spokesman who publicly acknowledged a when Dean Fischer says Alexander Haig spondents of those publications, one of White House—State Department rift. Bob represents “precision in the enunciation of whom is quoted by name in my article, McCloskey never did. Nor did Charles the president’s foreign policy. ” If Mr. Fi¬ among other people quoted and inter¬ Bray, George Vest, Bob Anderson, Bob scher really believes this—and I never viewed. That’s one reason I came to the Funseth, or Hodding Carter. I can imag¬ doubted his sincerity or honesty—he is conclusions I did. ine the reaction of those estimable gentle¬ probably unique in the English-speaking The correspondents of the publications men last fall when Dean Fischer, “Mr. world. As my article tried to point out, the he mentions came, as I did, to rely on Clampdown,” admitted there were guer¬ basic problem was a lack of coherently stat¬ outside sources more in the Haig-Fischer rillas in the White House who were out to ed foreign policy, a situation which left era than ever before. We all dutifully put get A1 Haig. And let’s give Haig himself Spokesman Fischer mostly speechless and in the telephone calls that were infrequent¬ his due credit. The whole city knew about useless. The further point I tried to ly answered at the State Department be¬ Haig’s lust for bureaucratic turf. All you make—and will now restate for the benefit cause of the perception under Alexander had to do was ask him. (Remember his of him and his successors—is that an assis¬ Haig that such contacts with the press public battle with George Bush over con¬ tant secretary of state who is spokesman could harm a Foreign Service career. trol of the crisis management team?) should be more than a mouthpiece. He Dean Fischer is wrong to draw any con¬ And I never found the information should not make foreign policy (although clusions about my objectivity because I did aboard Haig’s plane “mundane or non-ex¬ he has a responsibility to tell the secretary not quote him as part of my observations istent,” as Jim alleges. Jim wonders why of state which policies he believes are not about the state of information policy dur¬ Haig took so long to get the Palestinian salable to the American public). He should ing the past 18 months. It is true I did not autonomy talks going. Haig spelled it all be an influential intramural missionary, interview Dean specifically for my article. out on his next-to-last plane trip. I still spreading the gospel that a foreign policy, I did not need to. As he knows, we spoke have a transcript of his remarks. I’ll even once decided, is not something to be con¬ several times a day for the past year and a show it to you, Jim. cealed, as it frequently was during the half. My article is about the lack of infor¬ mation that resulted from those encoun¬ ters. There is nothing in his letter to sug¬ gest that he understands what was wrong. Keeping the press office open 24 hours a day is a waste if nothing comes of it. He confuses access with information. My article was not intended to criticize Association of American Foreign Service W>men the people who worked for him, and there is evidence that they, at least, understood this point, since three members of Mr. Fischer’s professional staff have come for¬ ward to express to me (at some risk to their BOOK FAIR careers) their agreement with the points made in the article. In my original manu¬ script, I ended by suggesting directly that The 22nd Annual BOOKFAIR of the Association of American Dean Fischer resign, an event which has Foreign Service Women will be open to the public from 10a.m.- since occurred. That suggestion was sof¬ 4p.m. tened, by agreement with me, by the Edi¬ torial Board of the Foreign Service Journal. I Saturday October 30 Thursday November 4 think now that softening the criticism of Sunday October 31 Friday November 5 Fischer was a mistake which confused the Monday November 1 Saturday November 6 issue somewhat, so let me restate what I CLOSED November 2 & 3 believe: the primary fault of the defective FAMILY NIGHT: Friday Oct. 29, 5-8:30p.m. public information policy at the State De¬ partment during the last 18 months lay, This wise owl reminds us that it is smart to shop at first, with Alexander Haig’s inability to the AAFSW Bookfair. More than 100,000 books articulate a foreign policy and, second, have been donated thus far to the fair. The Collec¬ with Dean Fischer’s failure to make that tor’s Comer promises many first editions, some rare point with Haig. illustrated books, and a variety of “oldies” that As to Mr. Gedda’s letter, I can only say: should please bibliophiles. Posters, stamps, and art work from around the world will also be on sale. UPI covers the State Department exact¬ ly as closely as the AP. We are very com¬ Proceeds benefit ASFA/AAFSW Scholarship Fund and Community Projects petitive. If the AP is satisfied with what V went on during the past 18 months— 4 FOREIGN SERVICE JOURNAL Recognizing the limits of the Claims Act, the government recommends private insurance too.

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Note: The insurance policies, not this advertisement, will form the contract between the insured and the insurance company. The policies contain limits, exclusions and limitations not listed here. which I don’t believe—then that says more sulates. The person selected to fill the posi¬ about the difference between the AP and tion of CLO coordinator was to be that UPI than it does about the State person who was best qualified to achieve Department. that purpose as delineated in the job de¬ There’s I am not opposed to secret diplomacy. I scription. Providing jobs for Foreign Ser¬ No Place never was. I am opposed to incoherence in vice spouses was definitely not one of the Like Home... foreign policy and that is what my article primary, nor even secondary, aims when But King Arthur’s Court i was about. these positions were created. make temporary living in One of the problems that led to this lack The FLO has never advocated preferen¬ Washington a lot more com¬ of coherence was the unpredictability of tial hire with regard to positions at our fortable—and inexpensive. King| Alexander Haig. One day he would call missions abroad and has indeed worked to Arthur's Court has big, clean Jack Anderson to confirm that there was a make all U.S. government non-career po¬ rooms and kitchenette units with| “guerrilla” in the White House, and in the sitions abroad open to dependents of any all the comforts of home: color next breath, he would instruct his spokes¬ agencies. Thus, to insist that the CLO TV, individual air conditioning man to say nothing further about it, ever. coordinator position only be made avail¬ and heating, telephone, and free,| Another day, as he did after his last able to Foreign Service spouses would be indoor parking. meeting with Andrei Gromyko in New inconsistent with the office’s stance on de¬ You're just 50 feet from the subway, so you can be downtown York, he disclosed to the press that the pendent employment. or at the airport or train station Soviets had launched a suspiciously war¬ Finally, it should be noted that the FLO in ten minutes. like series of missile tests. He then ordered has consistently refrained from becoming Best of all, our affordable rates his spokesman to say nothing else. As- involved in the local-post hiring of its make King Arthur’s Court a toundingly, Haig never thought to men¬ coordinator because we believed that the perfect place to stay—whether tion these missile launches to Gromyko, post itself knows best what it needs and is you’re here for a week, a montf but he did reveal them publicly only min¬ in a position to select the person who best —or longer. utes after the talks with Gromyko had fin¬ meets those needs. We developed guide¬ When in Washington, make ished. It was feast or famine with Alex¬ lines for the selection of the coordinator yourself at home—at King ander Haig, depending on his mood, but but, having done that, we stepped aside to Arthur's Court. it lacked any sense of purpose or let the individual posts select their Call us at consistency. coordinators. (703) 524-8850. I have spent more time during the past It might be interesting to note that King Arthur's Court 2250 Wilson Blvd. 13 years on the secretary’s plane than Mr. presently we have the following agency re¬ Arlington, VA 22201 Gedda and Mr. Fischer combined. I am presentation among salaried CLO aware of how valuable those encounters can coordinators: be. And I remain convinced that Haig, State 44 compared to his early days and to his pred¬ AID 16 ecessors, became uninformative when talk¬ USIA 8 ing to reporters aboard his plane. DOD 8 BUY Mr. Gedda may disagree with me about DEA 3 the past 18 months (we have spent about PC 3 equal amounts of time at the State Depart¬ FAS 2 SELL ment) but I believe that things were never worse in the 13 years that I have been JANET W. LLOYD around. Although we cannot turn the First Director, INVEST clock back, and some problems are prob¬ Family Liaison Office (1978—80) ably built in to the Age of Communica¬ tions, there are hopeful signs that the new A Query regime at State appears to be doing better. Ed Joyce I hope my article played a tiny part in that I am compiling a list of those University of Retired FSIO change. Virginia graduates who have served in the LICENSED IN D.C. Foreign Service and Department of State, and VIRGINIA Not Primarily for Spouses with current addresses of those still living. Would those readers who are graduates or In response to Patricia Bennett Hyde’s let¬ know of such graduates kindly send their ter in the July/August issue of the Journal, names and addresses to the undersigned? £MOUHT I would like to clarify some possible mis¬ As this request is related to an upcoming c r conceptions regarding the position of com¬ event, it is a matter of urgency. V£/?/ypA _ munity liaison office coordinator (formerly known at posts as family liaison office SMITH SIMPSON ’REALTY coordinator). 4124 Downing Street V-,N ^ m C When these positions were begun at Annandale, Virginia 22003 6257 Old Dominion Dr. posts at the same time the Family Liaison McLean, Va. 22101 Office opened in the department in 1978, Off: 821-8300 the main purpose was to improve the qual¬ The Foreign Service Journal welcomes letters Res: 821-2109 ity of life of U.S. government personnel to the editor. The Journal reserves the right to and dependents at our embassies and con¬ edit for space and clarity.

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jfroraij' {Jotnpang Insurance Division • 1701 Florida Ave., N.W. • Washington, D.C. 20009 • 202/797-5625 agree. And Walter Lippmann, a friend and neighbor on Woodley Road, did not agree and urged him to resign. On the Arab-Israeli conflict, Ball SPARE BOOK thought the partial settlement of Camp David was a serious mistake. The United States should have used its bargaining YOURSELF REVIEWS power with Israel and gone all out for a comprehensive settlement—still the right the cost of luxury course for American policy. without sacrificing A Few Causes Ball's views on these “causes” were sharply defined, with little shading. He comfort. THE PAST HAS ANOTHER PATTERN, by wanted solutions. He wanted the union of George W. Ball. WAV. Norton, 1982. Western Europe, and he brought great $19.95. pressure on the British—which the British We offer the finest blend of convenience resented—not to weaken the European and economy (suites with built-in kitch¬ ens, and central location — within easy Jean Monnet, one of George Ball’s heroes, Community. Ball was more interested in walking distance of the State Depart¬ told him: “You shouldn’t diffuse your en¬ changing the world than in adapting to it. ment, Federal Reserve, OPM, GSA, ergies, let so many things light up your He wanted a settlement in the Mideast, Metro . . .). Take it easy on yourself at imagination. You should find yourself a not a half-way house. Accomplishments single theme, a single cause, and devote were bound to fall short of these goals. your life to it.” It is evident from these For over thirty years, Ball has been ac¬ memoirs that Ball, energetic and ambi¬ tive in the field of foreign policy. Yet until tious, was not content with a single theme the final chapter of these memoirs, Ball has or a single cause. He had several. But he had little to say about policy concerning did not diffuse his energies. He focused the Soviet Union, China, or nuclear weap¬ them—on Western European integration ons, even though these issues were chang¬ during the late 1940s and 1950s, on Viet¬ ing the shape of the world. The reader is 2201 Virginia Avenue, N.W. nam during the 1960s, and more recently left to wonder: where was George Ball? Washington, DC 20037 on the Arab-Israeli conflict. 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OCTOBER 1982 9 son of Arthur Nicolson, the distinguished making, 1919, in which he drew upon his Milne has wisely chosen to rely heavily diplomat who occupied the key position of experience as a member of the British dele¬ upon Nicolson’s letters and diaries, which permanent secretary of the British Foreign gation to relate the history of the Versailles were published posthumously by his son Office from 1910—16, the younger Nicol¬ peace conference. His political career was Nigel. Because Nicolson had already em¬ son entered the diplomatic service in 1909 somewhat less successful than his literary barked upon a part-time literary career pri¬ after graduating from Oxford. Following but nonetheless included service as a mem¬ or to his resignation from the diplomatic assignments to various foreign posts in¬ ber of Parliament for the National Labour corps in 1929, and because his wife, Vic¬ cluding that of counselor to the legation in Party from 1935—45 and as parliamentary toria Sackville-West, was a well-known Teheran from 1925—27 and to the Berlin secretary to the Ministry of Information in author in her own right, many famous lit¬ embassy from 1927—29, Nicolson re¬ Winston Churchill’s wartime coalition erary figures, from Virginia Woolf to Sin¬ signed to become a columnist for Lord government. clair Lewis, are encountered on the pages Beaverbrook’s Evening Standard. From This book covers only the period of of this book. The end result is a potpourri then until his death in 1963, he wrote Nicolson’s life through his resignation of events political, diplomatic, and liter¬ numerous books, including a highly from the diplomatic service. Additional ary rather than a purely diplomatic biogra¬ praised biography of his father and Peace¬ volumes are planned by the author. Lees- phy. Nonetheless, there are numerous sec¬ tions of interest to the specialist in international relations. We see Nicolson joining the foreign service in 1910 to work primarily as a file clerk and typist—secre¬ taries were in short supply and the novice diplomats were obliged to fill in for them, with no pay at all for the first two years of service. Subsequently, as charge in Berlin in 1928, Nicolson displayed unusual per¬ spicacity in warning the Foreign Office that Adolf Hitler and the Nazis constitut¬ ed a potentially serious threat to Great Britain. In sum, Harold Nicolson is recommend¬ ed for those interested in diplomatic histo¬ ry as well as in British social and literary history of the 1920s and ’30s. To judge from this first volume, the complete biog¬ raphy of Nicolson planned by Lees-Milne will be a significant contribution. ■ —BENSON L. GRAYSON Power Struggle l|!§igl 1 CHINA: A Political History, 1917—1980, by iliiliS Richard C. Thornton. Westview Press, 1982. A Visit to District Moving and Storage Will Show $32.50 {cloth), $15.00 {paper) You Just How We Pack, Store and Forward Your As indicated in a prefatory note, this book Possessions—Safely, Securely and Quickly. is an updated and expanded version of the If you were about to buy a new car, you’ll appreciate the way we protect author’s China: The Struggle for Power, you’d certainly want to visit a dealer’s your belongings with full security 1917—1972. The original version, which showroom first. And if you plan to fencing, a central station burglar makes up about three-quarters of this one, move or put your possessions in alarm system, and a dry sprinkler was more aptly titled. The present title storage, you might want to visit the system. Our people know how to leads one to assume that the book would people who will be handling your keep your possessions clean, safe and say something about the Kuomintang and dry, and how to forward them to any valuable belongings. the Chinese government it dominated for You’re welcome to make an ap¬ place on earth. two decades or more. But these important pointment to visit District Moving Seeing is believing. If you’d like to subjects are covered only in so far as they and Storage any time, and you’ll see see just how District Moving and for yourself why foreign service Storage can eliminate the headaches relate to the Kuomintang’s fight against people choose us over all the others. from moving and storage, simply call the Communists. This book is not so much You’ll see that we have more than us at the number below. a political history of China as it is a history 72,000 square feet of space in a new A , f of the Chinese Communist party’s struggle warehouse facility. You’ll see how we to achieve national power and of the strug¬ pack even delicate or large materials iHIIINY.T gles of individuals and factions to achieve for safe storage and shipping, and DISTRICT MOVING N STORAGE, INC. power within the party. On these subjects how our inventory location system 3850 Penn Belt Place the book is very informative. means we can locate your Forestville, Maryland 20747 The book is also provocative, attacking possessions immediately. We believe 301/420-3300 much of the conventional wisdom in the West about how the Chinese Communists

10 FOREIGN SERVICE JOURNAL came to power. For example, the author flow charts for each country, is a survey of others practicing or retired civil servants assigns decisive roles in the Communists' the histories, experiences, and present and diplomats. This variety, as well as the triumph to Soviet military aid to them and composition and operations of the foreign often fragmentary quality of documentary inadequate U.S. aid to the Nationalists. affairs ministries of the superpowers, all material, robs this first attempt at a com¬ While conventional wisdom may err in European Community members, and such parative presentation of much of its com¬ underestimating the importance of such vital nerve centers as Tokyo, Beijing, and parative character. Nevertheless, it is an external factors, Thornton seems to err in plucky Helsinki. Latin American coun¬ extremely valuable compendium of history the opposite direction by failing to give tries have been omitted for lack of space. and description. due weight to internal political and eco¬ Steiner’s choice of countries was necessar¬ Misery, of course, loves company and so nomic factors, which he hardly discusses at ily influenced by the availability of experts it is with problems other ministries share all. with access to required material who were with the State Department. Those of us The new part of the book covers the willing to produce concise chapters. The who groan over the problems of lateral en¬ period since 1972. It presents a fairly de¬ contributors represent different disciplines try, for instance, will find comfort from tailed account of the struggle for power and backgrounds, some being historians, what the French have had to go through— within the party between Mao and the so- others archivists and librarians, and still successive waves of lateral admissions from called Gang of Four, on the one hand, and what eventually became Deng Xiaoping’s faction, on the other. With the death of Mao in September 1976, and the conse¬ quent quick downfall of the Gang of Four, vM/ the power struggle shifted to one between Goharoyal GOHARJ Deng and Hua Guofeng, Mao’s designated ■INTERNATIONAL, INC. heir. For several years after Mao’s death, Hua was both premier and party chair¬ man, but not even Mao’s endorsement could preserve him from Deng’s superior EXPORTERS TO THE WORLD! political maneuvering, and he ultimately lost both positions. Now Deng and his Let the company with international faction dominate both party and government. experience show you the widest se¬ Thornton concludes his study with some rather pessimistic speculation about lection of 110 and 220-volt appli¬ China’s future. He believes that, despite the Deng leadership’s commitment to ances, televisions, stereo systems, modernization, “the inescapable develop¬ ment future, no matter what course any video cassette recorders, radios, Chinese leadership adopts, is for continued slippage relative to the Soviet Union, Ja¬ vacuum cleaners, refrigerators, pan, and the United States.’’ On the other hand, the seeds of significant systemic ranges, air conditioners, calculators, change are perhaps being sown by the edu¬ cation of the new elite needed to carry out clocks, and many other items for modernization. —EDWIN W. MARTIN Foreign Ministries Compared

THE TIMES SURVEY OF FOREIGN MINISTRIES OF THE WORLD, edited by Zara Steiner. Times Books, Meckler Publishing, 1982. $87.50. Please send me the catalogs listed below and put me on Diplomacy reaches far back into the misty your mailing list millenia of pre-history, but ministries of Check voltage □ 110 volt □ 220 volt foreign affairs are of relatively recent vin¬ Name □ Television tage. Few are as old as the 16th and 17th centuries. Still, centuries being what they Address □ VCR are, it is astonishing that we have had to □ Stereo wait until now for a first attempt at a com¬ [] Small appliances parative study of these government agen¬ cies concerned with the conduct of foreign Goharoyal International Inc., 5801 Seminary Rd.. Falls Church. VA 22041 relations. (703) 998-6862 • International Cable: Goharoyal U.S.A. This portly volume of over 600 pages, GOHAROYAL - THE COMPANY WITH INTERNATIONAL EXPERIENCE! with bibliographies and organizational

OCTOBER 1982 11 the wartime government-in-exiie, the re¬ U.S. chapter is as illuminating as our open cate and train those "China hands” born in sistance movement, and the old Ministry society permits, but it unhappily illus¬ China in the ways and disciplines of the of France beyond the Seas, as well as from trates the fact that while our society is Washington foreign affairs establishment the civil administrations of Morocco and open, it is far from simple and its institu¬ which, along with weak-kneed colleagues Tunisia. The Soviet Union’s ministry, one tions harbor a myriad of complexities. The and a China Lobby mentality in the de¬ is reminded, is dogged by the lateral entry chapter fails to mention the department’s partment, made them excruciatingly vul¬ of the secret police and periodic flooding post-war planning, which did much to nerable to McCarthyism and the Stanley from the party apparatus when places have counteract its decline in war-time effec¬ Flornbecks; and the landmark introduc¬ to be found for deserving opponents of the tiveness; the creation of the Foreign Ser¬ tion of machinery and procedures for the victorious party leader. The chapter on the vice Auxiliary, which offset the diminish- redress of grievances and expression of dis¬ Soviet Union, written by Professor Teddy ment of the Service’s war-time resources; sent. The basic issue of education and J. Uldricks of the University of North or the labor attache program, which gener¬ training of foreign affairs officers is ig¬ Carolina (Asheville), is as illuminating as ated a quiet, democratizing revolution in nored. The authors accept the canard start¬ that secretive society permits. both the Service and department. Nor does ed by Senator Henry Jackson and his staff One wishes it could be said that the it discuss the department’s failure to edu¬ of the ineffectiveness of the Eisenhower in¬ novations of a planning board and oper¬ ations coordinating board within the Na¬ tional Security Council system, which, in fact, created a magnificent opportunity for the department that it failed to see, much less to grasp. Nor is it illuminating to say that the department’s politico-military of¬ fice merely “replicates” the Defense De¬ partment’s office of international security affairs. If the problems of women and affir¬ mative action generally are discussed, I missed it. Underlying much of this, is the failure to recognize the turning point in the department’s evolution which occurred at the end of the Spanish-American War when President McKinley, after weighing his options, assigned the administration of the newly acquired islands to the War De¬ partment rather than to State. This was a decisive factor in the department’s outlook and development from that time on. A quiet revolution is taking place in the study of international politics and Zara Steiner, an American who is a fellow and the director of studies in modern history at New Hall, Cambridge, has joined it with a notable contribution. Every professional is in her debt. It carries forward the compila¬ tions of principles and precepts by the fa¬ thers of international law into the field of operations by which governments seek to reconcile national with international inter¬ ests. What we need now is to get started on comparative studies of diplomacy. —SMITH SIMPSON Scholarly Synthesis

PEACE AGAINST WAR: The Ecology of Inter¬ national Violence, by Francis A. Beer. W. H. Freeman and Co., 1981.

Though probably written for the academic market, this book is an excellent review and synthesis of scholarly work in interna¬ tional relations. Very well written, it is a particularly good volume for Foreign Ser¬ vice officers who wish to keep up to date with the useful aspects of academic output.

12 FOREIGN SERVICE JOURNAL One other element commends this book to professional diplomats: Beer has gone beyond description, explanation, and syn¬ thesis and included predictive and pre¬ scriptive material. His concluding chap¬ ter, “Choice,” seems almost designed for the statesman and diplomat who has much What do too little time for philosophizing in a too- rapidly changing world. The author flags a number of problems coming down the road in the next five years—the likelihood of greater violence ike. JFK in the Third World, heightened terrorist threats arising from the logic of modern technology, and the increasing complexity of attempting to limit war. Readers may disagree with his solutions (he seems a bit & Nixon too much of an optimist regarding man’s capacity to control man), but they will have difficulty ignoring his warnings. —JOHN D. STEMPEL have in Biased Biography

RICKOVER, by Norman Polmar and Thomas B. Allen. Simon and Schuster, 1982. $20.75. common?

In the 744 pages of this biography of Ad¬ miral Hyman G. Rickover, Polmar and Allen rely heavily upon the recollections of They were moved by more than two hundred individuals. Yet, a review of those listed in the appendixes reveals few who are intimately familiar FIDELITY STORAGE with Rickover’s engineering work and even fewer who have been closely associat¬ ed with him during the past fifteen to From presidents to outside of the Beltway, with twenty years. Many anecdotes and unsub¬ plenipotentiaries, super-secure vault storage for stantiated allegations, often from anony¬ Washingtonians choose Fidelity your silver and other valuables. mous sources, are included even though Storage, the company with We are the only State the authors admit they cannot vouch for more than 75 years of Department contractor with their accuracy. Frequently these stories are experience. Fidelity is one of both a quality control program used to support opinions unfavorable to the area’s largest moving and and fulltime inspector to Rickover. Since the admiral and most of storage companies, with six ensure the highest standards. his family, friends, and close associates are not among those who contributed to the locations throughout the metro book, in many instances the reader is not area—from the District to We have moved Patton, presented with a balanced account. A few Virginia to Maryland. MacArthur and Doolittle. examples will suffice. Fidelity’s warehouses are the From generals to general The authors’ style presents overall an largest and most advanced service officers, join a moving unfavorable image of Rickover. As a Con¬ containerized facilities inside or crowd. gressional witness, he is described as “the slight, acid-tongued man in the baggy suit” with “oversized collar, nondescript tie.” Such phrases reflect a bias and do not accurately picture the neat, businesslike appearance he maintained. In a span of 85 pages early in the book, words referring to Jews such as Jew, Jew¬ ish, anti-Semitic, etc., appear almost one hundred times, some of them included in irrelevant material. For example, the au¬ thors describe the Jewish ghetto on Max¬ Inbound or Outbound, Storage or Air Freight, call Fidelity Storage well Street in Chicago at the turn of the (703) 971-5300 • PO Box 10257, Alexandria, Va. 22310 century only to note later that the Rick-

OCTOBER 1982 13 overs did not live there. Further, much of relied upon as factual, whether favorable or the discussion of Rickover’s years at the unfavorable, nor will he or she gain a real LE SPORTSAC Naval Academy is not about him but appreciation of Rickover’s actual accom¬ CARRY-ON. about the unpleasant experiences of a Jew¬ plishments. As a biography it falls far ish classmate. This appears to be an at¬ short of the accepted standards of clarity, tempt to portray Rickover as believing he objectivity, and impartiality. The Rick¬ was a victim of anti-Semitism, a supposi¬ over described in this book is not the Rick¬ tion this reviewer has heard him reject over this reviewer has known well for more many times. than twenty-five years. The authors attempt to describe the key —DAVID T. LEIGHTON events in Rickover’s life, but the book is flawed by many inaccurate and misleading Coordinating Arms Sales NO WEIGHTING. statements which undermine its credibil¬ ity. For example, they cite Rickover's con¬ THE GLOBAL POLITICS OF ARMS SALES, by gressional testimony of May 1, 1967, as Andrew J. Pierre. Council on Foreign Rela¬ HARBOR PLACE 201 E.PRATT ST. BALTIMORE, MD. 21202 (301) 685 2555 causing “almost a decade” of delay in the tions, Princeton University Press, 1982. $20. navy’s gas-turbine propulsion program “until, in the early 1970s, Admiral The dramatic escalation in the use of con¬ [Elmo] Zumwalt as Chief of Naval Oper¬ ventional arms sales as instruments of ations pushed gas turbines for new classes Western and Soviet foreign policies has by MAINE to MEXICO of destroyers, frigates, and missile craft.” now become a familiar phenomenon to ob¬ rent a Cottage, Condo. Chalet or Chateau However, study of the cited references servers of international politics. Yet, too HideavOa^s Guide makes clear, although the authors do not, often advocacy or ideological posturing Presents the very best selection and infor¬ mation on private vacation homes for that the issue in 1966 and 1967 was take the place of objective consideration of rent or exchange throughout the U S. whether guided missile ships built to es¬ the concrete political, economic, and mili¬ CaribbCaribbean and elsewhere Detailed pro files of properties, photographs and,d cort nuclear carriers should be nuclear tary factors that drive the continuing ex¬ owner/manager contact, informativelative 1 powered—not whether development pansion of the arms trade. articles and advisory service. For the *’discerning, by subscription Free brochure. should continue on gas turbines for naval Andrew Pierre’s treatment of this sub¬ P.O.B 1475FS Concord. MA 01742 (617)369-0252 ships. Congress agreed with Rickover that ject, however, is neither a wholesale con¬ the two missile ships proposed by the navy demnation of arms sales that ignores geo¬ in 1967 should be nuclear powered and political realities nor an apologia for the forced a major confrontation with the Pen¬ continued use of this policy instrument. tagon—a confrontation that is not de¬ Pierre rightly characterizes the problem as scribed in this book. Although the authors one of management: although arms sales FOR PEOPLE WHO ARE begin with a description of Secretary of the have become entrenched as a critical in¬ INTERESTED IN Navy Paul Nitze’s attempt to fire Rickover strument of global diplomacy, there is in mid-1967 they do not indicate that growing recognition of the risks the un¬ ANOTHER LANGUAGE. Rickover’s effort to gain congressional ap¬ controlled diffusion of modern arms may proval for nuclear propulsion in guided pose to the political and economic stability missile ships to accompany the nuclear car¬ upon which the Western world depends. Are you interested in speaking riers was behind this attempt. One major In the absence of institutional mechanisms Arabic, English, French, German, thesis of the book is that Rickover created to coordinate arms transfers so that they Russian, Spanish, or other languages? a myth by claiming that he encountered advance rather than impede the long-term Write for our free catalogue of opposition to nuclear power in the navy. interests of the West, competition among materials in the language of your Yet, he came close to being fired because suppliers for arms markets weakens bonds choice. Aladdin International, of his fight for nuclear power over the ob¬ among allies and undercuts prospects for a 1327K Rockville Pike, Rockville, jections of the secretary of the navy. coherent multinational political strategy. Maryland 20852; 340-8988. Meanwhile, contrary to the authors’ al¬ Pierre’s insights into the potential risks legations, development of gas turbines for NATO diplomacy of uncoordinated arms continued uninterrupted. The first gas- sales gain special credence from recent turbine powered ship sponsored by the events. A dramatic illustration was pro¬ The Foreign Service navy put to sea less than eight months after vided by the scenes of British troops bat¬ Rickover’s May 1, 1967, testimony. The tling Argentine forces equipped with Journal Needs first three ships of the gas-turbine powered French, American, and, most humiliat¬ Spruance class were in the budget submit¬ ingly, British armaments in the Falkland Book Reviewers ted to Congress in January 1969. These Islands. Pierre’s assertion that the West events, not reported by the authors, oc¬ needs to develop “codes of conduct” to curred during Admiral Thomas H. assure that arms sales are consistent with Moorer’s tour as CNO (August 1967 to the foreign policy goals of the alliance— July 1970), not during Admiral Zum- rather than with the short-term political or walt’s subsequent tour. economic advantages of individual coun¬ Interested? Many of the statements in the book that tries—is particularly prescient in this are favorable to Rickover seem grudgingly regard. Call 338-4045 made. However, the general reader has no Although the most original and pro¬ way to identify which information can be vocative aspects of Pierre’s book are the

14 FOREIGN SERVICE JOURNAL sections on options and incentives for mul¬ tinational management of arms sales, his analysis of the dynamics of arms sales is sophisticated and comprehensive. Pierre’s understanding of the bureaucratic and in¬ stitutional factors surrounding arms trans¬ fer decisions, especially in Western FLORIDA LIVING Europe, should make these sections inter¬ esting to the policy community. AT ITS FINEST... The section that will receive the most critical attention is likely to be that of Pierre’s recommendations for multination¬ Beacon Country al consultations and negotiations. Pierre ON FLORIDA’S SUNCOAST does not ignore the East-West dimension but recognizes the threat posed by the con¬ Recreation. Natural Beauty. Convenience. All the things you want tinuing rise of Soviet arms exports. Nor or need are part of home when you live in a Beacon Community. does he overlook the problems posed by Condominiums, Single-Family Homes and Villas are carefully designed, quality built and affordably priced for the demanding the escalating demand for arms among homeowner. And Beacon Homes offers a variety of Models and Third World countries. But he empha¬ financial packages to suit practically every income. sizes, as the most urgent priority, the mul¬ Send for your brochure and see why over 8500 families in the tilateral regulation of arms transfers by past decade have made Beacon Country their home. U.S. and Western European producers. To this end, one of the more interesting pro¬ Beacon Homes, Inc. posals (and one that is likely to be highly A name worthy of your trust contentious) is for what in effect would be Marketing Dept., Beacon Homes, Inc., 2494 Bayshore Blvd. ^S. the cartelization of the arms market. Mar¬ P.O. Box 610, Dunedin. FI. 33528 kets would be divided among Western Please send me literature on Homes I have checked below. suppliers according to principles of com¬ Name parative advantage in weapons production Address or by geographical region. Pierre argues City/State/Zip that this would permit export-dependent I am interested in □ Condominium □ Single Family Home □ Villa countries to have assured markets while reducing the duplication of production that imposes economic burdens on many governments, undermines military effi¬ ciency in NATO, and requires competitive FREE SQUASH exports that may exceed foreign policy in¬ terests. One cannot disagree with Pierre’s fundamental premise that greater coordi¬ MEMBERSHIPS FOR nation among NATO allies in this and other areas is critically urgent. But the political AFSA MEMBERS feasibility of such an ambitious agree¬ ment, especially in light of the continuing difficulties of gaining alliance consensus on issues far less central to national sover¬ eignty, is at least questionable. —JANNE E. NOLAN Gray’s Bomb

STRATEGIC STUDIES: A Critical Assessment, by Colin S. Gray. Greenwood Press, 1982. AFSA members can now play squash at the Capitol Hill $27.50. Squash Club without paying the $60 membership fee. By It is always sad to see a bad book on a good simply showing your AFSA membership card, you will pay subject. Colin Gray has set out to analyze only the court fees at Capitol Hill's most luxurious fitness the tradecraft of strategic studies, by facility. Located only a block from the Capitol South which he means the analysis of nuclear war and nuclear weapons. Gray is a well- Metro stop, the Club also offers free use of changing known and well-regarded strategist of rooms, showers, and saunas before and after playing hawkish bent. In this book he turns from squash. (There is a $10 annual processing fee.] expounding his policy views to analyzing Capitol Hill Squash Club the contribution that strategists such as himself make to peace and security. It is 214 D Street, S.E. • (202) 547-2255 his attempt to answer those who would

OCTOBER 1982 15 have us believe that all would be well in by authors of the left, it would be refresh¬ of the systemic, radical critic of strategic the world if it were not for the distorted ing to see a prominent conservative strate¬ studies are likely never to be salient among abstractions of nuclear strategists. gist have a go at them. the agenda of items the official has to con¬ tend with each day. . . . The strategic stud¬ Gray poses and responds to no less than Instead, Gray dismisses the first with a ies community, in its collective wisdom, 19 “charges” against the intellectual and trivial—one must really say irrelevant— deems such approaches to security problems moral integrity, cultural objectivity, and discursus on the theme that “the world of irrelevant to the current international practical success of strategic studies. To international politics is a jungle wherein system. his credit, there are few straw men among the strong and the ruthless devour the the charges, and some, such as “strategists weak.” As for the second charge, we learn Other passages are downright unfathoma¬ are fascinated by violence,” are brutally early that it can be disposed of “perempto¬ ble: “This author believes that it would be direct. The problem is that Gray refuses to rily.” Nuclear weapons exist, cannot be scarcely more sensible for the United treat them seriously—to breathe real life wished away, and must be dealt with; ergo, States to adhere to an incredible, and ulti¬ and subtlety into them. He takes them on there’s nothing wrong in principle with nu¬ mately suicidal, strategic doctrine and in the extreme form in which he poses clear strategizing, though it is of course in posture than it would be to adhere strictly them, pitching into a fruitless, tenden¬ practice that the question becomes interest¬ to a conventional military policy.” What tious duel with himself. ing. If the issue is so thin that it can be does this sentence mean? Most of Gray’s charges can be distilled dismissed peremptorily, why bring it up It is difficult to see why anyone but a into two, which need to be restated in a at all, much less write a book about it? reviewer would finish this book once start¬ reasonable form. The first is that strate¬ Through page after page, Gray tilts at ed. Whom can its author have meant it gists give too much attention—not always windmills in this rhetorical tone. One does for? Its civics-text moralizing and debat¬ perhaps, but sometimes—to armed force not have to be a “radical critic” to feel ing-society tone are too thin for an audi¬ as a solution to world problems. Thus oc¬ cheated by arguments as wide of the mark ence of his peers. Sometimes he seems to cupied, they fail to explore alternatives to as this; be addressing the post-Vietnam under¬ force. The second is that strategy and strat¬ graduate strategist trying to cope with The radical critics of strategists really have egists—not always, just sometimes—af¬ peer pressure not to “sell out." Frequent nothing to say to policymakers that is at all references to “the author” suggest a profes¬ fect peace and security in a way that is not pertinent to their [i.e., the policymakers’] sional apologia. Hard to tell. In any event, positive or neutral, but downright nega¬ problems as they perceive them. Officials in tive. These two charges are old and hoary, the Defense and State Departments ... are I cannot think of anyone who would profit but they could still provide fertile ground working 12-hour days, by and large, cop¬ from reading it, though I picked it up for a strategist’s reflections. And, since ing, or attempting to cope, with problems with high hopes. these claims appear most often in writings as they arise. The burning issues in the eyes —ASHTON CARTER Moving with... have Foreign Service AMERICAN We SECURITY For the Foreign Service STORAGE 11 Hudson Street Annapolis. MD 21401 8359 Ardmore'Ardwlck Road Landover. MD 20785 Whether you’re looking for just one car or an entire fleet, LAND/SEA/AIR a purchase from H. B. Lantzsch links you to a dealer who has served the diplomatic community for 23 years. H. B. Overseas specialists in . . . Lantzsch—Washington’s only exclusive Volkswagen Antiques • Automobiles dealership—offers a diplomatic purchase discount and Containerized Storage speedy worldwide delivery. When you’re in Washington, Fine Art • Insurance stop in at our convenient Fairfax showroom, close to State Door to Door Shipping Department and Foreign Service Institute offices, and contact our Diplomatic Sales Representative, or write us For your free Moving Overseas from your overseas post. or Moving to U.S. Guide, call our overseas expert. . .

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16 FOREIGN SERVICE JOURNAL EDITORIAL

‘A Truly Sterling Achievement’ ‘A Truly Professional Performance’ Ambassador Philip Habib’s latest triumph The successful evacuation of Beirut result¬ comes as no surprise to those of us who have ed, in large part, from the extraordinary followed his career over the years. The nego¬ diplomatic efforts of Ambassador Philip Ha¬ tiated agreement leading to the evacuation bib. However, without the strong support of the Palestine Liberation Organization of numerous career members of the Foreign from Lebanon represents a towering tribute Service — many of whom have worked be¬ to his force of will in overcoming all obsta¬ hind the scenes without recognition — Ha¬ cles. Once again he has brought credit not bib’s efforts may not have succeeded. Special only to himself, but to the entire career recognition is due in particular to Deputy Foreign Service. Assistant Secretary Morris Draper, who has For three long months Ambassador Ha¬ been Habib’s right hand and chief of staff bib contended with the passions and person¬ since early 1981. alities of the Mideast — not to mention a Draper’s extraordinary stamina, excep¬ travel schedule which left younger aides tional judgment, unparalleled area exper¬ begging for mercy. A less determined man tise, and meticulous attention to detail have might have given up, a less experienced complemented Habib’s efforts at every stage man might have made a catastrophic blun¬ in the delicate negotiations. der, and a man who did not enjoy the com¬ Also deserving of special recognition have plete confidence of his president might nev¬ been our career ambassadors in the field: er have been given the authority to make the Robert Dillon in Beirut, Samuel Lewis in tough decisions. Fortunately for all, the Tel Aviv, Robert Paganelli in Damascus, right man was given the job. and Richard Murphy in Jiddah. These am¬ Last January, AFSA organized an initia¬ bassadors and their able staffs solved seem¬ tive to nominate Ambassador Habib, a for¬ ingly insurmountable problems on a daily mer president of the Association, for the basis. Our embassies in Nicosia, Athens, Nobel Prize for Peace. Chief Justice Warren London, and our mission in Geneva also Burger, Senators Howard Baker and Robert played key roles during the more delicate Byrd, and House Minority Leader Robert stages of the evacuation. Michel served as sponsors of this effort. Finally, the men and women of the For¬ More recently, Senator Charles Percy has eign Service, both overseas and in Washing¬ also nominated Ambassador Habib. We ton, whose numbers are too great to recog¬ wholeheartly endorse these nominations and nize here individually, performed in the believe that rarely has there been a candidate highest tradition of Foreign Service so worthy of this honor. President Reagan’s excellence. D summation of Ambassador Habib’s effort is right on target: this was “a truly sterling achievement.” Ed

OCTOBER 1982 17 Two to Tango

From Independence to the Falklands Crisis, Argentine and U.S. Foreign Policies Have Been Out of Step

By JOSEPH S. TULCHIN

Relations between the United Carter and concerned much more than apart from U.S. desires or objectives. States and Argentina are at a human rights. They go back deep into In this regard, and because U.S.- low ebb. Argentina’s loss of the historical memory of both coun¬ Argentine relations during the Carter the war with Britain over control of the tries and are part of an oft-repeated administration hinged on issues of mo¬ Malvinas or Falkland Islands has left a pattern of misunderstanding. rality, especially the sanctity of human residue of bitterness that will not easily Part of that pattern is that U.S. rights, it is instructive to note that dissipate. Whatever the intrinsic logic policies have frequently served to un¬ Argentine conceptions of moral behav¬ of U.S. policy in first offering to medi¬ dermine the groups in Argentina most ior by nation-states have been remark¬ ate between the two powers and then sympathetic to the United States, ably congruent with the codes of con¬ declaring unequivocal support for thereby strengthening relatively hos¬ duct followed by the United States Britain while harshly criticizing Ar¬ tile elements and leading ultimately to since Woodrow Wilson’s presidency. gentina, the volte face was seen in Bue¬ results counter to those intended. If the Argentines have applied the nos Aires as the cruelest betrayal. Ar¬ Similarly, Argentine policymakers in codes differently, it was because their gentine officials had believed the this century have been slow to appreci¬ perceptions of the world were not the United States would support their ef¬ ate domestic forces in the United same and their national interests often forts to reclaim the Malvinas. Only States or the European orientation of did not coincide with ours. For exam¬ such support, they believed, would U.S. foreign policy. More recently, ple, in 1918, an Argentine naval vessel justify their willingness to send Ar¬ the Argentine government has tended stopped briefly at the port of Santo gentine troops to serve U.S. interests to misunderstand American bureau¬ Domingo. U.S. marines were occupy¬ in Central America. cratic politics and mistake as policy ing the Dominican Republic at the During the Falklands incident, the statements by individuals in the time and the offices of the Dominican U.S. and Argentine governments each government. government were filled by U.S. mili¬ misread the intentions of the other; tary personnel. Yet the Argentine ves¬ each misread the signals they received; Seeing Xenophobia sel saluted the Dominican flag, not the and each displayed remarkable insensi¬ Most American studies of Argentine U.S. flag. In another episode, Argen¬ tivity to the deep-seated traditions and foreign policy have characterized Ar¬ tine diplomats protested their exclu¬ principles guiding the foreign policy gentina’s behavior as individualistic or sion from the Paris Peace Conference at of the other. Ironically, this misunder¬ isolationist. When describing Argen¬ the end of World War I. Like the other standing is the product of the Reagan tina’s participation in hemispheric af¬ neutrals, Argentina had little part in administration’s efforts to befriend the fairs, the terms are often more pejora¬ the conference, but its diplomats made Argentine government and eliminate tive: idiosyncratic or obstructionist. known their view that the League of the tension that existed between the Some authors have implied that Ar¬ Nations should provide all countries two countries during the Carter ad¬ gentine governments deliberately and with an equal voice. At the first meet¬ ministration. What Reagan failed to perversely block all efforts at hemi¬ ing of the League Assembly in Geneva realize was that tensions between the spheric cooperation because of their in 1921, the Argentine representative two countries did not begin with jealous competition with the United proposed a motion to abolish the privi¬ States for leadership in Latin America leges of the big four and admit the Joseph S. Tulchin is professor of history at or because of some more generalized vanquished nations. When the motion the University of North Carolina (Chapel xenophobia. This view, however, does was tabled, the Argentine ambassador Hill) and former editor of the Latin not allow for the existence or expres¬ walked out. Were these gestures anti- American Research Review. sion of Argentine national interests American or quixotic?

18 FOREIGN SERVICE JOURNAL Continuing the pattern of misunderstanding between U.S. and Argentine leaders, former president Leopoldo F. Galtieri (right) and other members of the ruling junta expected U.S. support during the Falkland Islands crisis and were stung when the United States backed Great Britain.

Furthermore, the view of Argentine uct was devoted to satisfying the needs soon would surpass the extraordinary policy as idiosyncratic or obstruction¬ of British investors and consumers. levels of American material accom¬ ist ignores the possibility that basic It might be an exaggeration to say plishment, and do so while preserving principles of Argentine foreign policy that Argentine policymakers sought to the higher values of European civiliza¬ are founded upon the national experi¬ create the conditions of structural de¬ tion. But this reluctance to make com¬ ence of the 19th century, when the pendence upon Great Britain during mitments to the Pan American move¬ United States was only a minor factor this period of growth; yet it is true that ment did not prevent Argentina from in Argentina’s relations with the the principal objective of the govern¬ assuming an active role among the world. Following its war of independ¬ ment was to facilitate the expansion of countries of the western hemisphere. ence from Spain (1810—16), Argentina the country’s exports. At that time, it The Argentine government made no¬ suffered a prolonged period of interne¬ was believed that the market mecha¬ table efforts to settle the War of the cine conflict. National consolidation nism would determine the pattern of Pacific between Chile, Bolivia, and was achieved after I860, when a liberal relations among countries. Argentina Peru and to fix its boundary with elite seized control of the state and de¬ would be friendly toward all, political¬ Chile, finally accomplished in 1902. termined to remake their nation in a ly independent of all, and follow the And, it expressed its solidarity with foreign image defined by the European links established by the international Venezuelan efforts to settle a boundary idea of progress: European immigrants market. The Argentine leadership dispute with Great Britain, although would populate the pampas and im¬ after 1880 believed that their country’s there was considerable debate among prove the creole race, European capital interest required maximizing the ex¬ Argentine policymakers as to the prop¬ would pay for the infrastructure neces¬ port of its agricultural staples at the er attitude toward U.S. diplomatic in¬ sary to transfer the agricultural pro¬ most advantageous price. All efforts in tervention in that episode. ducts from the fertile pampas to the international relations were to be di¬ During the depression of the 1930s, consumers of Europe. The norms un¬ rected toward the achievement of that only one foreign policy issue caught der which the Argentine economy was end. Argentina was to avoid restric¬ the attention of the Argentine public: to function were those of liberal free tions on its freedom of action that the preservation of export markets. trade; the political norms under which might inhibit trade with Europe. In Other issues were allowed to become the society would be held together practice, this came to mean avoidance the personal playthings of the foreign were those of Anglo-American demo¬ of formal international commitments. minister or a particular elite. Seen in cratic constitutionalism. this light, Argentina’s neutrality in The liberal growth model worked; Logical & Reasonable the Second World War, like its behav¬ Argentina experienced an economic Seen in this light, the Argentine ior during the depression and its neu¬ boom of unprecedented proportions. caution in the first few Pan American trality during World War I, was based As more and more land was brought meetings is both logical and reason¬ on a definition of the national interest into production, Argentina became in¬ able. Anything that turned Argentine in terms of protecting export markets creasingly dependent upon European energies away from Europe was be¬ and on the conviction that neutrality, markets for the sale of its surplus sta¬ lieved wasteful or harmful. Also, the rather than choosing sides, would be ples and upon European capital to fi¬ obvious dominance of the United most conducive to achieving national nance that trade. Great Britain was the States in the Pan American movement objectives. This is not to deny that paramount foreign power in Argentine was inimical to Argentines, for they there were groups or people in Argen¬ affairs and, year by year, more and expected, given the rate of Argentine tina who rooted for the Axis; there more of the Argentine national prod¬ economic growth, that their country were. But the pro-Axis forces within

OCTOBER 1982 19 Argentina did not dictate the policy of configuration of domestic political “hand,” senior officials in the Depart¬ neutrality. That policy was the result forces in Argentina and of internation¬ ment of State were put off by the pub¬ of a fairly broad consensus within the al military and economic forces, after lic statements of Argentine officials at¬ society, including numerous groups 1940 Argentina really did not have a tacking democracy and by the much- that were pro-Ally in their sentiments. workable alternative to neutrality. publicized activity of Nazi agents in Neither Secretary of State Cordell Hull The non-belligerency proposal pro¬ Argentina. These officials did not sup¬ nor his immediate successors could ac¬ vides an excellent example of the port the Argentine cause in the coun¬ cept that fact. American failure to understand ade¬ cils of government and concurred with In the years just prior to the out¬ quately the domestic forces behind a demands by officials in the Agriculture break of hostilities in Europe, the in¬ particular Argentine foreign policy and Commerce departments that Ar¬ ternational environment became un¬ initiative and to appreciate the likely gentine products must not be granted pleasant for Argentina. The informal consequences among those contending access to the U.S. market. A vicious imperial link with Great Britain no forces of a negative or unsympathetic circle was created: the United States longer provided the support Argentina response. And, that failure was not the refused to provide Argentina with aid needed and the United States was per¬ result of inadequate information nor of or trade on the grounds that it was not sistently unwilling or unable to replace misunderstanding the signals put out sufficiently supportive of the Allied Britain in that role. Argentina’s ability by Argentine leaders. For example, in cause. The Argentine government to secure military materiel was being June 1940, Ambassador Norman Ar¬ split into three factions—one, pro- jeopardized by the suppliers’ reluc¬ mour reported on a conversation with Ally; another, pro-Axis; and a third, tance to sell anything to any but the Raul Prebisch, then manager of the committed to neutrality at all costs— most vital potential allies—a category Central Bank, in which the Argentine and, with the growth of exports its that Argentina was not likely to fit as tied together in no uncertain terms the primary concern, took the U.S. posi¬ much for its geographic isolation as for economic, diplomatic, and political tion as proof that the Argentines its political attitudes—while Brazil problems his country was facing. Help would suffer irreparable damage by was enjoying remarkable success in from the United States, Prebisch throwing in their lot with the Allies. winning promises for armaments and claimed, Such evidence weakened the hand of heavy machinery from both the Axis the pro-Ally faction in the government and the Allies. As a clincher, the har¬ would give immediate relief and have a and emboldened the small pro-Axis vests of 1938 and 1939 were either very beneficial psychological effect upon group to make stronger public state¬ very poor or unsold, producing excru¬ the Argentine people who are disturbed ments. These statements, in turn, con¬ ciating financial pressures on the Ar¬ by intelligent Nazi-Fascist propaganda. vinced U.S. officials that they had been Unfortunately, he added, there are seri¬ gentine government. correct to deny aid and trade to Argen¬ ous political aspects of the present Ar¬ tina and that Argentine leaders were gentine emergency but he went on to hopelessly pro-Axis. Each episode only Declaring Non-belligerency say . . . the Argentine government is The administration of President Ro¬ now probably better disposed toward served to weaken those in each country berto Ortiz tried to reverse this adverse the United States and sees more nearly who supported a constructive relation¬ ship between the two nations and flow of events and project Argentina eye to eye with the United States with strengthen those who were either hos¬ into a crucial position for the Allies by respect to the European situation than proposing in April 1940 that all any other American republic; and he tile or apathetic toward close ties with cannot conceive of a better opportunity American nations join in declaring the other country. than the present for exploratory conver¬ their non-belligerency in the European sations designed to evolve a lasting solu¬ Destroying Relations war. Ortiz and his foreign minister, tion of existing political and financial Jose Maria Cantilo, hoped to link Ar¬ and trade problems. In contrast, one episode occurred gentina with the United States in a during this period in which vigorous way that would guarantee both defense The next day a financial expert con¬ defense of the national interest by the supplies and markets for agricultural nected with the Argentine govern¬ relatively pro-U.S. elements within commodities, and, by so doing, un¬ ment told an American newspaperman the Argentine government served to dermine the anti-democratic forces in that Argentina was in serious trouble enhance that group’s domestic politi¬ their own country. But the United and that if the United States did not cal power. In 1937, Roosevelt offered States spurned the non-belligerency soon provide help or open its markets seven old destroyers to Brazil as a proposal and continued to drag its feet to Argentine products, Argentina means of improving relations with the in meeting repeated Argentine re¬ would have to go to Germany for trade South American country that U.S. quests for materiel and trade guaran¬ and aid, thus falling into the Nazi military planners considered of great¬ tees. Ortiz became ill and withdrew in camp like a spent trout. est potential strategic significance. favor of his vice president, Ramon S. This information was transmitted to The Argentine foreign minister, Car¬ Castillo. Cantilo fell and, after a brief Washington, but it did not move the los Saavedra Lamas, complained bit¬ interlude, was replaced by Enrique Roosevelt administration. Aside from terly of a gratuitous insult to Argenti¬ Ruiz Guinazu, a man noted for his ad¬ Undersecretary of State Sumner na and the perilous risk to the South miration of “virile fascism.’’ Given the Welles, an old Latin American American balance of power in the pro-

20 FOREIGN SERVICE JOURNAL PULL-OUT SECTION Association News

they to be distorted and contrived to fit level. This officer will have the PER in Quick AFSA expectations which had been arbitrarily question, statements from the employee, created? and the ability to investigate further; Action Halts AID Obviously this was a situation which 4. To allow time to accomplish this PERs Injustices we could not accept. Further, we do not the due date for PERs will be delayed; believe that what happened was what 5. If this delay results in the postpone¬ In mid-July, the prospects for a fair and AID had in mind. At this point, AFSA ment of any panel, management will not equitable AID Performance Evaluation and a newly concerned management be¬ oppose AFSA's going to the Grievance Report process this year were nil. As we gan negotiating over how best to salvage Board to seek promotion dates retroac¬ go to press in early September, however, this year’s cycle. After five weeks of dis¬ tive to when promotions would normally the situation has improved to the point cussions and negotiations, agreement have taken effect; where AFSA feels that selection panels was reached. The agreement contains the 6. All pesonnei policy changes will be should be convened. This dramatic shift following important features: transmitted through established chan¬ occurred because of the perseverance and 1. The AID administrator will reassert nels, i.e., by cable and notice; hard negotiating of the AID Standing in a cable/notice that his intention was to 7. “Rating tendencies” will not be Committee. A brief review of the events have frank and candid assessments, not an given to this year’s promotion panels; follows. indiscriminate downgrading or a bell 8. AFSA will be allowed to provide a First, we must emphasize AFSA's shaped curve; written statement to the promotion pan¬ longstanding commitment to an equita¬ 2. Any PER which was done under the els summarizing our observation on this ble method of differentiation among per¬ erroneous assumption that an indiscrimi¬ year’s evaluation process; sonnel, as well as candid assessment of an nate downgrading was sought is to be 9. Any grievances which arise out of individual’s strengths and weaknesses. redone; this year's PER cycle will be treated in an We are on record as being prepared to 3. A retired AID officer will be expeditious manner; meet with management at any time to brought back to provide an independent 10. Management will meet with negotiate a mechanism for effecting this review in those cases where agreement AFSA early on to negotiate fully next goal. can not be reached at the post/bureau year’s PER cycle. Unfortunately, AID unilaterally at¬ tempted to revise dramatically the PER system in mid-cycle. In April, AID AFSA’s Newest Member—Secretary Shultz made a videotape for distribution to the field, exhorting raters to make a more conscientious effort to assess ratees accu¬

rately and honestly. The next step should Pat Guild have been for AID to negotiate with AFSA about a change in the instructions for writing PERs. Instead, AID acted to implement new “guidelines” — guide¬ lines that were never negotiated, never clearly spelled out, and which were sub¬ ject to misinterpretation, misunder¬ standing, and overzealous application. AFSA polled its AID membership both in Washington and overseas and found that many posts did not receive the vid¬ eotape before the PERs were completed, that some posts were applying “new standards” while others were not, and, worst of all, that some officials were at¬ tempting to coerce raters to downgrade PERs through threats of punishment. Quite understandably, this led to consid¬ erable confusion among raters and re¬ viewers as to what was really desired — AFSA President Dennis K. Hays (right) presents an honorary certificate of an honest PER or a general, indiscrimi¬ membership in the Association to Secretary of State George P. Shultz. A dozen nate downgrading of ratings? Were rat¬ members of the AFSA Governing Board met with Shultz on August 23 to ings to be objective and candid or were | discuss professional concerns and labor-management issues.

OCTOBER 1982 20A IIII K| CI\ACalculating How Much Money IVI IN L. T Voty Will Need in The Future “Money is of a prolific, generating nature. What will it take to produce an in¬ With 15 years to get there, how much Money can beget money, and its offspring can come of $6000 per month? Assume your more must you invest to attain the re¬ beget more.” —BENJAMIN FRANKLIN, investments can produce an annual yield quired capital? You will reach your goal financial planner, in 1748. of 10%. (They should do at least that with a monthly investment of approxi¬ well!) You will need assets of $720,000 mately $385, if you achieve a return of Franklin would agree that money to generate the required income (12 12%. (The last two procedures call for a needs a great deal of intelligent, perse¬ months divided by 10%, times $6000). calculator which will compound periodic vering care and handling in inflationary When you apply this formula to your payments and will differentiate between times if it is going to beget enough to take own situation, reduce your capital re¬ beginning- and end-of-year deposits. care of ever-expanding requirements. quirement by income from other sources: That accounts for some of you coming up We live in a nervous climate of change, annuity, continuing employment, and with $162,118 for the IRA accumula¬ and this is especially true in the realm of eventually social security. Estimate your tion calculation.) money management. IRA-fund accumulation, if any, and see The purpose of this exposition, clear¬ Prudent management begins with ac¬ if there is a residual shortfall. Example: ly, is to disclose the value and necessity of curate projections of inflation-adjusted planning, a critical component of pru¬ costs for whatever needs loom on your Total monthly income required $6000 dent financial management. Next in¬ particular horizon. Home purchase in Less income from annuity 2300 stallment: How to plan strategies and three years? Three children to college in Less retainer from consulting job 250 choose investments to meet your 8, 10, and 13 years? Enough capital to Additional monthly income required . .3450 objectives. travel between your Washington and News update: Since my article on Cuernavaca residences after you retire? Capital need (assets invested IRAs was published (June), Maryland, To estimate capital needs, you must at 10%)... 12 H- 10% X 3450 = 414,000 Virginia, and the District of Columbia use a formula constructed of current cost, Marital IRA will have earned have amended tax regulations to allow time, and a presumed rate of inflation. 12% for 20 years (no tax!) 181,572 the contributions to be deducted from Example: Relatively liquid assets not gross income for determination of state including residence (assumed) 40,000 taxes. Tuition, room and board, 1982-83, Washington-area public Remaining capital required $192,428 —MARGARET WINKLER college (out of state fee) $3670 Years to college 10 Presumed rate of inflation 5% AFSA, Management there is at present no one at either post to whom this regulation would apply. Man¬ Inflation adjusted Go to Impasse agement has thus chosen to follow an cost 1.63 X 3670 = $5982 expensive and time consuming procedure ($1.00 compounded at 5% on Family Visitation (remember how long Advance of Pay for 10 years = 1.63) took?) to try to avoid a small benefit for single people which might possibly cost Is it reasonable to assume that your Management has chosen to go to the For¬ them a couple of thousand dollars a year. earnings will increase at a rate compara¬ eign Service Impasse Disputes Panel over So why are we holding tough on a reg¬ ble to the rate of inflation? If yes, you can a proposed provision in the Family Visi¬ ulation that affects so few? Because your simplify your estimates by using current tation regulations. These regulations set family is your family—whether it be figures for college costs. The technique is forth conditions under which employees aunt, parent, sibling, or whatever, and simple to master, however, and will help at posts where families are not authorized whether or not the person is more than in the next exercise. may visit them. Management first con¬ 51% dependent on you. And Congress, Presumably, another one of your ob¬ tended that ‘'family” should be defined in the Foreign Service Act, does not say, jectives is to have enough income to live as "spouse and children,” later proposing "spouse and children”; it does not say, with style at the end of your peak earning a broadening of the definition to include “51% dependent”; it says, in black and years. How much is that likely to be? immediate family members who are white “the family of the member” of the First, determine what that style would more than 5 1%' dependent upon the em¬ Service. cost you today, on a monthly basis. ployee. The Association feels strongly, It’s strange, isn’t it, how management S1000? $3000? Estimate years to retire¬ that management’s proposal discrimi¬ can get so worked up about a benefit like ment and adjust for presumed rate of in¬ nates against single employees. Employ¬ this, and spend so much time and effort flation as in the following example: ees should be able to visit a member of on it, when they don’t seem to have the Today’s monthly cash required $2500 his or her family, related by blood, mar¬ time or resources to deal with subjects Years to retirement 15 riage, or adoption, who normally resides like Standby Pay, Special Incentive Dif¬ Presumed rate of inflation 6% with that employee at post. ferential, and some others we could This regulation affects a very small mention. Inflation adjusted monthly number of people—as this is written requirement 2.40 X 2500 = $6000 Until the Impasse Disputes Panel ($1.00 compounded at 6% there are only two posts where families rules, the existing regulations on Family for 15 years = 2.40) are not permitted. As far as is known, Visitation will apply.

20B FOREIGN SERVICE JOURNAL Simon Calls for More Cultural Exchange in ‘Public Diplomacy’ Luncheon Lecture "It is so easy as we deal with those na¬ “ought to have a broader base. The po¬ tions whose policies we dislike intensely litical mileage is gone, yet the national to serve the national passion rather than interest is very clear.” Never before in the national interest,” said Congressman history has it been so important for na¬ Paul Simon (D.-111.) to a packed audi¬ tions to understand one another, he said, ence in the Foreign Service Club on April yet there has been a “dramatic and pre¬ 26. In his speech, the fourth in a series of cipitous decline in international educa¬ luncheon lectures on the theme of “Pub¬ tion over the past decade." The congress¬ lic Diplomacy in the 1980s" sponsored man observed that today the United by AFSA’s USIA Standing Committee, States only spends as much on exchange he urged the Foreign Service to speak out programs with the Soviet Union and on behalf of educational and cultural ex¬ Eastern Europe as it does to pave one- change programs. third of a mile of interstate highway. Congressman Paul Simon (D.-Ill.) Simon said that these programs Simon criticized the government for subsidizing and encouraging interna¬ tional studies programs in the United More Changes in Retirement Annuities States at an “embarrassingly low level.” While France and West Germany allo¬ Before adjourning for the Labor Day re¬ Meanwhile there is further talk on cate one percent of their budgets to edu¬ cess, Congress acted to modify the cost- Capitol Hill about the possibility of a cational, cultural, and informational ex¬ of-living-adjustment (COLA) payments to special session of Congress between Elec¬ change with other countries, for federal retirees as part of the budget re¬ tion Day and Christmas to address the example, the United States spends only duction process. Other changes direct funding problems of Social Security. If one-tenth of one percent. To remedy this that retirement annuity payments hence¬ this happens, the lame duck Congress situation, he suggested building a forth will commence the first of the presumably would be less sensitive to the broader resource base for the programs, month following the date of retirement political risks of tampering with the attempting to reach a greater number of rather than immediately as at present, present structure of Social Security bene¬ universities, and establishing more for¬ while all future retirement annuity pay¬ fits, which might well result in further eign language requirements. ments will be rounded down to the near¬ changes in the federal retirement system. The congressman cited some illumi¬ est dollar. nating statistics in his discussion. Of the Formerly COLAS became effective 488.000 military service personnel over¬ March 1, incorporating the rise in the AFSA Scholarship seas, for instance, only 412 are linguisti¬ Consumer Price Index (CPI) during the cally competent in the country in which preceding calendar year. The change vot¬ Programs 1983-84 they are stationed. Pointing out the ob¬ ed as part of the fiscal year 1983 budget vious security risks inherent in this situa¬ reconciliation process extends the effec¬ WHO—For dependent children of For¬ tion, he also noted that only six of the 52 tive date of the COLA increase. For the eign Service families who are serving hostages at the American embassy in Te¬ next three years the COLAS will be sched¬ or have served abroad. heran spoke Farsi. uled 13 months apart: instead of March HOW—Apply to the AFSA Scholarship “We are missing out on valuable op¬ 1, 1983, the next COLA will be effective Programs Administrator, by letter or portunities,” said Simon. In 1978, the April 1, while the next two are scheduled phone (202-3.38-4046) giving FS af¬ U.S. government sponsored 181 scholar¬ for May 1, 1984, and June 1, 1985. filiation and type of scholarship— ships to Latin America, while the Soviet Disability retirees and survivors will Merit, Financial Aid, or both. Union sponsored 4650. In 1977, there continue to receive the full COLA amount. WHERE—AFSA, 2101 E St. NW, were 1800 African students studying in So will retirees over age 62. Retirees un¬ Washington, D.C. 20037. the United States, while there were der age 62 will receive only one-half of WHEN—IMMEDIATELY! All appli¬ 24.000 studying in the Soviet Union. the COLA unless the CPI rise exceeds the cations must be completed and re¬ Simon challenged the audience to CPI estimates incorporated in the budget turned to the AFSA office by February imagine if forty years ago Leonid Brezh¬ projection. Example: the estimated in¬ 15, 1983. (Forms available October or nev had been an exchange student in the creases in the CPI for the next three an¬ November.) United States and Ronald Reagan had nual adjustment periods are 6.6%, Merit Awards are for graduating 1983 studied in Moscow. “It takes real imagi¬ 7.2%, and 6.6%, respectively. If the High School seniors or juniors, based nation in both cases, but we would live in next actual CPI should prove to be 7.6%, solely on academic excellence. a vastly different world had that oc¬ the COLA for the under-age-62 retirees Financial Aid Awards are for under¬ curred. We don’t know who the Brezh¬ would be calculated as follows: one-half graduate students based solely on nevs and the Reagans of the future are, of 6.6% (the CPI budget projection) or need. but we shouldn't be missing the oppor¬ 3.3%, plus 1.0% (the amount by which Foreign Service personnel in the lower tunity to expose them to cultural the actual CPI exceeded the estimate) for grades are especially encouraged to exchange.” a total COLA of 4.3%. apply. —LJNDA J. LAVELLE

OCTOBER 1982 20C Emergency Visit it’s a big step forward, particularly in Authorization Act these budget-conscious times. Travel Agreement Other major changes are: Eases SFS Pay- • Clarification of language to autho¬ Has Major Changes rize emergency travel of tandem couples Level Changes An agreement with management on new in cases involving children, regardless of In addition to establishing funding lev¬ regulations on “Emergency Visitation which parent lists the child as a els, changing “USICA” to “USIA," es¬ Travel" was signed on August 31. The dependent; tablishing the Foreign Missions Act, and most significant change from current • The post may provide transporta¬ so on, the Department of State Authori¬ regs provides for funded emergency trav¬ tion by GTR or cash payments: zation Act for fiscal years 1982 and 1983 el in case of death of a sibling. Further, if • Clarification of provision allowing corrected a shortcoming of the Foreign an employee or eligible dependent goes round trip to place of interment for eligi¬ Service Act of 1980. The Foreign Service home at his or her own expense to visit an ble dependents at post, in case of death of Act established the Senior Foreign Ser¬ ill or injured sibling, and the sibling dies an employee; vice with six pay levels, but only three during that visit or within 45 days of the • Time spent in the United States grades. The result is that grade FE-OC employee’s leaving post for that visit, ei¬ will now delay home leave eligibility has four pay levels. What the original ther the complete round-trip travel al¬ only if the member has not accumulated language of the Foreign Service Act did ready undertaken may be reimbursed or a 18 months of continuous service abroad; not make clear was how officers would subsequent round-trip travel for the in¬ • Exceptions may be made by princi¬ move from one of these pay levels to an¬ terment will be funded—but not both. pal officers and mission directors to pre¬ other within the FE-OC grade. A De¬ This is still less than we want—that scribed waiting period of three months partment of Justice opinion stated that siblings should be treated the same way following return to post from EVT before movement from one pay level to another as parents, spouses, and children—but departing or family visitation travel. within grade would have to be submitted to the Senate for confirmation, just as is promotion from one grade to another, Bring the Kids ies, and punch, but this year will host a under current legislation. Children's Halloween Party featuring Legislative relief was sought and ob¬ to Family Night decorations and games for school-age tained in the form of language in the children. Cafeteria Manager Jean Garvey authorization act that authorizes the sec¬ at Bookfair ’82 and her colleagues will join the kids in retary of state to adjust the rate of pay of a Family Night of Bookfair '82 will take playing pin-the-tail-on-the-donkey, mu¬ member of the Senior Foreign Service not place on Friday, October 29, from 5— sical chairs, etc. The party begins at 3 more than once a year. 8:30 p.m. Among the many special at¬ p.m. and will continue throughout the It is not certain at this writing precise¬ tractions this year will be Matthew Lar- afternoon. ly what this will mean. The Department gen, former State Department employee has not yet informed us of how it intends Association of American Foreign Service Women and member of Clowns ol America, who to implement this provision or what cri¬ will be on hand to construct balloon ani¬ teria will be used to determine which mals and perform various sleights. Car¬ officers will be moved from one level to toons starring Donald Duck and Dr. BQQK^IH another. What does exist now is the leg¬ Seuss characters as well as a Laurel and islative authority to move officers from Hardy short film will be shown in the Dinner will be served from 3—7 p.m. one pay level to another as an administra¬ Dean Acheson Auditorium. The cafeteria manager asks that families tive procedure that does not require con¬ The State Department Cafeteria will eat as early as possible to avoid long lines gressional approval. not only provide family food such as spa¬ at the last minute. (The cafeteria must The Association will keep members ghetti, fried chicken, hamburgers, cook- observe its scheduled closing time.). informed as developments occur.

Association Renews AFSA Announces The 1982 winners are: Capitol Hill Squash THE HF.RTER AWARD: Harriman, Herter, The Hon. Herman J. Cohen Club Agreement Rivkin Awards Deputy Assistant Secretary, Bureau of Intelligence and Research

The Association has renewed its agree¬ AFSA’s panels of judges have designated THE RIVKIN AWARD: ment with the Capitol Hill Squash Club the winners of the Herter, Rivkin, and George Cosgrove to provide free squash memberships to all Harriman awards for 1982. These awards AID (on leave until December 1982) AFSA regular and associate members on are given annually to, respectively, a sen¬ THE HARRIMAN AWARD: Hugo Carl Gettinger presentation of valid proof of Association ior, middle-grade, and junior officer who Political Officer, American Embassy, membership. has demonstrated “extraordinary accom¬ San Salvador Although the squash memberships are plishment involving initiative, integri¬ free, the Association has agreed to the ty, intellectual courage, and creative dis¬ The time and place of the awards pre¬ club’s request that it be allowed to charge sent." The Harriman Award carries a sentation ceremony will be announced as an annual $10 processing fee to cover its stipend of $2500 while the Rivkin and soon as final arrangements have been costs incurred by the plan. Herter awards are for $1000 each. completed.

20D FOREIGN SERVICE JOURNAL Secretary of State Cordell Hull repeatedly pressured the Argentine government to sever relations with the Axis powers, but his demands only antagonized Argentina and ultimately led to the downfall of a sympathetic regime and paved the way for the rise of Juan Perdn.

posed transfer of armaments. Hull re¬ dominated by Peron was in many ways trates this point very well. The junta considered and ultimately withdrew a response to the failure of Great Brit¬ that ousted Castillo gave early indica¬ the offer, accepting a momentary em¬ ain and the United States to strengthen tions that it would be more cooperative barrassment in U.S.-Brazilian rela¬ their commercial links with Argentina toward the Allies than its predecessor. tions to prevent any deterioration in during a period of economic crisis. In fact, a majority of the military lead¬ relations with Argentina. The success ers, despite the German sympathies of of the Saavedra Lamas defense of the Hardly Cordial a certain sector, had serious complaints national interest enhanced the After 1943, Argentina and the against the Castillo regime—against strength of the democratic and pro- United States entered a period in its weaknesses, corruption, and, above Ally faction favored by incoming which their relations were hardly cor¬ all, its incapacity to obtain arms from president Roberto Ortiz and ultimate¬ dial. The Argentine military was con¬ the United States at a time when Brazil ly led to the effort in 1940 by Foreign cerned that its country was falling far¬ was forging ahead of Argentina in this Minister Cantilo to tie Argentina more ther and farther behind Brazil in respect. A cabinet shuffle replaced sev¬ closely to the United States by means strategic capability, and believed that, eral members having Axis sympathies of the non-belligerency pact. to make Argentina secure, a program with others who were notoriously pro- Argentine neutrality was a national¬ of industrialization that would satisfy Ally, most notably Admiral Segundo istic policy. It and the concept of na¬ Argentina’s need for strategic materi¬ N. Storni, as foreign minister. Upon tionalism from which it was derived, als in times of international crisis must assuming office, Storni declared: the mechanism of state control over be imposed on the country. In the view export and foreign exchange upon of U.S. policymakers, not only had Ar¬ Bit by bit, the actions of the Argentine which it was based, and the techni¬ gentina assumed a posture of neutral¬ government will continue the policy of American solidarity. . . . Argentina cians who carried it out were essential¬ ity—seen as a cover for supporting the will arrive where it must be in interna¬ ly the same under pro-Allied demo¬ Axis—but it had abandoned all pre¬ tional relations. The foreign policy of crats, such as Ortiz and his foreign tense of democratic government and Argentina will imply a meticulous ful¬ minister, Cantilo, or pro-Axis leaders was ruled by military men suspected of fillment of her obligations with the with authoritarian proclivities, such as being sympathetic to German or Ital¬ American countries. Castillo or Ruiz-Guinazu. It should ian forms of fascistic social organiza¬ not be cause for surprise, then, that the tion. The United States persistently The U.S. ambassador had been pri¬ military leaders who took power by pressured the Argentine government, vately informed by Storni that this means of a coup in 1943 followed a first, to cooperate more enthusiastical¬ would include severing relations with nationalistic line in foreign policy. ly in the war effort and, after 1945, to the Axis. Their policy was not something alien conform more closely to the norms of Instead of nurturing this sign of to the Argentine spirit, invented by democratic behavior desired by Wash¬ cooperation, Secretary of State Hull the military mind, as so many observ¬ ington. This pressure had the unin¬ reacted with scorn, demanding some ers in the United States argued. Colo¬ tended but repeated effect of under¬ proof of the meticulous fulfillment to nel Juan Domingo Peron, the emerg¬ mining that political faction most which Storni had referred. Hull want¬ ing leader of the 1943 military junta, sympathetic to the United States and ed a quick decision by the Argentine pursued a foreign policy which had strengthening the more nationalistic, government to break relations with the been evolving throughout the 1930s. more anti-liberal, and less friendly Axis and he wanted no strings at¬ Thus, the strong Argentine national¬ faction. tached. Such a clear-cut decision was ism that appeared during the years The so-called “Storni affair” illus¬ politically impossible in Argentina.

OCTOBER 1982 21 The question of foreign policy had be¬ Hull answered Storni’s note in a dounded to the benefit of Peron. The come the central issue in the struggle most scathing manner. He went on at sole objective of Peron’s strategy in the for power within the military. General great length excoriating the Argentine last days of the electoral campaign was Ramirez, the head of the junta, tried government for its failure to carry out to present himself as the champion of to place himself between the two ex¬ its obligations. He expressed surprise Argentine sovereignty. According to treme groups that were fighting that fulfillment of contracted obliga¬ his propaganda, the Argentines would among themselves, but he was gradu¬ tions could be a motive for considering have to choose on election day between ally losing control of the situation just such action to have been taken under U.S. Ambassador Spruille Braden or as the nationalists within the military the pressure of foreign agencies, espe¬ Peron. They chose the candidate not were increasing their power. The ini¬ cially when the obligations had all favored by the United States. tial commitment to break with the been freely subscribed to by the After Peron was deposed in 1955, Axis was becoming more and more dif¬ American republics and had been ful¬ the first democratically elected presi¬ ficult to carry out without some tangi¬ filled by all except Argentina. He spe¬ dent, Arturo Frondizi (1958—62), ble evidence that the step would bene¬ cifically rejected the appeal for arms tried to stimulate economic growth by fit Argentina. This Hull refused to and stated his belief that the questions massive investments in infrastructure, give. of a South American equilibrium were much of it with foreign capital. His inconsistent with the inter-American foreign policy emphasized hemispheric Allies or Axis doctrine of peaceful solution of inter¬ affairs in a manner that seemed a Eventually, at Hull’s insistence, national disputes, a doctrine to which, throwback to Ortiz and Cantilo prior Storni agreed to put in writing the Ar¬ he added, Argentine statesmen had to World War II. He cultivated the gentine commitment to rupture rela¬ made so many contributions. friendship of the United States; he was tions with the Axis. The text of the The publication of the Hull letter in one of the strongest supporters of the letter, which was the cause of consider¬ the Argentine newspapers inflamed Alliance for Progress; he made shrewd able debate within the government, nationalist sentiments across a broad use of the personal ties between his tried to explain why Argentina could political spectrum. The position of foreign minister, Miguel Angel Car- not break relations at that time with¬ Storni was made unbearable, and he cano, and the family of John F. Kenne¬ out cause. He denied that the Argen¬ had to resign the following day. As the dy. At the same time, he tried to bal¬ tine regime sympathized with the situation of the chief of state himself ance these overtures to the United Axis. He insisted that his government was also compromised, Storni sent him States and demonstrate his independ¬ would spare no efforts to comply with a letter assuming full responsibility for ence by maintaining relations with Fi¬ the obligations assumed. But he could the document. On the same day, the del Castro’s Cuba. This displeased the not do so without a cause that would president declared that the “historical U.S. government and upset the Ar¬ justify it. To act otherwise would be to tradition of a nation . . . cannot be gentine military, whose ideological provide arguments for those who weakened by the confidential expres¬ propensities were hostile to the doc¬ might think that he was operating un¬ sions of a functionary. ” When Ramirez trines represented by Castro. der pressure or threat from foreign finally ruptured relations with the agents. And this would be tolerated Axis a few months later, Hull, instead Doses of Rhetoric neither by the people nor by the armed of supporting the move and thereby Frondizi’s domestic economic poli¬ forces of the country. He concluded: strengthening Ramirez’s position, cy, known as “Developmentalism,” pushed for further concessions. This sought to control the foreign invest¬ I can affirm to you . . . that the Axis only precipitated the fall of the Ra¬ ment entering the country in order to countries have nothing to hope for from mirez government, paving the way for free Argentina from its dependence on our government and that public opinion Peron to take power. foreign capital. This policy called for is daily more unfavorable to them. But Peron was able to build a coalition mild doses of nationalistic rhetoric, this evolution would be more rapid and of the military and organized labor and but Frondizi was a moderate in com¬ effective for the American cause if Presi¬ skillfully construct a nationalistic im¬ parison to some of his nationalistic dent Roosevelt should make a gesture of age for himself. But when he tried to critics who opposed all foreign invest¬ genuine friendship toward our people; legitimize his authority through popu¬ ment and who were skeptical of the such a gesture might be the urgent pro¬ vision of airplanes, spare parts and ma¬ lar elections in 1946 the United States virtues of democratic government. In chinery to restore Argentina to the posi¬ again acted in a manner that harmed April 1961, Frondizi signed a treaty of tion of equilibrium to which it is its own interests. Fifteen days before friendship and consultation with the entitled with respect to other South the election, the United States made president of Brazil, Janio Quadros, in American countries. known its disapproval of Peron the border city of Uruguayana. This through the publication of the famous rapprochement with Brazil was part of Storni’s letter closed with a plea for “Blue Book” detailing the links be¬ Frondizi’s efforts to build a bloc of un¬ understanding and friendship on the tween the Argentine government and derdeveloped countries and use foreign part of the United States toward the the Axis during the war and singling policy to further economic develop¬ Ramirez government during its diffi¬ out Peron as the principal collaborator. ment, as explained by his undersecre¬ cult initial period. The result of this overt interference re¬ tary for foreign relations:

22 FOREIGN SERVICE JOURNAL Wide World cratic militarylookingforan excuseto OCTOBER 1982 Argentina, inthiscasetheanti-demo- States didcoercearuptureinrelations, be ridofFrondizi. nationalists contendingfor powerin into thehandsofmore extreme narrow objectiveatthecost of playing but, asinWorldWarII,achievedits break relationswithCuba,theUnited fing theArgentineinitiativeand ment amarkofsubserviance.Inrebuf¬ ered hiseffortstoattractU.S.invest¬ increasing thepressureonFrondizito gentina’s independenceofactionand military, Frondizi’sownparty,andthe tro’s politicsandcalmthosewithinthe would calmnationalistswithinthe of mediatorwoulddemonstrateAr¬ Cuba andtheUnitedStates.Therole policy wastobehisattemptarbi¬ Peronist labormovementwhoconsid¬ military whowerenervousaboutCas¬ trate thegrowingdifferencesbetween its influenceinworldaffairs.This The keytoFrondizi’shemispheric can callattentiontoournecessities,as also fromtheconsciencethatonlyaction with OperationPan-America. measure, bythepartialsuccessachieved was demonstrated,thoughinlimited significance. .Ourpresentsolidar¬ areas byvirtueofherlesserstrategic by reasonofbloodandlanguage,but from theobvioustraditionalsympathy ity withLatinAmericarisesnotonly are veryinferiortothoseoftheother she hasconditionsofnegotiationsthat developed continentsoftheworld,but graphical areabelongingtotheunder¬ that istosay,itmadeupofageo¬ Argentina isaLatinAmericancountry, V rJM I > N m' affairs. When U.S. policywaspresent¬ ated apoliticaldebatewithin Argenti¬ violations servedtoembarrass thejun¬ interference inthecountry’s internal na overhowtodealwith foreign ernment inthematterofhumanrights work itswillwiththeArgentinegov¬ ta ledbyGeneralJorgeVidela andcre¬ Carter administrationattemptedto Getting inStep own militaryforcedhimtobreakrela¬ allies. Thecombinationofpressure blunt, publicmannerinwhichthe tions withCubainFebruary1962and from theUnitedStatesandhis firm defenseofArgentinesovereignty with anothersovereignnation.This pressure toinfluencenormalrelations month, tohisouster. led, inthespaceoflittlemorethana it didnotwinhimanynewpermanent helped Frondiziforalittlewhile,but the U.S.governmentaboutunfriendly Argentine affairs,andcomplainingto ed strongly,characterizingthedocu¬ and Argentineofficials.Frondizireact¬ ed toshowthelinksbetweenCuban documents purloinedfromtheCuban government madepublicabatchof ban exilegroupfortheirinterferencein ments asforgeries,denouncingaCu¬ embassy inBuenosAiresthatpurport¬ first. InSeptember1961,theU.S. Washington acknowledgedonlythe support fortheAllianceProgress. forts tomediatebetweenCubaandthe striking. Frondizipublicizedhisef¬ United States,justashepublicizedhis More recently,itappearsthatthe The parallelswithearliereventsare popular electionsin1946,U.S.publicationofabooksingling his success. Axis powersfueledArgentinenationalistfeelingsandaidedin out PeronastheprincipalWorldWarIIcollaboratorwith When JuanPerontriedtolegitimizehisauthoritythrough of theconflictandroleplayedby war intheMalvinasorFalklands,itis remains tobe seen. the situationtoincreasetheir power Whether theycantakeadvantage of too soontotell.Certainly,theresults repeated yetagaininthecaseof terests. Whetherthepatternhasbeen of elementsrelativelyhostiletoourin¬ cies whilestrengtheningtheposition ernment mostsympathetictoourpoli¬ United Statesandtocapitalism. elements withintheArgentinegov¬ ernment hasmanagedtoalienatethose gentine politicalcontextinwhich junior officerswhoarehostile tothe the UnitedStateshaveemboldened result, timeandagain,ourgov¬ which policymakersinthiscountryfail during the20thcentury,apatternin their policywillbeconsidered.Asa to takeintoaccountthedomesticAr¬ pattern thathasbecomesodepressing- ly familiarinU.S.-Argentinerelations the Carteradministrationrepeated to defendhumanrightsinArgentina, handed methods.However,intrying ative results.Itisclear,forexample, of thoseconsideredmoderate. solidated theirpositionsattheexpense responded positivelytosuchheavy- that themilitarygovernmentinChile blunt, publicpressurealwayshasneg¬ rights waswrongoreventhatsuch supported theirgovernmentandre¬ ed intheseterms,mostArgentines that thepolicyofdefendinghuman the mostanti-Americangroupscon¬ the contextofpoliticalstruggle, jected theU.S.adviceandpressure.In This isnotforamomenttosuggest 23 Lessons in Diplomacy

By MARTIN F. HERZ attributing the right significance to Of course, negotiation is part of such something that was only hinted at— communication. It is best to have peo¬ Diplomacy is not a popularity for which, of course, it is first neces¬ ple in diplomacy who have track rec¬ contest. It is not the projec¬ sary to notice that something was in¬ ords, which is another way of saying tion of our ideas and ideals to deed hinted at; assessing the signifi¬ that they should be experienced. They foreign people, although that is a small cance of what leaders of a foreign should be good at intercultural com¬ part of it. Essentially, diplomacy is the government have said to each other, munication and should be sophisticat¬ means by which countries communi¬ because it may have bearing on what ed and have a larger view of the world. cate with each other. It is therefore a they might say to you but prefer to say They should also have a good knowl¬ field in which certain skills are re¬ in a roundabout manner; reading a edge of the countries to which they are quired and thus most often is best en¬ lengthy and boring speech, or perhaps sent as part of the first line of defense of trusted to trained professionals. This is listening to it, and suddenly being the United States. what most countries do, and have been stung because of a new formulation # # # doing for generations. The United that was given to a problem that had Some of the horrors that the world has States is an exception to this, for we usually been set forth with a different experienced in my generation did not sometimes employ amateurs to do the terminology in the past; knowing come from any lack of understanding work of professionals in foreign affairs. what plausible argument not to use in or communication, nor from any un¬ The ability to make speeches with advancing one’s government’s case, willingness to sit down and talk on the sounding cadences and orotund phrases, because that argument could be mis¬ part of reasonable people. They came to cut a good figure at parades, recep¬ understood; reminding your interlocu¬ from something whose existence must tions, and various ceremonial occa¬ tor of a precedent from his own history be frankly acknowledged—the prob¬ sions, and even the facility of mixing that is helpful to something you wish lem of evil in the world. It is always freely with people—these things may to accomplish; or seizing the signifi¬ good to understand the other side, and make one popular but have little to do cance of an historical allusion made by major efforts should be made in diplo¬ with being a good diplomat. the foreign minister or some other offi¬ macy to improve and maintain com¬ The real function of a diplomat en¬ cial. An experienced diplomat will do munications. But it would not have tails such things as noticing what it is all these things, but he or she will have helped to understand Pol Pot better; that the foreign minister did not say in something else that is even more im¬ and with respect to Stalin, it turned his presentation of a particular case; portant—he will be someone to whom out that the evil of his personality was people will like to talk about affairs of under- rather than over-estimated. It Martin F. Herz is director of studies at the state because he knows so much about would not have helped to have a better Institute for the Study of Diplomacy and the country of his assignment, includ¬ dialogue with Idi Amin, nor would it Oscar Iden professor of diplomacy at the ing its problems, history, culture, and have helped to assuage the alleged fears School of Foreign Service, Georgetown U ni- personalities, that talking with him is of Adolf Hitler. No, we must frankly versity. A former career Foreign Service of¬ interesting for the leading figures of acknowledge that both things are true: ficer, he served as ambassador to Bulgaria. that country. For the sake of the peace of the world These selections are excerpted from the It is not the job of an ambassador to we need better mutual understanding Fifth Oscar Iden Lecture, delivered in No¬ be popular in the country of accredita¬ and communication, but we also need vember 1981 at Georgetoivn University. A tion; it is his or her job to get certain to recognize that some of the people full text is available from the institute, do things done and to establish or main¬ and forces in the world are up to no GU, Washington, D.C. 20057. tain good two-way communications. good, not because they are misunder-

24 FOREIGN SERVICE JOURNAL A Career FSO Reflects on the Role of the United States and its Diplomats in Today’s World

stood but because of the age-old prob¬ them. Fortunately, we have allies who and whose differing interests we must lem of humanity’s capability for evil, are indeed democratic and congenial— take into account. But the fact is that of man’s inhumanity to man. The be¬ but that is not the real reason they are the vast majority of the members of the ginning of good diplomacy is to recog¬ allies. The real reason is that their se¬ United Nations simply do not fit into nize that while not everybody is good, curity interests and ours coincide. that category, so that to seek their some are significantly more evil and When those interests no longer coin¬ Good Housekeeping stamp of approval dangerous than others. And not every cide, they will no longer be allies. No is often a futile activity divorced from issue can be talked out, because some country will sacrifice itself for another the realities of the world. aggressors are unappeasable. country because it loves or admires or # # # * # # even shares ideals with that country. The American government, whether it The longest periods of peace in recent # # * be served by professionals or amateurs memory have been periods when there There is a touching belief in some in foreign affairs, whether it be served existed an effective balance of power. quarters that in foreign affairs a kind of by diplomats or intelligence experts, Yet, balance of power has a distasteful rating system exists that indicates how has a surprisingly poor record in mak¬ ring to it because it sometimes requires well a particular country is doing, and ing predictions. This is an important alliances with uncongenial people for that in some way the votes in the Unit¬ point because it shows not only the the sake of offsetting a power advan¬ ed Nations represent such a rating. limits of what can reasonably be ex¬ tage of a potential or actual adversary. Horror is expressed if the United States pected from diplomacy, but also the Thus Churchill had to swallow hard finds itself in a small minority on a reason good diplomats are so often when Germany attacked the Soviet particular issue, and great delight is pessimists. Union in 1941 and Great Britain sud¬ voiced when, as in the case of Afghani¬ Let us look at a partial list of the denly found itself a comrade-in-arms stan, the Soviet Union finds itself in a things that took us by surprise since of the brutal Soviet dictatorship. For minority. World War II: The break between Tito the sake of the war, Churchill said at The Soviet Union gives no evidence and Stalin, the North Korean attack on the time, if Hitler were to invade hell, of being shamed or embarrassed if it South Korea, the 1956 Anglo-French he would at least make a favorable ref¬ finds itself in a small minority in the attack on Egypt, the Khrushchev “De- erence to the devil in Parliament. General Assembly, and if the United Stalinization” speech, the Soviet Today, when we open up relations States shows an excessive concern then launching of the first earth satellite in with China in an effort to offset mili¬ it is unbalancing the situation. While 1957, the building of the Berlin wall, tary advantages which the Soviet it is not necessarily true that nice guys the placement of Soviet nuclear weap¬ Union gained over us, we are doing finish last—to use Leo Durocher’s im¬ ons in Cuba, the 1967 Six-Day War, something very similar to Allied poli¬ mortal phrase—in the United Na¬ the 1973 attack of Egypt on Israel, the cy during the war. It is deplorable that tions, it certainly is a fact that just arrival in power of the Ayatollah Kho¬ under such circumstances there is a na¬ being nice and accommodating usually meini in Iran, the Iran-Iraq war, and ive tendency to glamorize our new gets you nothing whatsoever in the is¬ the Soviet invasion of Afghanistan. partners as if they were friends, or to sues that concern us most. While diplomats must all try to work picture clients as if they were allies, or There are certain countries, espe¬ as hard and as successfully as possible, to picture allies as if they were really cially among the minority that are I think we should not expect our future close to us because they are congenial democratically governed and where record of prognostication to be better to us, rather than because they are nec¬ public opinion is important, whose than that of the past. We must be pre¬ essary to us—and we are necessary to good opinion of us is worth cultivating pared for the unexpected. OCTOBER 1982 25 There were two schools of thought on international rela¬ tions when I was a graduate The Right student at University of Chicago just after World War II. One, clustering around Quincy Wright, sought a structure for relations among nations in international law and organization. The other, drawing its inspiration Thing from another academic giant, Hans Morgenthau, focused on geopolitics. The “law” people looked to interna¬ tional agreements and the United Na¬ Ethics does not loom tions to dominate bilateral relations and bring peace in our time. The “geo¬ large in the theory and politicians,” on the other hand, be¬ practice of international lieved that a stable world order was possible by balancing national inter¬ relations. But ests. The law people wanted to delin¬ eate what was licit and what was illic¬ moral choices must he it. The geopoliticians wanted to study the “real” nature of nations. made by Foreign Service As I became interested in diploma¬ cy, I discovered that there was more to officers in the field. international relations than law and politics. The literature for the Foreign Service examination revealed all sorts of fascinating new arts and crafts: anal¬ By JAMES W. SPAIN ysis, drafting, reporting, negotiation, protection, representation. But for my first twenty years after entering the Foreign Service in 1951, I found that academic theory and diplomatic prac¬ tice seemed to fit together pretty well. For instance, I watched Greece and Turkey, Egypt and Israel, Pakistan and India (and our embassies in these and other capitals) working at interna¬ tional problems in very much the way Professor Morgenthau’s geopolitics suggested. The result was never peace—it even included on occasion a limited war—but nations were pre¬ served and world wars avoided. Professor Wright’s law likewise had

James W. Spain, a career minister in the

Foreign Service, is currently a resident asso¬ ciate at the Carnegie Endowment for Inter¬ national Peace in Washington, D.C.

26 FOREIGN SERVICE JOURNAL its achievements. For example, Tri¬ were necessary at all, I assumed they help. The philosophical distinctions of este, an Italian-Yugoslav problem that were made by people named Eisen¬ my student days occasionally offered in the late 1940s ranked with the hower, Kennedy, Johnson, and Nixon clues, but they were pretty far removed Greek-Turkish, Arab-Israeli, and or Dulles, Herter, Rusk, and Kis¬ from the issues before me. Like an as¬ Pakistani-Indian quarrels, was settled singer. My decisions were action or in¬ tronaut’s having “the right stuff,” a by a treaty. The United Nations formation, priority or routine, fin¬ diplomat’s doing “the right thing” stopped an aggression and made peace ished or pending. It was only later on seemed to be almost mystical. There in Korea. New nations came into be¬ that I discovered that many of these were no established rules; Washing¬ ing within frameworks mutually moral choices had to be made by For¬ ton, usually so free with its guidance, agreed between metropole and colony. eign Service officers themselves in their was silent on this subject. More and more subjects were regulated daily business. by global or semi-global consent: the Morality brushed me for the first Confronting Choices air, customs, and communications. time—albeit lightly—in 1970. I was I had been in Istanbul only a few Meanwhile, in the State Depart¬ in the department, stalling on a pro¬ weeks when I was confronted by the ment in Washington and at our mis¬ posed assignment as consul general in resident U.S. narcotics agent with a sions abroad, I learned the nuts and Istanbul to see what else might be proposal to wiretap, without clear bolts of diplomacy. I analyzed, draft¬ available. Suddenly, I was informed cause or court order, the hotel room of ed, negotiated, represented, protect¬ that Embassy Saigon had asked for me a dubious tourist from Los Angeles. ed, and planned. I learned that a well- as minister for public affairs. In those Like any Foreign Service officer, I written memorandum or airgram often days Embassy Saigon got what it want¬ knew that when it came to local law, triumphed over a poorly written one— ed, and I was told I had three hours to the Constitution did not follow an regardless of substance—and that a decide whether or not I had accepted American overseas. But as consul gen¬ colorful telegram got more attention Istanbul the day before. eral, I had to conclude that it did travel than a staid one. Problem-solving was Considerations of rank, pay, and when it came to relations between the name of the game, and compro¬ living conditions took fifteen minutes. Americans. I vetoed the proposal. mise and trade-off were its standard The rest of the time was devoted to a Sixth Fleet port calls were a question equipment. matter of conscience. During long of great moment in Istanbul in the late years in Near Eastern affairs I had never 1960s and early 1970s. The Depart¬ Defining Reality had to focus on Vietnam. I had not ment of Defense and the Navy wanted “Reality” often turned out to be been involved in promoting a policy opportunities for shore leave in the that the other fellow didn’t really that, while only dimly aware of, I was eastern Mediterranean. They felt that know what his interests were. If you not sure was right. In due course I Turkey should provide the opportuni¬ were quick enough, you could define confirmed that I had indeed accepted ty when needed: sworn NATO allies them for him. If he was quicker and Istanbul the previous day. should act like sworn NATO allies. you found yourself yielding, he usually Ironically, it was in Istanbul that I They could usually cite the Turkish acknowledged that he owed you some¬ first found matters of ethics and moral¬ navy as supporting this position. The thing in return. As far as “law” was ity intruding into my professional life. State Department and USIA fretted, concerned, if you were being pushed As a principal officer, I now had man¬ agreeing in principle but worrying toward something you didn’t like by agement responsibilities. I was dealing about the potential for violence by stu¬ someone else’s emphasis on Paragraph with people and principles as well as dent protesters and the adverse effect B of Section 4 of Chapter III of this or with interests and policy. My name on bilateral relations. They suspected that treaty, public law, or regulation, went at the bottom of the telegrams. I that their Turkish civilian equivalents you could hold your own by taking a made decisions (however limited) rath¬ were just as uneasy as they were. The stand on Paragraph D of Section 6 of er than recommendations (however outcome was almost always the same: Chapter VIII. brilliant). bureaucratic agreement on ship visits Between 195 1 and 1970 I don’t re¬ A new question entered my day-to- but for half as many as the Navy want¬ call ever Finding myself confronted day professional life: What is the right ed, and each subject to U.S. mission with—or even aware of—choices be¬ thing to do? The drafting, negotiat¬ approval. tween good and bad, right and wrong, ing, and other skills I had acquired in We had to face a flesh-and-blood just and unjust. If such distinctions the Foreign Service were not much dimension that went beyond planning

OCTOBER 1982 27 and policy. The local U.S. Navy repre¬ ment in a country of his choice. It was sentative told us that statistics showed usually clear where U.S. interests lay. a sailor was killed or seriously injured The requirements of human decency daily in the large Sixth Fleet. For the were often less easy to calculate. three days of a ship visit there would be Resident Americans, some in uni¬ three casualties somewhere in the fleet form, outraged by our Vietnam policy, anyway, and if they happened to be in were no more merciful than the Soviets Istanbul, it would be routine. A coop¬ when it came to demanding ethical erative Turkish admiral added that his choices. Just before I arrived, one shore patrol would be proud to risk group had insisted on a protest, in¬ their lives defending their American cluding a flag-burning, on the street brothers. outside the consulate. The Turks feel The last deaths in Istanbul during a very strongly about flags, including Sixth Fleet visit, however, had been other countries’, and the penalty for not military personnel but Turkish desecration is harsh. Apprised of this, students. There had been a riot be¬ the protesters demanded to be allowed tween leftist and rightist university to hold their meeting within the sanc¬ groups supporting and opposing the tuary of the consulate. My imaginative visit. Thus, everyone knew that a port predecessor negotiated an agreement call at the wrong time could be a mat¬ that provided for a protected space, a ter of death. Since no one could argue flag, and a fire, but with the stipula¬ that a particular visit was essential to tion that the latter two could not be life, more often than not we waved the brought together. In difficult situations it ships off, hoping for a better time that did in fact come some years later. Flow Determining Jurisdiction was usually clear where much naval readiness—certainly a When I moved to Ankara as deputy U.S. interest—suffered as a result, 1 chief of mission in 1972, deciding the U.S. interests lay. The have never known. right thing became a little easier. The cold war was frigid during There was an ambassador in the office requirements of human those years, and even the tolerant air of next door to whom I could pass on the the Bosphorus did not inhibit dissent¬ really hard ones. He did, however, decency were often less ers on both sides from forcing choices leave a few all to me. One was a prob¬ easy to calculate. on a reluctant consul general. Soviet lem within the U.S. military stationed defectors frequently showed up at the in Turkey. There had been numerous consulate from one of the many Rus¬ complaints from the troops of harrass- sian ships that passed through the Bos¬ ment by the Air Force Office of Special phorus. Their purpose was always “to Investigation, which was working choose freedom. ” If the new arrival had against black-marketeering in collabo¬ ever worked in a defense plant, served ration with the Turkish police. The in the armed forces, or had an uncle subjects of attention always seemed to who was in the KGB, we had to make a be black and to be enlisted men. choice between putting him in the The first question at issue was hands of the Central Intelligence whether or not any of this was the em¬ Agency for a quick trip to Western bassy’s business. The unhappy troops Europe and intensive interrogation fol¬ felt that it was. Most of the command¬ lowed by no-one-ever-seemed-to-be- ers were sure that it was not. They had sure-exactly-what, or passing him on military functions to carry out and dis¬ to the local UNRRA office, which in cipline to maintain in Turkey. The ser¬ collaboration with the Turkish au¬ vices had their own grievance proce¬ thorities sent him to Rome for resettle¬ dures, their inspectors general, legal

28 FOREIGN SERVICE JOURNAL defense counsels, and the Uniform ganized moral insight to carry along. reasonable compensation. The total at Code of Military Justice. But we con¬ The Foreign Service Institute taught issue was just over $100,000. Two cluded that the U.S. government me a little Kiswahili and briefed me on years later, the AID program came un¬ could not wash its hands of the wishes the organization of a U.S. mission. der an even greater threat because of a and rights of U.S. citizens whether The Foreign Buildings Office showed new Washington concern about hu¬ uniformed or not. Each case was differ¬ my wife approved upholstery fabrics man rights. Nyerere’s government ent. Conceptually, determining policy for the residence furniture. held some three dozen prisoners with¬ and interests was easy—but justice and This time I would have no backstop out trial. Most of them were leftover injustice wouldn’t hold still. Decisions to field the really tough ethical ques¬ conspirators from an abortive coup on had to be made to intervene or not to tions. But when I asked to see the sec¬ Zanzibar who, if released on the main¬ intervene and the final determinant of retary of state to discuss what the land, faced a speedy trial and certain “the right thing” was more often than United States wanted to do in Tanza¬ hanging back on the island. not the conscience of the decision¬ nia, I was told not to worry. The secre¬ The determination of what was the maker. tary was busy but someone had “right” thing to do about the AID pro¬ On leaving Ankara in 1974, I found checked with him and I would be hap¬ gram did not jump out as something myself back in the United States wait¬ py to know that he had nothing clear and unanimous. Adding it all up ing for a mission—but this time with a against me. When I inquired about a several times, I came to the conclu¬ keener appreciation than ever before of meeting with the president, they sion—which we managed to make what running one meant and of how laughed. No one above the desk officer stick—that the assistance program seldom one found clear answers to the in the department had any comment to should be continued and perhaps even question of right and wrong in interna¬ offer—or question to ask—on Presi¬ expanded a little. The basis of this tional affairs. dent Julius Nyerere’s socialism, the judgment was not a reading of the law I spent a year as a diplomat-in-resi- southern African independence move¬ or recognition of a congruity of short¬ dence at Florida State University in ment, the North-South economic term Tanzanian and U.S. interests. It Tallahassee. This gave a welcome op¬ question, or even specific U.S. objec¬ was rather a belief that American and portunity to conceptualize these mat¬ tives in Tanzania. Yet from the mo¬ Tanzanian long-term objectives were ters of just and unjust, good and bad, ment of my arrival, matters of this honorable and compatible, and that as that seemed so essential and so elusive kind were the heart of most embassy long as the United States was putting in my profession. There must be a decisions. out $4 billion a year in foreign assis¬ structured way of deciding “the right tance, Tanzania deserved $20 million thing.” The moral and ethical equiv¬ Weighing Factors of it. alents of Wright’s Study of War and The modest AID program in Tanza¬ The campaigns for independence in Morgenthau’s Scientific Man and Power nia was one focus of argument. There Rhodesia and Namibia dominated Politics were, I hoped, waiting in the was no question that its technical assis¬ southern African political affairs in the library stacks. tance was desperately needed. No one late 1970s. As chairman of the “front They were not. The volumes that I in Washington wanted to take respon¬ line states’—Tanzania, Mozambique, did find were mostly published in the sibility for ending a program in one of Botswana, Zambia, and Angola— 1950s, mostly softcover, mostly by re¬ the poorest countries in the world. On Nyerere was a key figure both in the ligious groups. Their subjects were the other hand, neither was anyone international maneuvering and in the narrow: the virtues of the United Na¬ willing to make a major effort to pro¬ guerrilla fighting being carried on by tions and the perils of nuclear weap¬ mote the success of a militantly social¬ Rhodesian black leaders like Bobert ons. Turning to a dozen or so standard ist economy in a country that opposed Mugabe and Joshua Nkomo. works on diplomacy, I looked up “eth¬ U.S. Vietnam policy and promoted Nyerere’s distrust of the United ics” in their indexes. I located one list¬ Puerto Rican independence. States was deep. He saw U.S. efforts to ing only, four pages of exhortations In 1975 the AID program was on stay clear of the Rhodesian and Nami¬ not to sell visas and not to abuse duty- the brink because of Washington’s in¬ bian questions as evidence of a neo¬ free-liquor privileges. sistence on enforcing a provision colonial outlook and of a strategic Departing for Dar es Salaam as am¬ against aid to a country that had na¬ commitment to South Africa in sup¬ bassador to Tanzania late in 1975, I tionalized the assets of American citi¬ port of a global anti-communist cause. had little useful ethical doctrine or or¬ zens without timely efforts to provide Yet, as I talked to him on these sub-

OCTOBER 1982 29 jects, it became clear that the ideas periencing the most turbulent time of which flowed constantly from his agile its existence: financial turmoil, repre¬ mind were pragmatic, flexible, and sentative government rendered impo¬ based more on an acute desire for the tent by factionalism, political murders final decolonialization of Africa than at the rate of more than twenty a day. on any radical social, economic, or glo¬ Yet, the relationship between Turkey bal theories. and the United States was eminently By frequent and comprehensive re¬ harmonious and satisfactory. We pro¬ porting of Nyerere’s view, we set out vided substantial economic and securi¬ to catch the attention of Washington. ty assistance and the Turks offered Whether because of our skill or by co¬ maximum cooperation for a number of incidence, the outcome was beyond important military facilities. our wildest dreams. “From the Secre¬ Nonetheless, in September 1980, tary” telegrams began to pour in, and the deteriorating domestic situation in 1976 Dar es Salaam played host to led to a military takeover. The gener¬ Secretary of State Henry Kissinger on als’ coup was bloodless. Popular reac¬ three occasions. Our emphasis was still tion to it was favorable. The political on calculating U.S. interests, analyz¬ killing stopped overnight. Established ing political vulnerabilities and eco¬ foreign policy was maintained. The nomic implications, and devising an business of government began to move arrangement that would keep commu¬ again. However, the revolt was extra¬ nist influence out of southern Africa. constitutional; the leadership was a However, the embryonic elements of a junta; large numbers of citizens wen Decisions had to be made Rhodesian settlement began to detained simply for having participat¬ emerge. ed in the previous political system. . . . and the final Later, Kissinger was replaced as a The United States and other friendly frequent visitor by Secretary of State foreign democracies suddenly faced determinant of “the right Cyrus Vance and U.N. ambassadors major questions of reality versus law Andrew Young and Donald McHenry. and principles versus interests. What thing” was more often In this period the United States finally now was the “right” course for dealing got over a difficult hurdle. Calcula¬ with Turkey? than not the conscience of tions continued on which Rhodesian guerrilla leader was going to emerge Choosing Policies the decision-maker. on top and what would be his attitude Embassy Ankara’s effort to chart toward the United States. However, that course centered on a short tele¬ President Carter decided that inde¬ gram sent to Washington the day of pendence and black majority rule un¬ the coup. Having described the situa¬ der any popularly supported leader was tion with reasonable accuracy and “right” for Rhodesia and Namibia, a comprehensiveness (no great trick un¬ course long urged by most of our em¬ der the circumstances), we laid down bassies in southern Africa. The United two commandments. Like the original States soon found a basis for coopera¬ Ten, these were couched in the nega¬ tion with the front line states, the tive. First, the United States should do United Kingdom, and the Rhodesian nothing which would threaten our im¬ leaders themselves, and eventually an portant security interests in Turkey. independent, majority-ruled Zim¬ Second, it should do nothing that babwe emerged—without the massive might impede a return to democratic bloodbath that had been expected. government. In sum, the “right” When I returned to Ankara early in thing was not to do the “wrong” 1980 as ambassador, Turkey was ex¬ thing.

30 FOREIGN SERVICE JOURNAL There was a philosophical basis for misusing the government’s money. sues—and the human implications— these judgments. The Turkish-Ameri- The Foreign Service Institute, which close up. It is their consciences that are can relationship was harmonious. It has courses on analysis, reporting, pro¬ most directly violated by an individual had been founded on mutual interests. tection, etc., refrains from trying to injustice or an unethical policy. It is There was every reason to believe that teach “right and wrong.” The other¬ they who have to explain and defend the generals shared this perception. wise comprehensive Foreign Service their actions to their host governments Unlike some of our Western European examination shows no interest in the and to their diplomatic colleagues. It allies, we judged on the basis of past candidate’s views on morality. is their rebuttals to Washington’s de¬ history—military takeovers in I960 cisions, the alternative approaches and 1971—and of our own close American Morality they may be able to offer, and in extre¬ knowledge of the generals that they The letters to ambassadors written mis their resignations which are most would restore democratic government. by all of our recent presidents set forth likely to turn a wrong U.S. policy into The important thing was not to im¬ ambassadorial responsibility and au¬ a right one. pede their doing what they intended. thority in categorical terms. However, To what extent do American diplo¬ All of the returns are not yet in, but it only the latest of them, President Rea¬ mats abroad actually perform this looks as if we were right. gan’s letter of September 22, 1981, function? The record is not easy to Common denominators in the jum¬ emphasizes broader objectives: “Carry¬ come by but the department’s files are ble of experiences set forth above are ing the American message of hope and full of ambassadorial cables and memo¬ not easy to find. To force the issues freedom. . . .Impartial and equitable randa blocking clandestine intelli¬ involved into the categories of either treatment of all United States govern¬ gence schemes to interfere in local law or politics would be artificial. To ment personnel. . . .The highest stan¬ politics, objecting to proposals to pun¬ resolve them exclusively in terms of dards of professional and personal con¬ ish aid recipients who have voted promoting U.S. interests would be duct.” The Foreign Service Act of against the United States in the Gener¬ virtually impossible. But old-fash¬ 1980, which gives congressional ap¬ al Assembly, and opposing develop¬ ioned as the words “right” and proval to ambassadorial primacy over¬ ment projects which would help “wrong” are, they seem the most ap¬ seas, has little to say on the goals for wealthy contractors or repressive po¬ propriate to describe the kinds of deci¬ which that primacy is to be used. The lice forces more than impoverished sions often faced by Foreign Service Senate Foreign Relations Committee citizens. There is also at least one officers. occasionally probes an ambassadorial helpful tradition firmly lodged in the The question, of course, is how to nominee on what he believes is right career Foreign Service: The obligation determine right or wrong. A few writ¬ for the United States in El Salvador or to report objectively and to dissent ers have brought the subject further on human rights, but a commitment when necessary from conventional wis¬ along than was the case a decade ago. to pursue that right is seldom a crite¬ dom has long been cherished and en¬ If, for example, Stanley Hoffmann's rion for approval. couraged. concept of distributive justice in inter¬ Indeed, right and wrong receive For now at least a substantial share national affairs is accepted, the United very little consideration in the U.S. of the burden of trying to determine States is not free to wash its hands of foreign policy mechanism. The em¬ right and wrong (whatever they may the Law of the Sea Conference and to phasis is on allocation of resources, on be) in the international activities of our go its own way as far as exploitation of domestic political consequences, on country is likely to continue to fall deep seabed resources is concerned. If hard-nosed determination of U.S. in¬ upon Foreign Service officers. As was Father Robert Drinan’s theses on nu¬ terests, and on getting what we want the case with Thomas Becket, who clear war are correct, we do not have a at the moment. pledged to obey his king “in all save choice on whether to participate in It is impossible to point to a body of the honor of God,” determining right arms control negotiations. doctrine for right decisions in interna¬ and wrong is not the least burdensome By and large, however, we have yet tional affairs, but it is easy to show who of official responsibilities. A Foreign to develop an American ethic to cover makes many of these decisions. Most Service officer does not have to bear the our activities abroad. Snatches of mo¬ moral or ethical acts by governments burden all the time. However, it rality appear here and there in the For¬ in international relations take place in comes to him or her on occasion, and eign Affairs Manual, but they are al¬ the field. It is the ambassador and his when it does, it is remarkable what a most entirely concerned with not or her subordinates who see the is¬ lonely time it is.

OCTOBER 1982 31 The Bomb

FSO Fred Upson called were no sandbags or sentries with ma¬ been conducting reconnaissance flights chine guns, or any other sign that Laos over Laos. These planes are armed, and the strikes for part of was a country at war. An unarmed In¬ have the right to return fire if fired dian guard in a blue-gray uniform upon. For public consumption, that’s the largest air war said, “Hello, sir,” just like the mer¬ all we say about our part in the biggest chants downtown. Inside, a pretty Lao air war in history. Did you know that? in history—until he receptionist took his name and invited Tonnage dropped, missions flown, by him to wait in the small room behind any measure you use, the air war in began to ask questions. her. A bookcase against one wall was Indochina is bigger than World War II empty except for a set of volumes of the and Korea, put together.” By JEROME DOOLITTLE U.S. Code. The waiting room table “No, I didn’t.” Upson thought of held back copies of Time, Newsweek, the vast airborne armadas in the old the Bangkok Post, and the Far Eastern World War II newsreels—the ranks of The embassy had put him up in Economic Review. Upson had just begun bombers filling the skies, the swarms the Laan Xang Hotel till his to look the collection over when the of fighter planes. house was ready. The way receptionist said, “Mr. Brautigan will “Anyway,” Brautigan went on, “we from there to the embassy took him see you now.” try to keep a fig leaf on the air war the down Samsenthai Street, where the The deputy chief of mission was a best way we can, so as not to officially shops were just opening. Indian mer¬ big man, with beefy freckled forearms. admit to any violations of the Geneva chants stood on the sidewalk outside His sandy hair was tousled, as if he had Accords. Both sides have been violat¬ their stores, very polite, very humble. just run his hand through it. His face ing the hell out of the accords since They all said, “Hello, sir,” as Upson was wide and open and pleasant, the they were signed, but they’re still the walked by. He turned off the business face of an older brother you can always most viable structure to build a peace street and onto a smaller dirt road that depend on. He smiled when he saw on when the time comes. Which, in led to a black, crumbling monument. Upson—a smile that somehow made my private opinion, will be in about The hotel clerk had given this to him the younger man feel that the DCM two years. Once President Nixon is as a landmark along the way—the That wanted nothing more fervently than to safely re-elected.” Dam, he had called it. The heat was welcome him aboard. “I don’t see the connection,” Upson already heavy. A dog lay in the dust “Well, here you are,” the DCM said. near the monument, in the total limp¬ said. “Good to see you, Fred.” “If he ends the war in his first term, ness of death. As Upson walked past, “Nice to meet you, Mr. Brautigan.” the right wings of both parties will see the dog slowly opened an eye, exam¬ “Jerry. Things are pretty informal to it he doesn’t get a second term. So ined him, and then let the eye fall shut here. You’ll see most of our people he’s got to keep it going till he gets re¬ again. wearing sports shirts to work, with no elected, and then we’ll fold our tents Just a few more yards down the road tie. Here in our office we like to wear and silently steal away.” was the embassy, an unimpressive ties and slip on a jacket when we go “Interesting thesis,” Upson said three-story structure painted white. out, the AID and military types, hell. neutrally. The building was windowless, giving As long as they don’t frighten the “Not that getting President Nixon it a bunkerlike appearance. But there horses. Well, Fred, it’s wonderful to re-elected matters to me one way or see you. We’re counting on you to another,” the DCM said. “The country Jerome Doolittle served in US IA in Laos clear up a little problem area in the of Laos does, though. Wonderful, gen¬ and Morocco. A former speechwriter for operation. Did they tell you anything tle people, but hopelessly unable to President Carter and director of public af¬ about the job when you went through take care of themselves. Thailand on fairs for the Federal Aviation Administra¬ Washington?” one side and Vietnam on the other, tion, he has written for Atlantic, Es¬ “Not very much. They said it would and both of them in the habit of quire, and other national magazines. be coordinating with the Air Force, snatching off pieces of Laos whenever This story is excerpted from the book The but they didn’t go into detail.” they get a chance. So what I’m work¬ Bombing Officer, by Jerome Doolittle, by “I’ll start at the beginning, then. ing toward, Fred, is to see Laos come permission of the publisher, E. P. Dutton, Since 1964, the United States, at the out of this mess with some kind of Inc. © 1982 by Jerome Doolittle. request of the Lao government, has internationally guaranteed neutrality 32 FOREIGN SERVICE JOURNAL ing Officer

Barbara Posey effort towarddiplomaticends. Asthe firm controlandchannelour overall paramilitary sidesofthemission under presence, tokeepthemilitaryand presence, themilitarypresence,” OCTOBER 1982 Air Forceliaisonofficer,you embody we needadominantStateDepartment Brautigan continued.“Andthat’swhy would betimeenoughtotakesides. opinion. Later,whenheknewmoreof Your jobandmine.Everything.” concerned, that’sthewholejustifica¬ and territorialintegrity.AsfarasI’m can effortinLaos isrunbytheambas¬ the politicalandmilitarybackground, tion forwhatwe’redoingouthere. that diplomaticpresence.The Ameri¬ to listenwithoutofferinghisown rishioners ofallpoliticalpersuasions, from watchinghisfatherdealwithpa¬ Upson laidtheprestrikeandpoststrikephotossidebyside. “That’s whatjustifiestheagency “Urn, Isee.”Upsonhadlearned, didn’t yetseeatall. And heexercisesthatresponsibility approving everysingleairstrikecar¬ The onlyopeningintheouter wallwas through you,Fred.” ried outbyU.S.forcesinthiscountry. the responsibilityofapprovingordis¬ down inUdorn.Theambassadorhas some SeventhAirForcegeneralsitting sador. Notthestationchief,notMACV sons, tobolts inside. Thewholeoffice which waschained,forsecurity rea¬ the onefilledbyairconditioner, same cold,flickeringilluminationand office thefluorescentlightsgaveoff sunny orstormy,butinsideUpson’s in SaigonorMACTHAIBangkok,not temperature atthesame72 degrees. the hummingairconditioner keptthe It couldbedayornightoutside, “I see,”Upsonsaid,althoughhe validated undertherulesofengage¬ validated, partiallyorfully Overlays showedwhichareaswereun¬ maps ofLaoswhichcoveredthewalls. was classifiedsecret,becauseofthe graphic mapsonthewall,greasepen¬ along theHoChiMinhtraildown others. Fullyvalidatedareas,mostly some typesofbombingbutnotfor allowed. Inpartiallyvalidatedareas, ed villages.Inthese,nobombingwas where thereweretemples,hospitals, ment. Unvalidatedareaswerethose photos. Therewerecrankhandlesto cils, compassesandprotractors,files south, werebasicallyfree-firezones. the AirForceneededpermissionfor POW camps,friendlytroops,inhabit¬ Air Forcebelievedthetargettobe,and every day.After-actionreportsonev¬ classified messagesthatcametohim avoid beingburiedbythehundredsof small shredder,too,sothathecould stereoscopic viewertomakethepic¬ which toexaminethereconnaissance engagement, andalargelight-tableon ments whichcomprisedtherulesof holding photographsandthedocu¬ vermicelli. to becomebillowingpiles ofpaper hours. Itwentthroughthe shredder, would beout-of-dateindays oreven most ofthepaperworkwasstuffthat thought mightbeoflateruse,but support. Upsonfiledwhateverhe al LaoArmy—neededinthewayofair Meo, SpecialGuerrillaUnits,theRoy¬ listed whatthegroundtroops—Thai, teams behindenemylines.Stillothers the locationoffriendlytroopsand results ofthestrike.Otherreportsgave weather, ordnancedropped,whatthe used, thecallsigns,time, ery strikelistedthetypeofairplane tures three-dimensional.Hehada move thefilmbackandfortha the hugeArmyMapServicetopo¬ ries ofphotographs onhislight-table. The toolsofUpson’snewtradewere Upson hadbeenwaitingfor these¬ 33 They showed several buildings, little tour lines showed to be a little flat- around the village—old ones, because more than huts, that he had refused to bottomed valley between two steep water was standing in them. Some validate as a target a week before. The ridges, he found Xieng Dat. He noted were close to the little houses, but strike request had been accompanied the village’s coordinates and went to there were no direct hits. The second by other photographs, showing an in¬ his files for the photo he half remem¬ photo, taken after the attack on the distinct line from one of the structures bered. The picture wasn’t sharp; the rocket storage site, showed three lines to the forest nearby. The Air Force had pictures in his files seldom were. The of fresh craters, roughly parallel. Two insisted the line was communications papers wrote about satellite and U-2 of the crater lines missed the target hut wire, which suggested a military tar¬ photography so clear that you could by a good margin, but one of the get. Upson thought the line might make out a ball on a putting green, bombs in the third string had hit right just as easily be a footpath. lenses of such incredible resolution next to it. The rockets lay scattered When the air attache appealed Up¬ that you could read newspaper head¬ like jackstraws around the smoking son’s disapproval of the strike request, lines from miles in the air. But the Air debris of the hut. He was able to get an the matter came to the ambassador’s Force’s pictures from just a few thou¬ idea of their size from a twisted bicycle attention. He directed the Air Force to sand feet in the air were fuzzy. Could that lay on its side not far from the take new reconnaissance photos, from the papers be right? Upson wondered. ruins. He dialed the army attache’s of¬ a lower altitude—and he bet Colonel Could anything really see that well fice and got Major Leroy Dutton on the Mike Costikyan, the air attache, twen¬ from a satellite’s altitude? Eagles? line. ty dollars that the new pictures would God? “Leroy,” Upson said, “what’s the prove Upson was right. At first Upson The photo from his files showed a biggest rocket or missile the bad guys took this as an uncomplicated expres¬ small village built along a stream use in Laos?” sion of support for the home team. Lat¬ which ran through the broad valley. “In the Nam they use the JT-IO, er he wondered if it wasn’t the ambas¬ He counted fourteen thatched roofs but it wouldn’t be worth humping sador’s way of saying that all his trust among the trees. Sticking out a little them to Laos for a little tiny war like was in Upson, and that Upson better, from under one of the houses was a row this one.” goddamnit, be right when he tangled of indistinct objects. Upson’s magni¬ “How long are they?” with the Air Force. fying glass just brought up the grain in “All set up to go, about eight feet.” Upson looked away from the stereo¬ the photo, making the row even less “They couldn’t be using another scopic viewer for a moment to rest his distinct. He called Major Mulhouse, model or something in Laos, could eyes, and then examined the photos the man in the air attache’s office who they? About twelve feet long?” again. What he saw relieved him enor¬ had tutored him in photo interpreta¬ “Negative. The JT-10 is already so mously; the twenty-dollar bet had tion months before. big it usually knocks the little guys on raised a minor difference of interpreta¬ “Remember the picture of a rocket- their ass when it goes off. Why?” tion to policy level. Since he had good storage dump you showed me a couple “I’ve got some old photos of missiles news to deliver, he walked the few of months ago?” Upson asked. or rockets, twelve feet long. From steps to the ambassador’s office instead “Which one?” the major said. MR-II, up the road from the PDJ.” of phoning. He found the ambassador “The one you said they use in the “Let me come by, okay?” where he often was—contemplating photo reconnaissance classes as a classic Dutton was there ten minutes later. the pins and unit flags on the war map example of a rocket-storage site. A vil¬ He was a short, heavily built man, that covered one wall of his office. “I lage called Xieng Dat, above and just with stiff black hair like an Indian’s. just got the photos we asked for last east of the PDJ. Would the coordi¬ This was his third tour in Laos, a coun¬ week, Mr. Ambassador,” Upson said. nates help?” try he knew as well as any American “No doubt about it this time. “No, I remember it. Didn’t I give ever had. The major glanced at the Couldn’t possibly be communications you a copy, though?” photograph for only a second, not wire. ” “You did, but I was wondering if bothering to use the magnifying glass. “That’s my boy,” the ambassador you had any after-strike pictures. Pre¬ “What kind of bull are they trying said. “Listen, Mike is coming over on sumably there was a strike?” to hand you?” he said. “You know something else in an hour. Have the “Presumably, but it was before my what those things are? Bundles of steel secretary let you know when he comes, time. That photo goes back a few reinforcing rods.” okay? And then you just wander in by years. Hold on, let me see what we “I know.” accident with the photos. We’ll teach got. . . . Okay, sorry to be so long, him to fool with the Lone Ranger.” but here it is. The rockets are blown all The next afternoon, Annie Cutler, over the place. Want me to send it Brautigan’s secretary, brought a copy Playing a hunch, Upson went over?” of the memo back to Upson. On the straight to the wall of his office where ‘Til come by. Thanks Bill.” top, the deputy chief of mission had the big maps hung. He unlocked one When Upson got back to his office written, “Good memo. Ambassador of the panels and slid it aside to expose again, he laid the prestrike and the concurs. Original sent to Costikyan for the section that included the Plain of poststrike photos side by side. The appropriate action.” Upson wondered Jars. Northeast of it, in what the con¬ first showed dozens of bomb craters all whether the DCM meant that the am-

34 FOREIGN SERVICE JOURNAL Barbara Posey OCTOBER 1982 ambassador reallycared,theairattache gan hadonlysentthememoalongto attache. dum’s recommendationaboutthe the slightchancethatBrautiganor keep hisInbasketclean.Butagainst tered somethinghissergeantcouldn’t mendation. ” with myimplementationrecom¬ on downtoSeventhAirForce,along along anyusetoyou?” colonel. “WasthatmemoJerrysent up thephoneandcalledair that itwasagoodmemo.Hepicked training photographs,orconcurred bassador concurredwiththememoran¬ dumps goforward?” said. make out.“Begyourpardon,sir?”he their attention.” like somethingthatshouldbecalledto ians.” Colonel CostikyanfiguredBrauti- After thecolonelhungup,hemut¬ “Yes, sir.Acouplehoursago.” “Did thatmemoonrocket-storage “Good enough.Itjustseemedtome “Damned straightitwas.Isent “Fred Upson,Mike,”hesaidtothe “I knowwhatyoumean,sir.” “Civilians, sergeant.Damncivil¬ gether, butcivilianslikeThompson he thinkthecommiesweregoingto those rockets,forexample.Whatdid that. SupposeUpsonwasrightabout to dowasdryuptheocean.Simpleas fish intheoceanofcivilianpopula¬ could getitthroughhisheadthatif fare-thee-well. Notaoneofthem and UpsonevenBrautigansome¬ Chi Minh.Theambassadorhaditto¬ was workingfor,usorgoddamnedHo Thompson, youneverknewwhohe Gus Thompson,Costikyanthought. ting almostasbadhispredecessor, enough totossoutthepersonalcover¬ for inaction,sinceBillFarleyknew Costikyan freeofanypossibleblame the kids,Mike.”Thiswouldleave unlikely anyway.BesttoMidgeand steel reinforcingrodsinMR-IIhighly clusive. Non-militaryutilizationof mentation. Photoevidencenon-con- note: “Bill:Recommendnon-imple¬ Force withahandwrittencovering had forwardedthethingtoSeventhAir use steelreinforcingrodsforanyway, tion likeMaosaid,thenwhatyouhad the commiesweregoingtoswimlike times werescrewingupthiswartoa ing note. This goddamnedUpsonkidisget¬ Algerian borderinsteadofworkers on grain illegallytopaysoldiers onthe claimed thekingwasusing PL480 who wasalwaysraisinghell because he team. AUSISguydownin Marrakech there wasaguywhowasn’t onthe say.” barely.” not ontheteamanymore.Asthey Not thatit’sanyofmybusiness.” you?” Gus workedninetofive,onthedot. tle thingspiledup.IguessmaybeI’m then somethingchanged,didn’tit? next postingwastoRome.” keep up." when theyeasedhimoutofhere.His days aweek.Theydidhimfavor poor GusThompson.Heusedtowork Annie said.“You’regettingtobelike said whenUpsonshowedhertheItal¬ hundred timeswithoutseeingit,”she He waspromotedtoFSO-4andhis in weekends,too.OtherwiseIcan’t health wasgoing.” twelve- orthirteen-hourdays,seven to goupthere,”Upsonsaid. bar.” why IneversawyouintheACAsnack ian’s tinysoupkitchen.“Iwondered Giovanni’s forlunch.” feet,” UpsonsaidtoAnnieCutlerat noon thenextday.“Letmetakeyouto good guys,orbecausetheywanttoget either oneofthemoughttobebombed. rules ofengagement,ifnottomakeit sake. Whatwasthewholepointof win thewar?Unlikeus,forChrist’s the peasantsontheirside,sotheycan there buildingdamsbecausethey’re Did hethinkthecommieswereup understand wasthatdamorbunker, to wintheheartsandminds.Whata ers, orsomekindofAID-typeproject impossible forthegoodguystowin? bleeding heartlikeUpsoncouldnever up thereintheboonies?Eitherbunk¬ “It’s funny,”hesaid.“InMorocco “Oh, you’restillonit.Butjust “No onethingchanged,Annie.Lit¬ “I thoughtyouwouldatfirst.But “Don’t thinkI’llgettoRome,do “The manwhohadthejobbefore “I’m goingtohavestartcoming “Your dayislongenoughasitis,” “Takes toomuchtimeoutoftheday “I musthavepassedthisplacea “I feellikesweepingyouoffyour 35 irrigation projects. He was probably Thompson, oh, yeah. Wasn’t he that took it in at a glance. “What a damned right, but I always thought he was guy who got into some kind of security shame,” he said. kind of a jerk to make so much noise trouble, someplace or other?” “What a damned shame? That’s it? about it. I liked the ambassador there. The bitterness in her voice suprised What a shame?” I like the Foreign Service. 1 liked my Upson. He wondered if there had been Brautigan came out from behind the teachers in school and college.” something between Annie Cutler and barrier of his desk and put a hand, ‘‘Well, it’s not too late,” Annie Gus Thompson. The bitterness made broad and heavy and reassuring, on said. ‘‘You’re still on the team, and him feel safe in asking a question he Upson’s shoulder. “Come on, Fred,” you can stay on it if you want to.” would not otherwise have risked. he said. “Let’s sit down.” They sat at a ‘‘And go to Rome?" “It can’t be intentional, can it, An¬ low coffee table with rattan armchairs “And go to Rome.” nie?” Upson said. “You don’t think around it, the broadcast transcript on “I think I’ll have to start coming they’re conscious murderers, do you?” the table between them. into the office on weekends instead, “No, it’s more dangerous than that. “We killed the woman Phailin right Annie.” They’re all children.” in this room,” Upson said. “Admit “We all do what we have to do. Just Walking Annie back across the it.” watch out, though. Don’t give them parking lot toward the embassy, Up¬ “Of course I admit it.” Upson felt anything to work with.” son was struck by something. Even a off balance, as if a door had unexpect¬ “How do you mean?” few weeks ago he wouldn’t have said edly swung wide open the instant he “Gus got two or three warning cita¬ “they.” He would have said “we.” But began to push it. “She died by acci¬ tions for security violations when the wasn’t the right word still “we”? dent,” Brautigan went on, “but we marine guards found classified materi¬ sent the plane up there with the mis¬ al on his desk that he forgot to lock up In an effort to calm down, Upson sile that went haywire. And either one overnight. It didn’t make any real dif¬ held his breath before he went into of us could have stopped that plane ference, since the whole suite of offices Brautigan’s office, but it didn’t work. from going up there, so we killed her is a secure area. But they made sure it “What’s wrong, Fred?” the deputy right in this room, yes.” got in his file, and people kept bring¬ chief of mission said on seeing Upson’s “What does that make you feel like, ing it up in a kind of a kidding way, expression. Upson handed him the Jerry? It makes me feel like a only not really kidding. For the rest of Pathet Lao broadcast reporting on the murderer.” his career, people will be saying, ‘Gus bombing of Samneua ford. Brautigan “I feel that it’s a shame.” v, MGMB, inc. Realtors 362-4480 Experienced competent staff ready to serve your needs in sales, rentals, DOMESTIC management, investments. John Y. Millar* Carol Owens* Carolyn Rayfield William C. 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36 FOREIGN SERVICE JOURNAL “Jesus Christ.” “One you know is wrong might be don’t really need a man up there.” “Fred, listen me out. By the stan¬ right,” Brautigan said. “One you’re Upson looked at the DCM in sur¬ dards we’re both applying right now, a sure is right might be wrong. Nobody prise. He hadn’t thought the thing lot of people have been killed in this can do any job perfectly. You just do it through as far as asking for reassign¬ room. And in other rooms all over the the best you can. ment, but he wasn’t disposed to mission, both by accident and on pur¬ “If a job’s worth doing, it’s worth protest. pose. And in other rooms in Hanoi, doing right. Is that it?” “This new JOT should be able to and Samneua, and in Moscow and Pe¬ “I suppose.” handle the job,” Brautigan said. king and Washington, too. It’s what “And if a job isn’t worth doing? “Don’t you think so? Somebody with happens in a war. The end product is What about that, Jerry?” your amount of experience was wasted dead people.” “Your job is worth doing.” in it, anyway. The job’s ninety percent “The woman Phailin.” “I mean the whole job. The air clerical. In the military, they’d have an “Dead civilians aren’t the intended war.” enlisted man doing it. I’ve had it in the product, but they’re an occasional by¬ The deputy chief of mission looked back of my mind for a long time that product. If the missile had gone down at his freckled hands on the table you could do the mission a lot more straight, she wouldn’t have been hit. for a moment, and then gazed at a good in the political section, but I But there’s waste, confusion, error, point over Upson’s shoulder. The fin¬ didn’t dare switch you. As long as you carelessness. Callousness, indifference, gers of his right hand drummed sound¬ seemed satisfied here with us, I was cruelty. Your job is specifically to cut lessly on the table. “All right,” he said afraid you might misread reassign¬ down on those things. But you make at last. “I see what you’re saying. I ment to mean we weren’t satisfied with mistakes, too.” don’t agree with you, but you’ve come your work.” “Just like the missile did?” to your conclusion for decent and hon¬ As Upson left the office, he didn’t “Just like the missile. We both orable reasons. Could you bring your¬ much care whether they were satisfied made a mistake this time, me more self to stay on the job for just another with his work or not. He was just than you. And we’ll make mistakes couple of weeks, though? We’ve got a grateful that the decision had been again.” junior officer trainee coming on the reached, even if inadvertently. It was “Not this mistake, I won’t. I’ll nev¬ twenty-fifth, fresh out of FSI. I was the decision he would have had to er sign off again on a request I know is going to send him up to Sam Thong, come to anyway, eventually. At least wrong.” but it was just to get his feet wet. They he thought it was.

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OCTOBER 1982 37 Brautigan nodded toward a chair wore your wool uniform even if it was “Welcome to the turkey farm, Fred. and said, “Sit down, Fred. What can I hot; from that day on you wore khakis, It’s not so bad Over here. Sort of like do for you?” He didn’t come out from even if it was cold. Now obviously on one of those independent eating houses behind his desk to sit in one of the certain days and in certain places, that in college. We may not be in the fra¬ other chairs, as he usually did. rule looked wrong and stupid. That’s ternities, but we have each other. If “I just wanted to talk to you before I always the case when you apply general you do good work for me, I’ll take care signed off on my OER, Jerry.” rules to particular cases. But you have of you as well as I can. Which is pretty “You don’t have any problems with to have general rules in any large orga¬ well. When I do your OER in August, it, do you? It’s a damned good report. ” nization, or it’s no longer an organiza¬ it’ll be based on your performance in “Well, most of it. I was just think¬ tion. That means, though, that there’s the political section, not on how you ing about here under ‘Work Per¬ a certain amount of stupidity and in¬ got along with the Little Field Marshal formance,’ where you say, ‘This young justice and even immorality built into across the hall.” officer occasionally displays poor judg¬ all large organizations. Do you begin Upson knew that some of the junior ment in the discharge of his duties.’ I to see where I’m going?” officers called the ambassador that, but don’t know just what you mean by “Not really, no. I was supposed to he was surprised to hear it from the that, so I don’t know what I should be judge particular cases. That’s what my chief of the political section. Goldman doing differently.” job was.” was a FSO-2, only one step from the “Fair enough, Fred. First off, let me “That’s true up to a point. But there top grade. Upson himself had been say that I wasn’t kidding when I just has to be a certain amount of play in promoted up to FSO-5 during his tour said it’s a damned good report. You any large machine. If you engineer the in Morocco, and had hoped to make 4 ought to see one or two of the OERs I tolerances so close that they approach during this tour. “Jerry already did an got when I was your age. If I had let perfection, you may have a beautiful OER on me,” he said. “I just got it myself get discouraged, I’d be selling machine. But it’ll seize up when you yesterday. Apparently he had to do one life insurance for a living today.” try to run it. The important thing is covering the part of the rating year He paused and smiled. Since it the operation of the whole machine, when I worked over there.” seemed to be expected of him, Upson Fred, not the theoretical perfection of “How did you make out?” smiled back. “The fact is,” Brautigan one little part of it.” “He said I lacked judgment.” went on, “you’ve got a long and suc¬ “You mean I showed poor judgment “That’s pretty rough. Like saying a cessful career ahead of you in the For¬ by doing my job too well?” running back can’t run. Judgment’s eign Service, and you’re making a mis¬ “Let me try again. The machine we the only thing you’ve got to sell.” take if you think this report is going to have here is an unusually complicated “How can I appeal it, though?” Up¬ change that. It’s a fine report.” one, with a lot of parts that normally son asked. “It’s like having a bad atti¬ “Except for that one part.” wouldn’t mesh too well. It’s important tude in school. You can never prove “I had to put that in, Fred. The that the ambassador maintain his con¬ you don’t have one, because it’s the whole system breaks down if you don’t trol over those different parts—the teachers who decide what one is.” evaluate officers as honestly as you CIA, AID, the military attaches, and “Have you signed off on his evalua¬ can. ” so on. Otherwise, the Pentagon would tion yet, Fred?” “How did I display poor judgment, pour a half-million troops into Laos “Not yet.” though? What are some examples? and pave most of the country over for “I’d go ask him, very politely, to That’s what I want to know.” runways. But the ambassador can’t co¬ explain what he means, so you can do The deputy chief of mission clasped erce those different parts, or elements, better in the future. He can’t make it his big hands together behind his neck of the mission. If the machine is to any worse; he’s already blown you out and leaned back in his chair. “All work, each of them has got to cooper¬ of the water for promotion for at least right,” he said, “let’s take the business ate, and they can withhold that co¬ the next three years, even if your next of the strike on the Samneua ford ...” operation in a thousand little ways bosses think you’re Metternich. And “But I was right, Jerry. They without ever disobeying a direct order. maybe he’ll soften it a little if you go in missed the damned ford and blew up So if somebody wants to try out one of and see him. Jerry doesn’t really like an innocent woman. My judgment their little toys and there doesn’t seem confrontation.” wasn’t poor. My judgment was to be too great an objection to it, it’s Neither did Upson, and he was un¬ vindicated.” best in the long run to let them go easy later that afternoon while waiting “Your judgment on the strike re¬ ahead. As long as you say yes in such a by Annie Cutler’s desk for Brautigan quest itself, sure. That’s not in ques¬ way as to let them know you still exert to be free. “Is it that damned OER?” tion. I shared that judgment myself, final control. And I think we did that, she asked. “I typed it, is how I know you’ll recall. I’m talking about your you and I. Does that make sense to about it. But nobody else has seen it.” judgment in the whole matter. Let me you?” “Yes, that’s it.” give you an example. When I was in “I guess it does. A little.” Upson “Well, his light’s out now, so he’s the Army, every spring there would be smiled wanly as they rose to shake off the line. You can go on in. Good a certain day when you changed into hands. Then he turned and left the luck.” summer uniform. Up to that day, you room. CD

38 FOREIGN SERVICE JOURNAL David D. Durham, Timberlake Scholar¬ morial Scholarship, University of Cali¬ ship, University of Maryland/Munich. fornia/Berkeley . James R. Durham, AAFSW Scholarship, Suchiraphon McKeithen, Edward T. FOREIGN University of Maryland/Munich. Wailes Scholarship, San Francisco State Christopher H. Floyd, AAFSW Scholar¬ University. ship, Delaware Technical and Commu¬ Rachael A. Nelson, C. Montagu and SERVICE nity College. Frances M. Pigott Memorial Scholar¬ Desiree D. Garza, Wilbur J. Carr Me¬ ship, McHenry County College. PEOPLE morial Scholarship, George Mason Phalika C. Ngin, Robert E. and Florence University. L. Macaulay Memorial Scholarship, St. Foreign Service Juniors Melissa J. Garza, Wilbur J. Carr Memo¬ Petersburg Jr. College. rial Scholarship, George Mason Deborah S. Nugent, AAFSW Scholar¬ Awarded AFSA/AAFSW University. ship, University of New Hampshire. Scholarships Charles T. Goodnight, John Campbell Jerald R. O’Brien, David K. E. Bruce White Memorial Scholarship, Universi¬ Scholarship, Rensselaer Polytechnic In¬ The initial list of the 1982—83 Ameri¬ ty of Maryland/College Park. stitute. can Foreign Service Association Scholar¬ William L. Goodnight, AAFSW Schol¬ Jonathan G. O’Brien, John F. Simmons ship Program Awards has been announced arship, University of Maryland/College Jr. Memorial Scholarship, Brown by the Hon. H.G. Torbert Jr., chairman Park. University. of the Committee on Education. AFSA Catherine R. Grant, Edward T. Wales Vicki M. Penn, American Women’s once again expresses appreciation to all Scholarship, University of Tampa. Group/Bonn, University of Maryland/ those who have supported the scholarship Christine L. Grant, Lowell C. Pinkerton College Park. programs with their generous contribu¬ Memorial Scholarship, University of Anne E. Penney, AAFSW Scholarship, tions, and in particular the Association of Pittsburgh. College of William and Mary. American Foreign Service Women for Estelle M. Grant, AAFSW Scholarship, Kathryn J. Penney, Timberlake Scholar¬ their continued interest and efforts on be¬ University of Pittsburgh. ship, College of William and Mary. half of Foreign Service Juniors with funds Regina A. Grant, Betty Carp Scholar¬ Dorothy M. Penney, Leslie A. Squires raised at their annual AAFSW Bookfair. ship, University of Pittsburgh. Memorial Scholarship, Carnegie Mellon The names of the recipients, their schol¬ Deborah C. Hagen, AAFSW Scholar¬ University. arships, and colleges and universities ship, University of LaVerne. Jeanne-Marie Pogue, AAFSW Scholar¬ follow: Charles G. Hall, AAFSW Scholarship, ship, University of Virginia. Marit Anderson, Julius C. Holmes Me¬ Maine Maritime Academy. John R. Pogue, Gertrude Stewart Memo¬ morial Scholarship, James Madison Sara Jean Hewes-Manapol, AAFSW rial Scholarship, George Mason University. Scholarship, University of Rochester. University. Rolf R. Anderson, Harry A. Havens Kenneth F. Hewes-Manapol, Arthur B. Patricia A. Pogue, Wilbur J. Carr Me¬ Memorial Scholarship/AFSPA, Univer¬ Emmons Memorial Scholarship, Yale morial Scholarship, Mary Washington sity of Virginia. University. College. Alison V. Apel, Gertrude Stewart Me¬ Ivan A. Holsey, AAFSW Scholarship, Caitlin J. Porter, Oliver Bishop Harri- morial Scholarship, Bryn Mawr Morehouse College. man Memorial Scholarship, College of College. Amy S. Hough, David W. Christenson William and Mary. Michael C. Apel, Gertrude Stewart Me¬ Memorial Scholarship, St. Olaf College. Leslie C. Sapp, AAFSW Scholarship, morial Scholarship, Carleton College. Paul R. Hubler, Theodore A. Xanthaky State University of New York/Purchase. Mark E. Brogley, AAFSW Scholarship, Memorial Scholarship, Pitzer College. Michael P. Scanlon, American Consulate University of Southern Florida. Stephen A. Hubler, AAFSW Scholar¬ General Ladies’ Club/Frankfurt, Cali¬ Earl Roland Brown, Robert Woods Bliss ship, University of Southern California. fornia Polytechnic State University. Scholarship, University of Utah. Barbara A. Lowe, Betty Carp Scholar¬ Nora Sherwood, Gertrude Stewart Me¬ Aaron L. Brown, AAFSW Scholarship, ship, Asbury College. morial Scholarship, University of Brigham Young University. John B. Marston, Timberlake Scholar¬ Colorado. Peter H. Car well, Avis Bohlen Memorial ship, Marietta College. Margaret A. Simpson, Vietnam Memo¬ Scholarship/AAFSW, Wesleyan Uni¬ Cynthia R. Matera, Norris S. Haselton rial Scholarship, University of Califor¬ versity. Memorial Scholarship, College of Wil¬ nia/Santa Cruz. Marina S. D’Angelo, Marcia Martin liam and Mary. Daniel A. Webb, Edward T. Wailes Moore Memorial Scholarship, Universi¬ Anika Martin, Wilbur J. Carr Memorial Scholarship, Le Tourneau College. ty of Maryland/Baltimore. Scholarship, University of Tennessee. James D. Welch Jr., AAFSW Scholar¬ Mauro G. D’Angelo, William Benton Diana Martin, Jefferson Patterson Schol¬ ship, Pennsylvania State University. Scholarship, University of Maryland/ arship, University of Tennessee. Susan V. Westmoreland, John Foster Baltimore. Cynthia A. McIntyre, AAFSW Scholar¬ Dulles Memorial Scholarship, Con¬ Deborah A. Drechnowicz, Adolph ship, Millsaps College. necticut College. Dubs Memorial Scholarship, University Deana F. McIntyre, Mark G. Mattran Jennifer K. Wellde, Naomi Brown Hon¬ of Rhode Island. Memorial Scholarship, University of or Scholarship/AAFSW, University of Michael E. Drechnowicz, Hope Rogers Southern Mississippi. Virginia. Bastek Memorial Scholarship, Universi¬ Tasaneeya McKeithen, Charles B. Philip C. Wellde, Edward T. Wailes ty of Rhode Island. Hosmer Memorial Scholarship, San Scholarship, University of Richmond. Philip DiTommaso, AAFSW Scholar¬ Francisco State University. Matthew P. Wills, AAFSW Scholarship, ship, New York University. Molly McKeithen, Rob L. Berrett Me¬ Clark University.

OCTOBER 1982 39 The AFSA Committee on Education embassy in Moscow. He was deputy assis¬ retired, the Jerusalem Post described him as members are the Hon. H.G. Torbert, Jr., tant secretary of state for European affairs “a sagacious political intelligence who chairman; Robert L. Caffrey, State; David during the Eisenhower administration and could continuously and precisely define for T. Jones, State; Sheila Mack, AAFSW; Su¬ was appointed deputy chief of mission of his own country and for his hosts the po¬ san Modi, USIA; James D. Singletary, the London embassy in 1955. President litical aims of both, and more specifically AID. Clarke W. Slade is educational con¬ Kennedy appointed him ambassador to Is¬ the limits of tolerance of both.” Survivors sultant to the committee, and Dawn H. rael, and he retired from the Foreign Ser¬ include a sister, Ellen, of Gloucester. Con¬ Cuthell is the Scholarship Programs vice when he left that post. tributions in his memory may be made in administrator. According to former associates, the es¬ his name to the AFSA Scholarship Fund. teem in which he was held by the Israeli Attention Foreign Service Juniors — government was the reason he remained as Louis F. BLANCHARD, former counselor of Apply Now for 1983-84 Scholarships. ambassador there for so long. When he the embassy in Managua, Nicaragua, died All eligible dependent students of Foreign Service families, who have served or are currently serving abroad, are encouraged to apply to the Scholarship Program of the American Foreign Service Association im¬ mediately. In addition to the Financial FOREIGN EXCHANGE Aid grants for undergraduate study, there are Merit Awards of $500 for High School students graduating in 1983, based on TAX RETURNS RENT A CAR competitive academic excellence. There is no limit to the number of de¬ TAX PROBLEMS, returns and representation. T.R. Al RENT-CAR, featuring new 1982 FORDS, offers pendent Foreign Service students who may McCartney (ex-FS) and John Zysk (ex-IRS), En¬ economical daily, weekly, and monthly rates. We apply from one family, if eligible. There is rolled Agents. Business Data Corp., P.0. Box rent all size cars, from sub-compacts to station a limit, however, on the amount of money 57256, Washington, DC 20037. (703) 671-1040. wagons. 8 passenger vans and trucks also avail¬ TAX SHELTER GUIDANCE. able. Ask about our weekend specials. For informa¬ that can be awarded to a single student and tion and reservations call (703) 684-4087. AMERI¬ also collectively to a family. Grants for TAX RETURNS. All tax matters including consulta¬ CAN INTERNATIONAL RENT-A-CAR, 2804 individual students range from $200 to tion, extensions, filing one late return, IRS repre¬ Jefferson Davison Highway, Arlington, VA 22202. $2000 per year, according to need and sentation, for one annual fee ($125). Milton E. Carb, E.A., 833 S. Washington St., #8, Alexandria, VA limitations imposed by the school attend¬ 22314. (703) 684-1040. GRIEVANCES ed. The total amount awarded to a family cannot exceed $3000 per year, regardless BOOKS GRIEVANCE COUNSELING: Retired Senior For- of the number of college-attending mem¬ eign Service officer attorney who served on Griev¬ bers. All financial aid applications are ance Board staff will assist grievance presentation. evaluated by the College Scholarship Ser¬ IF YOU ARE LOOKING for an out-of-print book, Richard Greene, 174 Moore St., Princeton, NJ perhaps I can find it. Dean Chamberlin, FSIO-re- 08540. (609) 921-1422. vice in Princeton, N.J. (or Berkeley, Ca.). tired. Book Cellar, Freeport, Maine 04032. AFSA also uses this system to ensure equi¬ table distribution of its scholarship funds. CURRENT PAPERBACKS airmailed within 5 days BED & BREAKFAST Students may request application forms at reasonable prices. Send for monthly list to Circle for either the Financial Aid or Merit Enterprises, Box 1051, Severna Park, Maryland 21146. NEED A BED IN D.C.? Victorian home, turn-of- Awards (or both, if qualified) by writing to century decor, Embassy area, walk to Metro. $30 Dawn Cuthell, Scholarship Programs Ad¬ GOOD USED BOOKS bought and sold. Post cards single, $35 double (includes breakfast). Kalorama ministrator, AFSA, 2101 E. St. NW, and sheet music. Free search service. BOOK- Guest House, 1854 Mintwood Place, NW, Wash¬ ington DC 20009. (202) 667-6369. Brochure Washington, D.C. 20037, giving Foreign STOP, 109 S. Alfred, Alexandria, VA 22314. (703) 548-6566. available. Service affiliation. Deadline—Feb. 15, 1983. AFSA membership is not an eligi¬ REAL ESTATE bility requirement, and Foreign Service INVESTMENTS personnel in the lower grades are encour¬ NORTH MYRTLE BEACH. Thinking of a vacation aged to apply. INVESTMENTS/IRAs: E.F. HUTTON & COM¬ or retirement home, or other investment in coastal PANY, INC.: G. Claude Villarreal (former FSIO), South Carolina? If so, call or write Bill Dozier (FSO- Account Executive, 1825 Eye Street, N.W., Suite retired), Dozier Associates, POB 349, North Myrtle Deaths 1000, Washington, DC 20006. (202) 331-2500 or 1 Beach, S.C. 29582. Tel. (803) 249-4043. (800) 368-5811. WALWORTH BARBOUR, whose tour as am¬ bassador to Israel, 1961—73, was one of the CENTER STAGE: Your real estate problems de- longest of any American diplomat in his serve the spotlight I will give them. Life in the For¬ EXCHANGE RATES eign Service merry-go-round has given me a spe¬ rank at a foreign post, died of pneumonia cial understanding of your needs. I will help you with July 21 in Gloucester, Massachusetts. He buying, selling or renting a house, and I also provide Classified advertising in the FOREIGN EXCHANGE is was 74. property management services. Elizabeth H. Mas¬ open to any person who wishes to reach the profes¬ A native of Cambridge, Massachusetts, ters. VAN METRE PROPERTIES, INC., 9880 Main sional diplomatic community. The rate is 50 cents St., Fairfax, VA 22031. Tel.:(703) 385-3930. per word per insertion. Telephone numbers count and a graduate of Harvard University, Bar¬ as one word and zip codes are free. To place a bour joined the State Department in 1930. NORTHERN VIRGINIA BOUND? Bill Mason classified ad or to receive our rate card for regular In addition to Washington, he served in (FSSO, retired) understands your needs. Contact display advertising, write Foreign Service Journal, Italy, Greece, Iraq, Bulgaria, and Egypt. him at Showcase Realty, 5105 Backlick Road, An- 2101 E St. NW. Washington, DC 20037. Checks In the early 1950s he was counselor of the nandale, VA 22003. Tel.:(703) 354-6500. should accompany all classified insertion orders.

40 FOREIGN SERVICE JOURNAL of double pneumonia on May 17 in El beria was “astonishing and undeserved former consul general in Palermo, Italy, Paso, Texas. punishment for a man who had acted in was elected national secretary for alumni Blanchard, who was born in Las Vegas, the finest tradition of our nation’s diplo¬ associations of Delta Phi Epsilon. The fra¬ New Mexico, had a long career in the For¬ matic service.” He returned from Monro¬ ternity was founded at the Georgetown eign Service. He served in Mexico City as via in 1979 and was named ambassador-at- University School of Foreign Service in assistant to Ambassador Walter Thurston large. At the time of his death he was a 1920. It has 24 collegiate chapters and on the Braceros Treaty and in intelligence U.S. member of the U.N. commission on some 4000 members. It is directed toward work with Nelson Rockefeller, was on the human rights. those interested in careers in diplomacy monetary commission in Bolivia, was In 1971 he was married to Carlyn and foreign trade. Asencio succeeds as principal officer in Tijuana, Mexico, Mexi¬ Brown Pogue, who survives, as well as president KENNETH W. BLEAKLEY, deputy can desk officer in Washington, and secre¬ their son William Beverly III and two chief of mission at the embassy in El Salva¬ tary of the International Boundary and stepchildren, Dion Pogue and Ann V. dor and a former president of AFSA 1979— Water Commission in El Paso, where he Pogue. 81. researched the lands disputed by Mexico and the United States, resulting in a JOHN COOK, former administrative officer RICHARD J. BLOOMFIELD, ambassador to settlement. for AID and a retired lieutenant colonel in Portugal since 1978 and a career diplomat He is survived by his wife, Helen, a son, the Air Force, died in late June in Louis¬ who has served at various Latin American Louis F. Jr. of Jakarta, two daughters, ville, Kentucky. He was 65. and European posts, including that of am¬ Maggi Davidson of Rochester, Minnesota, Cook joined the agency in 1961 and bassador to Ecuador, was named director and Barbara Hohenberg of Santa Barbara, served in Chile, Honduras, Peru, Viet¬ of the World Peace Foundation. He is 54 California, and four grandchildren. nam, Nepal, Afghanistan, and the Philip¬ years old. The foundation, a private, non¬ pines. He retired from AID in 1978. He is profit organization, is the oldest of its kind W. BEVERLY CARTER JR., a former news¬ survived by his wife, Betty Taylor Cook, in the United States sponsoring research, man who served at three ambassadorial who lives at 3610 Fallen Timber Dr., writing, and public discussion of interna¬ posts and was considered a hero for his role Brownsboro Farm, Louisville, Kentucky tional issues. It was founded in 1910. in negotiating the release of three Ameri¬ 40222. cans and a Dutch woman kidnapped in JOHN H. HURLEY, former Foreign Service Tanzania while he was ambassador there, EDWARD POOR MONTGOMERY died last officer, was ordained a Roman Catholic died May 9 at Suburban Hospital near spring, according to A. J. Hulett of priest at St. Matthew’s Cathedral, Wash¬ Washington of a heart attack. He was 61. Cannes, France. Hulett did not report a ington, on May 29. Hurley entered the After attending law school at Temple date, cause, or place, but did say, “He Foreign Service in 1964 and served in Cape University, Carter became a journalist for died peacefully at home and with friends, Town, Hamburg, CORDS-Vietnam, and 12 years in Philadelphia. He then joined as he would have wished.” Bonn. He chaired the A-100 Basic Officer the old USIA, serving in Kenya and Nige¬ Course for 10 classes, served in the West ria. He was named deputy assistant secre¬ MATILDA W. SINCLAIR, who was chief of European division of INR, and was desk tary of state for African affairs, following mission social secretary and protocol offi¬ officer for Austria, Switzerland, and Lich¬ which he became ambassador to Tanzania cer at the Rome embassy in the early tenstein. He is now associate pastor of St. in 1972. In 1975 he bargained for the 1960s, died in Italy on July 18. The cause Francis de Sales Church, 2021 Rhode Is¬ release of four hostages held by rebels from of death and her age are not known. land Ave. NE, Washington, D.C. 20018. Zaire. One of the men whose lives he saved In addition to Rome, she served in Bern wrote: “He strove against seemingly insur¬ and Vienna, starting in 1942. She was DAVID D. NEWSOM, former U.S. ambassa¬ mountable challenges, the terrorists’ re¬ skilled in several languages, and was fluent dor and under secretary of state for politi¬ peated and certain threats against our in French, German, and Italian. Her inter¬ cal affairs, was named associate dean of the lives, their 60-day deadline and primitive est in foreign languages caused her to leave Georgetown University School of Foreign communications relying on dugout canoe a testamentary bequest to AFSA and the Service on July 6. He will continue to and foot messenger. Those of us who came Department of State to be used "to reward serve as director of the Institute for the to know him through this period found a superior achievement by career officers in Study of Diplomacy at the school, which man of rare principle and integrity, a great the Foreign Service in the study of ‘hard’ he joined in 1981 after a career of 34 years humanitarian and a brilliant diplomat.’’ languages.” Details will be announced as in the diplomatic corps. Newsom’s ambas¬ Details of the negotiations were never soon as appropriate procedures for admin¬ sadorial appointments were Libya, Indone¬ made public, but Carter was withdrawn as istering the awards have been completed. sia, and the Philippines. ambassador and then Secretary of State Henry Kissinger told reporters that “we Honors Birth are trying to maintain the policy that ter¬ rorists cannot negotiate with American of¬ DIEGO C. ASENCIO, assistant secretary of RYAN BERNARD NOLAN was born May 4 to ficials.” Former Washington Mayor Wal¬ state for consular affairs and former ambas¬ Robert B. and Mary P. Nolan in Fairfax, ter Washington said that “America should sador to Colombia, was elected to a two- Virginia. The father is budget officer for be proud to have produced a great man year term as national president of Delta the personnel bureau in M/EX. who cares about humanity, knows when to Phi Epsilon, Professional Foreign Service draw the line and makes decisions for the Fraternity, Inc., on July 21. RONALD A. best.” Speaking for the Congressional DAVIDSON, special assistant to the U.S. The Journal welcomes contributions to the FOR¬ Black Caucus, Rep. Charles Rangel (D.- coordinator or refugee affairs, was elected EIGN SERVICE PEOPLE section. Announce¬ N.Y.) told the Foreign Relations Com¬ president of the Washington Alumni As¬ ments, obituaries, etc., may be sent to Jour¬ mittee that the subsequent withdrawal of sociation of Delta Phi Epsilon. JOSEPH O. nal, Foreign Service People, 2101 E St. NW. Carter’s nomination as ambassador to Li¬ ELBAN, retired Foreign Service officer and Washington, D.C. 20037. BUY DIRECT FROM CHRYSLER AND SAVE.

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