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>iei in Berlin itir Representation "he Tongue-Tied Diplomat? language Training in the Foreign Service ~v\ Paul Simon Lannon Walker o 0 o o Hume Horan 0 o o O 0 ® 0 0 0

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Politics and the Foreign Service

ecently in this space we raised the thorny and longstanding prob¬ R AMERICAN FOREIGN lem of relations between Congress and the Foreign Service, not¬ SERVICE ASSOCIATION

ing the unfortunate fact that many in Congress do not share our Governing Board good opinion of ourselves. Now there is another, very serious dimension President: PERRY SHANKLE State Vice President: EVANGELINE MONROE to the congressional relations problem that reared its head in the last days AID Vice President: Vacant USIA Vice President: WILLIAM JACOBSEN of the 100th Congress that also requires our attention. Secretary: Vacant Before adjourning this fall die Senate removed the names of two For¬ Treasurer: SAMUEL MOK State Refnrsentarives: MI( 11AEL (X)TTER eign Service officers from the Senior Foreign Service promotion list. The BILL DUFFY JONATHAN FARRAR two affected are career officers, one an ambassador and the other a deputy ROSS QUAN CHARLES SCHMITZ chief of mission in different embassies in Central America. The Senate’s AID Representative: CHARLES UPHAUS action against them exemplifies the problem we must address: the role USIA Representative: VANCE PACE Retired Representatives: L. BRUCE LAINGEN of career officers in foreign policy situations that arc highly charged emo¬ DAVID SCHNEIDER tionally and politically. What to do about Central America has divided JOHN THOMAS Americans for a long time. The issue long predates the Reagan administra¬ Staff Director Jar tion. And the problems that flow from this have taken a toll in the careers Administration: SABINE SISK General Counsel: SUSAN Z. HOI.IK of other professionals before these two FSOs. Controller: ELLEN TENN Membenhip Coordinator: MARI RADFORD Political partisanship in foreign affairs and the search for the elusive Membership Assistant: JENNIFER EVANS ideal of a bipartisan foreign policy is a problem for the partisans. While Director for Member Services: C I IRIS BAZAR bipartisanship is clearly preferable and makes our job easier, as we saw Member Sendees Representatives: BRUCE A. HENOCH for example in the Phillipincs, achieving bipartisanship is a political proc¬ JANET SCHOUMA( HER LejialAssistant: CHRISTOPHER PERINF. ess that we probably can and should influence only slightly, if at all. We ' Law Clerks: ELLEN SILVER must serve our elected and appointed leaders loyally and enthusiastically ADAM G. SPIEGEL Administrative Assistant: KAREN DENT within the limits of our personal standards. If we cannot, for whatever Executive Assistant: ASHLEY NEY reason, we should leave the Sendee or at least seek reassignment to a Professional Issues RICHARD S. THOMPSON more acceptable post. We need to do our job without crossing the line Congressional Liaison of partisanship and we have every right to expect members of Congress ROBERT M. BEERS, RICK WEISS Scholarship Programs to respect us for that and to pursue their foreign policy objectives on the CR1STIN K. SPRINGET political level. The American Foreign Service Association, founded in 1924, is the professional association of the Foreign We all recall President Truman’s maxim about staying out of die kitchen Service and the official representative of all Foreign if you can’t stand the heat. Most Foreign Sendee professionals enjoy some Service employees in the Department of Stare and the Agency for International Development under the terms heat and expect to get singed now and then. But our promotion list? of the Foreign Service Act of 1980. Active or Retired membership in AFSA is open to all current or retired AFSA recently began an effort to shed some light on this problem. employees of the U S. foreign affairs agencies. Asso¬ We sponsored a luncheon seminar at which Department of State officials ciate membership is open to persons having an interest in or close association with the Foreign Service. Annual heard from and exchanged views with one of our career officer ambassa¬ dues: Active Members—S65-143; Retired Members— $30-45; Associate Members—S35. All AFSA members dors who recently returned from a critical Central American embassy. are members of the Foreign Service Club. Please note: AFSA dues and legislative Action Fund donations may We plan to pursue it further within the Service and on the Hill when the be deductible as an ordinary and necessary business new Congress convenes. expense for federal income tax purposes. Scholarship and AFSA Fund donations may be deductible as chari¬ table contributions. • AMERICAN FOREIGN SERVICE ASSOCIATION —Pern Shankle 2101 FI Street NW, Washington, D.C. 20037. Mem¬ bership inquiries, controller, professional issues, schol¬ arship programs, insurance programs, JOURNAL offices: (202)338-4045. Governing Board, standing committees, general counsel, labor-management relations, member serv ices, grievances: (202)647-8160. • Foreign Service Club (202)338-5730.

2 Editorial Board: Chairman ANTHONY C.E. QUAINTON Vice Chairman PHILIP-(MICHAEL GARY JIM ANDERSON LAWRENCE FLO IS BERG JOHN E. LANGE FOREIGN SERVICE PATRICIA MAI.LON JOHN D. PIELEMEIER BERNARD REICH LYNN SEVER PERRY SHANKLE DAVID E. ZWEIFEL “The Independent Voice of the Foreign Service”

Editor ANN LUPPI Associate Editor: NANCY JOHNSON Assistant Editori A drettisiuq Manager: PATTY L MEIER Editmal Assistant Language training is a necessary and important condition in the COLLEEN McAVINIA making of a good diplomat. Three experts discuss current language The FOREIGN SERVICE JOURNAL is pub¬ lished monthly except August by the Ameri¬ policy and make recommendations for the future. can Foreign Service Association, a private non-profit organization. Material appear¬ ing herein represents the opinions of the The Tongue-Tied Diplomat? 28 writers and docs not necessarily represent the view's of AFSA or the JOURNAL. Writer queries invited. Paul Simon JOURNAL subscriptions: AFSA Mem¬ bersincluded in annual dues; OthersS20. Overseas subscriptions (except Canada), add Language Expertise: Personnel Implications 32 S3 per year. Airmail not available. Second-class postage paid at Washington, Lannon Walker DC, and at additional post office. Postmas¬ ter: Send address changes to AFSA, 2101 E Street NW, Washington, D.C. 20037. Microfilm copies: University Microfilm The Way to Language Success 35 Library Services, Ann Arbor Michigan 48106 (October 1967 to present ). Indexed Hume Horan bv Public Affairs Information Service (PAIS). Advertising inquiries invited. The ap¬ pearance of advertisements herein does not imply AFSA endorsement of the services U.S.-Soviet Cultural Exchanges 39 or goods offered.

1 American Foreign Service Tale Richmond Association, 1988 ISSN 0015-7279 December 1988, Vol. 65, no. 11 Journal: The Year of the Three Kaisers 44 Court Life in Berlin Cover art by Margaret Scott Jane Pendleton Brice

People: Welcome Home 47 Nancy Piet-Pelon

Departments

Clippings 7 Books 12 Letters 16 10-25-50 18 Focus: EER Survival 19 Index 53 AFSA News 55

DECEMBER 1988

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Diplomatic Misunderstanding “The going rate . . . for a 35-)'ear-old Council staff made to other ambassadors accountant in the investment banking busi¬ abroad during the period 1985-1986, cor¬ front The Washington Post, October 2: ness, not dealing with customers, doing rectly to insist upon things in writing, and The work of the Foreign Service at home die internal accounting in the firm, is about to insist upon things through and approved and abroad—protecting U.S. international twice what I made as chairman of the Fed¬ by die secretary of state. political, economic, consular, and security eral Reserve Board,” Volcker told the Ameri¬ interests—is little understood or prized. can Association of Newspaper Publishers Most Americans are wary of diplomatic en¬ government affairs committee yesterday. No Holy Rite tanglements, believing—like Will Rogers— “Somebody said to me, we ought to get diat “the United States has never lost a all the government we pay for. And, of from The New York Times, August 25: war or won a peace.” In a country where course, pan of the problem when we’re The argument about the indispensability only a small minority of students study for¬ talking about the civil sendee is we’re not of foreign policy experience implies two eign languages or can locate Brazil on a paying very much at the top levels,” said propositions: that foreign policy' is so ar¬ map, there is little respect for the skills and Volcker. cane diat only' long involvement in its mak¬ experience of this nation’s foreign affairs Volcker, who recently joined the 50- ing and execution can equip a person to professionals. person investment banking firm of James handle the sacred my'steries, and, further, There is no massive cadre of diplomatic D. Wolfesohn Inc., said many people be¬ that past involvement provides a guarantee veterans—despite the increasing danger of lieve that die principal purpose of the Na¬ of superior wisdom in analysis and deci¬ their calling—who can lobby and curry tional Commission on the Public Service, sion. congressional favor. Just die opposite. There which he heads, is to talk a lot about prob¬ Neidier proposition stands up under scru¬ is a deliberate and malicious effort by cer¬ lems of the civil service and force salaries tiny. Is foreign policy really all that eso¬ tain congressmen—led by Senator Jesse up. teric and unfathomable? Of course, a pro¬ Helms (R-NC)—to make life as difficult “I don’t look at it that way at all,” he fessional priesthood has long claimed this as possible for America’s overseas emissar¬ said. “As I get into this, you realize how to be the case, but its claim is designed to ies. As a result, Congress has passed one many problems there are” in recruiting, train¬ protect the present monopoly against in¬ onerous piece of legislation after another— ing, education, morale, incentives and in tervention by members of Congress, jour¬ undercutting basic allowances for housing, the mix of political appointees and career nalists, professors, voters and other lesser children’s schooling, and health care, and jobs in the government. breeds. mandating unprecedented involuntary' re¬ by Judith Havemann Foreign policy does indeed require knowl¬ tirement of an estimated one third of the edge of other lands, concent for the na¬ Service’s top thousand officers. Helms re¬ tional interest and steadiness of nerve. But cently saw to it diat Foreign Service offi¬ The Chain of Command anyone with political judgment, intellec¬ cers’ exclusion from District of Columbia tual curiosity, a retentive memory, a disci¬ income taxes was eliminated even though from The Washington Post, October 11: plined temperament, and a sense of the way all odier presidential appointees receive it. At a hearing before the Senate Foreign Rela¬ history runs can grasp the dynamics of for¬ by Julia A. Moore tions Committee, Senator Paul S. Sarbanes eign policy quickly enough. (D-MD) raised the Iran-contra issue with by Arthur Schlesinger, Jr., in defense of Mi¬ (Ambassador to Pakistan-designate Robert chael Dukakis’s foreign policy experience. Help for Wausau B.] Oakley. Here are excerpts from the Sept. 16 hearing: from Ann Landers, October 14: Sarbanes: Now, y'ou are serving as ambassa¬ AFSA’s Answer Dear Ann Landers: dor in Pakistan. You receive a phone call I need your definition of “diplomacy” from a staff member of the National Secu¬ from The New York Times, for a speech. Help!—Wausau, Wis. rity Council. I am putting a hypothetical Letters to the Editor, September 22: From die moment die new administration Dear Wausau: Will Roger’s definition of to you now. This person asks you to take an action, which you can do there, on some begins, the new President must make criti¬ diplomacy is better than anything I can matter under vour jurisdiction in Pakistan. cal judgments on U.S. foreign policy is¬ come up with. He said, “The art of diplo¬ And you say well, boy, I think this is a bad sues that require his immediate attention. macy' is saying, ‘nice doggie, nice doggie,’ idea. Furthermore, dtis runs counter to Certainly, he can rely on his advisers. No until you can find a stick.” what I understand our government’s pol¬ doubt he can learn the dynamics of foreign icy is to do. policy quickly enough. However, he must Investment Advice Would you go ahead and do that action also be prepared to listen to and respect on die basis of that call? die views of those in the government who from The Washington Post, September 27: Oakley: Senator Sarbanes, several things are entrusted with the continuity of U.S. He had to leave the federal government have happened since the fall of 1985. foreign policies from administration to ad¬ to learn it. But Paul A. Volcker, one of the Among others, the secretary of state, quite ministration. world’s most powerful economic policymak¬ correcdy, has issued instructions to ambas¬ Professor Schlesinger derogated “a profes¬ ers, has recently received a bottom-line les¬ sadors not to take telephone calls, such as sional priesthood,” which he say's is pro¬ son in the cost of public sendee. some of diose which the National Security tecting a foreign policy monopoly. We hope

DECEMBER 1988 7 this hyperbole will not be interpreted as across the board and that action on all dip¬ jobs properly. describing the Foreign Service. Clearly, no lomatic appointments and promotions ‘The senator believes their lack of coop¬ one group, in or out of government, has should be closed down and left to the next eration with the committee and their sys¬ a monopoly on making foreign policy. But Congress.” by )ohn M. Goshko tematic obstruction of the committee’s ef¬ policy decisions arc best made with as much forts to inquire into U.S. activities in Hon¬ understanding of the politics and culture duras shows a lack of understanding for of the societies with which we deal as an Congress’ constitutional role in the foreign experienced diplomatic service can provide. Promotions Blocked policy process,” said a Dodd aide, who It could be argued that decisions made asked not to be identified. “The senator without adequate knowledge of the inter¬ from The Washington Post, October 25: believes his action was not a policy reprisal national setting have led to errors of judg¬ Two career diplomats who headed the U.S. but a personnel action against officers whose ment resulting in loss of American lives embassies in Honduras and El Salvador have performance did not merit promotion.” and international prestige. The Foreign Serv¬ been denied promotion to higher rank in The situation arose Saturday when the ice lives in and reports on more than 125 the Senior Foreign Sendee because Sena¬ Senate, rushing toward adjournment, ap¬ countries. It would be foolhardy for a high tor Christopher J. Dodd (D-CT) charges proved promotions for about 100 career official entrusted with policymaking respon¬ that they impeded congressional attempts diplomats in the Senior Foreign Service. sibility to ignore that source of informa¬ to exercise oversight of President Reagan’s The Senate’s action was unexpected be¬ tion. Diplomacy and political analysis are controversial Central America p >licv. cause Senator Jesse Helms (R-NC), the simply what Foreign Sendee officers do for The move by Dodd, chairman of the doyen of Republican conservatives in the a living. ... To scoff at the role of those Foreign Relations Subcommittee on West¬ Senate, earlier had blocked a vote on the who do have past involvement and long ern Hemisphere Affairs, against Everett E. entire list in an apparent effort to pressure experience does nothing to further the dis¬ Briggs, ambassador in Honduras, and David Democrats into last-minute approval of cussion about what qualifies a President B. Dlouhy, until recently acting head of some Reagan ambassadorial nominees. to make foreign policy. the embassy in El Salvador, underscored Helms has used that tactic frequently over by Evangeline Monroe the continuing animosity that exists benveen the y'ears to impede approval of nominees congressional liberals and the administra¬ he regards as overly liberal to foreign pol¬ tion as the result of Reagan’s emphasis on icy posts. Promotions Held Up military action in Central America. However, Helms relented and allowed Several senior State Department officials a vote at the last minute. At the insistence front The Washington Post, October 20: expressed concern about the possible ef¬ of Dodd, though, the recommendations to In an apparent effort to pressure the Sen¬ fects of Dodd’s action on the impartiality' promote Dlouhy into die senior service as ate Foreign Relations Committee into last- and integrity' of the Foreign Serv ice. Parti¬ a minister counselor, and Briggs to career minute approval of some Reagan admini¬ san politics has sometimes in the past led minister, the second-highest rank in the For¬ stration ambassadorial nominees, Sen. Jesse to reprisals against professional diplomats eign Service, were stricken from die list. Helms (R-NC) is blocking a committee for carrying out policies of die president Briggs could not be reached for com¬ vote on promoting roughly 100 career dip¬ in power, whether Republican or Demo¬ ment. He has clashed with Dodd and other lomats in the Senior Foreign Sendee. crat. liberal members of Congress over their ef¬ Committee Chairman Claiborne Pell (D- Dlouhy, in a telephone interview with forts to obtain information about secret RI) argues diat no new ambassadors should The Washington Post from San Salvador, bases in Honduras of the U.S.-supported be approved until the next president takes charged that Dodd was engaging in “a ca¬ contra rebels fighting Nicaragua’s Marxist- office. Since he apparently will not budge pricious act” and “McCarthyite tactics that led government and U.S. military' and in¬ from that view, the practical effect of the would send a chilling message to the For¬ telligence activities operating from Hon¬ move by Helms, senior minority member eign Service.” duras. of the committee, is likely to see Congress He described himself as “a small fish work¬ Some State Department officials said yes¬ end its session in the next few days with¬ ing in the trenches” and likened his situ¬ terday that Briggs had been following or¬ out acting on the Foreign Service promo¬ ation to that of the so-called “China ders from Washington. The Dodd aides, tions. Hands”—a group of professional U.S. dip¬ while saying diev could not discuss pub¬ That means the diplomats involved— lomats who served in China during and licly' the senator’s complaints against Briggs officers being promoted into the senior serv¬ after World War II and whose careers sub¬ because they involve classified security' mat¬ ice and senior service members recom¬ sequently were ruined by right-wing charges ters, contended diat his refusal to cooper¬ mended for higher rank—will have to wait that they had been responsible for the com¬ ate had gone bey'ond die bounds of a rea¬ until the next Congress convenes in Janu¬ munist takeover of China. sonable separation of poyvers betyy'een Con¬ ary' before their promotions are acted upon. Dodd’s aides denied that he would ever gress and die executiy'e. They added that “The Democrats took the position a act against a career diplomat because he Dodd had similar complaints against month ago that there should be no further disagrees with his or her policy views. They Dlouhy, yvho headed die embassy in San action on the pending ambassadorial nomi¬ added that Dodd believes Briggs and Salvador until the recent arrival there of nations until after the elections,” [a staff’ Dlouhy overstepped the bounds of their Ambassador William G. Walker. aide] said. “So Helms has taken the posi¬ policy' mandates in a way that raised ques¬ by John M. Goshko tion that this principle should be applied tions about whether they were doing their

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Human Rights and U.S. the author describes the political battles be¬ Forsythe concludes this thorough study Foreign Policy: Congress tween Capitol Hill and the White House. (which tilts to the liberal outlook) by ques¬ On assistance to El Salvador, Nicaragua, tioning the wisdom of legislation on hu¬ Reconsidered. By David P. Forsythe. and Guatemala, Congress was able to sig¬ man rights. Although criticizing congres¬ University of Florida Press, 1988. nificantly influence policy. In other areas sional enactment of soft law that is rarely (Chile, Argentina, Haiti), Congress used adjudicated in the courts, and the disposi¬ The impact of Congress on the human the device of demanding presidential re¬ tion of both the White House and Con¬ rights dimension of U.S. foreign policy is ports or certifications on the degree of com¬ gress to define human rights in terms of the focus of this study. Reviewing con¬ pliance with human rights with very lim¬ U.S. constitutional rights, Forsythe credits gressional actions between 1973 and the ited success. The Jackson-Vanik amendment Congress with “putting human rights back end of the first Reagan administration (with denying most-favored-nation treatment un¬ on the foreign policy agenda.” updates to 1987), the author analyzes the less the President waived the provision —Nicholas G. Andrews legislation passed, the voting patterns on proved useful in achieving a higher rate liberal and conservative human rights pro¬ of emigration from Romania, but ineffectual Politics in the United Nations posals, and the comparative role of Con¬ in the case of the Soviet Union. gress in human rights foreign policy. Forsythe also reviews function-specific System. Lawrence S. Finkelstein, Editor, Forsythe finds that congressional at¬ legislation such as the creation of the Hu¬ Duke University Press, 1988. tempts to deny U.S. security and economic man Rights Bureau in the State Department The UN’s Secretary General Perez de Cuel¬ assistance through international financial and the requirement of annual reports on lar has said that the crisis of the United institutions to foreign countries that demon¬ human rights practices around the world. Nations, 42 years after its founding, is a strate “a consistent pattern of gross viola¬ Although he considers the reports deficient crisis of confidence. In his foreword, the tions of internationally recognized human because they do not adequately treat so¬ secretary general writes that the organiza¬ rights” have not been effective. The Re¬ cial, economic, and cultural rights, he rec¬ tion “must be sensitive to the wisest ideas agan administration, in his view, simply ognizes that they arc “important and use¬ and counsel that the intellectual commu¬ ignored or circumvented the legislation. ful tools” for analyzing the human rights nity of die world has to offer.” Looking at country-specific legislation, situation. Twelve American and two Swedish schol-

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12 FOREIGN SERVICE JOURNAL ars provide such ideas and counsel with dents into more important international po¬ and if not restrained he may yet commit a in-depth analyses of die vast complex of litical figures, “global diplomats and influen¬ third, let me come straight to the point the world organization, its historic develop¬ tial development strategists.” and say this is the worst book I’ve read ments, successes, failures, and unsolved prob¬ The chapter on the crisis in UNESCO since I stopped being a masochist. What lems, and basic trends varying from one makes us understand the emerging politi¬ started out as a beautiful idea, a treatment body to the other. cal role of its director general. In some bod¬ of the Korean War using Chinese sources A very important function of the system ies consensus was reached on policy and and viewpoints, turned into a bated-breath was aptly formulated by Secretary George organization, while in others there is ten¬ docudrama for Saturday afternoon TV. The Shultz, who said that “the United Nations sion between the diplomatic and political author in his foreword says he interviewed has a unique influence on global percep¬ approaches. “hundreds” of Chinese in preparation for tions. The United Nations defines, for much This volume is an important reference this work. Who they were, where, when, of die world, what issues are and are not book for all Foreign .Service personnel and and in what languages they were inter¬ important and of global concern.” The particularly for junior officers who in their viewed, we are not told. There is, of course, authors provide supporting evidence for careers will have to deal with the politics no index, and people speak in direct quotes. this judgment. and policies of the United Nations system. What is deplorable is not only the usual The analyses prove that the struggles be¬ —Robert A. Bauer waste of energy but die misuse of a golden tween North and South over the “new in¬ opportunity that would have produced a ternational economic order” and related is¬ valuable work. sues moved the developed countries from Enter the Dragon. By Russell Spurr. A number of good books have already their original positions, resulting in the gen¬ Nnmiarket Press, Neiv York, 1988. been written about the Korean War, not eral system of preferences, the integrated the least of which is Matthew Ridgeway’s program of commodities, and debt relief De mortius nil nisi bonum, as my Jewish autobiography. Others will continue to ap¬ for LDCs (lesser developed countries). The grandmother used to say, but since Mr. pear; none, however, will reach oblivion growing importance of the World Bank Spurr is alive and well in Australia, and as quickly as this one. has developed the political role of its presi¬ this is his second book of military history', —Sol Schindler

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DECEMBER 1988 15 Letters

Did you serve in Peru? self with his attitude toward spouses (read: routinely involves 10-hour days, which each wives) and die female half of tandem cou¬ partner in a tandem couple experiences. Mr. I am writing a novel based on the gov¬ ples whom he apparendy believes are ex¬ Rosinus’ claim that the current situation ernment of General Juan Velasco Alvarado, actly alike. He could not be more mistaken. is “inequitable” because each employee re¬ president of Peru from 1968-75. I am in¬ A spouse who accompanies his/her For¬ ceives a full pension, which each has earned, terested in interviewing individuals who eign Service partner does not spend a “life¬ while his wife does not, denigrates the role served in the U.S. Army military' mission time working for the Foreign Service.” of the female member of a tandem couple. to Peru between 1960 and 1979, individu¬ Spouses who decide to invest time in vol¬ Yes, she is a woman and a spouse, but she als who served as military attaches to Peru unteer activities, whether entertaining at is also employed full time and not just when between 1960 and 1979, or individuals who home, helping at an orphanage, or accom¬ it is convenient for her to participate. If had contact with Velasco’s government in panying the partner to a representational she decides to have children, she gets no a diplomatic capacity. event, do so with the knowledge that this maternity leave and if she has a child while I am particularly interested in speaking is unpaid and that they have a choice not assigned abroad, she is often expected to to individuals who are now in California. to do it. They are under no obligation, work until the last minute and to return Please contact me at: 3535A 24th St., San except one imposed by their partner, to to work immediately after the birth. The Francisco, CA 94110. participate. The opportunity' to make a de¬ female employee copes with every' personal GABRIEL J. ESCOBAR, M.D. cision based upon personal choice is the or familial problem that occurs, while still essence of volunteerism and cannot be spending long hours at the office and han¬ equated with “working for the Foreign Serv¬ dling her job witli the same dedication and More on Spouses ice.” Also, the number of hours (generally expertise as her male colleagues. small) that spouses devote to activities out¬ Someone should tell Mr. Rosinus about The September JOURNAL carried a letter side their home is controlled by their own the Foreign Service directive issued in the from Gunther K. Rosinus entitled “Com¬ interests, life style, and decision. 1970s which clearly stated that spouses are pensation for Spouses” about which I would On the other hand, working for the For¬ not employees of the Department of State, like to comment. eign Service as a Foreign Sendee officer cannot be included in the employee’s effi¬ First, I believe Mr. Rosinus dates him¬ often includes uncompensated overtime and ciency rating, cannot be required to handle

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Foreign Service Journal, December 1978: Foreign Service Journal, December 1963: Foreign Service Journal, December 1938: The State Department has recently an¬ The department’s policy of recommending Because an American diplomat a century nounced the appointment of a career con¬ that FSOs visit their congressmen follow¬ ago loved growing things, America today sular officer as an ambassador. The bureau ing a tour abroad is recognition of the great has a Christmas flower: the poinsettia. of consular affairs has noted that the ap¬ value to be gained from informal contacts Because Joel Roberts Poinsett, first Ameri¬ pointee “is the only consular officer in re¬ between our officers and their elected rep¬ can minister to Mexico and later secretary cent years who has been appointed as am¬ resentatives. Only in an atmosphere of mu¬ of war under President Van Buren, took bassador.” tual respect and confidence, an atmosphere some cuttings of Euphorbia pulcherrima The natural question this raises is “why?” that has been sadly lacking at times, can home with him from his foreign post to Are consular officers less qualified or less the department and Congress effectively Charleston, and lavished care upon them, prepared to be ambassador than other ca¬ work together to formulate and implement a considerable industry has sprung up, an reer diplomats? foreign policy. industry which deals in such delightful com¬ Certainly a career consular officer with We believe that informal contacts can modities as beauty and Christmas cheer. 22-28 years experience in the Foreign Serv¬ contribute immeasurably to the further es¬ Many a statesman and diplomat has had ice is as qualified to serve as ambassador tablishment of such an atmosphere. These his name perpetuated on a marble shaft as an art dealer from California, an oil man visits should not be limited to congress¬ or statue. or an insurance executive from Texas, a men from the officer’s districts but should But few indeed are the men of affairs labor leader from Michigan, or a cement also include members of the legislative whose memory is preserved by a living salesman from Pennsylvania. branch met through congressional travel plant. “State and the Consular Challenge” abroad. Reprint from by John St. Denis Editorial the Christian Science Monitor

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18 FOREIGN SERVICE JOURNAL ter, or, at least, a hurried mop-up of an eign Service is becoming as selective with EER Survival emerging mess. tenure as major universities have special con¬ DAVID T. JONES and TERESA C. JONES The Foreign Sendee is long past the “old cern that they not be damaged because they boy” network period when reasonable per¬ are ignorant of how die system really works. As long as there are supervisors and em¬ formance meant an indefinitely extended Despite the recognition of the EERs’ ployees there will be efficiency reports, career. Always competitive, the Service over import, we usually avoid discussing our per¬ known by various acronyms in different the past 20 years has reshaped itself along formance or our evaluation with our col¬ agencies, but referred to here as EERs (em¬ the U.S. military “up or out” pattern with leagues or even with our supervisors. With ployee evaluation reports). We all hate the exception of those who have served them. Employees would prefer that their “This officer never makes the on review panels or promotion boards, (obvious) excellence be recognized by many officers may never have seen EERs commendation and promotion without the same mistake. He appears, drat they have not either written or received. grinding EER process. Supervisors lament however, to have made This is perhaps a function of embarrass¬ the amount of time devoted to EER prepa¬ ment (has the EER replaced sex as the last ration and the difficulty of being candid them all once.” great taboo subject?) or a residue of an without generating hard feelings and in¬ earlier age when “gentlemen do not read flicting career damage disproportionate to a normal career anticipation of 2Q-25 years. other gentlemen’s mail” (or their EERs). any criticism. Thus for those seeking success in the For¬ Nevertheless, it leads to circumstances in The upshot is that both supervisors and eign Sendee, i.e., promotions leading to a which what you do not know can hurt you. employees tend to avoid dealing with EERs longer career, this projection has meant re¬ It would be nice if we could afford to let until the last minute. This is hardly the newed attention to efficiency reports. “the system” take care of us. But if there course we would recommend for a pend¬ For employees who still doubt their full is concern that benign neglect might not ing policy crisis, but too frequently it is acceptance in the Foreign Service (women, be the best career approach, the following the course we follow in our personal ca¬ minority' groups) the efficiency report is are some calculations to take into account. reers. The result of neglect, policy or per¬ often viewed as a special obstacle. Like¬ sonal, is the same—an unnecessary' disas¬ wise, untenured officers who fear the For¬ Judge yourself. We all know we can walk

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DECEMBER 1988 19 on water, but some of us should begin at If you are still in the same position a sec¬ Do you want flex time to work a late shift die shallow end. Take a clear-eyed view ond or third year, give the contract a hard¬ or an early shift? Is the job you are headed of your strengths and weaknesses. Then eyed review. If you are opening a new- into so demanding that leaving at 6 p.m. look at what is needed to do the job. The position, give the writing of the contract is die equivalent of desertion? You are far first month on the job is the time to nego¬ the attention you would give to a career better off if you get these points on the tiate new responsibilities or revise old ones. resume. Then do the unthinkable: ask some- record—at least orally—as early as possi¬ ble, at best during the job interview proc¬ Ignorance is no excuse. Know the perform¬ cc ess. Supervisors are more tolerant if they ance requirements for the assignment. This officer turns water know what to expect and why. If the su¬ Know the precepts for promotion. Know into wine by walking on it” pervisor can’t deal with personal limitations, the ground rules for grievance and EEO you need to know immediately even if you action. This is not a recommendation for may have to break an assignment. a chip-on-the-shoulder approach, but a sug¬ one outside the system to read it and to gestion to give the procedural parameters tell you what they think you do for a liv¬ Don’t expect telepathy to work. You can’t of each assignment at least the attention ing. If they can’t figure it out, you’re in read minds, neither can your supervisor. you would give an auto-financing contract. trouble. Also ask someone in the system, In such circumstances the Kissingerian preferably in the same bureau/embassy to maxim diat “the absence of criticism is high Expectations. Official job requirements are read it to see how it stacks up against other praise” does not always work. Obviously usually based on a “canned” statement that job statements. Also be aware that in most you don’t want to find out your supervisor has served generations of predecessors, but jobs, if you want training, you will have hates your writing style by reading it on it may not serve you. Remember, it’s the to get it yourself. The Foreign Service em¬ the EER. (“Can express a sentence in two first part of your contract and the opening phasizes on-the-job training, in fact if not paragraphs at any time.”) You need to find element of your EER. It pays to read it in name. out what your supervisor likes or dislikes. carefully and negotiate changes at the be¬ If your memos and cables are rewritten be¬ ginning. Make sure it reflects the level of Special Circumstances. Do you have yond the Foreign Service norm (or beyond independent responsibility you will have. babysitting, scheduling, timing problems? your previous experience), find out why.

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20 FOREIGN SERVICE JOURNAL Remember that you and your supervi¬ remains the rumor that minority' employees but everyone needs to determine if per¬ sor are required to discuss your perform¬ who “make waves” are consigned to a sort formance is judged differently because of ance at regular intervals. It can be danger¬ of “EEO purgatory” and not chosen for background. And, of course, one must re¬ ous to ignore dtis item (it is for your pro¬ assignment. Each employee has to decide member that “even paranoids have real ene¬ tection) and accept a backdated listing when mies.” Some quick tests include: EER time comes. Even if you have been “If she is not continually • Do they expect less from you? Are you getting regular positive commentary infor¬ getting a fair share of challenging tasks? mally from your supervisor, a sit-down dis¬ given work, she will lapse • Have they unconsciously assigned you cussion can be useful. Write up what was into the study of German.” to a lower level of responsibility? said each time, noting particularly whedter • Do you constantly have to prove your¬ your supervisor thinks you’ve improved if self? shortcomings were mentioned. If you be¬ whether to buck the system on a given • To err is normal but how are your mis¬ lieve the supervisor may prove particularly point, but remember it does no good to takes judged? Is a flash of temper consid¬ difficult, draft a memo for the record with suffer in silence; you only suffer. ered a sign of strength for some and loss his/her signature. It may be your only de¬ of control for you? fense when EER time comes. The ethnic/sexist twist. If the world were ideal and the system perfectly impartial. For¬ Writing the EER. Over the years, there A biased boss. If you have the bad luck eign Service personnel would not have to have been regular laments from perform¬ to have a supervisor who you believe is consider their ethnic or sexual background. ance evaluation boards that efficiency re¬ biased against you, meet with your bureau But so long as you are immediately identi¬ ports are inflated. Doubtlessly, the judg¬ EEO representative and your career devel¬ fiable as a member of a minority' group ment is correct and the Foreign Service opment officer immediately. Go on record. and so long as supervisors may be bur¬ sounds like Garrison Keillor’s mythical town Look for a recourse. Document any illus¬ dened by stereotypes diat “filter” their per¬ “where all the children are above average.” tration of bias; get wimesses. It is far easier ception of your capabilities, you cannot af¬ But this has been true for at least 20 years to deal with the problem immediately dran ford to ignore this area. We assume at this and is not going to change in the next rat¬ through ex post facto grievance filing. There point that no one is looking for “slights” ing cycle. Don’t let yourself be the test case

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DECEMBER 1988 21 for your supervisor’s efforts to return to We all know that it is quite possible to but if they are offered, follow-up. Bring “honesty.” Honesty may be the best pol¬ spend weeks completing a one-page memo. those kudo letters to your supervisor’s at¬ icy, but in EER terms “warts and all” hon¬ Were there special problems during the rat¬ tention. Although such letters cannot be esty is a one-way ticket to oblivion. ing period? Did you do someone else’s job incorporated directly into your personnel as well as your own? Mark it on your cal¬ file, they can be cited/quoted in the EER. “Open to suggestions but endar—so you have a record of the six weeks If your supervisor tells you that you de¬ you were acting chief. Attach copies of your serve an award, act on it. You can make never follows them major pieces to any material provided to life easier for both of you by getting a copy your supervisor. What did you actually pro¬ of the award precepts and, if not providing The EER is not a one-way street. The indi¬ duce? Which were the best items? your supervisor a draft, at least write clearly vidual who simply waits for the supervisor how your accomplishments fit the precepts. to deliver an EER is missing a vital oppor¬ Evaluate your accomplishments. Rate your¬ If your supervisor intends to propose tunity to influence its outcome. Most su¬ self. Review your accomplishments and note you for an award, insure that this point is pervisors will invite suggestions on mate¬ how they show your “substantive knowl¬ mentioned in your EER. Don’t assume that rial to be included and revisions to be made. edge” and “leadership,” as indicated in the you will get it before the evaluation cycle, Take full advantage of this opportunity. promotion precepts. If you organize your as the awards often come after the review You may wish to propose detailed, specific list of accomplishments, perhaps suggest¬ boards have met. material. You need not be unduly modest; ing specific language, your supervisor will In the past there were relatively few the supervisor may think even more highly find it easier to write the report. Don’t be awards. During the past decade, however, of you than you think of yourself. bashful, you are not telling your supervi¬ there has been greater emphasis on non¬ In any event, in the preparation of any sor what to write, you’re only offering your material incentives and thus more official efficiency report the rated employee should views. awards. Your supervisor is probably well be aware of the following: aware of revised award policy but may be Act on awards and kudos. None of us part of the old school and believe that Keep an action log. It is easy to forget likes the idea of soliciting letters of appre¬ awards should be reserved for “once in a the compelling project of nine months ago. ciation. It may seem unduly self-serving, career” accomplishments. You may have to bring accomplishments and award precepts to his attention. WALK TO STATE Short Term Rentals Don’t just focus on the box score. The text is supposed to justify the specific rat¬ Remington Condominium, 24th & G Streets NW ing and a report looks particularly bad when Fully furnished and accessorized with balconies. there is a noticeable discrepancy between Included in each unit are: the two. If your report is replete with stel¬ Weekly housekeeping service, washer and dryer, microwave lar adjectives, that ,is only the first step. 1 '/> blocks to the Foggy' Bottom Metro Don’t stop and relax. Does the report also Low rates and no deposit for Foreign Service Personnel tell why you’re so great? You may need a trusted friend or relative to provide an out¬ Remington Associates, Inc. side opinion. 601 24th Street NW, #106, Washington, D.C. 20037 (202) 466-7367 Watch out for code words. There are words that imply more serious difficulties. Your supervisor may not mean to say that you are impossible to get along with, but the report will imply that when, for exam¬ ple, it says “has difficulty dealing with his VOLVO peers.” He may not want to label you as uptight and nervous by speaking of “in¬ U.S.A/s Largest Diplomatic Dealer tense” devotion to your job. Unfortunately, Diplomatic Discounts the code words change all the time so if you are not totally confident what is meant, Worldwide Delivery to Diplomats and check with your supervisor. Likewise, it Members of International Organizations could be useful to let a friend or adviser Contact: Dana Martens, Diplomatic Sales Director review your report for questionable points. MARTENS' VOLVO OF WASHINGTON Criticism. The EER requires the supervi¬ 4810 Wisconsin Ave., N.W., Washington, D.C. 20016 (202)537-3000 sor to identify areas for improvement. Some supervisors will ask for suggestions. You

22 FOREIGN SERVICE JOURNAL AUTHORIZED EXPORTER GENERAL ELECTRIC -U.S.A.- need to evaluate die criticism. Is it justi¬ lily need not be gilded, but if you choose fied? Is die criticism tempered by a posi¬ to write a personal statement, you should tive statement? In other words, how seri¬ give it the time and effort you would give ous is your wound? Are you criticized lor an important substantive paper. How do a minor failing, i.e., poor proofreading, spell¬ you want to come across? Were you happy GENERAL ELECTRONICS ing errors, lack of word processing skills? with the work? Were there special circum¬ INC. Or is the criticism for inability to write, stances or difficulties? What were you par¬ inability to get along with others, failing ticularly proud of in your performance? This in your responsibilities. (“His leadership is you and the only time you can speak di¬ REFRIGERATORS • FREEZERS is outstanding except lor his lack of ability rectly to the promotion panel. Give some RANGES • MICROWAVE OVENS to get along with his subordinates.”) In thought to consistency from one year to AIR CONDITIONERS • DRYERS any event, criticism should never come as die next. You may be writing diem years WASHERS • SMALL APPLIANCES AUDIO EQUIPMENT • TELEVISION a surprise. A specific criticism should have apart, but the panel is reading them min¬ DISHWASHERS • TRANSFORMERS been discussed several times before die EER utes apart. Remember, if you have not is written. If the same person writes a se¬ brought up any objection to the contents ries of reports on you, it is important that of the EER in your own statement, your Available for All Electric you show improvement (if this is the case) signature at the end attests to your concur¬ Currents/Cycles or you may be regarded as hopeless in an rence in the report. If you must subse¬ area because of repeated reports that criti¬ quently file a grievance, you are in a much Immediate Shipping/Mailing cize you for the same fault. From our Local Warehouse Clearly, the “area for improvement” is the most difficult part of the EER. If you “I find it hard to We Can Also Furnish don’t agree with the criticism or the way distinguish his easy-going Replacement Parts for the criticism is phrased, first discuss it with manner from lethargy Most Manufactures your supervisor as he or she may be open to negotiation. Consider letting a trusted SHOWROOM and more experienced Foreign Sendee stronger position if there is not a string General Electronics, Inc. friend review the point. There may be room of reports accepting die judgments you now 4513 Wisconsin Avenue, N.W. for artful drafting. Remember you’re not contest. You can, of course, be your own Washington, D.C. 20016 the only one who’s had problems. worst enemy. We recall the instance of an Tel. (202) 362-8300 officer who wrote a three-page defense TWX 710-822-9450 Wonderful report, lousy writing. Your against the charge that he was verbose. GENELECINC WSH supervisor loved your work but lacks die There are many useful things that can drafting talent to say so. It can happen to be done, such as more careful attention all of us. Suggest wh,it you can to improve to the annual precepts for promotion. Find the EER; provide alternative language if out where you stand in the review for pro¬ you desire. At the least, assure that die EER motion and what diis means in realistic in la is sufficiently specific so that a panel can terms. Review your personnel file. The hor¬ ® o understand what you did, why it was im¬ ror stories of what is incorrecdy included 9-i= > portant for the government or the Foreign or excluded are sufficiently true to require o ® Sendee, and what doing well showed about you to give your files personal attention. you. Regular discussion with career development DC officers ensures professional insights and o I? Don’t forget the reviewing officer. Many information that you need. Briefings or re¬ c o think that the reviewing officer will be a ports from the promotion panels would straight line endorsement of the supervi¬ give insights on how the EERs are written < %© sor’s report. The reviewing officer can pick and viewed by those who have just gone Q. o ai — up points that the supervisor did not have dirough the process. Similar briefings from N space to include (you might save him good a selection of individuals who have filed ll examples of commendable work if you are grievances would also be instructive. CO o not dealing closely with him). Obviously, in "o — c if you have clashed with your supervisor Ed. Note: A report on an AFSA-sponsored LU o> W but gotten along well with your reviewer, discussion on performance evaluation boards co co CO %CO «

DECEMBER 1988 23 Strengthening Diplomatic Representation

The American political process needs to confront the resource squeeze and weigh priorities rationally

RONALD I. SPIERS

WHEN MOST Americans think of triad of national security. The defense budget national security, they think of of the United States is just under the $300 the military and intelligence serv¬ billion mark. The intelligence budget is not ices as the institutions which arc publicly identified, but an educated guess its paramount safeguards. would put it in the $15-$20 billion range. Nevertheless, as power has become more In the fiscal year which began in October diffused and the great post World War mo¬ 1988, a budget of slightly more than $2 bil¬ nopolies have dissolved, resort to force as a lion will go to operate the diplomatic arm. solution to international disagreements has be¬ What this $2 billion covers is paying, trans¬ come a less realistic or effective option. Reli¬ porting, training, and equipping the Foreign ance on means other than force has become Service, building and leasing the buildings that relatively more important. One observer has house it's members and the communications suggested that brains, not brawn, is now the that connect them, security for its personnel more important factor in international relations. and missions abroad and official visitors at Indeed, the principal function of diplomacy home, and other miscellaneous activities. It is the resolution of political differences that does not include related items such as pay¬ fuel conflict—and where resolution is impos¬ ments to international organizations, refugee sible, diplomacy’s function is to contain con¬ flict and violence. Diplomacy is politics on a Ronald I. Spiers is under secretary for manage¬ global scale. We call on the military' only when ment in the Department of State. An earlier diplomacy fails. version of this essay was delivered at a meeting But compare the relative resources the of the American Academy of Diplomacy on Sep¬ United States devotes to what I see as the tember 28.

24 FOREIGN SERVICE JOURNAL and narcotics programs, military and economic One particularly unhappy consequence of assistance, and information activities, which, the resource squeeze has been the need to ac¬ when added together, provide a total spend¬ cept “gaps” in our assignment process. Some¬ ing level in the entire international affairs times we have vacancies of months between What, then, budget, the so-called “Function 150” account, an outgoing officer and his or her replace¬ will strengthen of approximately $18 billion. ment. The loss of opportunity for contact re¬ U.S. The bottom line is that our country de¬ placement and the consequent inability to trans¬ votes to the effort of diplomacy substantially fer experience and personal networks to a succes¬ diplomatic less than one percent of what is budgeted to sor are costly. To keep this loss to a minimum representation? our military and intelligence programs. we often are forced to sacrifice needed area Above all, a Consider the current data on the diplomatic and language training. arm. The Department of State employs a force What, then, will strengthen U.S. diplomatic more of about 13,000 Americans worldwide, as well representation? Above all, a more hospitable hospitable as 9,000 foreign nationals who perform im¬ public outlook towards diplomatic resource public outlook portant support. A mid-sized American cor¬ needs, which, in the larger scale of govern¬ poration with overseas operations will have ment operations, arc modest. towards a work force many times this number. The In September, my colleagues and I put to¬ diplomatic core of the U.S. diplomacy work force—our gether the State Department’s 1990 budget resource needs diplomatic officer, or “generalist”—numbers request—a request that will certainly have to about 4,200, not an outlandish figure for a be reviewed by whoever has won the election. nation with our far-flung interests, staffing To meet the high priority program needs, we 258 diplomatic, consular, and special missions would have to have about $1 billion more worldwide. than the “mark” the OMB designated for 1990. The purpose in presenting these facts and This level of funding would permit the United figures is not to deny die importance of mili¬ States to pay all of its international organiza¬ tary readiness or of intelligence to national tion dues, provide for all of the most pressing security—no professional diplomat would ever security requirements, modernize communi¬ doubt this—but to illuminate the relative pri¬ cations and automated data-processing systems, ority that the political process attaches to di¬ reinstitute or initiate needed training programs, plomacy. As a result, in recent years Depart¬ keep open the foreign posts we would other¬ ment of State resources have been vigorously wise be pressed to shut down and open a few squeezed. At the same time, reliance on diplo¬ more in areas of increasing importance, fund macy has increased. Currently, the department’s healthy refugee and narcotics programs, and needs are great in a number of areas: improve weak areas in diplomatic reporting • Communications systems on which the and representation. United States depends for the rapid transmis¬ One billion dollars is less than the cost of sion of information and analysis are in drastic five B-l bombers. It is about six times what need of modernization. Our information han¬ is spent on military bands. It compares to a dling systems are grossly inferior to those of fraction of the cost of agriculture subsidy pro¬ our fellow agencies, yet the rapid and accu¬ grams. rate communication of information is the life¬ blood of diplomacy and national security. • Security has become a major—and very THE PRINCIPAL NEED in the quest to expensive—preoccupation. strengthen American diplomacy is to • Many of the more than 2,000 buildings confront the resource squeeze ra¬ the United States owns abroad are seriously tionally. For example, I have told Sec¬ inadequate to current needs. For long-term retary Shultz many times that we can run some savings, we should be buying rather than leas¬ kind of a diplomatic establishment on any level ing many of the facilities we occupy, while of resources if we are permitted to prioritize properly maintaining those we do own. Con¬ coherently. We need a national decision¬ sideration of a capital budgeting system is over¬ making structure that can weigh priorities more due. rationally across the board. We do not have • Professional development and training pro¬ it. Instead, we have a pattern of congressional grams have been badly short-changed, par¬ activity that increasingly does not make ra¬ ticularly those to develop Foreign Service lan¬ tional resource trade-offs, a result of micro- guage capabilities. No self-respecting branch management and earmarking. of the military service would put up with the The following are the reforms that I would training situation which prevails in the De¬ urge on the next secretary of state: partment of State. Of first importance, ensure that the State

DECEMBER 1988 25 Department is considered—at least in the ex¬ A laborious confirmation process, often hos¬ ecutive branch, if not in the Congress—as a tage to unrclevant political considerations, has national security function and that resource led to real problems in staffing embassies and The budget trade-offs are determined in a larger context is detrimental to U.S. foreign policy interests. that encompasses defense and intelligence. A A new secretary of state needs from the should be new secretary of state’s first priority widi the very beginning of his tenure to pay close and carefully new President should be to arrive at an un¬ careful attention to die quality of key person¬ designed to derstanding that this will be done. nel. We think deeply about our comparative Ideally, this would be reflected in a revised position in the military realm vis-a-vis the So¬ serve congressional structure with the same objec¬ viet Union. We do not yet think this way overarching tive. Practically, this is probably quixotic. The about our diplomatic capabilities. I recently foreign policy State Department budget competes with Com¬ read a study of the dramatically improving merce, Justice and the judiciary, and it has quality of Soviet representation overseas, par¬ objectives as much less constituent support than its com¬ ticularly in Western Europe. I can testify at defined by the petitors. Jurisdictional jealousies on the Hill first-hand to the ability' of the new generation secretary may prevent reform, but it is worth a try. of Soviet diplomats. They have knowledge, experience, languages, and perspective that dis¬ tinguish them markedly from yesteryear’s So¬ SECOND, the secretary of state should viet diplomat with his saturnine visage and assume direct supervision of the prepa¬ ill-fitting clothes. We are in a new era and ration of the entire “150 Function” we cannot afford to rely on less than the best budget. Under current circumstances our country can produce, selecting both from the secretary of state—who is, after all, the the career and non-career sectors. Diplomacy, principal adviser to the President on foreign however, is a profession, not a playing field affairs—has an authority limited to a relatively for amateurs. Years ago we appointed higher small fraction of this budget. ranking military officers on political grounds The budget should be carefully designed or accorded commissions to those who could to serve overarching foreign policy objectives “buy” diem; no one thinks of doing that to¬ as defined by the secretary, and not be just a day. composite of what various independent cen¬ ters manage to achieve in protecting their turfs. The secretary would need a small analytical FOURTH, the next secretary of state staff comparable to that of the intelligence must think in institutional terms and community, probably including personnel sec¬ recognize that the institution he leads onded from the other agencies, such as USLA, will outlast him. He needs to give AID, and ACDA, whose budgets are involved appropriate stress to the training function. I and who report directly to him. He will then hope that he will give the same vigorous sup¬ be able to determine whether a new VO A port to the concept of a new foreign affairs transmitter or an increase in a development training institute that Secretary Shultz has assistance program is more or less important done. We have let our capabilities, particularly than language training, or more armored cars, in the “hard” world languages—Russian, Chi¬ or keeping open or closing a specific post, nese, Japanese, and Arabic—lapse, largely be¬ and reflect these priorities in a coherent spend¬ cause of resource constraints. We need to set ing proposal. aside at the very beginning the resources that A third recommendation for a new secre¬ are necessary to provide an adequate pattern tary of state is to take personal command of of career training; we cannot continue to treat the presidential appointments process in his training as an afterthought that we will get department at the outset. The secretary should to when everything else is taken care of. I take recommendations to the President directly would prefer to have our embassies reduced and personally and not delegate this function in size and many of our posts closed than to to a White House staff committee or to his keep them open at the expense of training, own assistants. He is ultimately responsible as we have been doing. for the quality of U.S. leadership in the for¬ The next secretary should continue the ef¬ eign affairs field and the caliber of the people fort made by Secretary' Shultz to change die under his command is crucial. The current Foreign Service culture and to develop under¬ situation, in which it too often takes upwards standing and appreciation for the importance of a year to settle on and process an ambassa¬ of leadership and management. Since State dorial appointment and where patronage often provides only 28 percent of the personnel who is more important than ability, needs reform. staff our missions abroad (the Defense De-

26 FOREIGN SERVICE JOURNAL partment provides 30 percent), it is clear that congressional relations, given die fact that pub¬ it is not enough for an ambassador to be just lic and congressional consent is the oxygen a reporter—he or she must “manage” what of our foreign policy, should be as normal a is often a complex and diverse institution. component of a diplomat’s work as rep¬ I would prefer The next secretary of state should take a resentation and reporting. I have long ad¬ to have our judicious approach to the filling of vacancies vocated that the Department of State should embassies in his staff. Both the department and our mis¬ follow the practice of the military and open sions overseas are in need of streamlining. We a small office on Capitol Hill. That would reduced in size have too many under secretaries, assistant sec¬ improve our dialogue with and services to in¬ and many of retaries, and ambassadors-at-large. We have dividual congressmen. We need to stress con¬ our posts closed too many “seventh floor” staffs. A number gressional relations for many reasons, but prin¬ of our bureaus can be consolidated. Authority cipal among them is to help compensate for than to keep and responsibility have been driven steadily the lack of a natural constituency in the Ameri¬ them open at upwards and initiative and innovation at the can public. It should also help to preempt the the expense of working level have been weakened. Un¬ kind of micro-management that has been a fortunately, once an unneeded position has besetting problem for the department for so training, as we been filled by a new administration, it be¬ many years. have been comes politically impossible to abolish. Vested doing interests are created that arc turbulent to deal with. THERE ARE MANY other suggestions Also, I would urge the reintegration of which could and will be made in the USIA (perhaps minus the VOA) and ACDA name of “strengthening U.S. diplo¬ into the State Department; among other things matic representation.” Nevertheless, we would save the overhead entailed in main¬ adoption of die points I have mentioned would taining separate institutions. appear to me, on the basis of 34 years experi¬ ence in die Foreign Service of die United States and almost five years in the position of under A LAST bit of advice that I would give secretary for management, to add up to sig¬ relates to public affairs and to con¬ nificant contributions to this objective. gressional relations. I believe that If the next administation, after study, con¬ two positions, the assistant secretary cludes that the level of resources we devote for public affairs and the assistant secretary to the Department of State is right or all we for legislative affairs, should be filled with the can afford, American citizens must be ready greatest care and attention. Perhaps neither to accept the consequences. I believe we will job should be held by a career diplomat. then have to close a number of our posts over¬ The assistant secretary for public affairs seas, perhaps move towards multiple accredi¬ should be someone skilled and experienced tation of embassies, reduce the size of our in the area of creative public relations. It may workforce, slash the number of bureaus and not be possible to develop an expanded public high-level positions we maintain in Washing¬ constituency for the foreign affairs function, ton, and look for new ways to finance our but we have never tried hard enough. The building programs. We cannot and should not “spokesman” and public affairs functions continue to muddle through, putting off equip¬ should not be performed by a single individ¬ ment purchases, cutting training, constrain¬ ual. The former always overwhelms the latter. ing representation and travel, understating our The assistant secretary for legislative affairs posts, and the like. should be someone of political heft and, a For many years an argument raged in stra¬ number of members of Congress have told tegic circles about whether we should main¬ me, should not be a former congressional staf¬ tain our force structure at the expense of the fer. The secretary and his principal deputies training, mobility, and ammunition necessary should meet at least monthly in informal set¬ to meet its responsibilities. I always consid¬ tings, in which candid exchanges can be held ered that it was illusory to maintain a large off the record and as policies are being formu¬ force structure and sacrifice its fighting abil¬ lated, with key members of Congress respon¬ ity. I believe the Department of State faces sible in the foreign affairs, intelligence, and the same kind of strategic choice. Dealing with appropriations areas. This is not a function it cannot be put off indefinitely if we wish which can be delegated. Public affairs and to preserve a strong diplomatic arm. □

DECEMBER 1988 27 The Tongue-Tie

Witnesses at the Simon Hearings on “Foreign Language Competence in the Foreign Service” were (below left, left to right) Foreign Service officer Ross Quan; Perry Shankle, president of AFSA; and Ambassador Lannon Walker, diplomat in residence at the Carnegie Endowment; (below center) Professor Eleanor Harz Jorden, of Johns Hopkins’ National Foreign Lan¬ guage Center; (below opposite, left to rignt) Raymond Ewing, director, Office of Foreign Service Career Development and Assignments; Brandon Grove, Jr., director of the Foreign Service Institute; Under Secretary for Management Ronald I. Spiers; and George Vest, director general of the Foreign Service.

FOREIGN SERVICE JOURNAL Diplomat ?

The Foreign Service’s ability to comprehend and speak foreign languages should be nurtured and expanded

By PAUL SIMON

THE SUBJECT OF FOREIGN language skills, and the implications this held for an competence at the Department of America increasingly global in its day-to-day State is of critical importance to the affairs. I hope we don’t ever get to the point conduct of our foreign policy. It is where the majority of our diplomats are tongue- of such importance that I asked my dis¬ tied as well. But the reality is that too many tinguished colleague and chairman of the Sen¬ Foreign Service officers are either barely pro¬ ate Foreign Relations Committee, Senator ficient in or unable to speak the language of Claiborne Pell, to arrange for hearings on “For¬ their host country. eign Language Competence in the Foreign The Foreign Service’s principal task is die Service.” These hearings were held on Sep¬ representation of American interests and val¬ tember 21, 1988. I found our witnesses to ues to the community of nations. No other be forthright, informative, and creative in their executive branch agency has such a mandate, suggestions for improvement. All agreed that although many agencies now play a role in we still had some way to go in making our formulating and implementing U.S. foreign Foreign Service officers better linguists. policy. The State Department sells American There is unfortunately a host of examples foreign policy. In order to sell you must speak of foreign policy failures because of language the language of the customer. It’s as true in deficiencies. diplomacy as it is in business. Eight years ago I published a book called A number of my colleagues in Congress The Tongue-Tied American. I was concerned with our dangerous lack of foreign language Paul Simon is the senior Senator from Illinois.

DECEMBER 1988 29 have been concerned over die state of foreign Service as a profession, it is the ability to un¬ language training in the United States gener¬ derstand and negotiate in a foreign culture. ally and in the diplomatic corps in particular. Fundamentally this means the ability to com¬ In order to sell We have the only Foreign Service in the world prehend and speak foreign languages. It is this you must speak where you can enter without knowledge of a skill that not only distinguishes the Foreign the language of foreign language. The emphasis given to for¬ Service from other professions, but without eign language skills in promotion to the Sen¬ which there would be no need for a Foreign the customer ior Foreign Service has not been satisfactory. Service at all.” And despite high marks for the Foreign Serv¬ Ambassador Stearns made 20 suggestions ice Institute and its language programs, we for correcting our deficiencies in the hard lan¬ are not moving quickly enough to demon¬ guages. While some steps have been taken, strate management’s commitment to foreign many others have yet to be implemented. language excellence. Money is part of the problem, especially for This situation did not always prevail. Up such items as incentive pay and new facilities until 1955, the State Department required a for the Foreign Service Institute, but the bulk foreign language test as part of the entrance of the recommendations (particularly in die requirements. In that year, the department area of language testing and promotions) can made its language test optional upon entry, be achieved through administrative fiat. We and in 1963, deleted the test altogether. While need to move quickly on these problems. small salary bonuses were offered instead, a signal was sent to those interested in the For¬ M m m F. NEED TO BEGIN with the prem- eign Service: foreign language skills are not % /I I ise that foreign language ability an essential component of what makes a good 1/ 1/ is a necessary, but by no means diplomat. The predictable consequence of this y y sole, condition in the making of policy is reflected in the recent entry-level of¬ a good diplomat. Other skills are important, ficers accepted into the Service, less than half but the ability to master at least one foreign lan¬ of whom were rated as having “acceptable” guage should be a prerequisite for membership proficiency in at least one foreign language. in the Foreign Service. I advocate the following steps to make diis essential requirement a reality: TWO THINGS HAPPENED in the 1980s that encourage me. At my instiga¬ Require a foreign language competence ex¬ tion, Section 2207 was added to the amination as part of the entrance require¬ Foreign Service Act of 1980. This ment. We ought to require candidates to dem¬ section of the bill established a program of onstrate competence in at least one foreign “Model Foreign Language Competence Posts” language for acceptance into the Foreign Serv¬ on a pilot basis. In Montevideo, Uruguay, ice. If that requirement results in numbers of and in Dakar, Senegal, the State Department minorities or of women that are too small, conducted a unique experiment: every mem¬ then special tuition for promising applicants ber of the embassy staff, from clerks and sec¬ should be provided so that they can pass the retaries to Marine Guards and the ambassador, tests prior to entrance into the Foreign Serv¬ had to speak the language of the country. In ice. After acceptance, a language aptitude test March 1986, the department reported to Con¬ ought to be administered to see which offi¬ gress that in the words of the report, the posts cers should concentrate on the hard languages. were “much happier, more cohesive and more effective.” Implement the Stearns Report recom¬ The second event was the so-called Stearns mendations. In particular, language incentive Report, issued a few months after the model pay should be increased, not cut, especially embassy survey results. In November 1985, for those learning or maintaining a hard lan¬ the State Department asked Ambassador Mon- guage; in-country language training must be teagle Stearns to assess the status of hard lan¬ expanded; and above all, promotions into the guage proficiency in the Foreign Sendee. The Senior Foreign Service ought not to go for¬ report, issued in May 1986, offered a sober ward if the diplomat in question has no for¬ assessment of our hard language skills and a eign language capability. number of solid recommendations. Ambassador Stearns began his report: “If One of Ambassador Stearns’s more innovative there is one skill that epitomizes the Foreign suggestions that we ought to consider is a

30 FOREIGN SERVICE IOURNAL “Diplomatic ROTC Program.” The idea would the world? As more resources become avail¬ be to recruit those college and graduate stu¬ able, we should encourage more and more dents who have concentrated in a special pro¬ embassies to move in this direction. gram of foreign languages and area studies. The State Entry into the Foreign Service would not be Change the “culture” of the management. Department automatic—each candidate would still be re¬ This is perhaps the most difficult recommen¬ ought to place quired to pass the requisite tests—but we dation. We have a very capable leadership on would create a much larger pool of students the seventh floor at State, and some good peo¬ less emphasis in a focused, organized program of study. It ple sitting on the Foreign Sendee Promotion on MBA-like is something for the 101st Congress and the Board. But foreign language abilities and area management next administration to think about. specialization all too often hinder a Foreign Service officer’s promotion if the officer lacks skills, and Raise the proficiency standards One of our management experience. To borrow a phrase more on those witnesses, Professor Eleanor Harz Jorden, sug¬ Perry Shankle, President of the American For¬ qualities that gested that the rating and testing system is eign Service Association, used in our hearing not adequate. A 3/3 score does not always on Foreign Language Competence, we need have always translate into working proficiency. The stan¬ a change in “the culture of management.” A made an dard ought to be raised, making a 3/3 tougher two-track promotion system (one for area spe¬ excellent or requiring either a 3 + /3-E or a 4/4 in a cialists, one for management specialists) has world language. All students undergoing train¬ recendy been accepted. It remains to be seen diplomat ing in a hard language should routinely be how this will work out in practice, but it is a brought to the 4/4 level. The extra time and move long overdue. money spent would be well worth the pre¬ We should encourage more career speciali¬ mium if a sound foundation is laid for lan¬ zation. Part of this is making every effort to guage competence over the course of a 20- get that diplomat back to the region or coun¬ to 30-year career. Another problem is that all try in question for a second or a third tour too often the same person who taught you of duty, and prolonging his or her time in at FSI also gives you the competence test; country. an outside examiner will give a better picture We should offer more incentives, including of a given student’s language skills. financial, for reaching a 4/4 proficiency level. To show our seriousness, at least one person Fully fund the Foreign Service Institute. on the Foreign Service Promotion Board—by FSI needs new facilities, and ought to get the statute—ought to be at least at the 3/3 level, funds it needs from Congress. In exchange, and probably the 4/4, to ensure that proper FSI must make it clear how it will use these attention and sensitivity is given to foreign new facilities to turn out a much better corps language competence. of diplomat-linguists. Expand language exchanges for all officers. ABOVE ALL, the State Department We now have some cooperative exchanges'with ought to place less emphasis on other countries’ universities, and this ought MBA-like management skills, and to be expanded. We have a program with the more on those qualities that have People’s Republic of China, for example. In always made an excellent diplomat: foreign addition to China, we should have these kinds languages, area expertise, sensitivity to other of exchanges with the Soviet Union and East¬ cultures, and a firm grounding in our own ern Europe, Japan, Egypt, Korea, and per¬ traditions, history, and values. Too often sub¬ haps the ASEAN group. And we ought to stance and diplomatic skill are sacrificed on place some emphasis on training Soviet spe¬ die altar of managerial acumen. cialists in some of the non-Russian languages, Foreign language competence is crucial to an area of increasingly important concern. the performance of a diplomat’s overseas task. We can do much better. That is essential in Expand the model foreign language com¬ bolstering an already strong Foreign Service. petence post program. All agree the program By doing better on foreign language compe¬ was a huge success. Why not expand the pro¬ tence, the Department of State will be more gram to two new embassies per geographic effective, more productive, and more profes¬ bureau, for a total of ten embassies around sional. □

DECEMBER 1988 31 Language Expertise: Personnel Implications Language and other Foreign Service expertise can be improved through the judicious use of incentives

LANNON WALKER

BECAUSE I RECENTLY SERVED as am¬ a major factor in making Dakar a model post bassador to Senegal while the U.S. in every sense of the word. The department’s diplomatic mission there was a management evaluation agreed completely. Yet model language post, I was asked the program has been discontinued because to testify before the Senate Foreign Relations the department judged that the costs of ex¬ Committee on the subject of language com¬ tending it worldwide would have been pro¬ petence in the Foreign Service. hibitive. Of course, Dakar went from riches My testimony concluded diat the model lan¬ to rags when our regular language program guage program in Dakar had been a resound¬ was also cut, along with everyone else’s, be¬ ing success, contributing to significandy higher cause of the budget crunch. levels of mission-wide productivity and mo¬ At this point in the story, I can imagine rale. Imagine a situation where each Marine my colleagues’ commenting that we in Dakar Guard could handle, in French, emergencies had briefly profited from a windfall program and important calls, where staff members in that had no chance of surviving. Welcome back the budget and fiscal office, the warehouse, to the real world. On the contrary, I do not not to speak of AID or FAA—everyone— believe that the game is over, and neither does could get by in French and many could com¬ Senator Paul Simon, who clearly intends to municate at a professional level. This ability pursue tire resources and the policies that will to get one’s job done without an interpreter, give language competence a higher priority to know firsthand what was going on and to in the Foreign Sendee. This goal is, of course, be able to participate in social and cultural a good deal broader and more complicated events, was the key to a happy as well as to than simply reinstituting the model language a productive tour of duty. program. The pride of accomplishment was shared In effect, we are talking about three differ¬ by the family members, who participated in ent concepts. First, there is the language des¬ record numbers in the post language program. ignated position (LDP) program, where only Thus the base for the high morale in the offi¬ key positions in an overseas mission are desig¬ cial community was both broad and deep. In¬ nated to be filled at a given level of language spectors were unanimous in their conclusions competence. Secondly, there is the notion that the model language program had been embodied in Senator Simon’s model language post, where everyone in ever}' agency has to Lannon Walker is currently diplomat-in- speak the foreign language at a given level. residence at the Carnegie Endonment for Inter¬ And, not least, there is the question of lan¬ national Peace, Washington, D.C.. guage training at the advanced level. These

32 FOREIGN SERVICE JOURNAL distinctions are important because each pro¬ colleagues on the appropriations committees gram requires different levels of commitment to find additional resources to improve lan¬ by the various foreign affairs agencies and by guage competence in the Foreign Sendee, we individuals, different resource requirements, should use the resources we have to do better But if the and different incentives within the personnel under the LDP program, and we should rein¬ Foreign Service system to make them work. stitute the model language program in as many fails to posts as possible, beginning with selected world maintain its languages. A few posts where we do it right expert cadre O DISCUSS THE LDP program, I must are better than none at all. T throughout the go back to my first working experi¬ ence in the Foreign Service. Twenty- ranks in the seven years ago, I was assigned the SUCH ISSUES concerning the need and race to become task of writing a report to Congress on the resource requirements to expand for¬ department’s progress in implementing a pro¬ eign language competence throughout managers, it gram which required that certain positions in all the foreign affairs agencies raise a will have failed each mission abroad be designated at a given more basic question: How should the person¬ in its basic level of language competence. Congress had nel system build in incentives, rather than dis¬ mission instituted this program following criticism incentives, for language training or, for that aimed at the department because of die tongue- matter, any longer-term investment in profes¬ tied image of the Foreign Service presented sional development? The question of incen¬ in the book, The Ugly American. The depart¬ tives is particularly crucial for those officers ment had not done well in implementing die who may wish to develop intensive language/ program and had not kept Congress informed area or other expertise, but who feel that such of the problems it had encountered. an investment will take them out of the per¬ My study concluded that given the relative ceived mainstream to the detriment of their shortness of our tours of duty, plus die reality promotion prospects. that a percentage of staff members would be State has set up certain incentives to en¬ in training or in motion at any one time, it courage language study, such as the bonus was literally impossible to keep the positions for hard languages, the language requirement involved continuously, or even consistently, for tenuring, and stopping the clock on time- staffed at die designated language level. Even in-class during language training. But the per¬ to come close would require significandy larger ceptions remain that there is little room at sums of money than were then allocated, and the top for real experts, because managers and language competence would have to take on generalists seem to get the promotions into a much higher priority. The department agreed the Senior Foreign Service and the plums there¬ with my recommendations and so did Con¬ after. In fact, the personnel system tends to gress. As a result, more money was allocated, discriminate against experts of all stripes, and and for a time language learning took on more as a result, language learning and therefore importance, with significant improvement in language competence suffers too. In the proc¬ the Foreign Service’s ability to get its job done. ess, the Foreign Service is not performing its So these same hurdles—staffing gaps caused primary function—to produce the very best by the need for language training and inade¬ language, area, functional, and interfunctional quate training budgets—existed 27 years ago experts to assure that the essential foreign af¬ and almost prevented us from undertaking the fairs jobs are performed and performed well. LDP program. Congress acted then to find As in every other organization, the Foreign the additional resources and provide the man¬ Service needs to hire and develop staff that date for change in the department’s language can produce in its basic fields of expertise— program. FSI and the personnel system made consular, administrative, political, and eco¬ a major effort at improving language compe¬ nomic (including language/area, financial, po¬ tence, and the results have been significant litical-military), etc. Given the fact that U.S. and positive. For example, 75 percent of State’s foreign affairs programs play out in the main language designated positions are filled on a through overseas posts, program coordination regular basis at the required level of compe¬ in an interagency context is also a form of tence. In spite of this progress, the challenge expertise, which needs to be developed through today is to do even better. We need to expand training, assignments to other agencies, and the language requirement to include all agen¬ possibly service in several cones. From the pool cies and ultimately, as the model language pro¬ of both functional and interfunctional experts, gram suggests, everyone. senior leaders will be chosen. True, these ex¬ While we wait for Senator Simon and his perts will require broadening, and in some

DECEMBER 1988 33 cases deepening, at several points throughout Both categories of experts would need ex¬ their mid-careers. But if the Foreign Sendee ecutive training and experience along the way fails to maintain its expert cadre throughout to prepare for the top positions. But in such We have the ranks in the race to become managers, it a system, it would be clear that the Senior perpetuated a will have failed in its basic mission. In this Foreign Sendee is made up of functional and personnel connection, foreign language competence is interfunctional experts, and that we need more system where at the heart of its basic mission, as well as of and better of both. For the purposes of the the claim to foreign affairs expertise. question before us, language competence in the signal from the Foreign Sendee, it is clear that the choice the top is that at the senior threshold would be a powerful there is little HOW SHOULD the personnel system inducement. To reinforce that incentive, we incentive to use the proper incentives to im¬ should also make clear in the senior threshold prove not only foreign language precepts that an S-3, R-3 in at least one lan¬ engage in competence but the quality of For¬ guage is a major factor to be considered, and serious eign Service expertise in general? at some point, a requirement, tor promotion professional First, start at the beginning. Require at least into the Senior Foreign Service. development one world language at the S-3, R-3 level for Unfortunately, management and AFSA entry into the Foreign Sendee and give bonus both lost their nerve as the time to institute points on the exam for needed hard languages. the choice approached, and they agreed to If imposing this requirement immediately return to the old system whereby each officer would cut out too many otherwise highly quali¬ competes twice at the senior threshold, once fied candidates, then phase it in over a period in his primary cone and once classwide. In of time and use a bonus point system in the so doing, we have perpetuated a personnel meantime. If the language requirement is found system where the signal from the top is that to be unfair to minorities and other disadvan¬ there is little incentive, indeed there is a disin¬ taged candidates, make exceptions on affirma¬ centive, to engage in serious professional de¬ tive action grounds, but set the basic stan¬ velopment. dards high. In a word, shift some of the bur¬ After we reestablish and maintain the choice den of language training onto the private sec¬ of competition groups at the senior thresh¬ tor; send a strong signal to the universities old, the next most important incentive for en¬ and the candidates that the Foreign Service couraging language competence and expertise takes language competence very seriously. would be to institute a Qualifications Review Surely contemporary Foreign Service entrants, Board for each specialty, including the interfunc- who are joining at an older age than did my tional track. generation, can learn a foreign language along The board would establish criteria and the with or instead of work experience and higher benchmarks required to attain the certifica¬ academic degrees. tion of a board-qualified language/area spe¬ Then, reform the system at the top of the cialist, or financial economist, or interfunc¬ Service. The department and AFSA in 1985 tional officer, etc. Appearing before the negotiated a change in the precepts at the sen¬ Qualifications Review Board would be vol¬ ior threshold, which would have required offi¬ untary, but if an officer did qualify, it would cers to choose, as of 1988, whedier they would be noted in his personnel evaluation file. Be¬ compete for promotion into the Senior For¬ ing board-qualified would not be a require¬ eign Service either as a language/area or func¬ ment for promotion, but selection boards tional expert or as an interfunctional expert would obviously give great weight to the cer¬ (service in more than one cone, agency, set tification, all other things being equal. of experiences). The purpose of the choice at In my opinion, die foregoing are positive the threshold was to encourage deeper pro¬ and powerful incentives that would raise stan¬ fessionalism by giving an incentive to officers dards, productivity, and morale in the For¬ to concentrate early on in their careers in one eign Sendee. We would have the tools for a of the tracks available at the senior threshold. real professional development program, includ¬ Interfunctional experts would seek out-of- ing increased foreign language competence. agenev tours, today certain death. They would If we could apply these basic incentives to all look for different experiences such as program the foreign affairs agencies, the quality' of our direction and multilateral affairs. Functional senior leadership would dramatically improve. and language/area experts would deepen their Senator Simon and Congress may allocate the expertise through training, longer tours, and resources and offer encouragement, but it is assignments in their field to other agencies. up to the Foreign Service to reform itself. □

34 FOREIGN SERVICE JOURNAL flf (jf% II i; II 'I Ej Hito 1 - "I:; 1 !lj! K !■ : Si ) The Way to Language Success

“He perfected himself in speaking French, he visited the art gal¬ leries, the theaters, the opera, and found time to write poetry —William R. Thayer, The Life of John Hay

HUME HORAN

W-E CAN PROBABLY DISPENSE ther promotions is less than it was before. with FSI language training al¬ But what can the Foreign Sendee expect together, someday—linguists of the students themselves? And what more speculate that all languages to¬ can it do to make sure its linguistic product day descend from two or three basic struc¬ is as useful and good as the needs of die Serv¬ tures, rooted in pre-history, and that they may ice require? “ascend” to two or three basic structures in As we consider our language shortcomings, the future. Unfortunately, however, Foreign do we give too much weight to external fac¬ Service people can’t wait. If we need a lan¬ tors such as insufficient funding by Congress, guage, then it’s weeks, months, or in some faults in materials or methodology, or subtle cases, years of training at the Foreign Service disincentives in our administrative or bureau- Institute. cractic environment? Such factors should be As Ambassador Monteagle Stearns wrote considered. But we must remember also that in his 1986 Report on Hard Language Profi¬ the only really indispensable asset for success¬ ciency in the Foreign Sendee, “If there is one ful language training is the committed, hard¬ skill that epitomizes the Foreign Service as a working students themselves. Foreign Service profession, it is the ability to understand and people, as professionals, have a self-interest, negotiate in a foreign culture.” a duty, (somehow) to learn the languages they From even brief discussions with FSI edu¬ need. cators, one sees that Ambassador Stearns con¬ The Stearns reforms will facilitate language tinues to be listened to. Hard-language bo¬ learning, but even if they were all implemented, nuses were fought for and won; career candi¬ language success would still depend upon a dates no longer face the same disincentives language student’s serious purpose—his or her to hard-language training—during such train¬ willingness to endure months, perhaps years ing, their time-in-class clock stops for up to of sheer slog for our country’s sake, and for a year. The promotion panels are listening, the student’s own professional education. too. The likelihood that a monoglot officer The routes to fluency are many: Edward will cross the threshold or that one already Lane occupied a tomb at the base of die Pyra¬ in the Senior Foreign Service will receive fur- mids while toiling at his monumental Arabic- English dictionary. His successors may use one Hume Horan, currently at Georgetown Univer¬ of FSI’s modern laboratories or field schools, sity’s Institute for the Study of Diplomacy, has where the most up-to-date materials and fa¬ been tested in Arabic (S4+, R4+), French (S4, cilities are available. Both then and now, the R4 +), German (S3+ , R4) , and Spanish (S3+ , student cannot shift the responsibility, and cf- R4).

DECEMBER 1988 35 fort, for language learning onto other shoul¬ pushed hard. The school’s director, Dr. Ray ders. FSI should never be seen as a kind of Chambers, was a brilliant psychologist, moti¬ bottling plant, where simply passive, empty vator, and coach. We learned there was as yet djangUOg C receptacles are filled, capped, and shipped off no easy, medical cure for monoglottism. No success depends to market. pill, no simple surgical procedure. We were Even the best facilities and methodologies told that only hard work by the students, fac¬ on a student’s will demand much midnight oil, compensated ulty, and administrators would get the job serious in part by the sure prospect of interesting work, done. Students were given a simple home¬ and those moments of illumination when one work SOP: they should spend at least three purpose— the willingness finally reaches a higher plateau of fluency— hours on language homework a night. In ad¬ only to see other, higher plateaus in the dis¬ dition, the school expected students to learn to endure tance. Such landscapes may seem forbidding. the history and culture of the area, through months, But the committed, hard-working language outside reading and field trips. The FSI Beirut perhaps years of student, heading overseas for Foreign Service library was superb. sheer slog for duty, will find the rewards proportionate to The school understood that hard-language the effort. study was stressful. Arabic, a non-Indo- our country’s I have found them so. Language study has European language, offered no “finger and sake, and for fulfilled my hopes and expectations. It’s helped toe holds” to English speakers, who merely the student’s me to get a succession of interesting, even by speaking English unconsciously practice own exciting jobs. I’ve come to know and work French, Spanish, and even German a good with Foreign Service colleagues I’ll always ad¬ part of the time. To reset the odometers of education mire. Through Arabic, the non-Western soci¬ our conscious and unconscious mind on zero, ety of the Middle East seemed less opaque. and begin again, was hard for some. Arabic helps one deal more effectively also It seemed most stressful on older, more pro¬ with the impasses and frustrations of work fessionally finished officers. Perhaps their fam¬ in that part of the world. The most repetitive, ily responsibilities and distractions were greater unyielding issues are not quite so grinding than those of younger students. Perhaps their when they offer the opportunity to practice capacity for single-minded concentration had one’s linguistic tradecraft. (That’s on good days, flagged. Or else, older officers may have felt of course. On bad days, the language turns threatened in competing with a younger group, insubordinate: even simple words and ideas in a context where an older officer’s profes¬ won’t be ordered into formation.) Through sional experience did not help. language, moreover, an officer can become FSI Beirut further urged us to perform pe¬ accessible to experiences that are profession¬ riodic maintenance on our language skills when ally and educationally important, and which we had left the area. “What a waste!” one go beyond tradecraft. To read the Quran, or linguist remarked, “when a student acquires Goethe’s lyric poetry (and translate it), to lis¬ a skill through hard work and great cost to ten to the Luther Bible read out loud, to fol¬ the government, and then drops it, like a child’s low the popular literature of your country of toy on the lawn!” There were limits, he assignment, can be humanizing. It can also thought, to what a refresher course could do, help you bring a more receptive, perceiving if a Foreign Service person allowed language state of mind to your daily work. There is (like anything else) to deteriorate too far. an Arab proverb to the effect that, “He who knows a people’s language is safe from their wickedness.” ■w- -w- yHAT MORE CAN the State De- % I partment and the Foreign Serv- 1/ l/ ice do to promote the language AMONG THE ARABIC-language stu¬ f f success of its hard-working, com¬ dents at FSI Beirut in the early 1960s mitted language students? To begin with, we were some who had only recently don’t need to reinvent the Stearns Report. put college or graduate school be¬ It’s a document of long-term validity, and we hind them. We could hardly believe the learn¬ should keep referring back to it to see how ing opportunities the Foreign Service offered we are doing. In addition, every hard lan¬ us. After graduate school, after all the grub¬ guage educator and student has his or her bing for fellowships, assistantships, and grants, own list of judgments, prejudices, and opin¬ to be in Beirut, on a salary, plus living quar¬ ions about language training. These include: ters allowance and diplomatic privileges, was to be in a sort of language student’s Elysium. Funding: There is agreement between the It was no vacation, of course. Students were Stearns Report and FSI’s instructors and man-

36 FOREIGN SERVICE JOURNAL agers that more money is needed for language tural “atmospheres” to assure progress to the instruction. In past years, hard-pressed budget 4/4 level. During the early 1960s, we saw that planners may have thought that in language students who began their Arabic with six training—like bridge maintenance in John Lind¬ months or so in Washington were on arrival The say’s New York—needed expenditures could in Beirut almost always behind those students committed, be deferred, without any harm becoming vis¬ who had been in Beirut from the start. ible. Both assumptions were incorrect. As a Also, training once begun had better be hard-working first order, therefore, FSI’s funding levels for continuous. It may be good in theory to bring language language should be defended, and if possible language officers back to school after a first student going increased. There should be no further cases assignment in the field. In reality, though, such overseas where a non-career ambassador is denied lan¬ officers will probably not want to interrupt guage training at FSI in the language of his their career for a second round of training. will find non-Western country, because his position The best and most ambitious ones are espe¬ the rewards “was not language designated” and because cially likely to escape. Accordingly, FSI should proportionate training money wasn’t available. push its officers as far and as fast as it can the to the effort one time it has them in training. Raise the bar: Is it unreasonable to expect EFINE THE MISSION: The Foreign D candidates who are serious about a career in Service Institute truly represents Foreign Service to have learned something of the people and the pedagogy of a foreign language in their preceding lifetimes? the society it serves. Like a good World languages are well taught at U.S. col¬ public school, it does its best for all comers, leges and universities; any Foreign Service can¬ the talented and less talented, the motivated didate with a real desire could at least have and the bored. It hates to flunk anyone. It learned to read in a language other than Eng¬ will seem to work harder to pull a poor stu¬ lish. If a foreign language were required—or dent across the S-3, R-3 line—on a second even rewarded—many candidates would cer¬ or third try—than to push a gifted one up¬ tainly make it their business to go and study wards to the 4/4 level, where the U.S. govern¬ one. The FSI would receive trainees with bet¬ ment can truly amortize its investment through ter language skills; it would not have to de¬ on-the-job performance. The FSI’s position vote so many resources to “zero time” pro¬ reflects a generous, caring spirit, but when grams. The savings could help pay for a denser, language funds are short, could one perhaps higher level curriculum. (Some modification ask more insistently, “Is the way we now allo¬ of this language requirement could be made cate training resources best for the needs of for EEO candidates.) the Service?” A harder look could result in more track¬ Personality traits: When I asked various lin¬ ing, maybe even some triage. And by divest¬ guists what qualities they looked for in a hard ing itself early of really poor or unmotivated language student, their replies went far be¬ students (plus an occasional instructor, too?), yond the MLAT score. Motivation ranked the FSI could lighten the burden on its able, high, and so did other qualities: a spirit of motivated instructors, and save money. adventure, curiosity, self-confidence, cheerful¬ With the savings, more Foreign Service peo¬ ness, a sense of humor, a sense of personal ple should be pushed to the 4/4 level. One worth (but none of self-importance), a wish cannot compare the utility to the Service of to communicate, plus an omnivorous appetite a 4/4 speaker with that of a 3/3. It’s the Moni¬ for the many different flavors that foreign cul¬ tor or The Merrimack versus a wooden-hulled tures come in. I had the impression, however, ship. The proficiency of an officer who gradu¬ that under present exam procedures, at least ates with a 4/4 may continue to improve— a number of new entrants to the Service may because he or she can successfully insist on lack—because of a deliberate, reflective, im¬ using the language with foreigners in many personal style—the cultural gusto needed to different situations; but the proficiency of gradu¬ excel even at world languages. (After recent ates with a 3/3 in a hard language may degen¬ service on both State and USIA Selection erate—because a foreign interlocutor will usu¬ Boards, it’s my impression that USIA does ally speak English better than the American the best language job of all our foreign affairs does the foreign language. agencies; their officers seem to enjoy commu¬ Training in the higher levels of a language, nicating in foreign languages.) especially a hard one, almost has to be “on location.” A Washington ambiance simply Need to anticipate: The FSI, like other offices doesn’t place the student under sufficient cul¬ of the department and the U.S. government,

DECEMBER 1988 37 should try to anticipate the demand of emerg¬ senior Foreign Service levels where “world lan¬ ing situations. This is easier said than done. guages” arc spoken. Europeans of a post- Why, if present resources aren’t enough for World War II generation, for instance, are If our senior present needs, divert some resources to needs making up their own minds about the United diplomats don’t that may never arise? I think, however, of the States. They are not content simply to coun¬ visit to Washington by the leader of the Af¬ tersign their fathers’ (or grandfathers’) opin¬ speak the local ghan resistance movement in 1987. He pre¬ ions. They may wonder, as Europeans have language well, ferred, I was told, that a native-born Ameri¬ always done, if the United States really has host country can be his interpreter, rather than a natural¬ those qualities of judgment needed in a wise nationals may ized American of Afghan origin. But, no native- world leader—not just a powerful and indis¬ born American was available. Pushtu, it is true, pensable one. For an answer, they look closely conclude we has only a limited currency. But considering at our senior diplomatic representatives on the don’t really the importance of Afghanistan to our foreign scene. If these don’t speak the local language care enough, or policy in the last ten years, and the amount well, host country nationals may conclude we that as a of assistance we have given the Afghan free¬ don’t really care enough about our most im¬ dom fighters, could not the value of say, one portant alliance, or that as a nation—and as nation we lack Stinger missile, have been spent on develop¬ an educational system—we lack the will to the will to do a ing one officer (from any agency) who could do a good job in Europe, where presumably good job speak Pushtu really well? we are putting our best foot forward. We may next be looking at Persian, and finding the cupboard as bare as that of Arabic became after the 1967 Arab-Israeli War. Imag¬ ITS PROBABLE, HOWEVER, that all the ef¬ ine the reaction of a spouse or friends to the forts of State Department management news that one had just opted (in response to and FSI professionals can only moderate one of the department’s breathless “All hands” by a little the uphill gradient of the hard- circular cables) for Persian training: “Have you language track. Languages will always be hard, forgotten the Tehran hostages? 444 days . . . and will give up their secrets only to students and the Beirut hostages . . . the torture killing capable of prolonged, penitential, solitary con¬ of James Buckley . . . those horrible ayatollahs centration. Hard-language study is no team . . . the children’s schooling . . . my career? . sport. Afterwards, moreover, those students . . that staff assistant’s job that you were of¬ and their families may face years of hardship, fered ... ARE YOU NUTS?” All understand¬ isolation, and danger. able, even justifiable reactions, but still, it may How then can we expect Foreign Sendee soon behoove the United States to have some people in any numbers to opt for hard- able Persian/Arabic speakers ready to serve in language training? The answer is that there Tehran. have always been patriotic, adventurous young It is hoped the Foreign Sendee Institute men and women who want to serve their coun¬ will manage an adequate, foresighted response. try overseas, along the strategically important, Competent language and area specialists are crisis-ridden “hot spots” and fault lines of the a civilian “weapons system”; their develop¬ non-Western world. They may not at first be ment takes time—the kind of time needed to interested in foreign affairs management and develop military hardware, or turn a high process (though they often are in leadership). school senior into a law firm associate. Eventually, they will become familiar, and some even expert, in these important aspects of our Top jobs: Hard-language officers should be able work. But first, they want to see things for to lift up their eyes from flashcards, to the themselves—from a position of immediacy that likely prospect of someday becoming deputy no other career affords—and, by applying their chiefs and chiefs of mission in their areas of expertise to areas unfamiliar to most Ameri¬ language specialty. Who wants to work for cans, make a difference for their country. years at a hard language and in a tough area, In 1865, these motives helped send John only to be known as a “State Department Ara¬ Hay, a patriotic and culturally inquisitive young bist”? The percentage of language-qualified man, to France. Since then, our linguistic and officers in senior jobs in the Arab world is foreign policy frontiers have moved on—but fairly good now; it has not always been so, hard-language students now, like John Hay however. then, will be challenged as few young men Excellence in world languages: As a postscript and women ever are in peacetime; they’ll have to Ambassador Stearns’s report, I would add extraordinary educational experiences, and that language expertise is important, too, at never be bored. □

38 FOREIGN SERVICE JOURNAL Gorbachev’s campaign for openness is supported by U.S.-Soviet 30 years of U.S. — Soviet cultural exchanges Cultural

YALE RICHMOND Exchanges

THE GIFT for 30-year anniversaries is either pearls or diamonds. The Sovi¬ ets in the late 1980s have presented Americans with several gems on the thirtieth anniversary of cultural exchange be¬ tween the two countries. They are now saying da to many U.S. proposals which they had rejected with a firm nyet only a few years ago. For example, some 285 Soviet musicians, danc¬ ers, and other artists spent three weeks in Bos¬ ton in March performing with Americans in a festival appropriately titled “Making Music Together.” Several years in the making, it was the first major joint U.S.-Soviet artistic un¬ dertaking. A similar festival will be held in Moscow in 1989. At the Boston festival, Mikhail Baryshnikov, the former Kirov Ballet star who is now artistic director of the Ameri¬ can Ballet Theater, became the first Soviet de¬ fector to perform with Soviet artists. In another first, two dancers from Moscow’s Bolshoi Ballet were in residence in New York during the 1988 winter season, performing with the New York City Ballet. And for the spring season, two dancers from Leningrad’s Kirov Ballet joined die American Ballet Thea¬ ter. Several U.S. theater directors have directed American plays in Moscow during 1988. While not a first, this is a new trend in Soviet theater— foreign directors working with Soviet com¬ panies performing foreign plays. Former So¬ viet cultural figures now resident in the West are being invited to return to the Soviet Un¬ ion and perform or work there. Filmmakers of the two countries have formed a U.S.-Soviet Film Initiative in an at¬ tempt to eliminate stereotypes of Americans and Soviets in their works and to encourage cooperation between film artists of the two countries. In a related development, the first Igor Podchufarov gets a kiss from a Russian bear cub at the Moscow festival of American films was held in the So- Circus, touring the U.S. for the first time in 10 years.

DECEMBER 1988 39 vict Union in 1988. years. Television spacebridges, with American and In academic exchanges, the Soviets have pre¬ Soviet panelists and audiences debating live ferred to send abroad students who had com¬ People-to- via satellite, are now routine. Among these pleted their formal studies and were engaged people contact is a series between members of the U.S. Con¬ in scientific or scholarly research. For many is now a stated gress and the Supreme Soviet debating such years Soviet “students” coming to die United issues as mutual security, human rights, and States were in their late thirties, although in goal of the two regional conflicts. The spacebridges are broad¬ recent years the average age has dropped to governments cast on national television of the two coun¬ the early diirties. By contrast, American stu¬ tries. dents going to the Soviet Union have been People-to-people contact is now a stated mosdy in their twenties. In academic year 1987- goal of the two governments. Soviet visitors 1988, some 700 American students and schol¬ to the United States are accepting invitations ars, most of them undergraduates, studied in for overnight stays in American homes, and the Soviet Union (for periods of 30 days or several thousand Soviet citizens are receiving more). The corresponding number of Soviets exit permits each year to visit relatives in the in the United States was about 400, but only United States. twenty were undergraduates. Chautauqua “town meetings” with the So¬ The number of Soviet undergraduates in viets have been held each year since 1985. the United States will increase in 1988-1989 In these meetings, Soviet and U.S. govern¬ however, and their average age will decrease ment officials and public figures debate issues further, when some 50 students arrive at the between the two countries before public audi¬ invitation of a consortium of colleges and uni¬ ences, with extensive coverage by die media. versities headed by Middlebury College. And At the second Chautauqua meeting, held in in a departure from past policy, the Soviet the Latvian resort of Jurmala in 1986, Ameri¬ students will be placed singly on U.S. cam¬ can diplomat Jack Matlock (currently ambas¬ puses rather than as a group accompanied by sador in Moscow) addressed the opening ses¬ a faculty adviser. sion. Speaking in Russian, he presented a criti¬ Soviet policy on student exchanges becomes cal review of Soviet policies, including the all the more evident when contrasted with that forced annexation of the Baltic states after of the People’s Republic of China (PRC). Al¬ World War H, a move not recognized by the though U.S.-PRC exchanges began only in United States. In a severe test of ijlasnost, Mat¬ 1979, in academic year 1987-1988 there were lock’s remarks were reported in the Latvian more than 25,000 Chinese students, scholars, media. Glasnost survived the test, as did the and scientists in the United States. While the Chautauqua meetings with the Soviets. PRC has recently announced a major reduc¬ In youth exchanges, a breakthrough was tion in students studying in the West, the fu¬ made at the Reagan-Gorbachev Moscow Sum¬ ture number of Chinese in the United States mit in June 1988. In the past, the Soviets had is still expected to be much larger than for moved slowly and cautiously, and the exchange the Soviets. ot diousands of U.S. and Soviet students called for by American presidents from Eisenhower to Reagan appeared to be far in the future. ETERANS OE U.S.-SOVIET exchanges A small start had been made in high school V are pleasandy surprised by these de¬ exchanges, long sought by the United States, velopments. For 30 years the two and the Soviets had chosen to go first class. governments—and scores of For¬ The first high school exchanges—in 1987 and eign Service officers—laboriously negotiated 1988, by small groups of American and So¬ a scries of cultural agreements which spelled viet teenagers accompanied by a teacher— out exactly what would be exchanged and un¬ were with Phillips Andover Academy and der what conditions. And for most of those Choate Rosemary Hall, both elite eastern prep years, die Soviets took a “strict construction” schools. approach, permitting only those activities At the Moscow summit, however. General which were specifically mentioned in die agree¬ Secretary Gorbachev accepted President Re¬ ments. The 1985 cultural agreement, for ex¬ agan’s proposal to greatly expand high school ample, required 65 meetings over a period exchanges. Negotiations have begun for pair¬ of 15 months to negotiate. ing 100 American schools where Russian is Now, in a complete reversal die Soviets have taught and an equal number of Soviet high switched to a “loose construction,” permit¬ schools, with the goal of exchanging 1,000 ting a much wider range of exchanges. In¬ or more students in each direction widiin two deed, the intergovernmental cultural agree-

40 FOREIGN SERVICE JOURNAL ment, so laboriously negotiated, is of little in the belief that dialogue should be continued, or no concern to most participants in these especially when bilateral relations are not good, exchanges. and diat citizens of the two countries should The first U.S.-Soviet cultural agreement, work together to avoid nuclear war and main¬ signed in 1958, was a product of the “spirit tain peace. The administration did not en¬ of Geneva” and die post-Stalin thaw. For the dorse these peace initiatives, but it did en¬ next three decades, although exchanges were courage private-sector efforts through the U.S.- endorsed by every administration from Eisen¬ Soviet Exchange Initiative, announced by Presi¬ hower to Reagan, and supported by Congress dent Reagan and General Secretary Gorbachev and die public, the rate of exchange fluctu¬ at the Geveva summit in 1985. Coordinated ated, expanding when relations were good, by the U.S. Information Agency, the new in¬ and decreasing when they were not. itiative encourages die private sector to get The initial years, 1958-1972, can be called involved in exchanges, but without U.S. gov¬ exchange tourism, in which specialists in a ernment funding. wide variety of fields visited the other coun¬ The Soviets recognized the advantages in try, met leaders in their fields, and wrote re¬ working with the private sector. First, the lim¬ ports after returning home. Follow-up was ited U.S. government involvement meant that infrequent, and die watchwords on both sides there would be little or no political agenda were suspicion, control, security, and strict for the new exchanges. Second, most of the reciprocity. The number of persons exchanged American organizations initiating exchanges was not large—about 1,000 on each side an¬ had litde or no previous experience in deal¬ nually—depending on how many symphony ing with the Soviets, and there would orchestras or track teams traveled in a particu¬ be no State Department or USLA offi¬ lar year. cers along to give advice and warn Cooperation was the objective in the sec¬ of potential pitfalls. When given ond phase, 1972-1979, the detente years. Sci¬ a choice, die Soviets usually pre¬ ence and technology exchanges were spun off fer to deal widi such inexperi¬ from the cultural agreements into 11 bilateral enced Westerners. Today, agreements for cooperative activities in such more dian 250 private sec¬ fields as environmental protection, medicine tor organizations and public health, and space. U.S.-Soviet work¬ mosdy at the grass¬ ing groups were created under each agree¬ roots level, are in¬ ment to conduct cooperative research in fields volved in direct of common interest. While the objective was exchanges with Soviet counterparts. The ex¬ mainly political on the U.S. side—-to establish act number of organizations and persons in¬ habits of cooperation—these agreements con¬ volved is not known because the Americans siderably broadened interaction between sci¬ deal directly with the Soviets and are not re¬ The Flying Cranes entists of the two countries. The number of quired to inform Washington of their activi¬ perform during the persons exchanged annually for all exchanges ties. Moscow Circus, rose to about 3,000 on each side. currently on a The Soviet invasion of Afghanistan in De¬ U.S. tour. cember 1979 ended most U.S.-Soviet coop¬ IN ITS BROADER SENSE, cultural exchange eration. The Carter administration suspended includes all exchanges of people and many government-funded or -supported ex¬ ideas—students and scholars, scientists, changes to show its disapproval of the Soviet exhibitions, foreign radio broadcasts, and action. This policy was continued and rein¬ tourism, as well as the arts and culture—and forced during the first Reagan administration other activities which help people of one cul¬ after the imposition of martial law in Poland ture to understand another culture better, and and the Soviet shootdown of Korean Airlines their own as well. Soviet interest in cultural flight 707. The number of persons exchanged exchanges serves a variety of objectives. dropped dramatically. The main objective in 1958, as the Soviet After an administration reassessment of its Union emerged from the self-imposed isola¬ Soviet policy in 1983, most of the government- tion of the Stalin era, was to acquire Western funded exchanges were resumed. The major know-how, an old Russian tradition going back player on the U.S. side, however, was no longer to Peter the Great. The Soviets also wanted the government but the private sector. to show Americans their achievements under Reacting to die reduction in official con¬ “socialism,” and to gain legitimacy through tacts in 1979, many U.S. private sector or¬ bilateral agreements and cooperation with their ganizations began exchanges with the Soviets principal rival. In the performing arts and ath-

DECEMBER 1988 41 lctics, they recognized that international ex¬ increased bilateral cooperation. The initial con¬ perience is necessary to compete in world- tacts between the two countries established class competitions. And the Soviets soon during the the years of “exchange tourism” Cultural learned that they could earn hard currency provided the basis for today’s talks on arms exchange with their performing artists and athletes. Ex¬ control, political differences, and trade. includes all changes were also used by the Soviets to vent Through exchanges, each country has learned the pent-up desire of their intelligentsia for that it can accept large numbers of foreign exchanges of travel abroad. There was also a political bot¬ visitors without threat to its national security'. people and tom line, as with all Soviet actions. Exchanges Indeed, it can be argued that today diere would ideas which could be used to present an image abroad of be no intrusive military inspections under the a country pursuing peaceful coexistence and INF agreement were it not for the experience help people of international cooperation. gained by the two sides in cultural and scien¬ one culture to These objectives have not changed much tific exchanges. The painstaking interventions understand in 30 years, although the Soviets have be¬ by Foreign Sendee officers on increased ac¬ come more experienced and skilled in achiev¬ cess and travel for U.S. scholars and scientists another ing them. In particular, the Soviets today ap¬ in the Soviet Union over the past 30 years culture better pear confident of their ability to use cultural have helped the Soviets gain the confidence exchange to present their political agenda di¬ they need for today’s military inspections. rectly to the American people and thereby Exchanges, including foreign radio broad¬ bring pressure on Congress and the admini¬ casts, have also helped to break the Soviet stration. government’s monopoly in information— For the United States, the major objective what is reported in the Soviet media about has been to promote a freer exchange of peo¬ other countries and the Soviet Union itself. ple, information, and ideas, in order to en¬ As more and more Soviet citizens have trav¬ courage change toward a regime which will eled to the West and made the inevitable com¬ be less oppressive at home and more likely parisons with their own country, the Soviet to cooperate, rather than confront, abroad. media have had to become more honest with A second goal has been to learn more about their readers and viewers. the Soviet Union, an objective of the academic, Gorbachev’sglasnast and perestroika are due, scientific, and business communities as well in great part, to three decades of exchanges as the government. And in more recent years, with the West. During these years an entire there has been a growing belief that exchanges generation of the Soviet intelligentsia— are good in themselves, and that citizen groups creative artists, filmmakers, scholars, scientists, in particular need to maintain a dialogue with theater directors, and writers—has traveled to the Soviet people in order to introduce a hu¬ the United States and other Western coun¬ man, people-to-people clement into U.S.- tries. These representatives have seen the crea¬ Soviet relations. tive freedoms which their colleagues in the After 30 years it is fair to ask what these West enjoy and they have learned how far the exchanges have accomplished. Originally re¬ Soviet Union lags behind the West in eco¬ garded as a curiosity and with suspicion on nomic development. And they recognize that berth sides, cultural exchange is now accepted these disparities have not been reported in in both countries as a normal and useful ele¬ the Soviet media. Gorbachev, under his pol¬ ment in bilateral relations. Thanks to exchanges icy ofplasnost, has given die intelligentsia more the two countries now know considerably more creative freedoms. In return, he has the intelli¬ about each other. In universities, scholarly and gentsia’s support in selling his economic re¬ scientific institutions, business, and govern¬ forms to the Soviet people. ment drerc are people who have studied in the other country or have at least visited it. They have the experience that comes only with WHAT DOES THE FUTURE hold for having spent some time in another country, these exchanges? This question mastered its language, and become familiar was addressed at the first joint with its culture. They are able to distinguish conference on exchanges at Get¬ fact from fiction and to understand what is tysburg College in January 1988 convened un¬ really going on. Their expertise provides some der the auspices of the Eisenhower World Af¬ assurance that the two governments in the fairs Institute. Twenty-five Soviets and 25 future will not misjudge each other’s actions Americans met for five days to commemorate and intentions, as they have all too often in their thirtieth anniversary and to discuss their the past. future needs and direction. Exchanges have provided a framework for The conference joint statement confirmed

42 FOREIGN SERVICE JOURNAL the value of exchanges in contributing to im¬ K proved understanding between the two coun¬ tries. It noted that new forms of exchange activity are now possible but recognized that they require the involvement of broader seg¬ ments of the two societies, in particular greater participation by young people and individuals (as opposed to organizations). On administrative issues—where the Sovi¬ ets are notoriously weak—die conference noted the problems likely to arise with the antici¬ pated increase in exchanges. Improved com¬ munications were suggested, a veiled refer¬ ence to U.S. difficulties in communicating with Soviet partners and getting prompt responses. Referring to the “vast array of exchange pro¬ grams,” the delegates cited die need for greater interchange of information—who is doing what in exchange and with whom. And in recognition of the inadequacy of funding on the U.S. side, the conferees called for increased government financing, noting that handing in¬ stability makes long-term planning difficult. The big question, only alluded to in die joint statement but well known to U.S. veter¬ ans of exchanges, is whether the Soviet sys¬ tem, with its obsession for control and secu¬ rity, can handle a major increase in the num¬ ber of people exchanged. Currently only a few thousand participate annually on each side. Not very many, considering the size of the two countries and die number of years that they have had exchanges. A major increase would require the Soviets to relax their controls and permit organiza¬ It tions and individuals to enter directly into ex¬ change arrangements with Americans. Arc the Soviets now sufficiendy confident to send large numbers of young people to the United States—the “thousands” suggested by U.S. presi¬ dents—for study as individuals rather than as are conducted on the basis of “equality, mu¬ The Moiseyer members of groups whose activities are moni¬ tual benefit, and reciprocity,” as stated in the Dance Company, tored by a group leader? The new high school cultural agreement, the United States has much one of many cultural and undergraduate exchanges may provide an¬ to gain from an expansion. groups from the swers to these questions. If past practice is any indication of future USSR which have The Reagan administration has appeared behavior, the Soviets will move slowly and performed in the divided on the issue of a major increase in cautiously, seeking to expand exchanges but U.S. in recent years. exchanges. Some in Washington recognize that not to relax their control appreciably. Much a gradual improvement in bilateral relations will depend, of course, on the future of Gor¬ must include increased contact between citi¬ bachev and his reforms. If Gorbachev fails in zens of the two countries. Others, believing his efforts at reform, exchanges will also suffer that well meaning but inexperienced Ameri¬ and, as in the past, they will continue to fol¬ cans will be outmaneuvered by their Soviet low, rather than lead, political relations be¬ counterparts, are reluctant to open the United tween the two countries. States to large numbers of Soviets whose ac¬ tivities the FBI will not be able to monitor. This is an issue which needs to be resolved Tale Richmond, a retired USIA officer, is the by the next administration. If appropriate safe¬ author of U.S.-Soviet Cultural Exchanges, guards are maintained to ensure that exchanges 1958-1986: Who Wins? (Westview Press)

DECEMBER 1988 43 Journal

The Year of the Three Kaisers

AS A MEMBER of the diplo¬ ordered a regiment to march through matic corps from 1885-89, the rooms and remain in them long it was my good fortune to Jane Pendleton Brice enough to warm the air. Not a very have been in Berlin at a time pleasant idea, but the German nose is full of interest. When I first went to not as sensitive as ours. Berlin, Wilhelm I was living and sur¬ One hundred years ago, three dif¬ The ladies of the diplomatic corps rounded by his old friends and ad¬ ferent emperors occupied the tin-one were to be received first and we formed visers, Bismarck, Von Moltke, Von of Germany: the aged Kaiser Wil¬ a line, according to our official rank, Rauch, and others, those grand old helm I, first emperor of the young in one room while the gentlemen did men of “blood and iron” men who had confederation; his son, Friedrich the same in another. At 9 p.m., the made the empire. The youngest of III, then terminally ill with can¬ folding doors were opened; I shall them was more than 70 years of age. cer; and his grandson, Wilhelm never forget the splendor of that sight. II, who became Kaiser b fibre 1888 The emperor and empress were then The Ritter Saal (Hall of Knights) was was out. far advanced in age and it seemed but George Hunt Pendleton, former lighted by hundreds of wax candles, natural that the great dignity of the senator from Ohio, was appointed which reflected in the armor that cov¬ imperial court should have been borne President Cleveland’s minister to ered the walls and then again in the by the old and tried retainers, who had Germany in 1885. Accompanying polished parquet floor. When my eyes supported the royal couple while Prus¬ him to Berlin were his wife and became accustomed to the dazzling sia was yet a kingdom. their two daughters, then young light, I saw their imperial majesties at Among the ceremonies of great in¬ women in their twenties. In 1895, the end of the room, sitting upon the terest that I witnessed was the last his younger daughter, Jenny, my throne with crowns on their heads and Schleppen-court held by the old em¬ grandmother, wrote an account scepters in their hands. The dazzling peror. The opening ball of the season, of her experiences among the Ber¬ splendor of this sight was more like a lin diplomatic corps that was pub¬ it takes its name from the court-train fairy tale of old than real life. lished in an unidentified newspa¬ which etiquette requires to be worn per, probably in Washington, D.C. The throne was on a raised dais and on that occasion. At the Schleppen- The newspaper clipping recently the empress, who for years had been court, all the German girls of noble was discovered among some family too infirm to walk, sat upon it clad in birth, upon reaching the age of 17, papers, and this year, the cen¬ white satin robes embroidered in gold, make their debuts and are presented tennial of the ccTear cf the Three her corsage resplendent with jeweled at court. They look very fresh and Kaisers,” seems an appropriate orders and decorations. Around her pretty in their light dresses, long trains, time to share again the pomp and neck hung the famous pearls of Queen and white veils. circumstance of this age. Louise of Prussia, the mother of the The diplomats also are presented emperor, that were the only jewels she on this occasion, and that night, I felt Frances C. Cox had not given to free her people from some trepidation. It was the 28th of the yoke of the first Napoleon. These January, 1886, a bitter cold night, and she had kept and told her son they die ground was covered with snow. represented her tears, shed for her coun¬ At 8:30 p.m., we drove to the Alte lain explained that the rooms had been try’s woes. Schloss. On entering the lofty and spa¬ so cold that the large German porce¬ By her side, and no less splendid in cious rooms, I was struck by the heavy, lain stoves had made no impression in attire, stood the emperor. One step unpleasant atmosphere. The chamber- spite of huge fires, so they had simply below them stood the crown prince,

44 FOREIGN SERVICE JOURNAL and his consort, the Princess Victoria backed into the hall, ushering in their which she loved so well. The day after Adelaide, daughter of Queen Victoria majesties. First came the emperor, lead¬ her arrival, hearing we were there, she of England. Another step below them ing the crown princess by the hand in graciously sent for us. I had been out stood the Prince and Princess Wilhelm true minuet fashion (the empress be¬ in the woods all afternoon and on and their son, the present crown prince, ing too old to leave her seat). The returning to my lodgings to find a then a child of four. Thus the four train of red velvet was carried by four summons to the Schloss for 8 p.m. I generations were represented. Behind youths, sons of noblemen, wearing the hurriedly made my toilet and reached the imperial family were grouped the pages’ dress of white silk hose, buckle the castle just on time. A royal foot¬ princes and princesses of the blood shoes, red velvet coats embroidered in man opened the door and ushered us and at the other end of the room stood gold lace, jabot, and plumed hat swung into the large, simply furnished draw¬ the ladies- and gendemcn-in-waiting. by a gold cord over the shoulder. As ing room where the old hunchback, The dresses of all the women, diough she ascended the steps of the dais they Countess Haacke, received us. She led perhaps not in the best of taste, were dropped on their knees and spread out us into a smaller sitting room where splendid in color and resplendent with her train, then rising, backed to the far we found Her Majesty seated in an jewels, and the uniforms of the men end of the room. armchair, a small table in front of her were simply gorgeous. Finally, our mm Next came the crown prince with upon which rested her poor, palsied to curtsy came—my mother entered the pages. And thus they all came, two hands toying with her vinaigrette. Her first and, after curtsying low, stood by two, and took their seats assigned Majesty' looked so ill and so old, al¬ waiting lor me at die foot of the dirone. them, the ladies and getlemen in at¬ most like a corpse, in spite of the black As I passes through the door, Herr tendance grouping behind their re¬ wig, paint and powder. We sat there von Roder, chamberlain and introducer spective princesses. When the imperial in the summer twilight for about an of the diplomatic corps, whispered as family was seated there was a beautiful hour, conversing upon all kinds of he spread out my train, “Deux rever¬ concert in which Niemann, the fa¬ subjects. Her courtesy and tact were ences, Madmoiselle, et ne tomber pas, mous opera singer, took part. so great that it put me at my ease and surtout.” His caution was well-timed Then the emperor came and spoke for the floor was polished like glass. It to each of the diplomatic corps. I was was a very lonesome feeling walking astonished to find such a gentle, be¬ the whole length of that splendid room nign expression of countenence for in dragging more than three yards of his pictures he always looked quite heavy satin train behind me. At last I fierce. His manner was most courte¬ joined my mother who, as I curtsied, ous, and he made a point of address¬ murmured, “Majestes, ma fille,” and ing a tew words of salutation to each together we went into the next room, of the diplomats in his own language. where all the ladies stood chatting un¬ I heard him speak in Italian, French, © til the gentlemen joined us. Then to¬ Spanish, and English and he never @ © © © © gether we through the picture gallery, made the mistake of using the wrong lined with officers in brilliant uniforms, language. The imperial family then retired in into the historic Weise Saal (Concert Arci Hall). die Same order in which tiicy had come; It was in this room that the old king thus ended the last Schleppen-court of Prussia, father of Frederick the Great, of the grand old Emperor Wilhelm I had, upon the occasion of some court and his venerable consort, the Em¬ ball or other, two coffins produced. press Augusta. Thinking his wife, poor woman, was The next time I saw the empress it enjoying life too much, he required was under very different circumstances her, in the presence of the entire court, and the beautiful simplicity of our pri¬ to get into one while he deposited vate interview was a marked contrast himself in the other. to the official one. It was at [Bad] On this brilliant night there was no Homburg where I was evidence of death or gloom; on the spending the summer. o o o o contrary, all was gay and bright. The The empress had 0 XTN 0 chamberlain showed us our seats for come to spend the entertainment and refreshments a month at were passed around. After about half the old an hour’s waiting a trumpet sounded, castle then the “thump, thump, thump” of the marshalls’ staffs were heard as they <3U © ® @ <§) © © © @ © ® Cs> © © so far forgot myself as to venture to cor¬ of the robes. The empress is a very tall empress has a very sweet face, and in rect Her Majesty’s English which, by the woman with a beautiful figure, and her mourning cap and crepe veil she way, was very good. was simply dressed in black. In one looked most attractive as she watched She inquired with great interest corner of die room was a table upon everything with the deep interest of a about the customs of our country and which toys of various kinds were spread proud wife and affectionate mother. particularly about the wider field of out. She called our attention to it, The emperor entered alone, wear¬ usefulness opened to women in Amer¬ saying that her boy, the crown prince, ing the decoration of the Order of the ica. Her whole life was spent in en¬ had celebrated his seventh birthday a Black Eagle about his neck and die deavoring to ameliorate the condition few days before and those were his long, red velvet mantle of the same of the women of Germany. She had presents. She told us of the surprise order hanging from his shoulders and founded a girls’ school at Charlot- they had arranged for him. She had trailing on the floor. He ascended the tenburg. This school was her pet hobby taken her four sons to play in the steps and stood upon the throne, the and she always attended the examina¬ grounds of Charlottenburg and told great Von Moltke just behind him, tions. We chatted more about the the young crown prince to look for holding the flag of his country above school, but as the clock struck nine something that had been hidden for His Majesty’s head; die clear-cut intelli¬ o’clock, Her Majesty extended her him. He searched the grounds and gent features of the old man, rigid hand, and we understood that the in¬ finally went to the stable where he was with profound emotion, stood out terview was at an end. I curtsied low delighted to find his father’s gift, a against the black background, draped and kissed the proffered hand with a little pony. in memory of die late emperors. The true feeling of reverence for the noble, The empress chatted on in this way crown and imperial scepter lay on cush¬ kind, and good woman I had learned for half an hour, and then with many ions on either side of the throne. to know in this short hour. expressions of friendship and regret, From the group of senators then Some years later, we had other audi¬ bade us goodbye. This was our last stepped forth the grand and imposing ences with two of the other empresses interview at the Alte Schloss. figure of Prince Bismarck, the iron of Germany. These interviews plainly Eight days after his father’s funeral chancellor of the empire. Dressed in showed the very marked characteris¬ Emperor Wilhelm II formally opened the pure white uniform of the Cuiras¬ tics prominent in the three women. the Reichstag for the first time under siers, he looked like a mighty giant: With Empress Augusta it was kindly his reign. This ceremony is, in effect, “The man without whose dogged reso¬ consideration for others and an ear¬ the imperial coronation, and it was lution, absolute want of scruple, fertil¬ nest desire to do her duty to the peo¬ only the second of the kind since the ity of resource, fiery strength of will, ple that made her so much beloved. establishment of the empire, as Em¬ the empire has been an impossibility.” The Empress Friedrich showed great peror Friedrich was too ill to perform As he raised his hand the stirring “Hoch, qualities of mind and possibilities, it himself when he came to the throne. Hocb, Hoch!” the German cheer, re¬ thwarted by disappointed ambition. To me it was die occasion of greatest sounded through the hall. It is undoubtedly true that her want interest during my stay in Germany. I was absorbed, as were all present, of popularity was greatly due to her The Reichstag, being the upper of die by the deep, intense interest of the own lack of tact and condescension. two houses of the German parliament, ceremony. Here stood diis young man, Still I feel that she was to be pitied, for corresponds somewhat to our Senate, just come into supreme power over his she was disappointed in her highest and is composed of one or two repre¬ countrymen, surrounded by the great¬ ambition, which was to see her hus¬ sentatives from every kingdom, princi¬ est men, not only of Germany, but of band wear the imperial crown. The pality, or duchy. the civilized world, then old enough long years during which he was crown The uniforms of the military mem¬ to be his grandfathers. In point of fact, prince were full of restraints and lam¬ bers and the brilliant court dress of the they had been the mainstays of his entations—then, when the realization civil representatives worn on this occa¬ grandfather’s throne, and they were came, her husband was a dying man sion made a scene of splendor. As I now bowing before the youth they and his short reign was but one long looked down from the diplomatic gal¬ had seen in the cradle, pledging their agony. So that when I last saw her, she lery into the Weise Saal where they allegiance to him as the imperial sover¬ was a disappointed, aggrieved woman were assembled, it was very different eign. and did not have sufficient tact to from our own Senate chamber, even The old king of Saxony, in passing conceal it. upon inauguration day. The wide stair¬ through the room, stopped before the Our interview with young Empress way leading to the diplomatic gallerv little crown prince and kissed the head Victoria Augusta was just before we was lined with pages standing shoul¬ of his future sovereign. It was indeed left Berlin in 1889. She was a sweet der to shoulder, and as we ascended a solemn and impressive sight to see and placid woman and in her the gen¬ we heard the strains of sacred music die aged kings and princesses, the totter¬ tle qualities of wife and mother pre¬ from the royal chapel where the em¬ ing remnants of the old confederation, dominated. The interview was in her peror and princes of the blood were come to swear allegiance to the new private drawing room, in the Alte attending a religious service. The em¬ kaiser and to the empire founded by Schloss in Berlin. She received us alone, press entered, leading her little son by Karl I, “Der Grosse” (Charlemagne), save for the presence of her mistress the hand, with her attendants. The more than a thousand years ago. □

46 FOREIGN SERVICE IOURNAL Welcome Home by NANCT PIET-PELON

For many parents the holiday season this year will include a significant right of pas¬ sage. Their college-age son or daughter will be returning home for the first time during school vacation—an event anticipated with joy, but also with some trepidation. Like parents everywhere, parents over¬ seas are eager to see their children, to as¬ sess how being away is affecting them, to pump information from diem about col¬ lege life and events during the months of separation. But the overseas parents are at two dis¬ advantages not shared by their Stateside peers. First, they have not been able to keep particularly close tabs on their fresh¬ man—unless he or she is a better letter writer than most. Thus, the changes they see in their child come December may have been gradual in the making but hit like a thunderbolt when diey confront each other. mental value adjustments and may appear pendent teen. Stateside parents have the advantage of see¬ to be mesmerized with new ways of living— While parents tend to concentrate on ing their child at intervals—homecoming, adapting to new sexual mores and the “par¬ the changes in their teen, they often forget a quick laundry weekend—and changes tying” on American campuses. Academic that there have been changes in the family seem less shocking. effort may have taken second place to so¬ caused by the student’s absence. These A second disadvantage for many over¬ cializing and by December a freshman may changes may include the blossoming of a seas parents is diat their child may be join¬ be worried about his grades, but hesitant younger sibling who had been in the ing them at a new post radrer than return¬ to share his concerns with his parents. Par¬ shadow of the older child, or the life style ing to old friends and favorite haunts. This ents could be surprised with a weight gain of the parents, who may now be working, means that the student has no one to share or skin blemishes on a formerly slim and entertaining, or traveling more. Simple experiences with except the family. Parents clear-complexioned child, a not uncommon changes may have become a well-ordered must remember to help their child adjust result of an adjustment to a combination pattern by the time the holiday arrives. to the loss of a home community. of cafeteria and junk food. In short, die fit of the family is different What happens between September and On the positive side, parents may notice and it will never be the same again. One December? There will have been many ad¬ a new appreciation of die family and an student spoke to me about this concern justments for the new collegiate, which will' eagerness to see siblings. The student may even before he went to college. He came often have been painful (as die many arti¬ be excited to return overseas, even if it is from a close-knit family and had two cles over the years about re-entry have a new home—after all, a long trip to a dif¬ younger siblings. They were all high achiev¬ pointed out). There may be some outward ferent climate can seem very exotic to local ers and had the full support of their par¬ changes in style—a pierced ear or an out¬ home-bound friends. ents in each of their activities. He knew landish hairstyle. Or, while Stateside peers But what is there to do when diat much- that his going would create a change in may be copying the newest look of a popu¬ anticipated visit gets off to a rocky start dieir family and wondered what that change lar rock band or, at the opposite extreme, because the student’s appearance or atti¬ would mean. “I won’t be able to fit in again becoming totally preppie, the overseas- tude is alien to expectations? The initial like I did before” was his rueful conclu¬ raised child could be “going native.” This reaction is to say something—“What hap¬ sion. He was right. He would not be able phenomenon of acting out an overseas so¬ pened to your hair, clothes, weight?” But to fit in again as a dependent child with journ once back in the United States can that is the worst thing to do. Rather, ex¬ his parents assisting him at each decision¬ take parents by surprise. But parents should perts suggest that parents should not only making crossroads. That is the inevitable look behind the smoke screen of the smol¬ accept the new person who confronts them passage. But he would always be the older dering Kretek (an Indonesian clove ciga¬ but also say positive things! This may not brother, and the first son, whose presence rette), for example, and find a child verg¬ be easy—a common reaction is to tty to would be acutely missed by each odier mem¬ ing on adulthood who is seeking to estab¬ hide your student until he or she meets ber. When he returned to his family, he lish an identity. your appearance standards, standards that would have a richer identity, but he would Students may be struggling with funda¬ may not be important to your now inde¬ still be his parents’ child, whether he

DECEMBER 1988 47 changed radically or gradually in his in¬ Parents might like to think that by university- York World-Telegram from 1934-1940. In exorable passage to frill adulthood. There age, phases and fads arc a thing of die past. 1942, he covered the Latin war effort for was no question that he and his family Not so—especially for those teens raised the U.S. Inter-American Affairs office in would change with his departure, but overseas who have often had little oppor¬ South America, subsequent to which he change at this point is part of what life’s tunity to try on new styles and test the served as a war correspondent with the Bra¬ passages are all about. values of their parents. This transition time zilian Expeditionary Force in Italy. While parents may find it hard to accept will not be easy, it certainly will not be Joining the Foreign Service in 1945, Mr. the person they see before them, this first without some pain for many families, but Fisher served as motion picture officer in visit marks a special passage for both par¬ there is an end to it. What parents must Rio de Janeiro until 1956, and subsequendy ent and child. This visit should represent keep uppermost in their minds is the value served in similar positions in Paris and a final letting go rather than a grabbing of accepting. While their child is on the Saigon, before being transferred to Wash¬ ever closer. Bur, that can be difficult—and path to adulthood, there is little a parent ington, D.C. in 1960 where he headed die often that difficulty is based on practical can do but to be caring, to listen, and even domestic production of motion pictures for considerations. At this stage in their off¬ if they cannot accept what they hear, con¬ USIA and, in 1962, was named chief of spring’s life, parents are still investing enor¬ tinue to accept the person they hear talk¬ the foreign production division. From 1966 mous chunks of money into the student’s ing. to his retirement in 1973, Fisher served future—and into his or her present life¬ as public affairs officer at the Consulate style. They feel that gives them the right Nancy Piet-Pelon is the author of In Another General in Sao Paulo, Brazil. to have a say not only in how their invest¬ Dimension: A Guide for Women Living Over¬ While in Brazil, Mr. Fisher established ment behaves on a daily basis but also in seas. an art gallery at the Consulate General to what course he chooses to take for his life. showcase Brazilian artists’ work; in 1982, Or does it? Judith Viorst, author of the he and his wife opened a gallery of Brazil¬ book Necessary Changes, says that parents In Memory ian art in Sarasota. In 1987, a gallery of are often “change-resisters.” They “defy the primitive art in Sao Paulo was named in realities of time by hanging on to their HENRY WILLIAM SPIELMAN, retired For¬ his honor. power and to their nonnegotiable ways of eign Sendee officer, died of cancer Sep¬ Mr. Fisher is survived by his wife, doing things.” tember 7 in San Francisco, California. Florence, and a daughter, Stephanie Fisher- So, if it is somehow damaging to the Mr. Spielman was born in Chickasha, Mathews. independence of a young adult to try to Oklahoma and received an M.S. from Okla¬ change what he or she has become in the homa State University in 1935. He was JACK BLAIR BUTTON, a retired Foreign months of separation, what attitude can sent to Sao Paulo, Brazil by the Depart¬ Service officer specializing in economics, parents adopt when confronted with their ment of Agriculture in 1942. He later sen'ed died of a heart attack September 12 in Wash¬ still-dependent student? Emotionally and in the Consulate General in Bombay and ington, D.C. realistically, it is often hard to accept the in Karachi, Pakistan. From 1954-55 he was Originally of Lebanon, Kansas, Mr. But¬ outward manifestations the transition into officer in charge of the Consulate General, ton was graduated from the University of independence can take. However, parents Dacca. Subsequently, he served in Ankara, Kansas, where he also received a master’s should remember that, bv virtue of the fact Turkey, Washington, D.C., and Raw¬ degree in political science. During World that they have been raised overseas, their alpindi, Pakistan. War II, he served as a medical corpsman children are going through more transi¬ The Spielmans moved to San Francisco in the Navy. tions than the average college freshman (and after retirement in 1966, where he served A graduate of the National War Col¬ often more pain), and parents should try as president of the United Nations Asso¬ lege, Mr. Button joined the Foreign Serv¬ to be even more accepting of their swings ciation and on committees of the World ice in 1949. His early tours of duty in¬ of behavior or style. Affairs Council, Commonwealth Club, and cluded Iraq, West Berlin, and Israel. He Parental acceptance is a minimal require¬ the Friends Committee on Legislation. He also served as the head of the tropical prod¬ ment for those making the transition from and his wife Jan have traveled extensively ucts division at the State Department. In a parcnt-to-child relationship to one in throughout die United States, Great Brit¬ the 1970s, Mr. Button was an economic which they are still the children but recog¬ ain, Canada, Mexico and New Zealand. He counselor in Tel Aviv. Later, he served as nized by their parents as adults. Thus, the maintained an active interest in Oklahoma minister counselor for economic and com¬ new relationship should become one of State University where he established a gradu¬ mercial affairs in Tokyo. Upon his return more equality. ate fellowship. to Washington, he was named executive Establishing the new level in a parent- He is survived by his wife, Jan, a sister, director of the U.S.-Japan group. child relationship can be one of the most Joan and two nephews. Mr. Button is survived by his wife, Jean exciting times for both parent and teen. of Kensington; four children, Alexander But¬ For parents, getting perspective on this first .ALAN FISHER, a retired Foreign Sendee ton of Stuttgart, West Germany, Van Tries visit is essential. It is important to remem¬ officer, died of a heart attack August 30 Button of New Orleans, Margaret Button ber that the child is in a transition stage at his home in Sarasota, Florida. Mr. Fisher Nosco of San Pedro, California, and and that no matter how he or she may was 75. Jonathan Button of San Diego; one sister, look or what his or her manners or man¬ Born in Brooklyn, New York, Mr. Fisher Marilyn Halliday of Los Altos, California; nerisms have become, it is another phase. worked as a staff photographer for the New and eight grandchildren.

48 FOREIGN SERVICE JOURNAL School Scholarships Available Miss Hall’s School: A $2500 reduction arship assistance is indicated. The school to Foreign Service Students is available for the daughters of Foreign enrolls 245 students in grades 9 through Sendee personnel. Miss Hall’s enrolls 200 12. For further information write the Di¬ The following scholarships are available to students in grades 9 through 12. For fur¬ rector of Admissions, St. Andrews School, dependent children of Foreign Service per¬ ther information, contact Diederik van Re- Middletown, Delaware 19709. sonnel. Applicants should write for com¬ nesse, Director for Admissions, Miss Hall’s plete information directly to the schools, School, Pittsfield, Massachusetts 01201. Vermont Academy: An Edward R. Ch¬ colleges, and universities indicated. eney Memorial Scholarship is being awarded Middlesex School: Scholarship offered on to the son or daughter of a Foreign Service Secondary Schools. the basis of proven financial need for grades person. The academy enrolls 250 students 9 through 12 to the son or daughter of a in grades 9 through 12. For information Foreign Service family. For information write to the Director of Admissions, Ver¬ The American School in Switzerland (TA- write to Sibyl F. Cohane, Director of Ad¬ mont Academy, Saxtons River, Vermont SIS), and TASIS England: $1000 tuition missions, Middlesex School, 1400 Lowell 05154. reductions are offered at the TASIS schools Road, Concord, Massachusetts 01742. in Switzerland and Great Britain to all sons Wykeham Rise: A boarding school in Wash¬ and daughters in grades 7-12 of State De¬ ington, Connecticut, with an international partment personnel stationed overseas. Ad¬ The N ew Hampton School: AS 1000 abate¬ ment on tuition to Foreign Service boys student body of 85 girls, grades nine ditional financial aid may be offered on the through post-graduate year, has announced basis of need. 250 boarders in Switzerland and girls. The school enrolls approximately 300 students in grades 9 through post¬ a $2000 tuition reduction available to daugh¬ and 150 in England represent 40 different ters of Foreign Service employees stationed nationalities. For more information, con¬ graduate. For information write to Admis¬ sions Office, The New Hampton School, abroad. For more information, write Ruth tact: Caroline Cox, TASIS U.S. Admissions New Hampton, New Hampshire 03256. Boerger, Director of Admissions, Wykeham Office, 326 East 69th Street, New York, Rise, Washington, Connecticut 06793. New York 10021. Telephone: (212) 570- Northfield-Mount Herman School: A 1066. Telex: 971912. $1000 reduction in tuition is offered all Colleges Castilleja School, Palo Alto, California: sons and daughters of State Department personnel stationed overseas, grades 9 Scholarships based on demonstrated finan¬ Dartmouth College: S. Pinkney Tuck Schol¬ though 12. Additional financial aid is avail¬ cial need are available to daughters of per¬ arship. For students at Dartmouth College able on the basis of need. At present, stu¬ sonnel in the Foreign Service agencies or who arc the children or grandchildren of dents from 45 states and 64 countries are of U.S. military personnel serving overseas Foreign Service officers and who are in need enrolled. For further information contact who are registered at Castilleja School for of financial assistance. Address inquiries to Virginia deVecr, Director of Admissions, admission to grades 7 to 12 inclusive. For the Director of Financial Aid, Dartmouth Noithfield-Mount Herman School, North- complete information write to Nancy L. College, Hanover, New Hampshire 03755. field, Massachusetts 01360. Hoffman, Director of Admission, Castilleja School, 1310 Bryant St., Palo Alto, Cali¬ Vassar College: The Polly Richardson Phillips Academy, Andover, Massachu¬ fornia 94301. Lukens Memorial Scholarship is awarded setts; The Charles and Jane Stelle Memo¬ to children of Foreign Service personnel. Dana Hall School: The Congdon Prize rial Scholarship is awarded to the son or Another scholarship, awarded by an anony¬ daughter of a Foreign Service person. The Scholarship is awarded on a competitive mous donor, is granted to the child of an basis to two entering sophomore resident award is based on financial need. For more American Foreign Service officer. If no such students. In addition to die $2500 prize, information, write to Jeannie F. Dissette, applicant qualifies, the scholarship may be each winner is eligible for financial aid up Dean of Admissions/Clement Morcll, Di¬ awarded to the child of an employee of the rector of Financial Aid, Phillips Academy, to foil tuition when warranted by need. federal government or of a state govern¬ Andover, Massachusetts 01810. Financial aid for all grades is also available ment. Both awards are based on financial based on need. Applications must be com¬ need. Apply to Director of Financial Aid, St. Albans School, Washington, D.C.: pleted by February 1. Inquiries should be Vassar College, Poughkeepsie, New York addressed to: Olive B. Long, Director of The Phillip Hayes Funkhouser Memorial 12601. Admission, Dana Hall School, Wellesley, Scholarship provides partial scholarship aid Massachusetts 02181. to an academically qualified student in Yale University: Children of American For¬ grades 4-12. The award is based on proven eign Service officers will be considered for Grier School: A $1000 reduction in tui¬ financial need and is offered to the son of a need-based scholarship made possible by tion is available to daughters of Foreign a Foreign Service family. For information the gift of Gilbert H. Kinney and Mrs. Service personnel. Additionally, girls may write to A. Wayne Gordon, Scholarship Kinney. If no child of an American For¬ compete for scholarship support on the ba¬ Committee, St. Albans School, Mount St. eign Service officer qualifies, children of Alban, Washington, D.C. 20016. sis of demonstrated financial need and all¬ members of the U.S. military services or round abilities. For information please con¬ of employees of the federal government will tact: Admissions Director, The Grier St. Andrew’s School, Middletown, Dela¬ be considered. Recipients must demonstrate School, Tyrone, Pennsylvania 16686. ware: The Norris S. Haselton Scholarships financial need. Contact: Director of Finan¬ are awarded to sons and daughters of ca¬ cial Aid, Box 2170 Yale Station, New Ha¬ reer Foreign Service families where schol¬ ven, Connecticut 06520.

DECEMBER 1988 49 Domestic Postings

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52 FOREIGN SERVICE JOURNAL Index—1988

After Reagan, by Simon Serfaty October Fitzgerald, E. L. Learning Disabilities and the FS November AFSA Annual Report 1987-1988 November Fitzgerald, E. L. The Senior Seminar at 30 September AFSA Awards October Fleet Visit, by Howard R. Simpson October AFSA Merit Award Recipients September Focus on Bilingualism, by Phyllis Raynor November AID New Development Directions, by Gan' Bombardier November Managing Our Problems, by Mark J. Lijck May AID Future Dividends, by Thomas R. D’Agncs July/August FS MEMOIRS 13 Tears as an FS Secretary, Sandra Odor May And They’re Offi (A Look at the Presidential Candidates) February FS MEMOIRS Behind the Veil, by Jerine Bird March Anderson, Jim. Real-Life Perestroika September FS MEMOIRS A Debt Repaid, by Albert Cizauskas March Attacks on Immunity, by Richard Gooken January FS MEMOIRS Communicator’s Bad Dream, D.W. Smith May Benson, Adrienne. Coming Home: A Difficult Decision April FS MEMOIRS Eleanor’s Visit, by Maria Bauer March Beyond Reykjavik, by David Callahan September FS MEMOIRS Honeymoon in Laos, by James D. McHale May Biggs, Jeffrey R. Communicating through the Media November FS MEMOIRS Jerusalem, 1948, by John Gordon Freymann May Bird, Jerine. Behind the Veil March FS MEMOIRS Serendipitous Posting, James Leader May Bloomfield, Lincoln P. Computerizing Conflicts June FS MEMOIRS Nepal, 1986, by Carl A. Dutto May Bombardier, Gary. New Development Directions November FS MEMOIRS Poetry in Motion, by Ernest G. Wiener March Bray, Charles W. Hewers of Wood—or Leaders? May FS MEMOIRS Vientiane, 1954, by Yale Richmond May Bridging the Divide, by David T. Jones November Forster, Nancy. Teaching: The Ultimate Mobile Career May Bauer, Maria. Eleanor’s Visit March Freymann, John Gordon. Jerusalem, 1948 May Bush: Seasoned Pro, by Angelia Herrin October FSO Turned Publisher, by Stephen Davies October Callahan, David. Beyond Reykjavik September Future Dividends, by Thomas R. D’Agncs July/August Care of Elderly Parents, by Nancy Piet-Pelon January GAME THEORY Why Play Games, Goldberg 8c van Opstal June CARLUCCI, Frank Interview by D. A. Sadoff September GAME THEORY Modeling Crises, by Michael Schofield June Chatten, Robert. Wrong Division April GAME THEORY Computerizing Conflicts, L. Bloomfield June Cizauskas, Albert. A Debt Repaid March Garrettson, Charles L. III. Colonel Landslide January Colonel Landslide, by Charles L. Garrettson III January Gedda, George. The Making of a Defector March Coming Hotne: A Difficult Decision, by Adrienne Benson April Godsey, Fred. Solomon’s Return February Communicating through the Media, by Jeffrey R. Biggs November Goldberg, Andrew and Debra van Opstal. Why Play Games? June A Communicators Bad Dream, by David W. Smith May Gookin, Richard. Attacks on Immunity January Computerizing Conflicts, by Lincoln P. Bloomfield June Gorbachev’s Fourth of July, by John O. Grimes July/August CONGRESS Culture Shock at the Working Level November Greeley, Monica One Overseas School April CONGRESS Bridging the Divide November Green, Fitzhugh. Our First Public Diplomats February CONGRESS Communicating through the Media November Grimes, John O. Gorbachev’s Fourth of July July/August CONGRESS Diplomacy on the Hill November Habib, Phyllis. Hello is as Hard as Goodbye February CONGRESS New Development Directions November Hanging Loose, by Marjorie Smith March Cooperation or Conflict, by Robert E. Hunter September Hart, Roger L. Culture Shock at the Working Level December A Conservative View, by William Pascoe July/August Hello Is as Hard as Goodbye, by Phyllis Habib February Cruit, Bette J. Easter, Lost and Found April Herrin, Angelia. Bush: Seasoned Pro October Culture Shock at the Working Level, by Roger L. Hart November Hewers of Wood—or Leaders? by Charles W. Bray May D’Agnes, Thomas R. Future Dividends July/August Honeymoon in Laos, by James D. McHale May Dancing on St. Paddy’s Day, by J. Foster-Merrill June Horan, Hume. The Way to Language Success December Davies, Stephen. FSO Turned Publisher October HUMOR Life and Love in the Foreign Service July/August Dillon, Dorothy. Legalize Drugs? October Hunter, Robert. Cooperation or Conflict? September DIPLOMATS Attacks on Immunity, Richard Gookin January Hutchinson, David. The Violence of Fire March Diplomacy on the Hill, by Mark A. Epstein November INDONESIA Future Dividends, Thomas IT Agnes July/August Dujack, Stephen R. Swan Song June INTERVIEW Defense and Security (Frank Carlucci) September Dukakis: Pragmatic Approach, by Stephen Engelberg October INTERVIEW The Essentials of Negotiation (Sol Linowitz) March Dutto, Carl A. Nepal, 1986 May INTERVIEW Israel Today (Samuel W. Lewis) May Easter, Lost and Found, by Bette J. Cruit April Jerusalem, 1948, by John Gordon Freymann May The Economics Officer, by Clarke Ellis May Joined in Service, by Nancy Light July/August EER Survival, by David and Teresa Jones December Jones, David T. Bridging the Divide November ELECTION ’88 And They’re Off. Cartoons by H. Payne February Jones, David T. and Teresa. EER Survival December ELECTION ’88 George Bush, by Angelia Herrin October JOURNAL African Shells, by Bonnie Schmicl November ELECTION ’88 Cooperation or Conflict, R. Hunter September JOURNAL Colonel Landslide, C. L. Garrettson III January ELECTION ’88 Michael Dukakis, by S. Engelberg October JOURNAL Dancing on St. Paddy's Day, by J. Foster-Merrill June ELECTION ’88 Transition Time, Robert G. Neumann October JOURNAL Easter, Lost and Found, by Bette J. Cruit April ELECTION ’88 After Reagan, by Simon Serfaty October JOURNAL Fleet Visit, by Howard R. Simpson October Ellis, Clarke. The Economics Officer May JOURNAL Gorbachev’s Fourth of July, John Grimes Julv/August The Endless Debate, by Hans N. Tuch April JOURNAL Hanging Loose, by Marjorie Smith March Engelberg, Stephen. Dukakis: Pragmatic Approach October JOURNAL Real-Life Perestroika, by Jim Anderson September Epstein, Mark A. Diplomacy on the Hill November JOURNAL Solomon’s Return, by Fred Godsey February Equal but Separate, by Gifford D. Malone April JOURNAL The Tear of the Three Kaisers December The Faces of Diplomacy (Memoirs of Foreign Sendee Life) March A Labor Officer’s Serendipitous Posting, by James E. Leader May A Facilitator Takes Charge, by Steve Ryan September LANGUAGES The Tongue-Tied Diplomat? P. Simon December

DECEMBER 1988 53 LANGUAGES Language Expertise bv Lannon Walker December Raynor, Phyllis. Focus on Bilingualism November LANGUAGES Way to Language Success, Hume Horan December Real-Life Perestroika, by Jim Anderson September Language Expertise: Personnel Implications, L. Walker December Relph, James F. Jr. Standing in Reserve January' LATIN AMERICA Making of a Defector, George Gedda March Richmond, Yale. U.S.-Soviet Cultural Exchanges December LATIN AMERICA Monroe Go Home, C. Macchling Jr. June Richmond, Yale. Vientiane, 1954 May LATIN AMERICA No Longer Central, A. E. Lowcntha! January Ryan, Steve. A Facilitator Takes Charge September A Law Designed to Get Results, by Donald J. Pease Ecbruarv Ryan, Steve. An Unfinished Portrait April Leader, James E. A Labor Officer's Serendipitous Posting May Schmid, Bonnie. African Shells November Learning Disabilities and the Foreign Service November Schofield, Michael. Modeling Crises June Legalize Drugs? by Dorothy Dillon October The Senior Seminar at 30, by Elizabeth Lee Fitzgerald September LEWIS, Samuel: Interview by D. Sadofl May Scrfaty, Simon. After Reagan October Life and Love in the Foreign Service, bv S.I. Nadler July/August SHULTZ, George: Beyond Reykjavik, David Callahan September Light, Nancy. Joined in Service July/August Simon, Paul. The Tongue-Tied Diplomat? December Light, Nancy. Subtle Sexism January Simpson, Howard R. Fleet Visit October Lijek, Mark J. Managing Our Problems May Simpson, Smith. A Parlous State February LINOWITZ, Sol: Interview by D. Sadofl March Smith, David W. A Communicators Bad Dream May Lowcnthai, Abraham R. No Longer Central January Smith, Marjorie. Hanging Loose March Macchling, Charles, Jr. Monroe Go Home June Spiers, Ronald Strengthening Diplomatic Representation December The Making of a Defector, by George Gedda March Solomon’s Return, by Fred Godscy February Malone, Gifford D. Equal but Separate April SPOUSES Joined in Service, by Nancy' Light July'/August Marquardt, R. Niels. Why worker Rights? February Standing in Reserve, by James F. Relph Jr. January' McHale, James D. Honeymoon in Laos May STATE A Conservative View, by William Paseoe July/August Merrill-Foster, J. Dancing on St. Paddy’s Day June STATE The Economics Officer, by Clarke N. Ellis May Merrill-Foster, J Loneliness: A Chance to Grow May STATE EER Survival, by David and Teresa Jones December Modeling Crises, by Michael Schofield June STATE Hewers of Wood—or Leaders? Charles W. Bray May Monroe Go Home, by Charles Macchling Jr. June STATE Managing Our Problems by Mark Lijek May Nadler, S.I. Life and Love in the Foreign Service July/August STATE A Parlous State, by Smith Simpson February' Nepal, 1986, by Carl A. Dutto May STATE The Senior Seminar at 30, E. L. Fitzgerald September Neumann, Robert G. Transition Time October STATE Standing in Reserve, bv James F. Relph Jr. January' New Development Directions, by Gary Bombardier November STATE Strengthening Diplomatic Representation December No Longer Central, by Abraham E. Lowcnthai January STATE Subtle Sexism, by Nancy Light January Not a Carbon-Copy Career, by Sandra Odor May Strengthening Diplomatic Representation, Ronald Spiers December NSC Cooperation or Conflict? by Robert E. Hunter September Subtle Sexism, by Nancy Light January NSC A Facilitator Takes Charge, by Steve Ryan September Swan Song, by Stephen R. Dujack June Odor, Sandra. Not a Carbon-Copy Career May Sweek, Sonja G. Rachael’s Farewell September One Overseas School, by Monica N. Greeley April Teaching: The Ultimate Mobile Career, by Nancy Forster May Our First Public Diplomats, bv Eitzhugh Green February' The Tongue-Tied Diplomat? by Paul Simon December A Parents Viewpoint, by Sue Phillcy November Transition Time, by Robert G. Neumann October A Parlous State, by Smith Simpson Ecbruarv Tuch, Hans N. The Endless Debate April Paseoe, William. A Conservative View July/August An Unfinished Portrait, by Steve Ryan April Pease, Donald J. A Law Designed to Get Results February U.S.-Soviet Cultural Exchanges, by Yale Richmond December PELL, Claiborne: An Unfinished Portrait, by Steve Ryan April USIA The Endless Debate, by Hans N. Tuch April Pendleton Brice, Jane. The Tear of the Ttrree Kaisers December USIA Equal but Separate, by Gifford D. Malone April PEOPLE Assignment to Washington, bv Wesley Ann-Godard June USIA Our First Public Diplomats, Fitzhugh Green February PEOPLE Care of Elderly Parents, by Nancy Pict-Pclon January USIA U.S.-Soviet Cultural Exchanges, Yale Richmond December PEOPLE Hello is as Hard as Goodbye, by Phyllis Habib February USIA Wrong Division, by Robert Chatten April PEOPLE FSO Turned Publisherby Stephen Davies October Vientiane, 1954, by Yale Richmond May PEOPLE Learning Disabilities and the Foreign Service November The Violence of Fire, bv David Hutchinson March PEOPLE Loneliness: A Chance to Grow Julv/August Walker, Lannon. Language Expertise December PEOPLE Re-entry: A Family Crisis, by Rita Sicbenalcr June The Way to Language Success, Hume Horan December PEOPLE Rachael’s Farewell, by Sonja G. Sweek September Welcome Home, by Nancy Piet-Pelon December PEOPLE Teaching: Mobile Career, by Nancy Forster May Who Benefits from Faster-up, Faster-out? J. Winder September PEOPLE The Violence of Fire, by David Hutchinson March Why Worker Rights? by Niels Marquardt February' PEOPLE Welcome Hotnc, bv Nancy Pict-Pclon December Wiener, Ernest G. Poetry in Motion March PEOPLE Worry About Raising Kids Overseas April Winder, J. Who Benefits from Faster-up, Faster-out? September Phillcy, Sue. A Parents Viewpoint November WORKER RIGHTS Why Worker Rights?, February Pict-Pclon, Nancy. Care of Elderly Parents January' Worry About Raising Kids Overseas, by Nancy Piet-Pelon April Pict-Pclon, Nancy. Welcome Home December Wrong Division, by Robert Chatten April Piet-Pelon, Nancy’. Worty About Raising Kids Overseas April Why Play Games? by A. Goldberg and D. van Opstal June POWELL, Colin: A Facilitator Takes Charge September The Tear of the Three Kaisers, Jane Pendleton Brice December Rachael’s Farewell, by Sonja G. Sweek September Raphel, Arnie (Tributes) October

54 FOREIGN SERVICE JOURNAL AF S A ♦ INI E W

AFSA wins institutional grievance on accountability review boards Psychological screening In what AFSA considers a major ance of their duties. achievement, the Department of State In order to safeguard the rights of delayed has confirmed AFSA’s right to negotiate individuals investigated, AFSA sought the procedures governing the operation to negotiate specific procedures with the AFSA has been successful in delay¬ of Accountability Review Boards and department. ing implementation of the depart¬ has awarded relief in our institutional The department admitted that the con¬ ment’s proposed psychological screen¬ grievance charge. vening of these boards prior to formal ing program for individuals assigned As reported in die September AFSA negotiations with AFSA is a violation to posts in Eastern Europe and the News, AFSA filed an institutional griev¬ of our Collective Bargaining Agreement. Soviet Union. Negotations were pro¬ ance on June 27, 1988, in response to The department assured AFSA that our ceeding slowly, due in part to the the department’s convening of two Ac¬ right to negotiate the regulations gov¬ department’s reluctance to provide countability Review Boards. These boards erning future Accountability Review AFSA with information on what mo¬ are designed to investigate incidents in¬ Boards will be honored. The department tivated them to initiate such psy¬ volving loss of life or destruction of has also guaranteed that no finding made chological testing. In an attempt to property at U.S. missions abroad, such by the two previously convened boards force AFSA to proceed with negotia¬ as diose occurring in Greece and Hondu¬ will adversely affect any Foreign Service tions, the department filed an Unfair ras in the spring. The findings of such employees. Labor Practice (ULP) and informed boards may serve as the basis for discipli¬ AFSA look forward to constructive AFSA that it planned to begin the nary action against employees who are negotiations with the department on this testing program on October 1, prior found to be negligent in the perform- important issue. to completion of bargaining. But Senator Claiborne Pell, chair¬ man of the Senate Foreign Relations Committee, spoke out in support of AFSA. As a result of Senator Pell’s letter to Under Secretary Ronald I. ASFA files suit to prevent Spiers, the department has withdrawn its ULP and stated it will delay the discontinuance of Overseas Option program pending negotiations. AFSA has made a number of proposals to mitigate the adverse effects of the AFSA has filed suit challenging the its role as primary insurer until bargain¬ screening program and we are await¬ Department of State’s discontinuation ing with AFSA takes place, and order ing the department’s response. of its special relationship with the Ameri¬ OPM to do all that is necessary to allow can Foreign Sendee Protective Associa¬ AFSPA to offer the Overseas Option. tion (AFSPA). As the alternative, AFSA asked the court AFSPA had been offering an “Over¬ to order that those individuals affected seas Option,” in which the department by the discontinuance of the Overseas acts as primary payer of medical ex¬ Option be reimbursed the difference in AFSA Holiday penses for employees serving overseas. premiums between the Overseas Option Festivities However, as a result of the department’s and their new insurance. decision, AFSPA will not offer its Over¬ AFSA will inform all posts as soon Thursday, December 8 seas Option in 1989, and it is not listed as any court decision is issued. If open 4—7 p.m. as an available option during open sea¬ season ends before then, overseas per¬ son bidding on health insurance plans. sonnel must choose an insurance plan Foreign Service Club In its suit AFSA requested that the from among those diat will definitely court order the department to maintain be offered next year.

DECEMBER 1988 55 N E W S

AID Standing Committee addresses issues

After three months of negotiations, conduct of investigations and the associ¬ and AFSA have reached agreement on the AID Standing Committee has been ated rights of employees. most facets of the AAP, among them notified that management is filing for After receiving a number of thought¬ the reactivation and increased role of the impasse on the proposed agency affirma¬ ful responses on the agency’s proposed now dormant EEO Oversight Board, tive action plan. The Standing Commit¬ affirmative action plan (AAP), AFSA broadening of responsibility within AID tee is also seeking to advance discussions began negotiating with the agency in for identification of EPAP positions and with the inspector general’s office on the August. After a number of sessions, AID candidates, and improvement of EEO counseling, especially overseas. However, on the most problematic issue—special promotion consideration for EEO target Congressional Action groups— we have not been able to reach agreement. AID had proposed, in cases In its closing days in September, the priations Bill was passed. The bill where there is an imbalance or absence 100th Congress attended to a num¬ dtat was forwarded, however, will of minority representation at a given ber of Foreign Service issues. The not include a provision proposed by grade level and backstop, that manage¬ Integrity in Post-employment Act was Senator Jesse Flelms (R-NC) and Sena¬ ment be permitted to reach up to five passed, without the provision that tor Claiborne Pell (D-RI) on the places below the established promotion would have excluded former govern¬ diplomatic immunity issue, which was cutoff line to promote members of tar¬ ment employees from working for strongly discouraged by Shultz and geted groups (women and minorities). international organizations. The Fed¬ by die President’s office. As most of the responses we received eral Employee Health Benefits Act The diplomatic immunity amend¬ opposed this aspect of the plan, AFSA amendment of 1988 was passed. The ment, meant to provide greater lever¬ made a counterproposal that would have Foreign Operations Appropriations age in prosecuting foreign diplomats addressed the most glaring cases of un¬ Bill was passed—minus an amend¬ in the United States suspected of derrepresentation while attempting to ment concerning diplomatic immu¬ criminal activity, would have jeopard¬ preserve the integrity of the promotion nity. And, in separate actions, For¬ ized reciprcxal immunities and thereby' system as mandated in the 1980 Foreign eign Service officers were commended. threatened the well being of Ameri¬ Sendee Act. However, while AFSA has On October 21, the House passed can diplomats and their families, ac¬ offered several compromises, we have its version of Senate bill S-237, the cording to a letter from Shultz to die seen virtually no management movement Integrity' in Post-employment Act of Flouse. In addition, AFSA alerted on this issue. Given that we are now at 1988. The bill had been amended key members of Congress on the po¬ impasse, AID Standing Committee is by both houses to exclude the provi¬ tential dangers of such a provision. actively soliciting further member input sion which would have restricted in¬ House member Dante Fascell (D- as to how to proceed. dividuals from working for interna¬ FL), chairman of the Foreign Affairs The AID Standing Committee is also tional organizations of which the U.S. Committee, and Robert A. Roe (D- attempting to open discussions with the is a member lor a period of 18 months NJ), chairman of the Science and AID Inspector General’s office. After following government service. AFSA Technology Committee, co-sponsored several posts raised questions about the members posted to U.S. missions at Resolution H-369, which noted: “The methods used by IG agents during in¬ international organizations contributed Department of State science and tech¬ vestigations, AFSA sent a cable to all compelling arguments about why this nology' officers are often outnumbered posts requesting viewpoints from per¬ provision was detrimental to U.S. by dieir counterparts from other na¬ sonnel who have had experiences with interests; the members’ insights were tions.” Congressmen Benjamin R. Gil¬ IG investigations. While all of the re¬ relayed to key Senate and House- man (R-NY), Manuel Lujan, Jr. (R- spondents agreed that the role of die congressmen. NM), and Ralph M. Hall (D-TX) IG—to root out waste, fraud, and abuse— The Federal Employee Health Bene¬ also voiced their support for “S&T” is an important one, the responses also fits Act amendment of 1988 allows officers, urging the secretary of state suggested that the procedures used by federal employees to keep their to make every' effort to enhance their the investigators were wordiy of study. FEHBP insurance for up to 18 number and professional standing. Some members expressed concern that months after leaving the government. Finally, Congress paid tribute to in individual instances certain investiga¬ Dependent children and former Ambassador to Chile Harry G. Bar¬ tors had failed to fully' brief employees spouses are also covered for up to nes, Jr., for his contributions to “the on their rights and on what was being 36 months. Enrollees must pav the restoration of democracy” in Chile. investigated. Further, it was felt that full full premium cost. Private sector em¬ In commending him, Senator Ed¬ Constitutional rights, including the pre¬ ployees have had this protection un¬ ward M. Kennedy (D-MA) said, “I sumption of innocence until proven der COBRA legislation since 1985. want to pay special tribute to him, guilty', should be guaranteed to all em¬ AFSA had written to Senator David not only for his extraordinary skill as ployees under investigation. AFSA wishes H. Pry'or (D-AR), chairman of the a diplomat, but also for his personal to ensure that employees are fully briefed Subcommittee on Federal Services, courage, his professionalism, his pa¬ about their rights before investigations Post Office & Civ il Serv ice, urging tience in time of great testing and begin, while making sure that the IG’s him to support this act. trouble, and for his faith in our coun¬ mandate is in no way compromised. In other legislation, after extended try's own best values.” AFSA has We have contacted the IG’s office to discussion in both the House and the nominated Ambassador Barnes for the discuss these issues, and are waiting for Senate, the Foreign Operations Appro- congressional Excalibur award. a response.

56 FOREIGN SERVICE JOURNAL tained in a cable to the field and a Red Professional Issues Top circulated in Washington. The Oc¬ Scholarship Programs tober JOURNAL also contained reflec¬ tions on the awards by past winners and WHO? For dependent students of all Dick Thompson judges. The awards are not an end in Foreign Service personnel who are serv¬ ing or have served abroad for foreign Coordinator for themselves but a way of reminding each of us that we should strive in our own affairs agencies covered by the Foreign Professional Service Act of 1980. Issues work to achieve the standards suggested by the awards. WHAT? Merit Awards for graduating My column this Attend AFSA discussion meetings! We high school students in 1989 only, based month consists of two had two highly successful get-togethers on academic merit. Financial Aid Grants commercials, but this month on promotion panels and to full-time undergraduate students in please don’t tune on assignments. The first filled the li¬ the United States, based on need. them out: brary, and so many signed up for the Submit nominations for AFSA awards! second that we had to move to the larger HOW? Apply immediately to AFSA We had impressive winners at an im¬ East-West room, which was in turn filled Scholarship Programs, 2101 E Street, pressive ceremony this year, based on a to capacity. Watch for our Red Tops, NW, Washington, D.C., 20037. Phone (202)338-4046. Specify type of scholar¬ large number of nominations, and hope or call or write to have your name put to do even better in the next round. on die mailing list. To ask about the ship and Foreign Service affiliation. awards or learn about future discussions Instructions for submitting awards (due WHEN? All applications must be com¬ write me at AFSA, 3644 NS, Depart¬ December 31) were packaged with die pleted and materials returned to AFSA ment of State, or call 338-4045. October JOURNAL, and are also con¬ before February 15, 1989. Panel discusses evaluation system The Foreign Service Act of 1980 estab¬ eral spends considerable time deciding distinguish why individuals were placed lished a promotion system which has who should be on the Board. AFSA in their particular rank order, particu¬ encouraged rigorous and cutthroat com¬ consults with PER/FCA to ensure that larly when it comes to those hovering petition as compared to our former, and the best panelists possible are chosen. at the cut-off line. relatively more gentlemanly, process. That But neither the DG nor PER, after choos¬ A promotion, all agreed, is not a was one of the conclusions reached by ing and initially instructing panels, get reward for long and faithful or even Ambassador Larry' C. Williamson, di¬ involved in the selection process; lists good service. The purpose is to provide rector of the Office of Performance Evalu¬ are not tampered with once they have the U.S. government with a Foreign ation (PER/PE), at a well-attended AFSA been approved. Williamson also said that Service of excellence and needed capa¬ Professionl Issues Discussion, on “Why the 1980 Act forbids the White House bilities. “Administrations want an instru¬ did all those people get promoted and from influencing who gets on the pro¬ ment drey can trust and use,” William¬ I am not on the list?” motion list, and that although the DG son pointed out, especially in the Senior Williamson, William C. Ramsey, Mark has the right to raise issues concerning Foreign Service. R. Parris, and Richard J. van Wagenen, the final list, “he would be ill advised Ramsey further explained why you shared their recent experience as promo¬ to do so.” Congress, which has an “ad¬ can’t get promoted merely on the basis tion-panel members with a lunchtime vise and consent” role, is not so con¬ of doing a job well. As a panelist pro¬ group at the Foreign Sendee Club, Oc¬ strained. moting FS-3s to FS-2, he looked for tober 6. The event was publicized and Parris, who evaluated political and individuals who are ready for a bigger open to all interested personnel. administrative FS-2 officers bucking for job, who can expand. “The system is Williamson described how a promo¬ FS-1, recommended the promotion panel promoting potential,” he stressed, not tion board panel is formed. Each panel experience to anyone: “I got to think rewarding accomplislmients. has no less than five members. The pan¬ about the Foreign Service as a whole in els are organized according to grade, a way I had not done since my A-100 Why did they get promoted? cone and population. At certain levels class.” “Corridor reputation” means everything there is a panel for each grade. Other The panelists remarked that in general in getting good assignments, and those panels may review several cones sepa¬ the promotion system does work; that assignments can be the key to why your rated within a grade level or several the best people are promoted, that peo¬ name isn’t on the list. Not having a grade levels. By law or by regulation, ple low-ranked deserve to be. However, glamourous job can easily make your file public members, women, and minorities when initially identifying those rec¬ non-competitive. Headquarters versus serve on each panel. Board members ommended for promotion, panel mem¬ field experience can play a factor; there initially review the performance files and bers do not know what the designated is an illusion that “headquarters” has the separate them into three groups: Those number of promotions per grade will best people, but panelists attempt to possibly ready for promotion; those low- be. Thereafter, the boards are told how compensate for that. In fact, for the ranked for possible referral to a Perform¬ many will be promoted, and carefully political cone, the majority of those pro¬ ance Standard Board; and everyone else, look again at the files just above and moted serve in the Third World, because the “mid-rank” group. The board then below the limit. Whether you are on the “it’s harder to shine in the big puddles re-reviews and rank orders the high and right, or wrong, side of the cut-off has of missions in developed countries.” low groups. an arbitrary' element, in that panel mem¬ Other passed-over files reflect too Panelists noted that the director gen¬ bers themselves may be hard put to continued on the next page

DECEMBER 1988 57 from the previous page much experience out of cone or in other agencies. To be competitive multi- functionally, for example, your qualify¬ ing experience has to be current and your performance outstanding. All in all, to get a promotion you must satisfy the precepts for promotion for your cone and grade. One panelist The four panelists (left to right) suggested that precepts for promotion William C. Ramsey, not be defined too narrowly, as that Richard J. van Wagcnen, would limit panel members from “seeing Larry C. Williamson, around” a tight definition to recognize and Mark R. Parris. qualifying experience. Williamson said there is also a “wild Panelists agreed that over-writing and “Many of us don’t accept the respon¬ card”—time in class. Reports are not exaggeration abound. But they held that sibility of our own promotion as we supposed to reveal age, sex or other the varying quality of writing didn’t get should; we don’t look at our files, don’t distinguishing factors, but time-in-class in the way of their ability to evaluate use the two counselling sessions each may reveal a great deal about an individ¬ and reach consensus on die rank order year we’re entitled to; don’t look at our ual’s promotable prospects. TICs could list. However, the writer of an employee PARs,” Williamson advised. influence promotion in two ways: 1) the evaluation report should anticipate diat The reference to PARs elicited con¬ impression of quality created by accu¬ the panel “may not feel charitable” to cerned comments, especially that thev mulated experience, or alternatively 2) idiosyncratic or trite writing. be made a more informative instrument. the suggestion in reports that, though Raters too often write reports diat are Often a PAR will not reflect the true “brilliant,” an employee may be “not drab, uninformative or not sufficiently content of an assignment or record an ready yet.” But Ramsey did not find a supported. Reports written just before achievement. PARs have only recently long- or short-term bias against time-in- the due date are also easily identifable, begun to give evidence of managerial class. He gave percentages for die FS-3s compared to balanced reports crafted positions, but do not always indicate he evaluated: those promoted spent 4.9 over the course of the review year. awards. “The PAR office is very helpful, years in grade compared to 4.88 for the Another frequent evaluating style is a but understaffed, or else it needs more promotable pool, and had 12.8 years in mere job description that details the me¬ direction from above,” one attendee said. the Foreign Service compared to 12.5 chanics of a position rather dian brings Participants said that die computer soft¬ years for die pool. the person occupying it to life. “Write ware used for PARs has limited flexibil¬ Among other factors in getting pro¬ in concrete terms,” William Ramsey em¬ ity when recording job titles, responsi¬ moted, panelists described how the most phasized. “Illustrate what ’good’ is.” Rat¬ bilities, or the location of an assignment. crucial one is the actual content of your ing officers should look beyond catego¬ However, panelists read everything in file. That stack of paper may make you rization and provide more narrative. a file to get as full a picture as possible. promotable or unpromotable. Careless report drafting by a rater can They become thoroughly familiar with One report doesn’t make a promo¬ lead the panel to consult files that con¬ every individual under consideration; files tion, but inconsistency among reports tain every efficiency report the rating are gone over repeatedly by each panel will raise questions and may lead to officer has done in the last year. Letters member until the consensus on rank- your file ending up in the mid-rank pile. of commendation or criticism may be order is finally achieved. So if something Maybe your boss actually didn’t in¬ sent to specific raters, for reports done relevant to die end result of the review tend for you to get promoted and wrote especially well or poorly. is missing or not fully documented, the a mediocre report, which the panel may responsibility lies with die individual. interpret as “damning with faint praise.” The unavoidable question is did you The language used to write a report Why am I not on the List? Participants shared ideas on how you actually do lousy work this year. People can make or break your chances for frequently shoot themselves in the foot promotion. Bad reports can result when can help control the outcome of a pro¬ motion review. by putting a statement in die self-rating your boss is a bad drafter. box that is too defensive, and often backfires, explained van Wagcnen, a FS- program and making more funds avail¬ 4 to FS-3 panel’s “public member.”'The AFSA staff able for scholarships. board then has a tangible illustration Your first point of contact when demonstrating why the individual’s per¬ news you call AFSA or visit our State De¬ formance was lousy! The board he sat partment offices is likely to be Ashley AFSA is pleased to announce the on referred to the self-rating page as the Ney. As executive assistant and office “suicide page.” appointment of Cristin Springer as schol manager, Ashley is in charge of the arsliip administrator. Cristen has had “Lack of communication with one’s day-to-day functioning of the office, boss, with one’s colleagues, was prob¬ eight years experience in administer¬ as well as sched¬ ing scholarship programs, most re¬ ably the most frequent comment” that uling meetings, greet¬ cently as a consultant for the AID led to a poor review, van Wagenen stated. ing visitors, and as¬ This shortcoming is usually recorded over Presidential Training Initiative in Bar¬ sisting members. bados, where she was posted with die years in grade, which means that the Ashley majored in her FSO husband, William Mooney. rated person did not look at his or her studio art at Vir¬ Ms. Springet looks forward to in¬ file and work at overcoming the lack— ginia Polytechnic creasing awareness of the scholarship further proof of failing not only to send and State Univ. but to receive communication.

58 FOREIGN SERVICE IOURNAL State Standing Committee

reforms developed under Ambassador ance reveals an incompatibility with the A new partnership Brandon Grove’s task force are proceed¬ Foreign Sendee, selection out earlier in ing without wide-scale resistance because a career is far preferable than later when Evangeline Monroe an effort was made to develop consensus an employee may have maximum family Vice President and to subject proposals to broader scru¬ responsibilities and be less competitive The Foreign tiny. in the job market. Service Act of With rare exceptions the Foreign Serv¬ Since the passage of the Act there has 1980 was ice has always succeeded in gaining the not even been agreement about the opti¬ passed under respect of its political leadership and mum length of a career. As the Act is one administra¬ political colleagues before the end of an presently implemented by the Depart¬ tion and imple¬ administration. This process can and ment of State, an officer who does not mented under should be speeded up, and the Foreign make the Senior Sendee can expect a the leadership Serv ice can do its part by recognizing 26-year career if he or she is promoted of another. that respect is a two-way street. Respect slowly. We cannot build a strong For¬ I Whatever faults within the Sendee would be enhanced eign Sendee by encouraging mediocrity i we may find if there were a greater recognition of the and asking people to trade off security with the Act and its implementation truism voiced recently by General Vessey, for promotions. We certainly cannot ade¬ cannot be blamed on either admini¬ former head of the Joint Chiefs of Staff, quately provide for career development stration, since both the concept and the “the duties of those who do not rise to and predict our human resources needs implementation represented a partner¬ high rank are just as important as the if there is no clear understanding about ship between the political leadership and duties of those who do.” length of service. the career Service. Next month the For¬ An open session with the Commis¬ The Foreign Service will be weakened eign Service begins a new partnership sion to Study the Personnel System of if it does not have a coherent personnel with a new administration and will have die Foreign Service concluded with the system that is understood by all employ¬ another opportunity to examine and ad¬ remark that the Sendee needs ‘water ees. At present, we do not have such a just the way the Act has been im¬ walkers4 as well as those who carry' water. system. We have specialists who feel plemented. We will not have a healthy Sendee until they must become generalists in order Success in a better implementation there is career stability for both. As the to rise to the top, and we have general¬ of the Foreign Sendee Act will benefit Foreign Service Act is now implemented ists who are divided into groups of jun¬ both partners. Political appointees and a ‘water walker1 who reaches the Senior ior, mid-level, and senior officers clam¬ the career Sendee have the same goal— Service early is as vulnerable to involun¬ oring for a larger share of a shrinking the promotion and defense of American tary' retirement as is the officer who pie. Each group attaches different mean¬ interests. We are likely to find that both moves more slowly and barely' misses ing to the Foreign Service, yet each partners have similar attributes but will being admitted to the Senior Service. A group needs the other if die Foreign have different strengths. We will most combined time-in-class requirement for Service is to be a strong and healthy certainly have different perspectives. The OC’s and MC’s of 12 or 15 years would institution. Foreign Service must, as it has with each provide the security a Senior needs for There should be no argument about administration, learn the political im¬ maximum productivity. An cight-y'ear win¬ the need for a strong and healthy' For¬ peratives of die new administration. dow would provide an extra tour in eign Service. The international arena has The new administration will come pre¬ which an Ol officer could demonstrate become even more complicated since the pared with polity' positions in the major potential for promotion into the Senior Foreign Service Act was passed in 1980— foreign policy' issues. It will be up to die Sendee. Multiple and longer limited ca¬ too complicated to permit a shrinking Foreign Service to be prepared to sug¬ reer extensions for specialists would re¬ Service. In an era of fiscal limits, die gest organizational and personnel poli¬ sult in the retention of people with tal¬ Department of State’s priorities must cies that will assure a Foreign Sendee ents without which the modern Foreign be its people. People, not technology, healthy enough to work with the new Sendee cannot function. All of this could will make the difference in how we meet administration in meeting its foreign pol¬ be accomplished without amending the the challenges to diplomacy posed by a icy objectives. Foreign Service Act. Soviet Union undergoing radical inter¬ No personnel system or management None of the above will be feasible nal reform. People, well trained and se¬ policy will be effective if it is not based without more rigorous selection out for cure in their partnership with the politi¬ on openness, fairness and respect among poor performance for mid-level employ'- cal leadership, will determine whether all Service segments. Fairness is an elu¬ ees. Selection out at mid-level is likely we can redefine for the country’s benefit sive quality, but there certainly will not to be an unpopular suggestion, but it is the shifting security and economic relation¬ be fairness unless it is a widely held, consistent with the Foreign Sendee’s con¬ ships with Western Europe and Japan. basic tenet. The Whitehead plan an¬ tinuous support for an up or out (not And only people can solve the intracta¬ nounced in September, 1987 to reor¬ up and out) personnel system. By win¬ ble problems in the Third World. The ganize the Department was widely re¬ nowing out employees earlier in their new administration will need an institu- sented because it had been designed se¬ careers we would have a stronger, more tionaly healthy Foreign Sendee as it con¬ cretly, without consultation of those af¬ effective sendee, and a more humane fronts the growing threats of narcotics, fected. By contrast, the administrative one. For the individual whose perform¬ terrorism, and third-world debt.

DECEMBER 1988 59 Legislative Action Fund Contributions 1988

The following individu¬ Carolyn Cooper U. Alexis Johnson Margaret E. Abraham Meade Foster als are a partial list of Alden Ivons Frederick Z. Brown Sam Thornburg William Barnsdale Nelle Carmichael Joseph J. Montllor Charles Behrens Joan Brandwcn those who have given Howard Schaffer David T. Schneider Yolanda Cattoche John H. Toblcr their support to the A meri- Michael Carroll Alan W. Lukens Ofelia C. Dc Moreno Harold N. Waddell can Foreign Sendee As¬ Michael Bencficl William W. Phelps Margaret K. Ross Albert R. Nemecck Ann Gordon Kenneth B. Atkinson Billie Jean King R.M. Balthascr sociation's legislative ef¬ Robert Hannon Seymour H. Glazcr Burt Fralcigh Robert C. Brewster forts in 1988. Future is¬ Irving Tragen Virginia Greenwald Constance Roach John R. Oleson sues of the JOURNAL will Arthur Hudson William Owen Haynes R. Mahoncv William C. Hamilton Mary Manchester Austin Ballard Donnelly A. Sohlin John A. Bushnell publish the names of ad¬ Lester Anderson M.A. Anderson Alice D. Westbrook Robert J. Ryan ditional contributors. Oris Kolb Robert Morris Robert L. Bums William W. Chapman, Jr. Edna Long Robert Ziglcr Milo R. Alexander Edward Alexander Richard Dienclt Dwight Cramer Robert Peck Ted La France Richard V. Fischer Barbara Hemingway Bligh Desbrisay Thomas K. Wright Margery J. Palmer Idris M. Rossell George Grande James Engle Russell L. Riley Barrett Parker Charles R. Wilds Mary Reploglc Ambler Moss Marjorie Wcers Michael R. Gannett Gordon H. Mattison Anthony Vaivada Julio Arias Helen Bigganc Richard M. Herndon Michael J. Dux Charles Kennedy Harold Christie Nancy J. Metcalf James R. Gustin Janet C. McCrory Morris Weisq A.C. Walker Joe L. Alarid Alycc Fay Hawley James Marsh Norman Schutte E. Gaureshcff Ellis K. Allison Fred W. Trimbour Ly'ne S. Few Frederick Brown John Tannhauser Charles D. Mathias William McFaddcn James C. Lobcnstein David Piet Marshall Wiley William J. Holda Helen M. Gaudin Abbott P. Sayre Michael Galli Judith Johnson Carl R. Fritz Jackson W. Wilson Elizabeth W. Beers Stanley Kidder Walton Wells Doris G. Sturgeon Burton H. Behrens B.G. Bechhoefer John Hargrove James Prosser Gloria G. DcFossctt Clifford H. Gross Robert P. Smith Henry Krause Jr Brian McNamara Edward E. Price Martha C. Carbone Edward L. Peck Marilyn Takacs Martin Ackerman Herbert D. Spivack Fred Durling Robert K. Olson Baudquin Marchcn Edward Reynolds John L. Viles William J. Ford Norma Powers Palmer Elcanore Ravcn-Hamilton Robert Tarr Patrick M. Rice Elizabeth J. Marriot John E. Fochs Leonard Shurtleff Dallas Voran Herminia Renteria Marguerite G. Anderson Dagmass Litwin Harry Ncustein Diane Blane Robert R. Bliss Dorothy M. Carver Eddie W. Schodt Sydney Wayne Karen Stewart Raymond L. Perkins T. Eliot Weil H. Franklin Irwin, Jr. Penelope Laingen Peter Biclak Gerald R. Olsen Ann M. Clavcttc Marjorie Nesbitt William Cunningham Herman Walker Stephanie M. Bell Lorin E. Morin Donald W. Smith Colette Myers Stewart Anderson Marv A. Dovle Herbert Kaiser Dorothy Broussard Richard Kinsclla Christine Schouy Alice R. Wood John A. Baker Byron Blankinship Richard Dawson Grace Riddle Alta M. Wonder Albert J. Ciaffone Alfred J. Pelland Catherine Fincgan Donald Stapler Kenneth W. Calloway Mary E. Snapp Mary Dell Uliassi Donald Scott Robert Conrad Norman J. Bentley Samuel Karp Jean Marburg Wesley Sasaki Remo Garufi Herman Walker Mary' Grace R. Donnelly Thomas J. O’Donnell Willard Brown David H. Popper Charles O. Hoffman Lyle Franklin Lane J. Wesley Jones William Haynes Stockwell Everts Richard Peltier Evelyn A. White Robert A. Proctor Renzo Pagin David E. Simcox Nancy Franklin William R. Harmon Robert W. Day Joseph Sebcs Wesley J. Adams Jean M. Derry' Arden E.M. Du Bois Frances'M. Jenkins Louis Nigro Daniel S. Terrell Andre J. Navez Sofia Keamev Richard E. Usher Laurin Ashen Donald D. Smith Eleanor R. Borrowdalc Ruth Wagner Richard W. Newman William Blain David R. Thomson Kathleen M. Wallace Emory' G. Roberts Barbara A. Shannon William McManus Samuel O. Ruff Dorothy E. Weihrauch Amalia M. Szatko Richard F. Irving Norman Redden Gordon R. Beyer Domnick G. Riley Edward P. Dobyns Theodore Papcndorf Reppard Hicks Frank E. Pinder Sandy Pringle Herman T. Skoficld Teresa Healy Thomas Bowie Henry L. Deimel Stephen Peters Frederick Irving Raymond E. Kitchell Pauline Clark Charles N. Manning Philbcrt Dcvman Leonard Sandman Norman V. Schutc Harold Christi Harry R. Hargis Hugh W. Wolff Henry Dearborn Ellen Cronin Thomas Bovatt Michael J. Carroll F.D. Leathcrman Olga J. Wohlcgemuth W. Paul O’Neil Larue Lutkins Elkin T. Tavlor J. Stanley Phillips Robert E. Rice Arthur Braunstein Kyle Mitchell Talcott W. Seelye Edward J. Fechan Helen M. Oxford Stephen Shuttack John Panos Anna Peters Cabot Sedgwick Robert Bravo Stepney Cortez Kibble- Stephn Shuttock Iran M. Campbell Mable B. Waller Robert J. Martins Albert L. Zucca William Chcvoov James F. Gradv Lilianc Drexler Russell G. Jung James R. Vandivier David Cham Wilfred P. Allard William Alston Haync Tyler Thompson William H. Glcystecn, Jr. Alia Fowler William H. Christensen Elaine B. Mueller Helen K. Lyons Mary Jane McKnight Richard Newman R.G. Cleveland J. Jefferson Jones Bart N. Stephens Wallace F. Holbrook Richard Teare Henry C. Ramsey John S. Service Richard Dienclt J. Owen Zurhcllen, Jr. la:o Cyr Bernal Anselmo Lavem L. Thomsen William J. Drew James Frederick Green Richard Herndon Carl F. Norden Mary Jane Williams Zclla Moore Florence Fisher John Lloyd III Robert T. Lucas Harry E. Stevens Robert L. Shields Hazel F.. Gordon Steve Dobrenchuk H.F. Byme Charles B. Green Elinor K. Menter Thomas J. Malcady Jackson Wilson J.H. Cameron Peake Antoinette J. Daggett Martha Barnhill Rebecca O. Smith Robert Paganelli Eugene V. McAuliffc Samuel E. Fuhr W.H. Byrd John J. Linehan Charles Wonder Nicholas R. Milroy R.S. Johnson Edna Long Ralph J. Ribblc John Hargrove John Moller Nora Alsterlund Earl T. Crain Miliiccnt E. Walcott Richard S. Thompson Philip W. Bonsai Frank Wade Arrington Elizabeth Carver Arthur L. Lowrie Max Krebs O.J. Libert William A. Chcvoor Frank Colling Harry' E.T. Thayer

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