JULYFOREIGN 1991 SERVICE JOURNAL $3.50
AFTER THE WAR ★ The Same Old World Order—Janice Cross stein
★ Why the Kurds Fled—David A. Korn
★ The Riddle of April Claspie—George Gedda
★ Rise of the Russophiles—Vladimir Shlapentokh
★ The ABCs of Sanctions—Larry Roeder Jr. WE GET LETTERS.. Here are some from our 1990 collection:
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CHEQUES AND BALANCES AMERICAN FOREIGN SERVICE ASSOCIATION This spring’s Congressional Record should reassure any civil libertarian with Governing Board doubts about the continuing vitality of Montesquieu’s axiom for durable President. THEODORE S. WILKINSON democracy. Legislative restraints on the administration’s excesses of zeal have State Vice President: RICHARD MILTON AID Vice President: PAULA BRYAN proliferated far beyond those foreseen in the Federalist. The more imminent USIA Vice President: VANCE PACE danger in the field of foreign affairs may be paralysis. Retiree Vice President: CHARLES A. SCHMITZ Secretary: MICHAEL GOITER The power of the purse remains paramount, of course, but consider the Treasurer MICHAEL DAVILA additional instruments of influence that the legislature has devised to inflict on State Representatives: PURNELL DELLY DAVID T. JONES the executive—Government Accounting Office investigations, appointment of THOMAS MILLER inspectors general with authority for criminal investigations, hearings, calculated SANDRA ODOR HARRY GALLAGHER leaks, fact-finding trips, and, above all, micromanagement. AID Representatives: HELENE KAUFMAN Earmarking in the foreign aid bill is perhaps the best known example of the USIA Representative. BERNARD I IENSGEN Retired Representatives.- JOHN J. HARTER phenomenon, and it’s not surprising that the White House plans to seek L. BRUCE LAINGEN legislation “to put an end to micromanagement of all our foreign economic, DAVID SCHNEIDER security, and humanitarian assistance programs.” Staff Executive Director: SABINE SISK
Current debate on the State Department authorization bill provides some Business Department choice examples. The case of the Moscow Embassy is instructive. Foiled last year Controller. CATHY FREGELETTE by several powerful legislators who considered it wasteful to rebuild the nearly Administrative Manager SANDRA DOUGLAS Executive Assistant: STACEY M. CUMMINGS completed new chancery, the administration this year has proposed an Administrative Assistant: CHAMPA JARMUL imaginative alternative: leave the bottom floors intact, bugs and all, and replace Legal Sendees General Counsel: TURNA R. LEWIS the top two with four new, U.S.-constructed floors as a secure “top hat” for the Legal Assistant: MARK W. SMITH Law Clerk: CHRISTIE E-LOON WOO structure. Now other legislators are insisting on the original raze-and-rebuild Member Sendees option. The tug-of-war between rival legislative kibitzers ended in a standoff Director CHRIS BAZAR on the House version of the authorization bill, which mandates a new, detailed Representative: CATHERINE SCHMITZ DEBORAH M. LEAHY study. House appropriations action is till pending, however, and the issue has Membership Services yet to be fought out in two Senate committees. Director: JANET L. HEDRICK Assistant: IRENE LOWY Another controversial authorization bill issue concerns implementation of the Idofessional Issues. RICHARD S. THOMPSON report of the 1988-89 Thomas Commission. The conclusions and recommendations Congressional Liaison. ROBERT M. BEERS of the report were carefully reviewed in early 1989 by AFSA, by the Bremer RICK WEISS Committee formed by Under Secretary Selin, and by State Department management Scholarship Programs: GAIL VOLK Outreach Program itself. Some of the recommendations were implemented as submitted, or in Director CHARLES SCHMITZ modified form, and some were set aside—with good reason. Now, however, at Outreach Coordinator JASON L. FELDMAN
the initiative of critics who want to involve Congress even more directly in The American Foreign Service Association, founded management of the department (e.g., by having Congress authorize the number in 1924, is the professional association of the Foreign Service and the official representative of all Foreign of Foreign Service officers at each rank annually), there are renewed efforts to Service employees in the Department of State and the Agency for International Development under the terms legislate implementation of all the Thomas recommendations. A motion to this of the Foreign Service Act of 1980. Active or Retired effect has resurfaced in the Senate in the current text of the authorization bill that membership in AFSA is open to all current or retired employees of the U.S. foreign affairs agencies. Associ¬ would reconstitute the Thomas Commission. The reconstituted commission ate membership is open to persons having an interest in or close association with the Foreign Service. Annual would not only report on compliance with the earlier recommendations but dues: Active Members—$80-165; Retired Members— $45-55; Associate Members—$45. All AFSA members would also have a hunting license to study “any other question or issue relevant are members of the Foreign Service Club. Please note: to efficiency, cost effectiveness, and morale” in State. AFSA dues and Legislative Action Fund donations may be deductible as an ordinary and necessary business AFSA would be foolish to oppose judicious action by Congress to limit rogue expense for federal income tax purposes. Scholarship and AFSA Fund donations may be deductible as activities by renegade elements of any administration, e.g., the clandestine charitable contributions. adventures of Oliver North & Co. But, it’s hard to fault the White House for AMERICAN FOREIGN SERVICE ASSOCIATION, 2101 E Street NW, Washington, D.C. 20037. Executive offices, mem¬ launching a counteroffensive against micromanagement. The process takes too bership, professional issues, scholarship programs, insurance programs, JOLIRNAL offices: (202) 338-4045. much time even for a congressional staff that has grown fourfold in the last 30 Governing Board, standing committees, general coun¬ years. Nor is there time or money for an adequate response from the foreign sel, labor-management relations, member services, grievances: (202) 647-8160. . FAX: <202) 338-6820 . affairs agencies, or from a Foreign Service that hasn’t grown at all in the same Foreign Service Club (202) 338-5730. time frame. —TED WILKINSON
2 • FOREIGN SERVICE JOURNAL • JULY 1991 FOREIGN SERVICE JULY 1991 JOURNAL VOL. 68, NO. 7
Editorial Board Chairman HOWARD SCHAFFER
RICHARD AHERNE WILLIAM BEECHER C. STUART CALLISON HELEN STROTHER FOUCHE JOE B. JOHNSON BENJAMIN LOWE DANIEL NELSON HANS N. TUCH THEODORE S. WILKINSON
“The Independent Voice of the Foreign Service” FEATURES
Editor The Diplomatic Mistake That Made Yugoslavia 11 ANNE STEVENSON-YANG Associate Editor STEPHEN A. SESTANOVICH NANCY A. JOHNSON Assistant Editor/Advertising Manager JULIA T. SCHIEKEN FOCUS: THE AFTERMATH OF WAR Editorial Assistant DEREK TERRELL Design MARKETING & MEDIA SOLUTIONS It’s Still the Same Old World Order 16 JANICE GROSS STEIN FOREIGN SERVICE JOURNAL (ISSN 0015-7279), 2101 E Street, N.W., Washington, D.C. 20037-2990, is Iraq’s Kurds: Why Two Million Fled 20 published monthly by the American Foreign Service Association, a private, non-profit organization. DAVID A. KORN Material appearing herein represents the opinions of the writers and does not necessarily represent Truth or Dare: The Glaspie Affair 25 the views of AFSA or the JOURNAL. Writer queries are invited. GEORGE GEDDA JOURNAL subscription; AFSA Members -$9 50 included in annual dues; others - $40. Overseas Mechanics of Diplomacy: The ABCs of Sanctions 28 subscription (except Canada) - $50 per year. Airmail not available. LARRY ROEDER JR. Second-class postage paid at Washington, D.C. and at additional mailing offices. Postmaster; Send Rise of the Russophiles: Soviet Conservatives and the Gulf 30 address changes to FOREIGN SERVICE JOURNAL, 2101 E Street, N.W., Washington, D.C. 20037-2990. VLADIMIR SHLAPENTOKH Microfilm copies: University Microfilm Library Services, Ann Arlxir, Michigan 48106 (October 1967 to present). Indexed by Public Affairs Information Service (PAIS). Advertising inquiries invited. The appearance of advertisements herein Journal: Diplomacy in Reverse 36 does not imply the endorsement of the services or ROBERT K. CARR goods offered. FAX: 202/338-6820 • TELEPHONE: 202/338-4045 or 338-4054. Diplomats in History: Presidential Kin 41 American Foreign Service Association 1991 Books 43 Lawrence J. Kennon on Indira Gandhi; George F. Jones on Panama
DEPARTMENTS Cover: GIs holding up a flag in preparation AFSA Views 2 AFSA News 47 Letters 4 Marketplace 52 for a homecoming parade in Clippings 6 Real Estate 56 Hollywood, California. 50 Years Ago 10 Classifieds 59 Photo by AP/Wide World Photos. Foreign Service Quiz 10
JULY 1991 • FOREIGN SERVICE JOURNAL • 3 DOWN WITH INCENTIVES of Samuel Doe and Mobutu Sese Seko, as well as otherwise misguided heads Shoot for the Sails! To THE EDITOR: of state such as Julius Nyerere and Send us your best black and white The department is in the midst, it Kenneth Kaunda continued to benefit photos and you may win a Caribbean seems, of a serious budget crunch that from American largesse in Africa long cruise for two and have your photos has broad and long-term implications. after it had become clear that these published in the Journal. During trying times like these, inno¬ resources were being wasted from a vative approaches are needed to con¬ developmental perspective. Entries: front and resolve problems. The tal¬ This is a direct result of the Cold Black and white photo essays of ented ones among us are encouraged War, which made Africa one of the three to six individual photos. to step forward with their ideas to cockpits for gaining influence, ma¬ tackle and overcome obstacles. nipulating proxies, and “keeping allies” When the seriousness of the budget by the superpowers. Once a donor Subjects: crunch became apparent in Tokyo, country subordinates development Photos must be relevant to the management immediately responded. policy to political and security concerns, Foreign Service. The first item to fall to the axe was the meaningful development flies out the mission’s cash (incentive) awards Examples of possible themes in¬ window. As a result, Africa has re¬ program. Hurrah! mained a development disaster over clude: Jim Horn the past decades. Embassies in Today’s World Personnel Officer, Tokyo Curt C.F. Wolters The American Family Overseas USAID, Islamabad Americans and Economic DANGEROUS BAGHDAD A RADICAL DINNER Development To THE EDITOR: The Road Less Traveled I enjoyed the article in the May 1991 To THE EDITOR Inter-Cultural Communication Journal entitled, ‘It’s Never Been Easy to I have just read a biography of the Rules: Serve in Baghdad,” concerning events in Italian freedom-fighter, Giuseppe • Open to AFSA members or cur¬ Baghdad a century ago. Garibaldi by Max Gallo, which made rent subscribers and their fami¬ It might be of interest to readers to note me realize that 19th-century American lies. that life in Baghdad was not easy a half a diplomats and consular officers were • Photographers must be at least centuryagoeither. InMay 1941 the American 14 years of age not always “cookie pushers” who as¬ • All photos must be taken in Legation consisted of a minister and four sociated only with high society. In the 1990 or 1991. American staff members. They spent the 1850s Garibaldi was invited to a dinner • Photographers are responsible entire month of May sheltering 162 refu¬ in London by the American consul, for any necessary consents gees, interned incommunicado in our le¬ Saunders. Others present were Am¬ from subjects gation, surrounded by Iraqi troops and bassador James Buchanan, Mazzini • Entries cannot be returned and police and under constant threat by the (prophet of Italian unity and democ¬ FSJ is not responsible for lost then Iraqi “revolutionary” government. racy), Louis Kossuth, Theodore Herzen, or damaged entries. A full account of these events was and the French radical, Ledru-Rollin. • Any cruise winner younger published in the June 1972 issue of the than 18 must be accompanied It seems that Saunders knew what by an adult. Journal. he was doing. He had the future of • Photos must be received by Oc¬ Gordon H. Mattison Europe and the United States at his tober 15, 1991. Foreign Service Officer, Retired table. The American Foreign Service • Windjammer cruises are on a needs more of the imagination of space-available basis. Air fare A DEVELOPMENT DISASTER Saunders today. Don’t just invite the to Miami not included. people in power. Look to what may To THE EDITOR: Send entries to: happen next. FSJ Photo Contest It should not come as a surprise to 2101 E Street, NW Frank Ruddy (“The Kindness of William G. Marvin Jr. Washington, DC 20037 Strangers,” March 1991) that the likes Foreign Service Officer, Retired m
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NEWSWEEK, MAY 13, 1991 staffer. “Then you get here and you out this contact policy, I could abso¬ Just when Soviet society is more have to do all this piddling office lutely do a better job,” says one diplo¬ open than ever before, the U.S. Em¬ work.” . . . Other tasks don’t get done mat. Staffers are not allowed to bring bassy has drawn a curtain around at all. Soviet citizens into their own offices or itself. . . . The embassy has morale The March 29 fire made things worse. buy them lunch in the embassy cafete¬ problems. “I resent having to have a . . . The fire pretty well devastated the ria. ... At a time of high uncertainty chaperon with me whenever I meet a embassy’s capability to intercept sig¬ about the future of the Soviet Union, Soviet,” says one employee. “I got a nals from Soviet radio and telephone when U.S. diplomats should be spend¬ security clearance before I came and I traffic. It also knocked out telegraphic ing more time than ever with Soviet know what a secret is.” Washington communication with Washington. . . . citizens, they are being wrapped in a insists that the KGB is still working Even now the diplomats must wait for cold-war cocoon. hard to pry secrets out of Americans in an hour or more to send messages Moscow [and] “there have to be guide¬ over one of the six secure terminals lines.” that have been set up. TOP HAT DEFERENCE [Since 1986] office chores have fallen Staffers argue that the embassy’s WASHINGTON POST MAY 29, 1991 to diplomats. “The irony is that, for a human-intelligence capabilities have BY ROWLAND EVANS AND ROBERT NOVAK diplomat, this is the most sexy, glam¬ been needlessly degraded by the limits [The Moscow Embassy debate] is an extreme example of the be-nice policy assiduously followed byjames A. Baker III from the day he became secretary of state. Determined to avoid the searing Next To The White House, policy fights of the Reagan days, Baker We’re The Best Place To Stay. has cultivated and avoided provoking the barons of Capitol Hill—including $87/Night* Rep. Neal Smith (D.-Iowa), chairman FAMILY PACKAGE INCLUDES . . . of the appropriations subcommittee handling the State Department’s money. • One Bedroom Suite with Full Kitchen In this year’s State Department bud¬ • One Day Tour Passes get, the administration advocated the • Picnic Lunch with Tour “tear down” option. . . . But the State • Children’s Videos Department less than three months • Ice Cream Parlor Coupons ago switched to a “top hat” option— Located between two Metro Stations, with keep four stories of the bugged build¬ in walking distance to the State Department, ing and build four new ones on top of monuments, museums and restaurants. it. That’s an open invitation to further ‘Other Conditions apply. KGB mischief . . . Why then would Offer valid through 9115/91. Based on availability. Baker buy it? He and CIA Director Other packages available. Webster explained in a joint letter that 2019 I Street NW, Washington DC 20006 they “proposed top hat only out of (202) 828-2600 • (800) 424-5486 desperation because members of Con¬ gress will refuse to make these funds available.”... Yet the actual difference between the $215 million top hat and the $280 million tear down is only $65 million—the price of one big city post office. . . . Top hat may yet be foiled. There was not enough support for top hat
• FOREIGN SERVICE JOURNAL • JULY 1991 passage in the House, which sent the committee been bypassed in a matter amendments on the GOP side must matter back to the State Department to of war. pass through Helms’ staff. His chokehold decide (presumably in favor of top hat, The committee now has distributed on the committee has been tightened. out of deference to Smith) Thus the nearly all of its duties and staff to its Thus, the emasculation of the com¬ Moscow Embassy fiasco continues be¬ subcommittees and their chairmen. Pell mittee will be drawn out until Pell retires cause Jim Baker pursues non-confron¬ after the 1996 election. tation with the grandees of Capitol Hill. Never before, except in the case of Pearl Harbor, had the THE PROS
NO SUNUNU committee been bypassed in a THE CHRISTIAN SCIENCE MONITOR, MAY 21, 1991 THE Los ANGELES TIMES, MAY 5, 1991 matter of war. Malcolm Toon, former U.S. ambassa¬ BY SARA FRITZ dor to the Soviet Union and Israel, once [Secretary of State] Baker—unlike met a Navy admiral who said that when other cabinet officials—always flies has essentially eliminated himself from he retired he wanted to become an aboard government aircraft for secu¬ responsibility for handling nominations, ambassador. Toon shot back that when rity reasons, no matter what the pur¬ the State Department budget, foreign he retired he would like to command an pose of the trip. But he and his family aid, and regional issues; he doesn’t have aircraft carrier. members routinely reimburse the gov¬ to produce mark-up documents, hold In the shifting world of the 1990s . . ernment for personal trips, one of hearings, or defend bills on the floor. He . America can no longer afford to have which cost nearly $4,000. has staged a coup against himself. . . . second-rate ambassadors—men and Pell’s staff justifies the dispersal of women of dubious diplomatic qualifi¬ duties to the subcommittee by saying it cations. FOREIGN RELATIONS AND will box in Jesse Helms (R.-NC). Yet it is It is time ambassadorships ceased to BEYOND producing a contrary effect. . . As the be political favors. Tougher criteria,
CLAIBORNE PELL’S TWILIGHT ZONE Democrats decentralized, the Republi¬ those of merit alone, should be ap¬ THE NEW REPUBLIC, JUNE 10, 1991 cans centralized. Now all mark-ups and plied—perhaps by an advisory panel BY SIDNEY BLUMENTHAL Since William Fulbright’s defeat in 1974, the [Foreign Relations] Commit¬ There Is Only One Place tee has not had a strong Democratic chairman. The wavering, unfocused To Stay In Washington quality of the Democrats’ thinking on foreign policy greatly reflects the ef¬ YOUR PLACE fective loss of this concentrating in¬ strument. Under Claiborne Pell . . . most of the committee’s functions [have been dispersed] to its subcommittees— SHORT OR LONG TERM LUXURY “A Hotel Alternative APARTMENTS. TOWNHOUSES. a virtual dismemberment. Never has its PENTHOUSES reputation been lower. “It’s the door¬ For The Prudent Spender.” All Suites Tastefully Furnished & Fully Equipped Kitchens ★ Telephone * Cable mat committee for foreign policy.” Television * Security Intercom System Complete Health Spa * Concierge * Parking In Congress, control of jurisdiction Laundry and Valet * Maid Svc (optional) ★ is the sine qua non of power. But Pell Convenience Store steadfastly refused to fight for that which is his, and his rapid diminishment SPECIALIZING IN RELOCATIONS SERVING CORPORATIONS * PENTAGON began at once. His position as chair¬ THE STATE DEPARTMENT * INSURANCE INDUSTRY * EXTENDED TRAVEL man made it necessary for the congres¬ CONVENIENT METRO LOCATIONS AT sional leadership to create a select ROSSLYN CAPITOL HILL committee to investigate the Iran-Contra GEORGETOWN FOGGY BOTTOM scandal, and it was handled with DUPONT CIRCLE memorable incompetence. To handle the president’s request * Visa and Master Card Honored for war authorization, Senate Majority TLC Development Corporation Leader George Mitchell formed a spe¬ 1700 N Moore St. Suite 714 Art, Va. 22209 cial committee that superseded For¬ eign Relations. Never before, except in REAL ESTATE *SALES * RENTALS [(703)527-4441] MANAGEMENT the case of Pearl Harbor, had the
JULY 1991 • FOREIGN SERVICE JOURNAL • 7 made up of partisan and nonpartisan members. The Foreign Service Act of 1980 sets standards. In a changing world VOLVO the U.S. shouldn’t shortchange itself. U.S.A.’s Largest Diplomatic Dealer SECRETS AT STATE
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BY BUD SCHUSTER DIALOGUE: AMERICAN INTELLIGENCE Senator Daniel Patrick Moynihan’s k (SUMO m-OTTI HOTEL effort to abolish the Central Intelli¬ gence Agency and transfer its func¬ tions to the State Department is a 'Stutefflazafflote/ recipe for disaster. Giving the secre¬ tary of state chief responsibility for • Located across from the State Department, just minutes from the Kennedy Center, Georgetown, downtown, The intelligence raises the specter of “cooking” intelligence to support a Foggy Bottom Metro, and The State Department. preconceived policy. The separation ■ Luxury suites each with fully equipped kitchens, living room, of intelligence gathering and foreign dining room, bedroom or bedroom area. policy is a fundamental principle. ■ The Garden Cafe A separate CIA protects analysts ■ Same-day valet service from pressure to gather information ■ Complimentary grocery shopping service favorable to an administration’s initia¬ ■ Daily copy of The Washington Post tives. It is doubtful that the State De¬ ■ Special guest amenities partment would relish a reversal of this wise policy. For reasons of safety and ■ Complimentary Shoe Shine credibility, Foreign Service officers ■ Spectravision—in-room movies distance themselves from “spies.” The focus of U.S. intelligence may fluctuate with our interests and roles. But we should get over the idea that 2117 E street, N.W. Washington, D.C. 20037 intelligence is dirty, that it represents (202) 001-8200 > (800) 424-2850 the abandonment of American inno¬ Fax (800) 202-2850 cence and ideals rather than a wise way to preserve those ideals. ■
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Who was chosen as the first U.S. consul in France but Bethesda, Maryland 20814 never served? 301/951-4111 5. Because of the lack of Foreign Service personnel, this group was formed in 1941 to implement programs in “We care for your home Latin America. What was it? as if it vdere our ortn. ” 10 • FOREIGN SERVICE JOURNAL • JULY 1991 THE DIPLOMATIC MISTAKE THAT MADE YUGOSLAVIA BY STEPHEN N. SESTANOVICII M hose interested in diplo¬ failed. The debate now going on within cultural tradition. They have been his¬ T macy need shed no tears Yugoslavia is whether to continue as a torical rivals. They have fought on for Yugoslavia. Objective ob¬ centralized federation, which is what opposing sides in coundess wars. Their servers and most of that the Communist-led Serbs and philosophies in art, music, and litera¬ country’s people now con¬ Montenegrins seem committed to, or ture are totally different. cede that the impending breakup of to construct a new confederation of The map-makers of 1919 did not the Yugoslav nation is a delayed his¬ independent republics modeled on pause to take a closer look at any of torical inevitability. the European Community, which these disparities. They saw only that The fault has not been necessarily would be the choice of Slovenia and the Croats and Slovenes, long-time with the Croats, nor with the Serbs, the Croatia. The recent elections vassals of Austria-Hungary, and the principal antagonists; it has overwhelmingly confirmed Serbs, who were survivors of centuries been with the fatal combi¬ Croatia’s and of Ottoman domination, were a some¬ nation of Croats and Serbs what kindred people who yearned for trying to run a country nationhood. What better way to break together. up the vanquished empires than to The Yugoslav union grant immediate nationhood to was doomed from square their aspiring ethnic minori¬ one. Draconian practices ties? instituted by the late Presi¬ As the Versailles tribunal dent Josip Broz Tito to keep it all heard the mournful plaints of from falling apart are being chal the Serbs, Croats, and lenged by most of the constituent Slovenes about their impe¬ republics. From the beginning, uniting rial masters, its members Serbs, Croats, and Slovenes into a were touched by the evident federal union was a chancy undertak¬ cooperativeness of the ing. Heavily sprinkling such an asso¬ Slovenia’s plaintiffs. Indeed, when ciation with a disparate collection of long-term desire acting independently, Montenegrins, Hungarians, Romanians, to separate. Either these ethnic groups dem¬ Albanians, Italians, Macedonians, federation or confederation onstrated extraordinarily Bosnian Muslims, and Turks, and at¬ would require sublimation of conciliatory attitudes toward tempting to draw ethnic boundaries to parochial differences to the one another—attitudes they were satisfy them all, was the ultimate in national interest. Both would be never able to replicate once nation¬ gerrymandering. mere replays of past failed efforts. hood was achieved. A union of such diverse cultures was heady stuff in 1919, as the victo¬ Squaring the circle Restive troika rious World War I wheeler-dealers sat Yugoslavia’s track record in recon¬ Serbs, Croats, and Slovenes came down in the Hall of Mirrors to redraw ciling ethnic contrariness is not an upon the scene in 1919 by different the map of Europe. In their noble exalted one. Even President Tito’s routes. Slovenia, home to the most effort to correct the wrongs committed modest success in keeping the various homogeneous of the south Slav by the vanquished Austro-Hungarian groups from killing each other had to peoples, had never been an indepen¬ empire and its guiding principle of call on police-state methods and only dent country. From their first appear¬ divide et impera, they gave life to a made the present disarray more glar¬ ance in Europe in the sixth century, the south Slavic nation with inherently ing than ever. History, tradition, na¬ Slovenes had been tossed back and greater vexations than existed before. tional temperament, and lack of a forth among Frankish, Bavarian, and Three-quarters of a century of honest common heritage all tend to pull Austrian overlords. Only the church of effort to reduce the differences that Yugoslavia’s peoples apart. They dif¬ Rome and its priesthood kept alive separate the Yugoslav peoples has fer in race, language, religion, and Slovenia as a linguistic entity and a JULY 1991 • FOREIGN SERVICE JOURNAL • 11 people. Becoming a part of the King¬ Serbian supremacy claimed the restoration of the Yugoslav dom of the Serbs, Croats, and Slovenes Thus, Serbia came upon 1919 as state as a socialist federation of six in 1919, and Tito’s Yugoslavia in 1944, one of the victorious western Allies. constituent and allegedly equal repub¬ Slovenia has been the best-run of The Kingdom of the Serbs, Croats, and lics. The consent of the people was not Yugoslavia’s six nationality republics Slovenes was hastily born on December even considered. and the most prosperous. 4, 1919, only one month after the The Serbs, still the largest compo¬ Croatia, perhaps the most politically armistice that ended the war. It was nent in both area and population, soon sophisticated of the Yugoslav repub¬ actually a greater Serbia, with a Serbian recovered both their political and mili¬ lics, had been an independent kingdom king-regent, a Serbian capital city, and tary primacy. In 1990, the incorpora¬ in the 10th century, with its own duke¬ a Serbian-led government and military tion into the Serbian republic of the doms, a feared military, and papal establishment. autonomous provinces of Voyvodina recognition as a nation. But the Croats The Serbs were riding high again. It and Kossovo further inflamed Croatian lived in a highly volatile area, the is understandable that in the euphoria, fears of a Greater Serbia. Foreseeing a crossroads between Europe and the they would consider themselves the breakup of Yugoslavia, the Serbs are East, and in 1091 they were conquered hegemonic power over the lesser now seriously eyeing chunks of Croatia, by the neighboring Hungarians, who, Croats, Slovenes, Bosnians, and where large numbers of Serbs have together with the Austrians and, at Hercegovenians, who came into the relocated, for annexation into Serbia. times, the Venetians and the French, newly formed union from political The presence in Yugoslavia of large ruled them for eight centuries. In 1919, serfdom. King Alexander ran his king¬ enclaves of non-Slavic Macedonians the Croats were encouraged by the dom like a Serbian police state. It was (who form one of the nation’s repub¬ victorious Allies to sever all ties to the not long before the Croats and Slovenes, lics), Albanians in Kossovo, and Hun¬ humiliated Austro-Hungarians and be who consider themselves culturally garians in Voyvodina has been the incorporated into the newly formed superior to the Serbs, were at odds source of endless pugnacity. These Kingdom of Serbs, Croats, and with the Serbs, and what harmony had tensions are not likely to be reduced Slovenes. existed previously was impaired. under any reform program now on the In 1941, when the Axis powers over¬ As World War II began, the quarrel¬ table. ran the south Slavic kingdom, the Croats ing and divided Yugoslav kingdom Many decades of Serb-Croat disqui¬ were goaded by the Fascists to declare was no match for the well-oiled and etude have brought the Yugoslav na¬ a phony republic under native Fascist disciplined German war machine that tion to a decisive crossroads: their tutelage. As the Axis went down in trampled the country in a few days. choice is either to continue as best they defeat, the Croatian state went with it. The king and his government fled to can, seeking illusive solutions, such as Tito’s victorious Partisans, who included London, leaving behind the legendary reconstitution as a confederate union, large Croat cadres, made Croatia part of Chetniks, under General Draza or simply to make a clean break with the new Socialist Federative People’s Mihailovic, to ward off the invaders. the past and separate. Republic of Yugoslavia. However, the Communist groups, banned under Without a negotiated and peaceful Serbs never forgave them for their de¬ the monarchy, surfaced throughout separation now, the universally feared fection, and Croatia’s stance as a quis¬ Yugoslavia and rallied around the man vision for the future is continued strife ling state has been a bone of contention who, in 1936, had made a name for and eventual civil war. between them ever since. himself by taking a battalion of It is time to re-examine the mistakes The Serbs are different yet—a people Yugoslav Communists to fight in the of the map-makers of 1919 and 1945 in schooled to survive under hundreds of Spanish civil war: the Croat, Josip the light of three-quarters of a century years of Turkish rule and the demand¬ Broz, code-named Tito. of acrimony among the warring con¬ ing obedience required by an Eastern- Partisans and Chetniks fought their stituencies of Yugoslavia, remember¬ oriented church. The Serbs look back to own separate wars, often against each ing that World Wars I and II both had their golden age, a brief period in the other. The Allied forces at first stood their origins in explosions of ethnic mid-l4th century, when their leader, solidly behind the Serb, Mihailovic, incompatibilities. Helping to correct Dushan the Powerful, became emperor grooming him for a future role in a these old mistakes now, by supporting of Serbs and Greeks in a kingdom resurrected Yugoslavia. But as the eth¬ popular movements toward freedom including Albania, Epirus, Aetolia, and nic composition of Tito’s ragamuffin in Croatia, Slovenia, and, yes, even in Thessaly. troops became more representative of Serbia, would be the actions of a Serbia’s heydays were short-lived. the Yugoslav nation, and as his troops maturing American foreign policy. The Serbs, too, were overrun by neigh¬ fought better against the German and Democratic forces are on the march boring Turks in 1389; only in 1882 were Italian enemies, Allied sentiments in Yugoslavia, and their most valuable Serbs able to have their own kingdom changed. At Prime Minister Winston advantage would be America’s bene¬ again, this time under Russian protec¬ Churchill’s insistence and President diction. ■ tion. After a war against the Turks in Franklin Roosevelt’s concurrence, Al¬ 1912, they were given Macedonia, which lied support was transferred from the Stephen Sestanovich served for made Serbia a Balkan power on the eve Chetniks to Tito’s Partisans. 30years in State, Defense, and USIA. of World War I. In 1944-46, now-Marshal Tito pro¬ He travels frequently to Yugoslavia. 12 • FOREIGN SERVICE JOURNAL • JULY 1991 We concentrate on only ONE thing ... Managing your property. 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Vehicles shown are for illustration only and may contain optional features available at additional cost. tion—“don’t do that or else.” Compulsion involves using the threat of force to convince an adversary to do something he does not wish to do. Both strategies assume as a mini¬ mum condition sufficient military superiority to make the threat credible. Despite its un¬ questioned military advantage, the United States practiced a flawed strategy of deter¬ rence in the two weeks preceding Iraq’s inva¬ sion of Kuwait on August 2. From the invasion until the onset of war on January 16, the American-led coalition vigorously attempted THE OLD to compel Iraq to withdraw from Kuwait. Neither strategy of conflict management suc¬ ceeded. Why? Confused messages In the weeks immediately preceding Iraq’s invasion of Kuwait, Washington sent ambigu¬ ous messages about its likely response to a use WORLD of force by Saddam Hussein. At the now infamous July 25 meeting in Baghdad, Ambas¬ sador April Glaspie told Hussein that “...we have no opinion on the Arab-Arab conflicts, like your border disagreement with Kuwait.” Glaspie subsequently testified before the Sen¬ ate Foreign Relations Committee that, during ORDER that meeting, she had also warned several times that “we would insist on settlements being made in a nonviolent manner, not by BY JANICE GROSS STEIN threats, not by intimidation, and certainly not by aggression... I told him orally we would defend our vital interests, we would support EVERY WAR GENERATES LESSONS AND SPAWNS our friends in the Gulf, we would defend their sover¬ eignty and integrity.” MYTHS. EVEN THOUGH IT IS STILL EARLY, SEVERAL At worst, in the critical two weeks when Saddam was considering the use of force, the United States sent a MYTHS ALREADY HAVE BEEN CREATED IN THE weak and confused message about its likely response, should Iraq use force. At best, to the extent that EUPHORIA OF VICTORY IN THE GULF WAR, AND Washington did try to deter, the warning was not credible. The president of Iraq doubted not the capa¬ PRELIMINARY LESSONS CAN BE DRAWN ABOUT bility but the resolve of the United States to defend Kuwait. American resolve was in question not because THE MANAGEMENT OF INTERNATIONAL CON¬ of inept strategy by the American ambassador, but because of confused policy. In the last several years, the FLICT. THE MYTHS ARE MISLEADING AND THE United States had courted Iraq as a counterweight to Iran and turned a blind eye to evidence that Hussein LESSONS CAUTIONARY. might be considering aggression against his neighbors. Under these conditions, it was difficult for the United TWO LESSONS EMERGE FROM THE PERIOD States, irrespective of its military capability, to make its threats credible. THAT PRECEDED THE WAR: DETERRENCE AND The second lesson is unambiguous. Compulsion did COMPULSION BOTH FAILED. A STRATEGY OF not work. Despite the best efforts of the Bush Admin¬ istration to manipulate the risk of war and its unques¬ DETERRENCE USES THREATS TO PREVENT AN tioned military superiority, Saddam Hussein did not back down. This time, signals were clear, unequivocal, ADVERSARY FROM TAKING AN UNWANTED AC¬ and overwhelming, but the strategy still failed. Several 16 • FOREIGN SERVICE JOURNAL • JULY 1991 factors explain the failure to avoid war. Smart weapons and talking heads Saddam continued to doubt American resolve, not The war, fought from January 16 to February 27, on the basis of U.S. military capability but rather on the spawned other lessons on the management of interna¬ basis of its willingness to suffer casualties. In discussing tional conflict in the post-Cold War era. Two stand out the battle of Fao, which had been decisive in the Iran- in importance. First, smart weapons, especially used Iraqwar, Saddam told Ambassador Glaspie that, “Yours from the air, greatly reduced the political costs of is a society which cannot accept 10,000 dead in one conventional warfare. “Smart” weapons thus make it battle.” Drawing an analogy to the withdrawal of easier for great powers to fight conventional wars American Marines from Beirut, President Hussein was against middle and smaller powers in the Third World. persuaded that the American public would not tolerate Analysts suggest that international cooperation may large numbers of casualties in a ground war. grow as the cost of military technology escalates. If More to the point, Saddam’s calculation of the costs “smart” weapons are easily available over the next and benefits was different from that of the United decade, they may undercut peaceful settlements of a States. One probable interpretation of his refusal to myriad of disputes in the Third World and make some retreat is that he could not accept the political costs; kinds of north-south wars more likely. after the first week, once he was condemned by fellow Second, the political constraints operating on Presi¬ Arab leaders at the summit in Cairo, the loss of pride dent Bush during the war, as distinct from the prewar and honor and the humiliation of backing down were period, were overestimated. Although the war was high intolerable. Saddam preferred to fight and lose than to tech, its coverage was not. Management of the media pay the personal and political price that retreat in¬ and control of information were carefully planned by volved. the Pentagon before the fighting began. Due to what The success of threat-based strategies of conflict leaders thought they had learned from Vietnam, this management depends not only on superior military was the first radio war in two generations, in which capabilities, but on an understanding of the other side’s home TV coverage was largely restricted to “talking decision criteria. George Bush and Saddam Hussein heads.” In part because the public saw very few visual could not cross the cultural divide to understand the images of death and damage in the fighting, and basis of the other’s calculation. In the Gulf, threat-based because the war was brief, President Bush conducted strategies failed to prevent both crisis and war. These the war virtually free of political constraints. This lesson are cautionary lessons for the future management of has been well learned by military leaders in Washing¬ international conflict. ton as well as other Western capitals. Electronic wars and JULY 1991 • FOREIGN SERVICE JOURNAL *17 radio coverage make war more, rather than less, likely as bears a disproportionate share of the burden to persuade a future instrument of international conflict management. would-be free riders to join; it does not ask others to pay unless it is in decline. But even before the fighting New world order? began, Washington exacted pledges from the Gulf In the post-war period, several dangerous myths have states to finance more than half the costs of the war. already been accepted. The first and most important is Again, that the threat was directed principally against that the orchestration and management of the war the oil-wealthy made it relatively easy to arrange confirm “American hegemony” or the emergence of a multilateral financing of an American-led coalition. “unipolar system” dominated by the United States. Some Interestingly, the contributions of the strong industrial¬ critics allege that the United States, ized economies—Germany working under the guise of col¬ and Japan—were small pro¬ lective security to preserve a portional to the cost of the The government of Yitzhak Shamir hegemonic order, went to war to war. Without the multilateral secure strategic resources in the also comes out of the war financing provided largely Gulf and to protect its client re¬ by Saudi Arabia and Kuwait, gimes. Others insist that the most strengthened in Israeli public the impact on the American striking feature of the post-Cold budgetary process would War world is its unipolarity, with opinion. Shamir was able to per¬ have been severe, with real the United States unchallenged at political costs. As it has done the center of world power. The suade the Israeli public, under with its debt, the United States first group sees continuation, the was able to export most of second fundamental change in extraordinarily trying circum¬ the costs of the war to those the system, but both agree on the most directly threatened by stances, that restraint was the preeminence of the United States unchecked aggression. in the post-Cold War interna¬ wisest course of action. Given In short, a historically tional system. specific and unique set of This analysis of a unipolar public support of the government, conditions permitted the hegemonic order as demonstrated United States to engineer a by the performance of the United it is going to be extraordinarily series of steps that were all States in the war in the Gulf necessary to move down the mistakes the shell for the sub¬ difficult to persuade the governing path to war. It is dangerous stance. The war occurred under and misleading to general¬ very specific conditions that are coalition of the urgency of the ize from this single case, not likely to be replicated. Presi¬ however. The United States concessions. dent Saddam Hussein was widely did not so much “control” feared and hated in his own the international agenda as it country and beyond his borders carefully, at considerable in the Middle East. Although his political risk, crafted and led political agenda received wide support in the Arab world, a coalition to shape the agenda. Washington was he personally had almost no constituency. In addition, extraordinarily skillful in deploying the resources it Iraq sat close to the largest proven reserves of the world’s commanded. The role of the United States in conflict oil, upon which the industrialized economies generally management in the decade ahead will be shaped more depend. This created a uniquely shared perception of by its diplomatic and political skills than by its eco¬ threat and common interest among the major powers at nomic and military power. the United Nations. It is inconceivable, for example, that a Syrian invasion of Lebanon, or an attack by Libya Israel's trauma against Chad, would evoke the same response. A second myth is that wars create new opportunities Soviet interest in cooperating with the United States in their aftermath. Creative leadership can restructure was also extraordinarily high. It can be explained in part once-frozen political forces and resolve long-festering by Soviet expectation of Western economic and technical conflicts. What is remarkable is how little the war has assistance critical to the reorganization of its economy. changed the world. War, generally associated with But if a politically weakened President Gorbachev can¬ great uncertainties and unpredictabilities, changed little not resist the renewed political importance of the mili¬ in the political geography other than to eliminate Iraq tary, the KGB, and the conservative constituencies in die as a threat to its neighbors for the rest of the decade. Foreign Ministry, the Soviet “moment” that created the The Gulf War has also made it more, not less, myth of unipolarity may well have passed. difficult to resolve the Israel-Palestinian conflict. It Finally, a hegemon in a unipolar system traditionally strengthened the governments of Syria and Israel and 18 • FOREIGN SERVICE JOURNAL • JULY 1991 badly weakened the leadership of the Palestinians. Iraq and Arafat is chairman of the PLO. Political support President Hafez-al-Asad used the opportunity provided for the PLO has also been decimated within the Arab by the Gulf War to consolidate formal control of world. Iraq can no longer provide meaningful political Lebanon and to end his isolation of more than a decade or military support to Arafat, and the leaderships of all in the Arab world. Syria’s troubled economy is also the Gulf states are now angered and embittered by receiving substantial help from Saudi Arabia in the Arafat’s position during the war. Only Egypt, the pivotal wake of Syrian participation in the war. Despite declin¬ state in the politics of the Middle East, offers lukewarm ing Soviet military assistance and diplomatic support, political endorsement of the PLO. Within the Arab Syria is now in a far better position to shape the agenda world, Arafat’s support is now restricted to North Africa, and the terms of Arab-Israeli Yemen, and Libya. It is no negotiations than it was before coincidence that at the re¬ the war in the Gulf. The last, most tentative, yet most cent Arab summit meeting, In Israel, the war had contra¬ no mention was made of the dictory consequences. Now that revolutionary outcome of the war PLO in the resolution deal¬ Iraq is no longer in a position to ing with the Palestinian join a coalition against Israel, the may lie in its ending. The interna¬ question. most serious strategic threat to Finally, the changed in¬ Israel has been removed for a tional community's intervention in ternational context works decade. Syria, which poses the against immediate resolution remaining serious threat to Israel, the internal affairs of a member of the Palestinian-Israel con¬ is less likely to attack alone than flict. For almost three de¬ in conjunction with an Arab coa¬ state in response to the creation of cades, the Arab-Israel dispute lition; consequently, a large-scale a massive number of Kurdish refu¬ was embedded in the larger war involving ballistic missiles Soviet-American conflict. The and counter-city warfare is far gees is unprecedented. Whether the United States moved vigor¬ less likely than it was a year ago. ously in the 1970s in large Israel is therefore relatively more refugee camps and the safe havens part because it feared that the secure than it was a year ago. conflict could explode and On the other hand, the war that have been created in Northern draw the United States into a was a traumatic experience for dangerous confrontation with Israel. Its civilian population was Iraq are protected by foreign or UN the Soviet Union. That fear sent night after night into sealed has largely evaporated. rooms and forced to don gas troops, Iraq's sovereignty has The last, most tentative, masks. For many among that clearly been curtailed. yet most revolutionary out¬ population, it brought back come of the war may lie in its traumatic memories. From left ending. The international to right across the political spec¬ community’s intervention in trum, there was a deep reaction the internal affairs of a mem¬ against pictures of Palestinians chanting for Saddam ber state in response to the creation of a massive Hussein to use chemical weapons against Israel. Even number of Kurdish refugees is unprecedented. Whether the peace movement in Israel, which had long urged the refugee camps and the safe havens that have been negotiations with the PLO, now expresses deep disap¬ created in Northern Iraq are protected by foreign or UN pointment with Arafat. troops, Iraq’s sovereignty has clearly been violated. The government of Yitzhak Shamir also comes out Although the intervention grew out of the war and is of the war strengthened in Israeli public opinion. therefore historically specific, the response of the Shamir was able to persuade the Israeli public, under international community nevertheless sends a strong extraordinarily trying circumstances, that restraint was message about the acceptable limits of the treatment of the wisest course of action. Given public support of the minorities in the Middle East. This may be a more government, it is going to be very difficult to persuade important bellwether of the kinds of international the governing coalition of the urgency of the conces¬ conflict—and solutions—likely to dominate the rest of sions. this decade than a war begun to defend the principle Yasir Arafat has been crippled in the Arab world by of state sovereignty and the legitimacy of state borders.* his open and strong support of Saddam during the war. Saudi Arabia and Kuwait, as well as some of the smaller Janice Gross Stein is a professor ofpolitical science Gulf states, were the principal source of funds for the at the University of Toronto and afellow ofthe Royal PLO. These funds have now been cut off and are not Society of Canada. She recently edited Getting to the likely to be renewed as long as Saddam is in power in Table: Processes of International Prenegotiation. JULY 1991 • FOREIGN SERVICE JOURNAL • 19 A FEW DAYS AFTER U.S. AND COALITION FORCES sudden of recent times, and it quickly created a human smashed Saddam Hussein’s army in southern Iraq, an tragedy of immense proportions. Hundreds of thou¬ astonishing thing happened at the opposite end of that sands of Iraqi Kurds, Assyrian Christians, and country. Rebellion swept Iraqi Kurdistan like wildfire Turcomans—people who had tasted brutal oppression through dry brush. In a matter of days, the cities and at the hands of Saddam Hussein’s regime—were soon towns of the Iraqi Kurdish heartland—Suleimaniya, crowded without food or shelter on mountainsides up Irbil, Dahok, and even Kirkuk—were all in the hands against or just over Iraq’s borders with Iran and Turkey. of insurgents under the banners of Jalal Talabani, head They began dying by the hundreds, then by the of the Patriotic Union of Kurdistan, and Masoud Barzani, thousands. As pictures of dead and deathly ill children leader of the Kurdish Democratic Party and son of the flashed across television screens in America and West¬ ern Europe, the Bush Administration was forced into a reversal of policy every bit as spectacular as its earlier turnabout from col¬ laboration with Saddam Hussein to confron¬ tation with him after his army invaded Kuwait. Like the reversal the previous year, this one too, was at least in part the result of the administration’s own miscalculation. Once Saddam Hussein’s army was beaten (or thought to have been beaten) the administration’s nightmare scenario was not that Kurds and Shi’ites would be massacred or flee for their WHY TWO lives by the hundreds of thousands, but that they would seize power, each in their respec¬ tive zones. Iraq would become another Lebanon, torn apart; Iran would step in to impose a regime steeped in its own noxious brand of extremism, or the Kurds would defy reason and declare an independent state, or MILLION both. The one would unsettle our Saudi friends, the other our Turkish ally. So the administration opted for the path of realpolitik. It would stand aside and let the Iraqi army put down the Shi’ite and Kurdish rebellions: Iraq would thereby be kept together and postwar stability assured. See no evil The nightmare scenario was realistic, and it couldn’t have turned out to be more wrong. FLED One of the reasons it was wrong is that the administration was so afraid of being contami¬ BY DAVID A. KORN nated by the Iraqi opposition that it wouldn’t talk to them. A Kurdish delegation headed by legendary Kurdish guerilla fighter Mulla Mustafa Barzani. Talabani was in Washington during the last week of The Baghdad government’s Kurdish militia rushed to February hoping for an appointment at the White throw in its lot with the insurgency, and other Iraqi House or State Department. For the administration, military units in the north quickly surrendered. Seldom they were about as welcome as bearers of the plague. had power over an entire region fallen so swiftly from An order came down from the White House banning the hands of a central government. any meeting. Talabani and Hoshayr Zebari, Masoud Some two weeks later, there was even more aston¬ Barzani’s representative, left Washington without see¬ ishing news. As rapidly as it had risen, the Kurdish ing anyone from the executive branch—and without revolt collapsed, and some 2 million panicked Kurds anyone from the executive branch’s learning from them jammed into cars, trucks, and buses or struck out on what was about to happen in Iraqi Kurdistan. foot or horseback for the Turkish and Iranian borders If there was one key event afterwards, it was the with little but the clothes on their backs. It was a administration’s decision to look the other way while spontaneous mass flight, one of the largest and most the Iraqis cut down the Shi’ite and Kurdish resistance 20 • FOREIGN SERVICE JOURNAL • JULY 1991 with helicopter gunships. In the mountainous terrain of are; estimates range from a low of 15 million to a high Iraqi Kurdistan, the helicopters gave Iraqi forces a of 30 million. The reason they never got a state was that decisive edge. Helicopters could strike where tanks in the new order that emerged out of the defeat of the could not, and their armor and the insurgents’ lack of central powers in World War I, the Kurds found surface-to-air missiles or anti-aircraft guns made them themselves divided among Turkey, Iraq, and Iran, with practically invulnerable. The president and his spokes¬ smaller numbers in Syria and the Soviet Union. That too men offered a variety of rationales—none more than is why nobody knows how many of them there are. marginally persuasive—in justification of the decision Neither Turkey, Iraq, Iran, nor even Syria has ever to ignore Iraq’s use of helicopters: anything the United allowed a census to be taken among its Kurdish States might do would violate the principle (suddenly population. A good estimate would probably be 10 to sacred) of non-intervention in Iraq’s internal affairs; the 12 million in Turkey, 3 to 3-5 million in Iraq, and 5 or president did not “want to risk the life of one American 6 million in Iran. boy” in a “conflict that has gone on for centuries;” helicopters would be too difficult to track, and shooting Emerging political identity them down wouldn’t do any good anyway, because the Down through the centuries, Kurdish tribes in the Iraqis could still send armor and artillery against the secluded northern Zagros mountains resisted the en¬ insurgents. croachments of governments, but the idea of a Kurdish The hands-off policy brought results the administra¬ national identity did not take root until the 20th century. tion had not expected. The flood of Kurdish refugees The Treaty of Sevres, signed between the allied powers toward Turkey set off a clamor from President Turgut and the defeated Ottoman Empire on August 10, 1920, Ozal’s government for allied action to halt the Kurdish called for establishing a Kurdish state under a League exodus from Iraq. And the French and the British of Nations mandate with a vague promise of indepen¬ upstaged and embarrassed the United States by being dence to come later. But the allies backed down after the first to call for urgent measures to prevent a great Kemal Ataturk defeated the Greek Army in Anatolia and human tragedy. Pictures of the Kurds’ misery and of seized uncontested control of the territory we now their dead wrapped in shrouds awaiting burial dimmed know as Turkey. In the 1920s and 1930s Ataturk’s the glow of the great Desert Storm victoiy, while in government launched repeated, brutal, and highly Washington, the Democrats did their best to make the effective campaigns to suppress not just the nationalis¬ administration’s apparent indifference a political issue. tic aspirations but the cultural identity of the Kurdish A few days earlier, the White House had announced population. The Turks barred the public use of the a paltry $1 million contribution to Kurdish relief, to be Kurdish language and carried matters to the absurdity handled through UNICEF. Now it did a swift about-face of denying that there was such a people as Kurds within and launched a massive U.S. military airlift of food, their borders. “Mountain Turks,” they called them. blankets, and tents. And then the president did what he In Iraq, things were different. Iraq had no true had vowed he would not do: he ordered U.S. forces into historical antecedents and no nationalistic strongman northern Iraq, to establish a safe haven for several to throw out the foreigner and impose unity. It was an hundred thousand Kurds and others who had fled entirely artificial state, pieced together by the British at toward Turkey. the end of World War I from the shattered remains of the eastern flank of the Ottoman Empire. The British A divided people insisted on including in this mainly Arab state the Old Middle East hands in Washington, in and out of largely Kurdish Ottoman Wilayet of Mosul, because oil government, like to think of the Kurds as a quaint had been found there in substantial quantities, and people who wear baggy pants and colorful turbans and London wanted to ensure that its latest vassal would not periodically amuse themselves by firing World War I be a drain on the treasury. The Kurds objected, though vintage rifles down from the mountains against govern¬ at that point not strongly, for their world was still mainly ment troops that come inconveniently to disturb their tribal and their loyalties were to tribal leaders. The backward way of life. British bought them off with vague assurances of So it may have been, once upon a time. Today, many autonomy. The League of Nations exacted from the Iraqi Kurds still wear baggy pants and turbans for government of Iraq, as the price for accession to ceremonial occasions. But the majority are now urban, independence and admission to the League, a promise and many are middle-class professionals: physicians, to respect Kurdish cultural, linguistic, and administra¬ engineers, architects, accountants, teachers, civil ser¬ tive autonomy. vants, and businessmen. When successive governments in Baghdad ignored The Kurds are the Middle East’s fourth-largest ethnic these promises, the Kurdish tribes of Iraq rose in revolt. group, after the Arabs, the Persians, and the Turks, and Little by little, in the cauldron of Kurdish revolt and Iraqi they are the only major one not to get a state of their government repression, there was forged a sense of own. Nobody knows exactly how many Kurds there Kurdish identity and nationalism that transcended tribal JULY 1991 • FOREIGN SERVICE JOURNAL • 21 particular brand of dual-track diplo¬ macy. He opened talks with Kurdish leader Mulla Mustafa Barzani for a special status for the Kurds within Iraq, and he put out feelers to Mos¬ cow for a friendship treaty and for the arms he would need to resume the war against the Kurds. On March 11, 1970, the Iraqi gov¬ ernment and Barzani’s negotiators reached agreement on a text that recognized “the national rights of the Kurdish people and of other mi¬ norities within the overall context of Iraqi unity.” Kurdish was to be the language of instruction in Kurdish areas and would be taught as a second language in the rest of Iraq. A single administrative unit was to be established for the Kurdish region of Iraq, senior government posts there were to be held by Kurds, and steps were to be taken to “ensure that the Kurdish people enjoy a growing degree of self-government and hence internal autonomy.” And a portion of the revenues from the Kirkuk oil fields was to be devoted to develop¬ ment in the Kurdish region. A census was to be taken to es¬ tablish the boundaries of the Kurdish region, but the Baghdad government never got around to it. Instead, it began expelling Kurds from Kirkuk and from towns and villages on the fringe of the Kurdish heartland, whittling away at the area to be accorded to the Kurds. In 1971, the Iraqi security services tried to assas¬ sinate Barzani by planting a bomb on an unsuspecting Moslem cleric sent to meet with the Kurdish leader (it blew up prematurely, killing the cleric limits. Every Iraqi regime has had a part in this process, but only lightly wounding Barzani); they tried again in but none has done more to make Kurds think of 1972 but failed the second time too. themselves as Kurds and want to lead an autonomous existence than the Ba’ath Party, which seized power in Enter the shah Baghdad in 1968. And no Iraqi leader has been a more In 1972 Baghdad and Moscow signed their friend¬ cruel, treacherous, and implacable adversary to the ship treaty, and Soviet arms began to flow into Iraq at Kurds than the Ba’ath’s strongman, Saddam Hussein. an accelerated rate. This alarmed the shah of Iran, who decided it was time to play the Kurdish card. The shah Empty promises offered Barzani arms and money to fight the Ba’ath One of the first things the Ba’ath did after taking regime. Barzani, who, after two attempts on his life and power in Baghdad was to launch a military offensive other outrages, had lost confidence in Saddam Hussein, against the Kurds. By late 1969, however, it had become found the shah’s offer attractive. Still, he did not trust clear that Iraq’s army lacked the means to crush Kurdish the Iranian; he wanted U.S. backing as well. The shah, resistance. So Saddam Hussein turned to his own he knew, was an unreliable ally who might easily 22 • FOREIGN SERVICE JOURNAL • JULY 1991 betray him, but he could not imagine that the Ameri¬ sheer vengeance, Saddam Hussein’s forces again turned cans would do the same. At the shah’s insistent request, on the Kurds with chemical weapons. Thousands were Nixon and Kissinger secretly authorized $16 million in killed or maimed and tens of thousands fled in panic to aid to Barzani’s forces. Turkey and Iran. The wily old Kurdish leader was right to be wary of Having thus put down the latest Kurdish rebellion, the shah, but his confidence in the United States turned Saddam Hussein moved to do what he evidently out to be misplaced. The Iranian monarch had no thought would make another revolt impossible. The intention of seeing the Kurds win; he wanted only to Iraqi army razed the villages of Iraqi Kurdistan, not just make trouble for the Iraqis, and he was ready to drop along the Turkish and Iranian borders, but throughout his Kurdish allies the moment he could reach agree¬ the area; only the major towns and cities were left ment with Saddam Hussein. Even while urging the standing. Half a million Kurds—some say as many as 1 Kurds to revolt, the shah put out feelers to the Iraqi million—were expelled from their ancestral homes and leaders. Saddam was not interested so long as he forced into “new towns”—-virtual concentration camps— thought he could win with his new Soviet arms, but by in the Kurdish lowlands. When public opinion in the early 1975, he realized he could not. In March of that United States and Western Europe stirred against these year, he made a deal; he gave the shah the mid-channel savage measures, Hussein called the criticism interfer¬ line of the Shatt al Arab. The shah agreed to cut off all ence in his internal affairs. The Reagan and Bush assistance to the Kurds, and the United States followed administrations, keen to develop their relations with suit. the Iraqi strongman, essentially bought onto this line. It was surely the most shamefully cynical U.S. covert Not once did the United States publicly protest Iraq’s operation ever to come to public light. According to the mass forced relocation of the Kurds, though Prime summary of the report by the House Select Committee Minister Margaret Thatcher’s government and other on Intelligence that was leaked to the press in 1976, the Europeans did. operation was launched without committee approval. So what was it that made 2 million Kurds abandon Nixon and Kissinger were fully aware of and in accord their homes and flee in March 1991? Kurdish sources with the shah’s intent that the Kurds should not prevail. attribute it to two main causes. One was the United The committee’s report concluded that had it not been States’ failure to make good on what the Kurds saw as for the U.S. role, “the insurgents might have reached an a public U.S. commitment to keep the skies clear of accommodation with [the government of Iraq].” The Iraqi combat aircraft of any kind; once again, as in 1975, committee also found that while the United States they felt betrayed and abandoned. The other was sheer encouraged the Kurds to pursue hostilities, on one terror of Saddam’s revenge and, in particular, memory occasion American representatives intervened to re¬ of the Iraqi army’s resort to poison gas after the 1988 strain them from launching an all-out offensive at a ceasefire. According to foreign observers who were on moment when such a move might have been success¬ the scene, the Kurds were persuaded that this time, ful. Hussein was going to annihilate them. The March 1975 agreement between the shah and Saddam Hussein brought catastrophe upon the Kurds. The Kurds' gamble An estimated 200,000-300,000 fled to Iran. Many who Within days after Saddam Hussein crushed their eventually returned under Iraqi government offers of rebellion, Jalal Talabani and Masoud Barzani went to amnesty found themselyes facing execution, imprison¬ Baghdad to pay him a visit. It seemed almost a ment, or internal exile. Large numbers of Kurds were hallucination. Stories of Iraqi atrocities were still fresh relocated to camps controlled by the Iraqi army or sent off the presses, and hundreds of thousands of terrified to the south of Iraq. Kurds huddled miserably in makeshift camps in the mountains. Yet the two Kurdish leaders smiled for the Saddam's revenge TV cameras and embraced the Iraqi dictator. It was not, however, to be the end of Kurdish Was it just another twist in the old Middle Eastern resistance to the Iraqi Ba’ath regime. Saddam Hussein game of fight and reconcile? Hardly. Before Barzani coupled his repression in Kurdistan with the award of would go to Baghdad, Saddam had to send one of his a largely fictitious autonomy for that region, but it won sons to the Kurdish rebel-held area in the north as a him few converts. After Iraq invaded Iran, the Kurds guarantee of Barzani’s safety. So why did the Kurds, once again rose in revolt, this time without U.S. backing distrustful of Saddam Hussein, rush into negotiations but with strong support from the Iranians. When Iran with him? and Iraq reached agreement on a ceasefire in August The answer is simple: it is a matter of national 1988, the Kurds once again became the chief victims. survival. In the camps in the mountains of Iraqi Even before that—at Halabja in March 1988 and in Kurdistan, in Turkey and in Iran, Iraqi Kurdish children earlier instances—the Iraqi army had used poison gas were dying in alarming numbers, from polluted water against Kurdish rebels and civilians. Then, in an act of and bad food or from no food. It is estimated that one JULY 1991 • FOREIGN SERVICE JOURNAL • 23 out of every two children of families who fled have died ably into the landscape of the late 20th century? Even or will die—an entire generation reduced by half. refurbished by Hemy Kissinger, clearly they don’t, Beyond that, Kurdish leaders do not want to see their particularly now that U.S. Cold War rivalry with the people become perpetual refugees, embittered, debili¬ Soviet Union is suspended. In a world in which tated, and dependent upon the uncertain good will of everything our government does eventually becomes others. They want them to be able to return to their subject to public scrutiny, the public demands that its homes and live normal lives. leaders do what is right, not just what is expedient, and The Kurds say they hoped to exploit Saddam’s nothing is harder to justify than expediency. Balance of weakness to extract an agreement giving them broad power and power politics are not likely to disappear authority to run their part of from the international scene the country as they see fit. But anytime soon, but those who even if a deal is struck, neither The true lesson of the post-Persian manage American diplomacy side expects it to last. The need to give a little more at¬ negotiations are a play for time: Gulf War crisis is that the sacrifice tention to humanitarian and an opportunity to regroup and human rights considerations. rebuild for Hussein, and, for of human life and humanitarian Even Jeane Kirkpatrick, who the Kurds, a time to consoli¬ made her fame as the advo¬ date their hold over most of values for coldly calculated con¬ cate of forgiveness for dicta¬ Iraqi Kurdistan outside the tors (so long as they were our major cities, bringing people cepts of national interest simply dictators) and as an outspo¬ back to the thousands of vil¬ ken critic of an earlier goes against the grain of our lages and towns the Iraqi re¬ administration’s human rights gime methodically laid to waste times. In an era in which television policy, now proclaims that in the late 1980s. American diplomacy must take The Kurds are betting that can bring the suffering of even the serious account of the exigen¬ the United States and Western cies of human rights. Europe won’t allow Saddam to most remote victims into A review of the doctrine of crush them once again. But it non-interference in internal is a very big gamble, and they everyone's living room, diplo¬ affairs would be a good place know it. to start. In earlier times it may macy—and diplomats—that fail to have had its usefulness. In the Tattered realpolitik 20th century it has become the recognize this will inevitably come Why did the Bush Adminis¬ last refuge of a tyrant intent tration miscalculate so badly? to grief. upon persecuting his people. To blame it all on an intelli¬ Hitler invoked it to legitimize gence failure hardly seems his laws against the Jews be¬ plausible. Months before the fore World War II, and at that war began, the intelligence time it was held in such solemn community forecast massive humanitarian problems, awe that no government ever thought of challenging and in early February 1991, the CIA predicted that the him. Today, largely because of the experience of the war might generate as many as 1.5 million refugees. 1930s and World War II, it is no longer sacrosanct. Over What led the administration astray in this instance the past half century, an extensive body of law has was its seemingly irrepressible urge to apply the rules emerged that makes it illegal for a government to abuse of 19th century diplomacy to nearly every foreign its population and entirely legitimate for the interna¬ policy problem in sight. Balance-of-power politics tional community to intervene to prevent its doing so. required that Iraq be preserved as a bulwark against The true lesson of the post-Persian Gulf War crisis is Iran. Not only Iraq had to be preserved, but its that the sacrifice of human life and humanitarian values government as well; as a National Security Commission for coldly calculated concepts of national interest staffer reportedly said on March 1, “Our policy is to get simply goes against the grain of our times. In an era in rid of Saddam Hussein but not his regime” (“Civil War which television can bring the suffering of even the in Iraq,” Peter Galbraith, 1991, page 28). This meant that most remote victims into everyone’s living room, the Kurds and the Shi’ites had to be left to their grisly diplomacy—and diplomats—that fail to recognize this fate; that was sad, but it was just realpolitik, the sort of will inevitably come to grief. ■ thing nations do from time to time when broader interests are believed to be at stake. David A. Korn is a former Foreign Service officer But do Metternich and Bismarck and their doctrines who is author of Human Rights in Iraq (Yale Uni¬ of balance of power and realpolitik really fit comfort¬ versity Press, 1990). 24 • FOREIGN SERVICE JOURNAL • JULY 1991 UNTIL A YEAR AGO, LIFE HAD BEEN KIND TO APRIL point of obsequiousness. She assured Saddam that Glaspie. She was the first Foreign Service woman to rise President Bush “personally wants to expand and deepen through the ranks to become an ambassador to a Middle the relationship with Iraq.” She expressed admiration for Eastern country. She had mastered two foreign lan¬ Saddam’s “extraordinary efforts” to rebuild Iraq after its guages, was widely recognized for her expertise on Arab war with Iran. This was followed by her declaration of issues, and enjoyed the respect and esteem of her neutrality concerning the border dispute with Kuwait. colleagues. The State Department greeted the Iraqi transcript with But things changed for her last August 2. One can only almost total silence, a curious response for an institution imagine her reaction when, during a stopover in London that had been tiying for weeks to demonize Hussein in while en route to Washington, she turned on the any way possible. television in her hotel suite and learned that Iraq had invaded Kuwait. In that instant, Glaspie, the U.S. ambassador to Iraq since 1987 realized that long years of U.S. efforts to modify Saddam Hussein’s behavior through trade and other in¬ ducements—in which she played a major role— had gone up in smoke. Ever since, she has been the object of a torrent of questions to which the answers never seem quite satisfactory. Was she tough enough when she met with Saddam a week before the invasion? Why was she unable to foresee what Saddam had in mind for Kuwait? Was the State Department □ THED willing to have her play the scapegoat for a failed policy? Or, in a strangely convoluted way, was the State Department trying to protect her? The truth probably will never be known. For example, only Hussein himself knows whether his decision to invade Kuwait had been made irrevo¬ cably before his July 25 meeting with Glaspie, the GLASPIE one in which she told him the United States has no opinion about his border dispute with Kuwait. Many believe that Hussein was so contemptuous of Western will that he would have invaded Kuwait even if Glaspie had warned that the United States would respond militarily—something she was not authorized to do. AFFAIR As for her inability to predict the invasion, Glaspie’s defense is simple: no one else did either, BY GEORGE GEDDA not the Kuwaitis or the Saudis or Western experts on the region. She is almost right. Her assertion a month after the invasion that no one foresaw it does not Inevitably, the administration’s silence seemed to take into account CIA and Pentagon estimates days signal that Secretary of State Baker was content to let before the invasion that an attack was highly likely, based Glaspie be the lightning rod for the administration’s failed on evidence of preparations for an offensive. But those policy in Iraq. His complimentary words about Glaspie warnings were ignored by the White House and the State seemed tame (“a fine public servant”). He derided as Department, which generally felt that Hussein was using “ludicrous” the notion that the United States somehow scare tactics. invited Saddam to invade Kuwait. But there was a more pertinent question: Had the administration done enough Twisting in the wind beforehand to prevent the invasion? On that point, Baker One of the more compelling aspects of the Glaspie has had little to say. (At least one columnist, Michael saga is the way in which she was treated by the State Kinsley, said Baker obviously was asleep at the switch Department, particularly in the months after the Iraqis during that late July period and should have resigned, released a partial transcript last September of her July 25 much as British Foreign Secretary Lord Carrington did at meeting with Saddam. the time of the Falklands crisis nine years ago.) The Iraqi transcript was indeed damaging. It portrayed All the while, during the post-invasion period, Glaspie Glaspie as treating Hussein deferentially almost to the was being a good soldier, working on Persian Gulf affairs jaY 1991 • FOREIGN SERVICE JOURNAL • 25 out of the State Department, discouraging friends from Saddam had assured her on July 25 that he would not use speaking out on her behalf, and saying nothing publicly force against Kuwait and that the Iraqi leader engaged in about the slings she endured from critics for supposedly a “deliberate deception on a major scale” when he having been too cozy with Saddam. Sen. Patrick Leahy invaded anyway. (D-VT), said Glaspie, on instructions from the State U.S. policy failed, she said, not because it was ill- Department, “virtually gave a green light to Saddam conceived but because “we foolishly did not realize that Hussein” for the invasion. he (Saddam) was stupid, that he did not believe our dear William Quandt, a Middle East expert who worked in and repeated warnings that we would support our vital the National Security Council for President Carter, said interests.” Instead of leading Saddam into believing the Glaspie was getting a “bad rap.” The administration, he United States would acquiesce in an invasion of Kuwait, said, was inclined “to let someone take the blame for this she said she repeatedly urged that the dispute be settled and no one came to her defense. I can’t say why. I would peacefully. have expected the State Department to say the transcript The testimony revived once again the question of why was inaccurate.” the administration had steadfastly refused to disavow the The State Department explanation was that it wanted Iraqi transcript six months earlier. During the State to avoid a “sideshow” last fall at a time when President Department noon briefing the day after Glaspie’s testi¬ Bush and Baker were trying to build tire coalition against mony, there seemed to be a consensus among reporters Iraq. The explanation did not have the ring of authentic¬ that the administration’s treatment of Glaspie had been ity, however, to those who wondered how coalition shameful. building would have been impaired if the administration The briefing elicited an admission from deputy had simply pointed out that the transcript was selective spokesman Richard Boucher, for the first time, that the and misleading. Iraqi transcript was misleading—although Boucher’s choice Baker reinforced the Glaspie-as-scapegoat theory of words far much weaker than Glaspie’s tire when he suggested that her comments to day before. Boucher said the transcript Saddam were not the result of his in was “heavily edited to the point of struction. At one point Baker said, inaccuracy.” “What you want me to do is say that Tom Friedman of the New those instructions (to Glaspie) were York Times was jrerhaps the sent specifically by me on my spe¬ most vocal of the reporters. cific orders. There are probably “Had anyone during the 312,000 or so cables that go out last seven months, under my name.” In fact, Glaspie had no new instructions for her meeting with Saddam and simply reaffirmed long-standing policy. Glaspie strikes back Within three weeks following the ceasefire, Glaspie broke her long silence, testifying before Senate and House Foreign Affairs panels on con¬ secutive days. The department had ig¬ nored previous requests for her test! mony. The Democrats were hopping mad about Republican attempts to take partisan advantage of the January vote in Congress on giving Bush authority to go ahead with the war. The more partisan among the Republican faithful pilloried Demo¬ crats who voted against Bush. Many Democrats felt that it was fair for them to ask how the administration had led the country into war in the first place. But Glaspie’s aggressive performance before the Senate Foreign Relations Committee on March 20 appeared to disarm most panel members. She said APRIL C. GLASPIE. Former U.S. Ambassador to Iraq 26 • FOREIGN SERVICE JOURNAL • JULY 1991 from this podium or any other government official, Hussein mixed signals at best. simply said, ‘That transcript is a fabrication,’ there would “It is a record that confused me, it confused this have been no story here. Why did no one say that?” subcommittee, it confused much of the Washington Boucher: “I’m not sure I can agree with you that there press, and it is not unreasonable for me to think it might would have been no story here. During the period in confuse Saddam Hussein as well,” Hamilton said. question, forming the coalition, prosecuting the war, we Glaspie responded that she warned Hussein that the said repeatedly we weren’t interested in starting a United States was prepared to defend its vital interests in sideshow, starting a side debate, on who took better the Gulf. ‘He knew perfectly well what we were talking notes of the meeting.” about,” she said. “Saddam Hussein, who is a man who When Boucher insisted that the administration had lives by the sword, believed that we were going to do it made “clear” its position on the July 25 meeting all along, by the sword.” Bill Plante of CBS demurred. “There was no vigorous effort on the part of the department to correct the record,” Assigning blame Plante said. “ There was no campaign out there to clear Questions about her meeting with Saddam could be put this record for the sake of the policy, the department, or to rest if the State Department released its files on the meeting. the ambassador.” Public Citizen, a group founded by Ralph Nader, filed a law Departmental chivalry? The following day, an entirely suit in April seeking the release of the files. new explanation about the administration’s handling of Attorney Alan B. Morrison said it was important to the issue appeared in the New York Times. Friedman, a determine “the extent that Saddam Hussein felt free to go contributor to the sharp questioning of Boucher the day into Kuwait.” The public, he said, needs to know “who’s before, wrote that a senior administration official had told him, responsible for the invasion and the war that followed.” “If you read her cable, you would not say that the entire Iraqi Glaspie has said that making such cables public would cable was phony baloney. Since her cable was not 250 set a bad precedent and have a chilling effect on future degrees different from the Iraqi transcript, no one felt entirely conversations between ambassadors and heads of state. comfortable in going out and saying it was false.” The answer to Morrison’s question about responsibil¬ According to this account then, the administration was ity for the invasion is easy. Hussein was responsible. actually protecting Glaspie by saying as little as possible Beyond that, things get murkier. If Glaspie was indeed about the transcript. On the other hand, if she was not too deferential toward Saddam in that July 25 encounter, forceful enough with Hussein, why didn’t the department she was simply perpetuating a mistake dating back to the have her immediately deliver a new message to the Iraqis early Reagan years, when Hussein was first seen as the reflecting how strongly the administration felt about the best hope for neutralizing the Iranians. On that basis, the need for a peaceful settlement with Kuwait? State Department should have done more to defend her There was perhaps another administration concern. once the Iraqi transcript was released. There could be What would have happened if the State Department nothing wrong with a statement saying, “She was not sought last September to discredit the Iraqi version of the misguided, the policy was. We misread Saddam.” And for Saddam/Glaspie meeting, only to have the Iraqis re¬ Baker to imply that she was acting without his instruction spond by disclosing the full transcript? Would this have in the meeting with Hussein looks like buck-passing. touched off a full-scale debate about how Glaspie might Richard W. Murphy, a former assistant secretary of have handled her conversation with Saddam differently State, says he hopes that the turn of events in Iraq will not or about how the administration might have acted be held against her. “April inherited an effort of years’ differently in the crucial pre-August 2 period? Viewed in standing to try to help mold a more sensible Iraq,” said those tenns, the administration’s decision to remain silent Murphy. “She didn’t invent the policy.” about the Iraqi transcript seems plausible. The entire episode has caused uncertainty about her Shortly after Boucher finished his briefing, Glaspie future in the Foreign Service, which before Baghdad was back on Capitol Hill, this time before a House included stints in Amman, Kuwait, Stockholm, Beirut, Foreign Affairs subcommittee. She was treated far less Cairo, London, and New York, in addition to Washing¬ gently than the day before. Some committee members ton. It still is not clear whether her superiors on the rejected the notion that the administration had made clear seventh floor believe she mishandled her dealings with its concern about the Gulf situation last July. They Saddam. With no offer of a new ambassadorship, Glaspie, pointed out that six days after Glaspie’s meeting with 49, has decided to take off for a year to teach as a Hussein, Assistant Secretary of State for Near East and diplomat-in-residence. She will resume her diplomatic South Asian Affairs John Kelly had testified that the career afterward. United States had no defense pact with Kuwait, perhaps leaving the impression among some, including Hussein, George Gedda, a correspondent with the Associated that he was free to do as he pleased. The invasion Press in Washington, is a frequent contributor to occurred two days later. Subcommittee Chairman Lee National Public Radio and the Associated Press Ra¬ Hamilton (D-IN) believed the administration had given dio Network. JULY 1991 • FOREIGN SERVICE JOURNAL • 27 ON THE NIGHT OF IRAQ'S INVASION OF KUWAIT, As the days rolled on and Hussein toyed with the immediate military retaliation was not possible. Instead, West, Kuwait’s rape became more apparent and the it was decided to impose strong sanctions. The imple¬ possibility of war increasingly real. How could it be mentation of these sanctions highlighted tremendously otherwise, when tanks were blowing up banks, children effective inter-agency and multilateral diplomacy that were tossed out of hospitals, and innocent civilians were was perhaps unparalleled before the Gulf crisis. The summarily executed and tortured? That war would come complexity of the issues also demonstrated the con¬ before March was hardly in question because of weather structive use of expert committees as an effective tool considerations and the soon-to-begin Islamic holy days; for crisis management. in the meantime, every diplomatic effort was made to Between 10 p.m. and midnight on August 3, 1990, bring Saddam Hussein to his senses. These efforts included the president’s use of a series of binding UN Security Council resolutions, coupled with an unequivocal threat of force. The president’s legal authority to interfere Mechanics of Diplomacy with trade in an emergency is invested in the International Emergency Economic Powers Act, or IEEPA. In essence, all U.S. trade with Iraq and Kuwait ceased, except as allowed by Treasury Department license. General licenses allow cer¬ tain classes of transactions to take place, such as the donation of medicine. Specific licenses are used for individual transactions. I was involved in two different aspects of the THE ABCS program. As a sanctions expert, I sat on the “inter¬ agency committee” chaired by the Economic Bureau. This body was established early on by Under Secretary Robert Kimmitt as the principal organ for developing and coordinating our sanc¬ tions policy. It still exists and is made up of OF representatives from Treasury, Defense, Com¬ □ merce, Agriculture, and any other agency or State Department bureau that might have a relevant role. This forum decides what kind of license ought to be granted and how U.S. and interna¬ tional sanctions should be enforced. On a weekly basis, or more often as needed, all of the commit¬ SANCTIONS tee members discuss the problems they face and their suggestions for solutions. This enables those BY LARRY BOEDER JR. charged with implementing sanctions to coordi¬ nate with counterparts in other departments and agencies. This inter-agency committee of experts Deputy Assistant Secretary of State Christopher G. and policy-makers who could make quick decisions Hankin, the deputy secretary of the Treasury, the about sanctions was highly effective in managing fast- director of the Office of Foreign Assets Control, the moving events, first with the war effort and now with president’s Chief Counsel G. Boyden Gray, and I the Kurdish rescue operation. gathered with others in the White House situation room I was charged with coordinating determinations on to hammer out the first two presidential executive possible sanctions violations where maritime interdiction orders of the war, a cut-off of trade with Iraq and took place, and in that capacity worked with experts occupied Kuwait and a freezing of Iraqi and Kuwaiti from Maritime Affairs, the Office of the Legal Adviser, government assets. These were followed a few days and Near Eastern and South Asian Affairs to halt all later by two more orders essentially implementing UN cargo other than medicine headed for Iraq, principally Security Council actions. In part, the intent was to via the coalition naval forces. This involved coordinating punish Iraq, but the measures were also designed to decisions from long distance. A naval vessel can easily protect Kuwaiti government assets from being plun¬ prevent civilian ships from going from point A to point dered. This was important, because the war was less an B, but monitoring trade into Iraq via Jordan was more effort to redress a boundary dispute than it was an old- difficult. Press reports made it clear that some cargo fashioned raid by 20th-century vandals. entering Aqaba was making it to Iraq, but how to stop 28 • FOREIGN SERVICE JOURNAL • JULY 1991 contraband without hindering legitimate trade? Two sanctions administration and military objectives, I would problems quickly emerged. place a representative of the expeditionaiy force on the One issue was documentation. Because shipping inter-agency sanctions committee and any specialized requirements vary from country to country, it wasn’t committees, such as a maritime committee, and then immediately clear what we should require to discern clear instruction cables with the committee. Once cleared, what was legitimate cargo. Initial requirements asked they become the mle, unless operational events dictate for documentation not normally used by many civilian otherwise. There would be no second implementation carriers, and so some ships were turned back that cables, no second guessing. This would ensure clarity of probably didn’t really pose a threat to peace, in some cases carrying nothing more than chickens and sheep for domestic Jordanian consumption. The issue was eventually resolved through a tortuous dialogue among the Gulf forces, State, the Pentagon, and maritime experts outside the government. In essence, each party blended its policy and security objectives with what experts said was legal or possible. Differences were then ironed out in the “inter-agency committee.” The committee was savvy enough not to interfere in naval operations beyond the narrow band of the mandate. The other problem was “inaccessible cargo.” Sheep and chickens are accessible enough, but not so con¬ tainer vessels and lash ships. For reasons of economics, safety, and weight distribution, containers are often placed so as to make it impossible to inspect a vessel at sea and be certain that contraband is not on board. Thus, some ships had to turn around until they could be inspected at a friendly port or their cargo could be shifted. This caused enormous shipping delays and demurrage costs to the carriers, and when coupled with delays caused by documentation problems and the fact that the Gulf was halfway around the world and numerous time zones away, the port of Aqaba was nearly closed down, and with it, thejordanian economy. We are still working on ways to resolve this issue, basically seeking a balance between a carrier’s need to conduct legitimate business and our need to keep the clamps on shipments of contraband to Iraq. No one model works here, so we often have to work the issue ship by ship. Some of the ship problems resulted from a determi¬ nation to “let the generals fight the war.” Even after we cleared statements of policy with Defense Department instructions and input from all interested parties. staff for distribution to the Gulf and the world, the A committee process may frighten field commanders, Department of Defense had to send its own cable who remember a time when they were restrained from “requesting” the Gulf to implement our cable. Part of hitting a hot target without permission from Washington. the Defense cable would contain operational sugges¬ But a fast-track committee of experts and affected parties tions on implementation that might unintentionally would ensure that operational needs, as seen by the diminish the original message. While this was innocent commander and by Washington, are properly handled. and disputes often reflected legitimate Gulf concerns, And let it be clear, the committee isn’t designed to tell the a better clearance and message dissemination process field whom to attack. Rather, it should be seen, at least was needed. We would have benefited from a maritime in the naval context, as a committee of experts who are committee set up in advance of hostilities and made up assisting the sanctions process and, in the larger context, of representatives from the Gulf, Washington agencies, as a committee of decision-makers who can quickly and industry. This would have handled discussion with design policy goals and solutions. ■ field commanders without hindering operational effec¬ tiveness. Larry Roeder Jr. is an international commodities In any future conflict involving the interplay of economist in the State Office of East-West Trade. JULY 1991 • FOREIGN SERVICE JOURNAL • 29 DEVELOPMENTS IN THE SOVIET UNION AND Ku¬ As had been the case during the Vietnam war in the wait were closely connected in Soviet public perception late 1960s and early 1970s, Soviet liberals wished only from the very beginning of the Gulf crisis. The Soviet the best for the Allied forces in the Gulf and only the people associated the Gulf crisis with the conservative worst for their enemies—in this case, the total defeat of offensive in their country, particularly the bloody devel¬ Saddam Hussein. Liberals identified strongly with the opments in the Baltic republics. Iraq’s invasion of Kuwait United States and firmly believed that the success or triggered vivid memories of the Soviet invasion of the failure of the Allies would radically influence their own Baltic republics in 1940, while Muscovites also discussed fate. In fact, some liberals went so far as to equate an parallels with the Soviet invasion of Hungary in October Allied victory with the defeat of the Soviet conservatives, 1956, which occurred after the beginning of the war with and vice versa. At the same time, the conservative camp, which often shares the anti-American views and emotions of many in the Third World, consid¬ ered Saddam Hussein a symbol of their challenge Rise of the Russophiles to the United States, to Western liberalism, to the triumph of democratic values in recent years, and to Israel and all Jews. Assailing the 'new thinking' (, Gorbachev’s enemies remained almost totally Tin: ;ULF WAR silent a year ago, as the world watched changes of vital importance to the Soviet Union: the collapse of the Soviet outer empire in Eastern Europe and the unification of Germany. Con¬ servative politicians and Russophile ideologues & TH1 SOVIET were extremely restrained in their statements on foreign affairs, and the Soviet people, who were absorbed with their deteriorating lives, almost totally ignored international events, in¬ COM ERVATIVE cluding the disarmament talks. According to The Bulletin of the Center of Public Opinion Studies in 1990,60 percent of the Soviet people welcomed German unification, whereas only 25 percent expressed any concern about it. □ 1 UDE □ For their part, the Soviet mass media and the Soviet parliament endorsed almost unanimously the actions taken by the Kremlin in 1989 and BY VLADIMIR SHLAPENTOKH 1990, including measures that radically changed the political map of Europe. Those changes destroyed the external part of the Soviet em¬ Egypt. According to the dominant theory in Moscow, pire—its buffer zone against the West—that had been Soviet domestic developments were possible only be¬ regarded for decades by the Soviet people as a major cause the Kremlin assumed that the Allied countries, and reward for their suffering during the war with Nazi especially the United States, were so involved in the Gulf Germany. crisis and so appreciative of Soviet support that they The shift came in the fall of 1990, when the conser¬ would not seriously protest any shift to the right in Soviet vative alliance—Russophiles, Stalinists in the party domestic affairs. apparatus, and the military industrial complex—aban¬ For the Soviet national republics fighting for indepen¬ doned their reticence on foreign policy issues. Official dence, and especially for the Baltic republics, the inva¬ Soviet policy in the Gulf turned out to be the first issue sion of Kuwait symbolized the brutal treatment of a small used by the conservatives in their assault against “the country by a mthless dictator. Comparisons between new thinking” in Soviet foreign policy. Gorbachev and Saddam Hussein played a central role in meetings held in January and Febmary directed against Go, Saddam Gorbachev and in support of Yeltsin. Moreover, attitudes The conservative’s campaign against official Soviet toward Saddam Hussein and the Gulf War joined atti¬ policy in the Gulf developed very slowly. The attack tudes toward events in Lithuania as a sort of litmus test was started by two colonels—Viktor Alksnis and Nikolai for public sentiment on domestic Soviet political affairs. Petrushenko—who were the main mouthpieces of the 30 • FOREIGN SERVICE JOURNAL • IULY 1991 conservative alliance in the Soviet parliament. They tion with their lives reached a peak in the fall of 1990, were then supported by a growing number of those in when a significant portion of the population—up to the alliance. By early 1991 the campaign was in full two-thirds—believed that the future would bring only swing. With the beginning of war on January 16, further gloomy developments, including mass starva¬ criticism of Soviet diplomatic support for the military tion, the collapse of the Soviet state, mass strikes, and campaign against Saddam Hussein increased dramati¬ violent ethnic conflicts. It was especially fortuitous for cally. the conservatives that the prestige accorded democratic The conservative press (including SovietskaiaRossia, institutions and their leaders also began to deteriorate Krasnaia Zvezda, Literatumaia Rossia, and, to some during this period. Moreover, the conservative cause degree, Pravda) began publishing materials directly or was supported by the belief by almost 25 percent of the indirectly denouncing Moscow’s policy toward the population that the army could save the country. Middle East and enhancing the Iraqi dictator’s image. In mapping out its strategies, the conservative alli¬ Several meetings and demonstrations were organized ance saw its task as the discrediting of all four of by the conservative forces, not only in Moscow and perestroika goals—privatization and marketization of Leningrad but also in other cities, such as Kiev. the economy, democratization and glasnost, the re¬ The conservative Soviet press dramatized the war as structuring of the Soviet empire, and “the new thinking” much as possible, suggesting that, because Soviet in foreign policy (which included partially dismantling borders were not far from Iraq, the war posed a danger the military-industrial complex). This discrediting would to the southern Soviet Union. Soviet conservatives also be followed by the cessation of all movement toward expressed outrage about Iraqi civilian casualties and these goals, and then a gradual return to pre-Gorbachev about the country’s destruction. The oil spill in the Gulf, conditions in these areas. too, permitted the conservative press to describe the The sudden rejection in October of the “500-day war as leading to worldwide ecological disaster. More plan” dealt a serious blow to economic reform and often, however, conservatives emphasized that the war provided the first sign of the conservatives’ ascension. against Hussein could easily evolve into worldwide Subsequent targets included glasnost (the conserva¬ nuclear war. Finally, the conservatives tried to exploit tives’ seizure of Soviet TV) and the idea of renewing the the anti-war demonstrations in Western coutries, pre¬ Soviet Union by sheer force (the bloody events in senting them as very popular and influential. January in the Baltic republics). The conservative Typically, however, the Soviet people did not take alliance then turned its attention to Soviet foreign policy the nuclear threat fomented by conservatives very in an attack that was central for the conservatives— seriously. Through the end of 1990, the Soviet people including the Russophiles, the Stalinists, and the heads continued to consider the international situation in of the military. general as calm and unmenacing, much as they had since 1986. This nonchalant stance contrasted sharply Russophilia and anti-Semitism with their attitudes toward domestic developments, The Russophiles were the first to speak out in which most believed to threaten civil war, bloody inter¬ defense of Saddam Hussein and to criticize the official ethnic conflicts, and a military coup. policy in the Middle East. The Russophiles accepted In his now-famous December 20 resignation speech, practically every element of Hussein’s explanation for Eduard Shevardnadze was the first to reveal the conser¬ the Gulf crisis, from its having been designed by Israel vative offensive against official foreign policy and, and the Zionists to Hussein’s posture as the defender of particularly, against the Kremlin’s position in the Gulf. the Palestinians. At Soviet demonstrations for Hussein, His speech amazed not only the public but the Congress posters supporting the dictator were usually combined of People’s Deputies as well, because there had seemed with those featuring anti-Semitic and anti-Israeli slogans. to be no significant opposition to this policy, and the There is no doubt that these demonstrations reflected Congress’s overwhelming confirmation of the policy the mood of a significant number of Russians and had implied its endorsement. Muslims. Anti-Semitism was clearly not the only Russophile Attacking perestroika motive for condemning Kremlin support of the Allied Purely by coincidence, the Gulf crisis erupted soon forces, however. The Russophiles also agreed with the after the conservative alliance had begun its first military that client states are vital to the security of the serious, overt, and well-coordinated offensive against Russian state. Unlike their partners in the alliance, perestroika as a whole—a move that marked the end of however, they coupled this geopolitical consideration a long tradition of underground efforts intended to with their specific vision of the West as a decaying undermine perestroika. The leaders of the conservative civilization whose friendship is ultimately far less alliance dropped their facade of support for perestroika important than are good relations with the Third World. in late 1990 and openly declared war on it. They Of course, the Russophiles, with their self-righ¬ believed that the people’s disappointment and frustra¬ teousness and their contempt for bourgeois morals, JULY 1991 • FOREIGN SERVICE JOURNAL • 31 were among the first to ascribe Allied actions in the Gulf The military agenda to purely material interests (such as oil) and to reject The military-industrial complex viewed the Gulf any other argument for the necessity of stopping Iraq’s crisis as a means of meeting several of its own needs, aggression in the Middle East. Still, given the Russophiles’ including avenging the humiliation of the army and the rather limited role in Soviet political life, their invectives military industry during the last five years and reversing against the Kremlin’s foreign policy seemed rather thin the course toward disannament and cooperation with before they were joined by members of the party the West. There was likely no group as strongly apparatus and by other conservatives, such as the opposed to perestroika as were the Soviet generals, Stalinists. who, as party apparatchiks and managers, could not The Stalinists’ attack on the official foreign policy find niches through privatization. was just one part of a larger attack on perestroika. The army and the military industry—truly the most Gorbachev’s foreign policy, which was brilliantly substantial achievements of the Soviet system—had implemented by his first foreign minister, was still been presented from 1985 to 1990 as parasites respon¬ highly regarded in late 1990 by most of the people (two- sible for the hardships and sufferings of Soviet people, thirds of the population actively supported Soviet and as institutions which should be all but eliminated foreign policy as an achievement of perestroika). Thus, because of the lack of any serious threat to the Soviet a convincing attack on Gorbachev’s foreign policy Union. Army generals and the directors of the military would eliminate perhaps the last vestige of his prestige industry were especially outraged by a suggestion that in the country. gained popularity in 1991, at the height of the economic The international dimension of the conservatives’ crisis that the Soviet Union’s market economy would strategy was equally significant. Forcing Gorbachev to have no future until the military-industrial complex was change his course and be less cooperative with, or dismantled. perhaps even moderately aggressive toward, the West The military-industrial complex’s opposition to the would have tarnished Gorbachev’s reputation in the Kremlin’s policy had other roots as well. The emer¬ West, which, in turn, would have further weakened his gence of a network of client states across the world had position inside the USSR. always been regarded by the military as a major 32 • FOREIGN SERVICE JOURNAL • JULY 1991 accomplishment and as a pillar for Soviet military and were astonished and enraged by the course of the war. political status in the world. The armies and security The war confirmed what everyone in the Soviet Union police of these states had been nurtured by the Soviets had suspected—the United States has become the for decades, and the states acted as the major customers world’s single military superpower, and the Soviet of the Soviet military industry. Union will have to be satisfied with a very moderate The leaders of the military-industrial complex were position in international politics. frustrated by the ease with which Gorbachev’s regime, In many ways, the Gulf War was an exhibition of in an attempt to please the West, abandoned Soviet American military technology and its clear superiority allies such as Angola, Mozambique, Ethiopia, Cuba, over Soviet technology. Of course, the Soviet military and several others, thereby squandering political and was loath to publicly recognize this, although it did so military capital accumulated through decades of Soviet indirectly through the mass media. Soviet military support. In the eyes of the leaders, the betrayal of Iraq authors took great pains to explain to the Soviet public was yet another blow to the Soviet Union’s long-term that Iraqi weapons were ineffective either because they interests as a superpower and an insult to those who were made in other countries, or, if they were Soviet- devotedly forged weapons for the motherland. made (e.g., the Scud), because they were used improp¬ The Party and state apparatuses clearly shared these erly or were obsolete. concerns regarding both Soviet allies in the Third World To those interested in military reform, particularly and increasing American supremacy and influence. the liberals, the war also demonstrated the superiority The apparatchiks, with their total control in the Soviet of a professional army over an army based on coercive parliament and partial control in the Russian parlia¬ recruitment—a system that Soviet generals have pas¬ ment, easily passed resolutions that both denounced sionately defended. Soviet generals, despite their re¬ the war against Iraq and carried thinly veiled anti- spect for American military technology, strongly believed American sentiment. that American soldiers who chose the army purely out The military-industrial complex’s sympathy for Iraq of material considerations were weak and would not and its dictator is also related, although perhaps second¬ withstand seasoned soldiers like those of Iraq or the arily, to the Soviet economy and job market. Iraq, along Soviet Union. with the other Soviet client states in the Third World, had The Gulf War also gave the Americans an opportu¬ long provided a coveted job market where Soviet profes¬ nity to test their new weapons, thereby widening the sionals, both military and civilian, could earn hard gap between the United States and the Soviet Union. currency, which is highly valued in terms of both wealth This alone has angered those Soviet generals and and prestige. The refusal of hundreds of Soviet specialists military contractors who believe that a military con¬ to leave Iraq despite the evident threat of a devastating frontation with the United States is inevitable. Minister war underscores the value placed on working in coun¬ of Defense Dmitri Yazov wasted no time in exploiting tries belonging to the Soviet zone of influence. America’s success, demanding increases in expenditures Finally, reactions to the Gulf War policy suggested a for the creation of new weapons. Soviet generals see broad concern for geopolitical gains. For some people, the Gulf War as a powerful argument for radical the war in the Gulf was ultimately a war for oil: the Soviet increases in funding for new research. By all accounts, collusion with America meant conceding to an American they will achieve their goal, especially considering the monopoly over a strategic resource. This concession was atmosphere in the country in early 1991. seen as particularly dangerous, since Soviet oil produc¬ The Soviet military understood full well that they tion is declining rapidly, and Soviet dependence on were watching weapons in the Gulf that had been imported oil will soon be as great as that of America. From designed to vanquish Russians, not Iraqis. They also this perspective, the short-term benefits to be gained understood that they may not have the resources to from cooperating with the West are far outweighed by counter such weapons. any damage done to the Soviet position in the region. Given all of these circumstances, to side with the What price, cooperation? Americans and the Allies in the Gulf war seemed to the Soviet domestic reaction to the Gulf crisis revealed Soviet generals and military contractors to be strongly a conservative alliance deeply hostile to the foreign unpatriotic, amoral, and masochistic. The Kremlin’s policy carried out by Gorbachev and Shevardnadze. In position in the Gulf conflict was simply one more link the opinion of the alliance, this policy accounts for two in a chain of the events that suggested that military major failures—the disintegration of the Russian state efforts in the past decades—to be equal with the and empire, and the loss of the USSR’s status as a Americans and to guarantee Russia a leading role in the superpower. world—were meaningless and in vain. The alliance is aware that in 1991, and probably for years to come, the Soviet Union will be unable to Technological surprises restore its previous role in the world or to confront the The leaders of the Soviet military-industrial complex United States if it becomes necessary to protect vital JULY 1991 • FOREIGN SERVICE JOURNAL • 33 Soviet interests. As such, the conservatives have argued foreign scientific centers and foreign heads.” that Soviet foreign policy should, at the very least, avoid assisting the United States in the Middle East, The struggle within Africa, Latin America, and Asia, and should work to An analysis of the political struggle regarding Soviet maintain good relations with current Soviet allies. For policy in the Gulf suggests that domestic developments the conservatives, the Soviet position in the Gulf crisis late in 1990 entered a phase in which foreign policy was a textbook example of incorrect policy, and the issues became inextricably entwined with the ongoing, American triumph was a bitter blow to the vital interests intense, internal political struggle. As has happened of the Soviet Union. previously in Russian history, competing factions looked During the upcoming period of recuperating from to foreign affairs as a means by which to preserve or to the disasters of perestroika, the seize power, while ignoring conservative alliance has argued other concerns of the coun¬ that the Soviet Union should try, including of those of a maintain as much distance as The argument against West¬ geopolitical character. The Gulf crisis has revealed possible from the West and ern economic assistance can should move toward a tempo¬ that the Soviet Union is still far rary political, military, cultural, be reduced to the following from being a reliable interna¬ and even economic, isolation¬ tional relations partner for the ism. According to the conserva¬ proposition, which seems to West. As of March 1991, the tives, establishing such a dis¬ heady days of “the new think¬ tance is particularly important have been accepted by all ing” are over, and the West because the West’s policies re¬ faces a countiy in which the main “class”-oriented. When members of the conservative ruling elite views the external working to restore order, the world with increasing suspi¬ Soviet authorities should be able alliance: Western economic cion and hostility. Those in the West who to make political decisions assistance should never be so without the fear of losing eco¬ try to predict the foreign nomic assistance from the West important that it can be policies of a country in a hanging over them like a position like that of the So¬ Damoclean sword. To substan¬ used to justify even the viet Union should look for tiate their proposed rethinking clues not in the realm of of Western economic assistance, slightest adjustment in geopolitical factors or in the the conservatives elaborated a ambitions of the ruling special ideology, the premise of internal political develop¬ elite—which are reasonable which was captured by the if the country is relatively headline of an article in Pravda ments. stable—but rather in the iron on January 29: “There is No logic of the internal struggle Free Lunch.” for power, which leads the The argument against West¬ combatants to sacrifice any¬ ern economic assistance’s becoming a major factor in thing for success, including the vital interests of the Soviet economic progress can be reduced to the country. following proposition, which seems to have been The Gulf War also revealed that the ambitions of a accepted by all members of the conservative alliance: great country such as Russia, with her once active and Western economic assistance should never be so aggressive role in world politics, can be suppressed important that it can be used to justify even the only briefly, as they are now. Although temporarily slightest adjustment in internal political developments. defeated both morally and economically, Russia, with The December 1990 statement by KGB Chairman her strong military traditions, is anxiously awaiting the Kriuchkov regarding the subversive intent of Western hour when she can restore her leading role in the states in sending food to the Soviet people, and the world. Whether the attempt will be successful is February statement of Prime Minister Valentin Pavlov another question. ■ regarding a plot by Western banks against the Soviet economy, both reveal the conservatives’ attitudes to¬ Vladimir Shlapentokh, a professor of sociology at ward economic cooperation with the West. Michigan State University, conducted the Soviet Late in February, Gorbachev himself joined the Union’s first public-opinion polls, during the xenophobic campaign when he suggested that the Brezhnev era. His most recent book is Soviet Intel¬ intentions of the democrats (his opponents) were lectuals and Political Power (Princeton University simply a “cover for far-reaching intentions born in Press, 1990). 34 • FOREIGN SERVICE JOURNAL • JULY 1991 TOUR FREE GOVERNMENT COVERAGE COULD LEAVE TOU OVERSEAS AND UNDERCOVERED. The last thing you need when you’re living far away is coverage that doesn’t go far enough. Jnfortunately, many people mistake the benefits provided by the U.S. Government Claims Act for Insurance coverage. And that can often lead to near-total disappointment. In fact, the Government encourages employees to buy private insurance. If you rely solely )n the Claims Act, you may not adequately protect personal articles like jewelry, furs, and fine arts. fou’U have no coverage if you’re not on government business. And, you’ll have no coverage for per¬ sonal liability. Fortunately, you can remedy these oversights before you go overseas. 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Don't go overseas undercovered. City State. The AFSA Plan is underwritten by Federal Insurance Company, one of the Chubb Group of Insurance Companies. L JOUKNAL BY ROBERT H. CARR Public Diplomacy in Reverse iA fghanistan 1968: The top of the United States Information Agency. Both built this edifice? Able to accommodate world, the second most Magic of these screen gems were vintage USIA, more than 300 film patrons, this cinema Kingdom, Adventureland one a U.S. travelogue entitled, “From deluxe featured two balconies and a J^vith real bullets. Dashing Sea to Shining Sea,” and the second a colossal screen. We were led at once to from the 12th to the 18th century with¬ locally produced ditty about raising the projection booth. Judging from the out a stop in between, the country sheep. Not Academy Award material, thickness of the dust, the last showing exemplified the clash of cultures that we thought, but perhaps welcome to was probably “Birth of a Nation.” Within comes with change—at least in Kabul. the culturally staived nomads of Pakhtia. a half hour, the entire building was full, Progress here included paved streets, standing room only. By what method of movies made in India, and the removal publicity the authorities had filled the of women’s veils. Women’s liberation theater, we never discovered, but a began suddenly when the queen made As a freshman diplomat newly more enthusiastic crowd one could not a public appearance without the tradi¬ arrived in Kabul, 1 soon tired have imagined. The showing went off without a hitch and we left with the tional head-to-toe chadri, producing a of the capital’s modem famil¬ cultural bombshell equivalent, in certain feeling that the city of Gardez American terms, to an appearance by iarity. Two colleagues and I had strengthened its understanding of the first lady in a bikini. were determined to be the first both American virtues and Afghan As a freshman diplomat newly ar¬ sheep. Cultural diplomacy was a suc¬ rived in Kabul, I soon tired of the Americans in recent memory cess. capital’s modern familiarity. Two col¬ to visit the province of leagues and I were determined to be the Off the Wall first Americans in recent memory to visit Pakhtia, the southeast comer Our next destination was the the province of Pakhtia, the southeast of the mountain kingdom, province’s second city, Khost, a quiet corner of the mountain kingdom, re¬ agricultural center. Located in a broad mote, fierce, and isolated. Arrangements remote, fierce, and isolated. valley covered with lime-green young were made and we set off on a spring¬ wheat punctuated by an occasional time Monday to show the flag. Our gang field of purple opium poppies, Khost of four consisted of myself and another Our first day brought us to the was a mud village of a few thousand junior officer, a senior colleague, and an province’s capital city of Gardez, travel¬ souls. Our greeting by the town’s Afghan student, Abdul, who spoke not ing over what almost passed for roads. officialdom, led by the sub-governor, only Dari, but Pushtu, the language of The governor and his entourage awaited once again followed local protocol— the province. us as we entered over the dusty, tree- tea drinking and small talk about pro¬ lined streets, and we were immediately vincial development, aid programs, and Setting Out led to the reception hall for tea. Follow¬ the like. Once again we were sent off to Our four-wheel-drive pickup was ing the usual pleasantries, we were visit the valley’s facilities and tourist loaded with supplies: water, gasoline, packed off on a tour of the province’s attractions. Once again we offered the tires, and tools for the inevitable repairs. facilities. As we left, we mentioned our governor and the citizenry a night at the Almost as an afterthought, we decided films. Films? Eyes lit up. Commands movies. to add a cultural element to our diplo¬ were uttered in Pushtu, and the Our offer was immediately accepted, macy in the wild and brought along a governor’s aide was quickly instructed even though, the governor noted, the projector and the only two films with to convey us to the town’s cinema. town had no theater. Since we needed Pushtu soundtracks ever made by the What long-forgotten aid program had only darkness, electricity, and a large 36 • FOREIGN SERVICE JOURNAL • JULY 1991 white wall, we were quickly booked for a tough crowd to please. The governor Excellency. They returned. “The gover¬ a one-night stand at Khost’s livestock and his entourage arrived. We set up nor says its our problem.” market. Arrangements made, we set out our equipment. So far, so good. We Back to fixing the projector. The on a tour of the valley’s agricultural sites. switched on our projector: “Phoop,” it thought of all those knives was strongly “Boom-bitty-boom. Boom-bitty- sputtered, a peculiar, muted noise that motivating. Each of us took a turn. boom.” The sound dogged us all after¬ could not be a good sign. Unnerved, but Abdul, who hadn’t even seen a projec¬ noon as we trooped from field to field undaunted, we tried to start the film tor until the previous day, began to looking at wheelbarrows and wheat. It rolling. No go. fiddle with everything on the control emanated from a young Afghan with a Sensing disaster ahead, we took turns panel and suddenly, miraculously, the goatskin drum and a scrap of paper with the stalled projector, each trying to projector sprang to life. Unfortunately, it from which he read aloud to a gathering recall everything we had learned as sprang backward. Abdul had hit the of fanners in each neighborhood he assistant class projectionist in the sixth reverse switch. passed. An inquiry into his business grade. Still no go. We took stock of our revealed that he was a walking adver¬ situation: We were surrounded by thou¬ Back to the Silents tisement for the American Embassy sands of knife-wielding farmer—war¬ Well, maybe backward was better Pushto Film Festival. At least we’d have riors who, having been invited to the than death. More investigation revealed a crowd. cultural event of a generation, did not that while the top takeup reel would look like they would leave unsatisfied. have to be wound by hand, the projec¬ “Phoop” If they couldn’t see the show they came tor would run in reverse. Could we pull Arriving at the market to set up our for, they would probably settle for knif¬ off a showing in reverse? What would makeshift cinema, we saw the crowd— ing the impudent arangi. the United States look like in reverse? thousands, literally thousands of robed, We sought assistance from author¬ What about the Pushto soundtrack? It plastic-sandaled, wool-hatted Pathans. ity—the sub-govemor. He would surely sounded the same in both directions to We had drawn every farmer in the explain this technical failure and send us, but Abdul assured us that reverse valley and all their nomad cousins. They his knife-wielding people home. Our Pushto would not do. A flip of the sound were all men, all fierce, and all armed, senior colleague and Abdul had a long switch and we were back in the silent a long knife in each belt. It looked like and animated conversation with His era. JULY 1991 • FOREIGN SERVICE JOURNAL • 37 Put Your Most Valuable Asset In Our Hands. 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JOURNAL AUTHORIZED EXPORTER GENERAL ELECTRIC The reels were rewound by hand to take revenge for cinematographic infi¬ set them up for a reverse showing, while delity? “Slain for Going Backward.” I we sent Abdul to the front of the crowd could see my name on the State Depart¬ to explain why we would have to show ment plaque, in the company of other GENERAL ELECTRONICS the film in reverse. “Tell them the elec¬ fallen colleagues, whose missions ended tricity here runs in reverse from the way in more noble, but no less tragic circum¬ INC. it does in Kabul, and, because of that, stances. we have to show the films backward.” Let it roll. Sunrise through the Golden □ REFRIGERATORS □ FREEZERS Maybe that would explain why the films Gate. No problem here. How many □ RANGES□ MICROWAVE OVENS □ AIR CONDITIONERS □ DRYERS Afghans could tell the Golden Gate □ WASHERS □ SMALL APPLIANCES from Verrazano Narrows? We were safe □ AUDIO EQUIPMENTS TELEVISION a while longer. Our audience sat in □ DISHWASHERS □ TRANSFORM¬ ERS □ COMPLETE CATALOG silence through some innocuously ri¬ (Please check box) diculous scenes of cars backing along Available for All Electric the Los Angeles freeway (not a bad Currents/Cycles idea, we thought) and aircraft perform¬ ing aeronautical impossibilities. Immediate Shipping/Mailing A Boy Scout pool party drew some From our Local Warehouse chuckles in Pushto as young boys swam around the bottom of a pool, then, We Can Also Furnish Replacement Parts for rapidly building up speed, sprang feet- Most Manufactures first from the water, writhed in the air, and landed, as if by magic, on a narrow SHOWROOM board perched above the pool. Expla¬ General Electronics, Inc. nation enough for America’s sweeping 4513 Wisconsin Avenue, N.W. Washington, D.C. 20016 victories at the Olympics. Tel. (202) 362-8300 FAX (202) 363-6538 Magic Wheat TWX 710-822-9450 Proceeding backwardly eastward, the GENELECINC WSH Arriving at the market to set up film reached America’s heartland. Here our makeshift cinema, we saw our audience saw something we thought the crowd—thousands, liter¬ they might understand. The camera ally thousands of robed, panned across a near desert, a dusty stalk-strewn field that stretched to the plastic-sandaled, wool-hatted horizon. Slowly, deliberately, from the Pathans. sunset came an assembly of huge ma¬ chines, each paired with a truck, side by side from screen left to screen right. They passed across this wasteland, lacked coherent story lines. It might leaving in their wake tall stands of fully even play to their cultural differentiation ripened wheat. The audience was abuzz. with the capital. Abdul delivered his Every Afghan farmer knows what wheat announcement about the backward is. Our backward game was surely up. cinema to a silent crowd, and we were Each of our viewers was undoubtedly ready to roll. bargaining with his neighbor for the I tried to recall as much of the pleasure of being the first to draw travelogue as I could from the previous blood. “What are they saying, Abdul?” CO CO day, trying to imagine how each scene “Now they know about America’s LU LU cr would play in reverse. Would these agricukural bounty. They are impressed, ” Q Afghans notice? After all, if you had Q reported Abdul. Amazing. The gover¬ < never ridden the Super Chief, how do nor was taking notes. I could see his you know where the observation car request to the USAID mission for wheat¬ belongs? If they did notice, would they making machines. This was intensive JULY 1991 • FOREIGN SERVICE JOURNAL • 39 JOURNAL agriculture in spades. Short and The final stop was in Pennsylvania at an industrial can-opening facility. Its Long Term ingenious process began with cans of food trucked from supermarket shelves Housing to factoiy. When the can-bearing trucks arrived at the can-opener plant (the s 00 truck drivers copying the reverse driv¬ Rates from 45. per day ing style of their LA cousins), eager The Capitol Hill offers premier class suites with: workmen caught the cartons and laid Maid Service them gently on conveyer belts where Fully Furnished Kitchens the cans were placed by a robot-like Complimentary Weekday Continental Breakfast and machine onto another conveyor. Then, Evening Cocktail in our Executive Salon a sinister apparatus peeled off the top Complimentary Parking and sucked out the contents, which Self Service Laundry were returned through a lengthy pro¬ Same Day Laundry and Valet Service cess to the very fields from whence they One block from Metro in the exclusive Captiol Hill sprouted. neighborgood. Please respond via Fax if necessary. The final minutes of the film took us Fax (202) 547-2608 to the Atlantic and sunset over Cape Toll Free (800) 424-9165 Phone (202) 543-6000 Cod. A blissful ending to a nerve-wrack¬ ing half hour. Polite applause rippled 200 C Street, S.E. across the crowd. Good so far, but the tfmA Washington, D.C. 20003 crowd knew we had two films. There was no getting out of showing the second. We readied the Afghan sheep¬ Ev Taylor, retired Department of raising classic, switched the projector to State Foreign Service Officer, is reverse, and let it roll. now with Money Concepts From a sunset somewhere in the International. This financial mountains of central Afghanistan, a planning organization offers a full range of financial products and herd of fat-tailed sheep came waddling. services including: They struggled backward down a bar¬ • Mutual Funds* ren valley accompanied by a handful of • Fimited Partnerships* robed shepherds in reverse. A loud • Stocks and Bonds* buzz erupted from the crowd. Neighbor • Variable Annuities* talked to neighbor. Laughter broke out • Hard Assets all over as our film patrons saw, for the • Fife Insurance first time that evening, a film scene they • Educational Seminars really could recognize. All around us We will provide you with a nomads were engaged in the Central personal, comprehensive financial Everard S. Taylor Asian version of down-home knee¬ plan that will match your slapping. Knives remained safely in investment objectives and risk For more information or an appointment: their scabbards. We breathed easier. tolerance level with specific Contact Ev: recommendations geared toward “What are they saying, Abdul?” 1523 King Street reaching those goals. He listened to a nearby group, then Alexandria, VA 22314 broke into a wide, partially toothy grin. Special attention given to: (703) 684-1277 They’re saying, “Oh, that’s what back¬ ✓Retirement Planning ward means.” ■ ✓Minimizing Tax Fiabilities ✓ Portfolio Diversification MONLYCONCEPTS ✓Balanced Capital Accumulation INTERNATIONAL FINANCIAL PLANNING NETWORK Robert Carr is currently on an ex¬ * Equity products marketed through International change assignment at Los Alamos Financial Services Capital Corp., member firm NASD. MONEY CONCEPTS FINANCIAL PLANNING CENTER National Laboratory inNew Mexico. 40 • FOREIGN SERVICE JOURNAL • JULY 1991 DIPLOMATS IN HISTORY: PRESIDENTIAL KIN Editor’s note: In response to our query in the March 1991 FSJ, Henry L Bisharat, a Foreign Service officer serving in Tunis, submitted these notes on presidents—andpresidentialfamily members—who have served over¬ seas. The source for this information is Burke’s Presidential Families of the United States second edition (1981). BY HENRY L. BISHARAT The FSJ’s Quiz and Letters column played an important role in U.S. have recently mentioned several presi¬ diplomatic missions overseas. Not dents who served overseas in diplo¬ only have five U.S. presidents matic postings: John Adams, Thomas held the position of minister to Jefferson, John Quincy Adams, James Great Britain (the Adamses, Buchanan, Herbert Hoover, George Monroe, Van Buren, and Bush, and William Henry Harrison (see Buchanan), but so too did two the FSJ, December 1990 “Quiz” and well-known presidential sons, March 1991 “Letters”). Charles Francis Adams (1861-68) In addition to these seven, two and Robert Todd Lincoln (1889- other presidents also held senior dip¬ 93). And one well-known presi¬ lomatic postings: James Monroe, min¬ dential father, Joseph Kennedy, ister to France (1794-96) and to Great served as ambassador in London Britain (1803-07), and Martin Van (1938-40). Buren, minister to Great Britain (1831- In addition, Joshua Johnson, 32). Furthermore, President William the first U.S. consul general in Howard Taft served overseas, though London (1785-1787), was the fa¬ not in a diplomatic capacity, as the first ther-in-law of John Quincy Adams. civilian governor-general of the Phil¬ The manlage of tlien-Minister to ippines (1901-1903) and as provisional Prussia Adams and Louisa Benjamin Harrison governor of occupied Cuba in 1906. Catherine Johnson in 1797 was Many presidential relatives have also probably the first to unite two American diplomatic families. mation. In addition, Benjamin Harrison Elsewhere in Europe, Vienna selected Thomas Jefferson Coolidge, has been a popular posting for Jefferson’s great-grandson, to be minis¬ presidential relatives. President ter to republican France (1892-93). Grant’s son, Frederick Dent Also serving in Vienna was Alphonso Grant, served as minister to Aus¬ Taft, father of President Taft. Alphonso tria-Hungary (1889-93) while was minister to Austria-Hungary (1882- Robert Todd Lincoln was minis¬ 84) and subsequently to Russia (1884- ter in London. Both were ap¬ 85) . Four generations later the Taft fam¬ pointed by President Benjamin ily continues to distinguish itself over¬ Harrison, himself the grandson seas in diplomatic missions. Presidential of a president, who obviously grandson William Howard Taft III was appreciated the diplomatic skills ambassador to Ireland (1953-57), and of presidential kin. These ap¬ presidential great-grandson William pointments catered to the sensi¬ Howard Taft IV, is currently serving in bilities of the 19th-century Euro¬ Bmssels as U.S. ambassador to NATO. pean monarchies and their em¬ The last presidential son to serve phasis on royal and aristocratic overseas as chief of mission was John origins, presidential kinship be¬ Eisenhower, ambassador to Belgium ing considered a close approxi- (1969-71). He was appointed by Richard JULY 1991 • FOREIGN SERVICE JOURNAL • 41 DIPLOMATS IN HISTORY: Nixon, whose daughter had married Eisenhower’s son in 1968. THE VIRGINIAN Moving from European postings to the Pacific, we find the only brother of a president—William McKinley—who served in a U.S. diplomatic mission OFFERS THE LOWEST Many presidential relatives have SHORTAND LONG TERM also played an important role in U.S. diplomatic missions over¬ RATES seas. Not only have five U.S. presidents held the position of minister to Great Britian (the GUARANTEED. Adamses, Monroe, Van Buren, you’d find at home, as well as some and Buchanan), but so too did you normally wouldn’t: • maid service • outdoor swimming two well-known presidential pool and sundeck • men’s and sons, Charles Francis Adams women’s sauna • fully furnished kitchens • individual heating and (1861-68) and Robert Todd air conditioning • assigned out¬ door parking • cable television Lincoln (1889-93)- with free HBO • maintenance services • coin-operated laundry Now you can lease hotel facilities on premises • same day overseas. David Allison McKinley, once convenience and residential laundry and valet service. posted as U.S. consul to Hawaii, gained comfort with a spacious apart¬ Located just a 10 minute the respect of the Hawaiians, who asked ment that costs a fraction of what walk from the Rosslyn Metro, him to become the Hawaiian consul you’d normally pay for a small The Virginian truly puts you general in San Francisco. He accepted hotel room. close to whatever your needs, and represented Hawaii as consul gen¬ The Virginian, overlooking business or pleasure. Rosslyn, Virginia, is a short or For information, just call eral there from 1885 until his death in long term apartment residence our Sales Department at 1892. In 1898, when President McKinley with most of the amenities (703) 522-9600. agreed to annex the Republic of Hawaii, the knowledge he had gained from his brother must have been a factor in his decision. Finally, in China, where George Bush headed a diplomatic mission, James Monroe’s grandson, Samuel L. Gouvemeur Jr., served briefly as U.S. consul at the exotic posting of Foo Chow (1859-61), now known as Fuzhou. Only one of the five presidential sons Hotel Convenience who headed overseas diplomatic mis¬ with Residential Comfort. sions did so during his father’s presi¬ dency: the very able future president John Quincy Adams, who was appointed 1500 Arlington Boulevard, Arlington, Virginia 22209 703-522-9600 U.S. minister to Berlin (1797-1801) by his father. ■ 42 • FOREIGN SERVICE JOURNAL • JULY 1991 THE ONLY CALL YOU BOOKS NEED TO The Gandhi Era with Pakistan, which produced Bangladesh. MAKE! This left her in stratospheric heights of popularity and self-confidence, and with INDIRA GANDHI: A PERSONAL AND one more score to settle with the United Short-Term Housing States, which she and Malhotra believe had POLITICAL BIOGRAPHY D.C. • Maryland • Virginia tilted shamelessly toward Pakistan. By Inder Malhotra, Northeastern Having praised her, he proceeds to • Southern California University Press, 1990, $29-95 chide her mercilessly for abusing this hardcover popularity by drawing ever more power to herself. Her behavior, which was as ExecuStay provides quality Reviewed by Lawrence J. Kennon high-handed as it was short-sighted, housing for embassy and Why another biography of Indira combined with uncooperative mon¬ foreign service personnel on Gandhi, when the stack of them already soons in the early 1970s to make her towers over those on her illustrious increasingly unpopular. Isolated, she temporary assignment in the father, Jawaharlal Nehru? The author, a saved herself in 1975 by declaring the Washington, D.C. and Los respected and well-connected Indian Emergency and making herself a virtual Angeles, CA, metro areas. political journalist, explains that the dictator. Malhotra finds the Emergency others were incomplete pot-boilers and what he describes as the increas¬ Furniture, kitchenware, bed written by adulators or revilers. ingly abusive use she made of her vast and bath linens, TV and other Inder Malhotra thinks a presentation powers only partly redeemed by her electronics, decorative acces¬ of “her life story in its entirety ... as decision to allow national elections in objectively as humanly possible” is 1977. These elections threw her out to sories, maid service and all needed, given the way Indira dominated the Janata coalition. utilities are set up and ready Indian politics for two decades, whether The incompetence and bickering of for your move-in. Choose an in or out of power. In aiming for ob¬ the Janata government alienated vast jectivity, Malhotra gave himself a segments of the population, especially apartment, condo or single¬ daunting assignment, since he knew the poor. After only three years in the family home close to your Indira and her husband, Feroze, inti¬ wilderness, Indira had reclaimed Ma¬ place of business. mately. But while he has fulsome praise hatma Gandhi’s mantle and was back in for her foreign policy successes and for office. Malhotra has little good to say her Mahatma-like concern for the poor about her second stint in office, which Personal and responsive and for secularism, his prose is measured. was not only undistinguished and service for all your housing He lets the chips fall where they may unimaginative, but a seedbed for the and leaves many a chip to be shaken off always abundant corruption in India. In needs is provided by our Indira’s sari. one egregious example, she tossed to Foreign Service specialist, What emerges is a driven woman her younger son, Sanjay, a venture to Rene Carter. Call today to who never quite overcame her child¬ produce the Indian people’s car. She hood Joan of Arc complex. Malhotra fawned on him in other ways as well, discuss your requirements. frequently describes Indira as paranoid, despite his arrogance and his associa¬ often using the word in its clinical sense. tion with thugs, and she actively groomed He suggests that her mistrust of people him as her successor. The ascendancy (her sons apart) may have come from an of this controversial favorite son ended identification with her unlettered mother, only when he was killed in a daredevil ExecuStay, Inc. who was scandalously abused by the airplane accident. Indira never recov¬ Nehru family. At the same time, Indira ered from this. 1.800-735-STAY incorporated from her father an identi¬ Malhotra finds Indira guilty of unnec¬ fication with India. When she ruled, essarily alienating those she needed 1-301-251-2771 India’s fate and hers seemed inextrica¬ and creating problems for herself her bly intertwined, justifying an ambition second time in power. In particular, she While You’re Away... that often outweighed principle. enraged the shifting cast of politicians Malhotra’s highest praise is for her already more interested in deposing her ExecuStay diplomacy surrounding the 1971 war and advancing their own careers than in JULY 1991 • FOREIGN SERVICE JOURNAL • 43 eration Treaty. He finds the Non-Aligned and which is conducted by an educa¬ Movement, of which India and Cuba tional and economic elite with its own BOOKS were leaders, to be just that, and sees interests very much at heart. nothing incongruous in Indira’s ap¬ The final five pages are a tacked-on working with her. He suggests that pealing to the Soviets to whip the Com¬ summing up, which balances strengths rather than skillfully manipulating them, munist Party of India back into support¬ as well as weaknesses. But the damage she became reclusive. ing her. He repeats without critical is done. The book naturally ends with Her attempts to manipulate were comment numerous occasions on which Indira’s death, but the performance of clumsy and mean-spirited and back¬ Indira accused foreign elements, espe¬ Rajiv as her reluctant alter ego after fired on her. This was doubly unfortu¬ cially the CIA, of being out to get her. In Sanjay’s death had already started to nate, because even with good man¬ fairness, he quotes Daniel Patrick renew the Nehru family lustre. Inelucta¬ agement, she would have faced intrac¬ Moynihan, who was ambassador to bly, he became her successor, and al¬ table problems, especially with the Sikhs India from 1972 to 1974, as saying that though he could not escape involve¬ (two of whom did her in), but also in the CIA had intervened twice in Indian ment in the pervasive corruption and Kashmir, in Andhra Pradesh, and in affairs, both times in her support. But he could not, at least immediately, solve Assam, and in many parts of India leaves the reader to decide who is right. intractable problems of regionalism and stricken with hunger, despite the Green He describes Indira as a devoted family communalism, he still managed to move Revolution. Any hope of solving these woman who often prepared the family’s India away from the outmoded social¬ problems needed an open, cooperative, food and regretted that she could not ism and autarchy that had been Nehru and flexible Indira. In fact, in the end spend more time with her children and family legacies. Perhaps reelected prime she brooked little dissent, even from her grandchildren. He recites quite minister on his own, he might have led own staff. unsalaciously rumors about her sex life, India to the full benefits of participation Ever the Indian patriot, Malhotra only to knock them down, then to dismiss in the community of nations. With his makes India out to be the victim in many them, saying that if she had been a widow, tragic assassination, we will never know. political conflicts. The 1974 explosion nobody would have cared. of a nuclear device was “peaceful,” and Malhotra gives fascinating descrip¬ Lawrence J. Kennon, a retired Foreign India was right to fear a Pakistani bomb tions of Indian politics, with its complex Service officer, served in India and and not to sign the Nuclear Non-Prolif¬ idiosyncrasies and massive corruption, Pakistan. THE BEAUTY CENTER BEAUTY SUPPLIES & SERVICE HUNDREDS OF MAJOR BRANDS TO CHOOSE FROM... AT DISCOUNT PRICES! 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For example, Lorenzo Edited by Bruce W. Watson and Peter G. provided little information. There is no Crowell’s chapter on the adequacy of Tsouras, Westview Press, 1991, $29.95 mention of tire U.S. charge’s key role in intelligence in Just Cause lists what he softcover persuading the legitimate victors in the May terms flatly “compromises” of the secu¬ 1989 elections to assume power in rity of the operation. “The National Reviewed by George F. Jones Panama, or the embassy’s delicate task Security Agency intercepted a telephone Bruce Watson is a retired naval intel¬ of assisting the new government in call to Noriega. The unknown caller told ligence officer and professor emeritus at converting that assumption into reality, him that a source in the U.S. State tire Defense Intelligence College. Tsouras or the likelihood that the use of U.S. Department had said U.S. military inter¬ is an analyst at the U.S. Army Intelli¬ military force might well have been in vain vention was imminent. Someone in the gence and Threat Analysis Center. State Department reportedly placed a had tire Foreign Service failed in those Unsurprisingly, therefore, they have put call to a member of the Canal Commis¬ tasks. Infact, the book largely ignores the together what is clearly intended to sion, warning him to keep his children political impact of U.S. intervention, other serve as a textbook for U.S. defense home that night. . . . “ Anyone who than to speculate on whether over the long colleges. The reader interested in troubles to look up the footnote will run it will produce an anti-American back¬ knowing precisely how many AH-64s lash. One hopes that U.S. officers who do and AC-130s were used in Just Cause, discover that the source of these allega¬ study Just Cause as a military operation will which military units were involved, and— tions was a story in the Washington be exposed more fully to its political and that critical issue for any military officer— Times. The reader will also discover—in diplomatic dimensions and to the need for tire exact layout of the chain of command, the footnote, not in the main text—that better coordination of those three aspects, will find this a handy reference. Even the the assistant secretary of Defense for and not simply to Panamanian history and civilian reader who seeks the date of a public affairs denied the allegations. the numbers of helicopters deployed. ■ particular event, not only in Just Cause Of greater regret is the book’s failure to itself, but in die years of Panamanian devote virtually any attention to a unique history preceding it, will more than likely aspect of this U.S. military action—that it George F. Jones is a Foreign Service officer, find it here. In fact, one defect of the editors’ occulted in a country wffh a functioning assigned to the Bureau of Inter American work is that Panamanian history is recited, U.S. embassy. The embassy is mentioned Affairs. 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Washington Boulevard, Arlington, Virginia JULY 1991 • FOREIGN SERVICE JOURNAL • 45 YOUR BEST TERM LIFE INSURANCE BUY AMERICAN FOREIGN flexibility and responsiveness SERVICE for today's foreign service PROTECTIVE ASSOCIATION 1 7 1 6 N ST, NW WASHINGTON, D.C. 20036-2907 (202) 833-4910 Call AFSPA for more information and an enrollment packet! THIS IS A GOOD WAY TO PROTECT YOUR FAMILY AF S A ♦ INI E W employee’s EER does not appear Senior FS recertification AFSA-A.I.D. less substantive than it would be State has finally completed and framework without time-consuming labor-man¬ submitted for AFSA’s consideration agement responsibilities are not per¬ an SFS recertification plan, as re¬ agreement suasive. quired by the Ethics Reform Act of negotiations AFSA maintains the most appro¬ 1989. Every third year, beginning priate arrangement for an AFSA- with the three-year period that AFSA and A.I.D. are currently in A.I.D. employee representative ended April 30, 1991, any member mediation before the Federal Media¬ would parallel that of AFSA-State who has completed 156 weeks in tion and Conciliation Service employee representatives, who the Senior Foreign Service must be (FMCS) to resolve an impasse on is¬ may list their service with AFSA on recertified. The requirement is not sues in a proposed framework their Personal Audit Report (PAR) affected by workforce require¬ agreement. Negotiations have been card and also elect time-in-class ments, nor by time-in-class consid¬ ongoing since August 1990, and, waivers or review by selection erations. The proposed regulations while there has been some prog¬ boards. detailed four standards to be met ress, AFSA is at an impasse over If we are unable to resolve the by all seniors and four additional the issues of a frill-time representa¬ remaining issues in mediation by standards for some. AFSA will dis¬ tive, additional office space, time the FMCS, the next step will be to cuss the standards with manage¬ limits for AFSA to respond to man¬ request assistance from the Foreign ment shortly, aiming for clarity, agement-initiated proposals, and Service Impasse Disputes Panel. consistency, and attainability. mid-term bargaining. The Panel may make recommenda¬ Wisely, because so few employees The main issue of disagreement tions to the parties and, if this is have the same supervisor for three is that of a full-time representative unsuccessful, issue a decision on consecutive years, the department to represent A.I.D. bargaining unit the remaining issues. will hold promotion selection members. AFSA’s proposal is sim¬ boards responsible for recertifica¬ ilar to the longstanding agreement State Department tions. AFSA will also review pre¬ between State and AFSA that pro¬ cepts for the boards, amended to vides for two full-time employee issues reflect the new duty. Perhaps the representatives to conduct labor- AFSA’s interest in analyzing the most important aspect of the recerti¬ management relations on behalf of impact of the 1990 career manage¬ fication process is that there may State Department employees. ment modifications remains sty¬ be no “target” number of non-recer¬ A.I.D. has been intransigent on mied by State’s failure to produce tifications. this issue. Its counterproposal promotion statistics and other data would provide for up to 10 repre¬ required by the Foreign Service Act Affirmative action sentatives who would continue to of 1980. In the past, the report has The department’s long-delayed be responsible for work assigned been submitted to AFSA and the Multi-Year Affirmative Action Plan by the agency while they perform congressional oversight committees for FY1990-92 has finally been ap¬ AFSA labor-management relations early in each calendar year and proved by the Equal Employment responsibilities. AFSA has been granted the oppor¬ Opportunity Commission. The plan AFSA has opposed this counter¬ tunity to comment. AFSA’s analyses was drafted in the spring of 1990, proposal, concerned that a part- of compliance with the act and but was twice returned to State for time employee whose EER appears with negotiated labor-management improvements. The more than 80- “light” on work accomplishments agreements is dependent upon hav¬ page document reiterates the would be adversely affected when ing such data, and we are pressing department’s policy statements on considered for promotion and selec¬ Personnel—which pleads computer affirmative action for Foreign Ser¬ tion out. The agency’s assurances difficulties and funding shortfalls— vice junior officers (in place since that supervisors would be responsi¬ to produce the needed data as 1967) and mid-level officers (since ble for ensuring that the soon as possible. 1975), and describes how State pro- JULY1991 • FOREIGN SERVICE JOURNAL • 47 F S N E S poses to diversify the workforce for law enforcement officers in is assigned, but also the section in within three years. Noteworthy in 1992. which he/she is employed. the plan are slated improvements Q: Can PARs be upgraded to in handling EEO complaints and in Secretarial show detailed job experience? the lengthy hiring process for those reform update A: State cable 182278 (6/6/90) selected for employment. Inter¬ and a department notice (5/17/90) Replying to a letter of inquiry in ested members should request cop¬ gave detailed information on how February about the status of career ies of the plan. to have assignment history shown management reforms for secretar¬ on the PAR. The cable and notice Specialists ies, Director General Perkins pro¬ explained how to submit documen¬ Ambassador Pat Byrne com¬ vided AFSA with general tation to CDOs to update work his¬ pleted her study of specialists’ ca¬ information in a question-and-an- tories. reers in April. AFSA has requested swer form. While several of the an¬ Q: Will the American Family a copy, but we have been in¬ swers are useful, none goes very Member Associates Program impact formed that it is still under review far toward meeting the concerns ex¬ negatively on career mobility possi¬ within management and that action pressed by secretaries to date. In bilities for secretaries? recommendations have not yet an April 30 meeting with Under A: We do not anticipate any neg¬ been decided upon. We under¬ Secretary Selin and the director gen¬ ative impact on secretarial career stand that issues involving Diplo¬ eral, AFSA President Wilkinson ex¬ mobility. . . . The program as cur¬ matic Security personnel are being pressed particular dismay that there rently advertised deals only with ex¬ treated separately from those in¬ were still no commitments to isting positions that have volving other specialists and that prompt implementation of the traditionally been occupied by fam¬ particular attention is being given banding concept, although nine ily members. to the disparity between the For¬ months had passed since the de¬ eign Service overseas service re¬ partment announced an intention Fundraising quirement and the inadequate to proceed with it. Ambassador Per¬ number of overseas openings for kins promised us a follow-up letter campaign DS agents. with a schedule for the phased im¬ Michael Dailey Diplomatic Security plementation of banding between Scholarships Intern AFSA has been seeking congres¬ now and mid-1993, but as of the AFSA’s recent fund drive has sional action to induce State to im¬ end of May we had yet to receive generated a strong response so far plement for Diplomatic Security the letter. of almost $12,500 for the AFSA agents tire provisions of Title IV of Following are extracts from the Scholarship Fund and more than the Pay Reform Act of 1990, which text of the director general’s April $6,500 for the AFSA Fund. establishes special pay provisions 17 “status report on secretarial re¬ for “law enforcement” officers. Al¬ form." though the department has main¬ Q: What is the status of differen¬ Answers to the Foreign tained that Foreign Service tial pay for backup communica¬ personnel are not covered by Title tions? Service Quiz IV, the Office of Personnel Manage¬ A: We have drafted a proposal ment has informed the department to allow an incentive differential (Questions appear on page 10.) that it has no evidence to suggest for those secretaries who receive that the legislation intended to ex¬ training as backup communicators clude special agents of the Diplo¬ and are serving in a position desig¬ 1. Charge d’affaires ad interim matic Security Service from nated as backup communicator. entitlement to the overtime provis¬ This proposal is being circulated 2. Franklin Delano Roosevelt ions in Tide IV, and that it in¬ throughout the department for com¬ tended to clarify this matter in a ments/ clearances. 3. John Adams technical and conforming amend¬ Q: Will there be skill code ment in the near future. Although changes? 4. William Palfrey in 1780. He the OPM ruling hedges on other as¬ A: We have decided against sec¬ never reached France because pects of Title IV, AFSA plans to ondary skill codes for secretaries. the ship was lost at sea. continue to press for DS entitle¬ We feel that we can achieve our ment to all the provisions of Title objective of enhancing professional¬ 5. The Foreign Service Auxil¬ IV, including pay and allowance im¬ ism by identifying on PARs not iary provements that will go into effect only the post to which a secretary 48 • FOREIGN SERVICE JOURNAL • JULY 1991 Scholarship Fund Perpetual Scholarships Sheldon Whitehouse Memorial The Scholarship Fund drive will Hope Rogers Bastek Memorial Theodore A. Xanthaky Memorial allow AFSA to offer an additional Beirut Memorial New Annual Scholarships $1,000 financial award for the up¬ William Benton Madeline Ferrari Memorial (estab¬ coming academic year and will per¬ Robert Woods Bliss lished by friends and family) manently increase AFSA’s David K. E. Bruce Isaac and Isaac Duke Parker Me¬ Betty Carp scholarship endowment fund of morial (established by great-grand Wilbur J. Carr Memorial and grand-daughter, Mary Parker $1.5 million by 1 percent. Seldon Chapin Memorial England) One perpetual and three annual DACOR scholarships have been established Adolph Dubs Memorial William and Melinda Itoh Memo¬ for the 1991-92 academic year. A John Foster Dulles rial (established by Mr. and Mrs. gift of $1,000 or more will name a Arthur B. Emmons Memorial William Itoh) scholarship in the year it is given. Howard Fyfe Memorial Annual scholarship renewals for Also, any gift in the amount of Oliver Bishop Harriman Memorial 1991-1992 include: $10,000 or more will qualify the Landreth M. Harrison Memorial Jane Fairweather Memorial donor to name a scholarship in per¬ Harry A. Havens Memorial James L. Holmes Memorial Julius C. Holmes Memorial petuity. Friends of Arjun J. Chakrawarti Charles B. Hosmer Memorial This year’s newest perpetual are also attempting to establish a Francesca Bufano Lapinski Memorial scholarship for the current year. scholarship was named in memory Robert E. & Florence L. Macaulay Me¬ We would like to thank again of the late Susan Lowe Modi. Spe¬ morial cial thanks to Sorab K. Modi, her Susan Lowe Modi Memorial the DACOR Bacon House Founda¬ husband, James Lowe, her brother, Marcia Martin Moore Memorial tion for establishing the new Hey¬ and Mrs. Arthur K. Beedle, her Paris Scholarship Fund ward G. Hill Scholarship Program. mother, who, with friends and fam¬ Jefferson Patterson In its first year, this scholarship will ily, perpetuated an annual scholar¬ C. Montagu & Frances M. Pigott Memo¬ be awarded to dependent children ship. AFSA is also grateful to Mrs. rial of Foreign Service personnel in John Campbell White, and her Lowell C. Pinkerton Memorial their junior or senior college year George and Helena Shultz daughter, Mrs. Tapley Bennett Jr., who plan Foreign Service or inter¬ Ernest V. Siracusa for generously renewing their com¬ national relations careers. Jacq Bachman Siracusa Finally, thanks to former Ambas¬ mitment to the John Campbell Clarke W. Slade Memorial sador to Chile Nathaniel Davis, White Scholarship Fund. This fund, Charles C. & Jane K. Stelle Memorial created in 1967, has been assisting Gertrude Stewart Memorial who has made a generous contribu¬ children of deceased or retired For¬ Clare Timberlake tion to the AFSA Scholarship Fund eign Service Officers for almost 25 Vietnam Memorial from the remainder of a legal de¬ years. Edward T. Wailes fense fund established for litigation John Whitehead in the case against the makers of John Campbell White Memorial the film “Missing.” Legislative Issues Rick Weiss plans to follow (i.e., on whether • Berman Amendments: Makes fu¬ As Congress returned from its to add four floors at the top or ture authorizations for TV and recess, the House and Senate fo¬ to raze and rebuild). Further¬ Radio Marti automatic unless cused on the passage of authoriza¬ more, it requires the secretary programs are terminated; re¬ tion and appropriation bills. of State to seek reimbursement quires the State Department The full house passed a State Au¬ from the Soviets for reconstruc¬ once again to study the continu¬ thorization bill on May 15. Among tion costs. ing problem of housing at the the amendments: • Minority Recruiting (Dymally USUN; and requires State to re¬ • Embassy Moscow (Berman, Amendment): Authorizes $1.5 port on whether certain human Snowe, Upton amendments): Au¬ million for State to contract with rights principles are being im¬ thorizes $130 million for con¬ the International Career Program plemented by U.S. businesses struction/reconstruction, but (a private organization) for stu¬ operating in China. requires the secretary of state dents from historically black col¬ In the Senate, the Kerry Subcom¬ and director of the CIA to sub¬ leges to be trained as summer mittee of the Foreign Relations mit a joint written report on the interns or in other ways for ca¬ Committee marked-up its version approach the administration reers in the Foreign Service. of the State Department/ JULY 1991 • FOREIGN SERVICE JOURNAL • 49 N E \N S USIA/Board of International Broad¬ and minorities; sexual harassment; The State Department opposes casting authorization for 1992 and availability of promotions, awards, the amendment as too all-encom¬ 1993- The subcommittee proposed and career counseling to both For¬ passing. AFSA also believes that a commission to study personnel eign Service and Civil Service em¬ some aspects are too broad and questions at the Department of ployees; availability of assignments, need to be refined, particularly State. It requires the department to domestic and foreign, to both FS where “studies” might be used as a submit a report on compliance and GS; availability of subsidized way to delay career management with recommendations of the parking in Washington, D.C.; avail¬ improvements that are needed now Thomas Commission within 90 ability of appointment to Senior (e.g. for FS specialists). days of enactment and the commis¬ Seminars, DOD schools, scholar-in- In June, House and Senate Ap¬ sion to report within one year on residence programs, FSI programs, propriations Committees are ex¬ the following: salaries for chiefs of etc.; a study of Foreign Service al¬ pected to complete mark-up of the mission, Foreign Service separation lowances; a study of management FY 92 appropriation bills. Also in for cause, Foreign Service Griev¬ and practices at the USUN; and June, the House Post Office and ance Board procedures, and reas¬ any other questions of issue rele¬ Civil Service Committee will report signment or retirement of former vant to efficiency, cost effective¬ out an EEO bill that will provide presidential appointees. It man¬ ness and morale of State an option for Foreign Service dates a “complete study of stand¬ Department employees.” The full women and minorities at State, ing attitudes and complaints of Foreign Relations Committee is ex¬ USIA, and A.I.D. to take their com¬ Civil Service and Foreign Service pected to act on the subcommittee plaints either to EEO or the FS employees on recruitment, reten¬ bill in June. Grievance Board. tion, and promotions of women Radical Selin by Richard S. Thompson tional security affairs, management, curity, information management, an Professional Issues Coordinator and field operations. Such a reform integrated system of diplomatic Under Secretary of State for Man¬ would require a push from the communication based on “end-to- agement Ivan Selin advocated a president himself, as Eisenhower end encryption,” and simplification unified Foreign Service and greater provided in 1958, or from a con¬ of consular operations. authority for the secretary of State gressional commission. In the discussion period, Selin in a May 16 talk at the Foreign Ser¬ Selin targeted four major re¬ said he thought Congress would vice Club. Selin, who was slated to forms for the future. First, he pro¬ be favorable to broad reform if it become chairman of the Nuclear posed a Department of State could be brought to focus on it. Regulatory Commission July 1, also reorganization to reduce the num¬ The U.S. Foreign Commercial Ser¬ urged several other major reforms ber of bureaus and remold those vice should not be touched except of the State Department and in the dealing with the economic func¬ as part of a major overhaul. He foreign affairs community in gen¬ tions (OES, EB, and CIP). Second, suggested that our performance sys¬ eral. he advocated the abolition of tem is too individualistic, and a He called two of his own pro¬ cones for generalists, to be re¬ unit or team approach could im¬ posals “far out.” First, he proposed placed by two broad specialties prove morale. Several questions creating a single Foreign Service along the line of the Bremer report and answers focused on the plan¬ for all five agencies. Furthermore, recommendations. Third, he argued ning process, in which Selin clearly representatives of other agencies for government-wide planning for felt progress has been made. West¬ when assigned overseas would be the entire Function 150 (foreign af¬ ern Europe should see staff reduc¬ seconded to the Foreign Service fairs) account, by function and by tions, as should South America and and tmly come under the authority country, or at least planning that probably Africa, where efforts will of the ambassador, no longer be¬ would cover the five Foreign Ser¬ be made to reduce the infrastruc¬ longing to the parent agency. Sec¬ vice agencies. Finally, he suggested ture at many of the smaller embas¬ ond, the secretary of State should a single overseas diplomatic com¬ sies. Considerable interest was also have “chief of mission” authority, munication system of record traffic. shown in how environmental is¬ comparable to that of the secretary Selin also described a series of sues are handled in Washington of Defense under the Defense Act reforms he has set in train in the and abroad, including relations of 1958, with a secretary, two depu¬ areas of financial management, sys¬ with the Environmental Protection ties, and then under secretaries for tematic planning, better control of Agency. A transcript of the talk is public afffairs (PA and USIA), eco¬ overseas staffing and shared costs, available on request. Contact Dick nomics, assistance (A.I.D.), interna- personnel, foreign buildings and se- Thompson at 338-4045. 50 • FOREIGN SERVICE JOURNAL • JULY 1991 Destination Washington, D.C.? 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The American University provides equal opportunity to all qualified persons in its educational programs and activities. 202 966-7323 3413 Fessenden St., NW Washington, DC 20008 0 PROPERTY MGMT. IW^V0’ (202) 462-3910. Write FARA housing, Rm 2928, Dept, of PEAKE PROPERTIES LTD.: State, Washington, DC 20520. Specializing in the leasing and management of your Northern TAX RETURNS Virginia home. Caring, personal attention. Nearly 20 years of ex¬ CLASSIFIED' TAX PLANNING & prepara¬ perience in serving the FS tion 15 years experience. Vir¬ community’s property manage¬ ginia M. Test, CPA, 3485 ment needs. Muriel Peake, Bro¬ Curran, Hancock, NH 03449. rooms, and some two bedrooms Brittlewood Ave., Las Vegas, NV ker. 1350 Beverly Rd., Suite (603) 525-6672. and penthouses in River Place. 89120. 220B, McLean, VA 22101. (703) LURAY, VA-3 BR home on They are completely furnished FREE TAX CONSULTATION 448-0212, FAX (703) 448-9652. Shenandoah River. Panoramic including CATV, all utilities, for overseas personnel. We pro¬ FAHEY & ASSOCIATES: Pro¬ mountain views. All amenities telephone, linens, etc. Shortterm cess returns as received, with¬ fessional, residential, property for secluded vacation/romantic leases of 2+ months available. out delay. Preparation and rep¬ management service for Northern weekend. 90 minutes from DC. Write Foreign Service Associ¬ resentation by enrolled agents, Virginia properties. Expertise and (804) 479-3604. ates, P.O. Box 12855, Arlington, avg. fee $195 includes return personal attention to detail are the VA 22209-8855. Call or FAX 1- and TAX Trax, unique mini-fi¬ hallmarks of our established firm. REAL ESTATE 703-636-7606. Children wel¬ nancial planning review with References provided. JIM FAHEY, come. Please send us dates. recommendations. Full planning 9520B Lee Highway, Fairfax, VA WASHINGTON, D.C. EXECUTIVE CLUB ARLING¬ available. Milton E. Carb, E.A., 22031 (703) 691-2006, FAX (703) ARLINGTON, VA. Personalized TON AND OLD TOWN ALEX¬ and Barry B. De Man, E.A.CFP, 691-2009. relocation, short or long term. ANDRIA. Immaculate and FINANCIAL FORECASTS, metro WASHINGTON MANAGE¬ We specialize in walk-to-Metro beautifully furnished apartments location 933 N. Kenmore St. MENT SERVICES: Residential sales and furnished rentals. Ar¬ with full hotel services. One- #217 Arlington, VA 22201(703) property management is our only lington Villas, 1-1/2 blocks from two bedrooms, some with dens, 841-1040. business. Call, write or fax Mary Metro, luxurious studio, 1, 2, 3 all with equipped kitchens. AFSA TAX COUNSELING: Beth Otto, 2015 Q St. NW, Wash¬ bedroom. Fully furnished. Complimentary shuttle to Metro, Problems of Tax and Finance: ington, D.C. 20009. Tel (202) 462- Washer/dryer, microwave, Rossolyn, and Pentagon. Health Never a charge to AFSA mem¬ 7212, Fax (202) 332-0798. cable, linens. American Realty Club and outdoor pool. Many bers for telephone guidance. MANOR SERVICES: Former Group, 915 N Stafford St., Ar¬ extras. Rates within your per R.N. Bob Dussell (ex-A.I.D.). At federal law enforcement agent lington, VA 22203. (703) 524- diem. Shorter or longer terms tax work since 1937 and now letting his 10-year residential 0482 or (703) 276-1200. Chil¬ available. Executive Clubs, 610 still in practice solely to assist management company expand dren welcomed. Pets on ap¬ Bashford Lane, Alexandria. VA Foreign Service employees and upon retirement. Best tenant proval. 22304 (703) 739-2582, (800) their famiies. Also lecture on screening. Frequent property in¬ BACK FOR TRAINING? 535-2582. taxes monthly at FSI in Rosslyn, spection. Mortgages paid. Re¬ HOME LEAVE? D.C. TOUR? AUSTIN, TEXAS: Lakeway VA. Office located across from pairs. Close personal attention. We are The Washington Metro homes and homesites outside of Virginia Square Metro Station, We’re small but very effective. Area Short-Term Rental Special¬ Austin on 65-mile-long Lake 3601 N. Fairfax Dr., Arlington, FS and military references. Low¬ ists. Excellent locations. Wide Travis. Three 18 hole golf VA 22201. (703) 841-0158. est rates, Best service. Tersh price range. In Virginia walk to courses, world of tennis center, ATTORNEYS specializing in Norton, Box 42429, Washing¬ FS1. In D.C. and Maryland walk 400 slip marina, 4000 ft. airstrip: tax planning and return prepa¬ ton, D.C. 20015, (202) 363-2990. to Metro. Large selection of fur¬ contact Roy & Associates for in¬ ration for the Foreign Service nished and equipped efficien¬ formation, 2300 Lohmans Cross¬ Community available for consul¬ VACATION RENTALS cies, 1-bedrooms, 2-bedrooms ing, Suite 122, Austin, TX 78734 tation on the tax implications of and some furnished houses. (512) 263-2181. investment decsions, business- SOUTHWEST HARBOR, Many welcome pets. For bro¬ OFFICE SPACE to share with related deductions, separate MAINE, Shore Cottage for five. chures & info: EXECUTIVE four non-profits all engaged in maintenance allowances, real Privacy, convenience, gorgeous HOUSING CONSULTANTS, foreign policy education. One estate purchases and rentals, view of Acadia Park, $750/ INC., Short Term Rental, 7315 windowed office. Option for addi¬ home leave deductions, audits, week. Ph.: 301-652-2356. Wisconsin Ave., Suite 1020 East, tional secretarial space. Share fax, etc. Contact Susan Sanders or HOME LEAVE in rural New Bethesda, MD 20814. (301) 951- xerox, $500-$750. Contact Julie Paul Clifford Farha & Sanders Hampshire. Completely fur¬ 4111. Reserve early! Avoid dis¬ Chitwood, (202) 293-1051. 1726 M 1606 New Hampshire Ave., NW, nished home—linens, china, appointment! Street, N.W. Washington, D.C. 20009 (202) utensils, etc. 5 bedrooms, 2 1/2 WILL YOU NEED A FULLY FARA APARTMENT RENT¬ 667-5111, FAX: (202) 265-1474. baths, 2-car garage, canoe, 7 FURNISHED apartment five ALS: Fully furnished efficiency, ATTORNEY, FORMER FOR¬ wooded acres near three lakes. minutes’ walk from FSI and one and two bedroom apart¬ EIGN SERVICE OFFICER: Ex¬ Children welcome., July 1991, Rosslyn subway? We have first ments. One block from State tensive experience with tax $1600 plus utilities. James class efficiencies, one bed¬ Dept. Competitive rates. Call problems peculiar to the For- IULY1991 • FOREIGN SERVICE [OURNAl • 59 eign Service. Available for con¬ Sid Oper, 9 Laurel Drive, Port sultation, tax planning, and Jefferson, NY 11777. preparation of returns. No charge for telephone advice. M. HOUSE REPAIRS BRUCE HIRSHORN, BORING PARROTT & FOUST, P.C., Suite PAINTING, plastering, dry D, 307 Maple Avenue, West, wall, roofing and internal and Vienna, VA 22180. Tel. (703) external repairs expertly and 281-2161, FAX: (703) 281-9464. reasonably done or arranged by EARN CASH with writing FICERS AND THEIR FAMI- a Foreign Service scion, William MAIL ORDER skills! Details: EARS, Box 1664 UES-Our firm can assist you in Cave (301) 681-7285. For refer¬ Manassas, VA 22110. drafting wills and powers of at¬ ences contact Lehfeldt (301) NON-RUN PANTYHOSE, as BOOKS, BOOKS, BOOKS! torney, administering estates, 365-2561 or Precht (216) 932- seen on T.V. 5 pair, $20.00, plus We have thousands in stock, do establishing conservatorships 8651. $2.50., S & H. Sizes: S,M,L col¬ special-orders daily, search for and guardianships and provid¬ ors: white, black, off-black, out-of-print books. “Free book ing advice on real estate mat¬ AUTO PARTS/ETC. nude, suntan, pearl/check or reviews.” Visa, Discover or ters. Prompt response to your money order. Allow 3 to 4 Mastercard. The Vermont Book inquiries. CLIFFORD, FARHA & AUTOMOTIVE PARTS & weeks delivery. Pantyhose, 125 Shop, 38 Main Street, SANDERS 1606 New Hampshire ACCESSORIES: Original equip¬ N. Kresson St., Baltimore, MD Middlebury 05753. Ave., N.W. Washington, D.C. ment and aftermarket for most 21224-1711. FAX: (301) 327- FAR EAST OUT-OF-PRINT 20009 FAX: (202) 265-1474 makes. Servicing FSO’s and em¬ 7909. TRAVEL, history, art scholarly Tel: (202)667-5111. bassies A.S.A.P. AUTO PARTS, AVON for free catalog books about Asia bought and DIVISION OF HUMCO, INC. mailed to you, write: Stephanie sold, catalogue available. Tama¬ INVESTMENT SERVICES (301) 327-4000 FAX: (301) 327- Y. Hughes, 713 Grandview rind Books, P.O. Box 7909. Drive, Alexandria, VA 22305. 49217,Greensboro, NC 274119- FORMER FSO SPECIALIZES AUTOMOBILE STORAGE: 9217. IN PROVIDING FINANCIAL Controlled, indoor heated, in¬ BOOKS YOUR PERSONAL BOOK¬ SERVICES for Foreign Service sured, high security, long-term/ STORE AWAY FROM HOME: personnel-stocks, bonds, tax- short term, TSR or private auto¬ BOOKSELLER specializing Order any U.S. book in print. free, mutual funds, money vault, division of HUMCO, Inc. in supplying scholarly and refer¬ Store credit available. Salma¬ management. Call COLLECT Tel: (301) 327-4000. ence material to libraries and re¬ gundi Books Ltd. 66 Main worldwide (202) 857-5485, search scholars will purchase Street, Cold Spring, NY 10516. Peter de Castro, Second Vice PET MOVING SERVICES small or large collections and President, Smith Barney, 1776 individual valuable books in the ATTORNEYS/WILLS Eye Street, NW, Washington, AIR ANIMAL, “the pet mov¬ following subject areas: History, D.C. 20006. ers” an IATA air freight for¬ travel, biography, folklore, mili¬ FORMER FOREIGN SER¬ ROLAND S. HEARD, CPA, warder USA origin pet shipping tary history, exploration, sociol¬ VICE OFFICER NOW PRAC¬ has worked overseas and is fa¬ services 4120 W. Cypress- ogy and ethnography. Please TICING LAW in D.C./Maryland, miliar with foreign service and Tampa, FL 33607. Voice 813/ contact W.B. O’Neill, P.O. Box general practice, estate plan¬ contract employee situations, 879-3210, FAX (813) 874-6722. 2275, Reston, Virginia 22090, or ning, real estate, domestic. Gre¬ computerized tax services, fi¬ USA/Canada 1-800-635-3448. Con¬ call (703) 860-0872, or FAX: gory V. Powell, Furey, Doolan nancial planning, member tact Dr. W. Woof-Veterinarian. ■ (703) 620-0153. & Abell, 8401 Connecticut Ave., AICPA, Tax Division and Per¬ ATTENTION: All old Middle PH-1, Chevy Chase, MD 20815. sonal Financial Mgmt. Division. East hands, active and retired: (301) 652-6880. (703) 242-8559. P.O. Box 1144 There is a desperate need for WILLS-ESTATE PLANNING Vienna, VA. books on the Eastern Mediterra¬ by attorney who is a former ORGANIZED FINANCES UN¬ nean area by newly established Foreign Service officer. Have LIMITED. Bill paying, personal Departments of Modem Greek, your will reviewed and up¬ budgeting, net worth and cash Near East Affairs, and Middle dated, or a new one prepared. flow analyses, financial planning. East Studies at a number of Col¬ No charge for initial consulta¬ Kathy Jatras, CFP, 3209 North leges and Universities. Retired tion. M. BRUCE HIRSHORN, Nottingham Street, Ariington, VA ME officer will purchase small BORING, PARROTT & FOUST, 22207, (703) 237-5592. or large collections, and recycle P.C., Suite D, 307 Maple Av¬ ENJOY PHENOMENAL IN¬ these books to where they are enue, West, Vienna, VA 22180. TEREST SAVINGS, pay off all needed. W.B. O’Neil, P.O. Box Tel.(703)281-2l6l, FAX (703) debts years ahead of schedule, 2275, Reston, VA 22091, FAX: 281-9464. without: refinancing, qualifying, (703) 620-0153, Phone: (703) SPECIALIZING IN SERV¬ appraisals, credit reports, or real 860-0782 ING FOREIGN SERVICE OF¬ estate fees. For free details write: 60 • FOREIGN SERVICE JOURNAL • JULY 1991 John lacono/Sports Illustrated Another GreatVictory m Serving the Washington.D.C. Area VICTORY International RelocationandStorage Specialists Congratulations toIanWoosnam on hisvictoryatTheMasters Telex: 1440019 VVCALEX Telefax: [703]461-6400 Telephone: [703]751-5200 THE DIPLOMATIC ADVANTAGE. Every member of the Diplomatic Corps is To get these special privileges, just mail in eligible for special privileges through Chrysler’s the convenient response card on Page 7 and Diplomatic Purchase Program. That means we’ll send you a catalog plus complete infor¬ professional service and preferred savings on mation on the Diplomatic Purchase Program. a full line of 1991 Chrysler Motors products. Or call (313) 978-6526 or telex 0235264 Choose from Chrysler, Plymouth, Dodge and CHRYEXIMDET. And you’ll find out what we Eagle cars, or Jeep and Dodge Truck vehicles. mean by Advantage: Chrysler. Delivery can be arranged for the United States or most overseas locations. 4k CHRYSLER W MOTORS INTERNATIONAL OPERATIONS