PUBLISHED BY THE AMERICAN FOREIGN SERVICE ASSOCIATION SEPTEMBER 2018

BEYOND THE REDESIGN

PRACTICING ENVIRONMENTAL DIPLOMACY

FOREIGN SERVICE September 2018 Volume 95, No. 7

Beyond the Redesign: Can State Deliver?

26 39 Blue-Ribbon Blues: E-Hell: Why So Many Great Is There a Way Out? Reports and Good Ideas Efficient and secure information Go Nowhere technology processes and platforms Reform efforts at State are perennial. are the primary requirements for Several critical institutional issues State’s operational modernization. have been studied again and again Here is a candid look at the for decades to scant effect. Why is challenges and suggestions for a way change so difficult? forward. By Harry Kopp By Jay Anania 33 43 You Have a Strategy. Who Is the Future Now What? — How to of the Foreign Service? Career public servants at all levels Turn Any U.S. Mission and specialties make diplomacy Strategy into Results work. How do we find them, keep Today State has a unique them, grow them? opportunity to reassert leadership By Barbara Bodine of foreign policy by focusing on delivering the outcomes promised by strategies that are now aligned 47 across the department. The Future of the By Matt Boland Foreign Service—As Seen Through the Years From the FSJ Archive.

Feature Message from the Hill 52 Practicing Environmental 15 Diplomacy A Foreign Service Early childhood experiences for America and a commitment to By Representative environmental stewardship Joaquin Castro served this diplomat well throughout his career. By Tom Armbruster

THE FOREIGN SERVICE JOURNAL | SEPTEMBER 2018 5 FOREIGN SERVICE

Perspectives 82 Local Lens Departments Freetown, Sierra Leone 7 By James Talalay 10 Letters President’s Views Covering the Bases 13 Letters-Plus By Barbara Stephenson 17 Talking Points 9 72 Books Letter from the Editor The State of State By Shawn Dorman Marketplace 79 Reflections 74 Classifieds Being There: Camp David, 1978 76 Real Estate By Frank Finver 78 Index to Advertisers

AFSA NEWS THE OFFICIAL RECORD OF THE AMERICAN FOREIGN SERVICE ASSOCIATION 57 George F. Kennan Award Winner Announced 58 State VP Voice—Don’t Be a Heather 59 FCS VP Voice—Five Things I’ve Learned 60 Retiree VP Voice—Threats to Retirement Benefits 60 REA/WAE Coordinator Information: An Update 61 Wher e We Stand—The Power of High Expectations 66 62 AFSA on the Hill—Congressional Funding: The Long Game 62 AFSA President Attends USGLC Summit 66 Join the FSJ Centennial Celebration 63 Notes from LM—Implementation Dispute Settlement 67 2018 Scholarship Program Update 63 Common Sense Guide to CODELs 68 AFSA Welcomes New Governing Board Members 64 Retiree Corner—The Results Are In: 70 The Journal Welcomes New Editorial Board Members AFSA’s Retiree Survey 71 Governing Board Meeting, June 20 66 AFSA Welcomes New Retirement Benefits Counselor 71 AFSA Hosts Networking Happy Hour

On the Cover—Art: “A Cubist State” by Josh Dorman

6 SEPTEMBER 2018 | THE FOREIGN SERVICE JOURNAL PRESIDENT’S VIEWS

Covering the Bases

BY BARBARA STEPHENSON

ne of the best parts of sum- America’s core diplomatic capability while but it’s enough to cover the overseas mer is the chance I get to talk China’s is increasing, and we should not be support costs for shifting 150 existing to—and hear from—so many surprised if it looks like Beijing is running domestic mid-level positions overseas. It’s Omembers who are taking the bases on one continent after another enough, in other words, to start to put the classes at FSI. If there is one thing that’s while short-staffed American embassies team back on the field. clear from talking to you, it’s that the struggle mightily to cover all the bases. I was very encouraged to see support Foreign Service team was never meant While our defense spending outstrips for getting more members of our team for the sidelines. the competition—more than 10 times what on the field from Brian Bulatao, who is The Foreign Service is chomping at the Russia spends, and more than the next awaiting confirmation as under secre- bit to get out on the field—to “the front eight countries combined—our spending tary for management (M). In response lines, executing American diplomacy on diplomacy is decidedly modest, with to a question for the record from Senate with great vigor and energy,” to borrow a just $5 billion going to core diplomacy. Foreign Relations Committee member Ed phrase from Secretary Mike Pompeo. If we care about maintaining America’s Markey (D-Mass.) expressing support for Getting adequate numbers of diplo- global leadership—and more than 90 deploying more Foreign Service officers mats into the field is made harder by the percent of our fellow Americans say they overseas, M-designate Bulatao wrote: “If erosion in funding for core diplomatic do—it is simply not a good idea to leave confirmed, I commit to supporting Secre- capability—down nearly a quarter from second base and shortstop uncovered tary Pompeo’s field forward approach and 2008. This erosion manifests itself in while China is at bat. will work with each respective Bureau to embassies that are short-staffed, with over- If you will permit me to extend the align our personnel and expertise against stretched sections struggling to produce baseball metaphor—it is the season, after the Department’s most critical strategic required reports and handle visits, and all—during the past decade our country priorities.” section chiefs lamenting the squeeze on has devoted increasing levels of funding Bulatao went on to describe work- time for mentoring and pursuing high- to building and securing the stadium (the ing with Congress “as we develop and impact diplomacy. embassy compound) while squeezing implement plans to align additional Meanwhile, back at home, Congress funding for the players needed to take the State Department personnel overseas to has been holding hearings about America field and win the game. advance the security and prosperity of all losing ground to rising powers such as Luckily, we have highly skilled players Americans.” China. Alarm grows that Beijing, which ready—eager, even—to cover second This is good news for members of the has increased spending on diplomacy base and shortstop, ready to step into the Foreign Service eager for a chance to get by 40 percent over the past five years, is game. And luckily, Congress continues to in the game and prove their worth—and gaining commercial, economic and, yes, vote to reject cuts to our funding; what’s eager to advance the security and prosper- political ground more, for FY 2019, the Senate Committee ity of all Americans. It is also great news at the expense of on Appropriations voted 31-0 to begin to for American business, which is calling America’s global restore funding for core diplomatic capa- for increased embassy staffing to help leadership. bility, increasing funding for the “overseas level the playing field so they can compete These two programs” line item by $49 million. effectively overseas. And it is great news for trends are not That may not be much money—less the 90 percent of Americans who want to unrelated. Reduce than half, by way of comparison, of the see our country retain global leadership. funding for security bill for our consulate in Basra— Here’s to covering all the bases. n

Ambassador Barbara Stephenson is the president of the American Foreign Service Association.

THE FOREIGN SERVICE JOURNAL | SEPTEMBER 2018 7 FOREIGN SERVICE

Editor in Chief, Director of Publications Shawn Dorman: [email protected] www.afsa.org Managing Editor Susan Brady Maitra: [email protected]

Associate Editor CONTACTS Donna Gorman: [email protected] AFSA Headquarters: ADVOCACY Publications Coordinator (202) 338-4045; Fax (202) 338-6820 Director of Advocacy Dmitry Filipoff: [email protected] State Department AFSA Office: Kim Greenplate: [email protected] (202) 647-8160; Fax (202) 647-0265 Editorial Intern USAID AFSA Office: BUSINESS DEPARTMENT Jacob Borst: [email protected] (202) 712-1941; Fax (202) 216-3710 Director of Finance and Facilities Ad & Circulation Manager FCS AFSA Office: Femi Oshobukola: [email protected] Allan Saunders: [email protected] (202) 482-9088; Fax (202) 482-9087 Controller David Bloom: [email protected] Kalpna Srimal: [email protected] GOVERNING BOARD Controller, Accounts Payable and Art Director President Administration Caryn Suko Smith Hon. Barbara Stephenson: Cory Nishi: [email protected] Editorial Board [email protected] Administrative Assistant and Office Manager Alexis Ludwig, Chair Secretary Ana Lopez: [email protected] James “Jim” Bever Hon. Tom Boyatt: [email protected] Scholarships and Events Coordinator Fred Boll Treasurer Theo Horn: [email protected] Angela Bond Hon. Earl Anthony “To ny ” Wayne: M. Allyn Brooks-LaSure [email protected] COMMUNICATIONS AND MEMBERSHIP Karen Brown Cleveland State Vice President Shawn Kobb Director of Communications and Membership Ken Kero-Mentz: [email protected] Harry Kopp Ásgeir Sigfússon: [email protected] USAID Vice President John G. Rendeiro Jr. Online Communications Manager Priyadarshi “Pri” Sen Jeff Levine: [email protected] Jeff Lau: [email protected] Dinah Zeltser-Winant FCS Vice President Communications and Marketing Manager Daniel Crocker: [email protected] Allan Saunders: [email protected] FAS Vice President Awards Coordinator THE MAGAZINE FOR FOREIGN AFFAIRS Kimberly Svec Sawatzki: [email protected] Perri Green: [email protected] PROFESSIONALS Retiree Vice President Retiree Outreach Manager The Foreign Service Journal (ISSN 0146-3543), John K. Naland: [email protected] 2101 E Street NW, Washington, D.C. 20037-2990 is Christine Miele: [email protected] published monthly, with combined January-February State Representatives Retirement Benefits Counselor and July-August issues, by the American Foreign Service Karen Brown Cleveland Dolores Brown: [email protected] Association (AFSA), a private, nonprofit organization. Don Jacobson Material appearing herein represents the opinions of the Member Accounts Specialist writers and does not necessarily represent the views of Deborah Mennuti Ashley Dunn: [email protected] the Journal, the Editorial Board or AFSA. Writer queries Roy Perrin and submissions are invited, preferably by email. The Lilly Wahl-Tuco LABOR MANAGEMENT Journal is not responsible for unsolicited manuscripts, USAID Representative photos or illustrations. Advertising inquiries are invited. General Counsel All advertising is subject to the publisher’s approval. Vacant Sharon Papp: [email protected] AFSA reserves the right to reject advertising that is not FCS Alternate Representative Deputy General Counsel in keeping with its standards and objectives. The appear- Lola Gulomova ance of advertisements herein does not imply endorse- Raeka Safai: [email protected] ment of goods or services offered. Opinions expressed in FAS Alternate Representative Senior Staff Attorneys advertisements are the views of the advertisers and do Thom Wright Neera Parikh: [email protected] not necessarily represent AFSA views or policy. Journal BBG Representative Zlatana Badrich: [email protected] subscription: AFSA member–$20, included in annual Steve Herman dues; student–$30; institution–$40; others–$50; Single Labor Management Counselor issue–$4.50. For foreign surface mail, add $18 per year; APHIS Representative Colleen Fallon-Lenaghan: foreign airmail, $36 per year. Periodical postage paid Jeffery Austin [email protected] at Washington, D.C., and at additional mailing offices. Retiree Representatives Grievance Counselors Indexed by the Public Affairs Information Services (PAIS). Hon. Alphonse ‘Al’ La Porta Jason Snyder: [email protected] Email: [email protected] Philip A. Shull Heather Townsend: [email protected] Phone: (202) 338-4045 Senior Labor Management Advisor Fax: (202) 338-8244 STAFF James Yorke: [email protected] Web: www.afsa.org/fsj Chief Operating Officer Labor Management Advisor © American Foreign Service Association, 2018 Russ Capps: [email protected] Patrick Bradley: [email protected] Chief of Strategic Initiatives USAID and FCS Staff Assistant PRINTED IN THE U.S.A. Linnea Gavrilis: [email protected] Michael Wallace: [email protected] Postmaster: Send address changes to Executive Assistant to the President AFSA, Attn: Address Change Jennie Orloff: [email protected] PROFESSIONAL POLICY ISSUES 2101 E Street NW Office Coordinator Director of Professional Policy Issues Washington DC 20037-2990 Therese Thomas: [email protected] Julie Nutter: [email protected]

8 SEPTEMBER 2018 | THE FOREIGN SERVICE JOURNAL LETTER FROM THE EDITOR

The State of State

BY SHAWN DORMAN

t’s August 15 as I write this note, and What did we learn from the latest reform effort? I’ve just come back from hosting a Where does State go from here? table at lunch with the 194th A-100 Iclass, a glorious group of 82 bright and shining Foreign Service officers. They had Flag Day last Friday and are busy reform plan for this endlessly examined 1950 to 2015 are a reminder that there reading up on the posts around the world institution? What did we learn from the may, indeed, be nothing new under the they will call home for the next two years: latest effort and the ones before that? sun. Mumbai, Jakarta, Shanghai, Chengdu, Where does the State Department go This month’s Message from the Bishkek, Tijuana, Dar es Salaam… And from here? Hill comes from Representative Joa- just last week we got to welcome the The focus this month, “Beyond the quin Castro (D-Texas), who calls for a 148th, a new class of 89 Foreign Service Redesign: Can State Deliver?” takes up strengthened Foreign Service and con- specialists. this line of inquiry. In his “Blue-Ribbon gressional support for greater investment Foreign Service hiring has resumed, Blues,” Harry Kopp looks back at 60 in “rebuilding this venerable American and not a moment too soon. There is years of reform efforts and studies to try institution” at a time of complex and diplomatic work to do, and the pipeline to understand why so many good (and growing challenges. of new hires has finally started to flow some bad) ideas go nowhere. Ambassador (ret.) Tom Armbruster again. Secretary of State Mike Pompeo FSO Matt Boland presents a roadmap takes us on an environmental diplomacy lifted the hiring freeze on family member for effective strategic planning and imple- journey to the Marshall Islands. We then employment on his first day on the job, mentation, arguing that U.S. missions visit Camp David, circa 1978, with retired another good sign for the future of the already have the tools for getting to suc- FSO Frank Finver as he helps out during Foreign Service. cessful outcomes, they just need to pick peace talks that led to the signing of the The loss of dozens of senior-level them up and use them. Camp David Accords between Egypt and diplomats during the last 18 months— Then in “E-Hell: Is There a Way Out?” Israel—40 years ago this month. some of the best mentors for this next Ambassador (ret.) Jay Anania, a former Finally, the discussion of support (and generation—will be felt for years. But acting chief information officer for the lack thereof) for FS children with special the renewal has begun. The new A-100 department, lays out what’s wrong with needs continues in Letters-Plus, with an class even named itself the “Resurgent State IT—the perennial topic to end all inside look at what’s gone wrong in what 194th.” perennial topics—and how top-level former State child psychologist James You won’t hear anyone utter the sustained commitment could lead to Brush calls “The Demise of MED’s Child words “Redesign” or “Impact Initiative” significant improvements. and Family Program.” in the halls of the State Department Ambassador (ret.) Barbara Bodine, As always, we want to hear from today. It’s as if that most recent reform director of Georgetown’s Institute for the you, so please send letters to the editor project never hap- Study of Diplomacy, offers the view from and submissions on topics of current pened. But as any campus on human capital with “Who Is concern. And don’t forget to help cel- observer of the state of the Future of the Foreign Service?” And, ebrate the FSJ centennial by sharing State must ask, what goodness, there was a lot to choose from (to [email protected]) a photo of yourself was that? And what’s the FSJ archive on reform and the future or a friend with the Journal wherever the next signature of the Foreign Service. The excerpts from you are. n

Shawn Dorman is the editor of The Foreign Service Journal.

THE FOREIGN SERVICE JOURNAL | SEPTEMBER 2018 9 LETTERS

Remembering the are the numbers.” insurance plans already cover those East Africa Bombings I finally got them to visits), your family and your colleagues. The July-August FSJ stirred realize it wasn’t a joke. Routine check-ups can identify an area memories. Reading about It had been a long time of concern before it becomes a costly, these bombings reminded since anyone had attacked emotionally taxing and possibly life- me of the bombing of our a U.S. embassy. threatening emergency. embassy in Saigon in 1965. I When Miki and I finally I’ve always appreciated it when my was typing in the Commu- went for lunch, we automati- managers have encouraged their team- nications Center and recall cally walked down the stairs. mates to allocate the time for routine being surprised at how long the BOOM We could tell everyone else check-ups, because those signals create went on. When we hear bombings in had, too, from the bloody handprints on an environment for employees to do movies, it’s just “boom” and it’s over. the wall. I found out later that the eleva- affordable preventive maintenance and I put my head on my typewriter as tor never stopped—in fact there was take steps to heal themselves quickly did Miki Lovett, a co-worker. As I did an employee in it when the bomb went when they do fall ill. so, I looked back and saw a flimsy wall off. It turned out that our building, very It’s good for morale and it’s even between our distribution center and old, didn’t have steel beams but was put better for productivity, because healthy the file room coming down, with tons of up using pressure. We had virtually no employees are more likely to be effec- debris behind it. structural damage. tive. We were lucky that a woman working Meanwhile, nearby stores and dwell- Scheduling routine check-ups at in the file room had heard the shooting ings were demolished. I hate to think home and abroad is an important ele- and raised the window of frosted glass how many Vietnamese were killed. One ment of preventive health care. Kero- to look out. Because of this we just had young embassy employee was killed, Mentz’s encouragement to tap into bits of glass flying around, not the big Barbara Rollins, and a Merchant Marine MED’s network of English-speaking shards other offices had. walking outside the Consular section doctors for preventive physical and Our supervisor had been standing in also died. mental health check-ups abroad is an the door of the distribution room just So many of our staff had serious excellent recommendation. before the blast, and I’d been talking wounds, and some were flown to the It’s also important to consider to him. He made a dive for the “back Philippines for care. We considered designating a person who can advocate room,” and the door was pitted with bits ourselves lucky. for your health care in case you fall ill of glass. He was not hurt. After the bombing we were told that or are injured. For most of us that is The two women in the file room if we were in the building at the time of our spouse, but what if our spouse is had some nasty scratches, and the one the bombing, we would have five days not present at post when we are ill or who’d looked out the window had some R&R, and if we were wounded, seven injured? Moreover, what if one is single permanent damage to her eye. Other days. That was our therapy. and does not have a spouse? than a few miscellaneous scratches on Judy Chidester Maintaining updated living wills, the rest of us, we were unscathed. FSS, retired designating power of attorney and mak- We immediately began cleaning up Las Cruces, New Mexico ing these documents readily available because we knew there’d be a lot of during a health care emergency are telegrams in and out for the rest of the Keeping Up with important steps to ensure our personal day. Within just a few minutes another Health Care health is maintained when we are agency, USAID, called to tell us they had I applaud AFSA State VP Ken Kero- unable to do it ourselves. some missing telegrams. Mentz for his column, “Deferred Main- To that end, I hope medical units I told them I would appreciate it if tenance,” in the July-August Journal. will consider talking to newly arrived they’d call later because the embassy Scheduling those routine physical employees and their family members was just bombed, and they laughed and exams is good for your health, your about the status and availability of their said, “Oh, Judy, that’s funny—but here pocketbook (because many health living wills and health care power of

10 SEPTEMBER 2018 | THE FOREIGN SERVICE JOURNAL attorney documents during the check-in his counterparts with great respect even of our Foreign Service, Civil Service, process at post. amid turbulent relations. military and intelligence services have Living abroad is hard, and a small RIP, Ambassador Karlov. neither the time nor inclination to nudge can enhance the preparedness of Julie M. Stufft obsess over politics, though the issues our community to respond to health care Deputy Chief of Mission of the day are felt by all. Their focus is emergencies with efficiency, compassion Embassy Chisinau on the work that needs to be done to and humanity. stabilize the most dangerous relation- David S. Boxer Ambassador ship in the world, one that encompasses FSO Jon M. Huntsman: nuclear weapons, fighting terrorism, Arlington, Virginia Foreign Service Leadership stopping bloodshed in Ukraine and At first, I wasn’t certain what it was seeking a settlement of the seemingly Remembering all about, my email queue bulg- intractable Syrian crisis. Their dedica- a Russian ing with messages from Foreign tion to service to their country is above Diplomat Service colleagues serving abroad politics, and it inspires me to the core. It I enjoyed read- and retired. is my standard.” ing Phil Skotte’s Just one of them nicely sums up Adds Huntsman: “I have taken an May Speaking Out, what all were feeling: “Ambassador unscientific survey among my col- “What State Should Huntsman has done us proud! Wel- leagues, whom you reference, about Bring to the Table: come back, Foreign Service!” whether I should resign. The laughter Cultural and I hadn’t yet read the Salt Lake told me everything I needed to know.” Language Expertise.” Tribune response from Huntsman to As the ambassador says, the Foreign Not only does he make a great case columnist Robert Gehrke’s call on him to Service must remain above politics. We for regional specialization, but his resign as ambassador to Moscow given serve the flag. Our focus should be but anecdote about an unnamed Russian the controversy surrounding President one objective: abiding by the Constitu- diplomat resonated deeply with me. Donald Trump’s July 16 meeting with tion as chief foreign policy adviser to As a fellow Embassy Moscow alum, Vladimir Putin. the commander-in-chief. I also had the opportunity to work It was that reply, “Why I’m Stay- This includes providing support to with the diplomat Skotte is referring ing,” that infused so much energy in advance America’s security, strengthen to—Ambassador Andrei Karlov, whose my friends. Indeed, it was the kind of its unity of purpose and make it an even unmatched diplomatic experience in morale-booster the Foreign Service has greater nation. This is our institutional North Korea provided his U.S. coun- needed for many years now. standard. To do anything less is to have terparts at that time with fascinating Amb. Huntsman’s response gives failed. n background on working with and in the us all something to be proud of for a Timothy C. Lawson DPRK. He was a picture of profession- change. After such a long period of neg- Senior FSO, retired alism and bilateral cooperation, and ativity, almost a “whole-of-government” Hua Hin, Thailand always enjoyed his high-level consular effort against our president, finally we consultations in Washington and Mos- see something different. cow. We see an ambassador who is not Years later, on Dec. 19, 2016, Amb. resigning, but instead speaks out on Karlov was tragically assassinated in behalf of the president and the nation. He Ankara while serving as the Russian occupies one of the most important U.S. Share your thoughts about Federation’s ambassador to Turkey. diplomatic posts in the world—Embassy this month’s issue. Particularly now, I remember Andrei Moscow—and tells us why it’s important Karlov as a committed career diplomat that the Foreign Service stand up and Submit letters to the editor: who sought to build bridges between stand tall when the going gets rough. [email protected] Russia and the United States, treating Says Huntsman: “Representatives

12 SEPTEMBER 2018 | THE FOREIGN SERVICE JOURNAL LETTERS-PLUS

Response— Here is another contribution to the The Demise of MED’s discussion thread on support for Foreign Service children with special Child and Family Program needs that began with the Speaking Out by Kathi Silva in March (“Fami- BY JAMES BRUSH lies with Special Needs Kids Need Support”). he Child and Family Program We were provided telemedi- The May FSJ contained a response within the Bureau of Medical cine units and were charged from Dr. Charles Rosenfarb, medical Services’ Mental Health program with developing a telemedicine director of State’s Bureau of Medical Twas constituted in 2013, when program offering clinical sup- Services (“Our Commitment to For- the full team was finally in place after port to the medical providers eign Service Families”). Letters in the years of planning. I was brought onto the around the world in U.S. missions. April, May and July-August editions team as one of two child psychologists. By Because the mental health needs added to the conversation. March, we had on board a child psychia- of children and adolescents are a trist director, two child psychologists and specialty that few of MED’s pro- three clinical social workers who had viders have, the CFP was to offer experience in treating and managing the guidance and support to those needs of children and adolescents. working “on the ground” with I was on the ground floor of this State Department families. who has not previously been known program, and our mission was both We were also to develop a program to be having problems because child and exciting and challenging. This was the of brief mental health consultation teen behavioral health needs are usually first extensive effort within the State through the use of telemedicine. This not chronic and crop up because of life Department to support the specific type of support has been requested by circumstances or trauma. mental health and developmental families for years and is still very much Medical evacuations are extremely needs of children, adolescents and their needed. This program was not only to disruptive for families, often requiring families living abroad. support families, but to try to reduce family separation or entire families leaving We were to bring the various child the medical evacuations of children post and temporarily relocating for evalu- welfare activities under one roof, allow- and adolescents with behavioral health ation and treatment of the child or teen ing for a continuum of care for children problems. and the family. It is also very disruptive to and adolescents and their families. This The typical medical evacuation of a a mission, which often must do without an meant that child mental health clear- child or adolescent for a behavioral health employee for an extended period of time. ances, administration of the Special problem lasts about six weeks, with evalu- Further, medical evacuations are Needs Education Allowance (known ations and treatment taking place in the extremely expensive, when accounting for as SNEA) and child medical evacua- United States. And it usually involves a the costs of relocating and housing a child tions for mental health reasons would child or youth who has not been “on the and perhaps an entire family, the evalu- be managed as a seamless activity. In radar” through the clearance system. In ation costs and the treatment costs. The addition, a new range of services was to other words, the typical behavioral health cost savings would occur from improved be offered. medical evacuation is of a child or teen triage and brief treatment for those with conditions that can be easily resolved or James Brush, Ph.D., is a child and adolescent psychologist in private practice in Washington, supported at post. D.C. He worked at the State Department as a child psychologist with the Child and Family Examples of medical evacuations pre- Program division of MED Mental Health from January 2013 through March 2016. Prior to his vented by telemedicine consultation while work at State, he had a private practice in Cincinnati, Ohio, for 26 years. A past president of the we were piloting this program include Ohio Psychological Association, he continues to be involved as a committee chair. a preschooler who had toileting prob-

THE FOREIGN SERVICE JOURNAL | SEPTEMBER 2018 13 This program was not only to support families, tioning as a comprehensive support program ended up having leadership but to try to reduce the medical evacuations roles in MED. Dr. Stephen Young took of children and adolescents with behavioral over as the director of mental health. health problems. Dr. Kathy Gallardo took over as deputy director of mental health, and Dr. Aleen Grabow was brought in as a child psychiatric consultant. Together, they worked toward limiting the scope of the lems and a school-aged child who had taking care of the behavioral health and CFP, limiting the SNEA program and developed school phobia. I was involved developmental needs of their children. reducing the opportunities for families in 10 consultations in our pilot program We expected growing pains, and with disabled children through more that were mild problems being considered we expected there would be a need to restrictive use of child mental health for medical evacuation simply because educate employees about how to use the clearances. there were no local treatment options. All various programs being developed. We Within a year of their tenure in the children and teens improved while expected a lot of individual work with leadership, we lost our child psychiatrist maintaining the family at post. families to link them with needed services. director, the two child psychologists and The Child and Family Program was We expected a need to request changes one clinical social worker. I and the other also charged with tightening proce- to SNEA and other processes that would providers left because Drs. Young and dures in the administration of the SNEA need upper management direction. Gallardo changed the mission and scope program. The SNEA program had been What we did not expect was suspicion of the CFP. It became an unpleasant place inconsistently administered, and policies and animosity from our State Department in which to work, with the emphasis being and procedures for SNEA had drifted from colleagues and many in the MED leader- on clearances and restricting access to State Department rules and regulations ship. We thought everyone was on board SNEA. Support for families was no longer and from the spirit of the Individuals with with this new program. But we found that the focus. Rather, support services were Disabilities Education Improvement Act many MED psychiatrists, some members being cut and the clearance process was of 2004 law and other disability laws on of the Office of Overseas Schools and being used to restrict the opportunities of which it was based. some within the Family Liaison Office those with disabled children. Many parents were upset by changes were prepared to torpedo the CFP from The program is now a skeleton of in how SNEA was administered. The new the start. I never understood the opposi- what it was previously, with only one CFP worked closely with the Office of tion to the program by members of the social worker, one child psychologist and Allowances to assure adherence to the Office of Overseas Schools and the Family one retired Foreign Service psychiatrist. policies and procedures governing SNEA Liaison Office. Telemedicine is forbidden. The program and the Foreign Affairs Manual. We scru- We had been told when we began now basically performs an administrative tinized services paid for by SNEA carefully that the CFP was part of a strategic function, processing clearances and SNEA and communicated more with financial initiative developed by MED and upper requests. management officers. Our goal was to State Department management that was This was a very sad, missed oppor- include all stakeholders in the process, intended to consolidate support services tunity for the Department of State to to be more transparent and to be more for Foreign Service children and their support their employees with families consistent in decision-making. parents living abroad: the SNEA process, abroad. I hope for the sake of State Our hope was that in five years, the child educational clearance and Department families that the idea of a more comprehensive and robust child mental health clearance process, the Child and Family Program can be program of support for children and and the medical evacuation process for revived. But, if so, it will need full- families would be in place, with clear children and teens. throated support from upper manage- policies and procedures, so that families By 2015, three of the psychiatrists ment so that it cannot be subverted by would find ample support from MED in who were opposed to the CFP func- those with a different agenda. n

14 SEPTEMBER 2018 | THE FOREIGN SERVICE JOURNAL A MESSAGE FROM THE HILL

A Foreign Service for America

BY JOAQUIN CASTRO

rom the rise of China, expanded our nation—will fall short in ensuring Russian aggression with the inva- the prosperity and security of American sion and occupation of Ukraine ideals around the world. Fand meddling in the 2016 U.S. Since January 2017, the Trump election, to the testing of our interna- administration has steadily attacked tional institutions like NATO and the America’s diplomacy and develop- European Union, America needs swift ment corps at the State Department diplomacy that adapts to the growing and USAID. The hiring freeze, failure to chorus of challenges we face. appoint diplomats to critical positions, To leverage opportunities and stem pushing senior diplomats out the door, expanding its presence in the South China conventional and unconventional threats, alleged vetting of employees for loyalty Sea; and as a newly sworn-in president the United States must renew confi- to the president’s foreign policy agenda, needed to articulate a professional, well- dence in our leadership, diplomacy and consideration of offering $25,000 buy- designed foreign policy that maintained values abroad. At the core of this effort outs to seasoned professionals (until America’s voice on the world stage. is a strengthened Foreign Service that Congress objected) and a mismanaged maintains American engagement with our “redesign” led by then-Secretary of State Rebuilding Diplomacy allies and promotes diplomacy and devel- Rex Tillerson caused long-lasting dam- We saw bipartisan pushback from opment in all corners of the world. age to the nation’s diplomatic abilities. Congress against the administration’s But during the last year and a half, The mass exodus of high-level employ- deep cuts to the State Department’s we have seen flagging commitment to ees crystalizes the current morale of budget and workforce, and a mandate to this important and strategic goal. The the State Department, and this damage restart A-100 classes and bring Foreign Trump administration attempted to cut occurred at precisely the time we needed Service officers on board. our diplomacy and development agen- the expertise of our diplomats to address We are now in the process of rebuild- cies by nearly one-third, but Congress growing challenges. These cuts took place ing this venerable American institution, pushed back on that. Congress must as North Korean missile tests flew over which will require greater investment in restore our commitment to advanc- Japan, a country we are committed to core diplomatic capability, in our For- ing American leadership abroad and defend by treaty; as the United States was eign Service. If the administration and equipping our diplomacy with the tools called to mediate a dispute between Qatar Secretary Mike Pompeo refuse to do so, needed to best serve our interests. If we and its Arab neighbors; as Beijing contin- Congress has a moral obligation to step don’t, our Foreign Service officers—and ued its assault on a rules-based order by in. These are our frontline civilians, and Congress must have the foresight to give Joaquin Castro (D-Texas) represents Texas’ 20th district (San Antonio) in the U.S. House of them tools for success. If we don’t, we Representatives. Serving his third term, Rep. Castro sits on the House Intelligence and For- risk sending our sons and daughters into eign Affairs Committees and is first vice chair of the Congressional Hispanic Caucus. Rep. a much more dangerous situation than Castro also serves as chief deputy whip and is a member of the Democratic Steering and we see today. Policy Committee. He is also founding co-chair of the Congressional Pre-K Caucus, the U.S.- Unfortunately, we have been here Japan Caucus and the Congressional Caucus on ASEAN. Rep. Castro also hosts the foreign before. The period after the end of the Cold policy podcast Diplomatic Cable. War saw a drawdown at the State Depart-

THE FOREIGN SERVICE JOURNAL | SEPTEMBER 2018 15 The United States must prepare for an minorities into our Foreign Service through a highly selective program. I uncertain future by innovating and supporting also commend the State Department’s diplomacy. practice of placing diplomats-in-resi- dence in different parts of our country. We must do more to recruit from these under-represented states, cities, univer- ment, with a budget slashed and the U.S. engagement with dynamic regions like sities and communities. presence abroad significantly reduced. Southeast Asia or West Africa. Only by giving Americans from all Times were calm and money was tight, walks of life a direct say and participa- and we ultimately were forced to play A Foreign Service tion in our country’s engagement with catch-up after the attacks on Sept. 11, 2001, for the Future the rest of the world can we build a forced the United States to engage with To invest in American diplomacy durable constituency at home for diplo- a wider range of partners and enemies. now, it is critical we strengthen the For- macy and American global leadership. We called on an under-resourced Foreign eign Service and our nation’s frontline The United States must prepare for Service to undertake new and expanded civilians. This includes sending officers an uncertain future by innovating and missions to ensure the security and back to the field, restarting the consis- supporting diplomacy. The Foreign Ser- prosperity of American citizens—includ- tent pipeline of new A-100 classes, and vice has strong allies in Congress who ing bureaucratic infighting. Long tours at expanding training and educational recognize the need for a professional hardship posts and a burst in hiring that opportunities to maintain and improve diplomatic corps that puts country over disrupted the natural course of progres- skills in a changing world. partisanship or politics. Congress will sion within the Foreign Service all strained New challenges and opportuni- also need allies in the administration, our core diplomatic capability. ties demand this reinvention. We must academia and other parts of civil society While the current cuts to American invest in greater technical skills and to make our diplomacy more inclusive, diplomacy are not as extensive as what defend the core values and mission more representative and, ultimately, occurred two decades ago, the wise of the Foreign Service. We must also more effective. listen to history’s best lessons. expand the State Department’s mandate We must adapt to meet the chal- We face new challenges today—from and resources in a budgetary environ- lenges we face today. We will legislate the looming threat of trade war that ment where other departments may be when necessary, for example, to allow requires careful diplomacy and the pros- better resourced to address challenges FSOs to terminate costly contracts they pect of dismantling Pyongyang’s nuclear for which State should be the lead. enter before their service or to account capability, to hostile cyber activity that is This is also an opportunity to imagine for the latest technology in embassy and below the threshold of all-out war. Any what kind of Foreign Service the United consular security policies—such as the of these could escalate and necessitate States needs to meet the challenges Protecting American Diplomats from a surge in diplomatic capability, as we and opportunities ahead. If we are to Surveillance Through Consumer Devices needed on Sept. 12, 2001. assuage the parts of our country that are Act (H.R. 4989) that I introduced with The norms and institutions that losing faith in diplomacy and American Rep. Michael T. McCaul (R-Texas) and govern our international world, care- leadership abroad, we must strive to which passed the House of Representa- fully crafted and shaped over decades make sure they are included in Ameri- tives this year. by members of the U.S. Foreign Service, can diplomacy by expanding diversity in We all have a duty—Democrats and are increasingly questioned by a rising the Foreign Service. Republicans alike—to ensure that our China, a revisionist Russia and even The Foreign Service must reflect the government, and specifically our For- some within the United States and growing diversity of our country. I sup- eign Service, represents the best of our allied nations. We also must be ready port and have acted to expand programs nation abroad. Conversations such as to confront the risks of cyberwarfare, as like the Rangel and Pickering fellow- these help us define exactly what kind of well as the benefits offered by economic ships that bring under-represented country we wish to be. n

16 SEPTEMBER 2018 | THE FOREIGN SERVICE JOURNAL TALKING POINTS

Talking Points for to convince a larger audience that the America leaves a leadership vacuum. U.S. Global Leadership international system the United States “America’s power and influence ormer Under Secretary of State for created and defended remains a crucial are multiplied when we work with FPolitical Affairs Marc Grossman foundation of Americans’ wealth and other countries. We need likeminded offered five “truths” to help explain to power. friends and allies who can assume some the American public why U.S. global “Those who believe that America of the burdens of global leadership and leadership matters in a July 20 op-ed remains a powerful force for good in the together solve problems that even the posted by YaleGlobal Online. world must now make this case in new, United States can’t manage alone. An “During almost three decades as a more forceful ways. Instead of further isolated America is a less successful and member of the U.S. Foreign Service, I exhortation to support the ‘liberal rules- secure America. was privileged to play a modest role in based international order,’ here are five “America is better off having more the design and nurturing of what many ‘truths’ to use in public: democracies in the world rather than call the ‘liberal rules-based international “America’s global power and influ- more autocrats and dictators. A world order.’ Today, that order—created by ence are good for Americans. Our growing in freedom is a world where Americans and our allies and friends economy grows and our country is safer Americans can advance U.S. interests and supported and upheld by U.S. mili- when we have a strong military and and enjoy greater peace and prosperity. tary and diplomatic power—is under strong diplomacy to keep and expand “Americans are richer when attack at home and abroad,” Grossman that power and influence. America is the world leader in the writes. “America is more powerful and global economic system. Estimates are “As a diplomat, I learned that how prosperous when there are clear rules that more than 41 million U.S. jobs are one describes things matters. The words and we set them. How many Americans connected to trade with other nations. ‘liberal rules-based international order’ want to live in a world where China or American workers are not afraid of com- mean nothing to 99 percent of the Amer- Russia sets the rules—or there are no petition, so long as it is fair and provides ican public. …. The urgent challenge is rules at all? That’s what happens when benefits to all.”

SITE OF THE MONTH: VOX BORDERS

hile the world grapples with ever-changing migra- The series Wtion patterns, Vox Borders offers human stories from shows viewers geographical and political borders around the world. The what life is like first season’s six short videos (each approximately 12 to 15 for residents of minutes) highlight some of the daily struggles at six borders, the border regions. including Haiti-Dominican Republic, Mexico-Guatemala and In one episode, Vox shares the story of North Koreans living Russia-Arctic. in Japan while remaining loyal to the North Korean regime. Vox journalist Johnny Harris went to each region to do “This isn’t a story about a physical border,” the website on-the-ground research, bringing the border to the viewer notes. “North Koreans living in Japan experience a much less with a video and a brief written introduction to the issues of visible kind of border, one made of culture, tradition, history the region. and ideology.” Says Harris: “Borders can encourage exchange or insti- The show recently started its second season from Hong gate violence. They can provide refuge, or they can crimi- Kong, where producer Harris sought out locals to contribute nalize those who cross them. Borders symbolize a nation’s ideas for places, stories and connections in the area. anxiety about the world, and as political leaders regulate the Season One episodes can be found at https://www.vox. lines on the map, there will always be human stories at the com/a/borders. The first two episodes of season two can be mercy of those choices.” found at Vox Borders on YouTube and Facebook.

THE FOREIGN SERVICE JOURNAL | SEPTEMBER 2018 17 the American Foreign Service Associa- southern border. Some 2,300 children were tion has been advocating putting more separated from their families. American diplomats in the field—shift- The event, moderated by the well- Business Council Calls ing positions that are now in Washing- intentioned “Carl and Kim” from the for Diplomatic Backup ton to overseas embassies to fight for our Bureau of Consular Affairs, was meant n June 26, the president of the Busi- businesses. BCIU would like to strongly to answer questions for U.S. citizen Oness Council for International Under- endorse this common-sense idea. parents planning to travel abroad with standing, Peter Tichansky, sent a letter to “Our members tell us that their pri- their children this summer. A State Secretary of State Mike Pompeo urging him vate sector and government customers Department official told The Hill that to put more diplomats in the field to help abroad want more American business, the campaign was part of a “seasonal U.S. businesses compete worldwide. not less; more American investment, outreach campaign,” but it came across A nonpartisan organization with 200 not less. They want reliability and as particularly tone-deaf. member companies, BCIU aims to expand quality, and they want businesses that The moderators weren’t prepared international trade and commerce by operate fairly. American business can for the onslaught of questions such as assisting its members to engage interna- answer that demand, but to do so they “When travelling can we pick which size tionally. need to be able to count on fully staffed cage we want our children to be jailed The letter states: “Since President embassies to help remove the impedi- in?” and “I have a 4-month-old. What Eisenhower established BCIU in 1955, ments that keep them from doing busi- sort of work will he be prescribed when we have worked to strengthen embassy ness abroad. … taken into the camp? His skills include effectiveness in leveling the playing field “Mr. Secretary, we want to help you rolling over,” and “While in your camp, overseas—ensuring contracts are hon- deliver on your vision, and that includes will the children learn a trade...like pick- ored, improving government procurement giving our companies every fair advan- ing veggies or digging ditches?”—along processes and generally bolstering the tage around the world—including getting with hundreds of other comments like rule of law so American companies can more of our diplomats in the field, work- those posted to Facebook and Twitter compete and win. ing for American prosperity, our busi- ahead of and during the session. “We have always counted on State nesses and our values.” The administration backed off the Foreign Service officers, along with their practice of separating families following Foreign Commercial Service counterparts, Facebook Live Event a June 26 court order requiring officials to bring the full weight of the embassies to Goes Horribly Wrong to stop detaining parents apart from bear when host governments or govern- omeone on the State Department’s minor children and to reunify those ment-backed businesses fail to honor Ssocial media team wasn’t think- who have been separated. A federal contracts or engage in back-room deals to ing about the bigger picture when they judge in San Diego ruled that all families unfairly cut out competition. decided to schedule a Facebook Live Q&A must be reunited within 30 days of that “We agree with the president’s intro- session on traveling with children overseas ruling and by July 10 if the children are duction to the National Security Strategy: titled “Family Travel younger than 5. These the U.S. faces a dangerous and complex Hacks” on June 19—at deadlines proved world, filled with a wide range of threats the same time as the impossible to meet; that have intensified in recent years. We Trump administra- as of mid-August, see it every day in business—our compa- tion was under fire for the government had nies face very sharp global competition, separating migrant reunited hundreds of and our competitors often don’t always families at the border children with parents, play by the same rules as we do. … and locking the chil- but it was still strug- “We need more backup, so we are dren up in detention gling to locate all par- writing to you to see if you would con- centers in an effort ents and children who sider sending more diplomats to help to deter people from had been separated. level the playing field. We know that trying to cross our

18 SEPTEMBER 2018 | THE FOREIGN SERVICE JOURNAL Mystery Illness eral employees and family members were deputy assistant secretary for Western Hits Embassy Staff evacuated from Guangzhou in June after Hemisphere affairs, said at a House of in China Posts complaining of similar symptoms. Representatives Foreign Affairs Commit- he mysterious illness that resulted in “We don’t know who is responsible, tee hearing on July 11. Ta drawdown at U.S. Embassy Havana and we don’t know what is responsible A total of 26 Americans have been now seems to have spread to China. Sev- for this,” Kenneth Merten, acting principal sickened in Cuba since 2016, according to

Taking Risks to Support Heard on the Hill competitors are methodically expanding the Nation influence as we pull back. If you don’t want to be in endless wars, if you The other approach is to be a leader when want to have more tools than dropping bombs, we’re still the world’s only superpower— it is essential we have a robust foreign assis- thanks to sacrifices of generations of Americans tance account. It is essential that our diplomats, coming before us. That is the approach the under your command, serve safely. To the subcommittee has taken. The lion’s share of the public, I often talk about the military because credit goes to the chairman because he com- they deserve it. But I don’t talk enough about mitted at the beginning, and we did it together, the State Department and the USAID members that we would try to be bipartisan and try to who serve in very dangerous locations without JOSH have a unanimous vote. And we did. the security footprint that we would like. But they take risks on —Ranking Member Patrick Leahy (D-Vt.) from the behalf of this nation every day, and they are very much heroes. Senate SFOPs Review of the FY2019 Budget Request —Sen. Lindsey Graham (R-S.C.), chairman of the State, for the Department of State on June 27 Foreign Operations and Related Programs Appropriations Sub- committee, from the Senate SFOPs Review of the FY2019 Budget For the Record Request for the Department of State on June 27. According to the non-partisan American Foreign Service Association, funding for core diplomatic capabilities has Funding Support for Diplomacy fallen by about 25 percent over the last decade and, during The committee unanimously reported the Fiscal Year 2019 the same period of time, diplomatic spending by China has State foreign operations bill—it’s hard to get a unanimous con- increased over 40 percent. Mr. Chairman, I would ask if we clusion that the sun rises in the east, but we did it. We rejected could include an article on the subject from the American the cuts proposed by OMB, and our goal was to enable the Foreign Service Association in the record. Without objection. United States to be the global leader that so many Americans Thank you. have sacrificed for over these decades and generations. —Sen. Jeanne Shaheen (D-N.H.) at the Senate Foreign Rela- It means we have to lead by example. We have to stand up tions Committee “Nominations Hearing for Mr. Brian Bulatao for our values and principles. We have to pay our fair share and Dr. Denise Natali” on July 18, submitting Ambassador to support international organization and alliances. We have Barbara Stephenson’s July-August FSJ President’s Views to protect our interests, support policies and programs that column, “Getting Our Team on the Field,” for the record. enhance our reputation and credibility. I will close with this, I think we have two choices. One is Serving in Baghdad to cut the budget for the State Department and USAID by I met with Ambassador [Douglas] Silliman and several 25 percent, slash our contributions to the United Nations, Foreign Service officers at the U.S. embassy in Baghdad. Our withdraw from international agreements and treaties, diplomats abroad are our eyes and ears on the ground in embrace corrupt despots who trample the rights of their some of the world’s most challenging places—and they often citizens, close our borders to people fleeing violence and put their lives on the line as well. war, bully our neighbors, ignore the fact that our strongest —Sen. Elizabeth Warren (D-Mass.), on her Facebook page.

THE FOREIGN SERVICE JOURNAL | SEPTEMBER 2018 19 Reuters. Their symptoms included hear- Statement for the “History should record that U.S. ing loss, headaches, tinnitus and vertigo. Record on the 20th personnel in both embassies showed The State Department issued a health Anniversary of East extraordinary leadership and personal alert for China on May 23, according to Africa Bombings courage in their response to the attacks, the Washington Post, after an employee of n July 26 Representative Ed Royce rapidly responding to locate and rescue the consulate in Guangzhou began exhib- O(R-Calif.) issued a statement for victims,” wrote the congressman. “Their iting symptoms of a brain injury following the record regarding the bombings of offices were on fire and their colleagues exposure to “strange noises.” our embassies in Kenya and Tanzania dead and injured—but these men and One department employee, Mark 20 years ago. More than 200 people women responded immediately and Lenzi, told the Washington Post that he were killed in the attacks, including 12 quickly restored embassy operations. began hearing the sounds in April 2017. Americans, and more than 4,000 were “Unfortunately, we in Washington did After that he, his wife and his son began injured. not respond as quickly to the strategic experiencing “excruciating” headaches. In his statement Rep. Royce recog- threats we witnessed that day. The pre- The family was later evacuated. nized the courage of the Kenyan and cisely coordinated attacks on our embas- The cause of the illnesses is still Tanzanian security and emergency per- sies were a declaration of war. … But we elusive, with the most common theory sonnel and offered condolences to the failed to heed that warning and paid a being tied to faulty or crossed-wire Kenyans and Tanzanians who suffered price three years later when al-Qaida took listening devices. due to the attacks. us by surprise and struck again on Sept.

50 Years Ago

Do’s, Don’ts and Lots of Compliments

ample Air France tips and comments to potential French roads and so many cars. Trains are luxu- Stourists in its “New World 1968.” riously organized. Regular-scheduled • Don’t hesitate to ask directions from anyone in the U.S.— airlines serve 950 American cities. the American is always happy to oblige and is very clear in his • The U.S. is particularly well explanations. equipped with hotels and motels, the • Don’t take too much baggage. You can easily buy anything latter often in a pretty, natural setting. you need in an American store when you get there. • American food is pure, abundant, and of excellent quality. • Nothing can give you a better idea of American opulence Restaurants serve at all hours, which is very practical for tour- than a big U.S. department store. You absolutely must see one ists. A touching custom: Even before you have placed your to believe it, even if you don’t need anything definite. There order, you will be served a glass of water. This is a practice are very good buys to be made in them. If the salesgirl asks, dating from the time of the pioneers, when nothing gave “May I help you?” and you reply, “No, just looking,” she will greater pleasure to the tired horseman than some fresh water answer something like “You’re welcome.” to quench his thirst. • They are very much on time in the U.S. If you have an •The Americans are very hospitable … their attitude is appointment or a dinner engagement, be on time or have a naturally friendly. They quickly enter into conversation with very good explanation when you get there. you. Encourage this familiarity. But remember that American • Indispensable to the American way of life, the telephone usages are rather fixed and that American women expect service is practical, quick and not very expensive. There are plenty of courtesies. Also that American children are kings public telephones everywhere. and relations with their parents much more free than in • With their marvelous sense of organization and comfort, Europe. the Americans have equipped their country for very easy —From an anonymous Letter to the Editor by the same title, traveling about. Nowhere in the world are there so many good FSJ, September 1968

20 SEPTEMBER 2018 | THE FOREIGN SERVICE JOURNAL Contemporary Quote: Personal diplomacy is not new. It’s what Franklin Roosevelt attempted to do with Stalin toward the end of World War II. And, in regard to Putin, it’s what George W. Bush attempted to do. … But personal diplomacy can only take you so far. It can start a conversation, can break through some initial resistance. But after that you really have to have your diplomats and your other members of your national security team sit and begin to work out the issues and the problems, and look for ways to address them. And that really is going to be the challenge here.

—Ambassador (ret.) and former Under Secretary of State Tom Shannon in a July 17 interview with Vice News Tonight.

the first time al-Qaida struck the United States, but the first battle in our struggle against terrorism took place on Aug. 7, 1998, outside our embassies in Nairobi and Dar es Salaam. Our diplomats were on the front lines that day, and they con- tinue to serve on the front lines around the world today.” “And the threats continue. In recent years, terrorists have killed American dip- lomats in Libya, Iraq, Sudan and Afghani- stan, while hostile intelligence services actively target our personnel in China, Russia, Cuba and elsewhere. Mr. Speaker, the history of the East Africa bombings 20 years ago shows us that we ignore threats to our diplomats at our own peril. Let us Congressional Record, therefore resolve to remember those who July 26, 2018 gave their lives for our country and dedi- cate ourselves to protecting America’s national security by committing ourselves 11, 2001—this time killing nearly 3,000 in to a strong, secure and effective Foreign a series of similarly coordinated attacks in Service.” New York, Virginia and Pennsylvania. “Our diplomats are often the first A Question of Diplomatic to spot threats to our national security Immunity before they arrive on our shores. These t a time when following the news intrepid professionals defend our national Ais like drinking from a fire hose, security, enforce our laws, and protect the July 16 Helsinki meeting between our fellow citizens overseas. And they are President Donald Trump and Russian often the first Americans our enemies tar- President Vladimir Putin continues to get. Many Americans remember 9/11 as reverberate. The public, let alone diplo-

THE FOREIGN SERVICE JOURNAL | SEPTEMBER 2018 21 matic practitioners, still does not know what was said and what promises might have been made in the private meeting without notetakers. One of the stories to come out of the Helsinki summit was the apparent will- ingness of President Trump to consider allowing the Russians to interrogate for- mer U.S. Ambassador to Russia Michael McFaul and 11 other U.S. officials. The foreign affairs community reacted with outrage. Helsinki Commission Chairman Senator Roger Wicker issued a statement July 19: “Vladimir Putin’s suggestion that the United States make American public servants available to Kremlin investigators is ludicrous.” In a July 20 statement, the American Academy of Diplomacy explained: “Full diplomatic immunities are essential to protecting diplomats in their efforts to keep their government fully and com- pletely informed without hindrance from other states and to carry out foreign pol- icy in all its aspects, free of such interven- tion or the threat of such intervention. “American diplomats need to be able to trust that their immunities will be fully preserved by both, so long as they are performing their duties and in connection with previously performed duties covered by such immunities under international law. Administrations and policies may change, but our diplomats must be confident that our government has their back.” To the suggestion that the United States offer up Amb. McFaul for ques- tioning by Russia, Secretary of State Mike Pompeo said, “That’s not going to happen.” n

This edition of Talking Points was compiled by Donna Gorman, Shawn Dorman and Jacob Borst.

22 SEPTEMBER 2018 | THE FOREIGN SERVICE JOURNAL SPEAKING OUT

Diversity: Not Just a Cause for the Underrepresented

BY JAY PORTER

colleague, who recently served Diverse Teams Are Where private-sector companies com- as international narcotics and More Successful pete with one another to attract diverse law enforcement director at The value of diverse teams in the pri- candidates to give them an edge, the Aan overseas post, described vate sector is virtually uncontested. A 2015 State Department sits unrivaled by other for me a typical situation in her host study by McKinsey & Company found that governments in our potential to recruit country. While meeting with benefi- companies in the top quartile of ethnic and assemble a diverse foreign policy ciaries of a program to improve police diversity were as much as 35 percent more powerhouse—if we put the resources into and youth relationships, the men in likely to have financial returns above their recruiting diverse candidates. the room did all the talking. Once the national industry median, while com- As section heads, office directors, session was over, however, many of the panies that were less diverse were more management counselors, human resource youth and their mothers approached likely to lag behind their industry median. specialists, deputy chiefs of mission and her separately and revealed additional A 2013 study in the Harvard Business ambassadors, we have a vested interest in details about the program’s success and Review found that a team with a member assembling and leading successful teams. shortfalls. who shares a client’s ethnicity is 152 per- If we do not recruit a diverse pool of new Many of the beneficiaries felt uncom- cent likelier than another team to under- officers and ensure we have a diverse fortable sharing their views within the stand that client. In other words, simply corps of senior staff leading the depart- group. My colleague quickly learned she being on a team with members who share ment, we cannot continue to build the could connect to the female beneficia- traits with your client increases your likeli- experiences to maintain and grow this ries as a fellow mother and sister, and hood of better understanding them. competitive edge. glean important information about The implications for U.S. foreign pol- As employees, we should all want how this $9 million project was being icy are significant: Few countries have to serve on teams that have the highest implemented. as diverse a population as the United probability of success. From an organi- Many civil servants, specialists and States. This unique advantage places the zational perspective, diversity is not just other officers have had similar experi- United States and the State Department about equity and fairness; it is foremost ences, where their common gender, in an enviable position to assemble, about performance and results. Each of ethnicity, religion or shared background in Secretary of State Mike Pompeo’s us should feel compelled to be part of a facilitated an encounter that directly words, “the world’s finest diplomatic diverse organization, regardless of our enhanced their work. To the degree corps.” Other global powers like China ethnicity, gender or background. that we build diverse teams to carry out and Russia, even some of our European our work, we increase our access and allies, staff their foreign ministries from Recognizing Your Place efficacy as a department. more homogenous populations. on a Diverse Team Individuals who question how they fit Jay Porter currently serves as the senior desk officer for Italy, the Holy See and into a diverse workplace should remem- San Marino in the Bureau of European Affairs’ Office of Western European ber that the value of diversity is not in Affairs. He joined the department in 2008 and has served with his family in Tur- an individual’s race, gender or ethnicity; key, Albania and El Salvador. Prior to joining the Foreign Service, Porter worked it is in the experiences and insights that for a nongovernmental organization in the United States and Central America. those attributes often bring. Diversity

THE FOREIGN SERVICE JOURNAL | SEPTEMBER 2018 23 may refer to innate characteristics, but well thought out before they bring them product of bias, misogyny or political it can also be acquired. All of us bring to the group. In other words, I have to ideology. unique life experiences to our work, and think harder and communicate better in The 2016 study cited above found employees who focus on their lack of a diverse environment. Diversity makes that diversity messages led to men feel- physical manifestations of diversity will me a better officer and diplomat. ing threatened regardless of their politi- miss valuable opportunities to contrib- cal leanings, attitudes towards minority ute to a diverse team. Addressing Concerns that groups or beliefs about fairness. In other As I consider my own role in a Diversity Disadvantages words, even white men who endorse the diverse workplace, I look at facets that White Men tenets of diversity and inclusion can feel may set me apart from my co-workers: It’s not an uncommon scenario: threatened by diversity messaging. my experience as a military brat; my You’re at the end of a promising inter- The study findings provide some conservative religious upbringing; my view during bidding season when the personal validation. While I support growing up abroad; my work experi- hiring official mentions how his or her diversity efforts to improve institutional ence; and my perspective as a parent office is dedicated to building a diverse performance and as a fundamentally and spouse. If prospective supervisors workforce. For many white men, the moral issue of equality, I also harbored do not see how I might fit into a diverse messaging seems clear: they would prefer concerns that diversity programs at State team, then I have failed to communicate a minority candidate. A 2016 study by were (intentionally or not) designed to the value my experiences offer. professors at the University of Califor- ensure there were fewer people like me Leaders seeking to build truly diverse nia Santa Barbara and the University in offices and missions abroad. I have teams recognize the value in recruiting of Washington found that pro-diversity found that one powerful solution to employees from all backgrounds, but rhetoric in the workplace led most white overcoming this concern is getting more some employees—white men, in particu- men to believe that they would be treated involved in diversity-related efforts. lar*—may struggle to see how they can unfairly. As a member of EUR Bureau’s contribute to a diverse office, viewing it The study put two groups of white Diversity Working Group, I am able to instead as a zero-sum game that threat- men through an interview process. For contribute to discussions related to ens their job prospects. half of the applicants, the recruitment recruiting and challenges in promot- I appreciate that my current office materials made mention of the com- ing diversity effectively and fairly; and I leadership prioritized recruiting a diverse pany’s pro-diversity values. The other half provide a distinct and valued viewpoint team. When we gather for staff meetings, received the same materials, but without to the group. When we, as white men, we have a mix of backgrounds, races, any mention of diversity. Researchers actively engage in diversity promotion, genders and ethnicities. With fewer found that white men interviewing at we become part of the effort to build people at the table like me, I feel like my the company that mentioned diversity truly diverse teams that are inclusive opinion has more value. Conversations expected unfair treatment and discrimi- and focused on improving the institu- include a rich variety of perspectives. nation against whites. They also per- tion. Our participation sends a power- When I share my thoughts, I must formed more poorly in the job interview, ful message to our co-workers about reflect and provide support for my posi- and their cardiovascular responses dur- our commitment to create a supportive tions. This doesn’t just provide our team ing the interview revealed that they were working environment. with a broader range of ideas; it forces more stressed. Participating in the Diversity Work- individuals to ensure their proposals are The impact is not just theoreti- ing Group has also quelled some of my cal. When employees in the Bureau of anxiety over the group’s aims; and I, in * The author recognizes that the term European and Eurasian Affairs recently turn, help provide the group a perspec- “white men” is inherently broad and may formed a diversity working group, one tive that bolsters its legitimacy. After all, include sub-groups that might identify as member related how she was confronted a diversity working group by definition underrepresented based on sexual orienta- by a few white male colleagues who felt should aim to include as many people tion, religion, economic background or the group would make it harder for them from different backgrounds and sectors ideology. to get jobs. This fear isn’t necessarily the as possible—including white men.

24 SEPTEMBER 2018 | THE FOREIGN SERVICE JOURNAL Why White Men Should ogy, which encouraged corporations to should seek to exploit it. Promoting diver- Help Lead on Diversity place a white man in charge of diversity sity within our ranks is not a zero-sum Another reason for white men at programs because he could ostensibly game or charity effort intended to provide State to promote diversity: we can do so manage it without reprisal. underrepresented groups with expanded without fear of reprisal. A 2016 study by The lesson for our nonwhite, non- opportunities to compensate for social Professor David Hekman, from the Uni- male colleagues is clear: Your institution injustices. It is one of those confluences versity of Colorado, found that women can benefit from being more diverse, where the right thing to do is also the best and nonwhite executives who valued but your career will likely suffer if you thing to do for our organization. diversity were routinely rated as less promote it. In the current environment, White men may feel threatened by competent and lower-performing. White white men are in a unique position to diversity promotion, but by getting male executives who promoted diversity help lead the effort to promote diversity involved we can help shape a workforce experienced slightly better ratings and at State without negative repercussions that is fully inclusive and provides us were perceived as competent, regardless to our careers. with better opportunities to excel within of their position on diversity. The State Department is in an excel- our own fields. Ironically, as white The study uncovered similar find- lent position to form the most diverse men, we may be the best-positioned to ings for managers engaged in hiring. corps of professional diplomats in the help lead this change. Certainly, we do An Atlantic article detailing the study world. Consequently, our competitive nothing for our institution or ourselves even pointed to the National Center advantage on the foreign policy front is by leaving it solely to underrepresented for Women and Information Technol- unparalleled; and, as an organization, we groups to bring about. n

THE FOREIGN SERVICE JOURNAL | SEPTEMBER 2018 25 FOCUS CAN STATE DELIVER?

Blue-Ribbon Blues Reform efforts at here have been many studies State are perennial. of the Foreign Service,” said Several critical institutional Ivan Selin, the State Depart- issues have been studied ment’s under secretary for management, in 1989. “We’ve again and again for averaged one per year for decades to scant effect. the last 30 years.” Output has Why is change so difficult? scarcely dropped off in the decades since. BY HARRY KOPP Studies of the Foreign Service and the Department of State “Trarely reveal problems not already widely known. Even more rarely do they produce the results their authors want. Ideas and proposals for change often founder on three obstacles: resistance, impracticality and inertia. Deep research and sound argument may not carry far. One former ambassador, often called upon to serve on commissions whose work was ignored, expressed his

Harry W. Kopp, a former Foreign Service officer, served as deputy assistant secretary of State for international trade policy in the Carter and Reagan administrations. He is the author of several books on diplomacy, including (with John K. Naland) Career Diplomacy: Life and Work in the U.S. Foreign Service, recently pub- lished in a third edition by Georgetown University Press, and Voice of the Foreign Service: A History of the American Foreign Service As- sociation (FS Books, 2015). He is a frequent Journal contributor and recently joined the FSJ Editorial Board.

26 SEPTEMBER 2018 | THE FOREIGN SERVICE JOURNAL tion of every person in the department as General Grant might Why So Many have regarded a similar proposal for the Army of the Potomac between the Wilderness and Appomattox.” Nevertheless, the idea of a single service across the Depart- Great Reports ment of State seemed so sound that it appeared again and again in various forms for the next 25 years. Studies by the Rowe and Good Ideas Committee (1950), the Brookings Institution (1951) and a White House personnel task force (1953) repeated the Hoover Com- Go Nowhere mission’s proposal with little variation—but no action followed. When the idea appeared for a fifth time, in a 1954 study by a State Department committee on personnel (chaired by Henry Wriston, president of Brown University), Secretary John Foster Dulles took some 1,500 civil servants into the Foreign Service and opened a like number of Civil Service positions in the department to Foreign Service members—but he kept the two services separate and distinct. During the mid-1960s, proponents of a single service brought Blue-Ribbon Blues the idea back in altered form in a bill that passed the House. In the Senate, however, former Foreign Service Officer Claiborne frustration: “You give ’em books and give ’em books,” he said, Pell (D-R.I.), a member of the Committee on Foreign Relations, “but all they do is eat the covers.” grew concerned that a merger would cost the Foreign Service its This article looks at three tough issues that have been repeat- elite status. The bill died in committee. Deputy Under Secretary edly studied to scant effect: dual personnel systems, interagency for Management William Macomber then tried to accomplish coordination and professional development. administratively what the bill would have placed into law; but his efforts were opposed by Civil Service unions and overturned in A Single Service federal court in 1973. Resistance and inertia thwarted early proposals to merge the The cleavage between the department’s two personnel sys- State Department’s Foreign Service and Civil Service employ- tems—not to mention a third system, for increasingly numer- ees into a single personnel system. The Commission on the ous non-career political appointees—remains a challenge for Organization of the Executive Branch of Government (called management and a source of occasional workplace friction. the Hoover Commission after its chairman, former president Employees with different wages, benefits, rights and obligations Herbert Hoover) met from 1947 to 1949 pursuant to an act of mesh uneasily into the “one team” the Secretary of State asks for Congress. The commission’s foreign affairs task force argued for and deserves. It is a pity that when solutions were offered and a single service, in which all members would be available for possible, they failed to be adopted. foreign and domestic assignments and subject to selection out. Only a merger, the task force argued, could heal the “cancerous The Interagency cleavage” between the two services that burdened management Studies and directives that deal with the problem of policy and sapped morale. coordination across agencies, in Washington, D.C., or in embas- Dean Acheson, named Secretary of State in 1949, had served sies overseas, have offered solutions marked by impracticality or on the task force and supported the merger. As Secretary, wishful thinking. In 1949, the Hoover Commission noted, more however, he had his hands full negotiating the creation of new than 45 agencies had representatives overseas. The Department international alliances and institutions in the wake of World War of State and the Foreign Service accounted for only about 11 per- II, and defending himself and his department against vicious cent of U.S. government civilian employment abroad, and less attacks from the Republican right. He left the merger question than 5 percent of the budget for international affairs. With so few alone. “The Secretary,” he later wrote, referring to himself in the resources at its command, said the task force, the Department of third person, “regarded a far-reaching and basic reorganiza- State should concentrate on coordination of the overseas work

THE FOREIGN SERVICE JOURNAL | SEPTEMBER 2018 27 State’s claim to responsibility of State’s Overseas Presence Advisory Panel, complained in 1999 that “though the nation’s overseas agenda involves more than 30 for interagency coordination in federal departments or agencies, there is no interagency mecha- foreign affairs is easy to assert, nism to coordinate their activities.” Two years later, a study for the Council on Foreign Relations by Ambassador Frank Carlucci, the but hard to enforce. Foreign Service officer who rose to become Secretary of Defense, offered a similar judgment: “Foreign policy has been undermined by ineffective interagency coordination.” of those agencies tasked with programmatic responsibilities and Calls for the department to assert greater programmatic and endowed with the wherewithal to carry them out. operational leadership intensified after the attacks of Sept. 11, Neither the numbers nor the argument have greatly changed 2001. In December 2005, as the situation in Iraq deteriorated, in the decades since. Presidents, Secretaries of State, members of a presidential directive ordered the Secretary of State to “coor- Congress and numerous wise observers have echoed the com- dinate and lead integrated United States government efforts … mission’s desire to have State organize the government’s efforts to prepare, plan for and conduct” stabilization and reconstruc- abroad. In 1951 President Harry S Truman wrote to Secretary of tion efforts, in Iraq and around the world. But neither the White State Dean Acheson: “The Secretary of State, under my direction, House nor Congress provided new resources for that purpose, is the Cabinet officer responsible for the formulation of foreign and State’s coordinating role remained unclear. policy and the conduct of foreign relations, and will provide Two years later, the Secretary of State’s Advisory Committee leadership and coordination among the executive agencies in on Transformational Diplomacy, acting as if the 2005 directive carrying out foreign policies and programs.” did not exist, called on the president to “make an explicit state- In 1961, after years of hearings, Senator Henry “Scoop” Jack- ment underscoring the Department of State’s role as the lead for- son (D-Wash.) lamented: “State is not doing enough in asserting eign affairs agency.” In 2010 the department’s first Quadrennial its leadership across the whole front of foreign policy.” In 1966 Diplomacy and Development Review said that State “react[s] to President Lyndon Johnson, who tried to manage foreign affairs each successive conflict or crisis by reinventing the process for with a hierarchical system of interagency groups under (usually) identifying agency leadership, establishing task forces, and plan- State Department chairman- ning and coordinating government ship, assigned the Secretary of In 1968 the American agencies.” Foreign Service Association State “authority and responsi- At embassies abroad, the chief of published a lengthy bility … for the overall direction, report, “Toward a Modern mission is responsible by law (per the coordination and supervision Diplomacy,” containing Foreign Service Act of 1980) for the of interdepartmental activities” specific recommendations “direction, coordination and supervi- for improvement in the overseas. organization of the nation’s sion of all government employees in One of the bluest of blue- foreign affairs. Among that country (except for employees ribbon commissions, Ambas- other things, the authors under the command of a United stated that training States area military commander).” sador Robert D. Murphy’s 1975 should occupy about Commission on the Organiza- 10 percent of a Foreign The Foreign Affairs Manual currently tion of the U.S. Government for Service career and be a contains 19 numbered paragraphs “virtual prerequisite” for the Conduct of Foreign Policy, listing chief-of-mission responsi- promotion. urged that consistency in policy bilities: among them are opening required the department to markets for U.S. exports, halting arms “monitor, oversee and influence proliferation, preventing conflict, foreign activities of other agencies”—but judged that State was countering terrorism and international crime, upholding human not up to the task. In 1998 the Stimson Center, in a report called rights and promoting international cooperation on global prob- “Equipped for the Future,” discovered again a “profusion of agen- lems such as the environment, narcotics and refugees. And these cies” operating overseas and found the United States “deficient” are just in paragraph one. in interagency coordination. Another commission, the Secretary Responsibility, however, does not convey authority. As Car-

28 SEPTEMBER 2018 | THE FOREIGN SERVICE JOURNAL SOS for DOS: A Call for Action

n an unusual “grassroots” reform initiative, a group of studies have identified the problems. We must act now to IForeign Service and Civil Service employees presented make the needed repairs. a detailed “call to action” to Secretary of State Colin We must— Powell in February 2001. Having gathered under the ban- • craft a clear plan of action to modernize and renew our ner of “SOS for DOS,” they were convinced that leadership organization, procedures and infrastructure. needed to urgently “undertake a long-term, bipartisan • transform our outdated culture and demonstrate a effort to modernize and strengthen the Department of clear commitment to change. State.” Here are excerpts from their call. • embrace new technology and managerial techniques quickly. United States leadership in a post- • integrate policy and resource management in ways that Cold War world requires a rigorous advance national interests and promote operational foreign policy and robust diplomacy efficiency. attuned to the realities of the present, • make a clear and compelling case for how we will use not the past. ... The Department of any new resources needed to underwrite and sustain a State is ill-equipped and ill-prepared to modernized and reinvigorated Department of State. meet the foreign policy challenges of We ask for the support, involvement and leadership the 21st century. Outdated procedures needed to undertake a long-term, bipartisan effort to mod- and chronic resource shortages have ernize and strengthen the Department of State. The era of taken their toll. The organizational quill pen diplomacy is over. At the dawn of the 21st century, structure is dysfunctional, its staff is overextended and we call for bold and decisive steps now to deal effectively many of its embassy buildings are crumbling. The State with the problems of today while preparing for the chal- Department’s traditions and culture block needed change lenges of the future—a future that is as close as tomorrow. while its dedicated employees are distracted with trivia —From “Are State Employees Ready for Reform?” and drift without a common institutional vision. Multiple by Shawn Dorman, FSJ, May 2001.

lucci wrote in 2001: “Ambassadors lack the authority necessary purpose. But its vision is not widely shared. Other agencies do to coordinate and oversee the resources and personnel deployed not clamor for State, in Washington or overseas, to constrain to their missions by other agencies and departments.” Six years their freedom of action or direct their energies away from their later, a study of country teams by Ambassador Robert B. Oakley own priorities. When State adds value to the work of other agen- and Michael Casey Jr., reached the same conclusion: “Ambassa- cies, it succeeds in leading whole-of-government operations. But dors do not have adequate explicit authorities to unify the efforts despite years of studies, exhortations and occasional presidential of the country team.” In its QDDRs, the department implored directives, the department has yet to secure a broadly acknowl- ambassadors to lead their missions “in a CEO-like manner”— edged, institutional position as interagency coordinator. without, however, acknowledging that CEOs, unlike chiefs of mission, control their budgets and personnel. Even within the Training and Education department, the proliferation of bureaus, not to mention special For 70 years, studies of the Foreign Service have identified a envoys and other single-purpose entities, has diffused authority lack of specialized skills and the absence of systematic in-service and made internal coordination slow and painful. training as serious institutional shortcomings. And for 70 years, State’s claim to responsibility for interagency coordination in the department has addressed these problems without much foreign affairs is easy to assert, but hard to enforce. Having ceded seriousness of purpose. State management may feel strongly policymaking to the White House and National Security Council, about training and professional development, but not strongly the Department of State sees the coordinating role as its central enough to place them above other claims on its resources.

THE FOREIGN SERVICE JOURNAL | SEPTEMBER 2018 29 The committee recommended that FSI be “revitalized” and ‘It’s Hard to Tend the Tree…’ “elevated to the level of the war colleges” by revising its cur- riculum and strengthening its faculty. Under Secretary of State ince the end of World War II, “reform”—which is Charles Saltzman, a committee member, said that the Foreign Sto say, change, for better or worse—has been a Service needs a “deliberate career training plan” and called permanent feature of the Foreign Service landscape. on FSI to develop one. Placing FSI “on a level with the various About every decade a major reform has been pro- war colleges,” said The Foreign Service Journal, “received the posed and implemented. full support of Secretary [John Foster] Dulles.” The department Between those initiatives, a plethora of committees, instituted a mid-career course and expanded opportunities for commissions and study groups have kept the State coursework outside FSI. Department and the other foreign affairs agencies Fast-forward to 1968. FSI is still not “on a level” with the war under scrutiny, with the threat of further change ever colleges, and long-term training remains sketchy. Such training, present. As the great Foreign Service direc- said the reform-minded FSOs who wrote “Toward a Modern tor general, Nathaniel Davis, once noted, Diplomacy,” should occupy about 10 percent of a Foreign “It’s hard to tend the tree when every Service career and should be a “virtual prerequisite” for couple of years someone pulls it out of the promotion. No steps were taken to make that a reality. ground to see if the roots are growing.” The authors of the Foreign Service Act of 1980 found it Ambassador Davis makes a cogent point. necessary to include a legislative instruction to the Sec- Who among us has not thought, “Why don’t retary to establish a professional development program. ‘they’ just leave us alone and let us get on In 1986, the department convened a committee (chaired with it?” Well, there is one very good reason by FSO Ray Ewing, then dean of the language school at why “they” won’t leave us alone. Contexts FSI) that found in-service training “either non-existent change over time, so all institutions, public or irrelevant.” The training involved inexperienced or private, must reinvent themselves to deal with new teachers and course material that was “outdated or patently realities—or perish. In the commercial sector the list of not germane to the professional development of the students,” iconic companies (think RCA) that have disappeared is stated the committee. In 1989, two studies of the Foreign Service long. The list of corporations successfully reinventing personnel system, one commissioned by Congress and one themselves (IBM) is much shorter. by the department, called for more training time for FSOs. The The Foreign Service and State Department face the departmental study recommended adding 50 positions to FSI same imperative: adapt or disappear. The reality of and giving monetary incentives to encourage training. “Every- the continuing need for reform is directly linked to the one,” said the under secretary for management, “believes there rapidly changing world of the 20th and 21st centuries. has to be more training” that is “tied in with assignments … not —From “The ‘Reform’ of Foreign Service Reform” by just for general character building.” Thomas D. Boyatt, FSJ, May 2010. “Everyone” still believed that in 1993, when the department released another study, the excellent State 2000: A New Model for Managing Foreign Affairs. This study found a “mismatch The Foreign Service Act of 1946 established the Foreign Service between what we want to do and the skills of those we expect Institute to provide a “continuous program of in-service training to do it” and recommended three steps to address the problem: … directed by a strong central authority.” FSI immediately fell workforce planning to identify future needs, a “requirements- short. In 1954, the Wriston Committee found FSI to be “almost based hiring system” to recruit to needs that have been iden- paralyzed: it exists on crumbs that fall from the Air Force table. tified, and long-term training to develop professionals with Career planning is conspicuous by its absence.” The Service, “functional/area expertise and managerial competence.” said the committee, was “critically deficient in various technical But as Foreign Service numbers fell under the budget-cutting specialties—notably economic, labor, agriculture, commercial policies of the 1990s (the end of the Cold War’s so-called “peace promotion, area-language and administrative—that have become dividend”), training was sacrificed to operational demands. Two indispensable to the successful practice of diplomacy.” 1999 studies, McKinsey & Company’s “The War for Talent” and

30 SEPTEMBER 2018 | THE FOREIGN SERVICE JOURNAL Studying State Studies of the Department of State and the Foreign Service come along nearly every year. Here are some from across the decades that still merit attention.

Ye a r Author Full Title Remarks

Task Force Report on Foreign Affairs of Commission established by act of Congress. 1949 Hoover Commission the Commission on Organization of the President Harry S Truman named former Executive Branch of the Government President Herbert Hoover chairman.

Toward a Stronger Foreign Service: Committee convened by Secretary of State 1954 Wriston Committee Report of the Secretary’s Public Committee John Foster Dulles. Henry Wriston, president on Personnel of Brown University, served as chairman.

Sponsored by the Carnegie Endowment for Report of the Committee on 1962 Herter Committee International Peace. Former Secretary of State Foreign Affairs Personnel Christian Herter was committee chairman.

American Foreign Service Association — Graham Martin, committee chair; Lannon 1968 Toward a Modern Diplomacy Committee on Career Walker, chair of AFSA’s board of directors. Principles

Diplomacy for the 70s: A Program The work of 13 task forces convened by 1970 Department of State of Management Reform for the Deputy Under Secretary for Management Department of State William Macomber.

Report of the U.S. Commission on the Commission created by act of Congress. Ambas- 1975 Murphy Commission Organization of the Government for sador Robert D. Murphy served as chairman. the Conduct of Foreign Policy Study requested by Secretary of State Department of State State 2000: A New Model for 1993 James Baker. William Bacchus was executive Management Task Force Managing Foreign Affairs director of the task force and principal author.

Equipped for the Future: Managing 1998 Stimson Center John Schall, principal author. U.S. Foreign Affairs in the 21st Century

Sponsored by the Council on Foreign Relations Frank Carlucci and Ian State Department Reform: 2001 and the Center for Strategic and International Brzezinski Report to the President Studies.

American Academy A Foreign Affairs Budget for the Future: Support from Una Chapman Cox Foundation. 2008 of Diplomacy and the Fixing the Crisis in Diplomatic Readiness Ambassador Thomas Boyatt, project chairman. Stimson Center

American Academy Project team: Thomas Boyatt, Susan Johnson, 2015 American Diplomacy at Risk of Diplomacy Lange Schermerhorn, Clyde Taylor.

How to Make the State Department 2016 The Heritage Foundation More Effective at Implementing Brett D. Schaefer, principal author. U.S. Foreign Policy

2017 Atlantic Council State Department Reform Report Report requested by House Foreign Affairs Committee. Kathryn Elliott, principal author.

THE FOREIGN SERVICE JOURNAL | SEPTEMBER 2018 31 a report by the Secretary of State’s Overseas Presence Advisory even when I had vacant positions. I could not transfer people Panel, called for rapid action to improve training and professional within my organization or from elsewhere inside the State Depart- development. ment. … There was a political appointee sent out … who reviewed Secretary of State Colin Powell (2001-2005), accustomed to our training materials and objected when there was reference to the rigorous, systematic training provided to Army officers, was American foreign policy under the Obama administration.” determined to create a “training float”—an excess of people Clearly, FSI was not to be “elevated to the level of the war col- over regular positions—of about 15 percent. His Diplomatic leges.” That 50-year old goal remains out of reach, and receding. Readiness Initiative added some 2,000 employees to the Foreign Service between 2000 and 2004 for that purpose. And training, Change Is Hard measured by student hours, did increase by about 25 percent. Why is change so difficult? Donald Warwick, a Harvard After 2004, however, the need for training gave way again, this sociologist, published the book A Theory of Public Bureaucracy: time to staffing demands in Iraq and Afghanistan. In 2008, a study Politics, Personality and Organization in the State Department in by the Stimson Center and the American Academy of Diplomacy 1975. Time has only confirmed his findings. (an association of former career and non-career ambassadors “Executive agencies,” Warwick wrote, “show the influence and senior officials) found that the Foreign Service lacks “to a suf- of organized interests, personal whims, political brokerage and ficient degree” such skills as “foreign language fluency; advanced sheer bureaucratic inertia.” State Department employees who area knowledge; leadership and management ability; negotiating resisted a Foreign Service-Civil Service merger, or officials in and pre-crisis conflict mediation/resolution skills; public diplo- other agencies who resist State’s efforts to coordinate them, are macy; foreign assistance; post-conflict/stabilization; job-specific highly intelligent people who strive to protect their positions and functional expertise; strategic planning; program development, do their jobs to the very best of their abilities. As Warwick writes, implementation and evaluation; and budgeting.” These shortfalls, they have “much the same motivation for security and self- the study found, “are largely a result of inadequate past opportuni- esteem as the rest of the population.” ties for training, especially career-long professional education.” In other words, do not blame the bureaucrats: they are Congress approved two more increases in the State Depart- people too. Their behavior is predictable and rational. It needs ment’s Civil and Foreign Service workforce, a modest increase in to be taken into account. Proposals for change based solely on 2008 and a surge from 2009 to 2013, the centerpiece of the Diplo- considerations of organizational efficiency will have little effect, macy 3.0 initiative of Secretary of State Hillary Clinton (2009- and managers who act on such proposals will likely fail. 2013). By 2015, State’s Foreign Service had grown by 40 percent, Bureaucratic behavior cannot explain 70 years of shortfall in and its Civil Service by 45 percent, over 2002 levels. A third of the training and professional development, however. The fault here Foreign Service had fewer than five years’ experience. lies with the department’s leadership, which always seems to find The department’s second QDDR, released in 2015, promised assignments other than training more important for its work- to invest in training, including “long-term training that develops force. Perhaps the political leadership of the department, eager expertise and fresh perspectives.” The department had on hand a for accomplishment before the end of its term, has less interest in blueprint for deep reform of professional development in a 2012 improving the long-range strength of the career services than in paper by AAD and the Stimson Center, “Forging a 21st-Century addressing the issues of the moment. The department has rarely Diplomatic Service for the United States through Professional had leaders willing to sacrifice short-term opportunities for ben- Education and Training.” Once again, the moment seemed right efits that will show up only in some future administration. for establishment of a sustainable training float and the inte- History may be depressing, but it is also instructive. Change is gration of training and education into a Foreign Service career. difficult, but possible. Reforms must be well thought out and sup- Quick action might have led to progress, but once again the ported by evidence. They must attend to the desire of members of department let the moment pass unseized. the Foreign and Civil Services to carry out their missions, excel at Then a wildly hostile Trump administration slammed the their work and secure their futures. And they must be driven by a window of opportunity shut. As reported in the December 2017 leadership that values the department as an institution, with a past Foreign Service Journal, Ambassador Nancy McEldowney told The and a future as long as the republic’s. Under those conditions, the New York Times that in the early months of 2017, when she was report of the next blue-ribbon commission or departmental task still director of FSI, “My budget was cut. … I could not hire anyone, force will find its audience and lead to action. n

32 SEPTEMBER 2018 | THE FOREIGN SERVICE JOURNAL FOCUS CAN STATE DELIVER?

How to You Turn Any U.S. Mission Have Strategy into a Strategy. Results Now What?

Today State has a unique opportunity hy is it that some chiefs of to reassert leadership of foreign policy mission and deputy chiefs by focusing on delivering the outcomes of mission are better than promised by strategies that are now others at turning policy ideas into results? How aligned across the department. do some seem to project a command presence—pro- BY MATT BOLAND viding overall direction, interagency coordina- Matt Boland is an FSO who currently serves as a tion and leadership of U.S. foreign policy in country—while senior strategy officer at the State Department. He has Wothers do not? After all, they are just like chiefs of mission also served as a diplomat-in-residence for the Boston and deputy chiefs of mission (DCMs) everywhere: they have Consulting Group and is a member of the Strategy access to the same mission-driven workforce, they struggle Consortium at the Atlantic Council. His overseas as- against the same outdated State Department technolo- signments include Madrid, Islamabad, Panama City and Vienna. gies, and they face the same pressure to react to events and The author wishes to thank the current and former State Depart- respond to taskings from D.C. ment Foreign Service officers, Civil Service professionals and political As it turns out, however, they all follow much the same appointees who shared their insights and experiences regarding stra- routine. Many great government leaders think, act and com- tegic planning and performance management, particularly the lead- municate in similar ways. The best leaders at State follow these ers and staff of the strategic planning teams in the Office of Foreign practices, and we would all benefit if more leaders did so. Assistance Resources and the Bureau of Budget and Planning. He also The need to improve strategic planning and implementation thanks BCG partners Sharon Marcil, Danny Werfel and Troy Thomas has been highlighted in every major State Department reform for their invaluable guidance and support. initiative since 1992. One problem is that many at State believe

THE FOREIGN SERVICE JOURNAL | SEPTEMBER 2018 33 Strategic planning and implementation are core leadership responsibilities.

they have “policy” responsibility, while “strategic planning” and years of experience as a leader in strategy, I had the opportunity “implementation” are, they think, someone else’s concern. The to be part of a team that worked to identify such obstacles. We result of such a mindset was summed up in the State-USAID interviewed 31 current and former government leaders around reform plan submitted to the Office of Management and Budget the globe. In a separate project, I interviewed a dozen State last September: “Failure to prioritize top foreign policy objec- Department officials—chiefs of mission, DCMs, Foreign Service tives and plan strategically has led to ad hoc decision-making, officers and Civil Service professionals—to benchmark the State ineffective allocation of human and financial resources, and Department’s approach to strategic planning and performance disjointed activities at the Washington and mission levels.” management against global best practices. In fact, when it comes to delivering results, strategic planning Our work pointed to key steps mission leaders and staff can and implementation are not only inseparable from policymak- take to become more effective at developing and implement- ing, but are its driving force. As Michael Barber, first head of the ing their strategy. There are several obstacles to overcome at the U.K. Prime Minister’s Delivery Unit (an institution created to State Department: strengthen the British government’s capacity to deliver on Prime A “fire-fighting” and risk-averse culture. Reacting well to Minister Tony Blair’s policy priorities), puts it: “Policy is 10 per- unplanned and unforeseen events and crises is some of the most cent and implementation is 90 percent.” important work we do. However, effective leaders also proac- Today we have a unique opportunity at the State Department tively shape the future rather than simply react to it by setting to reassert leadership of foreign policy by focusing on deliver- and driving an agenda. Further, if we avoid taking reasonable ing the outcomes promised by our strategies. It is an opportune risks for fear of failure, we won’t get big things done. moment for action—what the Greeks call kairos—because we Lack of leadership engagement. While many department now have coherent strategies across the department. Drawing on leaders have policy expertise and focus, they often delegate the new National Security Strategy, the State-USAID Joint Strate- responsibility for strategic planning and implementation to gic Plan was finalized in February; that was followed by comple- others. This lack of engagement at the top filters down, leading tion of 46 bureau strategic plans this spring, and integrated to members of the mission who don’t fully understand or aren’t country strategies (ICS) for 185 U.S. missions this summer. committed to implementing the strategy. Having set clear objectives, developed plans to achieve them High turnover. Foreign Service officers transition every two and aligned strategies across the State Department, leaders to three years, and the average tenure of a Senate-confirmed and staff are poised to achieve significant results in advancing appointee is only 18 to 30 months. With little time to make a American security, interests and values. Here are some sugges- mark, many understandably focus on short-term initiatives, tions for how to take advantage of this opportune moment. rather than long-term goals and objectives. Based on our interviews, we identified three actions that Build a Strategic Planning and Implementation chiefs of mission and DCMs can take to mitigate these chal- Process That Delivers Impact lenges and turn the mission strategy into results: promote a The key to delivering on any strategy is to understand what strategic culture, instill a shared sense of purpose, and establish prevents effective strategic planning and implementation, and teams and routines to drive implementation (see graphic, p. 35). then to attack those challenges head on. This is as true for a government official in Britain or Indonesia as it is for an official Promote a Strategic Culture of the U.S. State Department. To ensure a shift in the culture—habits, hearts and minds— During a yearlong fellowship at The Boston Consulting chiefs of missions and DCMs must participate in strategic plan- Group, a global management consulting firm with more than 50 ning, frontline leaders at post must be involved from the start,

34 SEPTEMBER 2018 | THE FOREIGN SERVICE JOURNAL implementation more likely. “If a team is closely involved in developing the strategy they will feel ownership of it,” Paul Gerrard, director of policy & campaigns at the Co- Operative Group, told me. “If they feel ownership, then they will want to make it work.” Second, it affords the greatest leverage and prom- ises the most impact. Since the majority of staff at post reports to a section or agency head, these leaders have an outsized impact on shap- ing the culture, allocating resources and ensuring that the day-to-day actions of the and the risk-averse mindset at State must be addressed. workforce are aligned with the mission’s objectives. Moreover, it Strategic planning and implementation are core leadership helps develop mid-level staff members who are likely to be the responsibilities. Effective chiefs of missions and DCMs person- next generation of leadership. ally drive the effort to set strategic priorities, build buy-in, align The bottom line: The best way to link strategy with implemen- resources, communicate the strategy consistently and hold tation is to ensure that the same people work on both. people accountable for executing the plan. “Strategy is ulti- In addition, it’s important to find ways to reward and protect mately the leader’s responsibility,” according to Salman Ahmed, those who take reasonable risks but achieve less than positive a former special assistant to President Barack Obama and senior results. Secretary of State Mike Pompeo underscored this when director for strategic planning. “You can’t delegate responsibility he addressed employees at a May 16 town hall: “I’m prepared for leading change.” to accept failure. … I will be with you. If we’re doing things right When she served as DCM at Embassy London, Ambassador and we have an effort and it is right, and it doesn’t work, know Barbara Stephenson (now the president of AFSA) used strategic that’s acceptable—indeed, at some level, encouraged. If there planning as a platform to break down section and agency silos, are no failures, I guarantee you we’re not out working hard build ownership and organize a whole-of-government approach. against these problem sets.” The risk-averse mindset that the She led a strategy development process that involved staff from department cultivates can undermine the implementation of across the mission in the effort. “We deliberately designed any given strategy. mission objectives that required an interagency team to deliver them,” Amb. Stephenson told me. “This created a clear sense of Instill a Shared Sense of Purpose where we were going, why, and the role each section and agency One of the chief of mission’s most powerful levers is to mobi- plays in achieving our objectives.” lize the mission around shared objectives. Foreign Service offi- The single most important step chiefs of mission and DCMs cers are mission-driven. The ember burns deep within them; all can take to promote a strategic culture is to draw frontline leaders have to do is fan it. If they can ignite a sense of purpose leaders—the section and agency heads who supervise frontline that ripples across the mission, the results will be transformative. employees at post—into the effort. Why? Employees will engage in deep learning, take risks, innovate and First of all, that’s where the work gets done. Frontline lead- make meaningful contributions. ers can elevate to the attention of senior leadership the practical Chiefs of mission and DCMs can build a purpose-driven U.S. realities of implementing a particular strategy, making successful mission by following three steps:

THE FOREIGN SERVICE JOURNAL | SEPTEMBER 2018 35 It’s important to find ways to reward and protect those who take reasonable risks but achieve less than positive results.

1. Articulate a clear vision. Ambassadors should articulate uted to mission goals or eliminated obstacles to achieving key a compelling vision for advancing the mission over the next mission objectives. three to five years. This will provide critical energy and direction Organize a “look back and look ahead” town hall, where for the mission. “Vision isn’t everything, but it’s the beginning the ambassador reviews mission progress over the past six of everything,” as David McAllister-Wilson, president of Wesley months and the key objectives for the next six months. When Theological Seminary, puts it. the strategy is continually reinforced through such meetings and 2. Stay focused on the mission objectives. This may seem onboarding “check-ins” for newly arrived employees, training obvious, but it is incredibly difficult for officers to stay focused sessions and other forums where people at all levels ask ques- on the mission objectives because of the daily pressure to react tions and share ideas, it draws their support. to events and respond to requests from Main State and home Create ICS communications materials to raise awareness. agencies. Here’s one great example: The U.S. missions to Burma, Maurita- Ronald E. Neumann, who served as ambassador to nia and Uruguay each developed and disseminated a collection Afghanistan, Bahrain and Algeria, tackled this problem by of integrated country strategy (ICS) communications materials. providing ‘top cover’ so that officers could and would say no. Mission goals and objectives were prominently displayed on the He said, “I told my staff: ‘Instructions come only from me or in intranet site and printed—in English and the local language—on front channel cables. Anything else is a request. If you think a wallet-sized cards, desk cards and posters. These materials were request is wrong or will get in the way of something I told you displayed in high-traffic areas within the embassy and could also to do, come see the DCM or me.’ If we didn’t want to accom- be included in welcome kits. modate the request, I would tell the officer to message back, ‘I can’t follow your instruction because the ambassador says no, Establish Teams & Routines but he said you can call him to talk about it.’ The phone never to Drive Implementation rang.” Once the mission strategy is developed, chiefs of mission, 3. Constantly communicate the vision and objectives. Every DCMs and the country team need to know—on a routine basis— mission’s integrated country strategy needs a consistent commu- how well the mission is implementing the plan and delivering nications effort if it is to succeed. Once leaders at the top and in the outcomes it promises. I recommend the following three-part the middle have internalized the strategy, they must help frontline framework for implementation: employees see how it connects with their day-to-day work. 1. Establish mission goal or objective teams. Unless it’s Successful missions do things like the following: someone’s job, it’s no one’s job. At the heart of successful imple- Discuss progress on the strategy at every country team mentation of the country strategy are mission teams focused meeting. For example, at every country team meeting at the on helping achieve its objectives. They can help ensure that the U.S. mission to India, former five-time Ambassador Nancy Pow- mission has clear, measurable and outcome-oriented objectives. ell asked people to cite an achievement from the previous week They can also ensure that programs to implement the ICS out- or an upcoming challenge linked to a mission objective. line how the program will contribute to objectives, how progress Require action memos to link proposals to the mission and performance will be measured and tracked, and how the strategy. “When a section or agency sends a decision memo program will be evaluated. These teams should include Locally asking the chief of mission or DCM to participate in something,” Employed staff and be the people at post the chief of mission DCM Eric Khant says, “it should demonstrate how the leader’s and DCM can count on to be largely resistant to the crises of the participation will help advance mission objectives.” moment, even when the front office has to respond to them. Communicate success stories in a monthly front office 2. Collect performance data. Doing an effective job of imple- newsletter, including how the work of staff members contrib- menting and adjusting the strategy hinges on having the right

36 SEPTEMBER 2018 | THE FOREIGN SERVICE JOURNAL The key to delivering on any strategy is to understand what prevents effective strategic planning and implementation, and then to attack those challenges head on.

data. Among the best tools within the ICS are the performance review progress on implementation of the strategy, discuss and indicators and milestones, which create a link between the solve major challenges, and make decisions to drive implemen- mission’s strategy and the expected outcomes. tation forward. The second and third are annual strategic reviews 3. Use routines to drive and monitor implementation. and quarterly strategy check-ins (see chart below). Having set the mission strategy, it is essential to establish For example, when a U.S. embassy in Asia wanted to paint implementation routines. Three simple but powerful routines a mission-wide picture of what was working, what wasn’t, create deadlines and a sense of urgency for the mission to and why, it launched a strategic review designed to test the deliver results. The first is a regular rhythm of strategic dialogues integrated country strategy assumptions, measure progress between the chief of mission, the DCM and the country team to and identify challenges. The review showed progress toward

Establish Annual Strategic Review Quarterly Strategy Check-Ins Routine In-depth assessment of Snapshot of progress on Reviews progress on all mission objectives. select mission objectives.

What & State Department guidance requires… In addition, best practice recommends… n Chiefs of mission must institute regular reviews n Chiefs of mission should convene quarterly Who to assess progress against all mission objectives strategy check-ins to assess progress against and ensure the alignment of policy, planning, one to three select mission objectives and ensure resources and program decision-making. the alignment of policy, planning, resources and program decision-making. n The full country team should participate, along with all those who oversee programs that n Country team members and staff who oversee support each mission objective. programs that support the mission objectives being discussed should participate. n Quarterly strategy check-ins help leaders identify issues before they become problems, serving as an early warning system.

n Compare progress on all mission objectives. n Gain a snapshot of progress on one to three The mission objectives without making judgments on n Help section and agency heads make better all objectives. Benefits decisions about strategic priorities and tradeoffs. n Engage in timely problem-solving and course n C ommunicate priorities to individual staff corrections, helping the team adapt to changing members and ensure all work is focused on operating environments. achieving goals and objectives. n Align the day-to-day actions of staff with strategic n Hold employees accountable for delivering priorities. results that advance the mission strategy, including as part of their annual performance n Hold employees accountable for delivering results reviews. that advance the mission strategy.

THE FOREIGN SERVICE JOURNAL | SEPTEMBER 2018 37 ICS goals and led the country team to conclude that remaining retary of Defense for Policy Michèle Flournoy told me, “If the results-oriented sometimes means terminating programs that leader owns strategy from the start, communicates it clearly, are not working productively toward mission goals. rewards people for executing it and holds them accountable The U.K. Prime Minister’s Delivery Unit used implementa- when they don’t, that’s the most powerful way to mobilize an tion routines to focus relentlessly on four disarmingly simple organization.” questions: What are you trying to do? How are you planning Good strategy is not about drafting the perfect plan on paper. to do it? At any given moment, how will you know if you’re on It’s about giving employees clear objectives, empowering them track to succeed? If you’re not on track, what are you going to to lead and fostering a culture of continuous improvement in do about it? order to achieve greater mission impact. As Secretary Pompeo urged at his town hall in May, “People talk about delegating Effective Leaders Own the Mission Strategy authority. I want you out there demanding it. Say ‘I have this. I To marshal action on their priorities, we see successful can take on this task. I’ll keep you informed, I’ll seek your guid- chiefs of mission and DCMs spend time on their integrated ance, and then I’ll go execute the heck out of it!’” n country strategy. They adapt it, communicate it, reinforce it and help people see when they may be drifting from it. To learn more and access resources and tools for strategic plan- Employees recognize their commitment to the strategy, begin ning and performance management, State Department employ- to believe in it themselves and reorient. The change starts at ees can visit the Managing for Results intranet site at cas.state. the top and spreads across the mission. As former Under Sec- gov/managingforresults.

38 SEPTEMBER 2018 | THE FOREIGN SERVICE JOURNAL FOCUS CAN STATE DELIVER?

Is There E-Hell a Way Out? Efficient and secure information technology processes and platforms are the primary requirements for State’s operational modernization. Here is a candid look at the challenges and suggestions for a way forward.

BY JAY ANANIA

irst, the good news. For all the justifiable complexities faced by the department. That accomplishment complaints employees and customers is worth appreciating, especially given some of the inherent may have about the Department of State’s and unusual challenges briefly mentioned in this article. electronic systems, State manages generally And yet the performance of State’s information technology reliable and secure global systems con- systems remains a sore spot for many employees from all ser- necting several hundred U.S. locations and viced agencies. Customers accustomed to rapid developments overseas posts, many in countries with poor in e-commerce and mobile computing chafe at using systems telecommunications infrastructure. Very that often don’t share data or simplify routine processing. At few organizations of any type confront the many overseas posts, personnel are frustrated by poor perfor- mance as applications become more centralized, outrunning FJay Anania retired in 2015 after a 31-year career as a the quality of the connections to servers in the United States. management-coned FSO at the Department of State. Worse, malevolent intruders constantly threaten State IT His final tour was as U.S. ambassador to the Republic systems as they seek (and at times, obtain) sensitive informa- of Suriname from 2013 to 2015. Among his earlier as- tion and opportunities to derail U.S. initiatives. Even a cursory signments, Ambassador Anania served under Secretary glance at the Office of the Inspector General’s online archive of State Colin Powell as director of the Offices of Management Policy reveals persistent problems with State’s IT planning and and Rightsizing the USG’s Overseas Presence, and as the Bureau of execution, including issues that affect system performance Information Resource Management’s acting chief information officer. and the integrity, confidentiality and access to data. He was executive director for the Bureau of Near Eastern Affairs and At the heart of the difficulties is the fact that State, like many the Bureau of South and Central Asian Affairs, and then served as other federal agencies, lacks a centralized authority that is management counselor for U.S. Mission Iraq (2011-2012). In Iraq, empowered to establish and enforce an enterprise-wide IT archi- Amb. Anania led the successful management transition as State took tecture for domestic offices and overseas missions. Such a central- responsibility from the U.S. Army for supporting 17,000 personnel at 12 ized authority is needed to set standards for efficiency and data locations throughout the country. He also served in Tijuana, Havana, sharing, to guide specific IT initiatives, to prioritize spending and Amman, Abu Dhabi, Hong Kong and Berlin. The opinions and charac- to direct cybersecurity operations among the myriad IT systems terizations in this piece are those of the author and do not necessarily “owned” by individual bureaus, departments and posts. represent those of the U.S. government. The author can be reached at There are no easy solutions to the strategic failure of State’s IT [email protected]. systems. In this article, I discuss the various challenges, how they

THE FOREIGN SERVICE JOURNAL | SEPTEMBER 2018 39 State lacks a centralized With no coherent centralized initiative to unite systems “owned” by various bureaus and posts, it was the Bureau of Con- authority empowered to sular Affairs—with its obvious requirement for consistent consular establish and enforce an systems globally, and utilizing funds retained from consular collections—that finally set a consistent standard for desktop enterprise-wide IT architecture computers, albeit only for consular personnel. Finally, with the for domestic offices and (mostly imaginary) Y2K threat looming, IRM was funded to establish consistent global standards for Microsoft-based desktop overseas missions. computers. As federal IT evolved, laws came into force creating chief information officers (CIOs) at each agency and defining their roles. But, like other federal agencies, the State Department was arose and their implications for efficiency and security. Finally, slow to adjust its policies and bureaucracy and is still far from I offer some recommendations that—if backed by sustained, complying with current law and standards. State first created high-level management commitment—can set the department the CIO as a solely advisory position in the Office of the Under on an effective path for the future. Revamping the organization Secretary for Management, only later making the CIO the head of to reshape and manage State’s information technology under- IRM, a bureau still focused on managing core communications pinnings is critical to supporting overdue, broader management systems. Even today, State’s CIO is often viewed as akin to the reforms necessitated by dramatic changes in the nature of foreign head plumber or electrician rather than a critical business leader. affairs challenges. By contrast, law and executive orders direct agencies to empower CIOs with broad authority over IT investments and cybersecurity. Past as Prologue Given the functional bureaus’ responsibilities, it is reasonable The current situation reflects the history of IT at the State that they should serve as “business owners” and play a major role Department and the consequences of decisions, and non-deci- in managing IT systems. However, a weak CIO and the lack of sions, taken over the past three decades. Broad-scale computing effective enterprise-wide strategies led, perhaps inevitably, to a at State started in the early 1980s with the introduction of Wang reality in which individual bureaus zealously guard their tradi- mainframe and word processing systems, often at the initiative of tional prerogatives and funding. With IRM’s history of budget and “early adopters” who saw the utility of computers over typewriters. human resources limitations, it is no surprise that other bureaus There was little centralized capability or organization to man- continue to directly create and manage core IT systems to carry age these systems, and individual offices and bureaus purchased out State’s critical HR, financial, consular, logistics, security and them and used them as they saw fit. Bureaus paid for these com- other functions. puters, typically made the decisions about what and when to buy, and expected employees to share computer terminals. A Tower of Babel State management gradually recognized the utility of having a In practice, then, absent direction and assistance in aligning unified information technology organization. In 1998, it created investments for the greater good of employees and organizational the Bureau of Information Resource Management from some— efficiency, bureaus can and do develop systems that respond to but not all!—elements of the Bureau of Administration’s Office narrow requirements. Many vendors offer similar IT applications of Information Management. From the start, IRM was playing and platforms. Without the strategic guidance they often yearn for, catch-up: State IT was already decentralized, and bureaus contin- bureaus inevitably end up picking differing, sometimes incompat- ued to fill the vacuum by creating solutions to meet their needs. ible, tools to the detriment of overall efficiency and cost-effective- “Functional” bureaus (including the Bureau of Administration) set ness. about building core IT systems for accounting, human resources, This is especially damaging to operations at overseas posts, logistics, etc. This decentralization had the advantage of putting which typically do a better job than headquarters of integrating bureaus in charge of systems that met their specific needs; but it internal and interagency operations. Unfortunately, the “Wash- came at the cost of duplicating efforts, and creating and institu- ington solutions for Washington problems” approach, in which tionalizing inefficiencies. bureaus focus on their own narrow requirements, leads to IT

40 SEPTEMBER 2018 | THE FOREIGN SERVICE JOURNAL systems that actually hamper these needed collaborative efforts. by commercial vendors without upsetting integration with other Indeed, bureaus and posts have created thousands of sys- applications. tems—some from scratch and others using commercial software The bad news is that by permitting bureaus to choose from a modified to meet “unique” requirements (perceived or legiti- smorgasbord of competing products, with little encouragement mate). The result is a technical Tower of Babel that the depart- or incentive to consolidate systems, the department continues to ment’s limited technical workforce cannot properly understand, increase IT complexity. Bureaus develop systems using different manage or even catalog. tools, in some cases migrating from State-managed data centers Contractor personnel created and still manage most major to competing commercial cloud-based platforms, such as those systems. State never invested in or retained the technical staff managed by Amazon and Microsoft. Worse, some bureaus operate needed to properly document and apply the knowledge associ- software so altered to meet State’s needs that it cannot be updated ated with both the administrative policies and technical details of away from obsolete technology, exposing data to cyber-intrusion these systems. The recent hiring freeze exacerbated the problem, and the more mundane risks associated with software no as bureaus watched critical personnel—both technical and sub- employee understands how to manage. ject matter experts—retire, transfer or take lucrative private-sector Attempting to track, control and set realistic configuration positions. This lack of staffing continuity makes it impossible for standards for so many systems (including data-center platforms) State to effectively manage its IT systems. and manage the interconnections between them is a Sisyphean Further, bureaus struggling with staff and budget shortages are task, as critical OIG reports document. For example: so-called understandably hesitant to make major changes given the risks customer relationship management (CRM) software underlies of “breaking” increasingly obsolete systems or, worse, opening up many modern applications. There are several excellent options, new cyber vulnerabilities and exposing themselves to public criti- including Remedy, ServiceNow, SalesForce and Dynamics. But cism from Congress and the media. Some bureaus have literally lacking an enterprise IT architecture, the department is choosing dozens of interrelated applications, built using different tools over all of them, “hosting” some applications on department-managed many years. infrastructure while outsourcing others to competing commercial This is a root cause of the frustrations employees feel when “cloud” data centers. trying to accomplish seemingly routine activities, especially when This exponentially multiplies complexity and perpetuates the the tasks cut across bureaucratic lines. An obvious example is the past mistake of institutionalizing “fragmented decentralization.” difficulty of the Foreign Service transfer process, which requires human resources, finance and logistics personnel and systems to The Data Management Spider Web work together. Instead, many IT systems reinforce bureaucratic Some State Department IT leaders now tout a data-centric lines and impede productivity. approach to systems. This is long overdue, because information— data—is the asset at the heart of the department’s programmatic A Positive IRM Initiative, But… and administrative missions. Data—not IT systems—should While IRM’s consolidation of productivity tools on the Micro- be the starting point. System “owners” must understand and soft Office 365 platform should prove a highly positive initiative, demonstrate a commitment to properly integrating data to ensure individual bureaus continue to create systems based on other efficient, State-wide operations. Maintaining overlapping data commercial products from competing companies. In many sources with disparate underlying systems is wasteful, hurts data cases, customizations over time make it difficult to upgrade these quality and increases the risk of data loss. systems or migrate and/or share the data in a manner compat- Yet, with individual bureaus “owning” these systems, there ible with department-wide objectives. Bureaus have the money has never been an effective scheme to share data among them. to maintain current systems, but neither the resources nor the Bureaus and posts, both internally and among themselves, direction to develop and implement strategies to modernize them implement “point-to-point” connections to share (or worse, not to make customers’ jobs easier. to share) data, creating hundreds of unique connections using The good news is that modern IT application development multiple tools—a spider web of uncontrollable complexity. The tools permit greater flexibility to configure systems without department can neither track nor manage these data flows, which customizing underlying applications. This permits managers to increases costs (it takes highly paid people to manage these plan for the inevitable “like it or not” technical upgrades required systems), decreases efficiency (customers must work through

THE FOREIGN SERVICE JOURNAL | SEPTEMBER 2018 41 The department already tions, development tools and IT platforms. Set short-term and longer-term goals to converge systems, especially critical core has commercial middleware systems. (known as an enterprise Strictly limit cloud platforms and duplicative tools, permit- ting exceptions only where standard assets cannot be used. service bus) software to Expand department-wide licensing agreements, replacing coordinate centralized data bureau-by-bureau purchasing, to reduce overhead, improve internal controls and increase incentives for standardization. sharing, but isn’t using it widely. 4. Invest in hiring, retaining and continuously refreshing the skills of State’s IT employee workforce. While building a strong cadre of Civil Service staff who can manage core sys- tems, integrate Foreign Service personnel with expertise man- aging overseas systems throughout IRM and other bureaus multiple systems) and exposes data to the possibility of loss or that manage major IT systems. As a priority, strengthen IRM’s misuse. This makes the job of the IRM chief information security core capacities to properly manage IT strategy and core IRM- officer nearly impossible. managed systems while providing guidance and oversight to Amazingly, the department already has commercial bureaus managing other critical systems. middleware (known as an enterprise service bus) software to Provide career paths to ensure the department can count coordinate centralized data sharing, but isn’t using it widely. on an experienced team with strong technical and manage- In this software’s hub-and-spoke configuration, each appli- rial skills and, critically, a broad understanding of enterprise cation connects to a central system. With data “on the bus,” business requirements and interrelationships between bureau IRM could work with system owners to appropriately share it, missions. Especially for core financial, human resources, con- securely and efficiently, eliminating hundreds of current con- sular and logistics systems, ensure that managers are subject nections. matter experts, with substantive experience, who can expertly But without an effective, empowered CIO directing imple- inform system development carried out by qualified IT staff. mentation, this isn’t happening. Nor is there a clear plan to 5. Replace fragmentation with federation. Maintain a make it happen. This is, quite simply, a strategic failure. degree of decentralization, with bureaus continuing to play lead roles in defining business requirements for IT systems; Moving Toward a Solution but empower the CIO to enforce strategy and funding flows, Based on the observations and discussion above, there are insisting that bureaus receive consistent, achievable direction a number of seemingly obvious steps that could be taken to and resources based on agreed priorities. overhaul, strengthen and rationalize State’s IT architecture. Over time, transfer technical resources to IRM to permit 1. Define goals. Codify department-wide “first principles” to the bureau to properly provide technical support, reducing affirm that the purpose of IT systems is to enhance the efficiency IT elements within other bureaus. Assistant secretaries, their of secure global operations. Systems are tools to reduce employee deputies and executive directors are not and never will be IT and customer effort. Data is a corporate asset that all IT systems experts. Just as they should manage bilateral relations, con- owners must share appropriately, eliminating duplicative data sular affairs, security, intelligence and financial operations, stores whenever possible. IT systems must enhance secure global the CIO and IRM should manage the underlying technical access to data and meet defined performance levels. aspects of IT. 2. Empower the CIO, consistent with federal law and Information technology processes and platforms are the executive orders, to establish and enforce an enterprise-wide primary requirement for State’s operational moderniza- IT architecture, prioritize spending and direct cybersecurity tion. Unfortunately, there is no magic bullet to resolve the operations. Make the CIO responsible for advancing enter- IT challenges State and other agencies face, which go back prise goals. many years. But with a serious, sustained commitment from 3. Direct the CIO, in consultation with bureaus, to set stan- top-level management, a decisive start can be made toward dards and limit the number of options for software applica- significant improvement in this critical area. n

42 SEPTEMBER 2018 | THE FOREIGN SERVICE JOURNAL FOCUS CAN STATE DELIVER?

Is the Future of Who the Foreign Service?

he State Department, like the roads in Career public servants at all levels Washington, D.C., seems to be in a con- and specialties make diplomacy work. stant state of repair, with new potholes How do we find them, keep them, for each successive Secretary to fill as he grow them? or she deems best. No one knows better than those who work there that State BY BARBARA BODINE could use some fixes; that structures, technologies, missions and mandates become outdated and need rethinking. broader actions discouraged and, in some cases, drove away the Over time, State has gone through its fair share of such proj- very people whom the Secretary, the department and the country Tects. Some of the repairs are right and proper; and they do, in need to restock our ranks and provide the quality workforce pipe- some small way, make the wheels go ’round a bit more smoothly. line to go forward. Many are well-intended but poorly planned and poorly executed, Secretary Pompeo’s selection of a respected senior career with an inevitably poor result. Too often the repairs focus on the officer as under secretary of State for political affairs, his day one wiring diagrams; too infrequently on the mission, the funding reversal on employment of eligible family members (EFMs), the and, most important, the people. And some, such as those initi- lift of the hiring freeze (albeit without restoration of abolished ated by former Secretary Rex Tillerson, seem designed by a ditch positions) and reinstatement of intake classes (including Picker- digger bent on just tearing it all up. ing and Rangel Fellows) at credible levels, among other changes In the months preceding Secretary Mike Pompeo’s tenure, the afoot, signal an understanding that the bedrock of the department well-documented realities of the administration’s rhetoric and is our people, both Foreign and Civil Service. It’s the career public servants at all levels and specialties who make diplomacy work. Barbara Bodine is the director of the Institute for the Study of Di- This is good. A strong—swaggering?—call to serve is back. Who plomacy and Distinguished Professor in the Practice of Diplomacy will answer that call? More precisely, can we recruit and retain the at the Walsh School of Foreign Service at Georgetown University. quality of officer needed to meet the demands of this new era in Among many assignments during a more than 30-year Foreign ways that serve our interests for the long haul? Service career, she served as U.S. ambassador to Yemen from 1997 Without the right people, the best plans, the noblest intentions through 2001. and the most stirring rhetoric will all fail. Who are those people?

THE FOREIGN SERVICE JOURNAL | SEPTEMBER 2018 43 Too often the repairs at State They do share some common world views shaped by shared world events. Like most coming-of-age adults, they believe the focus on the wiring diagrams; world began the day they became politically aware; still, there is too infrequently on the little naiveté about the world in which they grew up. They are of the post-9/11 world. My most recent test sub- mission, the funding and, jects—otherwise known as undergraduates—were still in diapers most important, the people. at the time of the attack. They are a generation that has known nothing but endless and inconclusive wars. They are also the generation for whom mass school shootings and lockdowns are all too common. They understand the world can be a dangerous and sometimes hostile place. For them, the Soviet Union and the How do we find them, keep them, grow them? I recently attended threats of the Cold War era are so far back in the rearview mirror a retirement ceremony for one of our most senior and respected as to be meaningless. officers. He addressed this question, not in terms of the official This generation understands the dangers posed by serving “competencies” but in terms of “core principles,” which came their country abroad. Those we seek to recruit and need to retain down to knowledge, ideas, impact and integrity, along with a pas- are not put off by the challenges of living abroad. Such challenges sion to serve. are to them a given. They have firsthand memories of the Great Recession. They Who Are They? saw within their own families the betrayal of promises made by In the decade and a half since I left the Service, I have under- employers to lifelong employees, homes lost, and retirements taken a wholly unscientific study of those we seek to recruit and deferred. They are less likely to assume that there is a reciprocal those who seek to serve. In more than 15 years, including 18 set of obligations between employer and employee and, thus, less months as a diplomat in residence at the University of California likely to think of any career as forever. That trust has been broken. Santa Barbara and a writ for the entire state, I have met hundreds They have grown up in a world where established institutions of students, former military members, lapsed lawyers and others are suspect if not discredited. interested in careers with the Department of State. While my work has been primarily at schools along the east Diversity and Entrepreneurship coast, with travel to institutions well beyond that, the students Millennials have come of age in an increasingly diverse America themselves come from across the country. They come from geo- and are aware of and connected to this diverse world. A security graphically diverse undergraduate institutions and represent the clearance investigator asked me if my student “knew any foreign- best of this diverse experiment called America. My “study” has ers,” and was explicit that he saw that possibility as a bad thing. spanned three administrations and several Secretaries of State. One does not laugh in that circumstance; it may hurt the student Granted, there was no control group. I have not spent compara- seeking clearance. But the reality on most campuses, especially in ble time with those who have no interest, not even idle curiosity, schools of public policy, international relations or the like, is that a in the department. They may come to an information session, sizable percentage of students and faculty will not be native-born but there is no follow-up. Americans, and may very well be non-white and non-male. The Who, then, are these people who want to join our ranks? old “male, pale and Yale” no longer exists—not even at Yale. The simple answer: they are overwhelmingly millennials. This These aspiring members of State, like their classmates and technically accurate term for those born roughly between 1981 professors, may be immigrants, first-generation Americans. and 1996, however, is a distorting generalization—reductionism, Others will be international students on academic exchange in the jargon of the academic world—and one that millennials programs. They are or have friends who are LGBTQ, and friends themselves find disparaging, conjuring up images of entitled, who are Dreamers. Diversity of all sorts is the norm, not the gadget-addicted, avocado toast-eating snowflakes, unable to make exception. a commitment and more than a little whiny. While I’m certain The schools and professions from which we seek to find the there are some who fit this profile, the stereotype misses the next generation of civil servants and FSOs are now at least half unique realities of these remarkable people. women (though this is less so for military veterans coming in,

44 SEPTEMBER 2018 | THE FOREIGN SERVICE JOURNAL regrettably). These women assume they will have a seat at the processes, policies and procedures, most, some, of which exist table and at least an equal voice in the deliberations. for a reason. Operating outside of these processes (freelancing) Our millennial recruits came of age in the era of the entre- is not an option. It can be dangerous. preneur, of the small team or the extraordinary individual who But it is also in our interest to actively encourage and support makes big changes, who disrupts the conventional. They value initiative and policy entrepreneurship at all levels, even the most impact over money. junior. State “grows its own.” We bring people in at the bottom Perhaps the most important common thread, the one that and hope to end with seasoned, experienced officers and policy weaves the rest into a tapestry of service and ties them to previ- leaders. One cannot go from cog to policymaker in one promo- ous generations, is that they have an abiding passion to make a tion. That transition evolves over time with guidance, experience difference. They understand the cost of maintaining our security, and leadership. We ourselves ought to more clearly understand our economy and our values; they understand that a domestic what that process looks like and convey to our new Foreign Ser- and global environment marked by disruption and discontinui- vice members what they can expect, what the opportunities and ties results in violence and human hardship. encouragement for growth are. They are comfortable working and living in a diverse world; Those who seek to join the Foreign Service choose it because they are charged by belief in the entrepreneurial spirit that an of the “foreign” nature of the work. They want to serve, work and individual can make a profound difference; and they have the live abroad. They recognize we live in a sometimes dangerous passion to try to be that person. Their commitment to serve their world, and that diplomacy is a high-stakes, high-risk profes- country is without question. The words of our oath of office—our sion. They also understand that effective diplomacy is based on sworn duty to “protect and defend the Constitution against all effective relationships. They may not fully appreciate the unique enemies foreign and domestic”—inspire pride and humility. security challenges of diplomacy or the unique profile of an American diplomat abroad—as distinct from a student abroad, What Are Their Questions and Concerns? an NGO worker or a tourist—until they start their FS career, but But they have questions that reflect this same impulse to within those realities they want to get out there and do their job. serve and to make a difference. Some are valid and should be Like many seasoned FSOs, they will chafe at the trade-offs in the part of recruitment and retention reform proposals; some are balance of security and diplomacy abroad. based on misperceptions that can be ameliorated through more What is not new is the question of balance between profes- effective outreach efforts; and some reflect issues and concerns sional obligations and personal integrity, between unquestioned that extend beyond the purview of State but are nonetheless loyalty to national interests—remember our oath to uphold the valid for discussion. Constitution—and specific policies or actions that violate that The cynicism about established institutions extends to the trust. There is a line beyond which even a soldier may disobey an State Department. “Cog-in-a-wheel” is not a status to which they order. That is no less true for Foreign Service members. Where aspire. They are eager to learn; they seek mentors and guid- that line is, and what action, up to and including resignation, is ance; and they look for role models. Many first learned about the the right action, is deeply personal; but everyone at State must department and the Foreign Service from a former practitioner. understand that the line is there and must be respected. They understand this is a profession one learns through appren- ticeship. What is not clear to them is when and how does one What Are Our Obligations? move from entry-level to policy influencer. Must they wait 20 or The flip side of this question is what value our leadership 30 years to become an ambassador? (Answer: No, senior-level places on people who “speak truth to power” through coun- positions recognize but do not create the policy influencer.) tervailing data, inconvenient but well-grounded analysis, and At one A-100 swearing-in a few years back, a senior officer alternative policy recommendations. No one expects every reminded the newly-minted officers that they had been selected policy recommendation to be approved. You will not win every through a process designed to identify intelligence, knowledge policy debate, and perhaps in some cases shouldn’t. You are and character, and that they were charged with bringing those not always right. But are competing analyses and approaches same qualities to work every day. It was a reassurance of non- given a fair and reasonable hearing? Is the process open, cog’ism. Still, it is in our own best interest to be candid about transparent and accountable? Again, are creativity, initiative, the realities of working within a bureaucracy: there are rules, risk-taking and intellectual entrepreneurship seen as institu-

THE FOREIGN SERVICE JOURNAL | SEPTEMBER 2018 45 The schools and professions ing long hours and long weeks managing a world that refuses to synchronize with our workday and workweek or recognize our from which we seek to find the holidays is proof of that. next generation of civil servants But we have long understood that the Foreign Service is more than a job. It is a lifestyle that demands service and sacrifice and FSOs are now at least half not only from its members, but also from their families. We also women. increasingly recognize that the configuration of our families has shifted from the traditional trailing wife plus kids, to encompass dependent elders, trailing husbands and same-sex couples. We tional values that support a more rigorous policy process, or as don’t always hit the mark, and we sometimes miss badly. But we threats to orthodoxy? deserve credit for trying. Finally, there is a bundle of questions that comes under the As Secretary Pompeo and his team gear up for the next round heading of “work-life balance.” Here the State Department has a of reforms, budget justifications, wiring diagrams and mission good track record, but with significant room for improvement. statements, we need to keep in mind that it all comes down to Tandem couples have been a norm at State for decades. LGBTQ “We, the people” who make our diplomacy effective and secure staff have served with distinction for nearly as long, and they have our country’s interests. We must work to ensure that the very served openly at State far longer than at our sister agencies. Issues best people still strive to join our team in the years to come; and of education and spouse employment are legitimate factors in that once in, their talents and their passions are recognized and assignments. We don’t always get the “balance” part right: spend- rewarded. n

46 SEPTEMBER 2018 | THE FOREIGN SERVICE JOURNAL FOCUS CAN STATE DELIVER?

The Future of the Foreign Service— As Seen Through the Years From the FSJ Archive

Change As a Means to Improved A Broader Definition of the Foreign Relations Diplomatic Calling We must never forget that from the The crisis confronting diplomacy in the nation’s point of view the only thing 1980s can only be understood as part of that really matters is whether or not the the much larger crisis confronting the foreign affairs job is performed ably and nation-state. Despite all the frenzied mani- successfully. There is nothing sacred festations of nationalism and the prolifera- about either the department or the tion of new nations, the basic reality to Foreign Service; they are administra- the latter part of the 20th century is that tive mechanisms to serve the national interest. They can and “One World” is rapidly becoming a fact. The steady and inexorable should be altered from time to time to remedy their deficien- shrinkage of the planet to the dimensions of a global village, com- cies and to improve their effectiveness. bined with quantum leaps in the advance of technology and the We cannot, then, logically object to change, provided that social and economic development of hitherto backward regions is change is a means toward the objective of more effective con- daily making the nation-state more obsolete at every level of inter- duct of American foreign relations. We must assume, however, national intercourse. As this process accelerates, the traditional that even the most ardent administrative prestidigitators will modalities and instrumentalities have become too narrow and sooner or later have to take morale factors into consideration. stereotyped to accommodate the traffic. No administrative mechanism can be better than the people If the State Department wants to assume primacy over the full who staff it, and the devotion of these people to their duties. range of official relationships binding the United States to other Over the long pull, changes cannot be so frequent or so drastic nations, its personnel will need to concentrate on non-govern- as to keep employees in a state of uncertainty and unrest. There mental levels of host country societies to a greater extent than needs to be enough stability through the years so that the for- has hitherto been regarded as part of the diplomatic function. eign affairs organization can consistently recruit topflight tal- This can only be done by broadening the personal contacts ent, provide genuine career satisfactions, and keep its employ- of mission personnel to include youth, labor, intellectual and ees working with maximum loyalty and devotion. clerical circles at one end of the spectrum, and private finan- What I do argue, however, is that we must adjust ourselves cial, business and celebrity circles at the other. Investment pat- to the frustration of never being popular and never being fully terns and currency transactions are especially important. recognized for our efforts and our achievements. It is no use to say There is scarcely a society in the world where indicators of that the department falls down on its public relations and doesn’t impending change are not visible in every comer—provided an know how to tell its story effectively. In future years we may do a embassy officer speaks the local language, keeps himself open better job in this respect than we are doing now, but the problem to unofficial contacts, and spends some of his time with intel- is by its nature inherently not subject to a full solution. ligent citizens instead of his bureaucratic counterparts. —Frank Snowden Hopkins, assistant director, Foreign Service —Charles Maechling Jr., from “The Future of Diplomacy and Institute, from “The Future of the Foreign Service,” FSJ, April 1950 Diplomats,” FSJ, January 1981

THE FOREIGN SERVICE JOURNAL | SEPTEMBER 2018 47 How Can the Foreign Service The Service must deal with the professional interests of its Remain Effective for the members’ spouses. We do not want a Service of separated fami- Next 60 Years? lies—it would not be sustainable over the next 60 years or project In 1984 the Journal asked a group of adequately our American values of family and home. prominent individuals for their thoughts on Finally, each administration must responsibly choose only the future of the Foreign Service. Here are well-qualified political appointees. There have been many superb excerpts from a selection of responses from political appointees named for high State Department and the November 1984 FSJ. ambassadorial posts, but others have not had the background or experience for the job. The Foreign Service has problems, but they I can confirm your assumption that the Foreign Service is cur- are manageable. I am sure that the Service will improve upon its rently effective in the development and implementation of U.S. already distinguished record of dedication and achievement over foreign policy. As we face the future, however, the big question the next 60 years. is whether the Foreign Service will evolve as dynamically as the —Charles H. Percy, chairman, international environment in which it operates. Senate Foreign Relations Committee The key words for the future are high technology, multilateral- ism and economic interdependence. Bilateral relations will always In the years ahead, the Foreign Service must adapt to major be important; but most new problems overflow national boundar- additions to the diplomatic agenda. Our record in this is not ies and straddle domestic and international affairs. The complex good. Our traditional view of diplomacy as essentially political issues of technology transfer, international debt and terrorism are did not prepare us to assume roles in development and informa- current cases in point. tion in the postwar years. Our inability to convince others of our FSOs should consider broadening their horizons as much as dedication to trade lost us the commercial function. Political possible. Assignments outside areas of specialization, outside the leaders’ doubts regarding our sensitivity to domestic currents department and, indeed, outside of government will be extremely have seen us bypassed in foreign policy. valuable to officers who will face difficult issues in the high-tech, Already we have many new agenda items: arms control, electronically fused world of 2000 and beyond. transfer of high technology, allocation of radio frequencies. Others Increasingly, government will have to work closely with the pri- lie ahead in potential conflicts over transnational data flow, the vate sector to achieve foreign policy objectives. The Foreign Ser- availability of positions in space, the impact of outer space devel- vice will have a unique role in bringing the best assets of both to opment on national sovereignty and the implications of biotech- bear on the continuous process of pursuing U.S. interests around nological innovations. The Foreign Service must begin to develop the world. Foreign Service officers and specialists must expand officers who understand technology and speak the language of the their horizons to develop and maintain the necessary skills and technicians. If not, others will replace us who can. intellectual mobility. Perhaps only after one has been out of the Service for a few years —George P. Shultz, Secretary of State does the awareness dawn of how isolated the Service is, immersed in its own pressures, concentrating on other societies, and rooted To remain effective for the next 60 years, the Foreign Service in the protection of traditions and turf. Presidents and political should strive to set ever higher standards of professionalism leaders may not wait for such a traditional service to catch up. They and dedication, and the Congress must encourage and help the will look elsewhere for the help they need. It is time for the Foreign Service in this quest. Service to prepare itself to be responsive to the needs of the future. The Service must seek constantly to increase the number of —David D. Newsom, former under secretary officers who speak needed foreign languages. More emphasis for political affairs must be placed on achieving higher language skill levels and on maintenance of those skills. One of the major recent changes affecting the Foreign Service is The Service must recruit the best candidates—highly intelli- the heightened participation of Congress in foreign policymak- gent persons willing and able to serve under difficult and danger- ing. I believe this trend will continue for the foreseeable future. ous conditions abroad. But we must be willing to pay what it costs In recent years, the Service’s isolation from the legislative to attract and keep them. domain has been breaking down. More and more mid-level

48 SEPTEMBER 2018 | THE FOREIGN SERVICE JOURNAL FSOs have served in exchange programs with the Congress and not exclusive, source of appointment to ambassadorial positions have become directly involved in congressional testimony. This and to senior positions in the Department of State, these latter enhanced contact and communication between two branches of to include, incidentally, the position (yet to be established) of a our government means that future FSOs will have to be more than permanent under secretary of state, on the British pattern, wholly researchers, drafters of cables and policy papers, and able nego- divorced from political affiliation or influence. tiators: They will have to become effective advocates of executive —George F. Kennan, retired ambassador policies and programs. Selection and promotion procedures should reflect this new and added requirement. The Foreign Service has only one asset—its people. To remain Administrations, it is said, have varying programs and policies, effective over the next 60 years, more work must be done to but nations have permanent interests. The Foreign Service needs maintain the current high-quality FSO corps. In the face of declin- to develop public recognition of, and support for, its basic and ing attractiveness of government as a career, the increasing role continuing mission—which is to defend and promote the U.S. played by other agencies in foreign affairs, and the mounting per- interest abroad, in the fullest sense of that term. sonal disadvantages in living overseas, the Foreign Service must —Dante B. Fascell, chairman, House Foreign Affairs Committee run harder to stay even. Not only must we address such issues as pay, benefits, and working conditions, including greater oppor- One thing is certain: if humanity survives on this planet, political tunities for working couples; but we must come to grips with the structures and foreign affairs will still be moved by people acting seemingly intractable obstacles to maximum performance during and reacting with each other. This is what the Foreign Service is the last two decades: mission definition, a more rational alloca- about. Our people are our only asset, and we must devote increas- tion of personnel resources, and an organizational structure that ing attention to them. We must increase our capability to under- clarifies lines of accountability and responsibility. stand and anticipate the changes that science and technology The good news is that foreign affairs is becoming more central are bringing to human relations in finance, economics, politics to our country’s interests, indeed even its very survival. The presi- and military affairs so that we can be ahead of the curve instead dent can and should look to the Foreign Service as his instrument of frantically trying to catch up. We must also better develop our to orchestrate our foreign policy resources. No recent president domestic constituency to give our citizens and political leadership has fully accepted us in this role, but future presidents may find the confidence that our objective is the protection and promotion of need overwhelming. Let’s position ourselves to take advantage of the interests of this country in their largest and best sense. If we the opportunity when it arises. The first priority is to get our own are successful, we should regain that primacy in foreign affairs house in order. under the president to which we should aspire. —Frank C. Carlucci, former FSO, chair, —U. Alexis Johnson, former under secretary for political affairs Commission on Assistance

The problem, as I see it, is not what the Foreign Service needs to Train to Deal with the World do to remain an effective force in the next 60 years, but what the As It Will Become United States government needs to do to the Foreign Service to The fundamental purpose of America’s give it that possibility. This, in my opinion, would be to return to foreign policy is to protect our citizens, the sound principles of the Rogers Act of 1924: to make the For- our territory and our friends. As we eign Service—a highly selected and unashamedly elite body of look ahead, we know that increasingly, professionals, held to high standards of discipline, performance this will require an effective response and deportment, but respected accordingly—a self-administer- to problems that extend far beyond our ing service, to be entered only at the bottom and by strict and borders. To function successfully in this impartial competitive examination. diverse, fast-paced and rapidly changing environment, we will The Foreign Service should not be confused with the various need women and men trained to deal with the world not as it bodies of technicians and specialists that are involved in other was, but as it is, and as it will become. capacities in the external relations of our government, and it We will need people who can find the needle of information should be quite immune to political manipulation. It would be that counts amidst the haystack of data that do not. We will need desirable that it be regarded as the normal and primary, though people who can function in partnership with those from elsewhere

THE FOREIGN SERVICE JOURNAL | SEPTEMBER 2018 49 in our government, in other governments and from the private sec- for coherence and balance in foreign policy, another central role tor. We will need people who can think and act globally—because of the Foreign Service becomes clear: to coordinate and guide that is what the American interests require. We must try to improve American specialists from a variety of agencies, and sometimes our record of recruiting qualified women and minorities. the private sector, in the international dimension of their work. In Here at FSI, we will need more focused training in issues such fact, foreign affairs experts will sometimes find they must mediate as trade, climate change, refugee law and information manage- among conflicting domestic points of view to arrive at consensus ment, while maintaining a high standard on cultural studies and on national positions. language skills. —William C. Harrop, from “The Future While so doing, we cannot and will not ignore the more tra- of the Foreign Service,” FSJ, May 1997 ditional aspects of diplomacy. We will maintain our focus on key alliances and relationships around the world. But we also know The Professional Training that, in the future, our FSOs and other professionals will be asked Imperative to range far from the bargaining tables and communication centers The zeal with which the Foreign Service of our largest embassies. constantly re-examines its structure Today, the greatest danger to America is not some foreign and missions and reappraises its train- enemy; it is the possibility that we will ignore the example of the ing needs honors our passion for our generation that founded FSI; that we will turn inward; neglect the profession, but also makes it difficult to military and diplomatic resources that keep us strong; and forget reach conclusions about how effective the fundamental lesson of this century, which is that problems such changes have been over the years. abroad, if left unattended, will all too often come home to America. The most widespread method within the Foreign Service for —Secretary of State Madeleine Albright, from imparting wisdom about how to do the job and pursue a career “The FSO of Tomorrow,” FSJ, May 1997 continues to be mentoring, whether conducted formally or sim- ply through the example set by more senior officers. Resources for Diplomacy Have Become Inadequate This is famously illustrated by the story of Secretary of State Diplomats will not be replaced by CNN, e-mail or telephone Colin Powell, who spent more than 20 percent of his military calls between political leaders. Human contact and informed career undergoing professional development that he found use- analysis on the scene will remain essential to making and ful. When he asked his under secretary for political affairs, Marc implementing foreign policy. The new international agenda Grossman, how much time he had spent in professional training will place greater premium than before on professional skill over the course of his Foreign Service career, Grossman replied: in cross-cultural communication, negotiation and coalition “Two weeks, aside from language instruction.” building. While considerably more training has been added since this Resources for diplomacy have become inadequate. For fiscal exchange, mentoring remains the core of our professional devel- 1998, the Clinton administration has requested restoration of opment. But that model has already begun to break down in the some cuts, but further reductions in subsequent years proposed face of rapid personnel increases, and is manifestly inadequate by both the administration and Congress will, if enacted, cripple for future needs. America’s ability to promote its international interests. For budget As retirements continue and the influx of desperately needed purposes, diplomacy must be addressed for what it is: a central new officers expands, we are at the point where almost two-thirds component of our national security. of Foreign Service officers have spent fewer than 10 years in the The United States no longer confronts a superpower rival, Service; 28 percent have spent fewer than five. We simply no but the issues faced are more frustrating, more technical, more longer have sufficient experienced officers to serve as mentors diffuse. Americans will be concerned primarily with challenges and trainers. And this reality will not be changed by mandates that that must be addressed by coalitions of nations, often in multilat- each deputy chief of mission find time to mentor all entry-level eral forums. Most of these issues are not susceptible to unilateral officers at his or her post—an approach that increasingly resem- American action. bles King Canute’s orders that the sea withdraw. The mission of the Foreign Service will thus extend beyond —Ronald E. Neumann, from “The Challenge of its traditional responsibilities. Since the national interest calls Professional Development,” FSJ, May 2010

50 SEPTEMBER 2018 | THE FOREIGN SERVICE JOURNAL The Power of Decency and Diversity America’s Front Line The world is obviously an increasingly complicated place. Since 2002, the Foreign Service has grown Compared to the moment when I entered the Foreign Service 42 percent, with 22-percent growth since in January of 1982, power is more diffuse in the world—there 2008. (On a parallel track, State’s Civil are more players on the international landscape. Diplomacy is Service has grown 45 percent since 2002.) no longer, if this was ever the case, just about foreign ministries One-third of the Foreign Service now has and governments. It’s about nongovernmental players. It’s about fewer than five years of experience, and civil society groups and private foundations, as well as the forces more than two-thirds have served or are of disorder, whether it’s extremists or insurgents of one kind or now serving at hardship posts. another. That earlier surge in hiring has now screeched to a halt, barely And on top of all that, information flows faster and in greater keeping pace with attrition. And the outlook is for continued volume than at any time before. So the challenges for profes- fiscal tightness, even as we risk losing seasoned employees with sional diplomats are, I think, as great as I’ve ever seen them. But I exceptional experience and expertise to retirement, selection- continue to believe that our work matters as much as it ever has. out or resignation as the economy improves and large cohorts Our ability to add value and to help navigate a very complicated compete for a relatively static number of promotion opportu- international landscape in the pursuit of our interests, remains nities at higher grades. The large intakes from the Diplomatic enormously significant. Readiness Initiative and Diplomacy 3.0 now confront the pre- That should be a source of pride, not just for our generation of dictable tightening of promotion rates as the number of higher- Foreign Service officers, but for succeeding generations, as well. graded positions naturally tapers at mid- and senior levels. And, fortunately, as I speak to A-100 classes and to our colleagues We can predict with high confidence that over the next around the world, I am continually struck by the quality of the quarter-century, the world will continue to be a messy place people with whom we work. I’m impressed when I see the range that requires U.S. leadership. We can also forecast that more, not of experiences in the A-100 classes, not to mention diversity of fewer, U.S. stakeholders will look to participate in foreign policy ethnicities and gender. I wouldn’t say these issues have been formulation and execution. That means we as a department overcome, because we still have a long way to go, but I think we’re must be much better managers, especially with regard to our making progress. And that’s important. talented employees. In my experience overseas, I’ve seen that we get a lot further The Foreign Service is America’s front line. We are in the through the power of our example than we do by the power of information business: identifying, analyzing, disseminating our preaching. When you see a Foreign Service that looks like and making recommendations to prevent, preempt or solve the United States, and which is the kind of living embodiment of problems. We are also in the networking business: identifying tolerance and diversity, I think that sends a much more powerful and cultivating programmatically influential people in all fields. message to the rest of the world. And we are in the advocacy business: discussing, negotiating, I think we’re learning about how to serve in the often-disor- persuading and convincing others to act with and for us. None of derly world of the 21st century. We’ve still got a way to go. There’s that will change. some hugely important issues, like how to manage risk. We’ve At the same time, we know we are not the Foreign Service of sometimes learned very painful lessons. There is no such thing as 1950, 2001 or even 2010. We need the very best people: the ones zero risk in the work that we do overseas. who see past the horizon; who are curious, innovative, tena- We can’t connect with foreign societies unless we’re out and cious; who show initiative, judgment, resilience, adaptability about. But making those judgments about what’s a manageable and perseverance. We’ve always had those employees, but it’s risk, and what isn’t, is increasingly difficult. So we’re still wrestling more important than ever to attract and prepare a workforce for with a lot of those kinds of challenges, as well. I do think we’ve the future, bearing in mind that such attributes are often best learned a lot. As a Service, we’re better positioned to deal with learned and honed through real-life experience. those types of challenges than was the case a decade or so ago. —Arnold Chacón and Alex Karagiannis, from —William J. Burns, from “A Life of Significance: “Building a Foreign Service for 2025 and Beyond,” FSJ, May 2015 An Interview with Deputy Secretary of State William J. Burns,” FSJ, November 2014

THE FOREIGN SERVICE JOURNAL | SEPTEMBER 2018 51 FEATURE Practicing Environmental Diplomacy

Early childhood experiences and a commitment to environmental stewardship served this diplomat well throughout his career.

BY TOM ARMBRUSTER

n my eighth-grade environment class, our teacher encouraged us to do field work rather than write a paper. I chose to work alongside and interview a Chesapeake Bay oysterman, who showed me how the oysters filter the water and explained the vital role they play in the bay’s health. I also learned being an oysterman is cold, wet, hard work! A few years later, I worked on the charter fishing boat Breezin’ Thru, where Captain Harry told me about the old days when he would see acres of fish feeding on the surface of the bay. In the Marshall Islands they call such a feeding frenzy an unok. That simple word describes a natural phenomenon in which the big fish force the little ones Ito the surface, where they are then divebombed by seabirds. Seeing a healthy marine environment is one of the great joys on Earth.

Thomas Armbruster was U.S. ambassador to the Republic of the Marshall Islands from 2012 to 2016, his last assignment before retiring after a 28-year diplomatic career. Ambassador Armbruster joined the Foreign Service in 1988 and served overseas in Russia (where he was the only U.S. diplomat ever to arrive by kayak), Tajikistan, Mexico, Cuba and Finland. He received career achievement, meritorious and superior honor awards from the State Department, as well as an award from President Hilda Heine of the Republic of the Marshall Islands. Prior to joining the Service, Amb. Armbruster was a journalist with KGMB-TV in Hono- lulu and Hawaii Public Radio, as well as Maryland Public Television in Owings Mills, Mary- land. His publications include a chapter in the book Inside a U.S. Embassy (FS Books, 2011) and articles in The Foreign Service Journal, State Magazine, Chesapeake Bay Magazine, Above and Beyond, OpsLens, The GeoStrategists and The Ambassadors REVIEW.

52 SEPTEMBER 2018 | THE FOREIGN SERVICE JOURNAL KAITLIN MEESE A Marshall Islands unok, or feeding frenzy, in progress.

Many environmentalists trace their awareness back to such As the U.S. ambassador, I didn’t always agree with Tony. But youthful encounters with nature. The image of the unok and I loved hearing his stories of the old days. And, since I was there my experiences on the Chesapeake Bay stayed with me during during the Obama administration, we had a common cause in my career as a journalist; then as an Environment, Science and climate change. Technology officer with the State Department; and through my Still, what could I do from a small country so far away to sup- service as U.S. ambassador to the Marshall Islands from 2012 to port President Barack Obama’s and Secretary of State John Kerry’s 2016. climate agenda? Not much, I thought—until 2014, when a Finnish documentary filmmaker friend of mine, John Webster, asked if Defining Moments there was someone from the Marshalls he could interview for Former Marshall Islands Foreign Minister Tony deBrum had a his next film. He planned to cover the United Nations Secretary- far more dramatic defining moment. He grew up with whales, dol- General’s climate summit coming up in New York and mentioned phins and all manner of marine life, but perhaps his most seminal that the U.N. was looking for a civil society speaker to address the experience came when he was just 5 years old. On March 1, 1954, heads of state. Could I recommend someone? he witnessed the Castle Bravo nuclear test, the first of 67 tests Booyah! I knew just the person—not Foreign Minister deBrum, the United States would conduct on Bikini Atoll in the Marshall since the U.N. was looking for a private citizen, but a young Islands. Tony said the flash from the blast was like seeing a second Marshallese poet named Kathy Jetñil-Kijiner. I nominated Kathy sunrise. and sent in her 2011 poem, “Tell Them.” The selection committee Tony deBrum died of cancer in 2017, but his environmental was reviewing submissions from more than 500 applicants, but as legacy lives on. He championed one of the world’s largest shark soon as they saw Kathy’s work, the panelists wiped away tears and sanctuaries; he crusaded against nuclear proliferation; and he said, “We’ve found our speaker.” was one of the leaders of the 2015 United Nations Climate Change The poem Kathy presented at the climate summit, which she Conference in Paris. There he led the “high-ambition coalition” was still finishing the morning of the performance, was called of countries hoping to set strong climate change goals to keep sea “Dear Matafele Penem.” Dedicated to her 6-month-old daughter, levels from rising and swamping low-lying island countries like it brought world leaders to their feet and helped pave the way for the Marshall Islands. the historic signing of the Paris Climate Accord a year later.

THE FOREIGN SERVICE JOURNAL | SEPTEMBER 2018 53 show them where it is on a map tell them we are a proud people Tell toasted dark brown as the carved ribs of a tree stump Them tell them we are descendants of the finest navigators in the world By Kathy Jetñil-Kijiner tell them our islands were dropped from a basket carried by a giant tell them we are the hollow hulls of canoes as fast as the wind I prepared the package. slicing through the pacific sea and after all this for my friends in the states we are wood shavings tell them about the water the dangling earrings woven and drying pandanus leaves how we have seen it rising into half moons black pearls glinting and sticky bwiros at kemems flooding across our cemeteries like an eye in a storm of tight spirals tell them we are sweet harmonies gushing over the sea walls the baskets of grandmothers mothers aunties and and crashing against our homes sturdy, also woven sisters tell them what it’s like brown cowry shells shiny songs late into night to see the entire ocean__level__with the intricate mandalas tell them we are whispered prayers land shaped by calloused fingers the breath of God tell them Inside the basket a crown of fushia flowers encircling we are afraid a message: aunty mary’s white sea foam hair tell them we don’t know tell them we are styrofoam cups of of the politics Wear these earrings koolaid red or the science to parties waiting patiently for the ilomij but tell them we see to your classes and meetings tell them we are papaya golden sunsets what is in our own backyard to the grocery store, the corner store bleeding tell them that some of us and while riding the bus into a glittering open sea are old fishermen who believe that God Store jewelry, incense, copper coins we are skies uncluttered made us a promise and curling letters like this one majestic in their sweeping landscape some of us in this basket we are the ocean are more skeptical of God and when others ask you terrifying and regal in its power but most importantly tell them where you got this tell them we are dusty rubber slippers we don’t want to leave you tell them swiped we’ve never wanted to leave from concrete doorsteps and that we they’re from the Marshall Islands we are the ripped seams are nothing without our islands. and the broken door handles of taxis we are sweaty hands shaking another sweaty hand in heat tell them we are days and nights hotter than anything you can imagine tell them we are little girls with braids cartwheeling beneath the rain we are shards of broken beer bottles burrowed beneath fine white sand we are children flinging like rubber bands across a road clogged with chugging cars tell them we only have one road ISTOCKPHOTO.COM/ROMOLOTAVANI

54 SEPTEMBER 2018 | THE FOREIGN SERVICE JOURNAL Our country has the expertise and resources to lead in environmental diplomacy. We should.

Doing Our Part In her poem, “Tell Them,” Kathy Jetñil-Kijiner says: “We’ve never wanted to leave.” That line refers to the evacuation of Bikini. Although King Juda of Bikini told the U.S. Navy, “It is in God’s hands,” the use of the Marshalls as a testing ground was a foregone conclusion. The U.S. government had determined that atomic testing was necessary for our national security during the Cold War, whatever the consequences for the islanders. Six decades later, the Marshall Islands faces a devastating threat to its national security, in fact to its very existence: inexorably rising sea levels. So it’s time for the United States to help address the crisis instead of adding insult to injury. Now, you could say that such a sentiment sounds like it’s com- ing from an ambassador who has gone native. What do we care if sea levels rise a meter or two? But environment, science and technology issues truly are national security matters. After all, the Pentagon continues to keep an eye on climate change as a driver of conflict. Our country has the expertise and resources to lead in environmental diplomacy. We should. Environmental issues may not always get first priority, but they aren’t going away. Still, if you want hard-power reasons for acting to reduce the pace of global climate change, I can name two in the Marshall Islands alone. One is the Ronald Reagan Space and Missile Defense facility on Kwajalein, one of the jewels in the U.S. defense architecture. That’s where intercontinental ballistic missiles launched from Vandenberg Air Base in California are tracked and targeted to land in the lagoon in Kwajalein. Those missiles deter North Korea and could be deployed in the case of hostilities. The second incentive for us to act is the fact that the Runit Dome nuclear repository in the Marshall Islands could be swamped by rising seas. Runit is the concrete-capped dome that encapsulates nuclear waste from some of the tests. If seas rise, the dome could be swamped and release those materials. I do not think such an accident would be enough to endanger the world, as some alarmists have claimed, but it would clearly not be good. Such an outcome would represent yet another failure to secure nuclear material, a theme in the global nuclear legacy.

THE FOREIGN SERVICE JOURNAL | SEPTEMBER 2018 55 KARL FELLENIUS MEESE KARL FELLENIUS U.S. Ambassador Tom Armbruster finds coral from a construction site in the Marshall Islands (below); and, with the help of a fellow diver, retrieves it for relocation elsewhere.

Further, the Marshall Islands is one of the main transshipment points for tuna, and its marine life is stunning. While scuba-diving all over the world, I’ve seen sharks, rays, turtles, barracuda and morays—but never in the abundance I saw during my four years in the Marshall Islands. Fish don’t need passports, so improv- ing the health of the global seas and giving future generations a chance to see these marine wonders has to be an international effort, with environmental diplomats working to find common ground.

Reasons for Hope Fortunately, to be an environmentalist you really only need one credential: the desire to build a better future for the next generation. That goal poses real challenges, to be sure; but I’m optimistic, especially because young people get it. If the Parkland generation has taught us anything, it is that once they get hold of an issue, look out, world! In addition, the climate change issue isn’t going away, thanks to poets like Kathy Jetñil-Kijiner, statesmen like Tony deBrum and MEESE KARL FELLENIUS eighth-grade teachers all over the country. And there is one more reason for hope. I’ve been to Bikini, I’m also optimistic because I’ve seen what the United States the site of some of the most destructive nuclear bomb blasts can do. As a polar affairs officer in the Bureau of Oceans and Inter- ever conducted on Earth. And the marine environment there is national Environmental and Scientific Affairs in the department, I thriving—enough so that the Discovery Channel went to Bikini in saw Washington take the lead in the creation of the Arctic Council, 2016 to film Shark Week’s Nuclear Sharks program. Their crew was a now-powerful multilateral forum of all Arctic countries dedi- amazed by the hundreds of sharks they saw. cated to the environment and indigenous issues. And as a nuclear Nature can come back—if we let it, and if we each do our part. affairs officer in Moscow, I worked on U.S. programs to safeguard As Tony deBrum once said at the United Nations: “Each one of us Russian nuclear material and to take highly enriched uranium is responsible for a drop of ocean. You take care of that drop, and from Russian nuclear missiles and blend it into low-enriched he takes care of his drop, and she takes care of her drop, we can uranium to burn in American nuclear plants. take care of the world.” n

56 SEPTEMBER 2018 | THE FOREIGN SERVICE JOURNAL AFSA NEWSTHE OFFICIAL RECORD OF THE AMERICAN FOREIGN SERVICE ASSOCIATIONAFSA NEWS

George F. Kennan Award Winner Announced CALENDAR International Order in Ukraine” September 3 • “The ‘4-D’ (Deter, Labor Day – Develop, Delegitimize and AFSA Offices Closed Discuss) United States September 7 Approach to 7:05 p.m. Russia” Third Annual • “A New U.S. Strategy Foreign Service Night to Curtail Pakistan’s at Nationals Park: Support to Militant Groups” Nationals vs. Cubs • “Domestic Factors September 9-13 Behind U.S. Strategy Towards AFSA Road Scholar Program Russia” Washington, D.C. • “Strategic Environment September 12 Behind U.S. Strategy Towards 12-1:30 p.m. Ukraine” AFSA Governing • “The Rationale For and Board Meeting Against U.S. Withdrawal from JCPOA” September 18 11:45 a.m.-1:15 p.m. AFSA/THEO HORN AFSA/THEO Mr. Fleming’s next posting Former AFSA Governing Board member Josh Glazeroff, at left, and NDU Luncheon: Incoming will be as deputy director Commandant Major General Chad Manske, at right, congratulate Kennan USAID FSO Class Award winner FSO Mark Fleming. of the Pakistan Office in the Bureau of South and Central September 20 4:30-6:30 p.m. Every year, AFSA spon- premier interagency foreign Asian Affairs. Prior to attend- AFSA’s Fall Happy Hour sors the George F. Kennan policy thinkers, he said, their ing the National War College, Strategic Writing Award, insights will be invaluable to he served as deputy politi- September 23-27 which is given to a Foreign graduates as they continue cal counselor in Islamabad, AFSA Road Scholar Program Service officer and graduate with their careers. political-economic counselor Washington, D.C. of the National War College in There were 20 members in Zagreb, and director for September 26 recognition of the cumulative of the Foreign Service in the Balkan and Caucasus Affairs 11:30 a.m.-2 p.m. “Everything You Need to effort of his or her Individual class of 2018, four of whom on the National Security Know about TSP” Strategy Research Project were distinguished graduates Council. He has also served and overall writing through- of the class. in Pristina, Sarajevo and September 30-October 5 out the year at the college. The winner of this year’s Yerevan, and on a provincial AFSA Road Scholar Program The award is presented Kennan Award was FSO Mark reconstruction team (PRT) in Chautauqua, N.Y. at the National War Col- L. Fleming. He was recog- Ghazni, Afghanistan. October 8 lege’s distinguished gradu- nized for six of his papers, Mr. Fleming says his time Columbus Day – ate award ceremony at Fort including his ISRP, which at the National War College AFSA Offices Closed McNair in Washington, D.C. received best-in-class honors. offered a unique opportunity October 10 White House Chief of He also received the Frank to work closely with U.S. 4-6 p.m. Staff John Kelly, a fellow Traeger Award for excellence military officers and their Annual AFSA alumnus and retired general, in writing from the National interagency counterparts in Awards Ceremony was the keynote speaker at Defense University Faculty analyzing the most complex October 17 this year’s ceremony. Kelly Alumni Association. national security challenges 12-1:30 p.m. emphasized the importance Mr. Fleming’s papers were: facing the United States. n AFSA Governing of staying connected with • “A U.S. Approach to Board Meeting fellow classmates; as the Defend the Rules-Based

THE FOREIGN SERVICE JOURNAL | SEPTEMBER 2018 57 STATE VP VOICE | BY KENNETH KERO-MENTZ AFSA NEWS

Views and opinions expressed in this column are solely those of the AFSA State VP. Contact: [email protected] | (202) 647-8160

Don’t Be a Heather

One of my favorite movies Foreign Service? After losing so many of our Foreign Service of all time is the 1988 cult This spring, as AFSA was leaders during the past 18 months, we have classic “Heathers,” starring negotiating with the depart- a powerful opportunity to shape our senior Wynona Ryder and Christian ment over the procedural Slater as high school stu- precepts that instruct the ranks by paying close attention to the dents with a dark side. The Selections Boards on the leadership attributes that matter. Heathers of the title role are promotion process, we a trio of bullies each named scored a minor victory that Heather who, while beautiful could have a major impact publicly belittle, humiliate from those who have faced and popular, are cruel and down the road. and beat down those around them, and those who’ve vindictive to their peers and The boards were urged them. They undermine, challenged them. Our EERs create a toxic school envi- to pay close attention to condescend and demean. require impressing the rater ronment. Sound familiar? employees who clearly dem- They’re bad for morale; and reviewer, which begs When I joined the Foreign onstrate superior leadership and when morale suffers, the question—how do we Service, we heard about the and mentoring skills—in productivity suffers. Without hear from those supervised importance of good leader- other words, those who truly a doubt, things are better by a bully boss? How can ship in A-100. We also heard care about the well-being of than they were years ago, their input be incorporated about how to manage “chal- their colleagues and subor- but that’s not our standard. into the bully’s EER? We’re lenging” bosses, the ones dinates, enhance the work We should aspire to be the interested in your ideas. who “move mountains for environment and encourage best. Please send them to afsa@ you, or on top of you” or the teamwork. Those who do And we in the Foreign state.gov. ones who “kiss up and kick will receive commendation Service enjoy a special role: Bullies rarely get posi- down.” following the promotion we ourselves determine tive results. Instead, they It took almost a decade season. whom to promote and whom face staff curtailments, low in the Service, but when it After losing so many of to show the door. It’s a morale and disgruntled was my turn to confront our Foreign Service lead- massive responsibility, and employees. We’re looking for a bully boss, I created a ers during the past 18 as stewards of the Foreign ways to tackle the problem “Heathers” subfolder on my months, we have a powerful Service, it’s one we hold in because we want State to be computer in which to store opportunity to shape our the highest regard. the best place to work, and all the nasty emails she sent senior ranks by paying close Asking the promotion to be led by the best, so that my way, as well as notes attention to the leadership panels to be on the lookout we can do our best for the documenting her unneces- attributes that matter. for top-quality leaders is a American people. sary abuses. Nicely spelled out in the good first step, because it I’ve always said that I was lucky. I was eventu- precepts and the Foreign moves the right people to AFSA is here to make State ally able to push back (with Affairs Manual, those attri- the top and sets them up as a little kinder, and I stand the help of the ambassa- butes include things like examples for the rest of us by that. As Wynona Ryder’s dor), and the inappropriate a desire to collaborate, an to follow. It shows the bullies character says (after she behavior toward me mostly interest in developing the that their tactics won’t work. knocks off one of the Heath- ceased. Sadly, this Heather next generation, the ability And if folks with superlative ers), “I just want my high just turned her animus on to manage conflict support- leadership skills and behav- school to be a nicer place. others at post: a military ively and the talent to foster iors move up in our system, Amen.” I bet we all want the attaché, a family member, resilience. it will have a reverberating same for our State Depart- a first-tour officer, etc. It Why did we push for this effect on our Service. ment. So whatever you do, wasn’t easy to experience, change? Because we’re still We’re looking at ways don’t be a Heather. n or to witness, and it made hearing from members who to tackle the problem of me wonder: how do people are dealing with bad lead- bully bosses, and we want like this get ahead in our ers and bully bosses who your input. We want to hear

58 SEPTEMBER 2018 | THE FOREIGN SERVICE JOURNAL FCS VP VOICE | BY MATTHEW HILGENDORF AFSA NEWS

Views and opinions expressed in this column are solely those of the AFSA FCS VP. Contact: [email protected], | (202) 623-3821

Five Things I’ve Learned BY MATTHEW HILGENDORF, FCS ALTERNATE REPRESENTATIVE

Many of you watched the monolithic Department of Companies depend on us to evaluate World Cup in July from the Commerce building at 1401 commercial environments and call various time zones in which Constitution Ave. Our team “fouls” when we see them. you found yourselves. It was brings specialized export an exciting three weeks of counseling to more than surprise victories by small 33,000 companies each year. Senator Pat Roberts (R-Kan.) developing markets in Africa teams, shocking early exits by invited the Secretary of and Asia. traditionally strong teams and We are relevant— Commerce to contact one of the use of a new video review mostly. his constituent companies We are the VAR. system called the Video Trade promotion remains to hear firsthand the nega- Just as last summer’s Assisted Referee that allows important, despite increased tive effects of steel tariffs on World Cup teams benefit- referees to consult a replay in attention to protecting U.S. his business. As a manufac- ted from the Video Assisted real time to award fouls and industries through tariffs and turer of components for the Referee, companies depend penalties. restrictions on imports. How- export market, this company on us to evaluate commercial There is no shortage of ever, our story does not grab was being crippled by the environments and call “fouls” good sports writing describ- the headlines, so we need to increase in the cost of steel when we see them, whether ing the passion and excite- work extra hard to continue inputs. It turned out that the in the form of non-tariff bar- ment of this sporting event. I to demonstrate our value company was a long-stand- riers, corruption or unfair particularly enjoy the format to the U.S. economy in an ing client of the Commercial competition. that starts: “Five things we environment where domestic Service; their representa- We have the resources learned …” As in: “Five things remedies are being used as tives had just returned from and the expertise to make we learned about Belgium in a tool for job retention and Ukraine, where they enjoyed these judgment calls, and its victory over Japan.” creation. our support at a tradeshow. every time we do this we In that spirit I offer you five This company wants to level the playing field just a things that I’ve learned about Offense is the play offense, but it can’t play little more. No one else in the the Commercial Service as best defense. offense if the country is play- public or private sector is so your AFSA representative. Despite the current focus ing defense. keenly focused on this func- on protecting U.S. industry tion and staffed to perform it. We are small from imports, there is simply We either grow As I leave the AFSA FCS but mighty. no getting away from the or shrink. representative position to With a budget of just over reality that U.S. companies The 2018 budget for the head out on a new assign- $300 million and approxi- need to export to survive. Commercial Service appears ment, I am grateful to have mately 1,500 people, we Exporters pay higher wages to be in line with previous had the opportunity to work are a small agency by any on average than non-export- years. Unfortunately, a flat with FCS VP Dan Crocker to standard. But our footprint is ing companies, and benefit budget is, in real terms, a fight for the interests of the immense—we cover the world the economy by bringing in reduction in a time of ris- FCS officer corps on the Hill, and all 50 states with our revenue from outside the ing fixed costs. That is why at headquarters and within foreign and domestic fields. country. Exporters are the AFSA FCS Vice President the AFSA Governing Board. We call on Locally Employed goal scorers in the national Dan Crocker and I have been staff to support us in far-flung economy, and we in the talking to congressional Matthew Hilgendorf is foreign markets, and we rely Commercial Service are their appropriators about increas- leaving the AFSA Governing on domestic trade special- coaches and trainers. ing the budget by $50 million Board to move on to his new ists across the United States Here’s a real-world exam- to grow our presence and posting in Rome. We thank and headquarters staff in the ple. During a recent Senate allow us to assist more U.S. him for his service and wish nerve center located in the hearing on trade policy, businesses, particularly in him well in Rome. n

THE FOREIGN SERVICE JOURNAL | SEPTEMBER 2018 59 AFSA NEWSRETIREE VP VOICE | BY JOHN NALAND AFSA NEWS

Views and opinions expressed in this column are solely those of the AFSA Retiree VP. Contact: [email protected] | (703) 437-7881

Threats to Retirement Benefits

The Trump administra- answer to this, but our Our nation’s large and persistent federal tion and Republicans in nation’s large and persistent budget deficits will likely keep the the House of Representa- federal budget deficits will pressure on to cut expenditures, including tives recently re-proposed likely keep the pressure on a series of major cuts to to cut expenditures, includ- spending on retirement benefits. federal retirement benefits ing spending on retirement that were contained in the benefits. president’s Fiscal Year 2019 Other proposals for budget request. benefit cuts—such as reduc- In addition to various ing the government’s share The Federal-Postal Coali- congressional advocacy benefits reductions aimed of federal retiree health tion represents 2.7 million efforts. Donate to AFSA’s at current employees, some care premiums—could be federal employees and 2.6 Political Action Committee proposals would apply to advanced for consideration. million federal retirees. It (www.afsa.org/afsa-pac). current retirees: eliminate or What is AFSA doing to actively lobbies Congress Monitor major develop- reduce cost-of-living adjust- protect your earned retire- in opposition to benefits ments, which are reported ments (COLA) to federal ment benefits? AFSA is a cuts. AFSA participates in its in AFSA’s emailed Daily pensions, reduce the annual member of the Federal-Postal monthly strategy meetings Media Digest, digital Retiree yield of the Thrift Savings Coalition made up of 30 and co-signs coalition let- Newsletter and this column. Plan’s G Fund (U.S. Trea- organizations including the ters to Congress. Write to your representative sury bonds) and eliminate National Active and Retired What can you do to pro- and senators urging them to the annuity supplement for Federal Employees Associa- tect your benefits? Maintain oppose cutting the benefits retirees under age 62. tion, the Senior Executives your AFSA membership in you earned over a long, chal- What are the chances for Association and the large retirement—your dues help lenging career. n passage of any of these pro- Civil Service unions. support the association’s posals this year? It seems unlikely that Congress will prioritize action on benefits cuts in an election year. Even REA/WAE Coordinator Information: if the House advances legis- lation, final passage seems An Update unlikely in the Senate, where 60 votes are required to approve most legislation. AFSA is pleased to share opportunities. The list is network directly with bureau What are the chances for online the most recent available on our website at coordinators when seeking passage of benefit cuts in Bureau Coordinator List— www.afsa.org/retiree in the positions. the next few years? We will updated in late May—for “Re-Employed Annuitant A wealth of information know more after the Nov. 6 the Re-Employed Annui- Program” section. about the REA/WAE pro- elections, which could either tant (REA/WAE) program, HRSS implemented a gram, including a fact sheet boost or reduce the ranks of which the Human Resources new centralized registry of and a May 2016 article, “Play- the congressional support- Bureau’s Shared Services annuitants in 2013, which ing the REA Game—FS Work ers of benefit cuts. In the Employment Programs Sec- hiring managers can use as in Retirement,” is available at latter case, significant ben- tion kindly provided to AFSA. a tool when searching for www.afsa.org/retiree. Please efit cuts would be unlikely Secretary Mike Pompeo qualified and experienced direct any questions about before the 2020 elections. recently lifted the hiring employees to fill a tempo- the centralized REA/WAE What are the chances freeze at State, so now is rary need. HRSS nonethe- program to HRSEU@state. for passage in the next 10 a good time for retirees to less underscores that it is gov. n years? No one knows the inquire about REA/WAE critical for annuitants to

60 SEPTEMBER 2018 | THE FOREIGN SERVICE JOURNAL WHERE WE STAND | BY JULIE NUTTER, PROFESSIONAL POLICY ISSUES DIRECTOR

The Power of High Expectations

Early in my Foreign Service the rebel advance. I remember Beyond basic market access, our career, I was an economic offi- talking to Ken one chaotic companies need a well-functioning cer in Liberia. Part of my job afternoon, and the first thing commercial legal system, regulatory was to keep tabs on U.S. busi- he expressed to me was how nesses, some of which owned worried he was about his transparency and a level playing field. large rubber tree farms in workers and their families. central Liberia. I will never for- The company tried to protect difficult political and eco- from U.S. best practices and get the pride on the face of the as many as they could, but nomic environments, and we as a counterweight to other general manager of a medium- Taylor’s forces were gaining go to bat for them when they potential partners, including sized U.S. latex shipping plant strength. I was impressed are not treated fairly. the Chinese. U.S. companies, when he gave me a tour of the by his concern—but I wasn’t But we need them, too. while not perfect, have track farm and briefed me on his surprised. His leadership and U.S. businesses provide us records of changing the envi- business operations. management abilities were on with valuable reality checks on ronments they are in for the The company’s grounds par with those of the best of how foreign governments are better. Foreign partners know were organized and spot- American businesspeople. operating in the economic and our companies must, at a less, its business practices At the end of my Foreign political space; they are our minimum, adhere to the FCPA, transparent. It paid its work- Service career, I was the head primary implementers of poli- and they expect our compa- ers fairly and the company of the Sanctions Office in the cies like sanctions; and when nies to do a lot more. benefits were better than Economic Bureau. Many U.S. our businesses adhere to best That’s part of the reason most of its competitors. companies were reluctant to practices—when they operate AFSA wants to get more The company was doing engage with Treasury, so it fell transparently, when they treat officers into the field. We want well—due to the AIDS crisis, to State to brief and consult their workers fairly—they to help American companies demand for latex gloves was with representatives of U.S. foster a great impression compete—and win—on a level high. The general manager, businesses that were attempt- of the United States and playing field. It’s up to the For- Ken, was extremely compe- ing to comply with U.S. set examples for others to eign Service to keep looking tent and had a great way with sanctions in their overseas emulate. for opportunities to remind people—and it showed. business dealings. Beyond basic market potential government and Later that year, civil war One of the observations access, our companies need a private-sector partners what broke out in Liberia. The we consistently made to the well-functioning commercial U.S. companies have to offer. economic section operated company reps was that in the legal system, regulatory trans- I know from long experi- in crisis mode, which meant case of sanctions—a prime parency and a level playing ence seeing U.S. companies our priorities shifted to get- tool of U.S. economic power— field. The absence of any of operate that their transpar- ting Washington the most our businesses were our full these can kill a deal. American ency, fair dealing and best up-to-the-minute information implementing partners. With- companies need to know they practices raise expecta- on Charles Taylor and his out our businesses operating won’t have to take bribes, tions—company expectations, rebel army and to protecting according to the law, we would which are prohibited under public expectations and, in the American lives and property. have holes in the sanctions the Foreign Corrupt Practices best cases, the expectations As Taylor’s soldiers marched regime, and our foreign policy Act and the many versions their foreign governmental south toward Monrovia, we goals would not be met. of the FCPA that now exist partners place on themselves. constantly checked in with It’s worth reflecting on around the world. Promoting best business our companies to get situa- the role of U.S. business in Members of the Cham- practices through promot- tion reports and to get help to projecting America’s power, ber of Commerce and the ing American companies is a them if needed. interests and values and to Business Council for Inter- mission our members can be Many of Liberia’s expatri- understand that our relation- national Understanding tell proud of—using the power of ate companies were closing ship with U.S. companies us their overseas contacts high expectations to burnish facilities and drawing down goes both ways. We have their are looking for American America’s brand and to boost as fast as they could ahead of backs—we help them navigate investment—both to benefit our prosperity. n

THE FOREIGN SERVICE JOURNAL | SEPTEMBER 2018 61

AFSA ON THE HILL | BY KIM GREENPLATE, DIRECTOR OF CONGRESSIONAL ADVOCACY

Congressional Funding—The Long Game

I am happy to have joined the summer leading up to its The message was clear: Our trained and AFSA team as the director annual August recess period. experienced diplomats are ready and able of congressional advocacy This spring, the advocacy to deliver high-value diplomacy for the after nearly five years of team turned its focus to working for the U.S. House of appropriations and worked American people. Representatives. As a former to safeguard Fiscal Year 2019 Capitol Hill staffer, I hope to State Department and USAID so many differing priorities people, and that starts with bring a useful perspective on funding, helping to overcome competed for scarce dis- allowing more of them to how to promote understand- the threat of a $4 billion cut cretionary funding, AFSA serve in positions overseas ing of the Foreign Service and resulting from a decrease in was pleased to see the base where they can have the appreciation of its vital role spending for Overseas Contin- budget raised by $4 billion to greatest impact. to members of Congress and gency Operations (known by compensate for the loss of We disseminated this their staffs. its acronym, OCO) in the 2018 OCO. This is a big win! message through meetings In my first months at AFSA, Bipartisan Budget Act. However, Congress and its and correspondence with Congress has seen a busy In an environment where leadership continue to debate the Hill, making members FY 2019 funding options as of Congress aware of what the end of FY 2018 draws reinforcing this critical Ameri- near, making the possibility of can presence abroad could AFSA President Attends a continuing resolution ever do—from promoting the rule USGLC Summit more likely. of law to creating framework Under a continuing resolu- improvements that would tion, funding would remain at enable American companies FY 2018 levels, and we would to compete on a level playing not see FY 2019 funding go field—and win. into effect until the passage Over the next few months, of a comprehensive FY 2019 AFSA’s advocacy team is annual appropriations pack- continuing to develop and age. The timeline on this is implement a long-term strat- long and uncertain. egy leading up to the 116th The advocacy team also Congress. With the retirement highlighted for members of of some key champions on Congress the need to restore the most important congres- our core diplomatic capability, sional committees for AFSA, emphasizing a field-forward the advocacy team is focused U.S. Foreign Service in embas- on building relationships with sies and consulates abroad. those expected to succeed AFSA made the case that, at current chairmen and ranking a time when China is increas- members. ing its diplomacy budget, the There are rare opportuni- ongoing operations of U.S. ties that come with a large, diplomatic programs cannot incoming freshmen class of AFSA/KIM GREENPLATE AFSA/KIM be shortchanged. new members of Congress, AFSA President Ambassador Barbara Stephenson and Lieutenant Ben Maddox, a Navy JAG and U.S. Global Leadership Coalition state leader from The message was clear: and AFSA is preparing to Texas, at the USGLC State Leaders Summit on June 18 at the Washington Our trained and experienced seize them. n Grand Hyatt. USGLC is one of AFSA’s key strategic partners in our outreach diplomats are ready and efforts across the United States. Summit attendees received a Capitol Hill briefing regarding the international affairs budget and participated in a able to deliver high-value speaker series on why leading globally matters locally. diplomacy for the American

62 SEPTEMBER 2018 | THE FOREIGN SERVICE JOURNAL

NOTES FROM LABOR MANAGEMENT AFSA NEWS

Settlement of Implementation Dispute Protects AFSA Right to Attend Formal Meetings

In April, the tive bargaining AFSA’s collective bargaining agreement State Depart- agreement with with the department and the Foreign ment settled an the department implementation and the Foreign Service Act require that the union be dispute filed by Service Act provided reasonable notice of formal AFSA in Decem- require that the discussions between the department ber 2017, in which union be provided and bargaining unit employees. AFSA maintained reasonable notice that the depart- of formal discus- ment failed to sions between MED was organizing such practices or other general notify the union Colleen Fallon-Lenaghan the department a town hall on Nov. 14 for conditions of employment of meetings tak- and bargaining employees who were medi- would be raised. In formal ing place between unit employees cally affected after being meetings with MED, AFSA the Bureau of Medical Ser- (i.e., members of the Foreign exposed to unknown ele- will participate via phone to vices (MED) and “bargain- Service) regarding “condi- ments in Cuba in the fall of ensure attendees’ anonym- ing unit” members of the tions of employment,” as 2016, the union notified the ity. Foreign Service concerning well as the opportunity to be department of its wish to Through this settlement, conditions of employment present at these meetings. participate; but the request AFSA believes it has now issues. When concerned mem- was denied due to privacy addressed a major concern Both AFSA’s collec- bers alerted AFSA that concerns. regarding the department’s AFSA requested to attend obligation under the law. this meeting to better Messaging to key bureaus COMMON SENSE GUIDE understand the processes in the department will help TO CODELS and procedures concerning foster a lasting awareness If there is one thing we hear repeatedly from mem- insurance coverage eligibil- of AFSA’s right to proper bers of Congress, it is that their experiences meeting ity for medical costs associ- notice in appropriate cir- members of the Foreign Service in the field leave a ated with these incidents, cumstances. profound impression. and to gather information AFSA will continue to In the June 21 Senate Appropriations Committee on how employees who press the department for

NEWS BRIEF hearing on the Fiscal Year 2019 State and Foreign depleted their leave as a the opportunity to attend Operations budget, Senator Lindsay Graham (R-S.C.) result of required extended formal discussions where talked of having “traveled throughout this world” and medical care would be matters concerning condi- then called members of the Foreign Service “heroes treated by the department. tions of employment are or in their own right.” The committee then voted 31-0 in To settle this dispute, may be raised. For us, what favor of fully restoring funding for State/USAID and the department agreed to is important is that we can increasing funding for core diplomatic capability. provide notification to major continue to represent the Never underestimate the importance of your work bureaus—including MED, concerns of members, to supporting visits of congressional delegations to post. Diplomatic Security and the speak for those who cannot Because summer is prime CODEL season, Career Development and and to advocate strongly for AFSA released its “Common Sense Guide to Assignments Office—of their the Foreign Service. n CODELs” in June. This short guide offers our obligation to notify AFSA —Colleen Fallon-Lenaghan members ideas for how best to manage the CODELs of any formal meetings Esq., Labor Management that visit your posts. You can find the guide at: with employees in which Counselor http://bit.ly/GuidetoCodels. n issues concerning or relat- ing to personnel policies or

THE FOREIGN SERVICE JOURNAL | SEPTEMBER 2018 63 STAY INFORMED. STAY CONNECTED.

The Results Are In: AFSA’s Retiree Survey

Retirees are a critical AFSA Respondents who indi- cent). “Other” was also a top person in the in the last year?” constituency. The AFSA cated that they had not selection (23.3 percent) and 25.7 percent of respondents retiree engagement survey, contacted AFSA about retire- many of the typed responses said yes. The main reason conducted in May, allowed us ment benefits were asked: If included questions on annuity for not participating was, to gather actionable data to you have not contacted AFSA calculation. unsurprisingly, location, with improve the breadth of ser- concerning your retirement The fourth question asked: 72.2 percent of respondents vices we offer our retired and benefits, please tell us why not Which of the following AFSA selecting “I live out of the soon-to-be-retired members. (see Figure 2). The majority benefits do you find useful to area” in response to the ques- Thirty-seven percent of answered that either they you as a retiree? (see Fig- tion, “If you have not attended you completed the 10-ques- have never had an issue with ure 3). The Foreign Service an AFSA-sponsored event tion survey, providing insight retirement benefits (71.9 per- Journal was selected by 83.5 either online or in person on programming and informa- cent of respondents) or had percent and email commu- please tell us why.” tion AFSA can offer to retiree found the answer themselves nications from AFSA by 82.5 Other responses included: members and those nearing (18.6 percent). percent of all respondents as “nothing has grabbed my retirement to both assist and Retiree members who the most useful AFSA bene- interest” (28 percent); empower decision-making. indicated in the first ques- fits. The annual Retiree Direc- “unaware of events” (6.8 per- The first few questions tion that they had contacted tory was selected by 72.8 cent); and “mobility issues” of the survey were aimed at AFSA concerning their retire- percent of respondents as a (4.3 percent). understanding when and why ment benefits were asked: top member benefit. AFSA’s Finally, AFSA wanted to AFSA retiree members reach When you have contacted advocacy on Capitol Hill was understand “which AFSA out to AFSA for help in navi- AFSA about your retirement selected by 47 percent of resources are most helpful gating their retirement ben- benefits, please tell us what respondents. The results from for learning about retirement- efits. The first question asked: your issues concerned. The this question paint a clear pic- related information.” Have you ever contacted AFSA top three retirement benefit ture—retired Foreign Service While the bimonthly concerning your retirement issues for which members members maintain a keen AFSA Retiree Newsletter was benefits?The results (see reached out to AFSA were interest in their profession selected as the most helpful Figure 1) showed that 22.6 Federal Employee Health Ben- and look to AFSA as a vital by 71.6 percent of respon- percent of all respondents efits (26.9 percent), Medicare resource for staying informed dents, coverage of retiree had contacted AFSA concern- Part B (22.2 percent) and and up to date. issues in The Foreign Service ing their retirement benefits. survivor benefits (20.4 per- The 15.1 percent of Journal was selected by 66.8 respondents who selected percent of respondents and “retirement benefits counsel- email communications from ing” were asked a follow-up AFSA on benefit updates was question: How valuable is it selected by 60.7 percent. The for AFSA to provide one-on- AFSA website and the Retiree one counseling on retirement Directory were selected by benefits? Almost 70 percent approximately 35 percent of answered “extremely valu- respondents. able,” while almost 30 per- Finally, in an effort to better cent answered “somewhat understand the interests of valuable.” our members, we included Three questions sought two open-ended questions. to understand how retiree The first asked: “What, if any, members use existing AFSA additional retiree member benefits. When asked “Have benefits would you like AFSA you attended an AFSA-spon- to offer as your professional Figure 1 sored event either online or in association?”

64 SEPTEMBER 2018 | THE FOREIGN SERVICE JOURNAL STAY INFORMED. STAY CONNECTED. AFSA NEWS

We received 247 responses cacy work AFSA is doing at the that ranged across various national level and answered AFSA programs including member questions. Based on advocacy, policy, commu- the demonstrated demand nication, membership and for advocacy updates and outreach. This feedback has webinar participation, AFSA been organized and catego- is committed to providing rized so that appropriate staff regular webinars and advo- can consider each suggestion. cacy alerts with requests for Because many of our action when needed. The next retiree members live across webinar is tentatively sched- the country and around the uled for October. world, AFSA has looked to Benefits Counseling. expand opportunities for par- The survey results helped ticipation by offering online us improve our retirement programs. The final question benefits counselor position.

of the survey was open- In addition to serving as a Figure 2 ended, asking participants to resource for members who share their ideas for subjects may need one-on-one assis- they would like to learn about. tance navigating retirement We received 583 suggestions. benefit questions or issues, The survey provided valu- the retirement benefits able insight into the interests counselor will engage with of our retiree members, strategic partners to offer our allowing AFSA to look at members the most relevant areas where we can enrich and up-to-date information or expand what we offer on their retirement benefits members. through our publications, Communication is critical website and programs featur- to our retiree members, who ing expert presenters. see AFSA as a key resource Federal Benefit Series. for staying up to date on We have scheduled presen- advocacy and policy issues tations on two of the topics affecting the Foreign Service, most frequently mentioned information on retirement in the survey results. On Aug. Figure 3 benefits and professional 23 Paula Jakub, CEO of the insight and analysis on the American Foreign Service Foreign Service as an institu- Protective Association, gave information easy to find, AFSA final move before retirement, tion. an updated version of her uploaded the most recent and how to go about submit- The survey results will be a popular presentation on bureau coordinator list for the ting that final travel claim. continued source of informa- the coordination of FEHB REA/WAE program from the Visit www.afsa.org/retiree to tion to inform AFSA’s program and Medicare. On Sept. 26, Human Resources Bureau’s access these resources and planning and have already Randy Urban from the Federal HR Shared Services Employ- other helpful information. resulted in the following pro- Retirement Thrift Investment ment Programs Section. We thank our retiree mem- grams and resources: Board will provide a compre- In addition, AFSA staff bers for their enthusiastic Webinars. On June 27, in hensive overview of the Thrift reached out to the depart- participation in this survey. a webinar titled “A View from Savings Plan. ment’s Transportation Office AFSA staff is hard at work Washington,” AFSA President Post-Retirement Employ- to ask for up-to-date guidance putting your feedback into Ambassador Barbara Ste- ment/Logistics. In our on two issues that are often action. n phenson detailed the advo- ongoing efforts to make confusing: How to plan your

THE FOREIGN SERVICE JOURNAL | SEPTEMBER 2018 65 AFSA NEWS

AFSA Welcomes New Retirement Benefits Counselor

AFSA is pleased to welcome writing retiree-focused con- Cairo; and deputy assis- Dolores Marie Brown as our tent for AFSA’s publications tant secretary in the new retirement benefits coun- and the AFSA website, devel- Bureau of Conflict and selor. She joins a membership oping programs and webi- Stabilization Operations. team that is highly focused nars of interest to retirees Dolores has a bach- on retiree needs and services, and members who are close elor’s degree in Rus- and her knowledge and expe- to retirement, and engag- sian area studies from rience will play a vital role in ing with the Foreign Service Barnard College and a this area going forward. Online Community. master’s degree from Dolores recently retired Dolores joined the Foreign the School of Interna- from the Foreign Service after Service in 1985 as a manage- tional Affairs at Colum- a 33-year career. She there- ment officer and retired with bia University, again fore has very recent experi- the rank of Minister Counselor focusing on Russian ence with the retirement pro- earlier this year. She started history and politics. cess, the Job Search Program as a general services officer in She is a four-time Dolores Marie Brown and the many questions and apartheid South Africa; other recipient of the Superior challenges that come with past assignments included Honor Award and also during the waning years of transitioning into retirement. deputy director of the Opera- received the Director’s Award apartheid. She has two grown Dolores is available for tions Center responsible for from the Federal Bureau sons, Richard and Will. one-on-one conversations the Watch; deputy chief of of Investigation for her Ms. Brown is available with retired AFSA members. mission in Tallinn; the first work founding the Terror- at [email protected] and In addition, her portfolio State Department deputy ist Screening Center. Her (202) 944-5510. She will includes fostering relation- of the Terrorist Screening late husband worked for be in the office on Tuesdays ships with subject matter Center, established after 9/11; Agence France-Presse, and and Wednesdays, 9 a.m to experts and other resources, management counselor in was known for his reporting 5 p.m. n

Join the FSJ Centennial Celebration

Please join The Foreign Service Journal Centennial Celebration by snapping a photo of yourself (or a friend or family member) reading the Journal wherever you are—the more distant from D.C., the better! Photos should be 1 MB or larger if possible. In the sample here, FS family member June Appel peruses the FSJ at a market in Entebbe, Uganda. Send submissions to journal@ afsa.org, and please include details about yourself and the COURTESY JUNE APPEL COURTESY photo location and date. n FS family member June Appel peruses the Journal at a market in Entebbe.

66 SEPTEMBER 2018 | THE FOREIGN SERVICE JOURNAL AFSA NEWS

2018 Scholarship Program Update JOAQUIN SOSA JOAQUIN Some of the 2018 scholarship winners are pictured here at the July 13 ceremony. From left to right: Benjamin Toyryla (accepting award for Alexander Toyryla), Asa Nugent, Christian Beckmeyer, Liam Webster, Clara Matton, Svenya Braich, Yasmin Ranz-Lind, Leah Kleinberg, Hannah Feeken, Sophia Nichols and Emmaline Calhoun.

The AFSA scholarship give out more merit awards program is an important pro- and to give them in more gram for our members with significant amounts. college-aged dependents. As we move into the 2019 This year we were pleased to scholarship program year, be able to give $129,000 in we will continue to improve merit awards—nearly triple the application process. We

the amount we gave last year. completed an online survey SOSA JOAQUIN AFSA gave out 41 awards this of this year’s 181 applicants Scholarship coordinator Theo Horn year honoring 36 students and our 29 volunteer judges addresses the 2018 winners. (some were multiple award to get their views on what winners—read about the win- areas we should focus on for training to applicant com- Want to Know More? ners in the July/August 2018 improving the application munications to award noti- Visit www.afsa.org/ issue of The Foreign Service process, and we received fication. Theo has been on scholar for up-to-date infor- Journal), up from 24 stu- excellent feedback. Thank the AFSA staff for more than mation on the scholarship dents last year. Each winner you to all those who partici- a year and we are pleased program. In addition, we are received an award ranging pated. that he has moved into this pleased to make our promo- from $1,000 to $3,500, which In partnership with the role. Theo has a bachelor’s tional postcards and adver- is an increase from the $500 AFSA Scholarship Commit- degree from Syracuse Uni- tisements available to you if to $2,500 range last year. tee, our new scholarship versity and a background as you wish to share informa- How did we do it? We program coordinator, Theo an analyst and congressional tion about AFSA scholarships significantly reduced our Horn, was instrumental in campaign finance associ- with colleagues at post or administrative overhead facilitating the 2018 scholar- ate. He can be reached at others in the Foreign Service costs, allowing us both to ship program, from judge [email protected]. community. n

THE FOREIGN SERVICE JOURNAL | SEPTEMBER 2018 67 AFSA NEWS

AFSA Welcomes New Governing Board Members

Several of our Governing Board members have left Washington, Don Jacobson D.C., for onward assignments overseas. We thank them for their State Representative service and welcome our newest members of the AFSA Govern- Don Jacobson joined the Foreign Service in ing Board. 1992 and did his first four tours overseas in Ciudad Juarez, Seoul, Bogota and Guada- Jeffery Austin lajara, followed by three domestic assign- APHIS Representative ments in HR/CDA, CA/EX and FSI/SPAS/ Jeffery Austin joined the Foreign Service CONS. He then served as consul general in 2005. He recently relocated to Wash- in Riyadh and New Delhi and Minister Counselor for Consular ington, D.C, for an assignment at USDA’s Affairs in both Brazil and Mexico. He has been director of Cen- Animal and Plant Health Inspection Service tral American affairs in WHA since 2016. Don has devoted much headquarters. His most recent overseas of his discretionary energy over the years to improving the assignment was as the area director for the APHIS Interna- practice of leadership at State and played a role in the Consular tional Services office in San Jose. Prior to that, Jeffery served in Affairs Bureau’s leadership initiative and iLead. Haiti, South Africa and Kenya. He is responsible for the techni- Don filled a vacant spot on the AFSA Governing Board during cal/scientific, sanitary and phytosanitary side of import/export 2017 but did not run for a full term because of the demands of regulations of agricultural trade between Central America and his job in WHA. Don will become associate dean of FSI’s Leader- the United States. Additionally, he works to identify emerging ship and Management School this summer and is eager to animal and plant pest and disease issues within the Central support AFSA’s efforts to strengthen the Foreign Service during American region and works with the respective countries to this challenging time. Don is married and has three children develop surveillance and mitigation measures. (ages 21, 15 and 14). Jeffery has a bachelor’s degree in botany from Arizona State University and a master’s degree in administration from Deborah Mennuti Fairleigh Dickinson University. State Representative Deborah Mennuti is a career member Karen Brown Cleveland of the Senior Foreign Service. She State Representative currently serves as the director of the Karen Brown Cleveland began her career Office of Analysis for Europe in the State with the Department of State in 2003. Cur- Department’s Bureau of Intelligence and rently, Karen is a supervisory special agent Research. She previously served as deputy principal officer serving as the deputy regional director for of Consulate General Istanbul; political counselor in Bel- Africa in the High Threat Programs Direc- grade; and chief of the political-economic section in Almaty torate within the Bureau of Diplomatic Security. Prior to that, and then Astana, Kazakhstan. Karen served as the deputy regional security officer in Nairobi, Since joining the department in 1993, her other overseas Kenya. She previously served as the assistant special agent-in- assignments have included Moscow, Athens and Seoul. In charge in the San Francisco Field Office. She also served on the Washington, she has served as an assessor with the Board of protective detail for Secretary of State Condoleezza Rice, in the Examiners, the special assistant to the assistant secretary for New York Field Office and at U.S. embassies in Riyadh, Beirut European and Eurasian Affairs, and the France desk officer in and Baghdad. the Office of Western European Affairs. She is married to fel- Karen holds a bachelor’s degree in history from Oakwood low Foreign Service Officer Jonathan Mennuti. They have one University. She is married to Jeffrey Cleveland, and they have daughter. one daughter. Karen has a strong commitment to customer An AFSA member since 1993, Deborah is eager to give back service and believes her skills, dedication and enthusiasm will to the organization that has done so much for the Foreign Ser- benefit AFSA members. She is excited about joining a team that vice. She is particularly interested in advocating for the hiring has a tremendous reputation in the Foreign Service and the levels and resources needed to ensure that the Foreign Service department. can continue to serve as America’s first line of defense, as well as in tandem and family issues.

68 SEPTEMBER 2018 | THE FOREIGN SERVICE JOURNAL AFSA NEWS

Roy Perrin ing in such areas as flexible work arrangements, telework, State Representative parental leave, child care and elder care issues. In addition, Lilly A career member of the Senior Foreign Ser- was an AFSA Governing Board member from 2012 to 2014. Dur- vice, Roy Perrin joined the Office of Central ing that time, she successfully helped secure programs such American Affairs as deputy director in 2016 as the voluntary leave bank, backup care and job-share reform, and helps lead implementation of the U.S. among other things. Lilly is part of an FS-CS tandem and the strategy for Central America to combat mother of two children. Lilly joined EUR/PD in August, where illicit trafficking, illegal immigration and she covers Ukraine, Belarus and Moldova. transnational crime. He was formerly deputy consul general in Lilly believes that AFSA needs to support and advocate Erbil, leading efforts to degrade and defeat ISIS. Roy previously for a strong Foreign Service—especially as hiring and promo- served as chargé d’affaires, acting deputy chief of mission, tions slowed down. She also wants to support AFSA efforts on and counselor for political, economic and narcotics affairs at diversity and gender issues and continue to be an advocate for U.S. Embassy San Jose, as an economic and labor officer at work-life reforms that are a win-win for both employees and the U.S. Embassy Beijing and as acting consul general in Chengdu. department. She believes her experience as a Pearson Fellow He has also served in Caracas and Bangkok, and in the State and her congressional contacts will prove to be valuable assets Department’s Operations Center Crisis Management Office. to AFSA. n Roy was the 2011 recipient of the U.S. Department of State’s Award for Excellence in Labor Diplomacy for his work in China, and he has received four State Department Superior Honor Awards. A native of New Orleans, La., Roy earned a bachelor’s degree in engineering from Vanderbilt University and a J.D. from Tulane Law School, serving as editor-in-chief of the Tulane Maritime Law Journal. Prior to entering the Foreign Service, Roy practiced law in California and Louisiana. He is married to Michele Perrin, who also works for the State Department, and they have one daughter, Isabel. An active member of AFSA, Roy filled a short vacancy on the Governing Board as an entry-level officer. He has been an AFSA post representative at three overseas missions, and in 2002 AFSA awarded him its achievement award for leading efforts to resolve problems associated with the department’s implemen- tation of a new salary scale for incoming officers.

Lillian Wahl-Tuco State Representative Lillian Wahl-Tuco joined the Department of State in 2006 as a consular-coned Foreign Service officer. She is currently serving as a Pearson Fellow on the Senate For- eign Relations Committee, minority staff. Lilly has served on award committees, employee association boards and as a Federal Women’s Program coordinator during her overseas assignments. She also helped launch the first FAST (first and second tour) program in Paris. Lilly’s passion for work-life issues motivated her to launch Balancing Act in 2011 with several other FS and CS colleagues to help the department modernize its work-life policies—includ-

THE FOREIGN SERVICE JOURNAL | SEPTEMBER 2018 69 AFSA NEWS

The Journal Welcomes New Editorial Board Members

Several Foreign Service Journal Editorial Board members trans- Foreign Service Association (AFSA/FS Books, 2015). He has ferred to posts overseas this past summer, so we’ve welcomed written for The New York Times and is a frequent contributor to new members to the team. These members were approved The Foreign Service Journal. He won the 2012 Goldenberg Prize during the last round of Editorial Board candidate selection. for Fiction from the Bellevue Literary Review. Harry is a graduate of Hamilton College and Yale University. Alfred “Fred” Boll has been a Foreign He lives in Baltimore with his wife, Jane. Service officer since 2003, when he joined the 115th A-100 class as a political officer. Alexis Ludwig, an Editorial Board member He is currently posted to the Bureau of for the past year, has assumed the role Educational and Cultural Affairs as Educa- of chair of the board. A career member of tionUSA branch chief, where he leads the the Senior Foreign Service from California, department’s global network of educa- Alexis joined State in 1994 as part of the tional advising centers that promotes U.S. 70th A-100 class. His first tour was as vice higher education in 180 countries and territories. consul in Guatemala City. He then served Fred has served in Lisbon, Amsterdam, Pristina and Rio de as political-military officer in Tokyo, Indo- Janeiro, and as deputy director in the Bureau of Population, nesia desk officer in the State Department and human rights Refugees and Migration’s Office of International Migration in officer in Kuala Lumpur. Washington. He has a bachelor’s degree from the University His career has focused largely on Latin America, with tours of Chicago, J.D. and master’s degrees from the University of as deputy economic-political counselor in La Paz and political Wisconsin, and a doctorate in international law from the Uni- counselor in Lima, Buenos Aires and Brasilia. Alexis returned versity of Sydney. Before joining the Foreign Service, he taught to Washington in 2016 to serve as a career development international law and was a delegate and legal adviser for the officer in senior level, where his responsibilities included sup- International Committee of the Red Cross for 10 years, based in porting the DCM/PO and D Committees. He begins his next Jakarta, Hong Kong and Sydney. assignment as deputy permanent representative at the U.S. Fred is the author of various articles on international human- Mission to the Organization of American States this summer. itarian law and nationality in international law, including a study Before the Foreign Service, Alexis worked as a freelance of law and practice related to multiple nationality in 75 coun- writer and translator. He has a master’s degree in East Asian tries, “Multiple Nationality and International Law,” published by studies from the University of Washington and a bachelor’s Martinus Nijhoff-Brill in 2007. degree in literature from the University of California, Santa Cruz. Alexis is married to Guatemala native Carolina Linares. Harry Kopp spent 18 years in the Foreign His sons, Sebastian and Santiago, are competitive swimmers Service, from 1967 to 1985. His assign- who attend Walt Whitman High School in Bethesda, Maryland. ments included economic counselor in Warsaw, deputy assistant secretary of Karen Brown Cleveland, a newly selected State for international trade policy and member of AFSA’s Governing Board, has deputy chief of mission in Brasilia. been elected as the Governing Board’s After leaving government service, Harry liaison to the Editorial Board. worked as a consultant and lobbyist, first as You can find her biography on p. 68. a founding partner of L.A. Motley and Company, then as a sole practitioner. Among his many clients were Anheuser-Busch International, the National Cotton Council, the Brazilian Poultry Exporters Association and the Sugar Alliance of the Philippines. The Journal staff would like to thank outgoing board mem- Harry is the author of three books: Commercial Diplomacy bers Eric Green and Lawrence Casselle for their service. Eric is (Academy of Diplomacy, 2004); Career Diplomacy (with co- heading to Warsaw as deputy chief of mission, while Lawrence author Charles Gillespie, Georgetown University Press, 2008) is heading to Baghdad. n and the updated 2017 edition (with co-author John Naland); and Voice of the Foreign Service: A History of the American

70 SEPTEMBER 2018 | THE FOREIGN SERVICE JOURNAL AFSA NEWS

AFSA Governing Board Meeting, June 20, 2018

Awards and Plaques Committee: It was moved that the Governing Board create a new AFSA award named “The Foreign Service Champions Award” to recognize individu- als (neither current or former members) who have made a significant contribution to the Foreign Service. The motion was adopted. Elections Committee: The following individuals were appointed to the Elections Committee, effective July 15, 2018: Nan Fife, chair, State; Candice Bruce, FAS; Michael Riley, State; Jorge Dulanto-Hassenstein, USAID; Linda Caruso, FCS; Mort Dworken, Retirees. Committee Membership and Appointments: Lillian Wahl-Tuco was appointed to the membership commit- tee. Deborah Mennuti and Karen Brown Cleveland were appointed to the Minutes Approval Committee. Alexis Ludwig was appointed chair of the Editorial Board of The Foreign Service Journal. Karen Brown Cleveland was appointed as Governing Board liaison to the Journal. Board Appointments: The following individuals were appointed to the Governing Board: Jeffery Austin, APHIS; Lola Gulamova, FCS alternate (effective July 18). n

AFSA Hosts Networking Happy Hour AFSA/DONNA GORMAN AFSA/DONNA Attendees gather at AFSA’s June Happy Hour. On June 28, AFSA hosted a networking happy hour at its D.C. headquarters. The happy hour was a great opportunity for AFSA members to socialize and for nonmembers to learn about AFSA’s role in promoting the message of the Foreign Service. AFSA is planning another happy hour on Sept. 20. Your $5 entry fee includes one ticket for wine or beer; non- alcoholic beverages and light snacks will also be served. Please join us to celebrate the back to school season and to catch up with your friends and colleagues. n

THE FOREIGN SERVICE JOURNAL | SEPTEMBER 2018 71 BOOKS

What Diplomacy Can Pardew’s book is an easy read. remainder, this claim deserves to Achieve His largely unadorned and be examined skeptically. clear prose, and occasional The majority of Peacemak- Peacemakers: American Leadership use of lists and bullet points ers is dedicated to Bosnia and and the End of Genocide in the Balkans are effective in helping the Herzegovina. Nearly 23 years James W. Pardew, The University Press reader situate endlessly shifting after the Dayton Peace Accords of Kentucky, 2018, $39.95/hardcover; policy and negotiating positions were signed, some of the same $24.99/Kindle, 424 pages. in the complex history of the issues Pardew touches on, but Reviewed By Ross Johnston Balkan wars in the 1990s. does not examine in depth, What sets this book apart have become central problems for Ambassador James Pardew’s Peacemak- from the crowded field of memoirs Bosnia and U.S. policy towards it. Corrup- ers is a practically minded story of the written about the Balkans in the 1990s tion, which Pardew identified as the main “efficient and successful” series of U.S. is Pardew’s focus on the mechanics and threat to the train-and-equip program he interventions in the Balkans following the practicalities of how U.S. policy succeeded ran, remains a profound threat to Bosnia breakup of the former Yugoslavia. in the Balkans, particularly the series of and Herzegovina and its future in Western Taking place at the height of American negotiations from Dayton to Rambouillet institutions. power in the unipolar moment following to Ohrid. So, too, does the concept of citizen- the collapse of communism, Pardew’s Pardew offers straightforward, sound ship based on the collective identity of story surely differs in context from the advice on everything from managing the ethnicity that was enshrined in the Dayton debate Americans are now having on media to how to leverage foreign surveil- constitution and remains the bedrock of fundamental questions about our role in lance to your advantage in a negotiation. Bosnian politics. Most glaringly in Bosnia, the world. It is, however, a powerful argu- This is useful instruction for a new genera- but also throughout the region, there are ment for what diplomacy can achieve and tion of U.S. diplomats faced with today’s profound political and societal problems provides detailed and useful advice on conflicts. that lead many to worry whether these how to make diplomacy and development This memoir offers useful instruction for a new generation of successful. Pardew played a remarkable role in the U.S. diplomats faced with today’s conflicts. U.S. interventions in the Balkans begin- ning in 1995, and his involvement drives This is a book about Americans and countries will ever succeed in their quest the book chronologically. He first served American power in the Balkans; the coun- for integration into Western institutions. on Richard Holbrooke’s negotiating tries of the former Yugoslavia and their But in the midst of war and the threat of team in the Dayton process and led the locales, characters and cultures are not further violence, that was not Pardew’s train-and-equip program for the Bosnia the stars of this show (although Slobodan mission. and Herzegovina Federation’s armed Milosevic comes closest). Those looking Set against today’s concerns, the forces following the signing of the Dayton for in-depth information about the Bal- lives saved and the peace created in the Accords. After Bosnia, he was involved kans are advised to look elsewhere. With Balkans by U.S. intervention are facts. in the U.S. intervention in Kosovo and such a unique front-row view of history, Pardew’s story is one of remarkable suc- then led the talks to end ethnically driven one wishes, however, that Pardew had cess that deserves to be studied today. violence in Macedonia, which culminated included more of his personal experience, in the Ohrid Agreement. or observations about the people and Ross Johnston is a Foreign Service officer Throughout, Pardew tells a story filled places he encountered along the way. who previously served in the Political sec- with the details of U.S. policy develop- In Pardew’s view, the U.S. intervention tion of U.S. Embassy Sarajevo. He currently ment, politics inside the U.S. government in the Balkans set the ex-Yugoslav coun- works in the Department of State’s Executive and with European partners, and negotia- tries on the path to becoming members of Secretariat. The author is writing in his per- tions that finally ended the violence. For the European Union and NATO. Several sonal capacity, and his views do not neces- an insider memoir of U.S. diplomacy, countries have achieved that goal. For the sarily reflect those of the U.S. government.

72 SEPTEMBER 2018 | THE FOREIGN SERVICE JOURNAL Shining Much-Needed democracy to foreign rulers. Edmund Roberts (Chap- Light Many suffered physical threats ter 5) and David Porter from tyrannical despots; some (Chapter 6) are especially Raising the Flag: America’s First Envoys were held as slaves or hos- instructive examples of in Faraway Lands tages; and others led foreign this tendency. Both envoys Peter D. Eicher, Potomac Books (an armies into battle. Several of torpedoed opportunities to imprint of the University of Nebraska them died overseas or not negotiate agreements with Press), 2018, $36.95/hardcover, $31.93/ long after returning home. their host governments because Kindle, 416 pages. During his own diplo- of perceived insults that very Reviewed By Steven Alan Honley matic career, Mr. Eicher—who previ- likely were unintended, such as ously published Elections in Bangladesh, requests to kowtow. Faithful readers of The Foreign Service 2006–2009: Transforming Failure into Overall, however, it is remarkable Journal—particularly its FS Heritage Success (United Nations Development how successful most of these diplomats department—may recognize at least a few Program, 2010) and “Emperor Dead” and were, at least in terms of achieving their of the 12 names profiled in Raising the Other Historic American Diplomatic Dis- immediate, short-term objectives—and Flag: America’s First Envoys in Faraway patches (iUniverse, 2012)—specialized in how little credit they received. There is Lands. I’m thinking of Samuel no better Shaw (Chapter 1), James Cathcart It is remarkable how successful most of these diplomats were, example and William Eaton (Chapter 2), at least in terms of achieving their immediate, short-term of that and Joel Poinsett (Chapter 4), in objectives—and how little credit they received. injustice particular. than In addition, depending on where political affairs, particularly human rights, the one Eicher uses to close his book: your Foreign Service career has taken conflict resolution and international “Shimoda and the Shogun: Townshend you, you may have heard at least organizations. Harris and the Opening of Japan.” passing mention of some of the other But he is also highly knowledgeable If you’re like me, you probably did figures during area studies courses at about economics, which is crucial to a double take when you saw that name the Foreign Service Institute. But most understanding U.S. diplomacy during its instead of Commodore Matthew Perry’s, of them have languished in obscurity formative years. but I came away utterly convinced that (well-deserved in a few cases, I believe) As Raising the Flag documents, Harris (along with his right-hand man, for two centuries or more. early American envoys focused almost Henry Heusken) deserves the lion’s share So the Foreign Service, along with any- entirely on promoting U.S. exports and of the credit for establishing, and nurtur- one interested in U.S. history, owes a sub- protecting American sailors and mer- ing, U.S.-Japan ties. It is a remarkable saga stantial debt to retired FSO Peter D. Eicher chants all over the world. that has to be read to be believed—as is for conducting the prodigious research, Their European counterparts were, of the rest of Raising the Flag. n much of it drawn from primary-source course, doing the same, but had the twin materials, required to shine a light on advantages of already being well-estab- Steven Alan Honley, a State Department these men and their work representing the lished in countries like China and being Foreign Service officer from 1985 to 1997, and United States in Asia, Latin America and more comfortable utilizing what we would editor-in-chief of The Foreign Service Journal the Middle East so long ago. (I just wish he recognize as traditional diplomacy— from 2001 to 2014, is a regular contributor had included an index, particularly given including the artful use of bribery. to the Journal. He is the author of Future that several of these figures reappear in In contrast, several of these Ameri- Forward: FSI at 70—A History of the Foreign later chapters.) can diplomatic pioneers suffered from Service Institute (Arlington Hall Press, 2017). Early U.S. envoys routinely faced debilitating inferiority complexes, and hostile governments, physical priva- spent more time and energy striving for tions, disease, isolation and the daunt- status, recognition and wealth than car- ing challenge of explaining American rying out their actual missions.

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78 SEPTEMBER 2018 | THE FOREIGN SERVICE JOURNAL REFLECTIONS

Being There: Camp David, 1978

BY FRANK FINVER

ere’s a map. Pack clean A white U.S. Navy sedan pulled up underwear, because you might need to stay and a voice said simply, “Follow me.” “Hovernight.” So I was instructed a couple weeks after starting assorted errands from 5 a.m. to 2 a.m., McLaurin and my professor, Mohammed my internship with the Israeli embassy when I returned down the mountain to Mughisudin, which gave me another in Washington, D.C., as a postgraduate the Hagerstown Holiday Inn for a few excuse for delaying my exam.) student at American University. And so hours of sleep. it was that on Sept. 5, 1978, I was driving All was going well until the morning north toward Thurmont, Maryland, into a large and compulsive security agent On the eveninga of the second day, the Catoctin National Park. named Doron insisted on driving, and everyone turned out at the parade I waited in a small, mountaintop park- proceeded to greatly exceed the strict grounds between the field house and the ing lot with a snoozing Israeli general in 10-mph limit—just as Egyptian President helo pad, where the U.S. Marine Drum the passenger seat from noon until dusk, Anwar Sadat and his party were taking and Bugle Corps played a medley of when a white U.S. Navy sedan pulled up their pre-dawn stroll nearby. “New York, New York,” “I Believe” and the and a voice said simply, “Follow me.” The red-faced camp commander “Battle Hymn of the Republic.” We came to an entrance with the iconic sprang into Doron’s window, forcefully Then—with President Jimmy Carter, wooden “Camp David” sign illuminated explaining that should he opt to drive President Sadat and Prime Minister Begin and waited some more. I sensed some again on the premises, he would be on standing stiffly at attention on a reviewing movement and faint rustling nearby and the next flight home. stand—the Marine Silent Drill Team put then spotted camouflaged Marines comb- on a remarkable show of dexterity and ing the woods for intruders. (They would precision by twirling, tossing and catch- later apprehend a number of infiltrators, We were settinga up our trailer offices ing their weapons (with fixed bayonets) who possibly had malign intent.) (I still have the wooden Israeli delega- in rapid succession. Impressive as it was, For the next 12 days I shuttled body- tion sign in my attic) when Israeli Foreign the martial display was a tad incongruous guards and principals around and ran Minister Moshe Dayan dropped by to for a peace conference; but I guess Peter, chat and pose for pictures, courtesy of Paul and Mary were not available. Frank Finver joined the State Moshe Milner of Time magazine. The next evening, Sept. 8, the Israeli Department (Passport Office, Milner spotted Prime Minister Men- delegation, joined by the Carters and then Public Affairs) in 1982 achem Begin walking around and coaxed Secretary of State Cyrus Vance, gathered and the Foreign Service in me to approach him, which I did. for Shabbat dinner at Hickory Lodge. 1987. He is currently serving Me (in Hebrew): I read your book. Spirits were high—lots of singing, eating as public affairs officer in Warsaw, after Begin (also in Hebrew): Which book? and joking. overseas assignments in Zagreb, Moscow, Me: The Revolt. Tel Aviv, Jerusalem, Baghdad and Lisbon. Begin: Did you fall asleep while read- One morning Ia went to see Israeli He has also served in the Bureau of Near ing it? Defense Minister Ezer Weizmann, who Eastern Affairs, the Bureau of Economic and Me: Of course, I mean no! was not feeling well and resting in his Business Affairs, and the Bureau of Oceans (He later visited our trailer and bor- cabin. and International Environmental and Scien- rowed my book, Foreign Policymaking “Who’s there?” Weizmann called out tific Affairs in Washington, D.C. in the Middle East, co-authored by R.D. in Hebrew as I tried to quietly enter.

THE FOREIGN SERVICE JOURNAL | SEPTEMBER 2018 79 Sunday was eerily quiet, with failure and despair in the air. Time had flown by, but now seemed stopped; and Camp David seemed confining. That, however, changed instantly late Sunday with a burst of activity.

“Frank, we’re leaving.a Go check Birch in case Begin forgot something.” I saw that Prime Minister Begin had left his hat, coat and some notes (but not my book). I gathered his stuff and began to run toward a large Marine helicopter preparing to lift off. Klieg lights burst on as I neared the spot, blinding me and casting Begin and company in silhouettes, from which the PM spoke: “Thank you. Will you be join-

MOSHE MILNER MOSHE ing us in the helicopter [ride to the White Frank Finver, in 1978, stands in front of House]?” the Camp David sign at the entryway to the mountain facility. “No, he’ll meet us there,” someone answered for me. I was soon flying down the mountain and toward D.C. in my embassy sedan, “They asked me to check on you,” I field site for a VIP visit the following day, the Israeli security chief snoring next to answered. which President Carter conducted with me. The signing ceremony was broadcast “You’re a bloody Yank, huh?” he said. minimal assistance from a Park Ranger. on the radio. “Hand me that goddamned bottle of Even on the weekend, it was business “The first document that we will sign cognac. Only thing that helps with this as usual for the delegations; but tension is titled ‘A Framework for Peace in the cold!” was palpable as rumors circulated on Middle East,’” President Carter intoned. Later in the week, I heard that Weiz- Saturday, Sept. 16, that Sadat was packing “[It] is quite comprehensive in nature, mann made quite a scene while leaving a his bags. Late that evening, I strolled up encompassing a framework by which screening of the graphic World War II film to our parking area, where some col- Israel can later negotiate peace treaties “Patton.” He had dramatically launched leagues sat grim-faced in a semicircle between herself and Lebanon, Syria, Jor- his crutches (he had been in a car acci- around a TV placed under the stars on dan ... (and) provides for the realization dent in Israel) into the bushes, exclaim- this warm night. of the hopes and dreams of the people ing: “That [carnage of war] is what we can To my delight, “Saturday Night Live” who live in the West Bank and Gaza Strip expect if we don’t reach an agreement!” was on, and Garrett Morris, Dan Aykroyd and will assure Israel peace in the gen- and John Belushi were masterfully por- erations ahead.” traying Sadat, Carter and Begin. President Sadat spoke of the “spirit After a few daysa of running errands, Suddenly Carter’s top aides, Hamilton of Camp David,” and Prime Minister reading, playing basketball with the Jordan and Jody Powell, approached, Begin called it unprecedented, “a unique Marines, I drove a site advance team 45 and I briskly fetched more chairs and a conference, perhaps one of the most minutes down the hill to Gettysburg, couple of Budweisers. Soon they, too, important since the Vienna Conference Pennsylvania. We reviewed the battle- were guffawing with delight. in the 19th century.

80 SEPTEMBER 2018 | THE FOREIGN SERVICE JOURNAL FRANK FINVER FRANK A relaxed moment at Camp David: Moshe Dayan (center) with Susie Maltzmann, secretary to Israeli Ambassador to the United States Simcha Dinitz, and an Israeli security guard outside the Israeli delegation’s office/communications trailer. THE WHITE HOUSE President Anwar Sadat, President Jimmy Carter and Prime Minister Menachem Begin clasp hands happily at the White House ceremony where the Framework for Peace in the Middle East and the Framework for the Conclusion of a Peace Treaty Between Egypt and Israel were signed on Sept. 17, 1978. Six months later,a on March 26, 1979, I put my raincoat down (á la Sir Walter of Foreign Affairs Shimon Peres and ians are still waiting for their freedom. Raleigh) on the damp White House lawn Prime Minister Yitzhak Rabin, to whom I But at least major warfare between and sat with some staffers from the Egyp- offered congratulations and best of luck Israel and Egypt has been rendered tian embassy. We were there to witness for the future. They and President Bill obsolete, and waging peace was shown the signing of the Egyptian-Israeli Peace Clinton would give it their best. to be possible for a bright, shining Treaty after long talks between the par- A quarter century later, the Middle moment on a mountaintop in Maryland ties at Blair House, the Madison Hotel, East is still in turmoil, and the Palestin- 40 years ago. n back at Camp David and in Egypt. This was the high-water mark of Middle East peacemaking—and my diplomatic career—to that point. Anwar Sadat and Menachem Begin (and later Jimmy Carter) were awarded Nobel Peace prizes. Sadat was killed three years later; and Begin fell into the Lebanon trap, lost his beloved Aliza and died in 1992. That same year I would stand in the backyard of the residence of our ambas- sador to Israel for the Fourth of July event, winding up my second tour as a U.S. Foreign Service officer. The Persian Gulf War had been won

the year before, and the Labor Party had THE WHITE HOUSE just beaten Likud. I found myself stand- The three leaders stand at attention during the U.S. Marine Drum and Bugle Corps ing between the victors, Israeli Minister concert and drill team performance at the Camp David parade grounds on Sept. 7, 1978.

THE FOREIGN SERVICE JOURNAL | SEPTEMBER 2018 81 LOCAL LENS BY JAMES TALALAY n FREETOWN, SIERRA LEONE

uring a photography workshop in Freetown, Sierra Leone, we visited a shantytown neighborhood called Kroo Bay where there was plenty of dynamic, everyday life. A great example is this young woman, a hair- Ddresser. She was kind enough to pose, lowering her head so her fine work was visible. The photo was taken with a Fujifilm X-T10 camera, xf 10-24mm lens, at 13.8mm, 1/30sec, f4, iso 1600. n

James Talalay is married to Public Diplomacy Officer Sarah Talalay. They have served in Chennai, Vilnius and are currently posted in Kuala Lumpur. You can see more of James’ work at jamestalalay.com, and read about the couple’s Foreign Service adventures at hellotalalay.blogspot.com.

Please submit your favorite, recent photograph to be considered for Local Lens. Images must be high resolution (at least 300 dpi at 8” x 10”, or 1 MB or larger) and must not be in print elsewhere. Include a short description of the scene/event, as well as your name, brief biodata and the type of camera used. Send to [email protected].

82 SEPTEMBER 2018 | THE FOREIGN SERVICE JOURNAL