• i The power plant is the sun. that would be burned in a year—56.3 million gallons. And its energy is going to work for our ITT Eventually all our mills will be converted Rayonier company in a new North American pulp to this modern energy-saving system. Which is mill starting this fall. conservation in more ways than one. It'll help us beat the energy crisis. Because unlike oil and coal—which once used Our new mill will produce chemical cellulose for can't be replaced—wood is renewable. In the last 30 textile fibers from locally harvested trees. Almost years our Rayonier company has replanted hundreds every part of the tree is processed—though up till of millions of trees. now, there was always some wood waste. And they'll keep on replanting. As long as there's No more. It's this wood waste that our new mill air, water and soil. will convert into useful energy, recapturing the sun's And, of course, sun. heat and light to meet virtually all the mill's energy needs. The best ideas are the I I H II11 Tree waste will replace fully 90 per cent of the oil ideas that help people. JLJL.L
International Telephone and Telegraph Corporation, 320 Park Avenue. New York. N.Y. 10022. American Foreign Service Association Officers and Members of the Governing Board THOMAS D. BOYATT, President F. ALLEN HARRIS, Vice President EDWIN L. MARTIN, Second Vice President RICHARD H. MELTON, Secretary JULIET C. ANTUNES, Treasurer MARY ANN EPLEY & JOHN PATTERSON, AID Representatives FRANCINE BOWMAN, RICHARD B. FINN, CHARLES O. HOFFMAN & RAYMOND F. SMITH, State Representatives STANLEY A. ZUCKERMAN, USIA Representative FOREIGN SERVICE JOURNAL JAMES W. RIDDLEBERGER & WILLIAM O. BOSWELL, Retired Representatives
September 1974: Volume 51, No. 9 Journal Editorial Board RALPH S. SMITH, Chairman G. RICHARD MONSEN, Vice Chairman FREDERICK QUINN JOEL M. WOLDMAN EDWARD M. COHEN ERIC GRIFFEL JAMES F. O'CONNOR SANDRA L. VOGELGESANG
That (expletive deleted) Form! 6 Staff RICHARD L. WILLIAMSON, Executive Director Was Woodrow Wilson Right? 8 STEPHEN F. WALLACE, Counselor DANIEL P. MOYNIHAN HELEN VOGEL, Committee Coordinator ELOISE JORDAN, Scholarship Aide C. B. SANNER, Membership and Circulation Global Challenges and the Fudge Factory 13 Foreign Service Educational HARRY C. BLANEY, Ml and Counseling Center The Murphy Commission— CLARKE SLADE, Director And Murphy 15 R. H. FALES Journal SHIRLEY R. NEWHALL, Editor Taiwan: Our Hardy MclVER ART & PUBLICATIONS. INC., Art Direction Perennial Problem 16 JOHN K. FAIRBANK Advertising Representatives JAMES C. SASMOR ASSOCIATES, 520 Fifth Ave„ New York, N.Y. 10036 (212) 683-3421 ALBERT D. SHONK CO., 681 Market St., San Francisco, Calif. 94105 (415) 392-7144 JOSHUA B. POWERS, LTD., 46 Keyes House, Dolphin Sq., London SW1 01-834-8023/9. International Representatives.
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Editorials 4 FSJ Book Essay 27 The FOREIGN SERVICE JOURNAL is the journal of professionals in foreign affairs, published twelve times a year by the American Foreign Letters to the Editor 28 Service Association, a non-profit organization. Material appearing herein represents the opinions of the writers and is AFSA News 31 not intended to indicate the official views of the Department of State, the United States Information Agency, the Agency for International Develop¬ ment or the United States Government as a whole Membership in the American Foreign Service Association is open to the professionals in foreign affairs overseas or in Washington, as well as to persons having an active interest in, or close association with foreign affairs. Membership dues are: Active Members—Dues range from $13 to $52 annually depending upon income. Retired Active Members—Dues are $30 annually for members with incomes over $15,000; $15 annually for less than $15,000. Associate Members—Dues are $20 annually. For subscription to the JOURNAL, one year (12 issues); $6.00: two years. $10.00. For subscriptions going abroad, except Canada, add $1.00 annu¬ ally for overseas postage. Articles appearing in this journal are abstracted and indexed in Historical Abstracts and/or America: History and Life. Microfilm copies of current as well as of back issues of the FOREIGN SERVICE JOURNAL are available through the University Microfilm Li¬ COVER: Essaouira by Nan K. Ronsheim brary Services, Ann Arbor. Michigan 48106 under a contract signed Oc¬ tober 30, 1967. r
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SULZBERGER The trend begun by the Rogers Act has not, however, JIDDA, Saudi Arabia—It is startling to recall that 50 been completed. At the time of its enactment only 35 years ago the United States, which is now the world’s per cent of our missions abroad were under career dip¬ most diplomatically involved nation, had no adequate Foreign Service. Only in July, 1924, when the act spon¬ lomats. Now 68 per cent of the far larger number of sored by Representative John Jacob Rogers of Mas¬ missions are headed by career officers; yet that figure sachusetts became law, did today’s efficient system of means 32 per cent of our embassies are under noncareer representation develop. envoys. In other words, the spoils system is still far from dead. The idea of having regular foreign envoys was always The American public was recently shocked to learn somewhat repugnant to most Americans who were im¬ bued with a romantic concept of isolation from the as part of the fall-out from the Watergate scandal how nasty outside world from which they and their ancestors flagrantly some diplomatic posts overseas have been fled. A Department of Foreign Affairs was created in peddled about by political influence merchants and 1781 by the revolutionary government which had to en¬ fund-raisers. Some of the resulting appointments have list aid abroad and finally to negotiate peace. In 1789 ranged from embarrassingly comic to well-nigh catas¬ this was reorganized into the State Department. trophic. However, it cannot be forgotten that certain of our For years its representatives were appointed on the noncareer ambassadors have been among the most dis¬ basis of a political spoils system. In 1856, the thought of tinguished public servants the United States ever pro¬ merit as a qualification was first legally acknowledged. duced and rank with such early amateur envoys as Ben¬ Subsequent acts in 1906 and 1909 gave civil service jamin Franklin and John Jay. status to those serving in foreign missions. However, it was only with the Rogers Act that the Nevertheless, while always leaving space for spe¬ cially qualified noncareer ambassadors, it seems only existing diplomatic and consular services were joined just that the implied intentions of the Rogers Act should into a single Foreign Service that admitted qualified ap¬ be fully carried out. Each and every post abroad should plicants after examination and then assigned and pro¬ moted them according to need and merit. By establish¬ be open to members of the career Foreign Service with adequate pay and allowances to maintain even the cost¬ ing a uniform scale of salaries and representation allow¬ liest embassy out of public funds. ances (always far too stingy) it became possible for in¬ As things stand, the most luxurious positions are dividuals without private means to serve the State De¬ most coveted by beneficiaries of the spoils system. partment. One useful result of the welding of diplomatic and Likewise, the most difficult and dangerous positions are always awarded to career diplomats. Thus it was a consular officials into the same career service was that it opened doors to the highest office to competent con¬ hard-working pair of US public servants, Ambassador Cleo Noel and George Moore, who were kidnapped in suls who would otherwise have been prevented from Khartoum, Sudan, across the Red Sea from here, by playing active policy-making roles. An outstanding ex¬ Palestine Arab guerrillas and brutally murdered. Simi¬ ample has been Robert Murphy, a young vice-consul in lar tragedies have involved career diplomats in Brazil Munich when the Rogers Act became effective. He and Guatemala. subsequently rose to the rank of ambassador and Under In the United States where equality of opportunity Secretary of State. Had there been no Rogers Act or its equivalent, the has always been stressed—as well as equality of hard¬ ship or danger in times of crisis—it would be useful to United States would be in no position to play its extra¬ recall this philosophy in assigning overseas posts. ordinarily active role in international affairs today. In 1924 the United States had only 122 persons in its dip¬ There is no sense continuing even vestigial favoritism or amateurism—when not fully qualified by talent—at lomatic service—plus 511 consular officials (including the expense of that industrious, courageous body of Mr. Murphy). Now the Foreign Service numbers 3,290. men, largely unknown, who serve us in a world from In 1924 Washington was represented by 54 small dip¬ which we cannot isolate ourselves. lomatic and consular posts abroad. Today we have 129 61974 by The New York Times Publishing Company. Reprinted by embassies alone. permission. 4 FOREIGN SERVICE JOURNAL, September, 1974 Grand Alliance: You and a1974 Ford. For family luxury, ally yourself with a '74 Ford LTD Brougham. Enjoy plush interior trims, power Please send me full information on using my diplomatic discount to purchase a 74 front disc brakes, steel-belted radial ply tires, Washington, D.C. area: New York area: power steering and SelectShift automatic Diplomatic Sales Diplomatic Sales transmission as standard. Ford Motor Company Ford Motor Company 815 Connecticut Ave., N.W 152 Halsey Street For elegant new sport, choose Mustang H. 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In fact, if the [expletive deleted] typist had used pica type instead of elite, the “X” might have just grazed the 65 percent line and have been scored as “in.” Sorry about that. Next year try to per¬ F0RM1 suade the typist to use the larger type form. And upper June 31, 1975 case. Nelson P. Quagmeier One other little thing: Part IIIB hurt you a bit. Your American Consulate General rating officer checked “Perceptiveness,” “Systematic Leipzig Work Habits,” and “Ability to Anticipate” as least Dear Quag: characteristic of you. Of course we know this means This is in reply to your letter of May 15, in which you only slightly less characteristic than all the other fine asked for my frank appraisal of why you were not on the qualities—after all, why the careful entrance examina¬ 1975 promotion list. tion procedures? But let's face it: the panels unavoid¬ Actually, Quag, I think another quarter-inch would ably view these “negative” marks with some gravity. have done it. That may sound cryptic. I am referring to So next year, if you do not consider it inappropriate, the 50 percent section of the rating box in part 111 A of you might hint to your rating officer that he tick off the new O.E.R. form. As you can imagine, the panels “Creativity” (this quality is not valued terribly highly), had a great deal of difficulty evaluating the markings in “Empathy” (no one is really quite sure what this this section. The far right and far left were fairly obvi¬ means), and “Policy Orientation” (this is meaningful ous (upper 30 percent or lower 30 percent), but the only at the 0-1 level). Another option is “Selfless¬ marks in between were more troublesome. ness”—this term suggests a tiny bit of masochism at So very early it became necessary to devise a clear worst and sainthood aspiration at best. The panels are plastic overlay for this section, dividing it up into ten big on neither. parts and making it possible to determine in which five So there you are, Quag. I hope you will find this percent sub-unit the officer was ranked. Unfortunately, information helpful. If I may be of any further assis¬ rating officers and typists were not so precise in their tance, please do not hesitate to let me know. marking. Warmly, In your case, the ”x” just missed the 65 percent J. STEFAN BARFF block, which happened to be the cut-off point in 1974. Area Personnel Officer Security returns to Peking. Security’s steel lift vans were among the last to leave Mainland China, a quarter-century ago. And the first to return last summer, when we moved the German Ambassador from Washington to the new Diplomatic Mission in Peking, Peoples Republic of China. Security has been helping government families move around the world since 1890. A more recent tradition, insured security once you’ve arrived, began in 1897. 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US A A insurance protection serves the coverage with a network of world-wide claims same way the Foreign Service does. At home and representatives for fast, fair claim settlement. abroad. Once you establish your membership in Stateside, USAA offers a full line of USAA by becoming a policyholder, you are insurance. Insurance protection for your auto¬ eligible to buy additional insurance at any time mobile, your home and household goods, your Even if you leave the Foreign Service. Or retire. boat, and your personal property and liability. Mail the prepaid coupon for information; Insurance protection for less money than many there’s no obligation. companies charge. In many overseas stations you can purchase policies that give you insurance coverage designed for your location or adapt the coverages you have already bought stateside. But being overseas doesn’t mean being far from USAA. By doing all our selling and service by mail, we’re close by, fast and efficient. USAA USAA isn’t far away when you have a INSURANCE claim to make, either. USAA backs up its AT YOUR COMMAND SEND INFORMATION FOR INSURANCE CHECKED BELOW CLIP THIS CONVENIENT COUPON FOREIGN SERVICE JOURNAL, September, 1974 7 There must be, not a balance of power, but a community of power; not organized rivalries, but an organized common peace.—Woodrow Wilson (1917) Morality and Was American Woodrow -oreign Policy Wilson Right? DANIEL P. MOYNIHAN I T is FIFTY YEARS since Woodrow Ordeal of Woodrow Wilson” (they he made of us. The American peo¬ Wilson died, but it does not seem were very alike, Wilson and ple, the object of his highest hopes, 50 years: more like 250. We are un¬ Hoover, though Hoover was the his strongest passions, were not comfortable with Wilson in the more prolific author), put it fairly: somehow part of his being. The 20th century, he seems more the For a moment at the time of the Armis¬ apocrypha has it that he once kind of man who came early rather tice, Mr. Wilson rose to intellectual began an address to a peace- than late in our national life when domination of most of the civilized conference occasion saying that of a sudden we were to find that far world. With his courage and elo¬ when he thought of mankind he did from being the youngest of gov¬ quence, he carried a message of hope not think of men in dinner jackets. ernments we had become virtually for the independence of nations, the Which only extends the mystery the oldest. Yet none would dis¬ freedom of men and lasting peace. from what he thought of Americans agree that he shaped this century as Never since his time has any man risen to what he thought of mankind. It no other American has done. Her¬ to the political and spiritual heights that came to him. is clear enough that once he en¬ bert Hoover in his last book, “The tered politics he came more and There was no one like him, then; more to think about the working Daniel P. Moynihan is currently serving as there have been none since. Except masses, sweaty in those days and Ambassador to India. His books include perhaps Lenin. That case could be scarcely Calvinist, whose party he '' The Politics of a Guaranteed Income, ’' made. Men alike primarily in the was soon to lead. (The Interna¬ "Maximum Feasible Misunderstanding," way they differed from their own tional Labor Organization, estab¬ and, most recently, "Coping," a collection lished by the Versailles Treaty, of essays which contains several pieces orig¬ people whom they were nonethe¬ inally published in COMMENTARY. An ear¬ less able to inspire and to mobilize was by no means, to his thinking, lier version of the present article was read as no leaders before or since have the least of the organizations of the this past February at the Woodrow Wilson done. But as an American figure, League system. He had contrived International Center for Scholars on the oc¬ he is singular. for Samuel Gompers to head the casion of the 50th anniversary of the death of Woodrow Wilson. Reprinted from If we do not quite know what to commission at Paris which drew up COMMENTARY, by permission; Copyright ‘ make of Wilson, this is not least its Charter. The speeches on his 1974 by the American Jewish Committee. because it is still so uncertain what great trip through the West in 1919 8 FOREIGN SERVICE JOURNAL, September, 1974 are remembered as explanations eludes us, and which, if I am not the death of their sons. 1 ordered their and defenses of the Covenant of altogether wrong, honesty requires sons overseas. I consented to their the League. But he also spoke re¬ that we acknowledge cannot any sons being put in the most difficult peatedly of the 1LO, asking that longer be successfully pursued in pails of the battle line, where death more heed be paid to the charter of strictly Wilsonian terms. Wilson’s was certain, as in the impenetrable dif¬ rights for the working man embed¬ vision of a world order was a reli¬ ficulties of the forest of Argonne. Why should they weep upon my hand and ded in the peace settlement. In turn gious vision: of the natural good¬ call down the blessings of God upon the inclusion of the 1LO had more ness of man prevailing through the me? Because they believe that their to do with the defeat of the treaty in Holy Ghost of Reason. The beliefs boys died for something that vastly the Senate than standard histories from which this vision came, while transcends any of the immediate and are so far wont to record.) He came still widespread and deeply felt palpable objects of the war. They be¬ to think, surely, of mankind as in¬ among individuals, are no longer lieve and they rightly believe that their cluding persons who spoke lan¬ seen to imply political belief as sons saved the liberty of the world. guages other than English (al¬ well. Wilson in that sense speaks to They believe that wrapped up with the though not necessarily those who us with a diminishing, ever more liberty of the world is the continuous protection of that liberty by the con¬ spoke English with an Irish ac¬ distant voice. And yet a distinct certed powers of all civilized people. cent). And in his Western speeches one to which today we need to lis¬ They believe that this sacrifice was he would say so with a candor ten again. made in order that other sons should —engaging and unashamed—now not be called upon for a similar gift HE DIED, as recorded, in Washing¬ quite foreign to American public —the gift of life, the gift of all that life. ton in 1924, but of course he died in died—and if we did not see this thing “Do you know where Azerbai¬ the public sense five years earlier through, if we fulfilled the dearest jan is?” he asked his audience, on his way back from Pueblo, Col¬ present wish of Germany and now dis¬ speaking of the Paris peace confer¬ orado, when he suffered an in¬ sociated ourselves from those along¬ ence in San Francisco on Sep¬ capacitating stroke. He was only side whom we fought in the war, would tember 18, 1919: once ever again to speak in public, not something of the halo go away from Well, one day there came in a very dig¬ on Armistice Day in 1923, a short the gun over the mantlepiece or the nified and interesting group of gentle¬ while before the final end. The sword? Would not the old uniform lose men from Azerbaijan. 1 did not have Pueblo speech deserves to be re¬ something of its significance? These men were crusaders. They were not time until they were gone to find out read. It is surely a premonition, an going forth to prove the might of the where they came from, but 1 did find evocation almost, of death. A this out immediately, that I was talking United States. They were going forth speech from the cross. A speech, to prove the might of justice and right, to men who talked the same language to be sure, by a Presbyterian St. that I did in respect of ideas, in respect and all the world accepted them as Jerome, contesting texts to the crusaders, and their transcendent of conceptions of liberty, in respect of very end, but a Passion withal. It is conceptions of right and justice. . . . achievement has made all the world be¬ a premonition of his own death. lieve in America as it believes in no It is at such points, of course, that one inclines to quarrel with Wilson: how can he ask us to be¬ lieve that he believed such things? Worse: what if indeed he did? And “It is a premonition of his own death, and a prophecy, t suppose, of the for a new generation influenced, if death of the Western civilization that would not be saved. Excepting at all, by Wilson, then at most by always that those who believed would be saved, the city would not be what I should suppose is now an saved; the city would be lost to war and rumors of war.” attenuated Wilsonianism. there are vastly greater difficulties with his concluding assertion: And I did find this out, that the Azer¬ and a prophecy, I suppose, of the other nation organized in the modern baijanis were, with all the other delega¬ death of the Western civilization world. There seems to me to stand be¬ tions that came to see me, metaphori¬ that would not be saved. Excepting tween us and the rejection or qualifica¬ cally speaking, holding their hands out always that those who believed tion of this treaty the serried ranks of to America and saying, “You are the would be saved, the city would not those boys in khaki, not only these disciples and leaders of the free world; be saved: the city would be lost to boys who came home, but those dear can’t you come and help us?” ghosts that still deploy upon the fields war and rumors of war. of France. I suppose there are among us those The biblical cadence, the New He tells of visiting a cemetery in who would be willing to advise the Testament ecstasy in that extem¬ France where French women Azerbaijanis on the correct pricing pore speech are as moving as any¬ tended American graves: policies for crude oil. But for the thing in the language of the Ameri¬ France was free and the world was free rest . . . no, we fall back in can Presidency: because America had come. I wish disbelief—even such as I, taught, if Again and again, my fellow citizens, some men in public life who are now anything, to move forward in ac¬ mothers who lost their sons in France opposing the settlement for which ceptance. have come to me and taking my hand, these men died could visit such a spot have shed tears upon it not only, but What then does it matter what he as that. 1 wish that the thought that they have added, “God bless you, Mr. comes out of those graves could pene¬ thought of mankind? It matters be¬ President.” Why, my fellow citizens, trate their consciousness. I wish that cause therein resides the essence of should they pray God to bless me? I they could feel the moral obligation his quest for legitimacy in the advised the Congress of the United that rests upon us not to go back on world order, a quest which still States to create the situation that led to those boys, but to see the thing FOREIGN SERVICE JOURNAL, September, 1974 9 ation that is just, and that is taxa¬ tion that does not discriminate.” “Further and fatefully, a kind of corrupt Wilsonianism carried on as a Or redistribute income: “I know of dominant theme of American foreign policy for years after him. The only one legitimate object of taxa¬ tion, and that is to pay the ex¬ Republicans who took over scarcely abandoned his ideals.” penses of the government.” (“WOODROW WILSON ATTACKS PATERNALISM,” went the New York TIMES headline, “Govern¬ through, to see it through to the end insufficiently succeeded, in the and make good their redemption of the ment Can’t Do Everything, He second effort, the United States Tells Southern Society.”) world. For nothing less depends upon has commenced to recede in its this decision, nothing less than the lib¬ Familiar stuff. In office, of commitment to the first. The course, he became a guarded advo¬ eration and salvation of the world. events in this instance are better What is one to make of this? Was cate of graduated taxes, and . de¬ known than the argument to be vised more than a few new ways of he right? We have almost given up made for them, for indeed the ar¬ asking such questions, much less spending them. There are words gument lies essentially in the ac¬ for such behavior and they are di¬ answering. But this, surely, is ceptance of the seemingly ineluct¬ clear. It was very late in the history rected, with no special impact, to able events. If the Wilsonian thesis most public men. The craft of Pres¬ of the West to put any large public was too wordy, a shade too eager question in such terms. Carl J. ident ordains a certain craftiness. to persuade, its antithesis stands in But Wilson had rather implied that Friedrich and Charles Blitzer are something very like “dumb correct, surely, that with the reli¬ he was not to be measured by any insolence”—a serious charge in such standards. The greater the gious revival of the 17th century, British courts martial, not least be¬ and the wars of that century, shock, then, when the doings at cause it is so difficult to prove and Versailles began to leak out. as in¬ “Once again, and for the last time, impossible to bear. In a word, life was seen as meaningful in re¬ evitably they were to do, and it be¬ events increasingly persuade us to came unavoidably clear that in ligious, even theological, terms. act as if Wilson were wrong. . . .” For the last time. dealing with leaders of the Allied But was he right? In 1944, a Our susceptibility to such doubts Powers Wilson, in order to win the quarter-century after the Pueblo goes far back. Wilson as President Covenant, had accepted many speech, when we seemed well into failed, did he not?: never good for a more “lesser evils”—Hoover’s the hideous future Wilson had reputation. More importantly per¬ term—than were ever proposed in foreseen, Gerald W. Johnson haps, for Americans, as in the the way of reservations to the asked this question: course of the 1920s the person Treaty of Versailles which the It is not a pleasant idea, for if he was emerged from the President, it moderate Senators had held out for right, the rest of us were wrong. . . . came to be seen that the person and with which it would have been Dead men scattered from the Solomon himself was not without failings. ratified. In a word, he did for Islands to Italy suggest that we may Johnson writes: “He was full of Clemenceau what he would not do have been wrong. Fine ships by hun¬ faults. They stuck out like spines for Senator Frank B. Kellogg or dreds shattered and sunk suggest that upon a cactus ... he was arrogant Senator Porter J. McCumber; he we may have been wrong. Billions upon uncounted billions wrung from . . . bullheaded . . . puritanical . . . was willing to bend a principle for our toil; mourning in every city and vengeful . . . icy . . . blistering.” Lloyd George, but not for William town, in crowded tenements and lonely His racial attitudes were certainly Howard Taft or Elihu Root or farmhouses, weeping women and pre¬ deplorable. At times he displayed a Charles Evans Hughes. maturely old men . . . suggest that we measure of selfless devotion to Further and fatefully, a kind of may have been wrong. political gain such as to qualify as a corrupt Wilsonianism carried on as And “those dear ghosts that still case history in Puritan aberration. a dominant theme of American deploy upon the fields of In this regard, his speeches just be¬ foreign policy for years after him. France”—what do they suggest? fore entering active politics as The Republicans who took over Democratic candidate for Senator scarcely abandoned his ideals. To EVENTS up until the time Johnson from New Jersey in 1907 are of the contrary, the 1920s were noth¬ wrote, and in the three decades textbook quality. Addressing the ing if not the era of American- since, suggest at the very least that Southern Society at the Waldorf inspired disarmament conferences the United States remains as un¬ Astoria, he feared that “America and treaties renouncing war as an certain as ever about the terms on has fallen to the commonplace instrument of national policy. The which the then President of the level of all the other nations” be¬ problem was that, as with the United States helped, first, to set in cause she had abandoned her Great Experiment itself, the men in motion an extraordinary world egalitarian ideals. "When she power were willing to proclaim the dynamic of political independence ceases to believe that all men shall ideals but not to enforce them. Or, accompanied by a rhetoric of per¬ have equal opportunity she goes some would say, to proclaim ideals sonal freedom; and sought, sec¬ back upon the principle on which that were unenforceable. It comes ondly, to establish a world order the nation was founded.” And how to much the same thing: irrespon¬ which, by legitimating and channel¬ best to have equal opportunity? By sibility. In what must surely be the ing these forces, would sufficiently not discriminating. Which is to say best writing yet on this subject, Er¬ contain them. Events suggest by not having a graduated income nest W. Lefever has given the further that having failed, or having tax. “There is only one sort of tax¬ name of moralism to this kind of 10 FOREIGN SERVICE JOURNAL, September, 1974 irresponsibility; it is, he says, the corruption of the foreign-policy traditions of both “rational “And in the absence of religious conviction, it is not possible to estab¬ idealism” and “historical real¬ lish an obligation of the Wilsonian kind to the state. Our elites accept ism,” of Tom Paine and Walt the state rather as Margaret Fuller accepted the universe, and it might Whitman on the one hand, Burke be said of them what Carlyle said of her: By gad, they had better.” and Madison on the other. Moralism evades both of these moral traditions. Morality is a synonym for responsibility. earlier made the case for interven¬ in the Presidency, even awkward. Moralism is a conscious or uncon¬ tion seemingly settled the matter: a At the time a member of the White scious escape from accountability. tendency of thought, a tone of House staff assured me that he was There is first of all in this mutant voice, a tintinnabulation of the not really a Catholic, but, well, like a fundamental hostility to author¬ school-yard bells that we had best a Unitarian.) ity. “The soft moralistic view as grown-ups put behind us. The American people in the tends to distrust the state, espe¬ aggregate appear to retain their re¬ cially its coercive power, while B UT THIS was a corruption of Wil¬ ligious beliefs and practices very Western ethical thought affirms the son. Surely we can accept that much intact. But such conviction necessity of the state and insists on now, what with the naivete of the has all but evanesced among politi¬ the responsible use of its power.” Kellogg-Briand treaties behind us cal elites in the United States much In another variant, it sets the most and the worst of the cold-war ob¬ as it has done, for example, in Bri¬ unavailing of all criteria for worth; sessions also, and with the United tain. And in the absence of reli¬ “Soft moralism tends to associate Nations over to one side, doing gious conviction, it is not possible virtue with weakness, just as it as¬ what it does and about what it can to establish an obligation of the sociates vice with power.” do. The essential Wilson remains, Wilsonian kind to the state. Our Whence the lunging forward to do the Wilson whose singular con¬ elites accept the state rather as good and the reeling back when it is tribution to the American national Margaret Fuller accepted the uni¬ learned what will be required— experience was a definition of pa¬ verse, and it might be said of them “This strange combination,” to triotism appropriate to the age what Carlyle said of her: By gad, continue Lefever, “of reform- America was entering at the time of they had better. If, for Wilson, the intervention and security-isolation his Presidency, which is to say pa¬ properly directed state was an in¬ [which] turns foreign policy on its triotism defined first of all as the strument of his Calvinist God, then head.” The first task of foreign pol¬ duty to defend and, where feasible, obviously for Wilson patriotism, icy in what we would hope to be to advance democratic principles in however physically demanding, our ethical tradition is peace and the world at large. (In this he ex¬ posed no intellectual problems. But security. Moralism substitutes panded the original—and sin¬ it does pose intellectual problems —for this—the modes and objec¬ gular—American definition of citi¬ for the American and British politi¬ tives of internal policy to the dis¬ zenship as a matter not of blood cal elites today: it is, verily, a crisis advantage, even denigration, of or soil or religious faith, but of of faith. first things. When it fails, moralism adherence to political norms.) Al¬ There remains, however, in both will typically prefer no foreign pol¬ ways to defend them—prudently if countries—and very much in both icy to a necessary one. possible, but at the risk, if need be, countries—a strong ethical sense The reform-intervention phase of imprudence. with respect to public matters, a of this mindset became manic in One suspects this came easily to sense of justice and procedure, a the years just after the period in Wilson in an intellectual sense: feeling for law, which is wholly which Gerald Johnson wrote. Scotch-Irish, his father a Pres¬ serviceable as a belief system From Lake Success onward to byterian minister, his mother a around which to organize a na¬ about the Bay of Pigs, it seemed at Presbyterian minister’s daughter, tional life. What was missing then times almost to prevail (again with in whom, Richard Hofstadter and is missing now is the dimension Republicans succeeding to and ac¬ wrote, the Calvinist spirit burned of duty. Again, it appears as a quiescing in a kind of Democratic with a bright and imperishable problem not so much of people in heresy). A necessary counter¬ flame. “Their son learned to look general as of elites. Hofstadter de¬ argument was made by men such upon life as the progressive fulfill¬ scribes Wilson as “the preacher of as George Kennan, and before the ment of God’s will and to see man a mission of world service to the era was over “Wilsonian idealism” as a 'distinct moral agent’ in a uni¬ most insular and provincial people had become synonymous with verse of moral imperatives.” His among all the great powers.” He dangerous nonsense: the prattle of belief in his country was an exten¬ could have added—and would have soft and privileged people in a hard sion, a secularization I suppose, of done, I think, had the point been and threatening world. Vietnam, his belief in his God, a belief of raised—that Wilson succeeded to a with its own sequence of “reform- concreteness and content virtually considerable extent in this mission. intervention” and “security- absent from the Presidency since. The American people were with isolation,” appeared all the more to (Kennedy, however, believed in him on the Covenant, as were, confirm the folly of that world God. I think this to be true, al¬ overwhelmingly, the peoples with view. That the subsequent “neo¬ though I do not know it. It rather whom he was in touch abroad. If isolationist” argument came so embarrassed some of those around survey research tells us anything, it often from precisely those who had him, for it had become unfamiliar is that this conversion, warts and FOREIGN SERVICE JOURNAL, September. 1974 11 backsliding and all, is very much Some civic manhood, firm against the that which Wilson first perceived: intact a half-century later. crowd. the worldwide struggle between It may be noted in this connec¬ “Patriotism, properly consid¬ free societies and those not free. tion that of all the institutions of ered,” he said, “is not a mere sen¬ Wilson conceived of patriotism American public life, the one timent; it is a principle of action, or not as an instrument of the state, which has never wavered in its rather is a fine energy of character but as an expression and extension Wilsonian commitment is the one and of conscience operating of the moral capacities of the indi¬ perhaps most expressive of the beyond the narrow circle of self- vidual, specifically of men seeking popular ethos—the labor move¬ interest.” Then an unusual point, freedom in its many manifesta¬ ment. Presidents have come and as if to emphasize how explicit he tions. He saw that in the age then gone, and the labor movement has meant to be. “Every man should commencing such a patriotism disagreed with most of them on be careful to have an available sur¬ would be meaningful only as it these matters, and shows not the plus of energy over and above what manifested itself in a world setting, least distress at having done so. he spends upon himself and his engaging its energies in a world One does not know how long this own interests, to spend for the ad¬ struggle. Democracy in one coun¬ will continue. It may be a genera¬ vancement of his neighbors, of his try was not enough simply because tional phenomenon. But so long as people, of his nation.” That the it would not last. In 20th century it does continue, the American specter of statism hovers about America Wilsonianism has been labor delegates to the annual Inter¬ such words need not be contested. disparaged for enthusiasm, much national Labor Conference will in¬ It always will, when attachment to as high Anglicans disapproved of sist, for example, that a free trade the state rather than mere submis¬ the Methodists of 18th century En¬ union is what Samuel Gompers and sion is proposed. But the state as gland. And yet the Methodists, had his associates thought to be a free an extension of the moral force and they been ordained, almost surely trade union when they drafted the responsibility of the individual is a would have kept the English people ILO Charter in Paris in 1919, and different thing from the state as the in the church, and possibly also only that, and that no necessity or mere monopoly of force. The Wil¬ their bishops. Instead the people convenience of state has any power sonian state might properly claim wandered away into nothingness. to make them pretend that a cap¬ its tithe in energy and resource Does not the American faith in tive trade union is a free trade (whether or not raised by grad¬ democracy face something of this union. None. The case could gen¬ uated income taxes!). dilemma, and are we not adopting erally be made that the mass of the This at least is not moralism, it much the same course at the silent American people has remained does not discover virtue in weak¬ behest of men who know too much substantially loyal to the standard ness. It argues, rather, the unique to believe anything in particular Wilson raised. It is the others who and necessary virtue of strength, of and opt instead for accommoda¬ come and go. men and women becoming all they tions of reasonableness and urban¬ This is the kind of thing Wilson are capable of being, beyond any¬ ity that drain our world position of knew. He was a learned man. He thing accorded them as possible in moral purpose? knew, for example, that you could the past. For, said Wilson, it was in It may be that no other leader¬ trust Gompers, who for his part America that the ordinary citizen ship is coming our way and we will told an audience in Paris, doubtless was first “put in the way” of such have to make do. But before be¬ also in dinner jackets, “You do not “statesmanlike thinking.” coming too accepting, or admiring, know how safe a thing freedom is.” 1 like to recall that passage of de of the course events are taking, we (Oh for the age when English was Tocqueville’s in which he marvels with still have time, surely, to consider spoken.) Wilson knew that the eloquent praise at the variety of infor¬ where such a course is likely to most distinctive fact of the Ameri¬ mation and excellence of discretion lead. Granted, we may end up can polity was the degree to which which our polity did not hesitate to de¬ mand of its people, its common people. alive: no small virtue in a policy, it had informed the thought and ac¬ It is in this, rather than in anything we explicit or implied. But we shall tion of ordinary citizens with a have invented by way of governmental also very likely end up lonely, conception of patriotism that else¬ forms, that we have become distin¬ which is no small disadvantage. where, in democratic nations no guished among the nations, by what we It comes to this: the Wilsonian less than autocratic ones, was rare expect of ourselves and of each other. world view is already half to the point of being a preserve of Is it a sustainable vision? Hard achieved. Most peoples of the privilege. to say. The history of this century world live in independent states is that of men and women enduring demarcated along lines of hoped- I N HIS Southern Society speech of the most awful trials in pursuit of for ethnic legitimacy. This very 1907—reflecting the frame of mind visions every bit as secular, differ¬ achievement makes for intense dif¬ in which he forsook the academy ing only in their willingness to ficulties with the remaining internal for politics—Wilson took pa¬ submerge the individual in the ethnic divisions. Nevertheless the triotism for his topic, quoting mass. Wilson argues the elevation principle of self-determination has Tennyson’s lines: of the individual, the differentiation not only succeeded at the level of a A nation still, the rulers and the ruled; of each. It may be more than we norm but has also largely been im¬ Some sense of duty, can do: but this very thought, so plemented. Something of a faith, Some reverence of the laws ourselves much a product of the events that The quality of the incumbent re¬ have made, followed Wilson, is the essential gimes is another matter. Few Some patient force to change them case for trying. And the context for measure up to Wilson’s hopes. when we will, any such effort remains exactly Continued on page 24 12 FOREIGN SERVICE JOURNAL, September, 1974 It would be madness to let the purposes or the methods of private enterprise set the habits of the age of atomic energy.—Harold Laski (1945) Global Challenges and the HARRY C. BLANEY I T HAS OFTEN BEEN SAID about Power, which remains a con¬ tion of new technology. The na¬ generals that they are always plan¬ stant, is now employed in very dif¬ ture, the limits and the dangers and ning for the last war. One wonders ferent forms but for all of its new¬ even the opportunities of a new whether this image might just as ness holds no less danger. Even world system will be, indeed are aptly apply to the Department of military power takes on new char¬ being, formed more assuredly by State and its officers. Are we not acteristics as unforeseen technol¬ the introduction of new tech¬ basically preoccupied with diplo¬ ogy brings into question old power nologies and the discoveries of sci¬ macy that is barely adequate for a balances and assurance of security. ence than any other single factor. generation ago but which can The dangers to our air, to our A few examples will suffice to il¬ hardly cope with the present, much water, and to the foods we eat are lustrate this point. We are now en¬ less the future? the new challenges which the De¬ tering into an age when the energy What are some of these changed partment of State must face in an crisis appears to be a long-term circumstances? The old diplomacy age of vast technological change phenomenon. It will require an was concerned with boundaries, and global pollution. The lead con¬ imaginative, creative and com¬ legal and consular conventions, tent in our food and water, sulphur prehensive international approach traditional alliance building and the oxides and carbon monoxide in the if safe and abundant energy is to be protection of American citizens air we breathe, and the potential available for the needs of a growing and property abroad. It was largely pollution of our oceans which may world population. Technology will reportorial. It was a diplomacy destroy our oxygen are the real provide much of the answer which required some style and dangers of this age. These slow through utilization of fossil fuels often not a little courage in the face poisons, contained in our society’s and from nuclear reactors, particu¬ of physical adversity. Rarely was it toxic wastes, are our long-range larly in the period before the year analytical, and even more rarely problems, more so than the bal¬ 2000. Hopefully, after the year was it policy oriented. To borrow ances of power which plagued dip¬ 2000, much of our energy will come from Milton, “its ghost yet haunts lomatic policy of old. It is these from non-depletable and renewable us.” elements, with their ubiquity and energy sources such as solar or The age of global challenges is respect for no international bound¬ geothermal power and, most im¬ significantly different from the ear¬ aries, which provide new chal¬ portantly, thermonuclear fusion. lier period. Vast armies do not lenges for our diplomacy. Yet we Before we enter into that golden await the order to move against have not devised an international age, we must provide for large in¬ some other country confident in system to protect ourselves from crements of power from nuclear their vision of victory and success. these menaces of the new modern reactors. This power must be ob¬ Rather, nuclear weapons assure world. At best, preoccupation on tained from a combination of new destruction of all—victor and van¬ the part of a Foreign Service of¬ nuclear reactors and associated en¬ quished. ficer with problems of world envi¬ richment technology which essen¬ ronment, including population tially transforms natural uranium into the highly enriched uranium FSO Harry C. Blaney, III is now a growth, food and resource scar¬ member of the Policy Planning Staff. Before city, too often generates from which is required to power most of this assignment he was on leave as a Fellow many of our senior FSOs a smile of the reactors which will be built in at the Woodrow Wilson International condescension and at worst a the next generation. This technol¬ Center for Scholars, where he went after banishment to that special category ogy is identical with that which being told by the Personnel Office that of second class citizen when pro¬ produces the raw material for nu¬ "Global Challenges” were not "priority” enough to be supported by a training as¬ motions and assignments are given clear weapons. signment to the Center. He served previ¬ out. The danger to the world is that ously as Special Assistant to Russell E. Among training tools needed by while we need this enriched Train, Chairman of the Council on En¬ uranium, the proliferation of this vironmental Quality and in the same capac¬ Foreign Service officers are “Del¬ ity with Daniel P. Moynihan, then Coun¬ phi” exercises which attempt to technology creates the widespread selor to the President. He also had assign¬ predict the future and technology availability of weapons grade ments in EURIRPE and served in the US assessment. The latter is simply an uranium, which can have disas¬ Mission to the European Communities in attempt to predict systematically trous consequences for the security Brussels as political officer. He has written a number of articles for publications over the secondary and tertiary conse¬ of all nations. If many nations had the last few years. quences on society of the introduc¬ access to this technology and de- FOREIGN SERVICE JOURNAL, September, 1974 13 sired to divert the product of en¬ by the television set. This image of cations” directly to their peoples richment for nuclear weapons pur¬ the external world was napalm from foreign controlled satellites. poses, this world would be a far bombs falling in Vietnam, student Who and what is right—"freedom more dangerous place than it is at unrest throughout the world and of information and dissemination” present. the needs of the developing coun¬ or “sovereign rights of govern¬ Another technology related to tries. These images were brought ments?” The decision by the world nuclear power is the development to them vividly and strongly community is still pending and will of the “fast breeder reactor.” Fast through the mechanism of modern be fundamental to the kind of world breeder reactors produce, as a by¬ communications in a way quite dif¬ our children will live in. product of power generation, ferent from that experienced ear¬ Included in this category of new weapons grade plutonium which lier. challenges for which we need new can be used easily for weapons In an even more profound way, approaches and new institutions production. Such plutonium could modem communications will have are food and resource scarcity, be used either by governments an impact on the political and population growth, control and use through diversion from their reac¬ economic development of the of the oceans and outer space, tors or it could be diverted in a globe. The world is being pro¬ rapid changes in weapons technol¬ clandestine way by private groups foundly changed through satellite ogy, the application of worldwide for use in terroristic activities. In communications. Within a short terrorism utilizing new technology, addition, this plutonium and highly period of time direct broadcast and the preservation of the envi¬ enriched uranium would be vulner¬ satellites will be going into Indian ronment. These areas deserve able to diversion in the reprocess¬ villages and into small towns on the greater attention by the Depart¬ ing and transportation phases of African continent. With this new ment, especially by the 7th floor, these materials. communications system will go than they have yet been given. Obviously with these dangers new images, new possibilities and Yet there is another part of all there must develop a strong inter¬ new problems. this that must be examined. This national program of control, in¬ What kind of a globe and what element is the growing awareness spection, and overall guidance in kind of a world political system will that these scientific and technolog¬ handling of these materials. One this new technology bring? It can ical developments have not fully possibility worthy of consideration bring a shared sense of unity to this served the broad needs of man¬ is the establishment of an interna¬ frail globe through the common ex¬ kind. It has gotten us to the moon, tional body or organization which perience of events. This was aptly it enables us to destroy the whole would provide nuclear power to illustrated in the world-wide atten¬ globe in a matter of minutes, but it non-nuclear weapons states and tion to the moon visit by American has not prevented pollution. would control fast breeder reactors astronauts. These kinds of com¬ It is apparent that this new tech¬ and possibly new uranium enrich¬ mon experiences, with the advent nology not only can be a blessing ment plants. If other countries of satellite communication, will but also can bring dangers. These were assured of the benefits of nu¬ grow and will have an impact upon dangers are not fully understood or clear power for their peoples and the world political context. fully controlled by responsible au¬ for their legitimate development Further, interdependence will thorities either at the national or at needs through such an organization grow with the increased utilization the international level. We need to at relatively low costs, perhaps of navigational, communications establish at the national and the in¬ even subsidized costs, then there is and resource satellites. This will ternational level new institutions to a possibility they would accept in¬ mean access to information and deal with this problem. The irony is ternational controls on this tech¬ data unparalleled in the world’s that in the US Congress there is a nology. history. It will necessarily have a new office of technology assess¬ It is clear that such an effort profound impact upon govern¬ ment, but the federal executive has would require major support on the ments which wish to limit their citi¬ yet to develop a comprehensive part of large powers on this globe, zens’ access to information. No mechanism for dealing with the including the US and the USSR. longer will a country be able to be negative consequences of new Such a proposal now is regarded as part of the modern world and still technology. Likewise the world visionary, but perhaps in the future limit access to information in the community has yet to develop it will not be so seen, given the data banks which will be accessible mechanisms to deal with the sec¬ dangers which are the alternative. because of the new communica¬ ondary and tertiary consequences Another area of major impact on tions systems. of technological change. the international system is the de¬ This technology, like most major This new technology also pro¬ velopment of new world communi¬ innovations, has an impact on the vides the opportunity for all peo¬ cation systems. This new technol¬ old politics. The new communica¬ ples to make significant gains in ogy will profoundly affect the fu¬ tions systems can be a new means improving the quality of their life. ture evolution of culture, education of power for those who control We can, with present technology, and international politics. them. There is resentment on the clean up our air and our water. We The Foreign Service is now en¬ part of those without this technol¬ can with present communications rolling a new generation of Foreign ogy. Discussion on the use of this technology provide greater knowl¬ Service officers who can be truly technology has become an element edge for most people on this globe. called the “TV generation.” Dur¬ in North-South tension. Many We can through an international ing much of their early life their governments wish to prevent or program insure the security, safety image of the world was determined control the beaming of “communi¬ Continued on page 26 14 FOREIGN SERVICE JOURNAL, September, 1974 The world cannot continue to wage war like physical giants and to seek peace like intellectual pygmies.—Basil O’Connor The Murphy commission - and Munphij! BY ROSE H. FALES THERE ARE career diplomats all changed to the extent of making the this connection the Commission over the world. They begin as neat, Murphy Commission “obsolete,” —with assistance from state and tactful and well spoken young men however, would be (1) to oversim¬ local governments, the academic and usually nothing exceptional plify, (2) to ignore the continuing community, and World Affairs happens to them. Bob Murphy and nature of the organizational prob¬ Councils—will hold four sets of re¬ Harold Macmillan, however, were lem, and (3) to overlook the special gional public hearings: in Philadel¬ asked to make history and, as part role of that Diplomat Among Dip¬ phia, Atlanta, Chicago, and San of their official duties, they did lomats, Robert D. Murphy. Francisco. so.”* While efforts at restructuring are Ambassador Murphy’s life today Ambassador Murphy is still not exactly a novelty in US Gov¬ is the sort of shuttle trajectory doing so. The Commission on the ernment annals, the fact that the familiar to the 7th and 8th floors of Organization of the Government Murphy Commission’s mandate is the Department. A very active for the Conduct of Foreign Policy to deal with organization—not Honorary Chairman of Corning is referred to as “The Murphy policy—is nonetheless the essence Glass, he travels to many parts of Commission” rather than by any of its utility. Policies change (a the world for them, and his net¬ bureaucratic acronym—a rec¬ point which probably needs no work of friendships in high places, ognition of his commitment to the elaboration), but we still have to go his ability to make any professional service of American foreign policy on living—in an increasingly com¬ relationship lasting and warm, is for more than fifty-five years. (If plex and dangerous world envi¬ doubtless invaluable to Corning, as legislation results, it will presum¬ ronment. It might be said that the it always has been to the Foreign ably be known as Murphy’s Law.) Commission’s task is to equip us Service. The demands made upon Ironically, the circumstances for this “experience,” taking into his lifetime of experience with the under which the Murphy Commis¬ account an almost incredibly broad major turning points of American sion was born have changed to the range of factors—from energy re¬ Foreign Policy—from the Grand point where one might almost be sources to domestic cultural at¬ Design of Roosevelt to the great tempted to ask. Why go on with it? titudes. conceptual changes of the Nixon- In 1971, when the idea for such an The scope of the Commission’s Kissinger era—keep him as busy as inquiry was brought to fruition by mandate also is important: it in¬ a one-man task force. Messrs. Fulbright and Aiken, the cludes recommendations for both Weekends are spent here in United States was still undergoing the Executive Branch and Con¬ Washington, and in spite of the lure the full agony of its Vietnam gress, as well as relations between of the 18th hole, he keeps a close involvement—and the immediate the two; and it does not even es¬ eye on every phase of the work of concern was: how do we organize chew recommendations for am¬ the Commission. When one talks our government’s foreign affairs endment of the Constitution. to him about the Commission, it is machinery so that this won’t hap¬ In building up its basic fund of clear that he has risen to this chal¬ pen again? Moreover, there was data, the Murphy Commission has lenge with the same energy and de¬ the new phenomenon of an almost spent the past year in hearing tes¬ termination to succeed which he overwhelming polarization of timony from a host of present and brought to his other tough assign¬ foreign policy decision-making in former officials in the Executive ments as diplomatic trouble the White House. And last but not and Legislative branches, as well shooter for Roosevelt, Truman and least, relations between the Execu¬ as from many non-governmental Eisenhower, Moreover, he brings tive Branch and Congress were at a experts. At the same time, it has his own special gifts to this com¬ markedly low level. carried out a program of indepen¬ plex and sensitive task of blending To say that all these things have dent research. When the work of the often jealous and disparate this “Phase A” period (not a Mur¬ elements of the foreign policy *John Lordlier, NEWSWEEK correspondent, phy Commission label) is com¬ process into an efficient whole. in a reference to the service of Murphy and pleted—as it is expected to be in These gifts are great tact, an Irish Macmillan in Algiers during World War II. the near future—the Commission sense of humor in even the most Mrs. Fates is the widow of FS O Herbert will come up with its initial set of serious situations, an understand¬ Peck Fates and a long time observer of the ing of the intoxication of power world diplomatic and political scene. She findings and recommendations. accompanied her husband to posts at Vien¬ That, however, will not be the which overtakes bureaucrats as na, London, Berlin, Bonn. Heidelberg, end of it, since there lies ahead a well as politicians, a personal sim¬ Jakarta, The Hague and Paris. A free lance very broad inquiry into the views plicity which bans pretentiousness, writer, she has had recent articles in the and above all, an unswerving belief WASHINGTONIAN and the Chattanooga of private organizations and indi¬ Continued on page 21 TIMES. viduals throughout the country. In FOREIGN SERVICE JOURNAL, September, 1974 15 Honor is like an island, rugged and without a beach; once we have left it, we can never return.—Nicholas Boileau-Despreaux . tional structure represented a bal¬ ance between opposing cultures and civilizations. When the -'•vChinese Communist rise to power in the late 1940s abolished these in¬ stitutions for foreign contact and expelled the Westerners, the island of Taiwan continued as a meeting ground. It still does so today. The features of treaty-port life there have been updated, but they are still recognizably descended from the nineteenth century. China’s first commercial contact with the international trading world had been at Canton, which after the Opium War and the Nanking »TAIWAN Treaty of 1842 became the first treaty port—a place where En¬ glishmen and eventually all other | , Our foreigners could reside and trade rt with the privilege of extraterritori¬ ality: the protection of their own legal system administered by a * hardy consular officer. Eventually Shanghai, as the focus of trade in the whole Yangtze valley, became £ perennial the treaty port par excellence, but at the height of the treaty system in the early twentieth century there were some 90 other treaty ports or problem ports of call for trade, covering all China with a network of foreign privilege and access. The treaty- port system was devised, built up, and sustained chiefly by British consuls with the support of the British navy. The unequal treaties were abolished only in 1943 by the British and Americans, yet through our military presence we continued to have a special status in China right down to 1949. The unequal treaty system has been denounced in retrospect by JOHN K. FAIRBANK Chinese patriots of all camps, and since it has ceased to exist, no one has spent much time trying to de¬ fend it. Like any other large aspect I HE FEATURES of Taiwan life from the 1840s to the 1940s pro¬ of modern history, its merits and today that are reminiscent of the vided the institutional framework demerits can be endlessly mar¬ treaty ports are not accidentally so, for the mediation of contact be¬ shaled and debated. Surely the be¬ because they have in fact been in¬ tween China and the outside world ginning of wisdom, however, is to herited. The treaty-port system of the Western trading powers. The accept the fact that the treaty sys¬ big Chinese coastal cities tem was no one man’s fancy but —Shanghai, Tientsin, and Canton, rather a product of long-term in¬ Copyright ® 1974 by John K. Fairbunk. From the forthcoming book “China Per¬ as well as Hankow, 600 miles up teraction between the Chinese ceivedby John K. Fairbank. Printed by the Yangtze—were the meeting people and the expanding outside permission of Alfred A. Knopf, Inc. places of two worlds. Their institu¬ world. To be thankful that it is no 16 FOREIGN SERVICE JOURNAL, September, 1974 more is not necessarily to deny that it once served a purpose as a mechanism of mediation between “The result is that Taiwan is a favored part of the Japanese-American two very different types of society trading world. Commerce and industry are dominant, and the govern¬ and culture. Nor is it intellectually ment acts as their handmaiden.’’ adequate to denounce the whole era of the unequal treaties as sim¬ ply a century of Western im¬ perialism, meaning by that term phere. The new plants that smog cases Chinese have felt that their aggression, domination, and ex¬ the air of Taipei and clog its traffic laws could not reach American ploitation practiced by foreigners are producing for overseas markets malefactors. In other words, the against Chinese. In such simple in Japan, America, and Europe. In status of forces agreements of re¬ black and white terms the unfold¬ 1973 the Nationalist government cent times have constituted a par¬ ing of events cannot easily be un¬ still had some twenty foreign-aid tial carry-over of the extraterritori¬ derstood. Within the over-all missions at work in Africa, with ality of the treaty period. Quite framework of the Western invasion more than 800 technicians offering aside from the letter of the law, the of the old Chinese empire, succes¬ help in Africa’s development. fact or prestige of being American sive phases and several planes of Cheap but skillful labor and shrewd may sometimes be of use to contact must be analytically distin¬ business management with gov¬ Americans in trouble with local guished in great variety. ernment support are making Chinese courts. It may even be The century from 1842 to 1943 Taiwan a competitor even of Japan reminiscent of the treaty-port era was even more turbulent in China in the markets of more indus¬ that the Chinese government on than in the world at large. It saw trialized countries. Economic Taiwan is often a willing col¬ the end of the imperial monarchy growth through this corporate en¬ laborator with foreign activities and the Confucian social order. terprise produces great disparities there. The result is not a con¬ Party dictatorship eventually came of income in the midst of a rising dominium, but at least there is to supplant dynastic family rule. Gross National Product, yet social cooperation in a Sino-foreign in¬ Today imperial Confucianism has services and agrarian development stitutional set-up. This might seem given way to the Maoist exegesis of programs are also advancing, with like normal modern relations were Marxism-Leninism. During this the result that the average Chinese it not for the great sensitivity to long era of China’s demoralization, living standard on Taiwan is higher foreign influence so widespread on decline, subjection, and rebirth, than on the mainland. the mainland of China. the treaty system changed shape as All this growth is, of course, Again, just as the treaty port ex¬ the means to accommodate foreign connected with foreign finance and isted primarily for purposes of contact. Beginning as a basis for enterprise as well as Chinese, in trade, Taiwan is remarkable today trade it soon became a basis, even various forms of economic partner¬ for the 40 percent or so of its GNP more, for property holding and ship. One result is that Taiwan, represented by its foreign trade. In corporate enterprise in China. But like a treaty port, seems to be a some years its trade has been current studies are making clear place attached to the foreign world; greater than that of all the main¬ that its operation involved Chinese and the foreign presence and influ¬ land. Where the international as much as foreigners. The foreign ence, both the American and the settlement at Shanghai, or the trader in the treaty port soon found Japanese, bulk rather large. foreign-concession areas in other that his Chinese comprador had to In addition, Taiwan, like the treaty ports of old, gave the foreign handle his firm’s local operations. treaty ports, has a mixture of merchant his special sense of se¬ Out of the foreign trade emerged a sovereignties. There is no question curity and opportunity, today on new Chinese merchant class as that Taiwan is Chinese territory, Taiwan the government has given well as the great port cities of not a colonial domain of any foreigners special free-trade areas Shanghai, Canton, Tientsin, Wu¬ foreign power. China’s sovereignty where they can import, process, han, Dairen in Southern Manchur¬ is acknowledged by treaty, and the and export materials, free of tax, ia (as the Japanese called it), and treaties today are no longer in the among other inducements catering most of the other centers of new unequal form that used to give the to foreign enterprise. The result is trade and industry. In time, treaty foreigners special privileges. Yet in that Taiwan is a favored part of the ports became the urban centers fact the foreigners—in this case, Japanese-American trading world. both for Chinese reformist thinking the Americans—do have special in¬ Commerce and industry are dom¬ and for nationalist sentiment and, fluence. For example, by the inant, and the government acts as soon afterward, the havens for Mutual Security Treaty of 1954, their handmaiden. This helps to China’s revolutionaries. Canton, there have been American troops account for the industrial prosper¬ Shanghai, and Wuhan are promi¬ stationed on Chinese soil in ity and development of the island, nent in the histories of both the Taiwan, and in the usual fashion on quite a different scale and basis Kuomintang and the Chinese they have been under the im¬ than on the Chinese mainland. Communist Party. mediate command of their own The secret of the treaty-port (and Taiwan today is thoroughly in¬ military, subject to American of Taiwan’s) economic develop¬ terconnected with the world of jurisdiction. Chinese sovereignty ment lay in the combination of trade and higher technology that is has been less impaired than before, foreign capital and technology with now expanding so explosively but the American military have had Chinese skilled labor and merchant throughout the northern hemis¬ their rights, and in some criminal enterprise. A full century and a half FOREIGN SERVICE JOURNAL, September, 1974 17 historical forces nevertheless con¬ tinue to operate. Taiwan today is “The old Chinese culture is dealt a blow, while the international cul¬ the latest manifestation of Ameri¬ ture receives a Chinese input. But there is little doubt of the dynamism can “intervention” in Chinese life, of the hybrid society.” yet this intervention is also a man¬ ifestation of the spread of “West¬ ern civilization.” The essence of modern East Asian history is that ago at Canton, young John P. sweeps up many enterprising Western civilization has intervened Cushing of Boston helped the lead¬ young people, who go in for West¬ in Chinese life and thereby pro¬ ing Hong merchant, Howqua, to ern styles and the latest vogue in duced a great cultural-historical invest in international trade; later music and entertainment. A soci¬ fault line conducive to political the Boston firm of Russell and ety of mixed culture is no doubt earthquakes. In Taiwan today we Company put some of Howqua’s always distasteful to many of its are sitting on this fault line. investments into American rail¬ participants. Let us put this another way. The ways. Today on Taiwan the The cultural ambivalence of a year 1972 was a turning point in multi-national corporations head¬ treaty port made it a sink of ini¬ Chinese-American relations, but as quartered in America and Japan quity and opened the door for pure with so many turning points wel¬ are securing skilled Chinese par¬ opportunists and careerists of all comed at the time, it is not yet sure ticipation in their growth. kinds, both foreign and Chinese. where we are headed on our new Back of the economic growth in Prostitution was only the most ob¬ course. Two major tendencies are the treaty port centers of Sino- vious symptom of the resulting at work, perhaps at cross-pur- foreign cooperation lay the confusion of morals, the triumph of poses. One is the American desire guaranty of property rights through commercialism as the commonest to continue a rewarding trade and maintenance of law and order, bond between cultures. Aesthetics contact with Taiwan, the other is backed by military force. The suffer in this cultural confusion. our readiness to acknowledge the foreign gunboat concretized this Chinese taste in street signs in integrity of the new Chinese realm. guaranty, reminding local officials present-day Taipei is an offshoot of We seek both old and new benefits, and patriots of China’s defeat by Broadway, Los Angeles, and adding the new to the old, but un¬ foreign firepower, whether it was Tokyo. The old Chinese culture is able to dispense with either one. in 1842, 1860, 1885, 1895, or 1900. dealt a blow, while the interna¬ Note the ambivalence of our Representing the international tional culture receives a Chinese record. In 1945 the United States trading system imposed upon input. But there is little doubt of confronted a civil war in China and China by force, gunboats sym¬ the dynamism of the hybrid soci¬ Ambassador Hurley chose to sup¬ bolized the threat of a further use ety. port Chiang Kai-shek. We later of force to uphold the principles of tried to disengage, but the Korean the international community. The Latent Issue War led to our military guarantee Today, the American military on One cannot talk to foreign-policy of Taiwan, which in 1973 we still Taiwan represent the Mutual Se¬ makers in Peking and Taipei with¬ maintain. Now we are again in curity Treaty of 1954, which pro¬ out concluding that the Taiwan touch with the Chinese Communist vides an American guaranty to de¬ issue is not dead but only dormant. leadership and are seeking gradu¬ fend the island against an at¬ Since we are party to this issue, we ally to normalize our relations with tempted takeover by force from shall have to face it sometime. In the People’s Republic. The myth any source. the Nixon-Chou Shanghai com¬ maintained for over two decades in The end result of the joint munique of February 1972, we Taipei that the Nationalists are the economic growth is, of course, an acknowledged and did not chal¬ rightful government of the main¬ institutional growth and an assimi¬ lenge “that all Chinese on either land has now been supplanted by lation of Taiwan to the culture of side of the Taiwan Strait maintain the more potent myth asserted in the international trading powers. there is but one China and that Peking, that Taiwan is a province The influx of foreign products and Taiwan is a part of China.’’ Yet we of a single China. But two themes foreign amusements, foreign adver¬ continued to deal with Taipei as a have run through the 28 years since tising and commercialism, are separate government while de¬ 1945: the theme of Taiwan’s par¬ marked features of Taiwan today. veloping contact with Peking. How ticipation in the international trad¬ Just as the Victorian traveler could far can we go in this two-faced ing world and the theme of the feel somewhat at home in Shanghai fashion before we run counter to unity of the great revolutionary of the 1880s, so the American the unending force of Chinese Chinese nation. Our peaceful fu¬ businessman will find a Hilton nationalism? The American effort ture with China will depend on how Hotel, a Hertz Rent-a-Car, and to counter Vietnamese nationalism well these two themes can be har¬ other familiar amenities in Taipei. with bombs and other devices has monized. The influx of the commercial cul¬ not been helpful to us. Can we The new Chinese nation is ture may be resented all the more avoid some future showdown be¬ rapidly coming out into the world. by Chinese patriots because it tween Chinese nationalism and Prime Minister Chou En-lai’s comes from abroad rather than American “honor” over Taiwan? junior colleagues, like Ambassador being generated, as in America, by As China watchers learned in the Huang Hua at the United Nations one’s fellow-countrymen. Never¬ late 1940s, messengers reporting and Vice Minister for Foreign Af¬ theless, the commercial economy bad news may be denounced, but fairs Ch’iao Kuan-hua, who has led 18 FOREIGN SERVICE JOURNAL, September, 1974 the Chinese delegation there, are making their presence felt. Groups of athletes, doctors, scientists, journalists, scholars, and all sorts “Even allowing for that besetting sin of historians—to give weight to of technical specialists shuttle back the continuity of tradition—I believe any view of the last century of and forth between the two coun¬ China’s foreign relations will indicate the continued strength of the tries. Representatives of Wall interests and practices now evident on the island of Taiwan. Having Street visit Peking while Chinese been detached by nature long ago, though an undoubted part of the acrobats tour New York. Yet at Chinese realm, it still functions as a meeting place between China and the same time more American the outside world.” banks are opening Taipei offices and American firms are assembling television sets in Taiwan for the American market in an effort to compete with Sony and Panasonic. Toward Taipei and Peking today weight to the continuity of We seem to be trying to move in this dualism still continues. tradition—I believe any view of the two directions at once. Gunboat diplomacy asserted our last century of China’s foreign rela¬ The Nixon-Chou communique way of doing things; it demanded tions will indicate the continued of February 1972 stated that the re¬ contact on our terms, principally strength of the interests and prac¬ lationship of Taiwan to the main¬ the opportunity for trade but also tices now evident on the island of land is for the Chinese to decide, for travel, evangelism, and Chris¬ Taiwan. Having been detached by but how can we avoid contributing tian good works. Although Britain nature long ago, though an un¬ our part to the decision? Look at fought the Opium War, the United doubted part of the Chinese realm, the Japanese example. We snubbed States got its share of the unequal it still functions as a meeting place them in early 1972 by the surprise treaty system that resulted. The between China and the outside announcement of President national integrity of China emerged world. In this respect, of course, it Nixon’s visit to Peking, but they as a formal American policy in compares with Hong Kong, which jumped ahead of us in September John Hay’s second Open Door cir¬ is actually under a foreign sov¬ by recognizing Peking so as to cular of 1900. The original idea of ereignty and yet functions on the normalize their relations with preserving China’s territorial and fringe of China in ways useful to China. Japan ceased to have dip¬ administrative entity had been im¬ both sides. lomatic contact with Taiwan, yet in plicit in the British idea of the Open The problematic aspect of Taipei the same breath, in both Tokyo and Door for trade, but gradually this is not its trade so much as the ques¬ Taipei, there were established in¬ evolved into American support for tion of its sovereignty. The formula formal peoples’ associations China’s becoming a modern that there is only one China and staffed by former diplomats to nation-state, rather than being Taiwan is a province of China has carry on the minimal consular func¬ swallowed into the East Asian em¬ thus far served the Nationalist tions, so that trade and contact in pire of another power, whether government as a useful device for fact still continue. Is this a prece¬ British, Russian, or Japanese. Our maintaining itself as a government dent we can follow? If we try to do support rested on a strategic in¬ of China in exile superimposed so, what becomes of our mutual- stinct that we should oppose any upon all of one province (Taiwan) security treaty with Taiwan? Many other power’s monolithic domina¬ and part of another; the other prov¬ other questions lurk beneath the tion of East Asia just as we did of ince is Fukien and the parts of it surface euphoria of our new rela¬ Europe. Latter-day successors of are the island strongholds on tions with Peking. These questions these two motifs—trade and con¬ Quemoy outside Amoy and Matsu will not go away because they are tact on our terms and China’s na¬ farther outside Foochow. The legal in the nature of things, bequeathed tional unity—still underlie Chi¬ fiction that the Nationalist gov¬ us by history and not to be wished nese-American relations, even ernment of China is still engaged in away or axed out of our path by though the scene has often been civil war has made it possible for sudden pronouncements. confused by ideological concerns martial law to continue and the over imperialism, communism, Taiwan garrison command to main¬ The twin-motifs of US-China relations nationalism, and self-determina¬ tain its security control while the The historical roots of our tion. government in Taipei provides Taiwan problem can be analyzed Since with all its inadequacies sinecures for aging mainlanders. under the two headings of the Taiwan is a going concern, it is The Taiwan provincial government Taiwan trade and Chinese unity. hard to see how pressure from Pe¬ at Taichung has had a rather re¬ We did not invent either one, but king could destroy its trade, sup¬ stricted sphere of operation. The now we are caught between them. posing this were desired. Even if continued existence of the This ambivalence has always un¬ Tokyo should yield to a Peking Nationalist government in Taipei derlain the American approach to demand and cut off Japanese trade, in effect continues the Chinese China, though usually we have which seems unlikely, the fi¬ civil war. The cessation of civil war overlooked it. From the 1840s to nancial-commercial relations of could be symbolized by the with¬ the 1940s our China policy had two Taiwan and Japan could continue drawal of the offshore island garri¬ cognate motifs: gunboat diplomacy through third parties and in other son from Quemoy. But Peking and (for trade and contact) and the na¬ markets. Even allowing for that be¬ Taipei have a common interest tional integrity (or unity) of China. setting sin of historians—to give here, for a Nationalist withdrawal FOREIGN SERVICE JOURNAL, September, 1974 19 to the single province of Taiwan rapprochement with Peking. chief aim is political, or perhaps might lend plausibility to the idea This is no accident, for the unity one should say diplomatic: to en¬ of Taiwan’s independence from of China is not merely the patriotic compass the end of the Nationalist China. Ostensibly Peking’s pro¬ sentiment of a new Chinese government as an international gram, as evident in the United Na¬ nationalism, but in addition lies agency with embassies abroad; in tions, must be aimed at denounc¬ close to the heart of the Chinese short, to create a situation in which ing, reducing, and destroying the political myth of the state. The ex¬ the regime on Taiwan claims no Nationalist claim to sovereign pediency of unity, of course, lies in more than to be a province of the power over all China. But this the fact that it means no civil war; China that heads up in Peking. claim has been eroded by time and the sanction for Chinese unifiers of This would signalize the end of the circumstance. While a formal re¬ the past has always been that they civil war and open a way toward a nunciation of it is perhaps too brought peace. Thus this is one of relationship between Taipei and much to expect, a mere declaration the oldest active political concepts Peking of mutual advantage to both from Taipei that the regime is rul¬ in the world, with a lineal descent sides. While these formulations by ing only its presently held territory of more than 2,000 years of practi¬ an outside and distant observer might be enough to create a new cal politics in the Chinese subcon¬ may seem quite inadequate to the situation. tinent. Even in the centuries of the parties involved, the fact remains For Americans the main pitfall in Warring States, before the unifica¬ that neither the island nor the main¬ the Chinese scene is the idea of tion of 221 B.C., the Chinese politi¬ land is going to disappear nor cease self-determination and Taiwan’s cal order was conceived as headed to be concerned each about the independence. Viewed from the by the ruling house of Chou. The other. great distance of the American unification by the First Emperor in Middle West, one might assume 221 B.C. thus invoked an ancient THE TRAP yawning before the that an island people who have not idea of monarchy but gave it new United States is that our continued been under mainland jurisdiction institutional expression in a cen¬ expansion of economic relations for almost eighty years, and have a tralized imperial government. with Taiwan may lead us on toward quite independent economic and Thereafter the great dynasties of support of a movement to assert political existence, could well lay Han, T’ang, Sung, Yuan, Ming, Taiwan’s sovereign independence claim to being a separate nation. and Ch’ing all gave expression to from the rest of China. This would The facts of the matter at first the ideal of unity and reaped its al¬ turn the clock back and close the glance seem to offer every support leged benefits. The unity in ques¬ Nixon opening toward Peking. We for a projection of this natural tion was that of the Chinese realm, may argue that American participa¬ American concept. Taiwan is such including its people, territory, tion in the economic growth of a natural spot for the invocation of economy, polity, and culture, even Taiwan is part of the worldwide Wilsonian ideals! Yet, as President when the ruling house, as under the industrial-technological explosion Wilson found to his dismay in 1919, Mongols and Manchus of the Yuan of our times, as valid a fact of his¬ Western concepts do not apply au¬ and Ch’ing periods, was from tory as the rise of Chinese tomatically to East Asia. non-Chinese peoples. In effect, no nationalism. Yet nationalism is a The concept of the unity of country has had a stronger tradi¬ more durable fact, a long-term China has been supported for the tional basis for a modem sentiment motivation of peoples where they last half-century or more by Chiang of nationalism. It is only in the light live, not just a matter of business Kai-shek, as a main expression of of this sentiment that one can ac¬ calculation and investment from his patriotic devotion. Having put count today for the cohesion of abroad. Any intervention by us national unification decidedly 800,000,000 people under one re¬ against nationalism in East Asia is ahead of social revolution in the gime. For us to counter the idea of likely to be less and less rewarding 1920s, he lived his historical career the unity of China is, to say the as time goes on. Our problem is as its exponent. He could not least, counterindicated. how to reduce rather than expand abandon the concept on Taiwan. Our salvation in confronting the our political-military commitment As a consequence, an island re¬ complexities of the Taiwan ques¬ in Taiwan. To accomplish such a gime that might conceivably in the tion may lie in distinguishing two feat we must help devise some suc¬ 1950s have gained ready accep¬ levels, those of political concept cessor situation to our present se¬ tance as a nation in the United Na¬ and economic fact. The aims and curity treaty. It can be renounced tions has consistently taken the interests of Peking and Taipei we in proportion as some equivalent opposite tack to claim that Taiwan may hope are somewhat differently basis for stability can be found to is part of China. For two decades focused on these two levels. For take its place; for example, a uni¬ this concept helped to keep the Taipei the essential goal, we may lateral statement from Peking that Americans at odds with the imagine, is to maintain the integrity Taiwan’s status is a domestic polit¬ People’s Republic, but in the new of the island as an economic con¬ ical matter not soluble by force (as deal of 1972 it finally worked to cern administered on its present Chou En-lai has already indicated), Mr. Nixon’s advantage, and he lines and not controlled by a se¬ followed by a statement from could implicitly concur that there is curity system from the mainland. Washington that this Peking policy but one China and Taiwan is a The claim to be a separate govern¬ is applauded and the 1954 treaty is province of it. This acknowledg¬ ment is a means to preserving the being given up, though the United ment of the unity of China has got present socio-economic order States of course will feel free to us off the hook for the moment, at rather than an end in itself. For change its policy if the Peking pol¬ least, and is the chief basis for the Peking we may imagine that the icy should change. ■ 20 FOREIGN SERVICE JOURNAL, September, 1974 MURPHY COMMISSION Ambassador Murphy says that foreign policy. (Over sixty agen¬ from page 15 this Commission, with legislative cies in Washington have overseas in the constructive moral forces of support, is determined to be effec¬ interests.) his country. tive. Some studies have concen¬ The second series of these con¬ This summer marks the halfway trated on the lessons to be learned current studies concerns itself with point in the work of the Commis¬ from these previous reports; others many of the issues which have sion, and Ambassador Murphy have analyzed the organizational dominated the foreign policy deci¬ says that it is well within its changes adopted by other Western sions of the United States during schedule. Preliminary hearings democracies, for the United States the past five years, as well as those have been held with State, USIA, is not alone in facing political disil¬ that concern the present and the AID, AC DA and the Peace lusionment and governmental foreseeable future. These are ex¬ Corps, as well as with the Depart¬ frustration. Another study in this amined, not for substance, but to ments of Defense, Treasury, series is attempting, for the first determine how and why such deci¬ Commerce, and the Central Intel¬ time, to identify the characteristics sions were adopted. Some of these ligence Agency. Members of the of an efficient system for the con¬ studies explore in depth actual NSC, CIEP, and OMB from the duct of foreign affairs, and to out¬ major policy decisions, distinguish¬ Office of the President have ap¬ line alternative methods of opera¬ ing between those of routine or peared before the Commission. tion such as “a strong State, or a crises nature, estimating the degree Expressions of opinion from many strong White House” approach. of success and failure, and measur¬ organizations in the private sector Still another differentiates between ing the quality and quantity of input involved with foreign affairs have policy decisions made below the in each instance. Other studies, been sought and obtained: AFSA’s top echelon of government and using the same criteria, explore the views have been put forward on an those made at the very top, which role of the United States in such individual basis and will be pre¬ necessarily reflect the decision¬ troubled international areas as the sented, as an organization, at a making styles of the individuals at environment, international arms later date. Other agencies and de¬ the pinnacle of the power pyramid. control, the Law of the Sea, the partments of the government which A very detailed study appraises the control of limited natural resources have less substantial interest in relevancy, value, and disposition and the role of multinationals. foreign policy such as NASA, of the generally routine work which The Staff of the Commission, AEC, Justice, etc., have attended absorbs most of the energies of the now numbering about sixteen pro¬ hearings or submitted reports. vast mechanism for processing fessionals, has been selected for Chiefs of Mission and former Chiefs of Mission, career and polit¬ ical, have been asked for com¬ ments and many useful ideas have been sent in by them. The months of April, May, June, How the American and July were spent with the Legis¬ lative branch whose initiative intellectual left tried- created the Commission. The Statement of Objectives of the and failed-to influence Commission stresses that “The role of the Congress is critical in both the formulation and im¬ public opinion plementation of foreign policy.” The mandate of the Commission on Vietnam provides an opportunity to study how the Legislative branch, with its committee system, operates in the area of foreign affairs. At the THE LONG DARK same time, interest on the Hill in the reorganization of the Executive is beneficial to the Commission. NIGHT OF THE SOUL Two parallel series of studies By Sandy Vogelgesang. This incisive new book have occupied the Murphy Com¬ examines what such writers as Chomsky, Mailer, mission in its year and a half of in¬ Sontag, McCarthy, and Podhoretz thought and tense activity. One group of studies wrote about the war in Vietnam in the pages of is concerned with insuring that the the New Republic, Partisan Review, New York Review of final recommendations of the Books and Studies on the Left. In tracing their challenge to Commission scheduled for July of official “morality” and grassroots politics, the author, a member 1975 lead to concrete results. of the State Department, has provided a significant new (Since 1945 there have been more perspective on intellectual protest as a whole. than eighty significant official at¬ tempts to unclog different parts of -f^- Harper &) Row $8.95 at bookstores the assembly line of the foreign af¬ _l 10 E. 53rd St.. New Vor* 10022 fairs machinery in Washington.) 1817 FOREIGN SERVICE JOURNAL, September, 1974 21 experience and background in gov¬ Be Wise Shop Riverside ernment and foreign affairs. It is AUTHORIZED EXPORTER headed by the Dean Emeritus of the Johns Hopkins School of Ad¬ GENERAL ^ ELECTRIC Liquor vanced International Studies, Francis O. Willcox, and by FSO -US4- Discounts Fisher Howe. Former Virginia Senator William B. Spong is its Refrigerators • Freezers • Ranges FOREIGN SERVICE MEMBERS General Counsel. 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Better use should be made allowances, you will find some valuable of the professional skills of the men tips on etiquette in service and women of the Foreign Service, make the difference and the importance of traditional for years we’ve given the diplomacy should be recognized. military and civil service The Ambassador defines tradi¬ Free Checking Copyrighted tional diplomacy in a typically Accounts “Federal Eagle" pragmatic way: it is pursuing the Checks Guaranteed national objectives of one’s coun¬ A World-Wide Overdraft try by any and all means at hand, Protection Total Banking Service Based whether bilateral, multilateral, or Upon Mutual unilateral, while at the same time Trust maintaining a perception of the na¬ Loans at Preferred Rates— Instant Approval—Unrestricted tional objectives of other countries Movement of Collateral which are bound to vary from our Around the Globe own. Now UniBank is offering the same There really is nothing new to Personalized, Red-Tape-Free ser¬ this experienced diplomat either vices to Career Foreign Service about the power schisms or the An introduction to foreign service life for Personnel the student contemplating the career, a bruised egos which currently de¬ chuckle for friends and relatives back home, GET THE FACTS — bilitate Washington. He has served this 64-page book is only $1.00 from: CALL OR SEND THE COUPON TODAY! under strong and weak Presidents, and for strong and weak Sec¬ American Foreign Service Assn. Rank Rating Name retaries of State. He has seen the Dept. L, 2101 E St., N.W. Foreign Service and the Secretary Washington, D. C. 20037 Address of State bypassed in the decision¬ Please send copies of Life and Love making process, and he has been in the Foreign Service at $1.00 per copy to: Zip Code embarrassed by learning first from UNIVERSITY NATIONAL BANK Name College Park, Md 20740 • (301) 779-6700 allies what transpired in Washing¬ ton. He has been privy to secret Address 22 FOREIGN SERVICE JOURNAL, September, 1974 negotiations of the most critical na¬ Ambassador is heartened and im¬ Kremlin. ture. He has fought against a policy pressed by the level of interest and With the irony characteristic of position which he believed wrong information which the American his long perspective on foreign af¬ with every bit of influence he could public now has—a new and effec¬ fairs, Ambassador Murphy thinks muster, and when he lost the fight, tive ingredient in the policy making that the energy crises (if capable of he remained en poste to carry out process. solution) will be a force for good. It the directives which he opposed. Ambassador Murphy has dealt will have been dramatic and painful He has been underpaid and under¬ with Russians in close contact. To proof to the American people and staffed. He has been GLOPPED him detente is not a policy unique to their government that domestic and CONED. He has suffered in¬ to this or any other Administration, and foreign issues are inseparable terminable absences from a de¬ but is Lenin’s doctrine of peaceful in this age of increasingly complex voted family. co-existence, first proclaimed in global problems. This, after all, is Ambassador Murphy is well 1921. which directs the USSR to the philosophy behind the inquiry aware of the timeliness of the paper over any differences with of the President’s Commission on Commission’s inquiries as he another country from which it the Organization of the Govern¬ watches the give and take between wants something. This convenient ment for the Conduct of Foreign the chairmen of Congressional long-range doctrine surfaces at ir¬ Affairs. Committees and the Secretary of regular intervals; this time when State, and listens to the troubled Brezhnev dusted it off, the West and acrimonious debate on de¬ called it detente. Ambassador I F FORMULAS can be established to tente. He believes that the system Murphy believes that our policy on make the process of creating and of checks and balances can work such historic occasions should ver¬ implementing foreign policy not better than this, although he under¬ ify what they want, and then use only more effective, but more re¬ stands that the inherent need for thet opportunity to obtain for our sponsive to the will of the people publicity which affects a politician side whatever advantage we can. by fusing the Legislative and the must be balanced with the He stresses in conversation, as he Executive into a mutually respon¬ statesman’s equally inherent need has in his memoirs, “Diplomat sible relationship, Robert D. Mur¬ for discretion in delicate negotia¬ Among Warriors,’’ that no one phy, with the distinguished mem¬ tions. Domestic pressures on an should be vain enough to think that bers of the Commission, is just Administration inevitably affect personal relationships will ever af¬ possibly the one man who might major policy decisions, but the fect basic policy decisions in the bring it off. ■ IOItll<>\ POLICY NUMBER 16, FALL 1974. $2.50 Fast Beyond Detente Foreign Investment Edward M. Kennedy In The United States Japan's Dilemma: John C. Culver To Act Or Not To Act Washington Dateline: relief. Kei Wakaizumi The Story Of A Flap °* , Leslie H. Gelb _ . fS) . Financial headaches are Letters IS THERE A STRATEGIC the worst kind. Fortunately ARMS RACE? (II) you can get rid of them Rivals But No “Race” Albert Wolilstetter easily and quickly Comments: Paul H. Nitze. with a Credit Union loan. Joseph Alsop, Morton H. Halperin & Jeremy J. Stone YOUR STATE DEPARTMENT In Defense FEDERAL CREDIT UNION Of The Defense Budget Philip Odeen SPECIAL TO AES A MEMBERS The Media Room 1827, Department of State And Foreign Policy A two-year subscription to Washington, D.C. 20520 Charles W. Bray FOREIGN POLICY (8 issues) is Telephone 632-3282 available for $15.00, a saving of $5.00 over the newsstand price and $2.00 off the regular CHILE: WHAT WAS subscription rate. THE U.S. ROLE Come in and talk it over, Send checks, stating that you More Than Admitted are an AFSA member, to or send a letter. Elizabeth Farnsworth Foreign Policy Subscription Less Than Charged Dept., 155 Allen Blvd., Farm- Paul E. Sigmund ingdale, N.Y. 11735. FOREIGN SERVICE JOURNAL, September. 1974 23 WAS WOODROW WILSON RIGHT? We are a nation of nations and in¬ European nationalities whose from page 12 extricably involved in the fate of homelands gained independence Numerically there are not many other peoples the world over. through the treaty, such as the Re¬ more democracies now than in This was already wholly clear at public of Czechoslovakia which 1919 (although of the two additions the time Wilson governed, al¬ was formally proclaimed in Pitts¬ to this short list, India and Japan though he does not give the im¬ burgh during those months. This are scarcely insubstantial). Even pression of having understood just was a foretaste of the pressures to so, most of the other regimes dare what forces his principles of self- which American foreign policy not speak of themselves except in determination of nations had set off would be subject in the years of terms of Wilsonian ideals. In other within his own nation. Indeed, he world-power status to come. The words, these ideals—seen widely saw perhaps too many Azerbai¬ reality has exceeded any expecta¬ as American ideals—still establish janis in Paris (one could wish he tions and will in all probability go the internal right to govern, just as, had got to know Ho Chi Minh, who on doing so, for while the matter equally, Wilsonian ideals establish was then busy about the confer¬ has not received much attention, the national right to exist. ence) and perhaps too few Irish in the United States is quietly but Washington. The loss of Irish sup¬ rapidly resuming its role as a nation DOES this not impose a duty? Wil¬ port damaged the prospect of the of first- and second-generation im¬ son would have thought it did. Not Covenant—and scarcely improved migrants, almost the only one of its many do today. Very well, then, the peace treaty, if self- kind in the world, incomparably does it not at the very least make a determination was what it was the largest, and for the first time in certain claim on our calculations supposed to be about. Less noticed our history or any other, a nation —namely, that it is not a circum¬ at the time, the first armed rebell¬ drawn from the entire world. The stance likely to go away, and like it ion (the Ghadar rebellion) against Immigration Act of 1965 drastically or not, it is going to influence, even British rule in India had been altered the shape of American im¬ dictate, a great many things we planned in Stockton, California migration and increased its size. (I shall find ourselves doing, even as among immigrant Sikhs in the early should not be surprised if one-third it does already? The reason for this years of the war, and after aborting of the population increase of the is quite external to the political es¬ in India itself, was prosecuted by United States today consists of chatology of Wilsonianism. It re¬ the American government when first-generation immigrants or their sides, rather, in a political reality the United States entered the war. children.) Our immigrants in for which he had no little distaste: But offsetting these losses was wholly unprecedented proportions that of a multi-ethnic population. the support of all those Central- come from Asia, South America, r STUART & MAURY, Inc. Moving To REALTORS Sales • Rentals • Insurance The Washington Area? Let Town and Country guide the way. Specializing in Residential Properties We’ll send you plete relocation Northwest Washington our complemen¬ services, rental Montgomery County, Maryland tary information housing and prop¬ kit containing lo¬ erty management. 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DERY t/a iSiio'Kjan S>l\a’imacy Realtor 6358 SOUTH TAMIAMI TRAIL, 3001 $ Sheet, % 24 FOREIGN SERVICE JOURNAL, September, 1974 and the Caribbean. (In fiscal year durable, and that is for the United think such influence will much di¬ 1973 the ten top visa-issuing posts States deliberately and consistently minish over the next thirty years or were Manila, Monterrey, Seoul, to bring its influence to bear on be¬ so). Less well-known is the parallel Tijuana, Santo Domingo, Mexico half of those regimes which prom¬ circumstance that the peoples of City, Naples, Guadalajara, To¬ ise the largest degree of personal the world remain extraordinarily ronto, Kingston. I would expect and national liberty. We shall have faithful to Wilsonian ideals, no Bombay to make this top-ten list to do so with prudence, with care. longer much if at all associated before long. By the end of the cen¬ We are granted no license to go with him, but still widely as¬ tury there should be a million looking for trouble, no right to sociated with the United States and Asian Indians in the United meddle. We shall have to continue giving every sign of persisting. States—unless, that is, the Secre¬ to put up with things obnoxious Among these peoples, I count the tary General of the United Nations about which there is nothing we American people: not as an act of is successful with his recent pro¬ can do; and often we may have to piety or wishfulness but rather, and posal that a world-wide system of restrain ourselves where there are assertively, as a fact repeatedly es¬ emigration taxes be established in things we can do. Yet we must play tablished by voting behavior and order, somehow, to benefit the un¬ the hand dealt us: we stand for lib¬ opinion research. Wilson’s photo¬ derdeveloped nations.) erty, for the expansion of liberty. graphs are nowhere to be seen, but In short, by the end of the cen¬ Anything less risks the contraction in the working-class homes of tury, given present trends, the of liberty: our own included. Pittsburgh, in the barrios of United States will be a multi-ethnic Bogota, in the mud villages of nation the like of which even we IT IS NOT likely to be a formally South India, portraits of John F. have never imagined. This means welcomed role. The political elites Kennedy will be found next to the at least one thing. There will be no of most of the world are poison- Sacred Heart of Jesus, or Bolivar, struggle for personal liberty (or na¬ ously anti-American, and will re¬ or, as I have once seen, Gandhi, tional independence or national main so while the spell of Marxism for Kennedy too was in the Wilson survival) anywhere in Europe, in and the British universities—what tradition. It is not the only tradition Asia, in Africa, in Latin America Orwell cited as the “right Left of American foreign policy, and which will not affect American people”—persists. This circum¬ that it can be an aberrant one no politics. In that circumstance, I stance is well known and much one any longer questions. But that would argue that there is only one noted. Our own intellectuals are we lose it at the risk of the ethical course likely to make the internal becoming demoralized, even vic¬ integrity of the nation ought not to strains of consequent conflicts en¬ timized, by it (although I should be questioned either. ■ J The Xicesl Small Hotel In Washington RETURNING TO WASHINGTON? BEING TRANSFERRED ABROAD? Francis Scott Key Hotel Let me know your requirements and I will send you an up-to-date 600 - 20th Street, N.W., Washington, D.C. 20006 • 628-5425 realty analysis without obligation. I believe my Departmental and Mrs. G. L. 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We seem to Yet, in a world which cries out enough. The Bureau’s new head be overburdened with information for the development of institutions should have easy access to the Sec¬ which is incoherent in the which will be able to serve a truly retary and his support for major framework we have created for interdependent community of na¬ new policy initiatives which are ourselves. We keep on fighting in¬ tions, we seem increasingly to be badly needed. There should be a significant battles while the major moving in a direction which at¬ NSC Interdepartmental Group for problems of the age whirl around tempts to destroy not only the in¬ this field since the involvement of us and events seem to be in the terdependence that has grown other agencies is crucial for any ef¬ saddle rather than man. since World War 11, but in effect to fective international program. If we continue along this path move back the clock to that terrible Beyond this there needs to be a surely we will either lose our rele¬ dark period of the ’30s when each new orientation and emphasis by vance to this day and age, and the country attempted to gain its own the Department’s principals so that area of responsibility which nor¬ particular advantage and thereby Foreign Service officers can be mally is ours shall be taken from us brought a new age of destruction. more assured of recognition and by other institutions. And it should The question thus arises as to support if they follow a course justly be so. On the other hand, if whether this Foreign Service, in aimed at solving some of these new we can master events, if we can this age, can respond to these new problems. We should also be even change our own orientation, our global challenges. As one looks more liberal with our training pro¬ own structures, perhaps we can around one can only be pessimistic grams so as to strengthen our intel¬ become again the creators of a bet¬ and feel that indeed we seem to still lectual depth—vital to any leader¬ ter age, and count ourselves among be fighting the old wars, tilting at ship role in such complex areas. the leaders of a country that looks the old windmills, and never able to Finally we may have to look at the forward to the next century and to grasp fully the changes that are tak¬ structure of the Department and a very different kind of world than ing place around us. ask if it serves competently a pol¬ has existed up to now. ■ Calvert The school that comes to your child Complete home-study course for elementary-level students. Kindergarten through 8th grade. An American education anywhere in the world. Ideal for enrichment. Home is the classroom, you are the teacher with Calvert's approved instruction guide. 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At Department’s chronic inability—or the same time, he was an avid unwillingness—to keep American reader—a bibliophile, no less—and consular and diplomatic officers hence possessed a thoughtful, cul¬ promptly and fully informed; in¬ tured outlook, his mind constantly ternment in Japan, its severity A Tour de Memoire stimulated and recharged, his per¬ tempered by the judicious expendi¬ AMBASSSADOR FROM THE PRAIRIE, or spective kept alert and elastic, and ture prior thereto of representation Allison Wonderland, by John M. Alli¬ therefore offering no hospitality for funds on police; our London em¬ son. Houghton Mifflin, $7.95. myths, preconceived notions, bassy during the war; Allison's and cronyisms and false preoccupa¬ his wife’s counter-thrusts against A REMARKABLE QUALITY of John tions with assignments and promo¬ McCarthyism (of which less in¬ M. Allison’s memoir is its fascinat¬ tions, all of which victimized so formed critics of our diplomatic es¬ ing blend of insights into American many Foreign Service officers. tablishment may well take note); character with insights into Ameri¬ Background and reading, in turn, his service in the Department hav¬ can diplomacy. It is a kind of Jacob bred a diversity of interests and ing to do with Far Eastern affairs, Riis or Edward W. Bok memoir in contacts, which made Allison as including the Korean War, drafting American diplomacy, simply told much at home with students and and negotiation of the Japanese but with endless light and shadow teachers, police and peasants, as peace treaty and development of upon everything Americans have with businessmen, government of¬ our Pacific security pacts (which tried to do in the world and particu¬ ficials and military officers and, many Americans, among them a larly in Asia where so much of our again, enriched his experience and distinguished retired colleague effort—private and public—has thinking, making him adaptable to whose recent book betrayed an ig¬ been expended to ease the lot of whatever and whomever came norance of this, will discover, were the unfortunate and insist upon fair along. From the beginning he was not a psychosomatic response to a play among the Powers. Like a as active outside his office, includ¬ containment obsession or a projec¬ many-mirrored sconce, it throws ing weekend hiking through the tion of John Foster Dulles’s legal more illumination on this country countryside, as within it. logic); and the trials of an Ameri¬ and its diplomacy, the character of The cordon consulaire et dip¬ can ambassador to Japan and In¬ the Foreign Service, the ways of lomatique never had a chance with donesia who, although an expert on the State Department and the in¬ him. Finally, he did not enter the Asia, had to contend with an in¬ fluences to which both are sub¬ Foreign Service fresh from college. credibly arrogant State Depart¬ jected than normally issues from Having some inclination for both ment summit in league with a CIA the candle of a single officer. To the teaching and publishing worlds chief who knew nothing of Asia the truly distinctive full-length and having taught in Japan and rep¬ and a career colleague notorious memoirs of career colleagues, be¬ resented General Motors as its ad¬ for his back-stabbing proclivity. ginning with Willard Beaulac’s in vertising manager in China before A lot of things happen quietly in 1951 and continuing through gravitating to the Service, he had a diplomatic establishment which Joseph C. Grew’s, Robert other interests and possible careers makes it difficult for outsiders or Murphy’s, George Kennan’s and to fall back upon and, as John briefly acquainted short-term resi¬ Charles E. Bohlen’s, this one must Tuthill once pointed out in these dents to judge it and its officers ac¬ be added—a clear-flamed, straight¬ pages, these nurture an indepen¬ curately. To such people one forward account of a versatile, re¬ dence of mind, initiative and cour¬ warmly commends this book. And sourceful, down-to-earth, cultured age. All of this may also explain to the current Commission on the team player who possessed real why the Allisons never suffer, as Organization of the Government leadership quality and capability of junior officers, the frustrations of for the Conduct of Foreign Policy, meeting not only the demanding so many of their peers who feel which seems busily preoccupied requirements of Department and downgraded and left out of “the ac¬ with tired old issues of organization Service but of Presidents, Con¬ tion.” The Allisons are too busy per se. It would be reminded that gressmen and public as well. doing, observing, analyzing and organization is not as important as Having received his commission learning, to feel left out. the people in it and hence the ques¬ in 1932, Allison had to effect the And so in this volume we have tion of people holds the key to transition from the old to an activ¬ fascinating accounts of the series of many problems of organization it¬ ist Service and he emerged as one chance encounters in Japan and self. Memoirs like this are what of those officers who was far more China which led Allison to the AFSA activists should be reading, than the usual suave, superficial, Foreign Service and preparation too, and ruminating over as they period piece able to go through for the Service examinations search for basic problems for, only the motions of adaptation. (which in those days required some however pressing bread-and-butter One asks himself what there was in professional familiarity with such questions and personnel grievances background and mentality which subjects as international law and may appear, these are but symp¬ enabled him to do this, avoiding the diplomatic practice); early tours of toms of causes which AFSA’s doc¬ prevailing parochialisms, guild duty in Japan and China, where he toring to date has failed to reach loyalties and defense mechanisms. received his baptism in war and and are frustrating the achievement First, I think, was the fact that crisis diplomacy as the Japanese of the highest quality of profes¬ he came from an unpretentious, military machine bombed and sional diplomatic performance. democratic, up-and-doing mid¬ flamed its way forward on the —SMITH SIMPSON FOREION SERVICE JOURNAL, September, 1974 27 much better or worse than the many charming vignettes and LETTERS TO | average the officer is doing his as¬ stories of behind-the-scene happen¬ signed task. A numerical system of ings. rating may seem oversimplified, It is a well-written description of Making A Touch but it would cut out a lot of the un¬ the life of a Foreign Service officer necessary and often unobjective from the bottom of the diplomatic ■ In the June issue of the Depart¬ verbiage that panels are forced to ladder to the Ambassadorial rung. ment of State NEWSLETTER the Di¬ wade through each year. The fact I believe “The Lyon’s Share” rector General speaks directly to that each year brings forth a new would be of much interest and the heart of the Efficiency Report batch of almost unbelievable value to all young officers just problem (perhaps unwittingly) quotes from efficiency reports starting out, and it will certainly when he summarized his three col¬ should be an indication that a nar¬ give pleasure to many in all ranks umns of comment with the follow¬ rative system has severe limita¬ of the Service. ing statement: tions. MRS. BURGEVIN EGAN “ If you report frankly, with percep¬ The aim should be to minimize New York tion, care, intellectual sweat and a the amount of material a panel has touch of eloquence, you can earn your Negotiating One’s Way to the F.O. subordinate an honest promotion." to consider, however recent trends This is so true, but in essence have been in the opposite direc¬ ■ I was appalled to read, in the what the Director General has said tion. Let’s face it, it is humanly im¬ July JOURNAL, that the Asso¬ is that a rated officer not only possible for a panel to objectively ciation’s President had sent a letter needs to put in a good year’s work, rank order 200 or 300 files, espe¬ to Senator Fulbright protesting the but he needs also have a supervisor cially when they must depend on Administration’s nomination of that is a Superman with a pen. The that “touch of eloquence” to do Stanton D. Anderson as Am¬ rated officer need not only work the job. bassador to Costa Rica on the hard and be superior in every way, AFSA should lead the way in grounds of alleged lack of experi¬ he also needs a boss who can pro¬ seeking out new and imaginative ence. Since the letter indicated that vide that “touch of eloquence” ways of rating officers. Let's stop it represented the views of AFSA that is required if the panels are to putting new patches on the same members, let me assure you that it take notice of the report. tired old system that has proven does not represent mine. Bluntly, 1 Eloquence is far too often a fac¬ unequal to the task time and time don’t think it is AFSA’s business tor in the rating process. We need again. I believe some very imagina¬ to set itself up as a judge of indi¬ only look to the findings of the so¬ tive programs would be submitted vidual Ambassadorial nomina¬ cial scientists and the work of the by FS officers if they were asked to tions. semanticists to learn that we tread do so. I don’t know Mr. Anderson at on dangerous ground when we de¬ ROBERT A. POWERS all. He may be the best or the worst pend so much on the nuances of the Guadalajara personnel choice for the Foreign English language to sift and sort in Service since Benjamin Franklin. rank order the performances of all Kudos to FSJ . . . My guess is that his qualifications, of the officers in a given class. The ■ “The Question of Commit¬ like those of the rest of us, lie lessons of these specialists should ment” by Louis Halle (FSJ 6/74) is somewhere in between. tell us that the last element we want just the kind of thing I have always But this isn’t the point. The in the rating process is that “touch longed to see in the JOURNAL. question is: by what right does the of eloquence.” What we really Halle is always worth reading, and Association set itself up as the need to do is to limit the vocabu¬ this was certainly no exception. judge of potential Ambassadors? lary of the rating officer to Congratulations on whoever de¬ Your letter to Senator Fulbright straightforward, easily understood cided to include it. says that it “represents the views English whose meaning will neither DALLAS JONES of the American Foreign Service be added to or detracted from in Bethesda Association.” Where in the the evaluation process. Association’s rulebook does it say I will'not go on in this forum to ... and to Cecil Lyon that it has the collective right to articulate in detail what I think is ■ I have just read “The Lyon’s represent the membership on this needed to have a more objective Share” by Cecil B. Lyon, pub¬ question? And what kind of con¬ Efficiency Report system, but it lished by Vantage Press. I have sensus was taken to indicate that does seem obvious to me that the found this book, written by a dis¬ anybody outside of the AFSA of¬ more narrative reporting we crank tinguished Foreign Service officer fice thinks that Mr. Anderson is or into the system, the less objective and Ambassador, extremely in¬ is not qualified? No one bothered and accurate will be the result. teresting and informative. The to contact me on the issue. My re¬ Narrative reporting would be bet¬ thought occurred to me that it sponse would have been to suggest ter used to explain the exception¬ might well be suggested reading for that the initiators of the survey ally high or exceptionally low rat¬ young diplomats going into the were unqualified to represent me. ing, but not to rate every officer in field. Ambassador Lyon gives a Is this the beginning of a process a class. vivid and clear picture of many im¬ whereby AFSA tries to judge The real question is whether the portant events and crises in our every Presidential nominee as officer is doing the job he’s being nation’s diplomatic history. He has Ambassadors, as State or other paid to do. From that point it be¬ managed at the same time to give foreign-agency officials or as comes a matter of degree as to how his book a light touch and there are Foreign Service officers? Who de- 28 FOREIGN SERVICE JOURNAL, September, 1974 The Board of Directors of the ASSOCIATION OF AMERICAN FOREIGN SERVICE WOMEN and AMERICAN FOREIGN SERVICE ASSOCIATION announce the continued sponsorship for 1974-1975 of the FOREIGN SERVICE EDUCATIONAL AND COUNSELING CENTER The Center continues the services offered since 1958 through AFSA’s consultant in education and youth concerns. Additional new services related to education or personal concerns are now avail¬ able. either directly or through coordination with other agencies. Inquiries are invited. 2101 E STREET, N.W. • WASHINGTON, D. C. 20037 • (202) 338-4045 FOREIGN SERVICE JOURNAL, September, 1974 29 cided that the fact that Mr. creasing number of FSOs receive vice” (Consular Cone); a separate Anderson’s Spanish is not fluent identical pay regardless of grade or “Staff Corps” (Administrative should be a major factor in reject¬ responsibilities shouldered. In¬ Cone); and a separate “Commer¬ ing him? I have worked for ten deed, assuming further inflation cial Attache Service” (Economic Ambassadors over the years, only (rapid or gradual), it would be only Cone). one of whom could handle the local a question of time before a com¬ This would be laughable if it language. The others were also plete “UNIPAY” would inevitab¬ were not so sad. good men but they couldn’t ly obtain. PAUL W. MEYER negotiate their way to the Foreign Would it not be possible to seek FSO-Retired Office in the local lingo if they had temporary (and hopefully early) re¬ Tolland, Conn. to. lief within the context of what I would suggest that the Congress appears willing and not Community Action Association’s rump Committee on willing to do? I have in mind a joint Ambassadorial Qualifications dis¬ resolution which, while leaving the Jakarta, Singapore, Kuala Lum¬ solve itself, and that AFSA stick to executive salary structure as it pur, and Tehran are among posts the only professional aspect of this presently stands, would apply duly improving the quality of life for subject that is relevant to the in¬ authorized cost-of-living increases their resident American com¬ terests of its membership. This, of to all currently employed govern¬ munities. To assist the foreign af¬ course, is to promote support for ment personnel on an individual fairs community in this process a increasing the number of career of¬ basis, “structural ceilings notwith¬ special one-week workshop, ficers in Ambassadorial positions. standing.” “Community Action” will be pre¬ This is a legitimate and necessary ROBERT O. WARING sented at the Foreign Service Insti¬ point for the Association to make, Beirut tute from September 30-October 4, one that truly represents its mem¬ 1974, under the combined auspices bers’ views as well as the national Time in Flight of the Office of Medical Services interest. ■ It is perhaps not inappropriate, and the Workshop for Foreign Ser¬ WILSON P. DIZARD on the occasion of the 50th an¬ vice Families. The course is open Washington niversary of the passage of the Ro¬ to employees and dependents over gers Act, to observe that from a the age of 14. Those interested in The Animal Farm personnel standpoint, the Foreign participating should contact Mrs. ■ Alas, one of the last vestiges of Service has arrived back at the Sally Moore, DG/MED, Room the second class citizenship as¬ pre-Rogers Act period—a separate 2909 NS, telephone 632-7350 for cribed to AID employees by the “Diplomatic Service” (Political further information and registra¬ Department of State has at last sur¬ Cone); a separate “Consular Ser¬ tion. faced. This is the total absence of an AID Notary Public in the New State Building. I was pointedly told Life and Lqpve in the Foreign Service that I should go to an AID notary to have my document notarized. The nearest one happens to be lo¬ cated across the Potomac River in Virginia, a distance which means that least an hour must be spent to have a five minute notarization per¬ formed. But I was told that “you AID people have NO right to utilize the notary services of State Department employees.” These ugly vestiges have been removed overseas. Isn’t it about time that the same thing occurred in Washington, D.C.? ROY A. HARRELL, JR. Washington Subject: UNIPAY ■ Congressional unwillingness to raise the ceiling of executive salaries, coupled with willingness to authorize cost-of-living in¬ creases within this ceiling, has not only, in a relative sense, reduced the real income of certain Foreign Service officers by as much as 35 “ You're being silly, darling. You messengers are just as important as we officers. percent (perhaps more), but has re¬ Besides, PER promised that at our next post they’ll find something even better for sulted in a situation in which an in- you to do.” 30 FOREIGN SERVICE JOURNAL, September, 1974 Rick Williamson designed to improve AID’S per¬ quickly, not only for the sake of THIS MONTH IN WASHINGTON sonnel policies and procedures, AID employees, but for the good Washington this month has been provide more due-process protec¬ of the entire Service. If AID is al¬ something less than normal as the tions, and eliminate abuses which lowed to get away with its current drama of history being made has had occurred in the past. In short shenanigans, dangerous precedents coupled with the strike of National AID has never had a better promo¬ will be established which could un¬ Football League players to mes¬ tion system for its Foreign Service dermine the rights of all Foreign merize and depress nearly employees. Service employees. everyone. Some doubted seriously Now the Bad News: There In State, we continued our dis¬ the capacity of this nation to sur¬ won’t be any promotions this year. cussions on the precepts for this vive major crises in two of its most As Steve explains in his column, year’s selection boards, and made important institutions, the Federal AID has frozen promotions above real progress on the general pre¬ Government and Professional FSR-5 and FSS-7. This action, and cepts, and on the precepts for the Football. But the crisis of govern¬ a number of equally ill-considered Threshold panels. The results of ment is now over and we all have steps such as the RIF, have our poll on the intermediate board the feeling of a fresh and clean new brought relations between AFSA precepts and an outline of the beginning, and the football stike and A1 D to an all time low. As you AFSA proposal to management has been put, at least temporarily, may know, AID has consistently are reproduced elsewhere in the into a “cooling-off’ period. The had one of the worst reputations in JOURNAL. Another major topic nation is saved, its most cherished government for its employee- which has taken up our time this institutions remain intact. Given relations and is apparently doing month is selection-out in State and the national sickness over profes¬ everything in its power to assert USIA, which is also discussed sional football, I mean that only vigorously its claim to the title as elsewhere. half in jest; as to the ending of our “Worst Government Employer.” In one respect, this was an excel¬ constitutional crisis, there can be In any case, dealing with AID lent month for the Association. We no jesting. Irrespective of political has been our major preoccupation received the news that the Senate preferences and personal beliefs, it this month. Clearly, something passed an amended version of the appears that virtually the entire must be done about the Agency Foreign Service Retirement Bill, country breathed a sigh of relief and determined to assist President Ford in getting the nation back on track. In that regard, we know from his speech to the Association on the 50th Anniversary of the Foreign Service, that President Ford knows he has the full backing of the entire Foreign Service. There is some good news and some bad news this month con¬ cerning AID Foreign Service promotions. First the Good News: AID Evaluation Panels now meeting are operating, for the first time under policies and precepts negotiated between the Agency and AFSA, acting as the exclusive representa¬ tive of AID Foreign Service per¬ sonnel. Thus, for the first time in the Agency’s history, the Foreign Service employees in AID have had a real and substantial input into President (then Vice President) Gerald R. Ford is introduced to Rick Williamson, the rules which govern their pro¬ Executive Director, AFSA, by Thomas D. Boyatt, AFSA President, at the July I motions. These negotiations re¬ Association luncheon where President Ford spoke on the 50th anniversary of the sulted in a number of basic changes Foreign Service. FOREIGN SERVICE JOURNAL, September, 1974 31 which will bring about significant Steve Wallace on the conversion and termination benefits both for those still on ac¬ of time-limited employees and on tive duty and those who have al¬ Mutiny in Aid’s Bounty AID’s continued practice of effect¬ ready retired. We have some hopes What was viewed in last month’s ing administrative promotions. that the House will also move on column as a period of irony and Nevertheless, all of the above this bill, which we discuss else¬ hope has unfortunately trans¬ actions are not enough at this time. where. Equally encouraging, there formed rapidly into a state of war The rights of AID Foreign Service is some indication that, as a fall-out between AFSA and AID man¬ employees and our rights as their of the testimony that we and other agement. With the callousness of exclusive representative continue organizations made on the prob¬ Captain Bligh but with more pain to be ignored by AID management lems caused by the present ceiling than is wielded by a cat-o’-nine¬ as if we were mere pawns in a por¬ on senior level pay, the chances of tails, AID management has em¬ tended “new order.” Well, the Ex¬ some relief by this Congress have barked on a series of drastic ac¬ ecutive Branch is still legally ac¬ been substantially improved. tions aimed at improving its image countable, and this applies equally There is no prospect, however, of with various Congressional critics, to AID management executives! action before the election. Finally, but at the expense of its Foreign The AFSA/AID relationship we received a response from the Service personnel. Suddenly we can change if and when AID man¬ Secretary to our letter, quoted in have become innocent scapegoats agement wants to treat its person¬ last month’s edition, in which we of AID’s past poor personnel man¬ nel justly and humanely. In the expressed our concern over the re¬ agement. First came the blow of meantime, other measures are lease of the Khartoum terrorists. the general promotion freeze with¬ necessary. AFSA has hired law¬ The Secretary’s letter, quoted in out prior consultation with AFSA yers and has begun steps to take this edition, indicated that he and with no more than a superficial legal action against AID on the shared our concerns, and sug¬ explanation of the freeze to em¬ RIF matter; AFSA has gone to the gested the establishment of a joint ployees. This freeze occurred at a press in its criticism of AID per¬ State-AFSA working group to look time of transfer to a new evaluation sonnel practices; and AFSA is into the issues. system in which employees have going to Congress with its com¬ This month in USIA, we suc¬ had to wait 15 months for comple¬ plaints. AID employees are also ceeded after an excessive delay on tion of the evaluation cycle. This urged by the Association to write the part of the Agency to get meat-axe approach to problems, their Congressmen and Senators Agency agreement to drop their adversely affecting almost all em¬ on the issues of the promotion “cover” on Congressional mail. ployees in all job categories is to¬ freeze and RIF. Since AID man¬ The Agency had been using a sys¬ tally inexcusable, since overrank¬ agement is tuned solely to Con¬ tem whereby Congressional mail ing in all grades and in all fields gress, the injustices wrought on addressed to an individual was does not exist. (Details on AFSA’s AID employees must be heard routinely opened unless it was response to this problem were cov¬ through Congress as well. For the marked personal. While we agreed ered in AFSA “Red Top” 74/13.) Association does not believe that with the Agency that some system Next came the shock of the first Congress’ desire for Agency re¬ was needed to assure that official RIF notice against 66 AID Foreign form implies a desire on the part of business correspondence from the Service personnel in Public Safety, the Congress for unnecessarily Congress was handled in proper many of whom have been arbitrar¬ harsh treatment and the abridg¬ channels, we pointed out that the ily assigned questionable occupa¬ ment of individual employee rights. system currently in use was a flag¬ tional category codes for the mere Our strategy is as unorthodox and rant violation of the rights of em¬ convenience of “RIFability.” This normally taboo as that strategy ployees, and a violation of the occurred, ijgain without consulting currently being applied against us, rights of Congressmen as well. The AFSA, after the Association had but until AID management starts Agency has now agreed, through already filed an unfair labor prac¬ sympathizing with employee con¬ an exchange of correspondence tice against AID’s RIF policy; cerns and bargaining in good faith with Stan Zuckerman of the AFSA when AID was already under its with AFSA, the Association—in Board, to drop their existing prac¬ OMB-imposed personnel target for concert with its constituency— tice, and instead to adopt essen¬ June of 1975; and despite the fact must use every available avenue to tially the same system as is used in that Public Safety personnel have be heard and felt to expose the in¬ State whereby employees are re¬ had an attrition rate of 11.5 em¬ justices of AID management. minded, through a stamp on the let¬ ployees per month since Novem¬ The end does not justify the ter, of their obligation to place the ber 1973. In other words even means even in AID, and though correspondence in official channels without much help from AID’s management’s extreme measures unless the letter is personal. The outplacement and retraining pro¬ against its Foreign Service em¬ privacy of the correspondence will grams, the Public Safety personnel ployees are more cretinous than thus no longer be violated. Given problem would have self-corrected criminal, they clearly demonstrate the present atmosphere in Wash¬ within six months anyway. a need to open the gate for a water¬ ington, we are particularly de¬ Concurrently, AFSA has filed shed in employee treatment and in lighted to have been able to agree unfair labor practices against AID AFSA/management relations. amicably to this elimination of an for failure to consult on the specific NEEDED—reactions to the unwarranted intrusion by the RIF Guidelines and for failure to Treasurer’s Report in last Agency into the privacy of its em¬ consult on the promotion freeze. month’s JOURNAL. Please read ployees. AFSA has also filed formal appeals and react. 32 FOREIGN SERVICE JOURNAL, September, 1974 Letter from the Secretary Patterson. But I believe it is report their views in “tallyable” clear that it has substantially form. Those which did not show Dear Mr. Harris: reduced the risk to our per¬ the same trends as the tabulated re¬ No reasonable person could fail sonnel. The no ransom princi¬ sults. There were 794 individual re¬ to share the sentiments you ex¬ ple has only been sustained sponses. The results as of August press in your letter of July 12, 1974. through the courageous sup¬ 12 (with a few late stragglers still And no reasonable person could port it has received from the coming in) are as follows: fail to admire the courage of the members of the Foreign Ser¬ A. The role of functional men and women of the Foreign vice. specialization at mid-career. Re¬ Service who accept so many risks There can be no room for com¬ spondents were asked to indicate to serve their country abroad. placency about our policy. We their views on how officers should Like you and your colleagues I must always ask whether we are be competed by function at mid¬ was dismayed by the decision of doing enough or whether we are career. the Sudanese Government to re¬ doing the right things to translate 1) Across-the-board exclusively lease the eight convicted murderers our sense of anger and outrage into —13.1% of Ambassador Cleo Noel and effective action. 2) Primarily across-the-board, Curtis Moore. And like you, my Those leading the Department but with some functional com¬ concern for the safety and protec¬ and the Foreign Service share a petition—36.7% tion of our representatives abroad common interest in assuring that 3) Primarily functional competi¬ has been heightened by the death our answers to these questions are tion, but with some interfunction¬ of Vice Consul John Patterson. the correct ones. AFSA should be al—37.1% Clearly, the leadership of the a participant in these deliberations. 4) Functional competition ex¬ Department and I have a duty to Thus, I have asked Ambassador clusively—13.1% ensure that the dangers to the lives Hoffacker to contact you directly B. Organization of the boards and safety of Americans overseas to explore the establishment of a by pay plan. Respondents were are reduced to an absolute min¬ joint Department-AFSA working asked to indicate their views on imum. group to review our policies and whether all pay-plans should com¬ Thus, there should be no doubt actions and make such recommen¬ pete together, or separately. that we are committed to doing all dations as it deems advisable. 1) Competition by functional that is necessary and reasonable to Best regards, specialty among employees of all protect the lives and safety of our HENRY A. KISSINGER pay-plans—27.0% 2) Across-the-board competi¬ personnel—and of all Americans AFSA Working Group Formed abroad. Our obligations and our tion among employees of all pay sense of responsibility allow us to AFSA has established a Working plans—9.3% do no less. Group on Extraordinary Dangers to ex¬ 3) Separate competitions among As you are aware we have ap¬ amine and make recommendations on the employees of each pay plan, i.e. proached the task of deterring and impact of terrorism and other extraordi¬ FSOs compete against FSOs, nary dangers to American Foreign Ser¬ FSSOs against FSSOs, etc.— punishing terrorism at several vice personnel. levels: 23.9% Pursuant to the Secretary's letter to 4) Generalists in one category, • We have sought to mobilize AFSA, this group will constitute the an international consensus AFSA section of the joint Department- specialists in another (this option against these outrages so that AFSA Working Group to review US gov¬ would essentially place FSOs in governments and the interna¬ ernmental policies and make recommen¬ one group, and all other pay plans tional community will deal ef¬ dations. Ambassador Lewis Hoffacker, in another, with some excep¬ fectively with terrorism. Special Assistant to the Secretary for tions)—39.8% • We have vigorously sought to Combating Terrorism, has promised his The poll results clearly indicate cooperation in this joint effort. several key facts concerning the encourage governments to ar¬ AFSA members are requested to direct rest, try or extradite those suggestions and views on this topic to Service’s views, which we have al¬ who perpetrate terrorist acts. Harry C. Blaney, do AFSA, Room 3644, ready taken into account in this In keeping with this policy, New State (telephone 632-1964). The year’s negotiations on the State the Sudanese and other gov¬ views of the membership are particularly selection board precepts: ernments have been left with requested in order to assist the new Group —A substantial majority favors no doubt of our grave concern with its work and its representation to the some form of splitting competition and disappointment over the Department. Those also interested in by pay plan, with the largest group release of the eight murderers. working with the Group should be in di¬ favoring a system which would We are, as well, cooperating rect contact with Mr. Blaney. place FSOs in one category and all with the Mexican authorities other pay plans in another. Inci¬ to bring to justice those re¬ AFSA Poll on Promotion Precepts dentally, this basic view was held sponsible for the death of John AFSA has polled its overseas by a majority of FSOs and a pre¬ Patterson. chapters and Washington members ponderant majority of FSSOs, • We maintain a policy of pay¬ in State on options for structuring FSRs and FSRUs. ing neither monetary nor polit¬ promotion competition under this —The two extreme positions on ical ransom to terrorists. Ob¬ year’s selection board precepts at the role of functional competition viously this policy did not mid-career. One hundred and ten at mid-career (all functional and all prevent the deaths of Cleo posts overseas responded, but un¬ across-the-board) have lost ground Noel, Curtis Moore and John fortunately some chapters did not since our last poll, and almost three FOREIGN SERVICE JOURNAL, September, 1974 33 quarters of the Service now favors Fourteen respondents (4.3%) November, but we urged a number some mix of functional and across- expressed the view that there of changes designed either to over¬ the-board considerations for pro¬ should not be any selection out ex¬ turn certain retrogressive features motion. cept for cause, or that it should be of the bill, or to propose additional —The number favoring solely limited to the two thresholds, or changes which we felt were needed across-the-board competition was should be limited to time-in-class, for the Foreign Service. Since identical to the number favoring or should be used only in lieu of a then, we have continued to work solely functional competition. The RIF. Of the remainder, 78.8% very closely with the Senate number favoring primarily across- favored the AFSA position that Foreign Relations Committee staff the-board competition was virtu¬ there should be no automatic link¬ to obtain the best possible bill, and ally identical to the number favor¬ age between rigid percentages for to get the SFRC to move the bill ing primarily functional competi¬ low ranking, and that selection-out forward. In this, we received help tion. In fact, they were exactly four decisions should be on the basis of from other organizations, particu¬ votes apart. the failure of the officer to meet the larly DACOR. Much of the credit —If the scores on the poll con¬ absolute standard of the class. for getting the bill through the Sen¬ cerning functional competition at Only 16.6% favored the manage¬ ate rests with Senator Pell who mid-career are weighted on a scale ment position, which calls for the chaired the hearings, and spon¬ so as to answer the question “How use of low-ranking percentages sored the bill on the floor. much weight should functional while 4.6% volunteered the view The bill as passed by the Senate considerations be given?” the re¬ that percentages should be used for contains a number of major im¬ sult would indicate an almost ex¬ identification purposes, but that provements in the Foreign Service actly even emphasis, in the views the selection-out decision should retirement system including: of the service, on considerations of be on an absolute basis. 1) An increase in survivors’ an¬ across-the-board, interfunctional The other basic issue facing us nuities from 50% to 55% and a re¬ and functional competition. The on selection-out concerns the role duction in the cost of providing weighted index would be 50.13% of the “Special Review Panel,” survivors’ annuities. It also elim¬ functional. which is charged with reviewing all inates elements of sex discrim¬ In light of these views, we have selection-out cases. State man¬ ination in granting survivors’ an¬ put forward to management a agement favors only a limited re¬ nuities. counter-draft on the special direc¬ view by the Special Review Panel, 2) Immediate coverage of For¬ tives for the intermediate boards confined to a review of the proce¬ eign Service Staff Corps personnel which contains the following basic dures employed in arriving at under the Foreign Service retire¬ elements: selection-out decisions. Of those ment system. This provision now 1) FSOs will be considered responding 9.1% favored the man¬ corresponds to that which we have separately from FSSOs, FSRs and agement position and 90.9% already obtained for Staff Corps FSRUs. favored the AFSA position, which personnel in AID. Under present 2) FSSOs, FSRs and FSRUs would require the Special Review law. Staff Corps personnel in State will be considered together by spe¬ Panel to make its judgments upon a and USIA must wait ten years be¬ cialty, with a very limited form of full review of each case referred to fore they are covered under interfunctional competition within it. Foreign Service retirement. This is this group for those who are serv¬ Based on these strongly held one of the features of the bill we ing outside their specialty or whose views by the membership, we have were particularly glad to see passed work embraces more than one spe¬ informed the Department that the in the Senate version. cialty. management proposal on selec¬ 3) Substantial increases for cer¬ 3) All FSOs will be competed at tion-out is totally unacceptable, but tain widows who, under present mid-career on a class-wide basis that we are prepared to work to¬ legislation, were nearly destitute. and also in one of the four major gether to find a solution which will 4) Conformity with the Civil functional groups. Equal emphasis provide fairness and full due- Service retirement system with re¬ will be given to the two in making process protection. Such a system, spect to eligibility for cost-of-living promotions. In order to assure that however, cannot have any automa¬ increases upon retirement subse¬ the Department has enough offi¬ tic linkage between low-ranking quent to a cost-of-living increase cers with a concentration in vari¬ percentages and selection-out and going into effect. ous functions, “need” will be must provide for a full, judgmental 5) Mandatory retirement for taken into account in allocating review of any selection-out deci¬ Career Ministers at age 60 except functional promotions. sion with all due process rights pro¬ when serving in Presidentially- We have just passed this pro¬ tected. appointed positions. posal to management, and will Foreign Service Retirement 6) An ingenious new provision keep you informed as the negotia¬ Bill Passes Senate thought up by the Senators them¬ tions evolve. On July 17, the Senate, on a selves which will have the effect of Selection-Out voice vote and without opposition, making future benefit changes in In the same poll of chapters and passed an amended version of the Civil Service Retirement Sys¬ Washington members, we asked the Department-proposed Foreign tem carried over on a semi¬ for views on selection-out. About Service Retirement Bill. As we automatic basis for the Foreign half of those who expressed views have reported in previous editions Service. At present. Foreign Ser¬ on the precepts also expresssed of the JOURNAL, AFSA strongly vice personnel must wait two to 15 views on selection-out. supported this bill in testimony last years to get legislation passed 34 FOREIGN SERVICE JOURNAL, September, 1974 which extends new Civil Service 4) AAFSWE News limination of the freeze on retirement benefits to the F.S. total compensation for retired per¬ Dr. Ruth Bacon, Director of the We are especially pleased that a sonnel working for the govern¬ US Center for International number of AFSA-sponsored ment. Under present law, Foreign Women’s Year (1975), will speak changes were included in the bill. Service personnel who retire and to the Association of Foreign Ser¬ In particular, we obtained: then obtain employment in other vice Women on October 1st at their 1) Elimination from the bill of the branches or agencies of the gov¬ first meeting of the season. The Department’s proposal to do away ernment may not receive total meeting will be held on the 8th with the $2400 minimum survivor’s compensation from their new em¬ floor of the State Department from annuity. This would have worked ployment plus annuity greater than 10 to 12 Noon. an extra hardship on the most the amount they received prior to All members and those eligible junior FSOs, FSIOs and FSRs, retirement. If the total compensa¬ to become members are invited to and on many in the Staff Corps. tion would be greater, the annuity attend. For information and reser¬ The Senate agreed with AFSA’s is reduced by the same amount. vations call the membership chair¬ argument that this was one area The Association agreed that the man, Mrs. Philip Dorman. where the Foreign Service and Foreign Service should not become 484-3497, or the AAFSW desk. Civil Service retirement systems like the military with its double There will be sign up lists and should differ in light of the in¬ compensation for former military chairmen anxious to have new creased risks which Foreign Ser¬ personnel who obtain government members join their many special in¬ vice personnel face. employment. We indicated to the terest groups. 2) Elimination from the bill of a Senate, however, that we dis¬ provision which would have had agreed with the effect of present Book Fair '74, October 7-11 the effect of wiping out retroac¬ legislation which was to deny any The AAFSW year starts and tively military, Peace Corps and form of increase to affected per¬ ends with the annual Book Fair. Or VISTA service of Foreign Service sonnel. All other active duty and so it would seem if one considers personnel upon reaching the age retired personnel get periodic pay The Fair as an on-going activity in where they would qualify for Social comparability of cost of living in¬ which all Association of the Amer¬ Security. This provision, if allowed creases. We proposed therefore, ican Foreign Service Women are to stand, would have been an that the limit be changed from a asked to take part by getting into abomination costing literally hun¬ dollar amount to an amount equal the act. dreds of Foreign Service personnel to that currently being received by A grand finale to this year-round several thousand dollars in retire¬ employees with the same rank and performance is scheduled for Oc¬ ment benefits. step as the annuitant held at the tober 7-11 at the State 3) Provision for a refund of ex¬ time of retirement. The Senate ap¬ Department’s Exhibition Hall, cess contributions. In the Civil proved this suggestion over the ob¬ with a curtain call for both buyer Service, employees contribute to jections of the Administration. and seller. At this time, roles will their retirement fund as long as There were a number of other merge as the recycling of books, they are on active duty. However, changes proposed by the Associa¬ stamps, and art objects becomes a those with more than the maximum tion, including 20 year retirement, bargain for everyone. creditable service (40 years) re¬ coverage of Staff Corps personnel The back-stage crew of commit¬ ceive a refund with interest upon under Foreign Service retirement tee chairmen and stand-ins will retirement for all contributions while in the Mustang, FSRU and take their places in the wings to as¬ made after the maximum number similar upward mobility conversion sist you in locating specific books, of years of creditable service had programs, etc., which the Senate advise you in your choice of art been reached. In the Foreign Ser¬ did not agree to. On balance, how¬ purchase, or rush you through the vice, however, employees receive ever, we believe the AFSA input line at the cashier’s counter with no such repayment, and thus make has greatly strengthened the bill, your shopping bags full of wonder¬ contributions for benefits they do and that the bill, as it now stands, is ful books. The prompter will repeat not receive. AFSA proposed that a major improvement over present the cue, “Thank you for coming.’’ the 35 year ceiling be raised to 40 legislation. Each evening after the curtain years of creditable service (which The bill is now before the goes down and the crowds have the Senate turned down) and also House, where its prospects are un¬ gone home, the big spots will focus proposed that the Foreign Service certain. We believe there is no on back stage and another cast of also receive repayment for excess prospect for action on the bill be¬ characters will appear. This prop¬ contributions, which the Senate fore the election, but some possibil¬ erty crew, stage assistants, will accepted. For those many Foreign ity of passage during the lame-duck then restock the shelves with new Service personnel who accumulate session. If not passed then, the bill books from the storage room, set¬ more than 35 years of creditable would have to be reintroduced in ting the stage for Act 1, Scene 1 for service, this provision will bring the Senate in the new Congress. the following day. For this heavy about refunds of hundreds or even We urge all AFSA members to act, volunteers are needed: phone thousands of dollars upon retire¬ write their Congressmen, and ask 632 3931 or 632 9411. ment, depending upon the number them to support passage of S-1791. Preparation for the great five- of years of service and the rate of There is no opposition to the bill in day event starts with your circling pay. Some very senior officers with Congress, only indifference. A the dates today. Bring your friends long years of service may receive simple letter to your Congressman and meet the public at the AAFSW in excess of $15,000 in cash refunds. might help a great deal. Book Fair ’74 on October 7-11. FOREIGN SERVICE JOURNAL, September, 1974 35 nO I SPECIAL Grady. Norman H. Grady, FSO- SERVICES retired, died on June 5 in Washing¬ Foreign Service ton. Mr. Grady joined the De¬ partment in 1951 and served at Listings in this Special Services column are 40c Marriages per word, less 2% for payment in advance, New Delhi, Tunis and Lisbon be¬ Killham-Davis. Amanda Lynn fore his retirement in 1971. He is minimum 10 words. Mail to Special Services, Killham, daughter of FSO and FSJ, 2101 E St., N.W., Washington, D.C. 20037. survived by his wife of 7207 Mrs. Edward L. Killham, was mar¬ Beacon Terrace, Bethesda, a son ried to Lindsay Wood Davis on and two grandchildren. Contribu¬ July 24 in Evanston, Illinois. HOME IMPROVEMENTS tions in his memory may be made CUSTOM WORK at reasonable prices for any home Miller-Holt. Mary Ellen Miller, to the American Cancer Society, improvement. Licensed, references. Custom daughter of FSIO William F. Mil¬ Montgomery County, Md. Carpentry, Inc., 949-7175. ler and Ann Murray Miller, was married to Stephen P. Holt on June Hopkins. Ruth Hazen Hopkins, 8, in Bogota. wife of FSO-retired Frank Snow¬ den Hopkins, died on July 28 in BOOKS Morgan-Hirshorn. Willene D. Washington. Mrs. Hopkins is sur¬ Morgan was married to FSO M. "GERALD FORD—Untold Story,” a fact-filled vived by her husband of 5108 Law- soft-cover biography of the 38th President of the Bruce Hirshorn on June 17 in ton Dr., Sumner, Maryland, three United States. Replete with dates, photos, posi¬ Chevy Chase. children, two brothers, two sisters tions on issues, information on his youth, his naval service, his family. More than 50 pictures. and four grandsons. Memorial con¬ By Dave LeRoy, a former President of the Na¬ Deaths tributions may be made to the tional Press Club. $2.75, plus 25jeF shipping for AFSA Scholarship Fund. mail orders (quantity rates on request). R. W. Brown. Ben Hill Brown, III, son of Beatty, Ltd., Box 26, Arlington, Va. 22210. Ambassador-retired Ben Hill Sega. Anthony E. Sega, deputy Brown, Jr., and Mrs. Burt H. principal officer at Palermo, died THE OWL AND THE PUSSYCAT, a bookshop for Behrens, died on July 2 in Ber¬ on June 26 in Washington. Mr. children, happily mails books worldwide. Yes, we keley, California. He acompanied Sega joined the Foreign Service in do accept orders for adult books. Marvelous his parents on assignments to Iraq, 1952 and served at Athens, Frank¬ catalog, $1.00. Order now for Christmas deliv¬ Libya, Turkey and Liberia. He is ery. 321 South Ashland Ave., Lexington, Ky. furt, Rome, Salzburg, Vienna and 40502, USA. survived by his father of 539 South Manila before his assignment to Fairfax, Alexandria, Virginia and Palermo. He is survived by his his mother, P.O. Box 7, Kiganjo, wife, 3309 Chestnut St., N.W., Kenya. Washington, three children, Mrs. REAL ESTATE Climer. Robert E. Climer, AID, Carolyn Lowengart, Laura Sega BEGG INTERNATIONAL, INC. is the sister company died on June 15 in Reston, Vir¬ and Christopher Sega, his mother, and international real estate counterpart of ginia. Mr. Climer served with AID two brothers and a sister. Con¬ Begg, Inc., Realtors, who have for so many years in Ethiopia, Somalia, Thailand and tributions in his memory may be assisted FSO’s to buy and sell their houses in the Kenya from 1960 to 1973, before Washington area. Begg International specializes made to the American Cancer So¬ in best quality real estate overseas. For your re¬ being detailed to the Civil Service ciety or St. Bartholomew’s Sanc¬ tirement or holiday home in Portugal, Spain, the Commission. He is survived by his tuary Fund. Caribbean, etc., consult: Begg International, wife, 1430 Greenmont Court, Res¬ Inc., Realtors, 1714 Connecticut Avenue, N.W., ton, Virginia, two sons and a Washington, D.C. 20009. Tel: (202) 387-4805. Strauss. Gerald M. Strauss, daughter. A trust fund for the FSRO-retired, died on March 22, Climer children has been estab¬ in Eze (Nice), France. Mr. Strauss lished and contributions may be EDUCATION had served with ECA, MSA, sent to the Climer Childrens Fund, FOA, AID and with the Depart¬ MARET SCHOOL. Private, coed, college pre¬ c/o Account 4-223-10-1, National ment before his retirement in 1969. paratory school for students in nursery through Bank of Washington, 833 20th He served at Phnom Penh, Port- twelfth grades. French taught at all levels, in¬ Street, N.W., Washington, D.C. tegrated math program, science labs for stu¬ au-Prince, Rabat and Tel Aviv. 20006. dents third grade and up, art includes sculpture, Mr. Strauss is survived by his ceramics, crafts, painting and drawing, full Colligan. Francis James Colligan, daughter, Marilyn J. Holmes, wife humanities program, gymnastics for grades 1-8, FSR-retired, died on June 16 in of FSO H. Allen Holmes, Ameri¬ athletic field and gymnasium. Beautifully lo¬ Washington. Mr. Colligan joined can Embassy, Paris, and two cated on Woodley Estate 10 minutes from down¬ the Foreign Service in 1942 and town Washington, D.C. 200 students (22 coun¬ grandchildren. tries represented) 30 faculty. Peter A. Sturtev- served as cultural relations assis¬ ant, Headmaster. 3000 Cathedral Avenue, N.W., tant at Quito until 1944. He then Winstead. Louise Folk Winstead, Washington, D.C. 20008. 202-483-5710. held a number of posts in the fields wife of FSS-retired George B. of education and cultural affairs be¬ Winstead, died on June 4 in Hous¬ fore retiring in 1971. Mr. Colligan ton, Texas. Mrs. Winstead accom¬ The Foreign Service Educational and Counsel¬ received the Department's super¬ panied her husband to posts at ing Center welcomes your inquiries. A continua¬ ior honor awards in 1966 and 1971 Mexico City, Managua, Asuncion tion of the services available for 15 years by and a Rockefeller Public Service and Port of Spain until his retire¬ AFSA's Consultant in Education and Youth Con¬ Award in 1955. He is survived by cerns, sponsored by AAFSW and AFSA with addi¬ ment in 1970. She is survived by tional expanded activities. Write FSECC, 2101 E his wife, Margaret, and a son, her husband, 7979 Westheimer, Street, N.W., Washington, D.C. 20037 or call Francis S., of 5200 Oakland Road, Apt. 1412, Houston, Texas and by (202) 338-4045. Chevy Chase. two daughters. 36 FOREIGN SERVICE JOURNAL, September, 1974 travel-pak • STOLEN LUGGAGE • FIRE DAMAGE • BODILY INJURY LIABILITY • BREA^ LIABILITY DAMAGE PROPERTY • RISKS TRANSIT/WAR • DAMAGE UNING ... forcompletedetails—with noobligation—callorwriteNOW. x&V ^ • .HD ENTERING•SHIPPINGLOSSESOFALLKINDSPETLIABIL/7> • SPORTSLIABILITYEXPLOSION VANDALISM •ROBBERYS WHY TAKEACHANCE? possessions! including thecostofinsuringyour James W.Barrett Company,Inc. complete detailsaboutTravel-Pak. 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