Octagon House, at 18th Street and New York Avenue, Northwest

y JfY//'S%/ Our long-time neighbor, r * Octagon House, at 18th Street and New York Avenue, Northwest, pre-dates us by 38 years, having been built by Colonel John Tayloe, III in 1798. It was the temporary residence of the President and Dolley Madison after the British burned the White House in 1814. The mansion has been owned and maintained since 1902 by the American Institute of Architects.

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Board of Directors

WILLIAM C. HARROP, Chairman THOMAS D. BOYATT, Vice Chairman BARBARA J. GOOD, Second Vice Chairman DAVID W. LOVING, Secretary-Treasurer JOHN J. TUOHEY, Assistant Secretary-Treasurer HERMAN J. COHEN JAMES L. HOLMES, JR. F. ALLEN HARRIS WILLIAM R. LENDERKING, JR. LINDA LOWENSTEIN W. A. WHITTEN FOREIGN SERVICE JOURNAL Staff DECEMBER 1972: VOLUME 49, NO. 12 GERALD BUSHNELL, Executive Director CLARKE SLADE, Educational Consultant HELEN VOGEL, Committee Coordinator C. B. SANNER, Membership and Circulation

Journal Editorial Board

TERESITA C. SCHAFFER, Chairman RALPH S. SMITH, Vice Chairman Interstellar Negotiation 10 AMBLER MOSS FREDERICK QUINN MICHAEL A. G. MICHAUD EDWARD M. COHEN HARRIETT S. CROWLEY G. RICHARD MONSEN JOEL M. WOLDMAN

Journal

Into War 15 SHIRLEY R. NEWHALL, Editor R. A. BUTLER THOMAS R. DE BRINE, Editorial Assistant MclVER ART & PUBLICATIONS, INC., Art Direction

Advertising Representatives Quiet Crisis 17 JAMES C. SASMOR, 295 Madison Ave., New York, N.Y. 10017 WARREN MASON (212) 532-6230 ALBERT D. SHONK CO., 681 Market St., San Francisco, Calif. 94105 (415) 392-7144 JOSHUA B. POWERS, LTD., 5 Winsley Street, London W.l 01- 580 6594/8. International Representatives. OTHER FEATURES: Old Days at Prague, by P. B., page 4; Why Does Nobody Love Me Just Because I'm a Cockroach, by Lawrence D. Russell, page 23; FSJ Fable, by Robert Ehrman, page 32. ©American Foreign Service Association, 1972. The Foreign Service Journal is published twelve times a year by the Amer¬ ican Foreign Service Association, 2101 E Street, N.W., Wash¬ ington, D. C. 20037. Telephone (202) 338-4045

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DEPARTMENTS

Letters to the Editor 2

The Bookshelf 20 The FOREIGN SERVICE JOURNAL is the journal of professionals in foreign affairs, published twelve times a year by the American For¬ FSJ Competition 21 eign Service Association, a non-profit organization. Material appearing herein represents the opinions of the writers and is Editorials 32 not intended to indicate the official views of the Department of State, the United States Information Agency, the Agency for International Development or the United States Government as a whole. Special^ Tax Information for Membership in the American Foreign Service Association is open to Foreign Affairs Personnel 33 the professionals in foreign affairs overseas or in Washington, as well as to persons having an active interest in, or close association with, AFSA News 36 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 annually 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¬ brary Services, Ann Arbor, Michigan 48106 under a contract signed COVER: Diplomatic Acrostic by Ruth A. Nalls October 30, 1967. I believe that most officers enter¬ challenging positions in interesting LETTERS TO | ing the Department view themselves parts of the globe. And the competent, as slightly better than their col¬ ambitious recruits invariably entertain leagues and are anxious to demon¬ some degree of confidence that they Punch That Clock! strate that their abilities entitle them will be among the select few whose tal¬ ents will lift them above the madding ■ The recent spate of publicity to rapid advancement. They believe crowd under any kind of system that and emphasis on the employee’s that in the long run they will be allows “hot shots” to rise rapidly. rights with respect to overtime and promoted faster than the average Mr. Cecil’s final paragraph says, in compensatory time leaves me some¬ officer. This prospect of accelerated effect, that a semiautomatic system what disenchanted. There has al¬ advancement attracts capable young could degenerate into something as de¬ ways been reason, of course, for officers and provides a constant moralizing as the present system. May¬ justifiable concern for seeing that stimulus to excel. be so; but a great deal of applied stu¬ employees required to work consid¬ I believe the prospect of advanc¬ pidity and mismanagement would be erable and consistent overtime are ing steadily for some fifteen years required on the part of many people, properly compensated for it. And through the middle grades, in step over a protracted period, to make a with one’s peers, has too much of semiautomatic system as demoralizing we all agree that something should as all that. I see no reason to expect be done about the boss whose the air of dull routine associated that many supervisors would bother to creative abilities only seem to sur¬ with it to attract the competent, amass the documentation which would face about 30 minutes before clos¬ ambitious men needed by the Serv¬ be required to prove any of their un¬ ing time. ice. Under this system, the real derlings deserve exceptionally rapid But let’s also take a look at the “hot shots” will go elsewhere, where advancement. In any case the docu¬ other side of the coin. To start with, they can try their hand at real com¬ mentation would be subject to verifi¬ we do not punch time clocks. How petition. The Department will find a cation by a reviewing panel, and there many employees have you known subtle change in the type of candi¬ would be scant possibilities for any of¬ who just happen to be 15 or 20 date offering himself for the entry ficer to be promoted on the basis of minutes late two or three times a examinations—still reasonably ca¬ unsupported superlatives in his super¬ week, either in the morning or when pable, but less ambitious, less ener¬ visor’s evaluation reports. returning from lunch, or both? How getic, more concerned about securi¬ Finally, I cannot agree that “the present system . . . does attract tal¬ many times has your boss said okay ty than opportunity. ented young officers”: it seems to me when you asked for a half hour or Mr. Cohen suggests that acceler¬ that, in general, applicants are attract¬ so to take care of some errand? ated advancement could still occur. ed to the Foreign Service despite, not How many of the 80 hours in a pay If it occurs often enough to offset because of, the present promotion period do you spend just chatting the image of the “semiautomatic” system. with colleagues, or maybe catching promotion, so as to still attract am¬ up on some personal correspond¬ bitious young applicants, then it The Foreign Service Ballet ence? Yes, some call it goofing off. seems we are back where we start¬ The point I would like to make is ed: facing the proliferation of the ■ The articles by James Huff and that if employees are going to insist superlative efficiency report, the ag¬ Ambler Moss in the June issue on all their rights to the letter of the onizing wait for the promotion list do agree that something is wrong, law, then they must also expect that and the attendant morale problems. whether it is the “over-vaulting management will feel obliged to in¬ Though the present system could pride and insolence” of many FSOs sist that employees fulfill all their stand improvement, it does attract on the one hand or the general lack obligations to the letter as well. This talented young officers anxious to of a feeling of eliteness on the other. will mean scrupulous attention to rise rapidly in their chosen field. I My reading of the literature on attendance records. Unfortunately, hope this point is thoroughly consid¬ the subject of the Department’s ef¬ the resulting employee-management ered before a decision is made to forts to do its job well from World environment may not be as congen¬ abandon the competitive feature in War II on shows that Huff has more ial as it has been in the past. Fact is, favor of programed promotion. going for him than Moss. The For¬ those time clocks may be just CHARLES O. CECIL eign Service Illusion, represented in around the corner! Beirut FSI part by the career principle, and ROBERT L. DWELLEY (FSS) AUTHOR’S NOTE : That competent, am¬ assisted by a continuing lack of ef¬ Amman bitious men (and women) would ab¬ fective leadership and by faulty hor the prospect of spending the first organization, has prevented the De- 15 years or so of their careers merely Programed Promotion? artment from making fundamental advancing in step with their peers is changes required to “hack it” in the ■ Edward M. Cohen’s “Rank In¬ true, perhaps, as regards careers in real world: Establishment of a sin¬ justice” is the best argument I have other bureaucracies, but not, I believe, in the Foreign Service. In other agen¬ gle personnel system with no second seen for the semiautomatic promo¬ or third class citizens, strengthening tion of middle grade officers. The cies a career is generally spent in one narrow line of work, and in one place. the Secretary’s control, striking an proposal obviously merits further Applicants for careers in the Foreign effective balance between generalists study. I fear, however, that the Service are attracted not so much by a and specialists, expansion of the De¬ adoption of such a promotion sys¬ prospect of rapid advancement—most partment’s responsibilities in the for¬ tem would adversely affect the qual¬ of them are aware, nowadays, that the eign affairs community, maintenance ity of new officers entering the Serv¬ odds are heavily against it—but rather ice. by prospects of serving in a variety of (Continued on page 31)

2 FOREIGN SERVICE JOURNAL, December, 1972 Dogmatist. or realist?

John Foster Dulles has fre¬ quently been remembered as the archetypal cold war¬ rior or, at best, a statesman with a distorting pair of moral spectacles. Michael A. Guhin disagrees with this appraisal and makes a con¬ vincing case for a strikingly different view. The new Nixon policy of detente with the USSR and China gives special timeli¬ ness to this important study. $12.95 JOHN FOSTER DULLES A STATESMAN AND HIS TIMES Michael A. Guhin

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If you're not familiar with R.A. Butler the Washington area, the THE ART OF by P. B. nice folks in our 10 offices (inside and outside the THE POSSIBLE beltway) will show you introduction by around. New homes, re¬ JOHN KENNETH GALBRAITH sales, and recreation com¬ munities. LI Lord Butler candidly narrates I ERE at hand on a smoky winter his experiences as Minister VIRGINIA: day in Bohemia is a bound book of 6510 Arlington Blvd., Falls Church of the Crown under six Prime 9001 Braddock Rd., Springfield Ministers, including Churchill. flimsy copies of instructions and 1984 Chain Bridge Rd., McLean despatches labeled “American Le¬ 310 Pelham St., Fredericksburg Oddfellows Bldg., Marshall Enoch Powell: “A work of as¬ gation Prague, 1925, Vol. II, Corre¬ MARYLAND: tonishing self-revelation.” 2600 University Blvd., Wheaton spondence, Einstein.” The Honor¬ 11125 Rockville Pike, Rockville able Lewis Einstein of New York 6480 New Hampshire Ave., Takoma Park The Times (London): “A work of art, it adds to history.” was our Minister to Czechoslovakia back then, and this book of flimsies FREE —Complete relocation kit! Illustrated • $10.00 should have been burned years ago, Write any office or call (202) 659-7155. Now available at bookstores or send according to approved principles of your order with payment to record-keeping, leaving only the original copies in the National Ar¬ SHANNON A LUCHS] Gambit, Incorporated Mail Order Department chives for no one to consult. But we 53 Beacon Street Boston, Massachusetts 02108 keep this book of flimsies in a secret REALTORS ESTABLISHED 1 place in Prague—no Inspector shall know where—and for the boys in POL/EC it is a nice stimulus to thought about the past. And about the future. Particularly in a country where the populace is ordered every decade (sometimes every two) to forget the latest crushing blow to the nation: e.g., the destruction of the Republic by the Nazis in 1938-39 and then more insidiously by the Soviets in 1948, and most recently the 1968 invasion. NO MATTER WHERE YOU LIVE OR SERVE Our book begins with a copy of AROUND THE WORLD! the 1925 Prague Post Report, which LET YOUR FUNDS, itself begins with the list of Legation LIKE AN ARMY OF WORKER ANTS, officers. There were just two: Min¬ BUILD YOUR WEALTH! ister Einstein, salary $10,000, and Frederick F. A. Pearson, Diplomat¬ — for Education? — for Recreation? — for a Second Income? ic Secretary, whose salary was ex¬ - FOR WHATEVER YOUR FINANCIAL GOAL! actly half his chiefs. True, there Are you looking for a better way to increase your wealth? was also a Commercial Attache, but Then let us help you try! his office was downtown at Obecni Dum two miles from the Legation, THE Please send immediately a free copy of THE WANDERERS INVESTMENT SERVICE and being a Commerce Department BOOKLET, describing their investment philoso¬ man he wanted to keep it that way; WANMKEHS® phy, tactics, and services. Please send it to: and there was a Consulate with Post Office Box 1101 three officers, also downtown. Our Legation was then located, Silver Spring, Maryland as our Embassy is now, in the 20910 former Schoenborn Palace on Trziste Street in the Mala Strana district, under Prague Castle. It had We of THE WANDERERS are former FOREIGN SERVICE! been bought from the Schoenborns 4 WE CHOOSE TO SERVE OUR FOREIGN SERVICE FRIENDS! The fine art of summitry has seldom been In the New York area, contact Diplomatic practiced with such authority as by the 1973 Sales, Ford Export Corporation, Ford Motor Lincoln Continental and the Ford LTD. Company, 153 Halsey Street, Newark, N.J. Each is a leader in its own realm. The 07102. Telephone: 643-1900. From New Lincoln Continental . . . the final step up York, telephone: 964-7883. around the world. The Ford LTD . . . a better idea in luxury and quiet. Both are available at exceptional savings when you exercise your diplomatic discount privileges as a member of the U.S. Foreign Service. Order now. Save now. Arrange delivery stateside or overseas. For full information: 1973 Ford LTD Brougham

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All 1973 cars must meet Federal Emission Standards before sale. See your Ford Dealer for details. after World War I by Richard Crane, our first Minister to AUTHORIZED EXPORTER Czechoslovakia whose father was a : 11 \'Lt close friend of Thomas Masaryk GENERAL ^ ELECTRIC and whose sister was for a time the Q FIA -USA- wife of Jan Masaryk. In turn the United States bought the building in 1925 from ex-Minister Crane, for Refrigerators • Freezers • Ranges $117,000—not bad for a 17th cen¬ tury palace with a hundred rooms. Washers • Dryers • Air Conditioners As our volume tells us, the Italians Dishwashers • Radios • Phonos were prepared to offer considerably vw more in order to get it for their Small Appliances \inmi Embassy. In 1925 the Legation contained Available for All Electric Currents the offices and the Minister’s res¬ Local Warehousing for Immediate idence, but Mr. Pearson lived a quarter-mile away. There was no Shipment room for him in the Palace, though Beat Stateside prices! it fronts a hundred yards on the All leading foreign cars, U.S. Fords, campers, cycles delivered stateside or in Europe at special street, and this because the Legation General Electronics, Inc. factory prices. We arrange every detail. For complete information send for our free 60 page still sheltered some forty tenants Master Catalog. Please indicate whether you require delivery in U.S. or in Europe. FSJ 30 from Schoenborn days, including SHOWROOM: 4513 Wisconsin Ave., Name some Schoenboms. How to evict Washington, D. C. 20016 EMerson 2- Social Security — them is one of the chief subjects in Address Correspondence, Einstein. One 8300 tenant kept a livery stable in the Place of Delivery. WRITE FOR CATALOG. Our catalog is courtyard, which led Mr. Pearson sent to administrative officers of em¬ Date of Rotat ion to complain to the Department that \NEMET AUTO INTERNATIONAL. bassies and consulates throughout /153-03 Hillside Ave.,Jamaica, N.Y.11432 | “. . . in warm weather, when the Tel: (212) 523-5858 wind sits wrong, I am compelled to the world. close the windows and smoke vigor¬ ously to defeat the effluvia from the

... eye-opening views on manure pits.” Finally the Minister If you can wade through some extraneous American race and racism." invited the City Physician, Dr. (but funny) material on post reports, selec¬ -PUBLISHERS WEEKLY tion out, assignments and representation FRED Ktt ESI II4YFOKI) Klika, to come investigate. He did, allowances, you will find some valuable but his conclusion was unhelpful: tips on etiquette in E& A R| ,\( K “No sanitary objection can be raised H AFRICAN DIPLOMAT against the livery stable from the HJ SPEAKS OUT public point of view. It is never pleasant in a house and many own¬ ers do not like it. But this is a private matter. . . .” One can imag¬ ine Frederick Pearson smoking vig¬ orously behind closed windows as he drafted the passage in the 1925

Available at your bookstore, or post report recommending against ACROPOLIS BOOKS LTD. officers keeping a carriage—though 2400 1 7th St., N.W., Wosh., D C. 20009 he motivated the recommendation Mall NOW to your bookstore or on “the steepness of the hills sur¬ rounding the town, and the scarcity ACROPOLIS BOOKS LTD. 2400 17th Street, N.W. of good horses.” Finally Mr. Pear¬ Washington, D.C. 20009 son, temporarily acting as Charge An introduction to foreign service life for d’Affaires, talked to Foreign Minis¬ the student contemplating the career, a Please send me copies of ter Benes about the tenant problem chuckle for friends and relatives back home, INSIDE AMERICA: A Black Afri¬ this 64-page book is only $1.00 from: can Diplomat Speaks Out at $6.95 and, at Benes’ request, sent him a My check for $ is en¬ Note dated November 30, 1925 American Foreign Service Assn. closed or charge to my American asking the Government of Czecho¬ Dept. L, 2101 E St., N.W. Express Card # slovakia to do something to evict Washington, D. C. 20037 Name the tenants, a list of whom Mr. Please send copies of Life and Love Street Pearson enclosed. Mr. Pearson in the Foreign Service at $1.00 per copy to: City... State. Zip- noted in particular that one of these Name persons kept a stable, “while anoth¬ er lives, in a manner which I trust Address

6 FOREIGN SERVICE JOURNAL, December. 1972 ANNOUNCES

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or 1750 Pennsylvania Avenue, NW, Suite 1305, Washington, D.C. 20006 Telephone: 298-7570 Your Excellency will permit me to conclusion that in those days both cumstances (NOTE: italics added; characterize as primitive rather than the members of Congressional ap¬ a masterful touch of mystery!) I decorous, beneath the apartments of propriations committees and the cannot, in justice to the Mission, the Minister.” chief administrative officers of the recommend such course.” Parenthetically it may be added Department patterned themselves The stinginess applied also on a that behind this list of tenants hov¬ on Ebenezer Scrooge. Take, for ex¬ larger scale than shears; Minister ers a ghost, the ghost of Franz ample, the Department’s Instruction Einstein was informed by a Depart¬ Kafka whose name would have FA-20 to Prague of January 31, ment Instruction of June 15, 1925 been on the list had it been drawn 1925, which complained that that the Congress had appropriated up a few years earlier. There is still Prague seemed to have ordered $73,638 less for contingent expenses at least one person alive in Prague more supplies than it needed, and for Foreign Missions in the 1926 who knew Kafka when he lived in a which requested a report as to what fiscal year than it had for 1925. small, damp, unheated apartment disposition had been made of: Therefore Prague’s allowance—out chez Schoenborn—damp enough to 3 shears of which came normal administra¬ contribute to his early death, which 12 rulers tive expenses including salaries of occurred the year before that of our 6 envelope openers. the seven local employees — was Correspondence. The American Minister, who had being cut from $7,198 to $3,888. It may be added, too, that even¬ some weightier matters on his mind As Minister Einstein lamented in his tually the problem of the tenants including a hundred million dollars despatch of July 28, this was the was solved. They moved, or were of Czech debts and some new pros¬ fourth successive year the allowance removed; some are probably still pective loans, nevertheless replied had been cut; and it meant that alive, somewhere in Joseph to this Instruction in his Despatch after paying salaries for the first Wechsberg’s “mystical city,” though No. 799 of March 2, 1925, one quarter the Legation already faced the last of the Schoenborns moved hopes with his tongue in his cheek: a deficit. to Austria two or three years ago. In “The three shears are required by any event, although we may have myself and the two Secretaries at They finally gave him $700 microphones within our walls today this post. Since Mr. White’s depar¬ more, just before the New Year; at least the livery stable is gone. ture one pair has been placed in and our Correspondence ends there. Correspondence, Einstein reveals reserve where it is momentarily 1925 may have been a bright year a great deal about the way the available. Should the Department so for the young Czechoslovak Repub¬ Foreign Service was administered in desire it can be returned to Wash¬ lic, but some days AmLegation 1925; and one is led to the overall ington but in view of all the cir¬ Prague didn’t see it that way. ■ Worldwide AUM Insurance Coverage For Government Employees Special rates for American Foreign Service Association members

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City. State. ZIP. March 2, 1972, the fastest object ever launched by man lifted off the pad at Cape Kennedy. In INTERSTELLAR December 1973, the robot space¬ craft Pioneer 10 will examine Jupi¬ ter with a battery of instruments before being accelerated by the NEGOTIATION giant planet’s gravity into a trajecto¬ ry that will take it out of the solar MICHAEL A. G. MICHAUD system. Pioneer-10 will be the first man¬ made object to leave the solar sys¬ tem when it passes the orbit of Pluto ten years from now. NASA, con¬ scious of this fact—and the possibil¬ ity that intelligent beings might agree that suitable evolutionary Pioneer-10 plaque). Shklovskii and someday find the spacecraft— conditions could develop on a num¬ Sagan conclude that the number of attached a plaque to Pioneer-10. ber of planets, and that it is highly extant civilizations substantially in Engraved on the plaque is a di¬ improbable that the only intelligent advance of our own in the galaxy agram designed to tell any sophisti¬ life in the universe evolved on a today appears to be perhaps be¬ cated civilization the place in the planet of an obscure star in an tween 50 thousand and one million, universe and the approximate date unremarkable corner of a galaxy and the average distance between Pioneer-10 was launched, and the similar to many others. technical civilizations is between a nature of the craft’s builders (see In a rigorous analysis done for few hundred light years and about diagram). the RAND corporation, Stephen H. 1,000 light years. Some have asked whether man¬ Dole determined the mathematical Dole points out that two out of kind should reveal its location to probability of finding planets suit¬ extraterrestrials who may be more the three nearest star systems have able for habitation by man circling advanced technologically, and pos¬ already been found to have planets. one of the 14 most likely stars (out sibly hostile. In the case of Pioneer- This is strong evidence that all stars of 111) within 22 light years of our 10, the question is almost academic; have non-luminous companions. sun. Even within this sphere, small even at an average speed of seven The companion of Barnard’s star, a by galactic standards of distance, miles a second, the spacecraft could red dwarf only six light years away, the probability of finding one suit¬ not reach the nearest star in less is almost certainly a planet, ac¬ able planet is 0.43, or only about 3 than 80,000 years. cording to Shklovskii and Sagan. to 2 against finding one. Dole esti¬ However, the principle involved Given the apparently vast numbers mated that there are roughly 600 is important. The Pioneer-10 of planets, the universality of the million habitable planets in our plaque, modest as it may be, is elements and their chemical combi¬ galaxy. This means that one star out nations, and Earth’s experience with man’s first deliberate attempt to of every 200 is accompanied by a communicate with intelligent beings evolution from amino acids to man, habitable planet. The average dis¬ elsewhere in the universe. Further, finding intelligent life forms on oth¬ tance between a star with a habi¬ more powerful attempts to commu¬ er planets would appear to be a table planet and its closest neighbor matter of time and distance, not yes nicate could open a Pandora’s box; with a habitable planet would be proposals for such communication or no. about 24 light years (by compari¬ raise profound questions about what son, the nearest star to the sun is we want to say and how we want to Communication before Contact 4.3 light years away, and the aver¬ say it, and require us to speculate age separation between stars in the Because the distances are so on what the results might be. solar neighborhood is 7.6 light enormous (one light year is about six trillion miles) and because our Probabilities years). While such habitable plan¬ ets would not necessarily have technology for interstellar transport Are there other intelligent beings evolved complex living organisms, is still primitive, it is very likely that in the universe? While there is no the variety of possible life forms in we will detect signals from aliens direct evidence as yet, disciplined the universe would have a broader long before we meet them face to speculation indicates that the an¬ range of physical tolerances than face, or that they will detect our swer is almost certainly yes. Most man. signals before they encounter us. scientists now writing in this field Perhaps the most thorough exam¬ Arthur C. Clarke, in his book ination of this question in a form “Profiles of the Future,” predicted Michael Michaud is an FSO now working accessible to laymen is the book that we would make radio contact on the Iran desk. He has served in Dacca, “Intelligent Life in the Universe,” with extraterrestrials by 2035, and Tehran, Bombay (with USIS), and the by Soviet astronomer I. S. Shklov¬ would meet them face to face by Department. He was the author of “Com¬ 2100. munication and Controversy” in the Oc¬ skii and American astronomer Carl tober 1969 JOURNAL. Sagan (one of the designers of the Suppose, for example, that an

10 FOREIGN SERVICE JOURNAL, December, 1972 it millions of years in the future. The message is etched on a gold-ano¬ dized aluminum plaque, 152 by 229 milli¬ metres, attached to the craft’s antenna and protected against erosion from inter¬ stellar dust. The radiating lines at left represent the positions of 14 pulsars (cosmic sources of radio energy) arranged to indicate our Sun as the home star of the launching civilization. The “1-” symbols at the ends of the lines are binary numbers that represent the frequencies of the pulsars at the time of launch, relative to that of the hydro¬ gen atom shown in two states at upper left with a “1” unity symbol. The energy difference between the two states pro¬ vides the most precise standard of time known to science. The hydrogen atom, the most abundant atom in the universe, is thus used as a “universal clock,” and — the regular decrease in the frequencies of the pulsars may enable another civili¬ zation to determine the time that has elapsed since the launching. The figures at right are in proportion to the size of the spacecraft and repre¬ sent the type of creatures who created it. The man’s hand is raised in a gesture of good will. Across the bottom are the planets, ranging outward from the Sun, with the PIONEER MESSAGE TO OTHER spacecraft trajectory arching away from WORLDS tem, carries a pictorial greeting to any Earth, passing Mars and swinging by Pioneer-10, the first man-made object interstellar beings who might intercept Jupiter. designed to escape from our solar sys¬ and have the intelligence to understand US1S Photo—March 2 1972

intelligent, advanced species existed the distance over which we may tial message would have to contain on a planet 60 light years from detect radio transmission from 300 an introduction to interstellar Earth. That species could, conceiva¬ light years to 3,000 light years. linguistics. It would have to be bly, pick up signals from the earliest These distances are comparable to based on universals to be compre¬ days of radio on Earth. A signal those estimated by Sagan and hensible, implying some reference to leaving the Earth in 1920 would Shklovskii for the average separa¬ universally recognized physical reach the extraterrestrials in 1980. tion of technical civilizations. standards. One suggestion is to com¬ If they were listening and chose to Shklovskii and Sagan conclude that municate the value of Pi in binomi¬ reply immediately, their signal the prospects for interstellar com¬ als, or some other recognizable se¬ would reach us in 2040. Even with munication over distances of some quence of numbers. Once the two such distances, two-way communi¬ tens of light years seem reasonable; civilizations found a set of univer¬ cation with extraterrestrials could over hundreds of light years, more sals that both understood, they begin within the lifetimes of Earth- difficult; and over thousands of light could relate it to other patterns to men born today. years, only possible by civilizations gradually build up a language. For (Shklovskii and Sagan put this in substantial advance of our own. example, a transmission in the another way. Large-scale radio It is highly unlikely that we will Lingua Cosmica (LINCOS) devised communication on Earth has been intercept a communication between in 1960 would begin with the most in operation for some 45-50 years. two advanced civilizations, as this elementary concepts of mathematics Thus, some 45 or 50 light years would be on a narrow, tightly fo¬ and logic, and could then progress from Earth, there is a wave front cused beam aimed at a known tar¬ to more complex descriptions. propagating away from our planet, get. Instead, we will either “eaves¬ Shklovskii and Sagan believe that announcing the existence of a tech¬ drop” on planetary transmissions the initial message must be a pic¬ nical civilization to those who may not intentionally directed toward us, ture. By using dots and dashes to be listening.) or we will detect a signal designed indicate binary patterns, one could Astronomer Frank Drake has specifically to catch the attention of build up a two-dimensional picture suggested that it may be possible to other advanced civilizations. resembling a rectangular grid. It “eavesdrop” on local planetary ra¬ What would be the content of is possible to arrange the sym¬ dio communications of a distant civ¬ such a signal? One could begin by bols of the message in positions ilization. Drake estimates that cross- considering proposals made for the relative to one another so that correlation techniques can increase sending of our own signal. The ini¬ even the arrangement carries in-

FOREIGN SERVICE JOURNAL, December, 1972 11 formation. The unit of length could each civilization’s most fundamental Strange as it may seem, shipboard be expressed in terms of the wave¬ concerns: security and survival. times at relativistic velocities are length of the transmission, and all very roughly the same to any place other linear units would either be The Political Dimension in the Galaxy. At a constant accel¬ fractions or multiples of the basic eration of lg, it takes only a few unit. The unit of mass could be the Our own history suggests rather years, ship time, to reach the mass of the electron, and the unit of strongly that the kind of social nearest stars; 21 years to reach the time could be defined in terms of beings who can produce an ad¬ Galactic center; and 28 years to the velocity of light. vanced civilization always create in¬ reach the nearest spiral galaxy be¬ Assuming that such a channel stitutions to manage their societies, yond the Milky Way. For a round could be established, what would be whether those societies are city- trip with a stopover of several years the content of later messages? states or modern superpowers. to the nearest stars, the elapsed time Scientific writers tend to believe that Whether the primary institution is on Earth would be a few decades; it would—or should—be a high- called a government or not, two of for distant stars, much longer. Over minded exchange of scientific in¬ its principal functions are to large distances, starship communi¬ formation and descriptions of the maintain some degree of internal cation at these velocities will occur two civilizations. This is rather op¬ order and to defend the society very nearly as rapidly as, and much timistic. Would Earthmen immedi¬ from external threats. It does not more reliably than, communication ately give up their most advanced matter whether the threat to a soci¬ by electromagnetic radiation. Why, scientific knowledge and describe ety’s internal or external security is then, should we doubt that extrater¬ themselves in detail to a species active or only potential; the ma¬ restrials would be willing or able to whose intentions and capabilities chinery to deal with it must be send military spacecraft in our di¬ were unknown? By doing so, for there. Governing institutions rightly rection to at least look us over? example, we might reveal how far regard the security of their societies Distance, then, does not guaran¬ behind them we were—and how as an over-riding consideration tee security any more than an ad¬ vulnerable. when faced with any serious threat. vanced civilization guarantees More importantly, an exchange There is no reason to believe that peaceful intentions. Aliens from of scientific information might not extraterrestrials would think or act other solar systems are a potential be the first concern of either side. differently. They too would have threat to us, and we are a potential Each species would want to know as struggled up the slippery slope from threat to them. much as possible about the other’s barbarism to civilization, perhaps capabilities and intentions while re¬ several times. The over-riding, per¬ Dangers vealing as little as necessary in re¬ haps instinctive concern for security ply. Each would weigh its response probably would be as deeply Scientists and others have often to a message in the scale of survival ingrained in their culture as it is in postulated that extraterrestrial soci¬ and, necessarily, relative power. ours, particularly if they too had a eties more advanced than ours Here is where the purely scien¬ history of frequent conflict within would be less warlike. Regrettably, tific approach breaks down. Com¬ the dominant species. The fact that the stereotype of the benevolent, municating scientific information the extraterrestrials might have es¬ super-intelligent alien may be as would give only partial answers to tablished perfect internal order un¬ unrealistic as the stereotype of bug¬ der a planetary governing institution eyed monsters carrying off shapely would not eliminate their concern human females. Even if a species with external threats, whether active had achieved true peace within its or only potential. own ranks, it would still be worried Some have dismissed the possibil¬ about us, and would take the meas¬ ity of interstellar conflict because of ures it felt were necessary to pro¬ the enormous distances and the ap¬ tect itself. This includes the possibil¬ parent light-speed limitation on ity (not the inevitability) of military travel. In fact, a concerned inter¬ action. stellar power might consider it well Here are just a few possibilities. worth a 40-year trip to look over a A species which had experienced potential threat, and it is possible nothing but hostile contacts with that alien lifetimes might be much others, perhaps resulting in military longer than ours. Shklovskii and conflict, would be predisposed to be Sagan note that there are two basic hostile and to make military prepa¬ methods of achieving interstellar rations. A species which had always spaceflight within characteristic hu¬ believed itself to be unique and man lifetimes: slowing down human superior to any other living form metabolic activities and preserving might react murderously to a viola¬ the crew for most of the flight, and tion of its philosophical and emo¬ the dilation of time produced by tional integrity. A great star empire Shown here is the 85-foot radio telescope at Green Bank, W. Va. Through the lens velocities near the speed of light. At advanced beyond our imaginations of this giant telescope American astron¬ these relativistic speeds, time would might regard us as nothing more omers made the first observations of the pass much more slowly for the crew than a troublesome infestation to be planet Venus. Photo from IPS. than for their planet of origin. circumscribed or eliminated. In any

12 FOREIGN SERVICE JOURNAL, December, 1972 Another problem is the choice of physical means for communication. Given present Earth technology, the most logical choice is radio. Alien technology might be so different ELECTROMAGNETIC SPECTRUM SUITABLE FOR SIGNALLING HYDROGEN EMISSIONS from ours that they would prefer (1420Mc) LASER WAVELENGTH working in another medium. It is MILLSTONE GOLDSTONE PROPOSED BY HILL RADAR RADAR SCHWARTZ & TOWNES also possible that one side might be (440Mc) (2400 Me) (5000 ANGSTROMS) concerned with the interception of the signal by a third party and Lj f 1 1 1 i 1 " i J 4 would desire an extremely tight WAVELENGTH 10km I lkrr1 km 100m 10m 1 m 10cm 1cm 1 mm "i?r 10 A 10 A 10* A (10'A) beam, or even some agreed-upon ♦ FREQUENCY 0.1 (m«9the New York TIMES science writer the aliens may be sensitive to an process of interstellar negotiation. Walter Sullivan argues that a mes¬ entirely different range of radia¬ The first alternative would be sage from a distant civilization tions. We and the aliens also might temporary and would accomplish would logically be extremely long, have different frames of physical nothing if our location became taking perhaps years for its trans¬ and temporal reference, based on known to the aliens. Once contact is mission. The message might be in¬ differing sizes, shapes, metabolic established, only the second alterna¬ terspersed with attention-getting sig¬ rates, and perceptions of the physi¬ tive is constructive in the long run. nals and “language lessons.” How¬ cal environment, complicating the If we are prepared to believe that ever, the longer the message, the development of a mutually compre¬ advanced extraterrestrials are benev¬ more danger there is that an error hensible symbolic language. olent and peace-loving, we should in transmission or detection, or in¬ Another, more remote set of be prepared to believe that they terference from the interstellar physical problems would arise if in¬ understand the process of negotia¬ medium, would obscure part of the terstellar travel made face-to-face tion. message. An alternative is to com¬ meetings possible. Where would press the message in time, but the they be held? What would be the Interstellar Negotiation: Physical transmitter would have to be power¬ physical appointments for the two Problems ful to prevent jumbling of the sig¬ species? Would translating machines Interstellar negotiation would be nal. exist by then? A whole new proto-

FOREIGN SERVICE JOURNAL. December, 1972 13 col of physical and communications linguistic composition could become to add to the tools of civilization. behavior would be necessary. important as negotiations de¬ The last interest, so often placed veloped. first by well-meaning writers in this Interstellar Negotiation: Cultural The extraterrestrials might not be field, would be meaningless or im¬ and Political Problems confined to one planet. An expan¬ possible if the first two concerns had sionist species might have colonized not been satisfied. Most obvious and basic of the many planets, creating a far-flung The most specific nature of a cultural and political factors is the empire or federation. We would security threat would be the ap¬ inevitable difference in historical ex¬ need to know if we were communi¬ proach of alien space vehicles to our perience. The aliens’ cultural frames cating with a strong central authori¬ solar system without acceptable of reference, codes of behavior, and ty, a weak one losing its grip, or a guarantees of non-hostile intentions. styles of social interaction will be rebellious colony. We could unwit¬ If we did not have the capability to different from ours. Only at the tingly become involved in an inter¬ intercept or neutralize these vehicles most basic and generalized level are stellar civil war. at great distances and did not know we likely to be on common ground As in the era of European expan¬ the type or range of weapons they (a concern for one’s own security sion, fleets are likely to be a major might carry, we would have to try being an example). instrument of power. Rival civiliza¬ placing the solar system off limits by An equally basic problem is the tions might have contesting fleets, negotiation, perhaps setting up a no phasing of development. The spec¬ outposts, neutral zones, borders, and man’s land between the stars until tacular acceleration of Earth’s sci¬ all the paraphernalia of Earthly em¬ acceptable rules of visitation were ence and technology during the 20th pires. Remote sensing might be de¬ worked out. century occupies a tiny percent¬ veloped to such a high degree that Another interest would be some age of human history; the chance direct patrolling of vast volumes of sort of weapons system limitation, of any other species’ technetronic space would not be necessary. at least in the space between the age coinciding with ours is very These complexities highlight the two solar systems. We might work small. The aliens could be unimagi¬ importance of the first message with toward agreed numbers of ships nably far advanced, or backward in political content. By misjudging the that could be in certain volumes of some areas and advanced in others, image we convey, we could create space. making mutual comprehension more fear and hostility where none had Given the probability that we will difficult, and increasing the likeli¬ existed. By conveying an aggressive be dealing with a more advanced hood of a fearful reaction on one image, we could trigger a war; by civilization, our posture should be side or the other. There is also the conveying an image of weakness, one of calm confidence, so that we possibility that an alien planet we could invite expansion in our appear neither offensive or defen¬ would have many cultures at differ¬ direction. Since there would be no sive. Contact with a much more ent levels of development, as Earth precedent, our first messages (and advanced species would suggest a does. theirs) would be crucial. low profile, and extreme caution in Shklovskii and Sagan estimate diplomacy. We might find it useful that the average age of a communi¬ to look for a balancer in the form of cating civilization is 10,000 years or What Do We Want? a rival to the superpower, a tech¬ more, and that the probability that The essence of the negotiating nique familiar to many Earthly any given interstellar contact would process—or diplomacy—is the ad¬ statesmen. If civilizations on compa¬ be with a civilization at the same justment of interests in the light of rable levels of development were to phase of development as our own is the best knowledge available. The meet, the intricacies of geopolitics only about 0.5 per cent. This sug¬ aliens will have interests, and so could be even more relevant; ad¬ gests that we are likely to be dealing will we; but those which can con¬ vances in technology or improve¬ with a civilization much more ad¬ flict, such as spatial expansion, can¬ ments in spatial position could af¬ vanced than our own. not be maximized by either side. In fect relative power. It is also possible that the aliens our first messages, the principles of would not be unified politically, any compromise and reciprocity would With the possible exception of more than the human race is. The have to be explained and clarified. advanced species that are static or extraterrestrials might also have Human history has demonstrated confined to their own solar systems, competing states, and it would be that security can be discussed; in we must expect communicating civi¬ important to know if the communi¬ principle, advanced species should lizations to be involved in galactic cations we receive represent a be able to comprehend this, even if affairs. Where would we fit in the unified planetary body politic, or they do not accept it a priori. balance of power? As a newcomer only one state, alliance, faction, or Our basic interest would be to to space travel, the human race probably would not be able to exert other sub-group (it is even possible protect ourselves from any possible that there could be more than one threat to Earth’s security. Our sec¬ much influence beyond its own solar system, but our ability to deny our advanced species on a planet). To ond concern would be to assist in negotiate effectively, one must deal developing—or. participate in—a planets to others might carry some weight. We might unknowingly be with a group or individual with the stable system of interstellar politics authority to speak for his state, that provides an acceptable level of one corner of a galacto-political tri¬ angle, and should avoid over¬ race, species, or planet. More subtle security for all. Third would be commitment to our negotiating part- dividing factors such as social and learning from the aliens to advance economic structure, ethnic and our knowledge of the universe and (Continued on page 29)

14 FOREIGN SERVICE JOURNAL, December, 1972 R. A. BUTLER

boundaries of Czechoslovakia had wW W HEN I joined Halifax at the the Chiefs of Staff for a report on Foreign Office, our military situa¬ the new military situation following been drawn, as Churchill himself tion was such that Ironside, later the Anschluss. They specified that testified, in flagrant defiance of the Chief of the Imperial General Staff, the Czechoslovak frontier of 2,500 doctrine of self-determination. There wrote that “no foreign nation would miles could not be protected from a is no doubt that the government of believe it if they were told.” German attack, thus confirming the new State kept the three million My first major speech on “The Austen Chamberlain’s warning in Germans in a position of political, Issues of British Foreign Policy” 1936 that “If Austria goes, Czecho¬ educational and cultural inferiority, was made on 9th April to a for¬ slovakia is indefensible.” They also and that bitterness was exacerbated midable array of six hundred nota¬ advised that Britain was not in a by the economic depression of the bles at Chatham House. . . . position to wage war, particularly in ’30s which hit the German in¬ The Anschluss, I told the as¬ view of our unreadiness in the air. dustrialized areas (the Sudetenland) sembly at Chatham House, had in¬ Later in the summer they reported more severely than elsewhere. These creased my conviction that “This to the Committee of Imperial De¬ grievances were outrageously ex¬ country must be strong, strong of fence that it was of vital importance ploited by the Nazis and their Sude¬ purpose and strong in arms. We are for us to gain time for the comple¬ ten puppet, Henlein; but the griev¬ living in critical times and it is there¬ tion of the defense program. The ances were real. In the week of the fore no more than the plain duty government was therefore faced Anschluss, Basil Newton, our Am¬ of the government to press ahead with a categorical warning that the bassador in Prague, advised us (cor¬ with our rearmament program so country was not ready for war, espe¬ rectly, as was seen in 1945) that the that we may have the strength to cially if this involved (as was ex¬ status quo in Czechoslovakia could back our policy and so that in case pected or feared) not only a German not be perpetuated even after a vic¬ of need we shall be able to defend front, but conflict in the Mediter¬ torious war. . . . ourselves.” Churchill had at last ranean with Italy and trouble in the I was not myself a prime mover been listened to with rapt attention Far East with Japan. in the complex and dramatic events and respect when he warned the This was the unpalatable military of the succeeding months. As a House of Commons that we were appreciation which Chamberlain and junior Minister I was little consulted confronted with a nicely calculated Halifax gave to the representatives about their cause or course. My role and carefully timed program of ag¬ of France—who alone had a direct was sometimes that of a sceptical gression, unfolding stage by stage. treaty obligation to the Czechs— spectator, as when I stood in the There was general agreement and when they came to London at the Foreign Secretary’s room in July apprehension that the next stage end of April. The main result of studying the glass-fronted bookcase would involve Czechoslovakia. Ac¬ these Anglo-French conversations and heard Lord Runciman accept cordingly the Prime Minister asked was therefore a decision to make a his impossible mediating mission to joint demarche in Prague to secure Prague with the words, “I am being the maximum concessions from Pres¬ cut off like a small rowing boat from Excerpted from Chapter 4 of “The Art ident Benes. It has been wrongly a great liner.” Throughout the fate¬ of the Possible" by R. A. Butler, copy¬ assumed that Chamberlain believed ful weeks of September I was off¬ right © 1972, Gambit, Inc. such concessions would inevitably stage in Geneva where, however, I John Kenneth Galbraith writes in his forestall a German military invasion conducted two important interviews introduction: Lord Butler . . . had a re¬ of Czechoslovakia. On the contrary, with the Foreign Ministers of the markable public career of which to tell. Soviet Union and of France. The He entered the House of Commons in he was fully aware, as were all the 1929 from Saffron Walden and remained best of our diplomatic advisers, that former convinced me that Russia there, always revealing a remarkable af¬ the Sudeten problem might not be had no intention of coming to the finity for major office, for the next 35 the real issue and that Hitler might help of the Czechs, even if the years. Successively, he was involved with have ambitions far beyond the res¬ Czechs had wanted this, which they India, . . . education, the Exchequer and didn’t; the latter gave me the meas¬ the Foreign Office. ... A good many toration of Sudeten rights. Chamber- men have played an important part in lain felt that this was a situation ure of France’s political unreli¬ or had a strategic view of great events, which would have to be faced if it ability. These two factors were in¬ and they have managed, nonetheless, to came, but that a world war could terrelated, since a French declara¬ say nothing very interesting about them. not be fought to maintain inviolate tion of war was stipulated by the This is where Butler is the great excep¬ the ascendancy of seven million Russians to be a condition of their tion. Uniquely among autobiographers, own intervention. . . . English or American, he writes to rejoice Czechs over an almost equal multi¬ the reader and not himself. tude of discontented minorities. The More than one of my contempo-

FOREIGN SERVICE JOURNAL, December, 1972 15 raries have suggested in their mem¬ Ministers said behind the scenes, hoped that Britain would come in if oirs that the alternative to appease¬ whether in social gatherings or to Hitler used forcible action against ment should have been for Britain foreign representatives. Thus any¬ the Czechs, but did not press us to to rally all the League to resistance. one who confines his reading to the define our position. Instead he drew . . . However, as was clearly stated published Documents on British attention to the likelihood of an by Anthony Eden in January 1938 Foreign Policy might easily conclude Italian intervention. In these cir¬ in his speech at the 100th session of that when Daladier and Bonnet cumstances for France to envisage a the Council of the League at Geneva, visited London on 28th and 29th war on three fronts—Italy, Spain “By the defection of some of its April, they wanted a firm stand and and Germany—would be “equiva¬ more important members, the League were dissuaded only by the logistic lent to jumping off the Eiffel Tower.” is now faced with the fact that the pessimism of Chamberlain and Hali¬ Bonnet made plain to us that France area of co-operation is restricted fax. If, however, one turns to the proposed to do nothing of the kind. and that its ability to fulfill all the Documents on German Foreign Litvinov, the Soviet Foreign Min¬ functions originally contemplated Policy, it appears that on 27th April ister, was at once more affable and for it is thereby reduced. We must (that is, the day before these talks) more sinister, but scarcely less nega¬ realize that in present circumstances Daladier told an agent of the Ger¬ tive. On 23rd September, in the the League is not in a position to man Embassy in London that he Sixth Political Committee of the achieve all that was hoped of it.” hoped the British “would themselves League Assembly, he said that the We still believed that the League suggest that pressure should be put Soviet government had no obliga¬ ideals were noble and worthy of our on Prague” so that he “could ac¬ tions to Czechoslovakia in the event fullest support, and our attitude to¬ quiesce without seeming to have of French indifference to an attack wards League reform was always taken the initiative in the matter.” upon her. If this situation arose the positive. ... Yet at the same time Daladier, however, was a gladiator Russians might come to the aid of there were hard facts to be faced. when compared with his Foreign the Czechs as the result of a deci¬ Of the great Powers, the USA never Minister, Bonnet, whose fascinating sion by the League. But no one had come into the League; Japan, memoirs Defense de la Paix do not could insist on that help as a duty, Germany and Italy had left it. It was respond to the test of accuracy. and in fact the Czech government, no more than a plain statement of Churchill described Bonnet as “the out of practical as well as formal truth to say that the League in 1938 quintessence of defeatism” but only, considerations, had not raised the could not by itself ensure the peace I fancy, because he had already question of Soviet assistance inde¬ of the world. If the League were used up the epithet “boneless won¬ pendently of assistance by France. called to deal with the Czech situa¬ der” on a fellow-countryman. This didn’t take us very far, and tion, it could do no more than pass On the morning of 11th Septem¬ Halifax instructed me by telegram some pious but quite ineffective res¬ ber, when attending the 19th As¬ to try to obtain a precise indication olution which would do no positive sembly of the League at Geneva, I of what action the Russians would good but rather only inflict on it a went, on instructions, with Euan take if Czechoslovakia were involved still further humiliation. This would Wallace to see Bonnet in his hotel. in war with Germany, and at what prejudice its future, in particular its He at once told us that the situation point they would be prepared to ultimate reconstruction. Manchuria, in central Europe had been made take it. . . . Abyssinia and Spain had already infinitely more serious than before Litvinov began by saying that, brought painfully to light the defects by the TIMES leader of 7th Septem¬ since the terms of the Soviet-Czech of the League, and by condoning a ber, written by Geoffrey Dawson, Pact postulated prior French mili¬ series of unjust aggressions it had the editor, in which the secession tary assistance, the Anglo-French proved that it could not provide of the Sudeten districts to Germany pressure on Prague to “capitulate” automatic security. There was, fur¬ had been advocated. I am myself virtually rendered the Pact a dead thermore, a disastrous fallacy in the convinced that Halifax knew this letter. Nevertheless if France were attitude of those who clamored for article was to be written: the two to honor her obligations and fight, “collective security” yet repudiated Yorkshiremen were very close and the Russians “would take action.” any notion of an international force I saw Dawson leaving the Office on I asked him to develop this further outside British control or, like the the 6th after a long interview with and in particular to say at what stage Labour Opposition, voted against the Foreign Secretary. However, the Russian intervention might take British rearmament. proposal had been immediately and place. Would he raise the matter at Collective security on the eve of officially repudiated and I could the League (which was substantially the Munich crisis was certainly not not see why Bonnet should bring it what the Soviet-Czech Pact pro¬ something that could exist inde¬ up now, except that it was char¬ vided) and, if so, did that mean pendently of the policies of Britain, acteristic of him to shift the blame that action would be suspended France and Russia; and France and for appeasement on to anybody’s while the League discussion was go¬ Russia were no more inclined to shoulders except his own. . . The ing on? Litvinov, however, refused move than we. The official policy of Russians, he said, “rather than en¬ to budge an inch from his original France was to stand by her treaty gage in war, were wrapping them¬ generalization. He said his govern¬ obligation to Czechoslovakia: but as selves in League procedure.” The ment “might desire to raise the mat¬ Lord Strang, then head of the Cen¬ Poles had told him that they would ter in the League,” but this did not tral Department of the Foreign Of¬ try to stay neutral but would defi¬ alter the fact that the Pact would fice, recalls a very different impres¬ nitely resist the passage of Russian sion was given by what French troops to assist Czechoslovakia. He (Continued on page 27)

16 FOREIGN SERVICE JOURNAL, December, 1972 WARREN L. MASON

diplomatic careers in tension with bureaucratic roles

^^IERE is a perceptible and ero¬ some modification of the bureau¬ action in the form of declining sive tension within the modern State cratic formula will be required if morale among those who staff the Department arising from the incon¬ the individuals who staff its officer diplomatic bureaucracy. Journalists gruity between the background and corps are to perform effectively in and academics as well as Foreign career experiences of its personnel implementing the goals of the De¬ Service officers themselves regularly and the roles they are called upon partment. The alternative is a radi¬ call attention to the malaise. Morale, to occupy within the Department’s cal redefinition of the nature of the it is sometimes said, has rarely been bureaucracy. The situation is para¬ Foreign Service and the kind of lower because the White House doxical because the rationalization career pattern which has been char¬ staff—the National Security Council of bureaucracy, which the Depart¬ acteristic of it. and Dr. Kissinger—has seized the ment of State sees as essential to its The tension between the expecta¬ star role in policy formation, or be¬ continued efficiency, is exactly the tion of Foreign Service officers and cause Congress has turned sour on thing which many Foreign Service the requirements of their roles with¬ foreign commitments, or because officers tend to see as a threat to in the organization is chiefly a re¬ economy moves and reorganization their effectiveness. The difficulty flection of one central fact: the De¬ within the Department have created arises partly from the type of indi¬ partment of State in the decade of a surplus of officers. Many State De¬ vidual and unusual career pattern the 1970s is an immense, complex partment people appear to feel that required by the organization’s diplo¬ and highly organized bureaucratic they have been shunted aside and matic mission. In a more immediate structure. As in any complex orga¬ somewhat victimized, on the one sense, however, the tension within nization, the particular individuals hand, while being constantly sub¬ the State Department seems to have who happen to be filling its many ject to the anxiety of a rigorous ca¬ increased as the role and character thousands of roles tend to be sub¬ reer evaluation system on the other. of the institution itself have evolved. merged within and dominated by Congress is feared, the White House In particular, the infiltration of the structure itself. Even when the is resented, the Department of De¬ technology and the technocratic individual’s involvement with day- fense is envied. mentality into Washington’s bureau¬ to-day management and adminis¬ While all of these factors have cratic establishments has had the ef¬ trative detail is intense and impor¬ undoubtedly had their impact on fect of forcing Foreign Service offi¬ tant, a premium is placed upon the morale and operational effective¬ cers into an increasingly refined bu¬ officer’s ability to harmonize his ac¬ ness, they tend to mask the more reaucratic mold. The complexities tivities with those of his colleagues basic tension that has emerged with¬ of international politics no less than on the bureaucratic team. in the Department. The simple fact the pressures of Washington’s po¬ There is nothing mysterious or is that the average Foreign Service litical life seem to demand this kind even surprising about the bureau¬ officer has a background and career of change. Yet, it may well be that cratization of diplomacy. It has been pattern that ill equips him to oper¬ A native of Minnesota, Warren Mason the natural and gradual consequence ate effectively within a bureaucratic took his B.A. and Ph.D. degrees in of the growth of America’s global context. While this is a difficulty Political Science from the University of Minnesota. In 1962-63 he did graduate commitment and the refinement of which affects the entire service, it is work at the London School of Economics the techniques of managing both more clearly apparent among those and Political Science under a research large-scale organizations and the officers serving in Washington where grant from the Social Science Research Council of New York. On the staff of vast quantities of information that the bureaucratic characteristics are Miami University, Oxford, Ohio, since go with them. But as the size and most highly developed. In general, 1963, he now is associate professor of complexity of its activities have what seems to have happened is that Political Science in Miami and the au¬ thor of several articles on politics in high¬ grown, the State Department has ex¬ the organizational context of the ly industrialized societies. perienced an equal and opposite re¬ State Department has become a less

FOREIGN SERVICE JOURNAL, December, 1972 17 and less congenial working environ¬ mold. ward any particular assignment or ment for the types of individuals The career motivations of Foreign post than would be true of the typi¬ characteristically recruited by the Service personnel add another com¬ cal employee in most other govern¬ Foreign Service. plication. One hardly needs depth mental bureaucracies. At least a part of this incompati¬ interviews and elaborate surveys to It is worth emphasizing that an bility between personnel and struc¬ suggest that recruits are drawn to officer is likely to spend most of his ture can be traced to the relatively the Foreign Service by motivations career abroad as part of a US em¬ elite educational backgrounds of which set them somewhat apart bassy or agency, and as many offi¬ State Department personnel. The from many other types of bureau¬ cers observe, the role carries with it academic attainments of Foreign crats. With many in the business a heightened sense of personal sig¬ Service officers at all levels of the community, they share a certain im¬ nificance and individual freedom of hierarchy compare favorably with patience with theory and a desire action. There are relatively few those of employees of other large- for action and involvement. Coupled Americans abroad and frequently an scale bureaucracies. It is doubtful with this, however, is often a genu¬ officer will be America’s sole repre¬ if the corporate world or the mili¬ ine desire to serve the polity and sentative in this or that capacity. tary, for example, can boast so to achieve significance or even Not only is the bureaucratic context many staff members with distin¬ greatness through association with of the embassy smaller and less re¬ guished undergraduate academic enterprises of more than mundane straining than that of the State De¬ records, so many with graduate significance. To this must be added partment in Washington, but the school training of one kind or an¬ a taste for the high status and glam¬ more intimate working environment other, or so many with advanced our traditionally associated with the of most American foreign missions degrees. Moreover, State Depart¬ Foreign Service. The lingering tra¬ is also likely to convey the sense ment personnel include more than dition of the cultivated amateur, the that one is participating significantly an average proportion of graduates Foreign Service gentleman, is an¬ in policy formation—a feeling more from “prestige” schools. They are other attraction for those who per¬ difficult to sustain without cynicism men and women who, in many sub¬ ceive an opportunity in the service in the carefully cross-tabulated en¬ tle ways, have come to think of to continue their intellectual inter¬ vironment of State’s Washington themselves as “top people,” and ests while they pursue their career. headquarters. The incompatibility is whether or not they consider them¬ Yet, such expectatious and motiva¬ clear: the career experiences of the selves to be intellectuals, they are tions are in tension with the increas¬ officer lead him to stress the relative likely to be people with active aca¬ ing specialization, complexity and independence and significance of his demic and cultural interests. More anonymity of the State Department role within the system while the bu¬ often than not, they are “general¬ organization. reaucratic procedures of the State ists” with wide ranging interests in The career pattern of most For¬ Department stress the dependence the humanities and socal sciences. eign Service officers substantially and interchangeability of staff and The point to be stressed here is reinforces the incongruity between the relative unimportance of any that the background, training and the personal characteristics of the particular role within the overall interests of Foreign Service officers staff and the organizational require¬ diplomatic system. do not make them particularly well ments of the Department. For ex¬ Both in Washington and abroad, suited to work effectively within an ample, a normal career consists of the life style of Foreign Service of¬ organizational structure which tends regular transfers among posts with ficers further subverts their commit¬ to be segmented, impersonal, and the result that administrative effec¬ ment to bureaucratic norms of strictly hierarchical. Nor are they tiveness and even substantive exper¬ thought and behavior. This is part¬ ideal recruits for a system in which tise are often poorly developed with ly due to the fact that they expect decision-making tends to be incre¬ respect to any given tour of duty. their stay in any one place to be mental and individual roles tend to An officer need not adapt more only temporary, a circumstance be defined by a highly developed than formally to the operational which makes it unnecessary, even set of regulations and operating pro¬ norms that characterize a post or to impossible, to make a complete ad¬ cedures. It is true that in recent the interpersonal relationships that justment and to sink very deep roots. years the Department has attempted grow up under a particular ambas¬ An additional result of this pattern to soften the impact of bureaucratic sador because these things are likely of transfer is that Foreign Service uniformity by providing specialized to be of little relevance at the next officers gradually acquire a “society training while, at the same time, it post. The same is often true of his of familiars”—people whom they has tried to recruit more officers mastery of languages and local af¬ have come to know as a result of with administrative interests. Yet fairs. In spite of the fact that more having served together here and these measures probably have not country and area specialization has there. As a consequence, officers de¬ come soon enough or in large been encouraged in recent years, the velop informal contacts within the enough doses to affect the internal dominant psychological reality of a bureaucracy and often outside the operations of the organization in a good many Foreign Service careers normal hierarchical channels. More¬ major way. Moreover, these at¬ is still frequent change in geograph¬ over, regular contact with foreign tempts at reform are likely to be ical location and working environ¬ embassies, dignitaries and those swamped by the very experiences ment. As a result, the Foreign Serv¬ close to important decision-makers that place a diplomatic career some¬ ice officer must maintain a more de¬ inevitably reinforces a self-image of what outside the usual bureaucratic tached and uncommitted attitude to¬ personal importance within the ma-

18 FOREIGN SERVICE JOURNAL, December, 1972 chinery of the Department. While see how these changes can come to ground for a while. The aggregate few officers would admit to feeling grips with what appears to be a result is likely to be an erosion of either independent or important, basic difference in perspective be¬ operational effectiveness and the re¬ their experiences must be viewed tween the institution and many of inforcement of that tension between alongside those of role holders in those who work within it. organization and personnel to which other bureaucracies. It seems fair These tensions within the diplo¬ we have been referring. to say that, if the obvious differences matic establishment do not merely The personnel problem of the in career pattern and life style have have the effect of producing frustra¬ State Department is not new. It has any effect at all, it is in the direction tion among the ranks of the Foreign always recruited a class of some¬ of increasing the officer’s sense of Service officer corps—the effective¬ what privileged and intellectual of¬ frustration as he seeks to operate ness of the entire organization is ficers and it has always put them in¬ within the organizational constraints inevitably affected. Most serious to a bureaucratic structure which of the Department. from the perspective of the State has imposed restraints and en¬ These incongruities between the Department (and most difficult to forced conformity. It could hardly realities of bureaucratic procedure counteract) is the officer’s lack of have been otherwise in the process within the State Department and the longterm commitment to a particular of trying to balance creative on-the- role socialization of Foreign Service role or post. This, in turn, has a spot problem solving with the need officers place a constant stress upon subtle and negative effect upon the for coordination and discipline in the conduct of the daily business of way in which that role is treated. the implementation of policy. Our American diplomacy. One of the Even with good will on the part of argument is simply that the increas¬ procedures of the organization which the officer, his attention is likely to ing size and complexity of the diplo¬ brings this strain into the open is the be focused upon the immediate and matic bureaucracy (as well as that system of career evaluation and pro¬ operational detail of his area of re¬ of the larger Washington bureau¬ motion. Here the crunch between sponsibility. Carefully prepared re¬ cratic environment of which it is a individual and institutional expecta¬ ports of the research division often part) has produced a qualitative tions sometimes becomes audible. become part of the files rather than change in the working environment The process by which superior ranks a part of the active frame of refer¬ of the Foreign Service officer which inferior with respect to his work and ence of the officer. The reasons are has accentuated the tension between personal style emphasizes the strict not difficult to find: time is short, the man and the structure. Decision¬ hierarchism of the bureaucracy and pressures are great, and there is lit¬ making is centralized as never be¬ the dependent position of the in¬ tle reward for the kind of detailed fore and the momentum of a large, dividual officer. Whether an officer’s analysis which an officer might bring computerized bureaucracy exerts a career is progressing normally or to his work after laborious study and constant demand for the elimination not, the evaluation process is not research. But most importantly, he of the unpredictabilities and idiosyn¬ usually far from his awareness. He knows that in a rather short time, crasies generated by men and knows that what really matters is he will be working on different places. And with every additional how one’s superior of the moment problems, with different people in twist of the bureaucratic screw, a views the effectiveness with which what may be a wholly different cul¬ greater pressure is placed upon the one’s current job within the organi¬ tural or functional context. officer corps. The irony is that as zation is performed and the skill Another negative impact upon tension has its impact upon both with which that work is blended with the Department’s performance is a effectiveness and morale, further re¬ that of others in the immediate bu¬ marginal tendency (which can be finements of bureaucratic procedure reau or group. A consciousness of important when multiplied through¬ are often thought to be the necessary elite status, a sophistication bred of out the organization) to avoid corrective. Ultimately, the only so¬ successful encounters with a whole making the compromises of individ¬ lution seems to lie in a still more spectrum of different assignments ual style which are often necessary careful coordination between the and foreign environments, and a in order to function effectively with way in which personnel are recruited sometimes dramatic sense of involve¬ one’s colleagues. When one’s tenure and trained by the Department and ment in important enterprises all within a bureaucratic establishment the actual requirements of the roles seem to conflict with the idea that is likely to be an extended one, it they will be expected to fill in the one’s evaluation should be based is essential to find a modus vivendi course of their careers. As military upon performance in a particular which will hold up over the long tensions are reduced among de¬ (and temporary) administrative term. Personal happiness and op¬ veloped societies and contact among post. Often there is resentment and erational effectiveness require it and them becomes more and more in¬ even a mild sense of betrayal that the individual is under some pres¬ tense, the State Department is likely the Department does not seem to sure to make the necessary accom¬ to play an increasingly prominent value the personal qualities which modation. These mechanisms and role as both the architect and the the officer thinks significant and pressures are weakened when officers agent of American policy. A solu¬ which seem to win approval within know they will work together only tion to the tension between the or¬ the informal culture of State De¬ for a rather short period. As a re¬ ganizational structure of the Depart¬ partment life. While some changes sult, effective working arrangements ment and the role orientation of its in the evaluation process have been may not be fully developed and in¬ officers is essential if it is to be ef¬ pushed forward in an attempt to compatible personalities and work¬ fective in meeting the challenge of ease this situation, it is difficult to ing styles may simply go under¬ its expanding obligations. ■

FOREIGN SERVICE JOURNAL, December, 1972 19 relations with China. This standard Bangladesh. Population too has pgjBODKSHELF work, sure to be found on almost all grown. The top fifth of population, required reading lists for college almost entirely urban, continues to Pre Ping Pong courses on China, is lauded by receive close to half of all income. quondam Ambassador to Japan and British officials and businessmen PEACE WITH CHINA? US Decisions for Harvard colleague, Dr. Reischauer, have been replaced by a still burge¬ Asia, ed. by Earl C. Ravenal. Live- as viewing “the Chinese people and oning indigenous bureaucracy. right, $7.50. the great flow of their traditions, and In these three countries the their current hopes and anguishes as United States has granted and IN September 1970, the Institute for a whole, clarifying what has hap¬ loaned about the same quantity as Policy Studies in Washington held a pened in the past and making more to all the republics in the Western conference to discuss and critique understandable what may transpire Hemisphere. Key advocates of high American policy in Asia, in general, in the future.” This book is a real aid levels to the subcontinent ar¬ and in relation to the People’s Re¬ bargain—no one interested in China gued for it both as a buttress of public of China, in particular. This should be without it. democracy and a way to move 20 book is the product of the confer¬ —ROBERT W. RINDEN percent of the world’s population ence. It presents papers by the 18 away from grinding poverty. Mad¬ participants—almost all of whom dison’s compact book shows how Woe in Calcutta have, at one time or another, occu¬ stony the path remains. He con¬ pied positions in the national secu¬ CLASS STRUCTURE AND ECONOMIC cludes that for this area “there is no rity establishment—followed by a GROWTH : India and Pakistan Since point in writing blueprints for social discussion which is often provoca¬ the Moghuls, by Angus Maddison. change, unless the bureaucracy it¬ tive and quite sharp in tone. In ad¬ Norton, $7.95. self is reformed.” dition to an Introduction and an Ep¬ —DAVID R. RAYNOLDS ilogue by the editor, the book is di¬ THREE hundred years ago Moghul vided into four major sections: The India produced as much as all of The Valley of the Gambia Nixon Doctrine: Disengagement or Western Europe, and travelers mar¬ MANDINGO KINGDOMS OF THE SENE- Confrontation?; Decision-Making for veled at cities which surpassed in GAMBIA: Traditionalism, Islam and Asia: Options or Compulsions?; richness the European capitals. The European Expansion, by Charlotte A. Economic Stakes: Profits or Losses?; opulence of the Moghuls was a Quinn. Northwestern University Press, and Approaches to China: Accom¬ model for emulation by European $10. modation or Containment? courts. Today, India, Pakistan and The conference was held during a Bangladesh together have a popula¬ SUPERFICIALLY, this is a study of period of rapidly changing US-China tion double that of Western Europe, political change in the Gambia river relations—before the visit of the but production and consumption at valley of West Africa. “Another Af¬ American table-tennis team to China, only a fraction of European levels. rican book,” you may think, “prob¬ before the seating of Peking in the Leading cities of the subcontinent ably turgidly written, smacking of United Nations and before Nixon’s are visited by foreign travelers to local history to the world at large.” historic visit to China. It is a credit savor urban disaster. If this be your reaction to yet anoth¬ to the authors that these develop¬ Mr. Maddison’s book gets at er in the flood of academic studies ments did not make the book obso¬ some fundamental measures of pouring forth from the once-dark lete. For the most part, the questions what has been happening in the continent, this small, readable vol¬ raised and discussed are just as valid subcontinent in the last three cen¬ ume may offer you, as it did me, a now as they were then. Because turies. Consumption shares changed pleasant surprise. most of the papers go beyond poli¬ somewhat under the British. In In West Africa, the 19th century cies themselves and tackle the more Moghul days an urbanized elite saw a violent attack on traditional general questions that relate to the (about 18 percent of the popula¬ ruling elites in the small kingdoms process of policy-making, Ravenal’s tion) consumed just over half the and city states by Muslim radicals collection should make stimulating available income. After World War out for political power and econom¬ reading even for those who might II the top 18 percent, still largely ic gain as well as for the conversion disagree with the essentially critical urban, shared about 44 percent of of the heathen. As this struggle was approach to the Nixon Doctrine in national income, with British offi¬ going on, European traders, mis¬ Asia. cials and businessmen in the place sionaries and soldiers tried to ex¬ of Moghul officials. Per capita con¬ —LEO A. ORLEANS pand their coastal footholds into a ditions, Maddison suggests, were predominant position in the interior little improved, though with ex¬ A Classic Revised in order to secure the peaceful sta¬ panded population, production too bility they felt was essential to their THE UNITED STATES AND CHINA, by was larger in the aggregate. special interests. In the rich Sene- John King Fair bank. Harvard Univer¬ One generation after independ¬ gal-Gambia river system this three¬ sity Press, $2.95 (paperback). ence, he finds scant change despite fold confrontation focused on the persuasive egalitarian political rheto¬ holy wars of a charismatic Muslim w IDELY regarded as the doyen of ric. The rate of production growth priest named Maba who created a America’s Sinologues, Professor seems to have increased somewhat, new political order while turning out Fairbank has again revised his high¬ with the rate of increase grading of the country a decadent ruling ly acclaimed, classic work on US upward as one moves west from class with long-established ties with

20 FOREIGN SERVICE JOURNAL, December, 1972 the Europeans. society itself. No one, of course, nettle, danger, we pluck this flower, The Mandingo, who dominated won in the Gambia and the world safety. Where he runs into difficulty the Gambia, were a virile, active was left with a magnificent water¬ is in his explanation of how and trading group and provided many of way politically segmented and why these carefully thought-out pol¬ the brilliant aspects of African his¬ economically annulled. icies ran into trouble, especially in tory now coming to be appreciated For the Africanist this is a Vietnam. by the western world—the empire groundbreaking study of an impor¬ It is unfortunate, though perhaps of Mali and the brutal exploits of tant political system during the peri¬ inevitable, that General Taylor Samory Toure, for example. Their od of the 19th century jihads. The should fall back on condemnation drama, in the setting of this book, is author, who did field research in the of youth and the news media to one of confrontation between cul¬ Gambia, has carefully synthesized explain the refusal of the American tures, of small and large “powers”— oral history and written source ma¬ public to support its leadership in¬ and the often horrid results of be¬ terials in West Africa, London and definitely in the bloody entangle¬ nevolent intervention from abroad. Paris, and has presented them in a ment of Indochina. General Taylor In the Senegambia, as in 19th cen¬ well thought through whole. turns a blind eye to the revulsion of tury South Africa and 20th century —STEPHEN VILLIERS the thinking American public at the Vietnam, interference in processes annihilation of the civilian popula¬ of political decay and renewal by A General’s Memoirs tion of Vietnam. He cannot see that European or other alien activists, the policies he advocated were in committed though they were on pa¬ SWORDS AND PLOUGHSHARES, by Gen¬ fact the direct cause of the mass per to a role of “non-intervention,” eral Maxwell D. Tavlor. Norton, disaffection that he deplores. One of resulted in strikingly similar patterns $10.00. the many melancholy consequences of weakness and disorder within the of this dismal decade is that the indigenous society. Support of one SWORDS AND PLOUGHSHARES is the career of this great soldier and side of the local struggle brought in memoir of America’s most distin¬ gentleman should end on so unhap¬ its wake an enervating dependence, guished living soldier-stateman: par- py a note. coupled with a blatant opportunism atroop commander, Army Chief-of- —CHARLES MAECHLING, JR. —and a lengthy delay in the evolu¬ Staff, personal military representa¬ tion of a new order from within the tive to President Kennedy, Chairman of the Joint Chiefs of Staff, Ambas¬ FR | COMPETITION sador to Saigon, consultant to three Solution of Ruth Nalls’ Diplomatic Presidents. Acrostic The August competition asking As might be expected by every¬ for clarifying remarks for famous •3[OIQ Aqojy JEjnSar E one who has had the privilege of and infamous historical statements SI jEuiojdip jEarS y Aqpouiuioa jo go knowing or serving with him, Gen¬ elicited the following: aqj ‘Aqgqixag jo auoqajBqM aqj ‘AJI eral Taylor’s book—obviously writ¬ -amp jo raqqnjq aqj—juauidinba ajoqM “Apres moi le deluge.” ten by his hand alone—is a crisp, “Good afternoon, Mrs. Jones, I’m aqj pug g.noA jEUioiclip B JO apqM factual and gracefully literate ac¬ E ui puE—go AgEnsn si JI jnq ‘aro . . . What’s that? You say you’ve count of his long years of military UOJI pug AEUI noA jnos sjBuiojdip E UJ been expecting me? How did you and diplomatic service. ... Yes, I’ll be happy to come in Sb6l > AjBnuBf ‘SHWix From a historical standpoint the ... You want me to see your bath¬ Majsj (juaoijiuSE most significant parts of the book room? O.K. . . . Oh, I see, it’s aqj UBUiiaps uiojg) UBUIU concern the author’s role during the -rajy g jjaqog (jo MaiAag) Kennedy and Johnson years. To this about to overflow. Well, do you jjaapBjg (siauEi)g :joqjny day few persons not privy to the have a wrench? ... Yes, of course I carry the tools of my trade, but ^HiqoN 'A inner councils of government in the uoggoqy n 1960s are aware of the enormous wrenches aren’t among them.” sugpj '1 influence exercised by General Tay¬ (Pause). “There now, it’s fixed . . . ASojoAqjqoj ’S lor over these two Presidents. Espe¬ How much do you owe me? Well siBpqug y cially interesting are the accounts you see, Mrs. Jones, I’m not the JSOOJ aqj agig £> plumber. I’m your candidate for qsgpquig g of the Special Group (Counter- Insurgency), the famous November Congress. You owe me one vote.” AEMPJJAJ 'O (Thought to self: Now get the hell Aong -jvj 1961 survey trip to Saigon, the jagmoqureg -jy planning leading up to the decision out of here before she hears that snpoxg '7 to escalate in Vietnam, and the Cu¬ gurgling again!) AEME JOQ yj ban missile crisis. “I’m tired of having to go to the jjnaaqjjjo f Naturally General Taylor takes airport to meet visiting Congress¬ jroddBy i the view that the policies that he men.” Setting: a bar in Abidjan. umiuuagiui aqj gq advocated, and the decisions he FSO talking with an American he uoijEpidarx ’O participated in, were the right ones met over a scotch and water. asiodinbg g “I’m tired of having to go to the IJB-Ji-Avouyj g in the circumstances of the time. He Biquiojog a makes no apologies for being a airport to meet visiting Congress¬ ajEgqiuuy -g hawk, except that of being a ration¬ men. Last post I was in, there was JBOI E JPH g al and prudent one, adhering to the this Congressman who flew half way Appnp-Appng -y maxim of Hotspur that out of this around the world just to shoot ele-

FOREIGN SERVICE JOURNAL, December, 1972 21 phants—he was a Democrat. Then Or, as the Quaker poet, Walt taining two (Freudian?) slips which there was one who wanted to hunt Whitman, wrote: “I celebrate my¬ should not be allowed to vanish into flamingoes—he had once been the self, and I sing myself / And what our computerized Lethe. Paragraph American Party’s candidate for Pres¬ I assume you shall assume / For 2 said, ‘British rep. in philosophic ident, and thought anything that red every atom belonging to me as good vain’ and a couple of sentences later just had to be Communist. Then belongs to you. ... I am large, I on, paragraph 4 quoted IBRD Pres¬ there was the one who wanted to contain multitudes.” ident McNamara as saying the Bank send a Masai spear back in the dip¬ On dit that, in a background (not had dispersed over $10 million in lomatic pouch. And the group who for attribution) briefing, the Court some country the name of which arrived at 4 a.m. and wanted to find spokesman disclosed to a few trust¬ doesn’t matter. a bar. ‘No briefing,’ they said, ‘We worthy members of the Fourth Es¬ “Not, so far as I can remember, don’t want to be brainwashed.’ . . . tate that His Majesty, vexed upon since an unfortunate British vice Did I meet this last group that came learning how his comment had been consul, shortly after the first World in? No. I was upcountry ... You misconstrued, muttered: “The bane War, visited Mount Athos to inves¬ were there? ... You are? . . . of my life has been literal-minded tigate rumors of unrest, and report¬ Waiter, another round for the Con¬ people. What do they want of me— ed that the monks were violating gressman, and give me the check.” that I should draw them a picture? their vows, only to have it reach At the Court of Versailles the I am no maker of sketches. I am London as ‘cows,’ have we had one Bureau of Public Enlightenment and Louis Quatorze, Le Roi Soleil— like this. I only wish I could cap Fuller Clarification issued the fol¬ Ye tat, c’est moi.” Harold Nicolson’s minute, ‘Sounds lowing press release concerning the Ten dollars to Marilyn Dexheim- like a case for a papal bull.’ But I statement attributed to His Majesty, er, legislative assistant to Senator reflect on that statesman’s advice Louis XIV: “L’etat, c’est moi.” Edward Brooke, for her imaginative never to write a funny minute and In remarking that “I am the double entry and our congratula¬ stop trying.” State,” His Majesty resorted delib¬ tions to Robert W. Rinden for his Surely others in the Foreign Serv¬ erately to hyperbole to underline inspired “Bureau of Public Enlight¬ ice have collected similar items and highlight his point, viz: His enment and Fuller Clarification.” which they would like to share. Ten Majesty, you, and I, we—all of us The December competition is set dollars to the best example, entries —are the State. “This land is your by William N. Turpin, who writes: by February 15 to FSJ Competition, land, this land is my land,” as the “A cable from one of our missions 2101 E St., N.W., Washington, D.C. song goes. crossed my desk the other day, con¬ 20037.

Steve and Martha make wicked martinis FOREIGN POLICY NUMBER 9, WINTER 1972-73, $2.50

3 Four More Years— THE SEA BELOW Of What? 132 Who Gets What David Watt On The Seabed? Evan Luard

148 Seabeds Make THE PRIMACY Strange Politics OF ECONOMICS Ann L. Hollick 18 Trade Policy Is Foreign Policy Richard N. Cooper 171 lapan’s Security: Balancing After 37 Power and Peace The Shocks How can you get off Steve and Martha’s Robert E. Hunter Albert Wohlstetter guest list?

You have friends like Steve and Martha. You go there you know you shouldn't. SPECIAL TO AFSA for dinner and they start pouring the biggest martinis Here's something you should know about Steve 55 Foreign Policy For MEMBERS around. And the strongest. and Martha. They invite people over so they can do Disillusioned Liberals One of theirs does what two martinis usually do. some good heavy drinking and call it social drinking Lincoln P. Bloomfield A two-year subscription to Because there's twice as much alcohol in every drink. How do you get off Steve and Martha's guest list? FOREIGN POLICY (8 issues) is And you get a sort of glow - right now. Before long Say no, thank you. available for $15.00, a saving everybody's forgotten all about dinner And to your If they press you, explain that you just can't drink 69 Is The Oil Shortage surprise, you're - well - smashed. that way. Hard feelings? Maybe. But let's face it. Real? of $5.00 over the newstand price and $2.00 off the regu¬ Then good old Steve just wanders off to bed. Steve and Martha have a problem. Don't let them M. A. Adelman Leaving you to find your way home. To drive when make it your problem. lar subscription rate. Send checks, stating that you 108 The Five Other Rules are an AFSA member, to Cir¬ If you need a drink to be sociaLthat’s not social drinking. C. Northcote Parkinson culation Service, Room 307, 1140 Broadway, New York, Nllk 117 The Arms Race N. Y. 10001. Checks should NMIONfcl ■ Is About Politics INSTITUTE V be made out to FOREIGN ON^lCOHOtB 4BUS4N0 ■ Colin S. Gray POLICY. ACOHOUSM! U.S. DEPARTMENT OF HEALTH, EDUCATION. AND WELFARE • Health Services and Mental Health Administration DEPARTMENT OF STATE'S ALCOHOL ABUSE PROGRAM Room 3644B, Extension 21843 Memorandum to the Administrative Officer I expect the cockroaches to be removed from my apartment imme¬ diately. Having resorted to all other measures, I intend to report this disgusting matter to the Ambassador if your staff does not act at once. The situation is intolerable for me, unhealthy for my family and em¬ barrassing for my guests.

Memorandum from the Administrative Officer Cockroaoh is the name applied to members of the Blattidae, a family of orthopterous insects with flat¬ tened bodies, long thread-like an¬ tennae and shining leathery integu¬ ment. I mean, let’s be sure we’re talking about the same thing. Do yours have shining leathery integu¬ ment? I recall the first time I saw a

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FORETON SERVICE JOURNAL, December, 1972 23 bathtub full of cockroaches. When I plywood cover, I found there were of the history of that bathtub full of arrived in Leopoldville in 1958, the thousands of them, each at least cockroaches, shouting and swearing, old Consulate General was located three inches long, swarming and the sweat streaming down his fiery in an ancient wooden house, a de¬ squirming, their bodies scraping to¬ face and soaking through his shirt. crepit construction standing creak- gether in a cacophony of horrid He’d tried everything, he told me. ingly on its last legs, while we sound, all trying to get to the top of He’d poured gasoline on them and waited for a new office building to the pile. The whole mass moved set them afire. He’d shoveled them be completed. My office was a like a small brown sea, complete into buckets and dumped them into bathroom. To make a typing table, even with waves, simulated by the the Congo River. He’d plugged up some ingenious soul had covered the fluttering of their antennae. the bathtub drain, their doorway bathtub with a sturdy piece of ply¬ “You were right,” I told the man. from the bowels of the earth, with wood (imagine what visitors used as “My table is full of roaches.” seventeen pounds of cement. He a chair), and although it wasn’t “So what do you want from me swore to me the cockroaches had comme il faut, this rather appealed now, you nincompoop?” blown out the fire, swum to safety to my idea of what life in Africa “Well,” I said, “perhaps we could from the river and eaten every should be. I noticed, however, that do something to get rid of them.” ounce of the cement. To complete my typing table made strange His face reddened and he his tirade, he gave me a very simple noises. New to the Foreign Service, screamed his answer. “Get rid of instruction. “Don’t you ever talk to I was a little timid when reporting them! How the hell do you propose me about cockroaches again, you the matter to the Maintenance to get rid of them, you nincom¬ nincompoop!” Officer. poop?” (He was a friendly man. I’d I went back to my office and my “Of course the damn thing makes only been at the post one day and cockroaches. In the weeks that fol¬ noise,” he said. “It’s full of cock¬ already he’d given me a nickname: lowed, until we moved to the new roaches.” “nincompoop.”) building, they actually became “Ha, ha,” I replied. I made a suggestion or two, rely¬ “my” cockroaches. It wasn’t unusu¬ “Ha, ha, hell, you nincompoop! ing on my admittedly limited knowl¬ al during that period to hear one of Go take a look!” edge in the wholesale slaughter of my seniors shouting down the hall: I went and I looked. The man insects. My colleague’s reaction was “God damn it, Russell, one of your was right—my typing table was full violent and sustained. For almost an cockroaches is in my office!” of cockroaches. When I lifted the hour, he recited chapter and verse One night I had dinner at an

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24 FOREIGN SERVICE JOURNAL, December, 1972 outdoor restaurant with one of we had so many scorpions I’m not cooking, all of it pungent with the the American secretaries. She had really sure. spices of the East. There was an seemed to me to be a fastidious, When we moved into our house almost constant odor of curry- rather prim, prissy and proper girl. in Algiers,- we noticed all of the flavored smoke filtering from their Imagine my genuine horror, there¬ beds were fitted with mosquito net¬ apartment into ours. The cock¬ fore, when in the midst of our meal, ting. I asked our landlord if the roaches filtered right along with it. I noticed a huge cockroach climbing mosquitoes were really that bad. They just didn’t care for curry. up the side of her glass of beer. I “Mais non,” he told me. “Zee li¬ The Frenchman on the other side stared, unable to speak or move. zards eat zee moustiques. Zee nets of us took a different approach. The thing completed its climb, bal¬ are for keep zee roach from zee bed.” When I asked him what he did anced for a ghastly second on the He wasn’t kidding. We learned to about cockroaches, he shrugged his rim of the glass, and then fell with fall asleep to the sounds of hun¬ shoulders and said, “But what else? a sickening plop into the beer. I’d dreds of the little beasts slipping One steps on zem.” misjudged that girl; she was real and sliding about on the marble Our Polish neighbor was no help Foreign Service. She looked down floors, their leathery integument shin¬ either. He told me I had roaches be¬ at her glass, calmly picked up the ing in the moonlight. cause I was a filthy capitalist. floundering cockroach by a leg, cas¬ Moscow had very special cock¬ Maybe he was right. In any case, ually dropped him to the pavement roaches. They seemed to like Amer¬ we had them. A whole army of the and just as calmly and casually ican food, particularly peanut butter creatures ate, worked, played, mul¬ crushed him under the heel of her and corn flakes, better than any tiplied and were seemingly happy in shoe. “I say, Russell,” she said, other. In the diplomatic compound our kitchen, oblivious to everything “was that one of yours?” Then she where we lived, there was a Pak¬ around them except the food in the drank off the rest of her beer. istani family on one side of us, a cupboards. I tried for a while to Thus began my long association French couple on the other and an train one of them to open cans for with the cockroach. It seems to me undetermined number of Poles be¬ me, but they chose to execute that they have been with me ever since, low. None of them seemed to be rather remarkable feat only in pri¬ wherever I’ve gone in the Foreign bothered with cockroaches. vate. In final desperation, we once Service. At only one post can I I think I eventually learned the had the kitchen fumigated with an remember there being none. I don’t Pakistanis’ secret. They were a large extremely powerful insecticide, but believe we had them in Libya, but family and the wife did a lot of the only thing killed was the cat.

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FOREIGN SERVICE JOURNAL, December, 1972 25 The roaches carried him away for us. To underline a specific point, he cockroaches in Sicily, he told me. Then there was the State Depart¬ brought his hand down sharply on Was I sure they weren’t termites? ment cockroach who came to din¬ the table and the cockroach departed He was very good at exterminating ner. I first noticed him between the for cockroach heaven. termites, he explained. Quickly soup and fish courses at a luncheon When the first few cockroaches seeing the light, I told him they probably were termites, the biggest in a Department dining room, where appeared in our apartment in Paler¬ the guest of honor and speaker was mo, experienced as I was by then, I anyone had ever seen, and sug¬ gested he come immediately before a well-known senator. The creature immediately called the landlord, (I mean the cockroach, of course) who promised to come at once. He someone else got the rare opportu¬ nity of exterminating them. Then he was dining with us. Scurrying under arrived eight days later. By then the became cautious. He asked me and around the Senator’s various first few cockroaches had become the first few hundred. I took the where these big bugs were located plates, he selected his lunch from and I confessed they seemed to be among the tidbits that fell near him. landlord to the kitchen, which I had mostly in the peanut butter and the After dessert (the cockroach purposely kept dark to confuse the cockroaches and lure them from corn flakes. “Issa no termite eat seemed pleased with the mousse au peanut butter anna corn flake. Must chocolat), the well-fed insect es¬ their hiding places in the peanut butter and corn flakes. be stupido Americano bugs.” caped the table clearing and clean¬ My long experience with the “Mamma mia!” he shouted. ing activity that followed by hiding Blattidae family has taught me “Whosa put bugs inna kitchen?” —cleverly, I thought—in the shadow much about them. For instance, I’m “That’s what I called you about,” cast by the Senator’s brandy glass. convinced you can neither lick them I said. After our guest (I mean the Senator, nor join them. You must learn to of course) began his talk, the cock¬ “Why calla me? Calla bug man, appreciate them, even to admire roach ventured out from his hiding an calla quick. Bugs issa make dirty them. Although they are usually place, I suspect to take a last look all over stove. I’ma buy stove new is viewed with disgust, cockroaches around for any remaining spots of only thirteen year. You getta bugs are not devoid of interest. They mousse au chocolat. That proved to outta kitchen subito or contralto ka¬ rank as the most primitive of all be a fatal mistake. The Senator had put. Bugsa go, you okay stay. Bugsa winged insects, for example, and quickly launched into a tirade on stay, you go. Bugsa no good inna they are among the oldest of all some burning issue of the day and house. I’ma talk last word!” the fossil forms. Do you really was gesticulating in a fashion remin¬ I called the bug man and ex¬ want us to go about killing off future- iscent of his Mediterranean ancestry. plained my problem. There were no fossils? ■ DON'T buy, sell or rent property in northern Virginia BEFORE you talk to PAUL PRENTICE —former foreign service officer —twelve-year resident—alexandria KEY YOUR TRANSACTION TO YOUR ETA/ETD for consultation — no obligation — call or write: PAUL PRENTICE agent for JAMES DUNCAN, REAL ESTATE 122 NORTH ALFRED STREET, ALEXANDRIA, VIRGINIA 22314 OFFICE (703) 548-8400 HOME (703) 549-3232

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26 FOREIGN' SERVICE JOURNAL, December, 1972 INTO WAR He was, and gave the clear impres¬ war by Churchill who, advancing from page 16 sion of being, much nearer the a somewhat medieval interpretation have come into force. We indicated, center of power than any other Rus¬ of history, argued that Stalin wanted as plainly as the language of diplo¬ sian Foreign Minister with whom to help Benes because in 1936 the macy would allow, that what mat¬ I have had dealings, and he had latter had revealed a plot against his tered was not the formality of the been at his desk in the Kremlin in life. The murders and massacres of Pact but the reality of the aid. To the first week of September. . . . his regime hardly reveal Stalin as so what extent was the Russian army Appreciations arriving at the Foreign warm-hearted a man even in matters mobilized and its air force ready Office from our Embassy in Mos¬ concerning his own family. Nor was to assist the Czechs? Litvinov said cow warned that the great purges this hypothetical affection and af¬ that he could not tell us this: he of 1937 had had a disastrous effect finity reciprocal. As Benes told the was not posted on military and air on the morale and efficiency of the French Ambassador in Prague, and questions “since he had been away Red Army which, “though no doubt as Litvinov admitted more or less from Russia for such a time. . . .” equal to a defensive war within the explicitly to the League, the Czechs I was left in no doubt that the frontiers of the Soviet Union, is not did not wish to accept Soviet inter¬ Russians themselves did not mean capable of carrying the war into the vention unless France acted first. business. Litvinov had been deliber¬ enemy’s territory with any hope of Many Czechs had fought against the ately evasive and vague, except ultimate success or without thereby Bolsheviks in 1918 and feared Soviet when he had said that if France running the risk of endangering the domination. General Jan Syrovy is acted the Soviet would act too. regime.” We now know that pre¬ on record as saying, “We don’t want Since his conversations with his op¬ cisely similar appreciations were the Russians in here as we shall posite number had been far more reaching Berlin from the German never get them out.” Though, in the numerous and dispiriting than mine, Ambassador. light of subsequent history, no senti¬ this was tantamount to saying that Nevertheless, the theory that we ment compels readier or sadder as¬ if Bonnet threw himself off the Eiffel deliberately “excluded Russia from sent, it was of secondary significance Tower Litvinov would be there to Europe” and that this played a deci¬ to the British in 1938. For us the catch him. It seemed to me pre¬ sive part in the ultimate tragedy criterion was whether Russia in¬ posterous for him to pretend ignor¬ was widely held by political opinion tended to oppose the German army, ance of Soviet military preparations. at home. It was endorsed after the whether indeed she could afford to

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FOREIGN SERVICE JOURNAL. December, 1972 27 fight. My interview with Litvinov squadrons of modern eight-gun But I stress them here both because only confirmed our conclusion that, fighters, and a year later 47. Our they undoubtedly constituted the both on political and military ground defenses against air attack most important defense achieve¬ grounds, the USSR could not be were also substantially strengthened ment between Munich and the out¬ trusted to wage war in defense of in this period. The provision of anti¬ break of war and because, though interests that were not bound up aircraft guns was increased fourfold we now know that the figures of with her own security. . . . to 1,653, of which more than half German strength quoted by our pro¬ The worm-eaten fabric of French were the newer 3.7- and 4.5-inch fessional advisers and our critics political society and the self-seeking guns, and barrage balloon defense alike to have been greatly exagger¬ duplicity of the Soviet regime would was completed in London and ex¬ ated, they did provide the indispens¬ have combined to leave us alone to tended outside. More important was able means by which we won the face at close quarters the onslaught the fact that, by the time war broke Battle of Britain. . . . Nor was the of the Luftwaffe. But the crucial out, the chain of radar stations, military breathing-space the only change that came about as a result which during the Munich crisis had gain. There were subtler but equally of the year’s delay was in our pre¬ been in operation only in the Thames significant changes of opinion at paredness to meet this onslaught. estuary, guarded the whole of Britain home and abroad. . . . There could The “special importance of prepara¬ from the Orkneys to the Isle of no longer be any doubt in any mind tion in the air and of developing Wight. Meanwhile, the administra¬ that the ambitions of Germany the passive resistance of our popula¬ tive talents of John Anderson had stretched far beyond its ethnic tion,” which had been my theme at wrought corresponding transforma¬ frontiers and that it had indeed, in Chatham House in April 1938, tions in civilian ARP, and plans for Chamberlain’s phrase, “made up its proved indeed to be the key factors. evacuating schoolchildren and find¬ mind to dominate the world by fear In September 1938 the RAF had ing emergency hospital beds were of its force.” These considerations only one operational fighter squad¬ completed. affected not only the will and con¬ ron equipped with Spitfires and five These preparations extended to science of our own people but the in process of being equipped with the pace and scope of British re¬ attitudes of Commonwealth govern¬ Hurricanes; by the summer of 1939, armament generally, as Professor ments and of enlightened leaders in thanks to Lord Swinton’s earlier ten¬ Postan has described in his official foreign countries, most notably in ure of the Air Ministry, it had 26 history of British war production. the USA. ■

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FOREIGN SERVICE JOURNAL, December, 1972 29 system, but interstellar travel is of a extremely long observed times on time. In any case, the transmitter different order of magnitude. We Earth, we should note Maxwell question may be of diminishing rel¬ simply do not have the capability to Hunter’s comment that “perhaps the evance as man spreads out from his negotiate on anything approaching most intriguing question among the solar system in interstellar vehicles, equal terms with a space-faring engineers and scientists of the future increasing the probability that we power. will be the desirability of an assault will encounter another civilization, The only way we can achieve on the light barrier.” or that it will detect our probes. even a modicum of bargaining pow¬ Robert Goddard once said about In the long run, detection of an er is to develop our own space- space travel: “There can be no extraterrestrial civilization is proba¬ faring capability. Shklovskii and thought of finishing, for aiming at bly inevitable. If we detect them Sagan concluded that efficient inter¬ the stars, both literally and figura¬ first, we must evaluate their scien¬ stellar spaceflight to the farthest tively, is the work of generations.” tific and technological level and reaches of the galaxy is a feasible While we are developing our star- guess at their intentions before mak¬ objective for humanity, and that, faring capability, our best course is ing the great decision: do we send a after the initiation of an interstellar to listen—to develop an organized, message or not? That decision could exploration program, only a few systematic, long-term program of involve us in a dialogue of cen¬ more centuries would be required to searching for signals that may indi¬ turies; it could risk human survival; place small, automatically con¬ cate intelligent life elsewhere in our or it could bring an incalculable trolled probe vehicles in orbit galaxy. richness of knowledge, physical in¬ around all stars which are likely to Sagan argues that it is of no use strumentalities, and cultural growth, have habitable planets within a ra¬ to maintain an interstellar radio and open the door to a Galactic dius of 100 light years. Probes could silence because radio signals have society. On this relationship we be followed selectively by manned already been sent unintentionally. could build an unprecedented ex¬ spacecraft. In addition to achieving This is not completely convincing; pansion of human potential, and scientific objectives, such a program the signals are relatively weak and participate in that millennial effort would advance our spacefaring ca¬ diffuse, and the nearest advanced to reverse entropy that may be the pability. While the time/distance civilizations may not be searching ultimate task of Galactic civilization. equation could be a limiting factor for signals in radio and TV wave¬ We must be as ready as possible be¬ because long voyages would mean lengths in this direction at this fore the negotiations begin. ■

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FOREIGN SERVICE JOURNAL, December, 1972 LETTERS continued from page 2 reads: have the potential to move upward of a continuing lateral entry pro¬ “To give the news impartially, to more responsible positions in the gram at all levels, etc. without fear or favor, regardless of Foreign Service. This screening Something is still wrong. Maybe any party, sect or interest involved.” process, involving such judgments, is Mr. Macomber should establish Perhaps this explains my attitude strong support for the adoption of a Task Force Fourteen to deal with which is wholly non-partisan. I am semi-automatic system. the “interpersonal underworld” Huff familiar with the handling of situa¬ Tenure (job security) and the describes so vividly. tions of controversial character, and threshold go hand-in-hand. The ten¬ For an earlier description of this know that one way or another, it ure feature is a strong argument phenomenon see William C. Schutz, can be accomplished to the satisfac¬ against those who feel we need the tion of all. present “competitiveness” to ensure HARVARD BUSINESS REVIEW, Vol. 36, No. 4, July-August, 1958, pp. GAY TOMLINSON high performance. By adopting ten¬ 123-135. “In every meeting of two Tangier ure, the Service has said that a se¬ or more people two levels of inter¬ EDITOR’S NOTE: Our cover was planned cure position will not destroy an action occur. One is the overt-—the for non-partisan coverage of the two officer’s incentive to perform well. play that is apparently being played. major party conventions, with the ob¬ This is an admission by manage¬ jective of getting out the vote in the The other is the covert-like ballet ment that the competitive argument national election as well as the Execu¬ is invalid. It strengthens Ed’s argu¬ going on in back of the performance tive Order election. Unfortunately, we on the interpersonal stage—a subtle ment that Foreign Service officers were able to get an extremely com¬ are highly motivated without the axe struggle for attention and status, for plete set of photographs in a reason¬ control and influence, and for liking able time from only one party. For over their necks. and warmth. This ballet influences the other photos we were forced to EDWARD R. STUMPF the performance by pushing the resort to a free-lance photographer Washington overt players into unusual postures who had an incomplete collection. Bird Watchers Unite and making them say and do un¬ Given a greater lead time, a larger ■ I have been asked by my diplo¬ budget or more staff, the JOURNAL usual things. Thus, the objective, would have done better. Given a larger matic and ornithological colleague, hardheaded executive is overtly very budget and better organization, the Sir Anthony Lambert, KCMG, re¬ resistant to a splendid idea suggested other party might have done better. tired Ambassador from the UK Dip¬ by the brash young fellow who may lomatic Service and now Chairman someday replace him. But this ex¬ More on Promotions of their Diplomatic Service Orni¬ ample is much too obvious. The bal¬ ■ After reading Ed Cohen’s article, thological Society, to apprise mem¬ let’s effect on the actors is usually “Rank Injustice,” I can only say, bers of the US Diplomatic Service more subtle.” “Right on, Ed!” Mr. Cohen’s well of the existence of this organization. reasoned argument should alleviate HARRIS H. BALL It had, as of last year, over 110 Washington much of the scepticism regarding a members in 52 different countries. semiautomatic promotion procedure. A list thereof is available from the Congratulations and a Query His proposal is both logical and fair Hon. Secretary, Mr. B. P. Austin, ■ Many congratulations for your and deserves serious consideration Latin American Department, For¬ new format, and general lay-out of by all in the Foreign Service. eign and Commonwealth Office, the magazine. It is vastly improved, I believe his argument could have Downing Street, SW1, London. This to what it was some few years ago. been strengthened even more by list is arranged alphabetically by We were just a little shocked over considering in greater depth two new last name, then post. I am suggest¬ the cover of your October issue, an developments in our personnel sys¬ ing that they also arrange it by amusing contrivance of political ka¬ tem—the threshold review and ten¬ continent, country and post, for leidoscopic photography, which con¬ ure. It will be more difficult to avoid ready reference. The Society puts tained NO “shot” of Senator George a semi-automatic system now be¬ out an interesting mimeographed McGovern, the Democratic Can¬ cause such a system is a logical con¬ Newsletter with short articles on didate. Discretion, and fairness, sequence of the adoption of these birding in different parts of the would not have made this omission two features. world, e.g. from the US as seen by a possible, on the part of the “organ” The junior officer threshold is de¬ visiting Britisher, to Victoria Island of the American Foreign Service, signed to ensure that only those offi¬ off Lagos. It also prepares “Post which stands at all times for non¬ cers capable of adequate perform¬ Reports” which sound interesting. partisan dealing with such questions, ance in the middle grades reach Secondly, I should like to put and representation. As the wife of a those grades. Assuming the proce¬ forward for consideration the idea retired Consul General, I am not un¬ dure in fact performs this task (and of our forming a similar organiza¬ aware of the need to adhere to such is not used as a vehicle to induce tion in the US Foreign Service. a code. officers to make functional cone Readers who have any interest in I am reminded of the credo of the changes), officers promoted to class such a project as that sketched New York TIMES, a guiding phi¬ 5 have been judged, as Ed argues, briefly above or who have alterna¬ losophy to all its staff, a paper with essentially similar in ability. tive suggestions are requested to get which for many years my father, In addition, the threshold proce¬ in touch with me at the address and later I, were associated. The dure addresses itself to an officer’s given below. text, which hangs on the office wall “promotability.” Officers who pass MAX E. HODGE beneath the bust of Adolph Ochs the screening process are deemed to Johannesburg

FOREIGN SERVICE JOURNAL, December, 1972 31 positions requiring knowledge of international affairs and P3J EDITORIAL executive leadership. Not only when they serve as Am¬ bassadors are they responsible to the Commander-in- Chief. Frank Carlucci is a very active Foreign Service officer. Letter to the Editor of The Washington Post William C. Harrop The POST usually refers to Frank Carlucci, Deputy Chairman, Board of Directors Director of the Office of Management and Budget, as a “former Foreign Service officer.” In fact, Mr. Carlucci is an active career FSO whose present assignment is to FABLE a senior position on the White House staff. All FSOs and FSIOs (Foreign Service Information FRI Officers of USIA) are presidential appointees subject to Senate confirmation. The President may take advantage of their expertise wherever it is most useful to him. Our Foreign Service Officer Corps is the American institution Why Some Negotiations Never Get off the Ground most like the French lnspecteurs de Finance, from whose number France has traditionally drawn senior govern¬ © 1972 by Robert Ehrman ment and diplomatic officials. The Foreign Service of the United States is currently ONCE there was a flying crane that tired of flying for the source of 91 of our 116 American Ambassadors the Audubon Society. So he decided to give up flying and abroad and of all our Deputy Ambassadors. take up sitting. But he soon found out that when you sat About one half of this small Corps is assigned to long hours, your wings would ache and your feathers Washington, but by no means all in the State Depart¬ pinched. ment. One day the crane saw a sitting duck. “This duck,” FSO Deane Hinton is Assistant Director of the Coun¬ thought the crane, “looks so comfortable sitting perhaps cil on International Economic Policy. Ambassador Philip I could learn the secret of sitting from her.” J. Farley is Deputy Director of the Arms Control and “Good day,” said the crane. “I envy your sitting— Disarmament Agency, where James Leonard is Assistant you do it so well. Will you help me to sit just like you?” Director. Lawrence S. Eagleburger is Deputy Assistant “Alas,” said the duck, “I could show you all right, but Secretary of Defense for International Security Affairs. I’m tired of sitting for hunters. I want very much to give Ambassador William Leonhart is Deputy Commandant up sitting and fly like you.” of the National War College. Ambassador William J. The crane was nonplused. A flying crane wants to sit. Porter is Chief American Negotiator in Paris when A sitting duck wants to fly. What to do? Henry Kissinger is not at the table. For a moment or two the crane was silent. Then he Dr. Kissinger’s own lieutenants are Foreign Service said to the duck: “I have an idea. Why don’t we get mar¬ officers: John Negroponte for Southeast Asia, John Hold- ried? As husband and wife we’ll be spending some time ridge for China, and Helmut Sonnenfeldt for the Soviet together. You teach me to sit, I’ll teach you to fly!” Union. In fact, a good half of the foreign affairs pro¬ The duck was delighted and cried: “Let’s marry right fessionals on the National Security Council staff are now!” FSOs. They married and mated, and then the duck said: The Assistant Director of the Office of Foreign Eco¬ “Now show me to fly, then I’ll show you to sit.” nomic Policy in the Labor Department is FSO Peter “Oh, no,” said the crane. “First show me to sit, then Seip. Stanley Carpenter is Deputy Assistant Secretary of I’ll show you to fly.” Interior for Territorial Affairs. Twenty FSOs occupy re¬ For many a week they argued like that. Each was in¬ sponsible positions in the Commerce Department. Others sisting the other teach first. They quarreled and quarreled are in the Departments of Agriculture and Justice, the but neither would budge. They quarreled so much, they Council on Environmental Quality, the Treasury, the almost forgot that the family would soon be enlarged. Office of Economic Opportunity, the Federal Reserve When the fledglings arrived, there were six. Three and elsewhere. looked like ducks that were trying to fly, three looked Altogether, at home and abroad, there are only 3000 like cranes that were trying to sit. Foreign Service officers and 900 Foreign Service Infor¬ “Oh, boy,” said the crane, “now we have four who will mation officers, supplemented by economic development learn how to sit.” professionals in AID who still await career status. “Oh, no,” said the duck, “now we have four who will This tight Corps is a precious resource of expertise in learn how to fly.” the complicated substance of international problems— The fledglings long since had departed the nest—three economic, political, commercial, strategic and cultural. flying ducks, three sitting cranes—but the aging parents Presidents rely in varying degree upon the different bu¬ disputed their points to the end of their days. In the hour reaucracies of government for their foreign policy sup¬ of death, the doddering duck was heard to say: “I wanted port. But all Presidents will need experienced profes¬ so much to sigh like a crane.” And I,” said the crotchety sionals. crane, “to flit like a duck.” Foreign Service officers are available for assignment Once there was a dark horse who met a lame duck. throughout the Government, as the President wishes, to But that’s another story. ■

32 FOREIGN SERVICE JOURNAL, December, 1972 Special Tax Information for Foreign Affairs Personnel

The following is an updated moving expense for the first 30 2. Unreimbursed Transfer Ex¬ compilation of federal income tax days. Families of three or more penses: There are certain ex¬ information relevant to Foreign persons are eligible for the Sup¬ penses generated by Foreign Serv¬ Service employees published in plementary Post Allowance over¬ ice transfers which are not eligi¬ these columns since January, seas while in temporary lodging. ble as “moving expense" deduc¬ 1971. Since this allowance covers meals, tions, but which are nevertheless reduce your 30-days meal cost legitimate “employee business ex¬ 1. Mdeduction accordinglyoving Expenseif you areDeductions: penses” that can be deducted on Moving expenses are those out-of- granted this allowance. Employ¬ line 43 of form 1040. These ex¬ pocket costs related to the move¬ ees arriving in the US from an penses are reimbursable by the ment of people and effects from overseas location are eligible for Government under section 221(2) one post of assigment to another. a 30-day temporary lodging allow¬ of P.L. 86-707 of September 6, The move must be at least 50 ance, but not for meals. You may 1960. Effective October 25, 1972, miles, and the new assignment deduct 30 days worth of meals these expenses will be reimbursed must last at least 39 weeks after and any temporary lodging costs for all overseas transfers under arrival. Moving expenses are en¬ up to 30 days over and above the the so-called "expanded transfer tered on Form 1040 at line 42, and first 30 days paid by the Govern¬ allowance.” These expenses were may be deducted as an adjust¬ ment. New employees coming to not reimbursed prior to October ment to income even if the tax¬ Washington on first assignment 25, 1972; and are therefore deduc¬ payer takes the standard deduc¬ can deduct the first 30 days tible. Examples of such expenses tion in lieu of itemizing. A copy of temporary lodging, including are: of travel orders or other proof of meals, for the entire family. New (a) The re-wiring or replace¬ transfer should be supplied. officers who received per diem ment of appliances due to a The following expenses are eli¬ while at FSI after July 1, 1972 change in type of electrical cur¬ gible as moving expense deduc¬ should reduce their claim by the rent. tions: amount of the per diem. (b) Extraordinary clothing ex¬ (a) Cost overruns beyond the (i) Expenses incident to the penses which would not have maximum allowances for house¬ sale of a residence or the settle¬ been generated without the trans¬ hold effects, accompanied bag¬ ment of a lease at the old job fer. gage in aircraft, and unaccom¬ location, or to the purchase of a (c) Extraordinary expenses of panied air freight. residence or the acquisition of a moving into your overseas resi¬ (b) The extra cost of traveling lease at the new job location. dence, including the installation first class in lieu of economy class Examples of deductible expenses of light fixtures and switches, on aircraft. in this category are attorney fees, bathroom fixtures, and the cutting (c) The cost of transporting a real estate agent commissions, of rugs and drapes to make them family member who may be ineli¬ title costs, appraisal fees, escrow usable in the new residence. gible to travel at government ex¬ fees and penalties for terminating (d) Miscellaneous expenses to pense. a lease prematurely or with in¬ the transfer process. (d) The cost of transporting sufficient notice. Not deductible Reimbursement under the ex¬ household pets. are tax, interest or rent payments. panded transfer allowance will (e) The cost of transporting “Points" are considered interest. have a maximum of about $950 more than one automobile, or a Also prohibited are charges for for married employees and $450 single automobile which the gov¬ storage, refitting rugs and drap¬ for single employees. Costs above ernment refuses to transport (i.e. eries, and repairs designed to these maxima will therefore be a foreign made car back to the make a house more salable. deductible after the effective date USA after January 1, 1973). Limitations: of the expanded transfer allow¬ (f) The cost of meals and lodg¬ In addition to the 50-mile and ance. Your administrative officer ing in transit which are not com¬ 39-week limitations, there is a should certify that the expenses pletely covered by your per diem $2,500 maximum on deductions were related to the transfer and allowance. for "indirect costs” such as 30-day are legitimate employee business (g) Traveling, meal and lodg¬ temporary living expenses, pre¬ expenses. Employee business ex¬ ing expenses for premove round move house hunting trips, and ex¬ penses can be deducted as an in¬ trip house hunting trips to new penses incident to the acquisition come adjustment even if the tax¬ location for the employee and and disposal of living quarters. payer is taking the standard de¬ spouse. This is especially impor¬ Within this maximum, there is a duction in lieu of itemizing. tant for transfers between two sub-maximum of $1,000 for house locations within the United States, hunting trips and post-arrival tem¬ 3. Unreimbursed Representation but is also allowed for overseas porary living expenses. "Direct Expenses: Representation funds transfers. costs” related to transporting peo¬ are in very short supply, so many (h) Expenses for temporary lodg¬ ple and effects, including hotel employees in all foreign affairs ing and meals in the new location and meal costs in transit, have no agencies have to conduct official for the first 30 days after arrival. maximum. If the required 39-week entertainment at their own ex¬ At overseas locations, incoming period after arrival is not fulfilled pense. These out-of-pocket costs F. S. employees are eligible for for unexpected reasons (death, in¬ are deductible as “employee busi¬ 90 days temporary lodging allow¬ voluntary separation, medical ness expenses” on line 43 of Form ance covering hotel cost, but not evacuation, etc.) the deduction is 1040. Your administrative officer meals which are deductible as a still allowable. should certify that the expenses

FOREIGN SERVICE JOURNAL, December, 1978 33 were necessary for the conduct of common charitable activity, can lowance since IRS will not change your official business. arrange to make their contribu¬ its mind short of another court In order to conserve scarce tions to an American organization, test. funds, some posts have a rule which in turn could disburse If a delayed refund is not a that at least 50 percent of the funds back to the local charity, problem, you should consider ap¬ guests at a social function must it’s deductible. pealing as high as possible within be non-Americans to qualify for If you claim a foreign charity IRS. A court decision might inter¬ reimbursement. Some employees, contribution as a certified “em¬ vene in your favor prior to the end however, must also spend consid¬ ployee business expense,” claim of the processing. erable time and resources with it on line 43. If you contribute If your home leave deduction visiting Americans. This is espe¬ through an American organization, claim is for less than $1,000, you cially true for economic and com¬ claim it as a “charity” contribu¬ might consider challenging IRS mercial specialists, and consular tion which can be done only if in the Tax Court under “small tax officials outside the capital city. you itemize on Schedule A. case” procedures. We have some Entertainment of visiting Ameri¬ indication that IRS may not wish 5. Home Leave Deductions: The cans for official business pur¬ to fight this problem under “small majority of Foreign Service em¬ poses is a deductible expense if tax case” procedures and could ployees who claimed home leave rules at your post require 50 per¬ grant the deduction on that basis deductions in 1972 on the basis cent foreign participation for re¬ to individuals. If you are overseas, of Stratton vs. IRS (US Court of imbursement. you have 150 days after the final Appeals, Ninth Circuit, No. 24,808, Representation expenses are notice of disallowance to file a Sept. 1, 1971) were successful. deductible as an adjustment to petition in the Tax Court (90 days They were successful, however, income and can be deducted even if you are in the US). because their returns were not if the employee takes the stand¬ Small Tax Case petitions are audited. Audited returns resulted ard deduction in lieu of itemizing. filed on a simple form number a-S in disallowances because the which is available from the Clerk 4. ContributionsCommissioner to Foreign of Internal Chari¬ Reve¬ of the Court, US Tax Court, Box ties: Federal income tax regula¬ nue has refused to acquiesce in 70, Washington, D.C. 20044. tions do not permit deductions the Ninth Circuit Court decision. for direct contributions to foreign The Commissioner will not acqui¬ 6. Training Expense Deductions: charities. Yet most Foreign Serv¬ esce until there is another court Training expenses for Foreign ice employees stationed abroad test in another circuit court juris¬ Service employees should be con¬ find it impossible to avoid con¬ diction. AFSA has decided to sidered in two categories: (a) tributing to local causes such as support such a court test and is those related to actual TDY as¬ the churches they attend, charity opening a fund drive which is dis¬ signments to the Foreign Service drives promoted actively by the cussed elsewhere in this issue. Institute between two overseas local governments, and the local What do AFSA members do posts, and (b) university training equivalent of organizations which while waiting for the next court assignments for a full academic are familiar to us in the United test, especially if they took home year. States. leave in 1972 and will be filing (a) FSI Training There are two tax deduction returns prior to June 15, 1973? If you are taking a course at methods currently utilized by For¬ AFSA recommends that a claim FSI between two overseas posts, eign Service employees with re¬ for deduction of home leave ex¬ you are probably on TDY. Your spect to foreign charities which penses be included in the return household effects are moving be¬ AFSA members may wish to note. covering 1972. Since most returns tween the two overseas posts, but First, some employees are claim¬ are not audited, most of the your family is with you. Per diem ing certain charities as unavoid¬ claims will not be challenged. has been authorized, but only for able business expenses related to AFSA members need not feel you and not your accompanying the proper conduct of the busi¬ guilty about obtaining the deduc¬ family. In addition, the per diem ness of diplomatic representation. tion in this way, in view of the is cut in half after 21 days, and If it is clear that employees at Ninth Circuit Court decision. falls to zero after 90 or 120 days. specific diplomatic posts or con¬ How do you claim the deduc¬ The per diem rate is not equit¬ sular districts cannot function tion? Deductible expenses in this able. The loss you take on this adequately without contributing to category are the costs of lodging, insufficient per diem for you and local charities considered ex¬ meals and transportation while on your family’s living expenses is tremely important to local cus¬ official home leave. If you stay in deductible as an employee busi¬ tom, a business expense deduc¬ a hotel, deduct the actual cost of ness expense on line 43 of form tion is clearly called for. Certifica¬ the room. If you rent a car, the 1040. The best way to calculate tion by an administrative or rental cost is applicable. For expenses is to keep track of principal officer would certainly meals, the best rule of thumb is actual lodging costs (keep re¬ be helpful in convincing a skepti¬ $10 per day. Since the Court de¬ ceipts) and add five to ten dollars cal internal revenue auditor. cision said that the deduction a day for food per person depend¬ AFSA is aware of one successful applies only to the employee’s ex¬ ing upon where the meals are claim under this category. penses, it would be advisable not taken. Subtract the total amount Second, some employees have to include the family’s expenses of per diem actually paid, and arranged to contribute to foreign until further clarification is you have the deductible amount. charities through American char¬ achieved in the courts. Home Another cost to factor in as an itable organizations. Many Ameri¬ leave expenses are included in expense is transportation if the can organizations, especially re¬ "employee business expenses” on government is shipping your fam¬ ligious, are already engaged in line 43 of form 1040. ily car directly to the next over¬ disbursing tax deductible funds What if they are disallowed? If seas post. The cost of car rental, abroad. If Embassy personnel, es¬ the lengthy appeals process will or the loss you take after you pecially those attending the same delay your refund, it would be ad¬ sell your temporary car is de¬ church or engaged in another visable to acquiesce in the disal- ductible. Obtain a certificate from

34 FOREIGN SERVICE JOURNAL, December, 1972 FSI indicating you are on official major areas of out-of-pocket out¬ have been instructed to disallow TDY, that per diem is not author¬ lays which most Foreign Service all home leave deduction claims, ized for the family, and that your employees experience regularly. except those filed on the West per diem is limited to a certain There are other expenses for offi¬ Coast. number of days. cial business purposes, however, AFSA has good reason to be¬ (b) University Training which undoubtedly have not come lieve that the IRS will acquiesce If your training assignment is to our attention, but which never¬ if it loses a second court test on for less than 12 months, and the theless exist and which should be home leave deductions in another government does not ship your claimed as legitimate deductions. Circuit Court. The victory in the household effects and car to you One recent example came out Ninth Circuit Court indicates we at the university location, treat all of a federal district court ruling stand a good chance of winning lodging, meals, laundry and trans¬ that a former State Department a second time. In any event, the portation expenses as deductible inspector can deduct as a busi¬ fact that every employee of the in the same way as FSI training ness expense the cost of taking Foreign Service in AID, USIA and described above. his wife on two foreign trips. State must take statutory home If the government does ship Other inspectors can now make leave regularly argues for a sec¬ your household effects, car and the same claim. In a related area, ond court challenge. There is no family to the university location, 6 FAM 127 allows government out-of-pocket expense in the For¬ and the assignment is for less financed “travel of family for rep¬ eign Service that is more univer¬ than 12 months, you are operating resentational purposes." If an em¬ sal. in a gray area as far as tax deduc¬ ployee takes the family on a busi¬ The AFSA Board of Directors tions are concerned. Some IRS ness trip for representational pur¬ has decided to assist an AFSA offices have allowed such moves poses and is not reimbursed for member in initiating a second to be considered as “temporary the expenses, a deduction is pos¬ court challenge on home leave absences from the tax home for sible. deductions, but unfortunately does business purposes,” but some There are many other out-of- not have the estimated $10,000 have refused, calling such moves pocket expenses which each indi¬ required to help finance the case regular transfers or changes of vidual employee should consider through the Tax Court and Court station. as possible deductions if they can of Appeals. We are therefore ap¬ If you wish to claim living ex¬ be clearly related to official busi¬ pealing to AFSA members and to penses during university training ness. Use of personal automobiles other interested employees of the as business expenses, you will and telephones for business pur¬ Foreign Service in USIA, State, need a letter from FSI or your poses at overseas posts are very AID, FAS, DOD and other agen¬ agency stating that you are not common, and hardly ever reim¬ cies whose overseas civilians take entitled to per diem for living ex¬ bursed. Each overseas location statutory home leave between penses during the period of train¬ has its own problems and peculi¬ overseas assignments to contrib¬ ing, and that had you made such arities which should be considered ute $5.00 or more to AFSA’s Legal a claim, it would not have been from the point of view of unre¬ Defense Fund. Money collected in paid. The second step is to calcu¬ imbursed expenses that are re¬ this fund will be utilized only to late your personal expenses for lated to official business. help an AFSA member challenge lodging, meals and transportation, the Commissioner of IRS on the using hypothetical costs as neces¬ Fund Appeal home leave deduction issue, and sary. Finally, you can add non¬ AFSA To Support Court Chal¬ for no other purpose. If insuffi¬ reimbursed expenses, such as lenge on Home Leave Deductions cient funds are collected, contri¬ books purchased above your al¬ The majority of AFSA members butions will be returned. Please lowance, excess typing expendi¬ who claimed income tax deduc¬ submit your contribution by filling tures and so forth. Totaling these tions for home leave expenses in¬ out and mailing the coupon on expenses for the months of the curred in 1971 were successful. this page accompanied by a check taxable year in which you had Successful claims, however, were for $5.00 or more made out to such training, you obtain a total due mainly to the fact that the AFSA—Legal Defense Fund. figure to be entered on your tax majority of federal income tax re¬ return as an unreimbursable busi¬ turns are not audited. The Com¬ AFSA members are urged to ness expense related to your em¬ missioner of Internal Revenue has solicit contributions to the fund ployment. If you decide to treat refused to acquiesce in the deci¬ from non-members, employees of your university training assign¬ sion of the US Court of Appeals agencies other than State, AID ment as a regular job transfer for the Ninth Circuit in the case and USIA who take statutory home and will not claim lodging, meals of Stratton vs IRS. allowing home leave, and from commissary and and other TDY-type expenses, do leave expenses to be deducted. other funds available for assist¬ not forget, however, to deduct Consequently, IRS district offices ance to employees. nonreimbursed books, typing and other school related expenses, as AFSA—Legal Defense Fund well as moving expense costs as c/o American Foreign Service Association described at the beginning of this 2101 E Street, N.W. section. This is especially impor¬ Washington, D.C. 20037 tant for employees moving from a university location to the Wash¬ Enclosed please find my contribution of $ to help finance a ington area. There is no 30-day second court test on home leave deductions. I understand that my temporary lodging allowance for contribution will be returned if insufficient funds are received. such moves (until we achieve the domestic transfer allowance). Name

7. Miscellaneous Categories: The Address six categories of deductible ex¬ penses listed above represent the

FOREIGN SERVICE JOURNAL, December, 1972 35 JOURNAL NEWS procedures, AID retirement and tracted to the Foreign Service un¬ the Magnuson bill. less it became a modern organiza¬ December Issue—Diplomacy Ambassador Riddlebergervoiced tion. As a young FSO, he said Past, Present and Future: If espi¬ the thoughts of many retired FSOs many of his colleagues regarded onage has been called the “sec¬ with his inquiry as to whether the the Association as too conserva¬ ond oldest profession,” diplomacy State Department should not have tive. is perhaps the third. Like its two been eliminated from any Execu¬ Following these remarks from predecessors, it is still alive and tive Order. the panelists the meeting was kicking today, and we expect that Ambassador Achilles remarked opened to questions from the as¬ it will still be with us into the fu¬ on the teamwork between labor semblage, which included such ture. Our three feature articles and management in Japan which other great names in the Foreign this month can be considered il¬ had led to that country’s tremen¬ Service as Ambassadors Bonsai, lustrations of this point and ex¬ dous progress in recent years. He Ben H. Brown, Winthrop Brown, amples of how diplomacy has stated that he thought it unfortu¬ Cumming, Hare, Henderson, Jones, changed over the years. Lord But¬ nate to set up an adversary rela- Muccio, Newbegin, E. E. Palmer, ler represents the old diplomacy; ionship instead of the cooperative Satterthwaite, Walmsley, and Fran¬ Warren Mason discusses the “qui¬ one which had existed. ces Willis. Also present were two et crisis” which new bureaucratic Ambassador Briggs cast himself previous Executive Directors of roles have wrought in today’s dip¬ as a far from reluctant dragon in AFSA, Gardner Palmer and Thomas lomats, and Michael Michaud threatening the guardians of the S. Estes. takes us into the future with in¬ sacred flame and said he found The questions covered a wide terstellar and interplanetary di¬ himself in 100 percent disagree¬ range—from the place of the For¬ plomacy. ment with present AFSA activities eign Service in international af¬ He inquired whether it was neces¬ fairs, to the cone system, the need sary to have a union to accom¬ for organization under the Execu¬ AFSfl NEWS plish the objectives with which all tive Order, and the nature of pro¬ present were in sympathy. He also fessional service. Post F.S. Day said the emphasis seemed to him Responses from AFSA members The sacred flame of the Foreign on rights, privileges and immuni¬ and Board members clarified Service spirit burned brightly at ties, what could be gotten out of many of the points which were of the Foreign Service Club on Satur¬ the Service, rather than service to concern to the “patriarchs and day, November 18, at the post- the country. matriarchs” of the Foreign Serv¬ Foreign Service Day brunch. Dave FSO-4 Mark Palmer questioned ice, to use Tom Boyatt’s phrase. McKillop, AFSA’s President, who whether the best and brightest Dave McKillop explained that the moderated the meeting of active college graduates could be at- Association would not be seeking members of the Association and ing an adversary or hostile role as about 50 Foreign Service retirees the representative of the Service INDEX concerned with the future of the under E.O. 11636, but in many Service, invoked the sacred flame Journal News 36 ways a supportive and consulta¬ and its guardians in his opening Post F.S. Day Brunch 36 tive one, that AFSA would resist remarks. The panel included Bill the politicization of the Foreign Harrop, Chairman of AFSA, Am¬ Staff Corps News 37 Service and the take-over of for¬ bassador James Riddleberger, Am¬ AID News 38 eign affairs. bassador Theodore Achilles, Am¬ A number of the retired FSOs bassador Ellis Briggs and FSO State News 38 present said they had reluctantly Mark Palmer. USIA News 38 voted for, or favored, representa¬ Chairman Harrop outlined tion under the Executive Order, Members’ Interests News 39 AFSA’s activities on behalf of the feeling there was no choice. And entire Foreign Service communi¬ Foreign Service People 39 to a concert of agreement one re¬ ty, including Congressional con¬ cently retired Career Ambassador Awards 39 tacts regarding legislation on the —Winthrop Brown—praised the merit promotion system, grievance AAFSW News 40 enthusiasm, loyalty and dedica-

36 FOREIGN SERVICE JOURNAL, December, 1972 tion of today's young officers. tives of organizations such as the After the meeting ended, with a American Bar Association, the STAFF CORPS NEWS description by Dave Biltchik of American Red Cross, American the openness program, our joint Association of University Women, Promotions: State Department venture with the Carnegie Endow¬ Council on Religion and Interna¬ management, over AFSA’s objec¬ ment, many groups of friends and tional Affairs, Department of State, tion, has instructed this year's associates formed for further con¬ League of Women Voters, World Selection Boards to rank Staff versations. Bank and the Overseas Develop¬ Officers with other pay categories The success of this post F.S. ment Council, discussed the role in the promotion process. Al¬ Day meeting indicates that AFSA of volunteer organizations, com¬ though management has set up should continue to schedule simi¬ munity organizations, local school special categories to promote la¬ lar activities for future years. If systems, and cable television. bor officers, intelligence analysts, one fact was clear, it was that both Speakers and discussion leaders etc. it has decided to meld all the retired and active members of were John Dixon, Director of the Staff Officers by function into a AFSA are deeply concerned about Center for a Voluntary Society, single promotion system. However, their profession, and that today’s Professor James Becker of Indi¬ when management went to im¬ AFSA leaders want to explain to ana University, Professor Roger plement this program, it found retired colleagues what they are Fisher of Harvard and Mrs. Red that two Staff Officer classes were doing and want to benefit from the Burns of the Alternate Media not equal in rank to any FSO cate¬ views of their predecessors. Com¬ Center of NYU. Again a report is gory, consequently, special lists ments and suggestions from our available from “Face-to-Face.” will be prepared for Staff Officers retired members will be most • A seven-part, weekly working in classes 5 and 6. welcome. lunch series on “Setting National The Staff Corps Advisory Com¬ Face-to-Face with the USA Priorities: The 1973 Budget.” Led by a different Brookings econo¬ mittee plans to do an extensive In December 1971 AFSA and analysis of this year’s promotion the Carnegie Endowment for In¬ mist each week, such as Arthur Okun and Charles Schultze, State lists to determine the effect that ternational Peace established an the integration has had on Staff Department officials reviewed tax¬ openness program, named “Face- Officer promotions. No one knows ation, welfare, prosperity, inflation to-Face.” The objective was to if the Staff Corps members, who and the Defense budget issues, improve two-way communication have been given relatively few between the foreign affairs com¬ and their relation to foreign policy. promotions in the past, will bene¬ munities inside and outside the fit from this new program or not. Government. • A luncheon program, mixing The Staff Corps Advisory Commit¬ FSO David Biltchik who has government and non-government tee is concerned that many files been working for the joint venture speakers, for AFSA members, on of Staff Officers are not as care¬ for the past year on a leave of ab¬ foreign policy and domestic top¬ fully written as the FSO files which sence submitted a report to date ics. Marshall Green, Assistant they will be competing against. on the program to the AFSA Secretary of State for East Asian If there is, in the future, to be open Board and to the Board of Trus¬ Affairs, and Earl Ravenal of the competition between Staff Officers tees of the Carnegie Endowment. Institute of Policy Studies were and all other pay categories in the Highlights of the report follow. the first speakers. William Gor¬ Foreign Service, the same amount • Conference on “The Impact ham, President of the Urban In¬ of attention and care must be of Transnational Relations on stitute, Joseph Sisco, Assistant given to the preparation of Staff American Foreign Policy.” This Secretary of State for the Middle Officers’ efficiency reports as. is conference brought together par¬ East and Lt. General Walters, presently given to the preparation ticipants from State, Treasury, the Deputy Director of Central Intel¬ of FSO reports. National Security Council, con¬ ligence, will complete the first tributors to Transnational Rela¬ series. tions and World Politics, staff Other activities include lunch¬ Counselling: The Staff Corps Ad¬ members of the Senate Foreign eons with authors such as Lyman visory Committee is undertaking Relations Committee and the Kirkpatrick and Lester Brown, an a review of the personnel coun¬ Joint Economic Committee and evening Study Group on “Choices selling provided for Staff Corps representatives of the press and in Foreign Policy,” with discussion members in all three Agencies. business. Professors Robert 0. leaders Stanley Hoffman and Foreign Service Staff employees Keohane and Joseph S. Nye, Jr. David Halberstam, a luncheon for should receive the same quality led the discussions and a sum¬ ocean policy experts, featuring of guidance and career develop¬ mary report is available from Arvid Pardo, former Maltese Am¬ ment counselling as other cate¬ “Face-to-Face.” bassador to the US and the UN, gories in the Service. AFSA is en¬ • Conference on "Citizen Edu¬ and a planned special luncheon deavoring to catalogue the defi¬ cation in World Affairs.” Three for John Stewart Service early in ciencies in all three agencies in workshops for over 80 people, in¬ 1973. this regard and would appreciate cluding directors of 25 World Af¬ Copies of the complete report any comments from its members. fairs Councils, plus representa¬ are available from “Face-to-Face.” Write SCAC/AFSA.

FOREIGN SERVICE JOURNAL, December, 1972 37 signed to identify for retention in directly into jobs and not into AID NEWS the service, those officers with classes. However, at present we AID Representation Election Clos¬ proven potential. AFSA continues see growing competition for cone er: Another important step has to urge imediate action on this quotas. Each group of specialists been taken toward holding elec¬ proposal. that can demonstrate that its tions to determine who will be the Thirteen Junior officers will be members are not being promoted exclusive represntative of Foreign selected out, if they are not pro¬ in line with the “needs of the Service employees in AID. Hear¬ moted across the threshold by the Service" is demanding its own ings were held on October 25 and January Board. Undercurrent pro¬ cone and its own quota of promo¬ 27 to determine which employees cedures, some of these officers tions. Will we see a cone for will be eligible to participate in will not be selected out for their French speaking political officers? representation elections. In these failure to demonstrate an ability hearings AFSA sought to ensure to perform well in the foreign that, consistent with the provi¬ service; they will be selected out USIA NEWS based on a management account¬ sions of E. 0. 11636, the largest Binational Center Grantees De¬ possible number of AID Foreign ing that there are insufficient jobs nied Retirement Credit: The Civil in their area of chosen specializa¬ Service employees will have the Service Commission has informed tion in the service. The Associa¬ opportunity to vote. The major USIA that the service of Binational tion strongly supports a threshold point of contention during the Center grantees is not creditable process which would separate, hearings concerned the status of for Civil Service Retirement pur¬ early in their careers, those offi¬ “country directors.” AFSA argued poses. The Commission based its cers judged not to have the requi¬ that they were not “management decision, which it describes as site skills and potential for a for¬ officials,” since they did not for¬ “final,” on the grounds that grant¬ eign service career. However, to mulate the personnel policies and ees were not Federal employees select junior officers out because programs of their Agency. Both at the time of their service as of a lack of vacancies in their par¬ AID management and AFGE repre¬ grantees. ticular cone, while officers of sentatives claimed that country The Commission’s decision fur¬ equal or less potential are pro¬ directors were ineligible, despite ther states: “State Department moted across the threshold in the clear finding to the contrary in and the United States Information other cones does not make sense. similar hearings in the Depart¬ Agency could have appointed the The Association hopes that man¬ ment of State. During the hear¬ Binational Center grantees as em¬ agement will quickly adopt a new ings all parties agreed to an elec¬ ployees if they had desired to do threshold proposal, which focuses tion period which would run 60 so. However, for certain foreign on a person’s ability, not on his or days from the time ballots are policy considerations, they chose her cone. initially mailed from Washington. not to appoint these grantees as Written briefs were filed by the Proliferation of Cones employees. It cannot be persua¬ parties on November 20, and it sively argued that the grantees Most of us think about cones as now remains only for the Employ¬ were in fact Federal employees, being four in number. However, ee-Management Relations Com¬ now that the advantages gained the Department’s special directive mission to decide the disputed by using grantees, rather than Fed¬ to the intermediate selection eligibility categories and direct eral employees, no longer apply.” boards has fifteen “cones”: Politi¬ that an election be held. Although AFSA fully supports USIA man¬ cal, Economic/Commercial, Gen¬ E.O. 11636 became effective on De¬ agement in its efforts to secure eral Administration, General Serv¬ cember 24, 1971, AID Foreign Serv¬ just retirement credit for Bina¬ ices, Budget and Fiscal, Person¬ ice employees are still without tional Center grantees, and urges nel, Security, Security-Technical, representation. We see no reason the Agency to explore the possibil¬ for further delay and have so in¬ Communications and Records, ities of other means of redress, Couriers, Communications-Tech- formed the Commission. We hope such as legislation. balloting can begin before Christ¬ nical, Consular, Secretarial, Spe¬ mas. cialist, Interfunctional. Class 1 Promotions: USIA Director In addition, AFSA has learned Shakespeare has ordered the pre¬ that the political boards have cepts for the 1972 Selection Board STATE NEWS been asked to prepare separate considering Class 2 officers be promotion lists for labor officers amended to provide rank ordering Jr. Threshold Reform? AFSA is and intelligence analysts. That of all those recommended for pro¬ still waiting for management’s ac¬ makes a total of seventeen motion. tions on the reform of the Junior “cones” plus the separate lists for The nine officers who were rec¬ Threshold. As reported earlier, a Classes FSS-5 and -6. ommended for promotion in 1972 series of discusions of AFSA’s al¬ As the Department is able to but not confirmed by the Senate ternative threshold system re¬ define its “needs” with greater will once again be considered by sulted in a proposal to the Direc¬ precision, the number of sub¬ the panel along with other Class tor General to replace the present specialty cones will grow. Of 2 officers. Mr. Shakespeare wanted cumbersome and ineffective sys¬ course, the logical conclusion of to avoid a situation whereby de¬ tem with a Junior Threshold de¬ this practice is to promote people serving officers might be deprived

38 FOREIGN SERVICE JOURNAL, December, 1972 of a promotion two years in a row, the US from abroad. It is still pos¬ AWARDS even though he still believes that sible to ship foreign made cars the principles behind his earlier from the US to overseas locations, Barbara White and Dr. Samuel action to choose Class 1 officers between overseas locations, and Adams Win Rockefeller Awards from an alphabetical list remain to ship at constructive cost from valid. an overseas manufacturer under Barbara M. White, Career Minis¬ travel authorization to transfer ter for Information, will receive from the US to a post abroad. The the Rockefeller Public Service MEMBERS INTERESTS committee members have also Award for 1972 in the area of In¬ agreed that accommodations will tergovernmental Operations. The Restrictions on Foreign Car be allowed for employees facing tax-free $10,000 cash grants will Shipments hardships because of vehicles pur¬ be presented to Miss White and to State telegram 193258 dated Oc¬ chased before the appropriation four other Federal career officials tober 24, 1972 informed all diplo¬ was enacted. This is possible be¬ at luncheon ceremonies at the matic and consular posts that the cause the restrictive language is Shoreham Hotel on December 6. Congress has directed manage¬ not in the appropriations bill itself, Miss White, frequently cited for ment to cease payment for the but only in the conference report. her “qualities of leadership” over shipment of foreign made automo¬ This is an excellent example of her 26 years of government serv¬ biles to the United States after how Foreign Service personnel are ice, joined the OWI early in World December 31, 1972. The Congres¬ invariably hit with restrictions de¬ War II, and with the exception of sional instructions were contained signed to remedy real or imagined four post-war years in Washington in House of Representatives Re¬ DOD abuses, but are not easily ex¬ with the League of Women Voters, port number 92-1567 of October 10, tended some of the overseas bene¬ rose steadily within the interna¬ 1972 transmitting the conference fits enjoyed by DOD personnel (i.e. tional communications agency. In report on the State-Commerce- kindergarten allowances). AFSA 1970 she was named USIA’s Dep¬ Justice appropriations bill. The will attempt to demonstrate that uty Director (Policy and Plans), report said: “The conferees are the reasons for the restriction are then the third ranking position agreed that all Departments and not applicable to the Foreign Serv¬ and top career job in the agency. Agencies covered by this Act are ice, and should therefore not be She is now Special Assistant to to follow the restrictions placed applied to foreign affairs agencies. USIA Director Frank Shakespeare, upon the Department of Defense who "nominated” her for the relative to the payment of ship¬ Award. ping charges on foreign-made au¬ Janet Murrow, widow of Edward tomobiles purchased in foreign R. Murrow, enthusiastically sec¬ countries by US personnel.” DEATHS onded Miss White’s “nomination.” The DOD appropriations act pro¬ Dr. Samuel C. Adams, Jr., Assist¬ hibits the payment of shipping Brown. Dorothy Thornton Brown, ant Administrator for Africa, AID, charges for foreign made automo¬ FSO-ret., died in Washington Octo¬ will receive the Rockefeller Public biles being shipped to the US from ber 15. Miss Brown joined the Service Award for 1972 in the area abroad. The DOD budget request Foreign Service in the mid-1920s of Human Resource Development contained a line item of $10,000,- and served in Central America, and Protection. 000 for the shipment of vehicles Warsaw, Mexico City, and several to the US from abroad. Senate Ap¬ posts in Canada. Dr. John A. Hannah, Administra¬ propriations Committee member Jago. John William Jago, FSO-ret., tor of AID, wrote in nominating John Pastore charged that DOD died at Laguna Beach, Calif. Mr. Adams for the Award: personnel bring foreign vehicles Jago had served in Greece, India, “He has been a moving force to the US without payment of im¬ Korea and Colombia, and Libya. in projecting the Agency’s image in port duties and shipping charges, He is survived by his wife, Eliza¬ the minority comunities. Through and then proceed to sell these ve¬ beth, P.O. Box 1122, Laguna his affirmative actions and unique hicles in the US at a profit, to the Beach, Cal. 92651, two sons, John approaches, there has been a size¬ detriment of both the American and Jeffrey; a daughter; his moth¬ able increase in the number of auto industry and the US Treas¬ er, Mrs. John R. Jago, and a sister. minority firms, institutions, do¬ ury. As a member of the Senate- The family requests contributions mestic groups and individuals, House conference committee on to the AFSA Scholarship Fund. who are participating actively in the State appropriation, Pastore Richardson. Gardner Richardson, the total process of development included language in the confer¬ FSO-ret., died at his home, Plaine as it relates to developing coun¬ ence report extending the prohibi¬ Hill, Woodstock, Connecticut on tries.” tion to Foreign Service and other June 22. Mr. Richardson had served Dr. Adams entered Government agencies. in Athens, Tirana, Vienna, Bel¬ service in 1951 with a three year AFSA is unhappy with this un¬ grade, Bucharest, Ankara, Berlin, assignment to Saigon. This was expected development, of course. and Barbados. He had been re¬ followed by five years in Cambo¬ It should be remembered, how¬ tired since 1947. His wife, Doro¬ dia during which he received the ever, that the restriction applies thea, Woodstock, Conn. 06281, Arthur S. Flemming Award. After only to vehicles being shipped to survives. post-doctoral study at the London

FOREIGN SERVICE JOURNAL, December, 1972 39 School of Economics and the Uni¬ President Mrs. William Leonhart Deputy Director, CIA, on “The Next versity of London School of Orien¬ announces that the British Em¬ Decade of Intelligence Gathering.” tal and African Studies and at the bassy Wives' Club invitation to Reservations are $3.75 to AFSA, Maxwell School of Public Adminis¬ the AAFSW for coffee postponed Room C, 2101 E Street, N.W., Wash¬ tration, he served as Chief of the in November will be renewed in ington, D.C. 20037. The time is Education and Training Division January. See the AAFSW News¬ 12:30, place—Foreign Service Club. in Nigeria and as Director of the letter for date and details. AID Mission in Mali. Before his How to get the AAFSW News¬ Among the Artists of the Foreign recall to Washington for his pres¬ letter? Join the AAFSW by con¬ Service ent post, he served as Mission tacting Membership Chairman Harrison L. Shaffer, Jr., FSIO, is Director to Morocco and as Am¬ Mrs. Robert Steven, 7118 Hadlow the current exhibitor at the Foreign bassador to Niger. Ct., Springfield, Va. 22152, Tel. Service Club. Mr. Shaffer majored in 451-9087. fine arts at the University of Denver flflFSW NEWS and later studied at the Museum of In January the AAFSW will face CLUB NEWS Art and History in Brussels and the up to the issue of the changing The first luncheon in AFSA’s fall School of Fine Arts in Saigon. He position of the Foreign Service and winter series was a tremendous has participated in exhibitions in the wife with a frank and friendly success. Marshall Green, Assistant United States and overseas and has panel discussion. Panelists repre¬ Secretary of State for East Asia, had one-man shows in Washington, senting various ranks, ages and spoke to a capacity crowd on the Denver, Saigon and Lagos. views will be led by moderator future of that area. His witty and A one-man show of 20 paintings Marie Tobler. The Program Chair¬ trenchant observations were greatly by R. Gordon Arneson, FSO-retired, man and Mrs. John Tobler would appreciated. was exhibited in the National Arbo¬ appreciate hearing the views of The speaker for the December 11 retum’s Administration Building members on this subject in ad¬ luncheon will be the Honorable through the month of November. En¬ vance (Call Mrs. Tobler at 836- Joseph J. Sisco, Assistant Secretary titled “Presences in Nature,” the 6845 or Mrs. Richard Finn at 229- for Near Eastern and South Asian show featured closeups of little- 6652) and, of course, at the time Affairs. His subject will be “Looking noticed wild plants from the Wash¬ of the meeting, Tuesday, January Ahead in the Near East.” ington area. Eight of Mr. Arneson’s 9, 10-12, State Department, 8th The December 18 luncheon will paintings are now on loan to the Art floor. feature Lt. Gen. Vernon A. Walters, in Embassies Program. RETIREMENT HOME HUNTING Liquor Discounts $35,000 to $75,000 FOREIGN SERVICE MEMBERS JAMES E. PARKS, FSO-Ret. December Specials—Champagne Veuve Clicquot Brut $5.99 REAL ESTATE BROKER SINCE 1957 Moet & Chandon White Seal 5.99 Brut 1964 Blanc de Blanc Jean Lacoste (Reims) 5.99 For further information write: Brut Jean Lacoste (Reims) 4.39 Sparkling Burgundy and Champagne 150 East N.Y. Ave. Chateau Pierre Leon, New York State P.O. Box 268 naturally fermented 2.69 Southern Pines, N.C.28387 SPECIAL Telephone: 919-692-2951 Budweiser, 12 oz. cans 4.39 case Miller High Life 12 oz. cans 4.39 case Schlitz, 12 oz. cans 4.39 case Portuguese Mateus (1/5) 1.99 (our regular price) Association of American Foreign Service Women With our usually low prices you can’t beat our 5% off on Box 4931, Washington, D. C. 20008 liquor and 10% off on estate bottling wines. HOUSING ASSISTANCE AND ORIENTATION Riverside Liquors Room 1248, Department of State, Tel. 632-3573 2123 E St., N.W. 338-4882 LANGUAGE AND WRITERS GROUPS (conveniently located across from the State MONTHLY MEETINGS Department on E Street, next to Peoples NEWSLETTER Drug Store BOOK FAIR Our 39th Year COMMUNITY SERVICE We loan glasses for parties Open to women in the Foreign Service of a U.S. Government Agency, to the wife or widow of Foreign Service employee. Annual dues $10 when income exceeds $15,000; $5 for others. Send dues to Membership NO CHARGE Chairman.

40 FOREIGN SERVICE JOURNAL, December, 1972 A gift of the FOREIGN SERVICE JOURNAL will bring you closer fo them, each month of the year. Families and friends will enjoy learning more about the foreign affairs agencies, and the duties, problems and pleasures of life overseas and in Washington.

Gift subscriptions from American Foreign Service Asso¬ ciation members are at the reduced rate of $5.00 per year. Attractive announcement card will be sent to the recipient.

FOREIGN SERVICE JOURNAL 2101 E Street, N,W, Washington, D. C. 20037

Please enter a JOURNAL subscription for one year, $6.00, to be sent to: Name .. Street City and State Zip Please enter a GIFT subscription for one year, $5.00, to be sent to: Name .. - Street * City and State Zip • DONOR (must be AFSA member)

TJIZ "tin : -y j ? om •matic All risks See front cover for diagram insurance By Ruth Nalls DEFINITIONS WORDS

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98

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Complete and return coupon for full details. P. Heighten the attractive¬ ness of 84 154 34 134 45 124 1 13 100

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To: United Services Officers'Insurance Brokers Ltd. 12 118

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— Name — 47 T. Act a part silently Address 9 140 171 89

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Solution of the Diplomatic Acrostic will be found on page 21 of this issue