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COVER \ FEATURES

Focus ON IMMIGRATION DIPLOMACY’S BAD DEAL / 42 18 / IMMIGRANT DREAMS Will Recent Budget Agreement on Foreign Affairs America Ambivalent Force More U.S. Flags to Be Lowered Abroad? About Domestic Policy By Ham/ C. Blaney III On Legals, Illegals By John P. Sweeney THE FENG SHUI WAY / 46 21 / THE NEED FOR REFORM The Chinese Art of Balancing Energy By Rep. Lamar Smith Unseen Player in U.S.-China Diplomacy By Jose Armilla 24 / REFUGEE DREAMS U.S. Asylum Refocuses THE ENVOY & THE CLERIC / 48 On Bosnians, Gays, Did Benjamin Franklin Influence Vatican Russian Evangelicals In Choosing First U.S. Catholic Bishop? By George Gedda By Robert F. Illing

32 / MEXICAN DREAMS Focus At Texas Border Town, Police Crackdown Slows Illegal Migrant Flow By Kara Sissell

36 / VISA DREAMS For Consular Officers, Passport and Visa Fraud Looms as Larger Threat Page 18 By Steven Alan Honley

COLUMNS

5 / PRESIDENT’S VIEWS The Incredible Shrinking Foreign Service By Alphonse F. La Porta

15 / SPEAKING OUT Why Is the EST Cone Being Cut? DEPARTMENTS By Peter Humphrey LETTERS/7

60 / POSTCARD FROM ABROAD CLIPPINGS / 12 In Search of Kafka’s Prague BOOKS / 51 By Ernest G. Wiener INDEX TO ADVERTISERS / 53

Cover and inside photo illustrations by Eva-Lotta Jansson

FQREIGNQERVICE THE MAGAZINE FOR FOREIGN AFFAIRS PROFESSIONALS _I_J 0 U II N A I. Foreign Service Journal (ISSN 0015-7279), 2101 E Street, NW, Washington, D.C. 20037-2990 is published Editor Editorial Board monthly by the American Foreign Service Association, a private, non-profit organization. Material appearing KAREN KREBSBACH EDWARD MARKS, Chairman herein represents the opinions of the writers and does not necessarily represent the views of the Journal, the Managing Editor LESLIE BASSETT Editorial Board or AFSA. Writer queries are invited. Journal subscription: AFSA Members - $9.50 included in KATHLEEN CURRIE ELIZABETH SPIRO CLARK annual dues; others - $40. For foreign surface mail, add $18 per year; foreign airmail, $36 per year. Periodical Assistant Editor MITCHELL A. COHN postage paid at Manchester, Nil, and at additional mailing offices. Postmaster: Send address changes to EVA-LOTTA JANSSON AURELIUS FERNANDEZ Foreign Service Journal, 2101 E Street NW, Washington, D.C. 20037-2990. Indexed by Public Affairs Advertising is Circulation DAVID I. HITCHCOCK Manager Information Service (PAIS). The Journal is not responsible for unsolicited manuscripts, photos or illustrations. KATHERINE INEZ LEE ED MILTENBERGER Advertising inquiries are invited. The appearance of advertisements herein does not imply the endorsement of MARY LEWELLEN Editorial Assistant the services or goods offered. FAX: (202) 338-8244 or (202) 338-6820. E-MAIL: [email protected]. TELE¬ POLLY GILBERT ROBERTA MAHONEY' PHONE: (202) 338-4045. © American Foreign Service Association, 1997. Printed in the U.S.A. Send address MARK MATTHEWS Editorial Intern changes for the Foreign Service Journal to AFSA, 2101 E Street NW, Washington, D.C. 20037-2990. HEARLY G. MAYR CAROLINE MEIRS

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Sponsored by the American Foreign Service Protective Association AMERICAN fO REIGN 1716 N Street, N.W., Washington, DC 20036-2902 SERVICE MuniaiyOmaHD Phone: (202) 833-4910 E-mail: [email protected] Companies PROTECTIVE Underwritten by ASSOCIATION Fax (202) 833-4918 Web site: www.afspa.org Mutual of Omaha Insurance Company PRESIDENT’S VIEWS The Incredible Shrinking Foreign Service

BY ALPHONSE F. LA PORTA

A brief incumbency as your initiatives of national importance. president calls for a modest The Foreign When new missions arise, the cup¬ valedictory. During my time board will be bare. with AFSA, first as vice president for Service is fast ■ Staffing reductions have not the State Department constituency been taken as a result of work force and later as president, we have becoming a pale planning but have been arbitrary, explored and pronounced on a wide indiscriminate and shortsighted. We range of professional and career shadow of itself. do not know how many people we issues. But there is persistent and truly need at all levels, what the opti¬ troubling evidence that the Foreign mum grade and skill levels are, and Service is fast becoming a pale shad¬ we have not calculated losses in terms ow of itself — an institution that is of experience and performance crite¬ increasingly incapable of meeting Moreover, there has been a serious ria, only numbers. U.S. needs and interests. impact on overseas staffing. Data indi¬ ■ This is a Foreign Service based Recent analysis by AFSA labor- cate there are nearly 4.6 percent fewer on knowledge and experience. It takes management officer Richard Scissors generalist positions overseas today a long rime to rebuild expertise and to provides strong evidence to verily, yet than in 1992 — basically reversing the reinstill professionalism in the ranks. again, what AFSA has said for many junior reporting officer “build-back” of By its attitudes and actions, State man¬ years: U.S. foreign policy is endangered 1983-1985 — while overseas special¬ agement has conveyed that a Foreign by a shrinking Foreign Service and one ists have declined by nearly 10 percent. Service career is not worth pursuing that is being deprived of essential com¬ Specialist reductions have been and that people are not an investment petencies. This unhappy trend over the heaviest among secretaries, informa¬ to be protected and nurtured. past five years has resulted from tion-management personnel, security While these obseiwations apply increased separations as a result of the engineers, nurses and physicians. directly to the State component of the time-in-class system (“death by TIC” or Some of the infrastructural contrac¬ Foreign Service, AFSA has witnessed the “stealth RIF”), budget reductions, tion can be attributed to the repatria¬ similar developments in the other for¬ presidentially-mandated streamlining tion of functions to the United States, eign affairs agencies. and very low intake levels. such as the centralization of “rover” Only strong action by Secretary7 of Witness: Widi a base of some 8,000 positions and the transfer of functions State Madeleine K. Albiight, Under State Foreign Service employees in to the Florida regional center, but Secretary for Political Affairs Thomas 1992, we have shrunk to about 7,000. there are worries that the administra¬ R. Pickeiing and Director-General Within this group, diere has been an tive base overseas is not robust Edward “Skip” Gnehm can begin to 11.26 percent reduction in specialist enough to sustain new requirements redress the balance in favor of main¬ ranks, while the number of generalist under the International Cooperative taining a Foreign Service of which officers has declined by 7.4 percent. Administrative Support System for the nation can be proud. The battle sharing support costs. for adequate budgetary resources Alphonse E La Porta recently relin¬ AFSA is naturally concerned with cannot be lost in the breach, and quished the AFSA presidency to this debilitating trend: work force planning, organizational become ambassador to Mongolia. This ■ The secretary of State and the reform, and responsiveness and pro¬ column was written before his Oct. 21 political leadership will not have the ductivity in administrative operations confirmation by the U. S. Senate. skilled personnel to carry out new must be instituted. B

NOVEMBER 1997/FOREIGN SERVICE JOURNAL 5 J. KIRBY SIMON FOREIGN SERVICE TRUST

AN INVITATION TO PROPOSE PROJECTS FOR FUNDING BY THE J. KIRBY SIMON FOREIGN SERVICE TRUST IN 1998

The J, Kirby Simon Foreign Service Trust is a charita¬ The Trust now invites the submission of proposals, ble fund established in the memory of Kirby Simon, a for support in 1998, that advance the purposes of the Foreign Service Officer who died in 1995 while serving in Trust. It is anticipated that most of the new grants will Taiwan. The Trust is committed to expanding the oppor¬ fall within the same funding range as the 1997 awards tunities for professional fulfillment and community service and that the total amount of grants will approximate the of active Foreign Service Officers and their families. 1997 total. During its early years, the Trust is principally engaged It is expected that projects assisted by the Trust will in the support of projects that are initiated and carried out, reflect a variety of interests and approaches, some of not in an official capacity and not on official time, by which are illustrated by the 1997 grants. Other possi¬ Foreign Service personnel or members of their families, ble projects include, for example, studies of govern¬ acting alone or in collaboration with others. Although it is mental policies affecting FSOs’ professional achieve¬ expected that most of the Trust’s projects will be undertak¬ ment and personal well-being; measures to increase en by FSOs or their family members, the Trust will consid¬ public awareness of the work of the Foreign Service er proposals from other Foreign Service personnel and and the lives of its members; programs to expand from U.S. Government employees, regardless of national¬ knowledge and stimulate thought, on the part of ity, employed at American diplomatic posts abroad. Government personnel, concerning critical foreign For 1997 the Trust made seven grants ranging in affairs topics (including human rights and environmen¬ amount from $500 to $4000, for a total of $14,750. tal issues). These grants supported the following projects (further Grants provided by the Trust can be used to defray described in a Trust announcement entitled “Grants a wide range of project expenses, such as acquisition Awarded in 1997”): of equipment and materials (e.g., books, tapes, sports supplies, musical instruments), travel and data collec¬ • Two summer day camps for children of Embassy or tion costs, fees to non-Foreign Service personnel for Consulate personnel in Caracas, Venezuela and St. research or other assistance, and dissemination of Petersburg, Russia, organized by Foreign Service materials. Grant funds from the Trust, however, cannot family volunteers. be used to pay salaries or other forms of compensation • A prose and poetry writing contest To encourage the to U.S. Government employees or their family mem¬ development of a written tradition” among the young bers. Because of the limited resources available to the people of Djibouti, organized by an FSO stationed there. Trust, it is not in a position to support projects that, in • Installation of an alternative energy system using ocean the view of the Trustees, have reasonable prospects of waves — developed by an FSO in Guatemala — that obtaining the funds they need from other sources, or will provide lighting after dark for local fishermen and will have other uses for village power generation. propose to conduct activities closely similar to those • Provision of school supplies, bus tickets, clothing, undertaken by other public or private programs, or can¬ shoes and meals to enable Roma (gypsy) children to not be carried out effectively with Trust-size grants. get to school in Krakow, Poland, under a support pro¬ A proposal should include a description of the pro¬ gram organized by two FSOs at the Consulate. ject, what it is intended to achieve, and the role to be • A variety of educational activities and services at the played by the applicant(s); a preliminary plan for dis¬ West Bank’s only nonsectarian, coeducational and seminating the products of or lessons learned from the multi-language (Arabic, Hebrew, English) school, pro¬ project; a budget; and a brief biography of the appli¬ vided by 15 American volunteers organized by two cants). Proposals should not be longer than five dou¬ FSOs stationed in Tel Aviv and Jerusalem, Israel. ble-spaced pages (exclusive of the budget and bio¬ • Resources needed to expand the circulation of The graphical material). Sun — The Spouse’s Underground Newsletter, “a Proposals for projects to be funded during calendar grass roots publication written by and for Foreign year 1998 must be received by the Trust no later than Service spouses,” published on a nonprofit basis by Friday, January 30, 1998. two Foreign Service spouses.

Proposals should be sent to: J. Kirby Simon Foreign Service Trust, 82 Edgehill Road, New Haven, CT 06511, U.S.A, FAX: 203-432-0063 Inquiries should be directed to the above address or fax number, or by phone to 203-432-2698 or by e-mail to [email protected] ADVERTISEMENT LETTERS

To the Editor: increased exponentially over die years, To the Editor: Three major groups of readers will in large measure because of die serious I object to [Refugees Internationals thoroughly enjoy Marshall Greens application of his dedication, intelli¬ President Lionel A.] Rosenblatts deni¬ book, Pacific Encounters (“Books,” gence, competence, courage and ener¬ gration of the superb performance of October Journal): those who know or gy. Through it all, however, he never American diplomat [acting Deputy know about Marshall Green; those who lost his ability to perceive the humorous Chief of Mission] Peter Whaley, just are interested in Asia foreign affairs, — or his judgement as to when and how because Rosenblatt disagreed with and the Foreign Service; and those widi to use it. In our rather stodgy subcul¬ policy decisions made in Washington a sense of humor. These are not at all ture, his successes are extraordinary. or events in the field not susceptible to mutually-exclusive characteristics, and Even in high-level, high-stakes U.S. manipulation (“Letters,” the greatest enjoyment will be gained diplomacy, as he has proven again and September Journal). I welcome the by readers who benefit from all three. again, diere are times when laughter opportunity to put some clear facts on On the other hand, Pacific can be employed to promote the objec¬ the table. Encounters may disappoint anyone tive, and there is little doubt that his Refugee numbers. U.S. Embassy expecting a profound, in-depth, or his¬ wide-spread reputation as a punster and Kigali has argued for years that the torical treatise on events in the South storyteller did a great deal to facilitate U.N. refugee count in Zaire, which was Pacific from 1939 to 1979, to which productive relations with diose on the never more tiian an estimate, was Ambassador Green was a witness or in other side of the table. His sense of indated by a factor of about 25 percent. which he was a player. He does not humor, the external manifestation of an Once refugees started to move as a ignore them, nor fail to place them in extremely shaip, clear and facile intelli¬ result of rebel pressure in 1996, over¬ the appropriate perspective from both gence at work, was as notable as his head surveillance of the U.S. Air Force operational and bureaucratic view¬ achievements. The ability to exercise tended to support die contention that points, but his serious writings on the the former witl ioi it losing sight of the refugee numbers were less than that region appeal- elsewhere. This books latter is die hallmark of his approach. claimed by the U.N. High subtitle, Recollections and Humor, There are very few who would con¬ Commissioner for Refugees. At the clearly states his intentions, and he has test Marshall Greens ability7 to use end of August, die UNHCR asserted managed to fit a considerable quantity words to convey his message. That he there were fewer dian 17,000 ref ugees of each category into a slim volume. often chose puns as the primary vehi¬ remaining in Congo. While the num¬ No one has ever doubted the seri¬ cle for his humor is a tribute to the ber of people who may have perished ousness with which Mr. Green has han¬ pleasure he derived from that ability. during the course of the rebellion is dled Iris responsibilities, which His poetry, most evident in die exam¬ not yet precisely known, it is certainly ples of those he wrote for his wife, way below the number of 200,000 The Foreign Service Journal welcomes Lispenard, over the years of dieir mar¬ “missing” refugees earlier alleged. your signed letters to the editor. Please riage displays a pervasive love of die Atrocities. We do not deny — and mail letters to the Journal 2101 E St., language to match his evident love for never have — that atrocities occurred NW, Washington, D.C., 20037; fax to her, for the Foreign Service life they in Zaire during the fighting. In fact, as (202) 338-8244; or send via e-mail to shared, and for life itself. The book is a soon as die first reports of attacks on [email protected]. Letters, which are gem from that perspective alone. camps were received in early subject to editing should include full Edwa rd Peck November 1996, U.S. Embassy Kigali name, title and post, address and day¬ Retired Ambassador sought in vain to deploy U.S. and U.N. time telephone number. Washington, D.C. personnel to investigate. During the

NOVEMBER 1997/FOREIGN SERVICE JOURNAL 7 L E T r E II s

continued course of the conflict, we ple a new opportunity for democracy repeatedly stressed to Rwandan and and prosperity. Finally, peace — a alliance leaders die need to observe long-sought commodity in this geno¬ • Furnished studios to strictest standards of comportment vis cide-afflicted, war-tom region - is kuge- 3 bedroom residences -a-vis refugees. The belated U.N. ly re-established. We at U.S. Embassy investigation now under way will seek Kigali are proud of die role we played in • Minimum 30 days to arrive at facts regarding what may securing these achievements. • Rates within per diem have transpired during the conflict. Robert E. Gribbin Multilateral force: Our advice to Ambassador • Fully equipped kitchens Washington was diat a multilateral U.S. Embassy Kigali • Individual washers/dryers force would not be effective unless it had die military audiority to confront • Cable T.V. & local phone forces of ex-FAR/Lnteraliamwe, a Hutu included group holding refugees hostage. In fact, To the Editor: • Utilities included die international community’s refusal to What’s up with hying to get the authorize such rules of engagement was State Department to recognize • Optional Maid service die stumbling point that prohibited “domestic partnerships” as “family” for • On site fitness center & deployment of die force. Given that purposes of travel authorizations, etc.? memberships to local health constraint, die decision not to deploy What’s the point? And what does the clubs was die correct one. It was, of course, American Foreign Service' Association • Pet friendly locations made in Washington, not hi Kigali. hope to gain for the Foreign Service Rwandan involvement: As to by pushing such an initiative? • Major credit cards accepted Rosenblatts charge that we concealed Tliis appears to be another case of • One statement billing Rwanda’s role in Zaire, we reported American society opting to avoid having faithfully and accurately the informa¬ to make decisions and commitments. • Locations in Virginia, tion available from Rwanda. Despite Take the case of a single, male FSO Maryland and D.C. close to our oilers, we were not authorized to with a girlfriend. Under the AFSA pro¬ new NFATC travel into Zaire to report on events posal, die guy would get all the benefits there. Under instructions, we repeat¬ of a legal marriage, with none of the Virginia Locations Annandale, Arlington, Ballston, edly warned Rwandan authorities obligations. Why should he? If he wants Courthouse, Crystal City, about suspected involvement, but die State Department to pay for her Fairfax City, Falls Church aside from admissions of sympathy for extras, he should marry her, and under¬ die rebels and acknowledgement of take die obligations that entails. If he Maryland Locations training support for Zairian doesn't want to marry her, he should Bethesda, Gaithersburg, Rockville, Silver Spring Banyamulenge and Banyamasisi sol¬ not get the benefits of marriage. diers, we generated no hard evidence Read the Vienna Convention with District Locations of Rwandan Army involvement. The respect to your proposal on diplomatic Dupont Circle, Foggy Bottom, Upper after-the-fact admission by Vice immunity. It applies to family mem¬ Northwest, Waterfront President [Paul Kagame] regarding bers of those on the diplomatic list, not live-in girlfriends. You can change the Inquiries (703) 506-3993 Rwanda’s more active role confirmed (800) 776-5057 earlier suspicions. definition of “family,” if you want, but FAX (703) 506-3997 in closing, I note that although the it doesn’t change the reality. change was traumatic, the situation hi If the proposal is aimed at giving LET US SHOW YOU HOW die Great Lakes region of Africa has family status to gay and lesbian part¬ WE OPEN DOORS TO HOMES much improved during the past year. ners, it has die same problem. The AWAY FROM HOMES! One ;uid a half million refugees are United States does not yet recognize safely home — and off die internation¬ same-sex marriages for legal purposes. 8230 Old Courthouse Road al dole. The despot [Mobutu Sese Until such time as it does, the State Suite 450, Vienna, VA 22182 Seko] has been removed from power in Department should not, either. If a Zaire, which gives the Congolese peo¬ gay guy wants to bring his partner to

8 FOREIGN SERVICE ] O U RN AL/N OV E M B E R 1997 L E T T E /{ S

£eaVe your post, that’s fine, but it should be at his and paving die way for its remarkable own expense. economic growdi. Equally important most With the real issues facing the were his successful efforts toward die Foreign Service, this proposal is a loser establishment of an international that will gain nothing for State. Don’t donors group for Indonesia, consist¬ important squander what little political capital ing of 14 countries and five interna¬ AFSA has on nonsense like this. tional organizations, including the Name Withheld World Bank and the Asian investment at Author’s Request Development Bank, as well as his FSO population stabilization efforts. Washington, D.C. There was a humanistic core to with the Bob’s temperament, and he always gave due attention to the cultures, interests and circumstances of die management To the Editor: countries with which he was dealing. I would like to say a few words Thoughtful and attentive to the views about Bob Barnett, whom we lost in of otiiers, he had an unusual capacity professionals July (“Obits,” September Journal). for making friends. This prominently Bob was my close friend and an included a new breed of Asian prag¬ invaluable Foreign Service col¬ matists and modernists who were you trust. league from the time we met in coming to the forefront. 1947 at the Far East Commission Bob was a man of vision, but he Rental and Management on Japan to the last year of his life, was no visionary. He recognized the of Tine ‘Properties in when he struggled against over¬ limitations of American power and Northwest ‘DC, CheVy Chase, whelming physical obstacles to bounty, and the consequent need for 'Bethesda and Potomac record for history some of the key our allies and friends to assume negotiations in which he played a greater responsibilities for their own prominent role. security and advancement, working As I recently wrote to his dear wife, with the United States and others. Joan, Bob struck me as a modem-day This was to become embodied in die Renaissance man — he was an out¬ Nixon Doctrine. standing Rhodes Scholar, internation¬ In sum, Bob Barnetts life career alist and economist, as well as tin was dedicated to working relentlessly author, cellist and athlete. for the benefit of humankind, always Both in the State Department and pursuing his goals with modesty, later working for die Asia Society and mutuality and multilateralism. for Carnegie, Bob gave strong encour¬ Marshall Green agement and support for Japans over¬ Retired Ambassador Executive Housing seas economic assistance programs and Washington, D.C. Consultants, Inc. for its concept of comprehensive secu¬ 7315 Wisconsin Avenue rity. Meanwhile, he had been in the Suite 603 East forefront of efforts to normalize rela¬ Bethesda, Maryland 20814 tions between Washington and Beijing. 301/951-4111 But Bob’s greatest professional tri¬ To the Editor: Fax: 301-907-7329 umph related to Indonesia. There he This letter is in response to Lewis email: [email protected] masterminded an international settle¬ Elbinger’s article, “End Bidding ment of Indonesia’s huge debt (con¬ War Politics,” (“Speaking Out,” “We care for your home tracted during Sukarnos wasteful August Journal). rule), thus eliminating a major obsta¬ After a year as a counseling and as if it Were our oWn. ” cle to Indonesia’s creditworthiness assignments officer — a meld of die

NOVEMBER 1997/FOREIGN SERVICE JOURNAL 9 L E T T E R S The

Middle East former career development officer and assignments officer — I feel better able Institute to comment on Mr. Elbinger’s article. He's mostly right. The very existence of direct authority of the director general 1761 N Street, NW Washington, DC 20036-2882 recognizes the right of department prin¬ cipals to reward their favorites. A DGs Please consider MEI when allocating your donations to the refusal to “direct” may just mean that the Combined Federal Campaign. For fifty years, MEI has under secretaiy for Management, or been dedicated to increasing American understanding of the even the deputy secretary, does it instead. The personnel process is set up to be Middle East, through our programs, publications, language as fair and clear as possible. But we aren’t classes and library. dealing with Olympic racing results here — defining the criteria — already all sub¬ Chairman of the Board - Dick Murphy jective — is tough, but applying them President - Rocky Suddarth consistently is even tougher. Lets look at Vice President - Paul Hare the selection committees for the deputy Scholar-in-Residence - Dick Parker chief of mission and principal officers. First, we have two kinds — for regular posts and those for Special Embassy Our CFC designation number is 7569 Program posts. Second, we have the ■ -- ^ State Department’s agreement to work toward gender ratios set by die womens class action lawsuit. We have long-stand¬ ing, high-level statements on the need to MARTENS VOLVO be representative and diverse. We say merit would prevail, all other things Dedicated to Diplomacy being equal. Equal? IIow? I haven’t yet Worldwide Delivery to Diplomats seen two performance records that were equal. The committees operate with and Members of International Organizations highly subjective criteria, which may fol¬ low die personnel fashion du jour, and then apply it to comparing apples, oranges and horse chestnuts. Furthermore, each assignment is sup¬ posed to fit vour career path by developing vour skills. Why else would a Japanese¬ speaking financial economist get a tour as a political-military officer in Vienna? Finally, even when die DCM Committee comes up with an impeccable, stellar, fair, diverse short list — the final choice depends on the ambassador or, in his absence, the bureau’s assistant secretary. Contact: Dana Martens, Diplomatic Sales Director No one can lie forced to accept someone on the short list — all may be rejected VOLVO MARTENS 202-537-3000 until the “right, golden one” is included. CARS OF WASHINGTON, INC. Fax 202-537-1826 4800 WISCONSIN AVE. WASH., DC 20016 The best efforts may only yield results U.S.A.’s Largest Diplomatic Dealer that kxik like a lottery from afar, since each of us, were we on the committee

10 FOREIGN SERVICE ] O U RN Ah/ N OV E M B E R 1997 LETTERS r.How to Buy Auto Insurance Overseas There’s really only one way. Select the agent who offers broad experience and a high level of repeat business. Experience that helps you avoid the pitfalls of a highly complex business. Repeat business that results from pro¬ and operating by the same criteria, could viding what’s best for the customer - not the agent. end up with vastly differing short lists. For 34 years Harry M. Jannette International has provided dependable Elbingers comments on abuse of coverage with U.S. carriers to thousands of Foreign Service personnel world¬ stretches that can deny at-grade officers wide. Thus, you gain the broadest U.S. terms and conditions and flexible opportunities are right on the mark. It value limits often not available from other insurance carriers. can really look like that from the outside. The most egregious ones are the most • WORLDWIDE COVERAGE Fire, theft, comprehensive and collision protec¬ notable ones. The rest, which allow ambi¬ tion are available at foreign posts. tious lower-grade officers to take chal¬ • U.S. AUTO LIABILITY Available for short term on home leave, change of lenging, but unpopular assignments, assignment, and new auto purchase prior to foreign departure. don’t receive much attention. Also, no • FOREIGN LIABILITY We suggest contacting your post on arrival. Local one can tell from the outside if the assign¬ laws require specific limits and coverage. Pricing is normally best on site. ment was directed or whether the DCM Committee played dirty pool. Because • CONTACT US TODAY Let us send you “the Embassy Plan” brochure. It there is no “shoot-out” procedure where contains all the answers about dependable coverage and low cost premi¬ a panel can vote on die merits of each ums. candidate for DCM/PO selections, no Harry M. Jannette International one knows why the committee chose die 8111 LBJ FREEWAY, SUITE #585 DALLAS, TEXAS 75251 short list — making it easy to see it as TELEPHONE: (972)783-4915 FAX: (972)783-0545/ . truly unfair. I believe die unfairness Call: (800) 256-5141; E-Mail: [email protected] l temwa comes from the overall subjectivity of die A W00D-WILS0N COMPANY criteria, the performance files, and die V perceptions of individual committee members more than from significant high-levelO favoritism. The proof is in the results. Has the Perfect Location, current process produced disasters? Perfect Comfort, Except for the usual rumor, word of mouth and hallway gossip, no one really Perfect Price. checks. Would one of those who lost the chance have done any better? There are Not only are we just minutes in-cone, at-grade, selections that still turn from National Airport, the out badly. National Foreign Affairs Training The current up-or-out personnel sys¬ Center, most government build¬ tem is by definition a “Peter Principle” ing, and Metro-we’ll surprise you operating system: One receives better with just how much you get for and better assignments and fast promo¬ so little. tions until he blows it. If State produced • Spacious suites with full cars the way it selected DCMs, we'd still kitchens be building each by hand via committee. Speak up. You’ll make the system • Pool, sundeck, saunas and better and maybe, just maybe, give die exercise facilities more deserving — if less favored — • Free Cable TV with HBO officers a chance. • Free local phone calls 1500 Arlington Blvd., Arlington. VA 22209 • Complimentary Continental 703-522-9600 • 800-275-2866 Teresa Jones Breakfast on weekdays Fax 703-525-4462 FSO • Free shuttle to Rosslyn Metro e-mail [email protected] Classification Reviewer during rush hour State Department Washington, D.C. ■

NOVEMBER 1997/FOREIGN SERVICE JOURNAL 11 CLIPPINGS

GEORGIAN JAILED Tedo Japaridze, the Georgian ambas¬ sador to tire United States, said in a state¬ AFTER GUILTY PLEA ment that Makharadzes early jailing “seems A Georgian diplomat who pled guilty to extreme,” die Post reported, adding that involuntary manslaughter in the death of a Makharadze s “recent activities have been 16-year old Maryland resident in January attending weekly prayer breakfasts, meet¬ will he jailed until his Dec. 19 sentencing, ings with his attorneys and daily helping The Washington Post reported on Oct. 9. vvidi the embassy as best he could.” Gueorgui Makharadze, the Georgian embassy’s second-in-command who has "The primary been free since the car accident, was WAS WELD A MAN stunned when D.C. Superior Court Judge purpose of Harold L. Cushenbeny refused to release BEHAVING BADLY? him once again on personal recognizance, The line that divides diplomacy and pol¬ diplomacy is Bill Miller reported. "I take full responsi¬ itics is a line one, but President Clinton’s to achieve bility for what happened,” said failed nominee as ambassador to Mexico Makharadze, 35, who pled guilty to one may have crossed it, opined senators Rod results by count of involuntary manslaughter and Grams and Craig Thomas in a Sept. 15 op¬ four counts of aggravated assault — all ed piece in the Washington Times. moderation, felony charges. Four people were also Bill Weld quit his day job as governor of injured in the Dupont Circle crash that Massachusetts to pursue his confirmation, tact and com¬ killed Jovian e Walt rick. The guilty plea was which was so opposed by Senate Foreign promise. ... an emotional victory for the victim’s family Relations Committee Chairman [esse members. “He’s going to jail!” exclaimed a Helms that he refused to schedule the Open diploma¬ friend of the family. issue for discussion. Helms claimed his The accident sparked much debate on opposition to Weld stemmed from, among cy is a con¬ the issue of diplomatic immunity and other things, liis “soft” stance on drugs — a prompted Rep. David Drier, R-Calif., to critically important issue between Mexico tradiction in introduce a bill as part of the Foreign Policy and the United States. terms; if it is Reform Act ol 1997 that would make diplo¬ The pair, both SFRC members, noted mats more accountable for their actions. they were “dismayed at the way Weld has open, it is not Drier’s bill would require the State continued to politicize his nomination.” Department to provide Congress with infor¬ Weld, they claimed, was more interested in diplomacy. mation on incidents involving foreign and promoting discord within the Republican American diplomats and luges the president party than in serving his country abroad. to ensure that diplomats who commit crimes “Gov. Weld’s decision to exploit his nomi¬ in the United States stand trial either in nation is more than a personal challenge to — 20rn-( r:\nm America or in their own countries. Sen. Helms. It is unprecedented.” BRITISH DIPLOMAT “I deeply regret tire pain I have caused in In addition, they characterized him as this country and in my beloved Georgia,” undiplomatic. “[Weld] has engaged in SIR DAVID V.KEUA said Makharadze, who faces up to 70 years behavior inappropriate for a U.S. ambas¬ in prison, according to the Post. “I will bear sador,” they said. tire pain of having caused the death of Miss Grams and Craig suggest that Weld Waltrick for the rest of my life.” would have done more for his nomination

12 FOREIGN SERVICE JOURNAL/NOVEMBER 1997 CLIPPINGS

had he worked qniedy behind the scenes, Saddam Hussein and Fidel Castro. like all other nominees, to persuade law¬ According to Szulc, Richardsons makers to give their seal of approval. chameleon-like diplomatic style has “Instead, he chose to declare ideological war worked small wonders, able to talk tough ... and dismissed concerns about liis drug when needed and to break the tension record as phony baloney,” ’ they wrote. widi a little humor. His mediods have cer¬ With Iris nomination in the trash, Weld tainly made a difference in many negotia¬ may have learned that what works in tions. “My nature is open and gregarious,” YEARS AGO Boston won’t work in Washington. adds Richardson. “I kid people. And it works, because it establishes a personal connection.” “That ancient fable TALK about the blind men and How To the elephant applies with To A DICTATOR JANE AND JANE DOE singular aptness to the No one can accuse Bill Richardson of American Foreign being a slow learner. Though he’s only AND BABY MAKE 3 Service,” Washington Post been U.S. ambassador to the United In these days of PC behavior, consular reporter Marquis Childs Nations for 11 months, Richardson has officials at U.S. Consulate General Toronto wrote in a piece that was developed a knack for going after what could be forgiven for being a tittle con¬ republished in the he wants — and getting it. His years as a fused. After all, when is a father not a November 1947 issue of congressman and diplomat have helped father? When she’s a second mother. the Foreign Service him amass a small collection of diplo¬ Recently an American woman living Journal. “The average matic victories that have earned him a in Canada asked U.S. consular officials American traveling abroad reputation as one of diplomacy’s win- in Toronto that her newborn child be is likely to form his general ningest tough guys. registered as a U.S. citizen. However, impression from the few “Richardson’s people skills and diplomat¬ when she asked that her domestic individuals he meets in the ic risk-taking have made him President female partner be registered as parent Service. Clinton’s favorite troubleshooter and, as a in lieu of the child’s biological father, the “He is hard working, member of die Cabinet, an influential for¬ mother drew surprised stares from the knowledgeable, with acute eign-policy advisor,” noted reporter Tad American officials. political and intellectual Szulc writes in die Sept. 14 issue of Parade “I didn’t want to push it,” the curiosity, He looks at the Magazine. His accomplishments include unidentified woman told The country in which he is serv¬ spearheading successful talks with North Washington Blade in a story published ing not through any h;ize of Korean officials to gain die release of two Oct. 5. Consular officials, who did not longing for a past that can U.S. airmen captured in die demilitarized flatly refuse, told the mother that the never be restored, but with zone; securing a promise from Croatian document specifies that the biological keen realism. [Or] he may President Franjo Tudjman to allow Serb fathers name appear — and no one encounter quite another refugees back to their homes in Croatia; and else. The woman, however, insisted her tvpe .. who regards himself convincing longtime Zairian strongman partner had adopted the child under as very much of a privi¬ Mobutu Sese Seko to resign gracefully Canadian law, and was, therefore, a leged personality — first as while keeping human rights and economic legal parent. Officials and mother an American and then as a reforms at die forefront of talks with rebel agreed to a series of typed dashes in member of the rare and leader Laurent Kabila. He’s also wanned lieu of a name. Law experts, however, special caste of diplomat.” the hearts of two of die world’s last dictators: say that U.S. consular officials should

NOVEMBER 1997/FOREIGN SERVICE JOURNAL 13 C L I P P 1 A G S

have recognized the woman’s domestic AMBASSADOR TO SPAIN partner as the other parent. “It appears “A diplomat that the laws of Canada recognize two BLASTS BUDGET CUTS women of the same sex as coparents,” “Diplomacy by fax simply doesn’t is a person according to Michael Maggio, a work,” says Richard N. Gardner, until mho can tell Washington, D.C., attorney who spe¬ recently U.S. ambassador to Spain. cializes in immigration law. “For this America needs to make ambassadors yon to go to reason, the name of her female partner and embassies a higher priority, Gardner hell in such should be listed on this document.” noted in an article in the inaugural issue of Judy Hartman, an officer with Ontario’s The Foreign Poliaj Forum, the magazine a way that Office of Registrar General, said that of the New York-based Foreign Policy yon actually Ontario’s highest court requires the Association. “U.S. embassies serve as names of both adoptive parents on a essential delivery systems to implement look forward birth certificate, even if they are of the foreign policy,” he wrote. “Not only are to the lt ip. " same sex. ambassadors responsible for maintaining Maria Rudensky, a spokeswoman for bilateral relations with other countries, but — 20-ti:\riin the State Department, said that U.S. more importantly, they fonn a critical Foreign Service posts call for recogni¬ piece of the U.S. foreign policy puzzle.” AMERK W WR1TEK tion of adoptions approved by foreign Gardner blames the White House for CASKII: Sri\ \rrr governments, so in this case, both being “oblivious” to the critical role womens names should have been writ¬ embassies and ambassadors play in imple¬ ten on the document. menting foreign policy. ■

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14 FOREIGN SERVICE JOURNAL/NOVEMBER 1997 SPEAKING OUT Why Is the EST Cone Being CutP

BY PETER HUMPHREY

As early as 1992, the prestigious Mexico. Since the 1992 report, EST Carnegie Commission called jobs decreased, and an entire EST sec¬ for more U.S. government Kill the science tion at U.S. Embassy New Delhi has expertise in science and technology, been wiped out. In addition, over the especially at the State Department, cone arid the next six years, as EST slots are elimi¬ noting that “very few talented career nated altogether, former science offi¬ Foreign Service officers have had range of State’s cers will be absorbed into other cones. experience with science and technolo¬ Science officers are important to gy and there are very few science offi¬ professional U.S. foreign policy because of their cers abroad. ... The number of science expertise. The large majority of EST officers at embassies must be competence is officers have a science background and increased.” The report made clear die related professional experience. Most need for more aggressive and extensive narrowed. EST officers at embassies, with some recruiting of officers with technical rare exceptions, are also FSOs, milking backgrounds and proposed enhanced them doubly valuable to their posts. incentives for FSOs pursuing interna¬ When Mexico realized that the tional science and technolog)' careers. northern Yucatan had been the site of The report observed that ambassadors the meteorite whose impact killed who are asked to cut personnel will the nation can no longer afford to pay the dinosaurs 65 million years ago, it always view the environment, science this price. The Foreign Service needs was a science officer who made sure and technology position as expendable, more EST officers. the U.S. research community was and diat the State Department culture But what has happened since 1992? fully integrated into the science story rejects — or at least resists — trans¬ Did science suddenly become less of the decade. Mexico had been plants with technical skills. Since die important on the world stage while I excluding the larger scientific com¬ report, the world, if anydiing, has wasn’t looking? munity, but because of an alert EST become more technological, not less. This year, the State Department officer, U.S. scientists were brought The commission presbyopically decided to phase out the EST cone by in on the discovery early. This is but noted that there are technical dimen¬ officers by 2004, moving its function one example of how EST officers sions to almost every component of to economics offices or regional envi¬ serve the large U.S. community. U.S. foreign political, economic and ronmental hubs. If your assignment is When Popocatepetl, a volcano social policy, and the U.S. govern¬ to be a half-time science officer and a southeast of Mexico City, started to ment is poorly equipped to cope widi half-time economics officer, there’s no erupt in 1994, threatening the world’s these trends, which is leading to lost mystery which “half” of your portfolio largest city, it was a science officer who opportunities and, occasionally, fail¬ will require more of your time and be made sure the city had access to the ure to heed warning signs. The report evaluated as more important on your best U.S. seismic monitoring technolo¬ concluded with a plea: As the science EER. gy. It was a science officer who joined and technology component of foreign The U.S. government employs astronauts and cosmonauts in the policy increases dirough the 1990s, some 35 science and technology offi¬ decades of the ’60s and 70s in the for¬ cers in Washington, D.C. and some 40 mer Soviet Union, setting the stage for Peter Humphrey, an FSO, is the State officers overseas, including key posts in U.S.-Russian cooperation on the space Department’s Iraq analyst. Tokyo, Beijing, Moscow, Vienna and station Mir. And it was a science officer

NOVEMBER 1997/FOREIGN SERVICE JOURNAL 15 SPEAKING OUT

who served as a back channel with a pariah state and clipped the wings of a potentially devastating world-wide plague. It was a science officer who reported the sudden appearance in Latin America of rather impoverished FARA Russian nuclear physicists, who pre¬ Foreign Affairs Recreation Association sumably would have been vulnerable FARA Housing Division, to offers from countries whose inter¬ Managed by ECMC ests are at odds with the United States, 610 Bashford Lane, Alexandria, VA 22314 because he understood the impor¬ Ph: (703) 684-1825 Fax: (703) 739-9318 tance of their background when pre¬ We are proud to provide the best hotel values in the Washington, DC sumably, a generalist FSO might not have noticed. It is science officers who metropolitan area! You can choose from properties offering studios, routinely beat the technical journals one bedroom, 2-bedroom apartments, suites & hotel rooms. with the latest news, and science offi¬ Our locations have unique proximity to FSI, State Department, the cers who send up red flags on tech¬ Pentagon, NFATC, National Airport, Old Town , Alexandria, nologies of concern. White House and Georgetown Only the most myopic observer of global trends could deny that ever- For more information call for features and rates of participating FARA hotels. increasing chunks of our foreign pres¬ ence, such as the economics of tech¬ nology' issues, will be partially or com¬ SEVEN MINUTES TO STATE DEPARTMENT pletely dependent on science, or fail to recognize that these issues are best tracked by those who know' this scien¬ tific vocabulary well enough to engage

16 FOREIGN SERVICE JO VRNAL/NOVEMBER 1997 SPEAKING OUT

such as EST officers — so much so Americas national security as radar these issues seriously as foreign poli¬ that it may be enslaved by its own and anti-submarine warfare. cy challenges, other agencies — per¬ noble dogma. And these issues are most accessi¬ haps intelligence or an enhanced A science officer is a jack of all ble to scientists, who may be doing a Environmental Protection Agency — trades, master of one: Think of her as tour at U.S. Consulate Yekaterinburg will. And State will have accom¬ a generalist with a little something when the local news reports a little plished little more than shoveling extra. She, too, passed the recruiting nuclear-smuggling incident, or in even more of its ever-decreasing exams, which are geared to recruit Afghanistan, when a new mahdi mandate over, once again, to other bearers of arcane knowledge; it is all invokes biojihad against die decadent government agencies. the more miraculous when she joins West, or in Cameroon when a volcano Kill the science cone and the the ranks of the lawyers, MBAs, emits an unknown gas that kills diou- range of State’s professional compe¬ teachers and foreign policy wonks sands, or in Zambia when genocide tence is narrowed even more. Only who pass with regularity. refugees intersect a new Ebola out¬ the most self-deluded could argue Exactly what are global issues? break, or in India when its government otherwise. The State managers who The really nasty stuff — the smug¬ pleads for instantaneous assistance engineered this will be gone in a gled isotopes, the potent pesti¬ during a horrific chemical spill. There couple of years, but the Foreign lence, the stolen patents, the erod¬ is great benefit in having technical Service will be scarred for decades ing genetic resources, the environ¬ competence, recognising it as such, — or until some inevitable disaster mental toxins, the infowar terror¬ and diffusing it widely. finds the Service caught short and ists, the chemical weapons and the These issues won’t go away, and Congress hauls it back to the future biological bombs — is not truly will probably increase geometrically once again. Why must the Foreign accessible to generalists. These — if not exponentially — in the Service always be reactive instead of issues are as much a part of future. If State doesn’t begin taking anticipatory? ■

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NOVEMBER 1997/FOREIGN SERVICE JOURNAL 17 Focus ON IMMIGRATION

IMMIGRANT DREAMS

s population growth continues to faster today than ever before and many experts doubt diat outpace economic development capital and technology can be created fast enough in poor throughout much of the Third countries to keep up with die demand for jobs. Even allow¬ World, immigration in many ing for a continued drop in birth rates, die worlds popula¬ developed countries — particu¬ tion of 5.6 billion people may rise to between 10 billion and larly the United States — is 12.5 billion by the year 2050. By then, Mexico will have 150 1 emerging as a post-Cold War million people and Brazil 246 million. The U.S. population national security issue, a growing headache for foreign is expected to grow 29 percent by 2025, while in Mexico policymakers, and a f ocal point for increasingly polarized and Guatemala growth will be 63 percent and 135 percent, domestic politics. respectively. Togetiier, Europe and North America, which Senior European defense officials worry that a popula¬ in 1950 had more dian 22 percent of die werld’s popula¬ tion explosion in North Africa poses a security threat to tion, will contain less than 10 percent by 2025. NATOs southern flank, The Authors Matdiew Connelly and Washingon Times reported in 1995, Paul Kennedy described, in a 1994 quoting an unnamed senior NATO Atlantic Monthly piece, the worlds official from southern Europe: ‘The ★ ★ future migratory pressures: ★ ★ geographical conflict in the future will t - 195 percent of the world popu¬ be aligned along meridians [north- ★ ■ lation increase will be in developing south lines] and not along [east-west] countries diat lack the infrastructure parallels. Given the demographic gap, * ★ and institutions to handle the load. die eventual outcome is predictable. ■ In absolute numbers diere will The West is destined to succumb.” be far more poor people on earth The domestic political tensions V* A than ever before in the early 21st created by immigration are likely to * * * * i( century. ■ Within the Third World, a worsen in coming years as economic ■ and population forces increase the greater percentage of die popula¬ human wave migrating legally and d tion is drifting from the countryside illegally across the planet. Some 500 into gigantic cities of shanty houses. million people are currendy unem¬ ■ The composition of diese soci¬ ployed or underemployed in devel¬ AMERICANS AMBIVALENT eties is increasingly adolescent, but oping countries, and 30 million more chances that their resource-poor ABOUT DOMESTIC POLICY are entering die job market each governments will be able to provide year, according to the United ON LEGALS, ILLEGALS education and jobs for hundreds of Nations Population Fund. millions of teenagers are remote. Although birth rates are falling, The gaps between rich and poor BY JOHN P. SWEENEY die worlds population is growing countries are widening, not closing.

18 FOREIGN SERVICE JOURNAL/NOVEMBER 1997 Focus

Although Americans cherish the belief that

their nation is a “melting pot” of immigrants, they have historically been ambivalent about newcomers.

While European NATO officials worry about popula¬ always been ambivalent about immigration. Aldiough tion growth in North Africa, the European Union is Americans cherish the belief that their nation is a “melt¬ designing and implementing new visa regulations, immi¬ ing pot” of immigrants from all comers of the world, gration laws, and asylum rules to keep out people. These throughout Americas histoiy its citizens, themselves tougher rules come in response to growing EU fears of a descendants of earlier immigrants, have frequently looming immigration “crisis.” In countries like France opposed die admission of new immigrants for ethnic, cul¬ and Germany, immigration has emerged as one of the tural and economic reasons. most contentious issues in domestic politics. Six million From 1870 to 1917, for example, the U.S. Congress Africans now live in France and Germany alone, adding targeted Asians for exclusion by passing a succession of to the existing burden of absorbing refugees from tire for¬ laws banning migration from the Asiatic Triangle — a mer Soviet bloc, Turkey and Asia. region extending from the Straits of Bosphorus to die Among the wealthy industrial nations of Europe, pop¬ H awaiian Islands. ulation increases lie behind significant new social ten¬ The wave of Irish who migrated to the United States sions and the gr owth of right-wing and nationalist politi¬ in the mid- to late-19th century were discriminated cal movements. In France, where one of every four against for their Catholic faith. The arrival after 1880 of French citizens can trace his ancestry to at least one millions of new immigrants from southern Italy and east¬ grandparent bom abroad, the National Front political ern Europe coincided widi die emergence in American party of Jean Marie Le Pen wants to expel foreigners. In political debate of Social Darwinism, which dismissed 1993, Charles Pasqua, the hard-line Cabinet minister these Italian, Slavic and Jewish immigrants as biological¬ then in charge of security and immigration affairs, ly inferior, uneducated people who would never be declared that France would henceforth become a “zero assimilated and would undermine American democracy. immigration” country, reversing a 200-year-old policy of After World War I, U.S. immigration policy tied die offering asylum, Pasqua said. number of immigrants from any one country to die num¬ The French, writes Jim Hoagland of The Washington ber from diat same nation counted in the U.S. census of Post, “have fused race and immigration into an existential 1890. Subsequendy, tiiis quota system was pushed back to issue diat now dominates their politics. Many French die number from diat country counted in the U.S. census believe — in die face of evidence to the contrary — diat of 1790, and culminated in 1924 widi the National Origins clandestine immigration is the prime factor in dieir coun¬ Quota Act, which restricted immigration from eastern and try’s record-high unemployment, and in spreading crime. southern Europe, while assigning a large quota to immi¬ In diis diey do not differ greatiy from many Americans.” gration from Great Britain. The National Origins Quota Act remained in effect for more dian four decades, From a historical perspective, diere is nothing although Congress passed legislation in 1948 that admitted unusual about Americas current wave of anti¬ about 500,000 refugees from eastern Europe. immigrant sentiment. The United States has Congress established die present immigration system in 1965, after the civil rights movement challenged immi¬ John Sweeney is a Washington-based policy analyst on gration law's that discriminated on die basis of race and trade and Latin American issues and a weekly commen¬ ethnicity. The Immigration Reform Act of 1965 ended tator for CNN In Espanol. preferences for western Europeans, creating instead an

NOVEMBER 1997/FOREIGN SERVICE JOURNAL 19 Focus

annual limit of 290,000 immigrants, with no more than Act of 1986. The IRCA, which gave more than 3 million 20,000 from anv single country. The IRA also assigned the illegal immigrants a one-time opportunity to legalize their highest priority to foreign-bom relatives of U.S. citizens, status, had several unintended consequences. It prompted the second priority to immigrants with needed skills, and many illegal workers who migrated between homes and limited immigrants from Canada and Mexico to 120.000 seasonal jobs in the United States to settle in America. immigrants annually. Many sent for their families, adding more stress on schools, From the 1960s until the end of the Cold War, U.S. public health care and other services. Worse, the I R( . A did immigration policies became increasingly influenced bv not halt illegal immigration. According to the INS. illegal the central U.S. foreign policy goal of containing the immigrants now account for about 2 percent of the U.S. spread of communism. Hundreds of thousands of Cuban population, or about 5 million people. Anti-immigrant sen¬

refugeeso were admitted to the United States in the earlvy timent in the United States during the 1990s has grown 1960s after Fidel Castro installed a communist regime in apace with the increase in annual immigration, particular¬ Cuba. During the 1970s and 1980s, refugees from ly from Latin America and Asia. Vietnam, Laos, Cambodia, Russia, Nicaragua and El As a wedge issue, immigration turned out to be a self- Salvador were also admitted bv the hundreds of thousands. inflicted wound for the Republican Party, as voiced by for¬ In theory, the Immigration Refonn Act of 1965 was mer presidential candidate Pat Buchanan, who urged a intended to make the immigration system more democra¬ five-year moratorium on legal immigration. Incensed bv tic and efficient, but in practice the U.S. government soon what they perceived as anti-Hispanic bias in the COP. dropped any pretense of enforcing the law’s quota system. Hispanic-Americans voted Democrat by a ratio of 17-to-1. Instead, pressured by domestic political pressures and for¬ In 1994, voters in California approved Proposition 187, eign policy considerations, successive U.S. governments restricting the provision of state — or taxpayer-funded - have increased the number of immigrants allowed into the public health care and education services to illegal immi¬ count)')'with the possibility of becoming U.S. citizens after grants and their children. In the 1996 elections, the immi¬ five years. gration issue divided the Republican Party internally. Texas Senator Phil Gramm criticized Senate Majority Since 1968, legal and illegal immigration has grown Leader Bob Dole for not being tougher on denying social rapidly; peaking at 1.8 million in 1991 iuid subse¬ welfare benefits to legal immigrants who are not yet citi¬ quently averaging about 1.1 million to 1.2 million zens, but he attacked California Governor Pete Wilson for annually during the 1990s. In 1994, for example, some proposing a constitutional amendment to deny citizenship S(X).()()() immigrants were admitted legally to the U.S., to children born in the U.S. to illegal immigrants. including 252,000 non-quota relatives of U.S. citizens, Meanwhile, Pat Buchanan promised to “stop this mas¬ 212,000 family-sponsored quota immigrants, 123,000 sive illegal immigration cold.” If elected president, employment-based quota immigrants, 136,000 refugees and Buchanan vowed, “I’ll build that security fence, and we ll as)h im seekers, and 81,000 more under other categories. close it, and we’ll say, “Listen Jose, you’re not coming in!” He In addition to ignoring the quota established by the also called for a five-year moratorium on legal immigration. IRA, successive Democratic and Republican administra¬ A 1995 survey by the Chicago Council on Foreign tions failed to control the admission of illegal immigrants to Relations on U.S. public opinion and U.S. foreign policy, the United States — roughly 300,000 illegal immigrants found that 72 percent of the American people believe that have entered the country each year since 1968 — and “controlling and reducing illegal immigration" should be “a ignored Americas wide-open, 2,000-mile border with very important” goal of the United States. Mexico, which exists on maps but not in reality. The anti-immigrant sentiment articulated most viru¬ By 1986, the Immigration and Naturalization Sendee lently by Buchanan has a broad audience in America. estimated that 6 million immigrants were living illegally in Moreover, although the immigration card backfired on the United States. Faced with a problem for which there Republicans, the Clinton administration and Congress was no practical solution, Congress fudged the issue polit¬ have moved since 1994 to strengthen border controls, and ically by approving the Immigration Refonn and Control toughen U.S. immigration rules.

20 FOREIGN SERVICE JOURNAL/NOVEMBER 1997 Focus

THE NEED FOR REFORM

BY REP. LAMAR SMITH W’hat John F. Kennedy wrote 35 years ago is in 1995 and reiterated in its final report on Sept. 30, no less true today: “We no longer need set¬ should be die blueprint for future discussions of immi¬ tlers for virgin lands, and our economy is gration policy. Under this blueprint, die permanent legal expanding more slowly than in the 19th and early 20th immigration system would admit 550,000 aliens per centimes.” When he wrote that, immigration levels were year. Highest admission priority would be given to one-third of what they are today. spouses and minor children of U.S. citizens, widi next Some partisans raise the misleading argument that priority to die parents of citizens and die spouses and “absolute” numbers do not matter because as a per¬ minor children of lawful permanent residents. centage of overall population, todays immigration flow Eliminated would be categories for die admission of is less than in the early part of the century. “Per-capita” adult children and adult siblings. The reason for diis measures of immigration, however, do not adjust for trade-off is clear: The current backlog for admission of past or present economic and social conditions. Todays the nuclear family — spouses and minor children of per-capita rate of about 3.5 new immigrants per 1,()(X) lawful permanent residents — is well over 1 million. current residents means little to the individual states The resulting wait for admission is close to five years. and cities that experience a disproportionate share of In die meantime, the United States admits more dian the immigrant flow. For example, in California, the per 100.000 adult extended family members, including capita ratio is 6.5 per 1,000; in New York, it is 8.3. 65.000 adult siblings every year. These latter categories The “per-capita” argument also obscures burdens clearly do not have the same claim on our system as the imposed on American society by the sheer size of the need for unification of the nuclear family. current immigration flow. The debate over immigra¬ As a temporary measure, the commission recom¬ tion reform is not about the admission of several thou¬ mended diat 150,000 visas be available each year to sand Ph.D.s and other immigrant “superstars” each clear the backlog of spouses and minor children of legal permanent residents. The commissions refonns would year. Rather, it is about die 40 percent of immigrants over age 25 who lack a high school diploma. This is not change remaining immigration categories to focus on the an era, as previously existed in this country, where such admission of highly-skilled workers, eliminating die con¬ workers can be absorbed into heavy industry agricul¬ troversial unskilled worker and diversity categories. Finally ture and odier labor-intensive enterprises. die commission calls for expanded U.S. leadership in the Mass immigration is not merely a statistical phe¬ area of refugees, including encouragement of odier nations nomenon. It imposes undue burdens on taxpayers, par¬ to share more in the burden of refugee resettlement. ticularly in high-immigration states, causes a surplus of RAND’s study, released in September, recom¬ low-skilled labor, and undermines die integrity of U.S. mends reducing current immigration to between immigration laws. 300.000 a year (the 1970s average) and the current Yet, mass immigration is not an inevitable phenom¬ baseline of more than 800,000 annually. Within this enon. Balanced refonn of legal immigration policy, limit, die study calls for reformed admission criteria along the lines recommended by the U.S. Commission diat wifi increase the percentage of immigrants with on Immigration Reform and considered by the 104th higher skill and education levels. Finally, RAND called Congress, can maintain America’s tradition of welcom¬ for tighter controls on illegal immigration as essential to ing immigrants while preserving vital national interests. die credibility of die overall system. The commissions proposed reforms, originally issued Immigration refonn is not a “nativist” enterprise. If Americans do not learn to set and enforce priorities in Rep. Lamar Smith, R-Tex., is chairman of the House immigration policy, the consequences will be die result Subcommittee on Immigration and Claims. not of accident, but of deliberate inaction. ■

NOVEMBER 1997/FOREIGN SERVICE JOURNAL 21 Focus

The 1996 Immigration Reform Act made major, As the U.S. government seeks to raise the bar for massive changes to the way illegal immigrants are immigrants wanting legal admission to the United managed in the United States. Immigration States — while closing die door on illegal immi¬ inspectors at the border and at airports now have the grants — die immense wave of migration that followed authority to ban people from entering the country for five Congress’s passage of die Immigration Reform Act of 1965 years if they lack tire proper visa or if the inspector believes has changed the demography and politics of America in they misrepresented themselves in any way. There is no fundamental ways. judicial review or appeal. The 1996 act also increased the The total foreign-bom population of the U.S. is steadi¬ INS budget by 20 percent, allowing the agency to double ly rising. In 1996, it reached a record 24.5 million, or 9.3 the number of agents and inspectors, and provide new percent of the total population. And Hispanic immigrants equipment enabling the deportation of at least 93,000 ille¬ are leading the way. Growing tiiree times faster than die gal immigrants and the “voluntary” departure of another national rate, Hispanic populations today constitute the 100,000 immigrants during the 1997 fiscal year. largest minority group in many major cities, including Los Still, these efforts to toughen Americas immigration Angeles, San Jose, San Antonio, Miami and Houston — laws tire not likely to have much effect in terms of reduc¬ and will pass the number of blacks in New York by the end ing illegal immigration and managing legal immigration of this decade. The Hispanic population is now growing at more efficiently. the rate of 900,000 a year, including net immigration of On Sept. 30, the U.S. Commission on Immigration 350,000 annually. Bv 2009, the U.S. Census Bureau pre¬ Reform concluded a five-year study with the release of a dicts Hispanics will be Americas largest minority group. report entitled, “Becoming an American: Immigration and Moreover, Hispanics and Asians will account for over Immigrant Policy.” Among its key recommendations, the half the growth in the U.S. population every year for the commissions report called on the U.S. government to: next half century and beyond, according to bureau statis¬ ■ Dismantle the INS to “increase the efficiency and tics. The total U.S. population of 262.8 million as of July 1, integrity of the naturalization process,” shifting its func¬ 1995, is projected to reach 393.9 million by 2050, with a tions to the Justice, State and Labor departments. growth rate of less than 1 percent annually, the lowest rate ■ Develop a comprehensive strategy to deter illegal since die Great Depression of 1930s. immigration and expedite the removal of criminal aliens. The U.S. population is now 73.6 percent white, 12 per¬ ■ Create a new bureau for immigration enforcement in cent black, 10.2 percent Latino, 3.3 percent Asian and 0.7 die Justice Department. percent Native American. By 2050, the Census Bureau pre¬ ■ Consolidate employer immigration hiring enforce¬ dicts that the United States will be 52.8 percent white, 24.5 ment in die Labor Department. percent Hispanic — predominantly Mexican, 13.6 percent ■ Place authority for all citizenship applications and black, 8.2 percent Asian and 0.9 percent Native American. odier immigration-related services in the State The biggest expansion of Asian and Hispanic immi¬ Department. grants will occur in California, Florida, Texas, New York, ■ Establish a new agency for immigration review to Illinois, New Jersey and Massachusetts, all swing states in hear all legal reviews of immigration-related decisions. American presidential politics. California's population is ■ Promote the “Americanization of new immigrants” now 52.5 percent white, 29.8 percent Hispanic, 10.7 per¬ and “the rapid acquisition of English as the paramount goal cent Asian, and 6.9 percent black. The most recent state of all immigrant language-instruction programs.” forecast for 2040, issued in 1993, estimates a California The commissions strong emphasis on die need to population that is 49.7 percent Hispanic, 32.4 percent “Americanize” immigrants more effectively reflects broad white, 11.8 percent Asian and 5.9 percent black. national concerns that they are not assimilating quickly enough, and that the U.S. education system is failing to Does the changing demographic face of America teach immigrants basic English skills needed to be pro¬ ultimately threaten national unity and identity, as ductive in die U.S. economy. nationalists like Pat Buchanan warn? No.

22 FOREIGN SERVICE JOURNAL/NOVEMBER 1997 Focus

From the 1960s u ntil the end of the Cold War, U.S. immigra¬ tion policies were influenced by the central U. S. foreign poli¬ cy goal of containing communism. That’s not true anymore.

Throughout its history, America has suffered periodic he also reacted to the Cuban rafter crisis, and to flare-ups of anti-immigrant sentiment, but successive gubernatorial election pressures in the state of Florida, waves of immigrants have assimilated into American soci¬ by terminating a 30-year policy of automatically admit¬ ety and culture. It may be more difficult for older immi¬ ting all Cuban refugees to the United States. grants to learn English and adapt to American culture and President Clinton also sent U.S. troops to Haiti with social mores, but younger immigrants and the American- the twin goals of restoring democracy and easing pres¬ born children of immigrants Americanize very quickly. sures on Haitians to migrate illegally to the U.S. In 1908, residents of Chicago — then the second largest Will immigration affect American politics? It did in the city in America — spoke more than 14 languages, published 1996 elections, when Hispanic-Americans voted over¬ newspapers in 10 languages, and conducted worship ser¬ whelmingly for Democratic candidates to protest what vices in 20 tongues. Measured by the size of its communi¬ they perceived as racist, anti-Hispanic sentiment by ties, Chicago was the second-largest Bohemian city in the Republican candidates. In the longer term, the emergence world, the third-largest Swedish, the fourth-largest Polish, of Hispanies as the largest ethnic minority in America may and die fifth-largest German. New York was a larger Indian have a fundamental impact on how the entitlement pie is city than Rome, and also was the foremost Jewish city in the carved up between American society’s various ethnicities. world with a population of no fewer than 800,000 Jews. Hispanies and blacks mainly vote Democrat, but the simi¬ There were more than two-thirds as many native-born Irish larities end there. A growing Hispanic population will in Boston as in Irelands capital city of Dublin. mean more political competition, and possibly more fric¬ Will efforts to toughen Americas immigration laws tion between Hispanies and blacks. reduce illegal immigration? Certainly not. Americas open The growth of the Hispanic population, in particular, economy and borders will continue to facilitate the entiy of may also influence the outcome of national and state elec¬ illegal immigrants via commercial airline, seaport, or land tions as soon as the middle of the next decade, since they crossing. Cheap and plentiful immigrant labor provides tend to establish themselves in die states with the largest benefits to American businesses and consumers, and that number of electoral college votes, which coincidentally fact alone drives a goodly portion of the political disincli¬ happen to be the states with the largest Hispanic enclaves. nation to really clamp down tight on illegal immigration. The Democratic Party clearly hopes to build a new Will immigration become a larger foreign policy con¬ Hispanic-American constituency for the coming decade, cern? It already has. NAFTA was sold in part to U.S. pub¬ while Republicans — with some exceptions — are trying lic opinion as a way of reducing illegal immigration to to avoid being branded as anti-immigrant. America. The argument was fallacious, of course, but it More than 200 years of experience should have taught underpinned a long-held U.S. foreign policy concern America that controlling immigration is far more complex about Mexico: Economic or political instability in that than just kicking out the illegal immigrants and closing nation might translate into massive illegal migration to down the border. Immigration issues will remain con¬ the United States. tentious in American politics as long as die U.S. economy President Clinton articulated that concern when he leads the world, while smaller economies struggle to defended his bailout of Mexico following the collapse emerge from the poverty that traps two billion human of the peso in December 1994. In August of that year, beings around the world. ■

NOVEMBER 1997/FOREIGN SERVICE JOURNAL 23 Focus ON IMMIGRATION

REFUGEE DREAMS

adeleine Albright is the based on race, religion, membership in a particular prototypical refugee. As social group or political opinion.” M a child, she and her fam¬ The end of the Cold War has touched off a debate ily fled to the United as to which direction the U.S. refugee program States to escape commu¬ should take. Some groups argue admissions should nism in her native be based on numerical ceilings. Others say the cur¬ Czechoslovakia. For that rent system of criteria-based admissions should be family and hundreds of maintained. Sen. Spencer Abraham, R-Ala., who thousands of others who deserted communism, safe chairs a Senate subcommittee that oversees refugee repatriation was not possible because communist programs, says the administration should admit more regimes tended to hang around indefinitely. refugees. His predecessor as subcommittee chair¬ Recognizing this, the United States granted asylum man, Alan Simpson, R-Wyo., wanted fewer. to those able to flee. The estimated 14 million refugees worldwide is The overwhelming majority of roughlv the same as it was during refugee admissions over the years the Cold War era, and some have involved victims of Marxist groups are alarmed at the plum¬ rule. So it comes as no surprise meting admissions. They point that with the decline in the num¬ out that current admissions repre¬ ber of totalitarian regimes, the sent an infinitesimally small per¬ number of refugee admissions has centage of the total. Australia, dropped. In fiscal 1992, 132,000 Canada and some Scandinavian refugees were admitted, mostly countries admit a higher percent¬ Russians claiming religious perse¬ age than does the United States. cution and Vietnamese boat peo¬ Other groups argue that too ple. Given the declining backlog many undeserving aliens are of such cases, refugee admissions granted refugee status. They

reached a nine-yearJ low in fiscal worry that the United States has 1997 of 78,000. The administra¬ opened a Pandoras box by admit¬ tion is recommending a similar ting foreign homosexuals who figure for fiscal 1998, halting, at allege governmental persecution, least temporarily, the five-year or IIIV/AID victims who hope to U.S. ASYLUM REFOCUSES downturn. gain access to American health ON BOSNIANS, GAYS, Admissions are based on State care, or Chinese nationals who Department country-by-country RUSSIAN EVANGELICALS object to their country's one- allocations. Applicants must con¬ child-per-family policy. vince U.S. authorities they have a Decisions on whom to admit “well-founded fear of persecution BY GEORGE GEDDA as refugees and whom to deny

24 FOREIGN SERVICE JOURNAL/NOVEMBER 1997 Focus

To advocacy groups, the 40 percent decline in U. S. refugee admissions since 1992 suggests a mean-spiritedness on the part of a country that sees itself as a haven for the oppressed.

can be highly subjective. Undoubtedly, many who In 1995, a dispute arose over the program under have been admitted over the years should have been which Iraqis who had fled their homeland during or turned away because they used fraud or deceit to after the 1991 Gulf War were admitted to the United beat the system. Others who had a credible case have States. Several were discovered to have committed been rejected because they weren’t persuasive crimes of a sexual nature after their arrival. A memo enough when applying. to Secretary of State Warren Christopher from U.S. Ambassador to Saudi Arabia Raymond Mabus Jr. Americans can feel flattered that so many for¬ urged the administration to seriously consider ending eigners want to start a new life in the United the program. States. But any such situation entails risks. Mabus took particular issue with a cultural orienta¬ Take the case of Gazi Ibrahim Abu Mezer, 23, a tion program designed to make clear to the refugees Palestinian who sneaked into the United States from U.S. standards for appropriate behavior. “I do not see Canada last January and has asked for political asylum. how ‘cultural orientation’ can modify criminal behav¬ After withdrawing the application later on, he was ior; and frankly do not see how such a program is freed on $5,000 bond with an agreement to voluntari¬ defensible,” the memo said. The State Department ly leave the country by Aug. 23. But it turned out that response was that the number of Iraqi offenders rep¬ Abu Mezer was a terrorist. In early August, he and a resented only a tiny percentage of the overall total. fellow Palestinian were caught plotting to bomb a The program has been allowed to continue. New York City subway station and other locations. The immigration service said there was nothing in No refugee issue has caused greater anxiety Mezer s background to suggest he was a terrorist. for policymakers than Cuba. Jimmy Carter There are other kinds of risks in admitting refugees will forever be remembered as the president or asylum seekers. Will they become welfare cases? who unwittingly allowed the admission of thousands Do they have a criminal past that they have been able of criminals and mentally deranged people from to conceal from U.S. authorities? Do they adhere to Cuba in 1980 during the Mariel boat lift. Seventeen values not shared by Americans? Can they be assimi¬ years later, some have been repatriated, but not all. lated? The answer to the last question is: not always. The real villain, of course, was Fidel Castro, who Last year, many citizens in Fresno, Calif., were out¬ emptied his prisons and mental hospitals and sent the raged when a Laotian refugee had a puppy clubbed to inmates and patients to south Florida along with death in the belief that the sacrifice would cure his more legitimate candidates for refugee status. wife, a diabetic. The dog was sacrificed only after two President Clinton moved aggressively in 1994 to years of failed rituals, including the burning of money block an attempt at a Mariel reran, ordering the and the slaughter of chickens and a pig. The man Coast Guard to pick up fleeing Cubans and deposit pleaded no contest to charges of animal cruelty. them at the Guantanamo Naval Base. Given the political mood in Florida in opposition to yet another George Gedda is the diplomatic correspondent for disruptive boat lift, Clinton had little choice but to the Associated Press. act as he did.

NOVEMBER 1997/FOREIGN SERVICE JOURNAL 25 Focus

Almost all of the 30,000 Cubans sent to country which likes to see itself as a haven for the Guantanamo eventually were allowed to emigrate to oppressed. "The world is awash in refugees,” says the United States even though U.S. officials had cate¬ Arthur Helton, migration expert at the Open Society gorically ruled out that option at the time they were Institute in New York. “The United States could sus¬ sent there. The policy change was based on the assess¬ tain the admission of well over 100,000.” InterAction, ment that the desperation level at the base was such the umbrella group for a number of private volunteer that there was a strong possibility of riots and agencies, says the declining numbers are threatening American military casualties at the base. Some of the Americas leadership role and preventing thousands Cubans had injected diesel fuel into their veins in from having the opportunity to begin new lives in the hopes of being evacuated to the United States. Others United States. The group recommends admissions in drove tent stakes into their limbs. fiscal 1998 of 110,000. Most refugees are not nearly so fortunate as those Helton and others believe the United States should be at Guantanamo, almost all of whom were allowed to far more generous towards African refugees. He insists depart for the United States after only a little more that "a world-class refugee crisis” persists in Central than a year’s stay there. Elsewhere, refugees often face Africa, affecting “many millions." He says die U.S. reset¬ the grim choice of staying in the countries to which tlement policy ignores the issue and he recommends an thev have fled or returning to the land from which they international conference to resolve it. John were uprooted. Fredericksson, of the U.S. Committee for Refugees, agrees with Helton that the United States should be To refugee advocacy groups, the 40 percent admitting more than the 7,000 refugees contemplated for decline in refugee admissions since 1992 sug¬ Africa in fiscal 1998. That figure, he says “is absolutely gests a mean-spiritedness on the part of a way too low.” He advocates a ceiling of 15,000.

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One reason for the declining admissions, Clinton Most refugees never even come close to being administration officials say, is that refugees nowadays granted refugee status in the first place. An example is are not fleeing tyranny but anarchy, often a temporary Liberia, from which huge numbers fled because of a phenomenon. Once calm is restored, people usually civil war that ended in 1996. At the time a newly-elect¬ can safely be repatriated. As an example of the ed government took office last August, there were still ephemeral nature of some conflicts, nearly 1.8 million about 651,000 Liberians living in neighboring Ivory expatriated Rwandans returned home within a few Coast and Guinea. U.S. officials are operating under months last year, most with United Nations help. the assumption that with peace and democracy Is U.S. refugee law relevant to Rwanda-like situations? restored in Liberia, there is no reason to accept large No, says Phyllis Oakley, the outgoing assistant secretary of numbers of Liberians as refugees. State who deals with refugee issues. “Our law is not con¬ Too often, refugees are portrayed by government structed for victims of conflict and anarchy. It is built on officials and die media as mere statistics and not as presentation of persecution personally directed at people.” people who have suffered the almost indescribable anguish of being driven from their homes. For some Some analysts believe all grants of asylum and refugees, the forced exodus is only the beginning of refuge should be temporary. John Tanton, editor their problems. A Human Rights Watch report noted and publisher of The Social Contract, a public that hundreds of thousands of Somalis fled to Kenya policy journal, says that under a system of temporary earlier this decade to escape violence in their war-tom asylum, “the understanding would be that when things homeland, only to face similar abuse on arrival. The settle down sufficiently for a safe return, individuals U.N. High Commissioner for Refugees documented would go home to help their own countries and soci¬ close to 300 rape cases among these mostly-female eties make progress.” refugees. Most were victimized by bandits. “Somali VOLVO Factory-Set Discounts To Diplomats Posted Stateside and Abroad U.S., U.K., European, or Overseas Specs Overseas and Domestic Deliveries JERRY GRIFFIN DIPLOMATIC SALES SPECIALIST 18 YEARS WITH VOLVO

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women as old as 50 and girls as young as four have and, to a lesser extent, citizens of other countries been subjected to violence and sexual assault,” the involved in the Indochina War. More than 1.1 million Human Rights Watch report said. “Most of the women East Asians, mostly Vietnamese, have been admitted to whose cases we investigated were gang-raped at gun¬ the United States since the end of the war, by far the point, some by as many as seven men at a time.” largest number of any region worldwide. Nowadays, the Despite these abuses, UNHCR believes that for backlog ot applicants from Vietnam has been reduced to the large majority of refugees in Africa and else¬ a relative trickle. This past year, about 6,500 Iraqis, most¬ where, the goal should be repatriation and not ly Kurds opposed to President Saddam Hussein, were resettlement. Exceptions involve those cases in admitted to the United States because of their ties to which there is reason to believe that a particular U.S.-backed efforts to depose Saddam, perhaps the group would suffer persecution because of its ethnic worlds premier tyrant. roots. One such case involves a Somali group known as the Bravens, many of whom have been recom¬ In fiscal 199S, the biggest supplier of refugees, mended for resettlement elsewhere. To help under the administration’s proposal, will be a refugees survive the rigors of camp life, the United country that did not exist until less than six years States contributes about $475 million annually; well ago; Bosnia. The State Department has set aside over a third goes for African refugees. 25,000 slots for Bosnians in that fiscal year, more than Traditionally, the United States has been generous a quarter of the worldwide total. Given the bleak con¬ toward people for whom life has become impossible ditions and continuing ethnic hatreds in Bosnia, there because of their close association with the U.S. govern¬ is little argument over the disproportionate number ment. There is no better example of this than Vietnam allocated for that country.

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While wishing to assist Russians who suffer such One expert who rejects the notion that the United discrimination, U.S. officials are aware of the potential States is too indulgent toward asylum seeking aliens for abuse. “The longer a refugee program goes on. the is Jennifer Harbury, the Harvard-trained lawyer who more fraught they are with fraud,” an official says. In gained attention in recent years from her efforts to the Russian case, consular officials must be perma¬ learn the whereabouts of her Guatemalan husband, nently on guard against “stairway conversions” — a guerrilla fighter. bogus claims of religious persecution by Russian non¬ Living in south Texas during the 1980s, Harbury believers who arrive at the U.S. consular office in became aware of the thousands of Central Moscow insisting the)' are entitled to refugee status. A Americans who swam the Rio Grande to escape mas¬ related concern not only in Russia but elsewhere is the sacres and death squads in their homelands. Their development of entire overseas industries that special¬ claims ol repression were dismissed by immigration ize in the invention of false asylum claims and in the authorities, who ordered them repatriated. Harbury manufacture of false-entry documents. said these decisions were politically motivated Fraud also is routinely committed by aliens who because the Reagan administration was intent on manage to make it to the United States and claim they maintaining military aid to the countries from which would be persecuted if they return home. William these migrants had fled. Granting the migrants polit¬ Chip, legal counsel for the American Federation for ical asylum could have led to the designation of their Immigration Reform, says foreigners not selected for respective governments as human rights violators - admission under the refugee program sometimes try and a congressionally-mandated cutoff of military to make an “end run” by entering the country illegally assistance. Harbury recalled in her book, Searching and applying for asylum. “Even worse,” he says, “aliens for Everardo, the case of a “man covered with acid- who are not refugees at all can use the asylum proce¬ burn scars, fresh from the torture chamber where his dure as a de facto immigration lottery, betting the brother had died, was declared to have no reason¬ price of a plane ticket and a counterfeit visa on their able fear of persecution should he be deported.” chances of hoodwinking an asylum officer or disap¬ It is also true, of course, that immigration officials pearing into the woodwork while their claims are allowed hundreds of thousands of Central Americans being adjudicated.” to remain in the United States for years beyond the expiration of their visas. There was a recognition of Groups such as AFIR are worried that gay the need to permit calm to return to the region and rights organizations and other groups have to avoid overwhelming the area with job seekers at a been able to exploit vague wording in the time of severe economic deprivation. Many thou¬ Immigration and Nationality Act to their advantage. sands of others were allowed to remain in the United Writing in The Social Contract, James Robb notes States permanently. that “membership in a particular social group” is One overlooked option for the oppressed peoples grounds for granting refugee status. On that basis, of the world is to stay and fight the repressers. The the INS granted asylum in 1994 to Jose Garcia, a role models for Tanton, of The Social Contract, are Mexican national who said he was a homosexual and Poland’s Lech Walesa and Czechoslovakia’s Vaclav who claimed he could not return home for fear of Havel, either of whom, he says, “would have been mistreatment. Alarmed by the ruling, Robb asks: readilv accepted as a refugee and perhaps even feted “Couldn’t America be deluged with persons demand¬ with a ticker-tape parade to congratulate ourselves ing gay asylum?” In Garcias case, he claimed that in on our magnanimity. M exico, he had been taunted by fellow Mexicans, But they chose to stay and fight for what they falsely arrested and sometimes raped by police. Robb believed in, and made a better life for themselves and dismisses these claims as uncorroborated. their countrymen in this and future generations.” ■

30 FOREIGN SERVICE ] OU RN AU N OV EM B E R 1997 American Foreign Service Association

Professional Liability Insurance Now Available

By Hearly G. Mayr members have been requesting this type of Governing Board President: Alphonse F. La Porta Foreign Service Journal Intern coverage. State Vice President: Daniel F. Geisler or today's consular officer, deciding In April 1994, Congress amended the USAID Vice President: Frank Miller O USIA Vice President: J. Riley Sever whether a visa applicant is a potential 1980 Foreign Service Act to hold consular CS Vice President: Charles Kestenbaum terrorist can be a career-threatening officers responsible for issuing visas to persons FAS Vice President: Maggie Dowling Retiree Vice President: Edward Dillery decision. But, like physicians and lawyers, who "commit terrorist acts." Although the provi¬ Secretary: Aurelius Fernandez AFSA members who are active FS employees sion applies only to consular officers, labor- Treasurer: Thomas Boyatt State Representatives: Natalie Brown, can now buy liability insurance to protect relations attorneys worry that other Foreign Marilyn Bruno, Steve Romero, Christopher themselves from mistakes made in their profes¬ Service personnel might be held accountable Sandrolini, Greg Stanton USAID Representative: Janina Jaruzelski sional capacity. for errors made in their professional capacity. USIA Representative: Susan Crais Hovanec AFSA, through an affiliation with its long¬ This is an issue that so far is untested in the Retiree Representatives: Garber Davidson, Willard DePree, Wiliam Harrop, Clyde Taylor time insurance administrator, The Hirshorn courts, according to Ken Nakamura, AFSA FAS Representative: William W. Westman Company, is now offering professional liability congressional affairs director. Legal represen¬ CS Representative: Geoff Walser Staff insurance to protect its members. "We're creat¬ tatives at Justice and the State Department Executive Director: Susan Reardon ing a professional insurance program that is have said unofficially that individual FS Business Department Controller: Kara Harmon Ebert both broader in coverage and less expensive employees cannot be personally sued under Accounting Assistant: Marguerite Madland than anything currently available elsewhere," the provision. Labor Management General Counsel: Sharon Papp says Kathy Hubby, administrator for AFSA's Separate limits of coverage will apply for Staff Attorney: Colleen Fallon insurance program at The Hirshorn Company. administrative legal defense costs and mone¬ Coordinators: Richard C. Scissors, Jack Bryant "This new insurance is customized for all tary penalties arising from internal agency dis¬ USIA Labor Relations Specialist: Carol Lutz members of the FS," says AFSA executive ciplinary actions, accountability review boards Grievance Attorneys: Suzanne Brennan, Henry Sizer director Susan Reardon, who noted that many Continued on page 4 Representative: Karen Carrington Office Manager: Geri Verble Member Services Director: Janet Hedrick Representative: Yolanda Odunsi • AFSA Dateline • Administrative Assistant: Jean Hanford Retiree Liaison: Ward Thompson • Edward W. Gnehm Jr. was sworn in as Suzanne Brennan, a recent graduate of Catholic Professional Programs Professional Issues: Richard S. Thompson Director General of the Foreign Service by secre¬ University Law School, has replaced her. A native Congressional Affairs Director: Ken Nakamura tary of State Madeleine Albright on Sept. 19. of New Jersey, Brennan was a clerk at a labor Congressional Liaison: Rick Weiss Corporate Relations: vacancy • Charles Kestenbaum and Geoff Walser and employment law firm before coming to AFSA. Communications Coordinator: Kristina Kreamer have replaced Tom Kelsey and Keith Curtis • AFSA scholarship applications are now Scholarship Administrator: Lori Dec as Commercial Service vice president and available. FS children who are graduating Internet Addresses: representative, respectively. high school seniors or college undergradu¬ [email protected] (Association) • "The help-wanted sign for a new [AFSA] presi¬ ates may apply for merit and financial aid [email protected] (President) [email protected] (FSJ) dent is huge," wrote Al Kamen in the Sept. 22 scholarships for the 1998/1 999 school issue of "In the Loop," in The Washington Post, year. To receive an application, call Lori AFSA Headquarters: (202) 3384045 FAX: (202) 338-6820 "because the vacancy occurs during major Dec at (202) 944-5504, e-mail her at change for the members." Kamen mentioned the [email protected] or download the applica¬ Labor Management: (202)647-8160 FAX: (202) 647-0265 imminent departures of AFSA president Al La tions from www.afsa.org, AFSA's web page. Porta and secretary F.A. 'Tex" Allen to Mongolia Application deadline is Feb. 6. USIA Headquarters: (202)401-6405 FAX: (202)4014410 and Australia, respectively. • Those interested in participating in the 1998 • Grievance attorney Audrey Chynn American Foreign Service Retiree Home AFSA News Editor: Polly Gilbert resigned from AFSA recently to join the legal staff of the Small Business Administration. Continued on page 4

AFSA NEWS • NOVEMBER 1 997 1 V.P. VOICE • BY DAN GEISLER • Minimizing Uncertainty at New State

y USIA counterpart, Riley year rule" capping consecutive years in Sever, whose article also Washington. USIA officers simply adhere appears in AFSA News, and I to the statutory eight year limit. have been working together closely to There is another area where we implement the Administration's decision need to harmonize: Differences to reorganize our foreign affairs appa¬ between our evaluation systems will ratus. In addition to swapping informa¬ affect future promotion panels which will Diplomacy tion about State and USIA's receive files with a mixture personnel systems, we have of EER forms, completed by Has Its been battling one of the big "We need to rating and reviewing officers enemies of a smooth establish the operating under different transition: Uncertainty. promotion precepts. The Rewards. If there is one thing that ground rules quicker we address this situ¬ every business person under¬ for this integration ation, the better prepared stands, it is that uncertainty our people will be to work At American Service costs money. The greater the as soon as productively in the com¬ Center, your Al, A2, uncertainty about your future possible ..." bined new State financial prospects, the more Department. NATO 1, NATO 2, or G4 you pay for a business loan. One area of uncertainty visa, along with a diplomatic Knowing what will happen that is not subject to labor- tomorrow reduces the cost of management negotiations is or official passport, allow doing business today. There is a paral¬ the status of the Smith-Mundt Act and the you to purchase a new lel in human resources management. If Zorinsky Amendment. That is up to there is one thing that every re-engineer¬ Congress. These two pieces of legisla¬ Mercedes-Benz at dramatic ing guru preaches, it is the need to mini¬ tion prevent USIA from distributing mate¬ savings. Contact Erik mize the uncertainty that your employ¬ rials here at home and from spending ees face when big organizational money that would go toward domestic Granholm, our Diplomat changes are afoot. We have asked public relations. Congress may choose management to sign with us a framework to reaffirm one or both of these provi¬ and Tourist Sales Manager. documenting some of the areas where sions in the pending State Department A native of Munich, we have agreement, subject to passage authorization bill or by some other leg¬ of the necessary legislation. The aim is islative vehicle. But restrictions on the Germany, Erik has keen to give FS personnel a clearer picture of use of appropriated funds are nothing with ASC for 29 years. their near-term future. It would, for new. The new State Department will be instance, confirm that USIA officers will able to administer public diplomacy be brought into the State Department in a funds to meet congressional requirements newly-created fifth cone, "public diplo¬ and this should not be seen as a bar to macy." It would provide for crossbidding amalgamation. by USIA executive officers and State I have written previously on the administrative officers in the current need for a thorough integration of assignment cycle. And it would ensure USIA FS personnel into the new State full State-USIA cross-bidding by the sum¬ Department. That still holds true. mer 1998 assignment cycle. Anything less will do a disservice to the In addition to these broad elements, many talented people with whom we 585 North Glehe Road, there are several nuts-and-bolts have worked for years. They must Arlington, VA 22203 decisions to be made. State and USIA become a vital element of our com¬ have different fime-in-class and time-in- mon, restructured organization. We 703-525-2100

service systems which we must harmonize. need to establish the ground rules for Telefax: 703-525-1430

For example, USIA has no "six year this integration as soon as possible to Mobile: 703-795-1829 window" at the FS-01 level, as State minimize the uncertainty that is now does. State officers operate under the "six taking its toll on our FS personnel.

2 AFSA NEWS • NOVEMBER 1997 Inside = USAID — THE FOREIGN SERVICE COMMUNITY V.P. VOICE AFSA Members in Action • BY FRANK MILLER •

• Former ambassador and now United Nations Association president Alvin AFSA Progress on EEP Adams appeared with Judy Woodruff on CNN's Sept. 22 "Worldview." On the AFSA has been negotiating with it does provide for an opportunity to occasion of President Clinton's address to the Management/Human appeal inaccuracies, thus allowing for the United Nations, Adams discussed the Resources Bureau for the past more due process for the employee. importance of the United States' relation¬ five months on a revised employee We are concerned, however, that this ship to the international organization. evaluation program. These negotia¬ procedure will add additional time to tions are almost completed and AFSA an already lengthy evaluation process. • Mark Jacob's first novel, Stone is proud to report that a revised EEP is Another improvement is a change Cowboy (Soho, $24), received a stun¬ on the way which elimi¬ in the manner in which 360 ning review in the Sept. 30 Book World nates, or at least amelio¬ degree feedback is carried in The Washington Post. Jacobs serves rates, most of the problems out. Under the new system with USIA in Madrid. with the EEP. "AFSA is there is a requirement that As you may recall, one proud to the rater and the rated • Retired FSO Bob Krill recently left his of the major problems was employee agree on at least position as AFSA Corporate Relations that the Annual Evaluation report that a three 360 degree sources. Director to join Westar Group, Inc., as Form limited the rater's abili¬ revised EEP We hope this will avoid the senior project manager. ty to adequately portray problem that resulted from accomplishments. The selec¬ is on the some raters who did not • In a Sept. 29 ceremony, the library at tion boards found that way ... request sufficient 360 the National Foreign Affairs Training absent the additional narra¬ degree sources or requested Center was named in honor of former tive in the Supplementary sources that had little direct ambassador and retired FSO Evaluation Form (which was knowledge of the rated Stephen Low, who recently retired after written only for those recommended for employee's work. a five-year stewardship at the Association promotion or those in the Senior Appraisal committees will be required for Diplomatic Studies and Training. Foreign Service), the AEF did not pro¬ to play a central role in the evaluation vide enough information to allow board process. They will need to assure that • The USIA Alumni Association recently members to feel comfortable in judging evaluations are accurate and that installed Hal Morton as president, Len an employee's performance. employees are provided a fair hearing if Baldyga as vice president and Gloria This problem should be resolved by the accuracy of an evaluation is ques¬ Kreisher as secretary. Carolyn Mitchell is a a new performance narrative section, tioned. This should entail contacting 360 new board member. which is one page in length and con¬ degree sources and possibly reviewing tains no space-limiting boxes for each some work product. ACs will also be [ • Former ambassador John D. objective. This section will focus on the responsible for reporting to the principal Negroponte has been named vice presi¬ employee's role in the organization, his officers of the organizational unit raters dent for global markets at the publishing or her performance against work objec¬ who do not follow the evaluation guide¬ house McGraw-Hill Cos. During his diplo¬ tives and performance measures and lines and who do not meet deadlines. matic career, Negroponte was an effec¬ will address the "what and how" impact Supervisors will be held accountable for tive supporter of U.S. commercial develop¬ of an employee's performance. A sec¬ fair and timely evaluations. ment abroad. ond one-page narrative will focus on While AFSA requested further overall performance, skill areas, poten¬ reforms, the major changes described • State AFSA Representative Steve tial and areas for improvement. The sep¬ above are a great improvement which Romero and his wife, Susie, are the proud arate SEF will be abolished, allowing will better serve our employees. We plan parents of Maya Inez, born Aug. 23 at the same treatment for all employees. to monitor the implementation of this Reston Hospital in Reston, Va. Regarding the employee's right to revised system closely. review the AEF before it goes to the Please note that the objectives and • Retired career ambassador Frank appraisal committee, management performance measures already estab¬ I Wisner has joined the firm of American would not budge on this issue. Instead, lished for the current rating cycle will not International Group, Inc., as director and management will allow employees change under the revised evaluation sys¬ vice chairman for external affairs. who believe their AEFs are inaccurate tem. I will appreciate your comments by Do you have news abouf a recent accomplishment to request changes by the rating offi¬ e-mail ([email protected]) or by phone of an AFSA member or news of an event of interest cers or the AC. While this is not ideal, (202) 647-8160). to the FS community? Fax it to (202) 338-8244.

AFSA NEWS • NOVEMBER 1997 3 Dateline Continued from page 1

Exchange Program should contact Peter Frost at P.O. Box 374, Ligonier, Pa. 15658, phone: V.P. VOICE (412) 238-6299, before Jan. 20. WELCOMES EDWARD DILLERY • The second edition of Jack Rower's The Absentee Landlord's Survival Guide is now Voicing Alumni Concerns available. This valuable resource for FSOs may be purchased from Mellwood Publishing, P.O. Box 222624, Chantilly, Va 22153. AFSA welcomes new Retiree Vice forwarded via the Retiree Standing Phone orders: (202) 408-8842 or (800) President Edward Dillery, who Committee. This committee, chaired by 728-5315; fax orders: (202) 408-8156. was appointed by the Governing Vice President Dillery, is open to any Board in September to succeed retiree who wishes to participate. Its Edward Rowell. Dillery joins retiree rep¬ agenda for the coming year will focus resentatives Garber Davidson, Willard on several key issues: Expansion of Liability insurance available Continued from page 1 DePree, William Harrop and Clyde retiree membership, guidance to the Taylor, Board members who speak Board on AFSA representation of or special investigative committee hearings. directly for AFSA's retirees. Foreign Service interests with the agen¬ "The State Department will only provide Retirees make up 38 percent of cies and on Capitol Hill and recruitment legal counsel to its employees under limited AFSA's membership. Their continuing of alumni volunteers for AFSA activities. circumstances, so we recommend that interest in the agencies in which they An important aspect of alumni employees seriously consider adding this spent their careers and their identity as input to AFSA is the involvement of type of insurance coverage," says Janet a separate constituency give them a many retirees in AFSA-sponsored Hedrick, AFSA member services director, significant place in AFSA's activities. outreach programs. These include "especially those working in a supervisory They volunteer to serve in key roles in the speakers bureau, the electronic capacity, working in consular affairs, as support of AFSA's advocacy for the Diplomats Online, the media initia¬ GSOs, and as financial management officers." interests of the Foreign Service as a tive "Putting a Face on the Foreign The new professional liability insurance whole, including as reorganization task Service" and a series of Elderhostel would cover wrongful acts, errors or omis¬ force members, as the current treasurer courses on the Foreign Service sions committed or arising within the scope of and secretary of AFSA and in back- organized by Bill DePree and an employee's government service. That stopping our legislative liaison. In addi¬ other alumni. The experience of the would include bodily injury, property dam¬ tion, their particular concerns as alumni FS retiree community is reflected in age, discrimination, harassment, wrongful provide a valuable dimension to the the contributions made to Board imprisonment, invasion of privacy, obstruction AFSA agenda. deliberations by all of the retired of justice and acts without appropriate How are these concerns con¬ members on the Board, who cur¬ authority. The insurance also covers related veyed? Through a variety of ways. rently include State, USAID and defense costs in addition to the liability cover¬ Individual alumni needing assistance USIA alumni. These members wel¬ age limits. on retirement matters can turn directly come comments and questions The insurance is underwritten by the Admiral to their Board representatives or to staff from all AFSA retirees. Please Insurance Company, rated A++, which is offering member Ward Thompson, AFSA write, send e-mail to us at protection for both professional liability and retiree liaison. Alumni views on subjects [email protected] or call us toll-free administrative legal defense. ranging from retirement benefits to for¬ at 1-800-704-AFSA to express Three premium levels are offered, each eign affairs agency issues can also be your views. with no deductible. For an annual $200 pre¬ mium, members would receive $1 million of MACOMBER’S BOOK ON DIPLOMACY NOW AVAILABLE professional liability coverage and Former ambassador William Macomber has issued a revised paperback edition of $ 100,000 of administrative legal expense The Angels' Game, his book on modern diplomacy. Intended primarily for young coverage. Limits of $2 million/$200,000 people considering or recently embarked upon a diplomatic career, it focuses on would cost $360 a year, while limits of $3 some of the personal qualities and professional skills, both old and new, required of million/$300,000 would carry an annual a modern diplomat. It also discusses some of the problems and satisfactions the offi¬ premium of $460. Coverage includes a five- cer is likely to encounter along the way. The book is not for sale but comes with the year discovery period, as well as protection author's compliments, along with the hope that its new owner will, in turn, consider for most prior acts. However, the plan will making a $5 to $10 contribution to the AFSA Scholarship Fund. Write or call the not cover expenses or fines incurred in a author at 27 Monomoy Road, Nantucket, MA 02554, phone (508) 228-0594 to case where criminal intent is determined. order the book. Contributions may be made by check to the AFSA Scholarship Fund The insurance program, available exclu¬ (with a memo noting The Angels' Game] and mailed to AFSA, 2101 E St. NW, sively to AFSA members worldwide, is guar¬ Washington, DC 20037. anteed to renew at the same premium for five years. Call (800) 242-8221 ore-mail The illusion that times that were are better than those that are, [email protected] for more has probably pervaded all ages. - Horace Greeley information.

4 AFSA NEWS • NOVEMBER 1997 Call for AFSA Award Nominations IN THESE CHALLENGING TIMES FOR THE FOREIGN V.P. VOICE affairs agencies, it is more important than ever • BY RILEY SEVER • to recognize the traditions of excellence and integrity that are the hallmark of the FS and that characterize our contribution to our nation. A Fifth Cone. Not a Fifth Column AWARDS FOR CONSTRUCTIVE DISSENT: These three awards for FSOs are aimed at encour¬ Nor a Fifth Wheel. aging those who take chances - even risk their careers - to advocate a position they We need to minimize the uncertainty option is complicated by the Congressional believe in though it may differ from the views of the integration for FS personnel, concern that USIA materials, programs and of their supervisors or from conventional wis¬ as State V.P. Dan Giesler points staff not be involved with a domestic audi¬ dom. These awards go to FSOs "who have out in this issue. FHe accurately describes areas ence, except in the case of the Fulbright exhibited extraordinary accomplishment AFSA can and will be addressing. For USIA and similar programs. Existing legislation involving initiative, integrity, intellectual officers, however, a more disturbing uncertain¬ - Smith-Mundt for programs and materi¬ courage and constructive dissent." The ty remains: What is the conceptu¬ als and the Zorinsky Act for Christian A. Herter Award goes to a Senior al basis of the public diplomacy staff - prohibits domestic activity. Unfortunately, members of FSO, the William R. Rivkin Award to mid¬ cone? "What is the career officers (FS 1-3) and the W. Averell Consensus across all par¬ Congress seem to feel that Harriman Award to a junior officer (FS 4-6). ties to create a "fifth cone" for conceptual basis these restrictions, particularly AWARDS FOR EXEMPLARY PERFORMANCE AND public diplomacy does not of the Zorinsky, are necessary to PROFESSIONAL CONTRIBUTIONS: The Delavan adequately resolve the issues avoid loosing public diplomacy Award recognizes a FS secretary "who has raised by the absorption of public diplomacy cone officers on the American public to explain an administra¬ made an extraordinary contribution to effec¬ 720 USIA FSOs into a "new cone?" tiveness, professionalism and morale." The State." (Yes, the numbers are tion's foreign affairs positions which might differ from their M. Juanita Guess Award is conferred on a dropping because each elimi¬ own. Do they fear that the fifth CLO "who has demonstrated outstanding nation of an overseas or dedication, energy and imagination in assist¬ domestic position diminishes cone could become an admin¬ ing the families of Americans serving at an the need for officers and shortens the pro¬ istration's fifth column? overseas post." The Avis Bohlen Award rec¬ motion lists. And isn't it time that we Informal discussions indicate that ognizes the accomplishments of "a member acknowledge that TICs are de facto RIFs?) Congress may retain Smith-Mundt and of the family of a FS employee whose rela¬ Can we avoid the fifth cone from being Zorinsky and insist that funding continue to tions with the American and foreign commu¬ viewed as a fifth column or a fifth wheel? be designated exclusively for overseas nities at a foreign post have done the most to Everyone seems to agree that public purposes. Therefore, public diplomacy advance the interests of the United States." diplomacy officers will have a job after cone officers would be paid from this fund Awards include a cash prize of $2500 Oct. 1, 1999. Nevertheless, there are when overseas or assigned to a domestic and a ceremony honoring award winners at many views as to the exact nature of the position dealing with cultural and educa¬ the State Department. work they will perform. USIA FSOs tional exchange or international informa¬ Award nominations should include the believe that jobs will be much the same, tion. They would be paid from the State name of the award and the following: I: yet have a different name. State officers salary fund when doing public affairs Nominee's name, grade, agency, and clearly see this as an opportunity to work or filling positions with a domestic position (or family relationship). II: expand the department's public affairs component. Since not all positions are so Nominator's name, grade, agency and efforts. Congress, which advocated the clearly divided between domestic and position, and a description of the nomina¬ merger as an effective way to incorporate international audiences, many of the ben¬ tor's association with the nominee (200 public information skills into State, doesn't efits of merging the two organizations will words). Part III: Justification for the nomina¬ want it to go too far. I am afraid that it is be lost if the focus is placed on monitoring tion (500-700 words), i.e., the actions and possible that the focus of the public diplo¬ the audience for the public diplomacy offi¬ qualities which qualify the nominee for the macy cone could remain vague even cer's work. For public diplomacy to be a award, with specific examples of accom¬ after the merger because of political sensi¬ viable and successful cone in State and not plishments that fulfill the criteria. tivity involved in too clear a definition. a fifth wheel, no distinction should exist in Nominations should be sent via pouch or Discussions with State AFSA col¬ salary source. There should be ease of mail by Jan. 31 to AFSA Awards Committee, leagues have convinced me that to be a access between public diplomacy and pub¬ 2101 E St. NW, Washington, DC 20037, viable career option, the public diploma¬ lic affairs positions and full integration of faxed to (202) 338-6820 or e-mailed to cy cone must offer a career track that public diplomacy throughout State. Having [email protected]. Direct questions to Professional provides ample, clearly identifiable posi¬ gone so far to encourage integration, Issues Coordinator Richard Thompson, at tions with a public diplomacy or public shouldn't Congress remove the Zorinsky (202) 338-4045 ext. 521, or by fax or e-mail affairs focus or a combination of the two, restrictions and allow the full benefits of the as stated above. including those at the senior level. This reorganization effort to be realized?

AFSA NEWS NOVEMBER 1997 5 American and Foreign Diplomats Honored for Promoting International Business MCG More than 200 diplomats and national and international business represen¬ FINANCIAL tatives were guests of AFSA and the Washington Export Council (WEC) at a reception on Sept. 16 in the Benjamin Franklin Diplomatic Reception Room PLANNING at the State Department. The event honored U.S. and foreign diplomats, recog¬ nizing their unique contributions to the promotion of international business. Former State Department Employee Stuart Eizenstat, under secretary of State for economic, business, and agri¬ Stationed Overseas Understands Unique cultural affairs, addressed the gathering, as did AFSA president Alphonse La Porta and WEC chair and director of international affairs at GTE Gary Krach. Financial Situation of Foreign Service Joseph Edmunds, Saint Lucian Ambassador to the United States and Vice Dean of the Washington Diplomatic Corps, accepted the award on behalf of foreign Services Include: diplomats for their contributions to the promotion of international business. FS Retirement Planning Director General Edward Gnehm Jr. accepted the award on behalf of The Preparation and Strategies American diplomats, remarking that "we must find new ways in which business Analysis: Insurance and Investments and government can work together dynamically to realize the potential offered Lump Sum Retirement Options by growing international acceptance of market economic forces." Since 1989 AFSA has been working closely with American business through its International Associates program. The WEC is comprised of more MARY CORNELLA GINN than 30 companies with international trade interests. 4630 Montgomery Avenue, Suite 220 Bethesda, Maryland 20814

Saint Lucian ambassador to Phone: (301) 951-9160 the United States Joseph Fax: (703) 938-2278 Edsel Edmunds, acting assistant secretary of State SECURITIES OFFERED THROUGH NATHAN & LEWIS SECURITIES, INC., MEMBER NASD & SIPC Vonya B. McCann, WEC chair Gary Krach, FS DG Edward Gnehm Jr., former WEC chair Melanie Carter- Maguire and AFSA president Alphonse La Porta are Statement of Ownership, Management and Circulation pictured after the awards (required by 39 U.S.C. 3685) ceremony. 1) Publication Title: Foreign Service Journal 2) Publication No: 00157279. 3) Filing Date: September 28, 1997. 4) Issue Frequency: monthly 5) No. of Issues Published Annually: 12.6) Annual subscription price: $40.00.7) Complete Mailing Address of Known Office of Publication: 2101 E St. NW, Washington, D.C. 20037-2990. 8) Complete Mailing Address of Headquarters or General Business Office of Publisher: VARIED, VIABLE AND VITAL: 2101 E St. NW, Washington, D.C. 20037-2990. 9) Full Names and Complete Mailing Addresses of Publisher, Editor, and Managing Editor; Publisher: American Foreign Service Association, 2101 E St. NW, Washington, D.C. 20037. Editor: Karen Krebsbach, 2101 E St. NW, Washington, D.C. 20037. Managing Editor: QUAINTON ON THE FUTURE Kathleen Currie: 2101 E Street, NW, Washington, DC 20037 10) Owner: American OF THE FOREIGN SERVICE Foreign Service Association, 2101 E St. NW, Washington, D.C. 20037. 11) Known Bondholders, Mortgagees, and Other Security Holders Owning or Holding 1 Percent or More of Total Amount of Bonds, Mortgages or Other Securities. 12) For comple¬ tion by non-profit organizations authorized to mail at special rates; the purpose, func¬ "At the end of the day, the viability of our Service tion, and nonprofit status of this oiganization and the exempt status for Federal will not rest on better public relations and a income tax purposes: (1) has not changed during preceding 12 months. 13) Publication’s Name: Foreign Service Journal. 14) Issue Date for Circulation Data sense of corporate history, nor on tinkering with the Below: September 1997 15) Extent and Nature of Circulation: average no. copies personnel system, nor on augmented benefits, nor each issue during preceding 12 months: A. Total No. of Copies: 13,500. B. Paid/and on greater flexibility; it will depend on the or Requested Circulation: (1) Sales Through Dealers and Carriers, Street Vendors and Counter Sales: 1,000. (2) Mail Subscription: 11,100. C. Total Paid and/or dynamism and success of our foreign policy and Requested Circulation: 11,100. D. Free Distribution by Mail (Samples, the commitment to service which underlies it."* Complimentary, and Other Free); 500. E. Free Distribution Outside the Mail: 600. F Total Free Distribution: 1,100. G. total Distribution: 12,200. H. Copies Not * In a Sept. 25 luncheon address to AFSA members at the Distributed (1) Office Use, Leftovers, Spoiled: 800. (2) Return from News Agents: 65. I. Total: 13,065. Percent Paid and/or Requested Circulation: 91%. Actual No. Foreign Service Club, former director general of the Foreign Copies of Single Issue Published Nearest to Filing Date A. Total No. of Copies: Service Anthony C. E. Quainton reflected on the strengths of 13,500. B. Paid/and or Requested Circulation (1) Sales Through Dealers and the Foreign Service and the challenges to its traditions. Read Carriers, Street Vendors and Counter Sales: 290. (2)Mail Subscription: 11,019. C. Total Paid and/or Requested Circulation: 11,309. D. Free Distribution by Mail the transcript of his presentation on AFSA's web page: (Samples, Complimentary, and Other Free); 100. E. Free Distribution Outside the www.afsa.org, click on AFSA gopher site,click on AFSANET Mail: 20. F. Total Free Distribution: 120. G. Total Distribution: 11,429. H. Copies Not Distributed (1) Office Use, Leftovers, Spoiled: 925.(2) Return from News chron file of key documents, click on 092597 Anthony Agents: 82.1. Total: 12,934. Percent Paid and/or Requested Circulation: 87%. Quainton's speech. I certify that the statements made by me above are correct and complete. (signed) Kathleen Currie, Assistant Editor.

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A F S A NEWS • NOVEMBER 1 997 7 — Classifieds —

TAX & FINANCIAL SERVICES ATTORNEY ATTORNEY, FORMER FOREIGN SERVICE Former Foreign Service Grievance OFFICER: Extensive experience w/ tax prob¬ Board Member with 25 years experience lems peculiar to the Foreign Sen/ice. Avail, for consultation, tax planning, and preparation of in employment and personnel law before returns, M. Bruce Hirshorn, Boring & Pilger, MSPB, FLRA and EEOC. Specializing in Rapid response to investigate, devise and implement solutions for a wide range of Suite D, 307 Maple Ave, West, Vienna, VA Federal employee grievances concern¬ 22180. (703) 281-2161 Fax: (703)281-9464 problems. 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For discussion and terms trusts, living wills, powers of attorney; pro¬ call or email Jack Schultz. Tel (408) 426- bate administration; domestic relations; 9301, email>[email protected] or check Foreign Service grievances. Gregory V. WebPage Powell; Furey, Doolan & Abell, LLP; 8401 URL:http://WW2.cruzio.com/~jschultz/ Conn Ave., #1100, Chevy Chase, MD 20815 (301) 652-6880; fax (301) 652-8972. Worldwide Shipping Services FREE TAX CONSULTATION: For overseas • Packing and Crating personnel. We process returns as received, with¬ • Air and Ocean Freight out delay. Preparation and representation by • Metro DC Pick-up Enrolled Agents. Federal and all states prepared • Furniture and Auto Shipping includes TAX TRAX" unique mini-financial plan¬ • Household Moves ning review with recommendations. Full planning • Moving & Packing Supplies available. Get the most from your financial dol¬ lar! Financial Forecasts Inc., Barry B. 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MEXICAN DREAMS

L PASO, Tex. — On the dusty pared to the 1 million annual estimate of earlier years levee bordering the Rio — immigration issues remain at the forefront of bilat¬ E Grande, a sodden pile of dis¬ eral diplomacy. carded clothing near an irriga¬ “We were getting a lot of complaints for not doing tion ditch bears witness to one enough on one side and of being overly aggressive on hopeful straggle to build a new the other side,” says Doug Mosier, the public informa¬ life in El Norte. Nearby, armed tion officer of the El Paso sector for the U.S. Border guards stand watch while chil¬ Patrol, which is administered by the U.S. Immigration dren play along the banks of the river, a natural divide and Naturalization Service. that is gentle and waist-deep in some places, swift and Four years ago, El Paso was the No. 1 point for dangerous in others. So far this year, dozens have illegal crossings, but in a 1993 crackdown, the Border drowned negotiating the river, which is 30 to 50 feet Patrol doubled the number of guards along the bor¬ wide. der from 200 to 400, posting them as close as 100 Originally called El Paso del yards apart. The results of Norte, named for an ancient “Operation Hold the Line” were Indian mountain pass, the city impressive. Arrests of illegal immi¬ owes its very origin to migration. grants in the sector, which Today, an average of 163.000 peo¬ includes two counties in west ple cross from Mexico into El Paso Texas and all of New Mexico, daily — most legally armed with immediately dropped about 80 72-hour “border passes” -— clog¬ percent, from 1,400 per day to ging all three of the city’s bridges 300, says Mosier, who notes that with vehicle and foot traffic. the rate has stayed steady since. This city of 515,300 is the “Crime, congestion, loitering fourth-busiest crossing point for and other quality of life offenses illegal Mexicans along the 2,000- also went down,” says Mosier. mile border, after San Diego, Local officials estimate crime Brownsville and Tucson. This illic¬ has dropped an average of 15 it traffic of humans has created a percent since 1994 and as much political divide between the two as 40 percent for offenses such countries. Although a bi-national AT TEXAS BORDER TOWN, as auto theft. study released last month indicates POLICE CRACKDOWN SLOWS The key to securing the border the number of Mexicans entering ILLEGAL MIGRANT FLOW is having sufficient resources for the country illegally is much lower personnel and technology to than previously believed — an patrol the vast and difficult ter¬ average 105,000 per year com¬ BY KARA SISSELL rain, says Mosier. Agents use light-

32 FOREIGN SERVICE JOURNAL/NOVEMBER 1997 Focus

Economic desperation motivates most illegal immigrants. Consider Armando Espinozai, whose family in Chiapas pooled their money to pay a ‘coyote’ to take him to California.

ing, fencing, all-terrain vehicles and seismic sensors, as Mosier says attempts to cross the border have well as horse patrols, aircraft surveillance and dog increased in Ysleta, east of El Paso, and in New teams. Nonetheless, “Our bread and butter is the line Mexico, where land borders are harder to patrol. By watch,” says Mosier, who claims agents catch four out 1998, agents expect Tucson, Ariz., and Brownsville, of every five illegal aliens. Tex., to be hotspots. But the Border Patrol has had its successes. In Swimming the Rio Grande and crossing the border September, agents arrested 10 suspects in the “biggest hidden in a vehicle are by far the most common international smuggling organization I’ve ever seen,” ways illegal immigrants enter the United States says Mosier. For two years, the ring allegedly smug¬ from Mexico. Officials believe some 1.2 million undoc¬ gled 500 to 600 illegal aliens per mondr at $750 to umented Mexicans are living in the United States — $1,000 a head. The immigrants headed to points north, one-fourth of the total of 5 million illegal immigrants. such as Dallas and Albuquerque, where the dangers of Living predominantly in Texas, California and New being caught are much less than in border towns. Mexico, one out of every four has arrived since 1993. “Our anti-smuggling unit was able to infiltrate the California has the largest number of illegal immigrants - organization and, after eight months of investigation, - 2 million, or about 40 percent of die total. we were able to gather enough information to take it Mexicans account for the largest percentage of legal down,” says Mosier. “Even the investigators were sur¬ U.S. immigration as well, or roughly 18 percent in fis¬ prised by how vast the network was.” cal 1990. However, the statistics are telling: Of the Although most of the estimated 13,000 aliens smug¬ 163,562 Mexicans who immigrated that year, only one- gled in were Mexican, the alleged ring had contacts third — 52,625 — filled out their visa applications at with as many as 12 countries including Morocco, U.S. Embassy Mexico City or one of the eight U.S. Russia, Tunisia, Australia and Brazil. consulates in Mexico — the preferred method. The “The cycle of exploitation is veiy upsetting,” says remaining 110,937 arrived and remained in the United Mosier, who says the ringleaders had crammed States with non-immigrant visas, later successfully dozens of people into 18-wheelers, often accompa¬ “adjusting their status” by applying for and being nied by only one jug of water. “It’s a major interna¬ granted immigrant status. And it’s all perfectly legal, tional alien smuggling ring that is profit driven where say officials. That same year, for example, U.S. [the suspects] have very little regard for the passen¬ Embassy Mexico and eight U.S. consulates issued gers which they exploit,” he said. If convicted, each 508,432 non-immigrant visas, most predominantly suspect could serve a maximum of 10 years in jail and border-crossing passes, tourist visas and student visas. receive a $250,000 fine. Border Patrol crackdowns on crossings simply push Mosier believes the suspects were using a legiti¬ the migrant flow towards more distant and unprotect¬ mate trucking company to export the undocumented ed crossing points. “Coyotes,” the guides hired by ille¬ immigrants to the Dallas and Albuquerque centers, gal immigrants, continue to find new routes, and where diey were divided up and shipped to 20 differ¬ ent states, including California, Florida, Illinois and Kara Smell is a New York-based freelance writer who New York. Coyote fees were being paid primarily by specializes in Mexican affairs. U.S. residents trying to reunite their families.

NOVEMBER 1997/FOREIGN SERVICE JOURNAL 33 Focus

The guides who make their living off hopeful immi¬ State Department and the Border Patrol’s enforcement grants give them a wide range of options. For as little as $5, duties be folded into the Justice Department. coyotes will toss an inflated inner tube attached with rope The crackdown hasn’t changed life much at U.S. into the Rio Grande; several thousand dollars can arrange Consulate Ciudad Juarez. Michael Regan, chief of the one immigrant’s passage to a safe house in Chicago or Los immigrant visa unit, says the United States has actually Angeles. Like any illicit trade, however, there is no quality increased the number of immigrant visas issued in the control, no guarantees — and no refunds. last two years. In fiscal 1997, the consulate issued 56,246 If Border Patrol estimates are accurate, four out of immigrant visas. In fiscal 1996, it issued 52,670 visas and five times, coyote fees are wasted. If apprehended, ille¬ refused 8,900; in fiscal 1995, those figures were 47,751 gal immigrants are jailed, fingerprinted and returned to and 9,623, respectively. Mexico. Many try again. “People spend their life savings Regan says he expects the consulates workload to for this one shot at getting across the border,” says increase in April, when it takes over issuing border Carmen Martinez, a clerk in El Paso. “And most of the crossing cards, or the “day pass,” from the INSs district time they are sent back wifliin days.” office at the border. By September 1999, the consulate Operation Hold the Line, a model for initiatives now is also required to replace the cards with a “more under way in San Diego and Brownsville, was the brain¬ secure” pass, he said. child of former Border Patrol chief Silvestre Beyes, now a Democratic congressman. Reyes strongly backs the dis¬ As efforts to curb illegal immigration intensify, banding of tire INS, recommended in September by the activists say fatalities are on the rise. Immigrant U.S. Commission on Immigration. The panel also suggests rights groups are pressuring the Border Patrol to die INSs visas and benefits services be administered by the use less aggressive tactics. You'll Find 100 Ways To Spend 30 Days At Georgetown Suites. Coming to Washington for an extended stay? Our oversized, luxurious suites put you close to the business district and historic sights, world-class dining and eclectic shops that make Georgetown so exceptional.

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34 FOREIGN SERVICE JOURNAL/NOVEMBER 1997 Focus

Criticized for their presumed role in die fatalities, Life for Texans in El Paso is visibly better. Border Patrol agents try to cast dieir jobs in a more Nonetheless, the city’s economy is inextricably linked to humane light. In September, die Border Patrol issued a Juarez. Though American passport holders can cross the press release after immigration agents helped rescue five border without restrictions, Mexicans must have a visa or people who, trying to cross die border through a drainage a “day” pass, which allows holders up to 72 hours to visit pipe, became trapped by rising water during a flash storm. family, do business or shop, as long as they don’t stray If attempts to cross the border smack of desperation, more than 25 miles from the border. The economic crisis a trip across the bridge joining El Paso and Ciudad that hit Mexico after the December 1994 peso devalua¬ Juarez, a teaming metropolis of 789,000, is a quick les¬ tion, the country’s worst in more than 60 years, has taken son in cross-border envy. Officials say economic des¬ its toll on bodi cities. Stepped-up immigration enforce¬ peration motivates 99 percent of illegal immigrants. ment efforts may have helped reduce petty crime, but Consider the issue from the viewpoint of Armando they also reduced the flow of people across the border Espinoza, a 22-year-old Mexican from Chiapas, the and have devastated the service economy. poorest state in Mexico, who crossed the border at In the longer term, however, a significant part of Ciudad Juarez and made his way to San Diego. “I am a America’s illegal immigration problem may solve itself. lottery ticket,” Espinoza told the Orange County Mexico’s birth rate is finally declining, which in 10 to 15 Register. His entire extended family in Chiapas — par¬ years should start to relieve the demographic pressures ents, cousins, aunts — scraped together enough money that compel Mexicans to migrate to the United States in to send him on this dangerous mission to slip into the such large numbers. Within two decades, Mexico’s eco¬ United States, find a job and send back half his pay- nomic transformation should be complete, which check to his village. He has to be a winning number. should also help reduce immigration pressures. ■

THE CROFT INSTITUTE FOR INTERNATIONAL STUDIES

THE UNIVERSITY OF MISSISSIPPI Executive Director

The University of Mississippi is pleased to announce the search hire 15-20 new faculty and staff, create new undergraduate interna¬ I for Executive Director of its newly founded Croft Institute for tional studies programs in both liberal arts and business, award forty International Studies. This new Institute will occupy its own com¬ $28,000 undergraduate scholarships, greatly expand study abroad | pletely renovated historic building in the heart of the main cam¬ opportunities, enrich several graduate programs, and generally pro¬ pus in Oxford, Mississippi, and is funded through a generous $60 mote international studies throughout the university, the state, the I | million commitment from the Bancroft Fund. region, and the nation. The Executive Director is the CEO of the Institute reporting direct- The applicant must have earned the Ph.D. (or the equivalent) I I ly to the Provost of the University of Mississippi. The Executive and/or have demonstrated a record of extraordinary achievement Director will have broad latitude and responsibility in shaping the in international affairs. The applicant should have a distinguished [ scope and charting the course of the Institute. The candidate will record of teaching and scholarship in some aspect of internation¬ need to exercise strong leadership and have vision, creativity, and al studies and substantial administrative experience. energy in developing the Croft Institute into a preeminent center for The salary and benefits package is very competitive. international studies in the United States. Initially, the Institute will Applicants should send a cover letter, resume, and a list of three I focus on Mississippi’s principal trading partners—Asia, Latin America, references by December I, 1997, to Dr. Carolyn Ellis Staton, and Europe—with an eye toward expanding to other regions in the Associate Provost and Associate Vice Chancellor for Academic | future. In developing the Croft Institute, the Executive Director will Affairs, 115 Lyceum, University of Mississippi, University, MS 38677.

NOVEMBER 1997/FOREIGN SERVICE JOURNAL 35 Focus ON IMMIGRATION

VISA DREAMS

he job of the U.S. consular offi¬ mance evaluation.” Though the amendment does not cer has probably never been so state specifically that consular officers can be held per¬ T demanding. As ever-larger sonally liable, employment-law attorneys say it has vet to migrant flows criss-cross the be tested in court. Nevertheless, the law’s passage has globe in search of economic prompted many FSOs to begin protecting themselves and political refuge, America is with professional liability insurance. more inviting to foreigners. “It That professional responsibility- can be a headache. Last is often said that consular offi¬ year, consular officers around the world issued six million cers are the first line of defense in the context of immi¬ NIVs to foreigners, ranging from students to tourists to gration,” noted B.J. Harper, a retired FSO who authored businesspeople and temporary workers. Some 25 percent the 1975 book. Immigration Laws Of The United States. of die eight million NIX' applications submitted worldwide “[But] consular officers are not cops. Rather, they are akin in 1996 to the United States were turned down — or to judges, evaluating both evidence roughly two million — one of the and facts in the light of immigration world's highest visa rejection rates. and nationality laws.” k ★ ★ With an estimated one million for¬ Since the War Measures Act was ★ ★ eigners waiting in their homelands passed in 1917, U.S. consular offi¬ for some 290,000 U.S. immigrant * * ~ cials overseas have been charged ★ * visas allotted annually, the typical with determining the eligibility of ★ ★ waiting period is four years for those applicants for what now tot;d 56 with applications on file, and those types of non-immigrant \isas and 87 f *** * * who apply now can expect to wait a types of immigrant visas. But it took decade or more. No more than 77 years for Congress to pass a law 2* * 20,(XX) immigrant visas can be issued that legal experts say holds consular * * per nationality during a given year. officers responsible for their mis¬ In the future, the State takes, specifically if they issue visas Departments role in immigration “to those who commit terrorist acts.” issues is destined to become even An amendment to the 1980 Foreign greater. In September, the U.S. Service Act, passed by Congress in V Commission on Immigration Refonn 1994, states that, “If the consular FOR CONSULAR OFFICERS, called for dismantling die INS mid officer fails to follow the procedures distributing its functions among die PASSPORT AND VISA FRAUD in processing tire application State, |ustice and Labor departments. required, ... [his] failure shall be LOOMS AS LARGER THREAT made a matter of record and shall or most consular officers, be considered as a serious negative fraud is a constant worry, BY STEVEN ALAN HONLEY factor in the officers annual perfor¬ Fparticularly in posts with

36 FOREIGN SERVICE J OU RN AL/N OV EM B F.R 1997 Focus

With an estimated one million foreigners waiting in

their homelands for some 290,000 U.S. immigrant visas

allotted annually, the typical waiting period is four years.

high visa workloads. In fiscal 1996, the top cities for NIV a fact tiiat makes die fraud issue even more challenging requests and issuances were Seoul, Taipei and Sao Paulo, for consular officers serving in those countries. Brazil. In terms of IVs that same year, the highest num¬ The two most common immigration law violations ber of applications were in Manila, Ciudad Juarez, today are alien smuggling and marriages of convenience, Mexico, and Santo Domingo; of these three cities, botii of which are prosecuted by the INS, with assistance Manila had die highest rejection rate. from die State Department and other federal agencies. The State Departments Consular Affairs Bureaus top The first is relatively easy to prove; die second is not. But 10 spots for visa fraud include the Russian Federation die most common type of visa fraud is submitting false and the former Soviet Union, due to the power of the documents — typically employment-related letters, pay Russian mafias; China and Mexico for smuggling undoc¬ receipts, bank statements, school transcripts — especial¬ umented aliens; Nigeria for drug trafficking; the ly for NIVs. This technique is especially prevalent in Philippines and Pakistan for document fraud; Canada high-volume, high-fraud posts like Manila and Mexico and South Africa as transit countries for drug traffickers; City, where applicants gamble that visa officers are too Iran and Iraq for terrorists; and India for its employment overworked to thoroughly interview candidates and and investor visa fraud involving people who lie about review accompanying documents. having commercial assets in the United States. Take die case of Haitian-born Jacques Michel of Visa fraud has been around as long as visas have. A Spring Valley, N.Y., who served six weeks for immigration retired FSO who served in Hong Kong in die early 1960s fraud in 1978 for helping Haitian immigrants file false recalls a consular fraud report diat began, “If every documents to obtain resident alien status. Now running Chinese woman who claimed to have given birth in the for mayor of his town, Michel himself came to tire United U.S. prior to 1906 — when the great earthquake and sub¬ States on a tourist visa in 1963 and staved on, eventually sequent fire in San Francisco destroyed all records —• had becoming a citizen in 1990. actually done so, each would have had to have produced There is apparentiy no limit to die ingenuity and devi¬ [more than] 600 childr en in order to account for all die cit¬ ousness of those involved in visa fraud. Take diese exam¬ izenship and immigration claims currently on file.” ples: Still, for most consular officers, die presumption of ■ In the so-called “Russian maid” scheme, some of the “guilt)’ until proven innocent” is die nonn. In issuing many American agencies supplying Russian domestic ser¬ NIVs consular officers must be convinced die applicant vants for U.S. clients, advertise for women seeking “a great intends to return to his homeland when he fulfills die deal of money working as cooks, nannies, maids or house¬ purpose of his trip. The officer generally has less discre¬ keeper’s.” The local agents of tiiese organizations through¬ tion to refuse immigrant visas, since most IVs are issued out the former Soviet Union coach respondents for visa on evidence of a bona fide relationship, eitiier by blood interviews and supply them witii fraudulent employment or marriage, to a U.S. citizen or legal permanent resident. invitations and otiier supporting documents. Mexico, China and Italy account for the highest numbers ■ At U.S. Embassy Beijing, investigators in search of of botii legal and illegal immigrants to the United States, patterns of investor-visa fraud in China sampled a collec¬ tion of applications from die coastal city of Tianjin near Steven Alan Honley, a freelance writer and musician, die capital. Of die 77 requests from 60 companies for “L” was an FSO from 1985 to 1997, serving in Mexico visas, which allow Chinese employees to be transferred City, Wellington and Washington, D.C. from dieir home offices to U.S. branch offices — only

NOVEMBER 1997/FOREIGN SERVICE JOURNAL 37 Focus

one was legitimate. Investigators found that 49 of the 60 to Joe Davison, chief of the Visa Fraud Prevention Branch firms did not even exist; of the remaining 11, six claimed of the Diplomatic Security7 Bureau. “The cases we have no knowledge of the visa applicant or application; and four now are much more complex, more sophisticated and were petitioning on behalf of unqualified employees. involve more U.S. agencies than in previous years,” he said. ■ At a Central American embassy this spring, an FSN “Now we’re taking on the [visa rings of the] Russians and duped the general services officer into approving stacks of Nigerians, and if things go well, we ll go after the Chinese.” visa referrals for so-called “family members” who were Indeed, a special contractor and his assistant have been each paying the FSN as much as $3,000. hired this year specifically to track Russian organized crime ■ At U.S. Embassy Manila during one two-week peri¬ connections to visa fraud, he said. The pair join the seven od last summer, investigators uncovered a collection of agents and Branch Chief Davison. When he took over the high-quality fraudulent documents, including nine coun¬ job in 1992, the branch only had five agents who worked terfeit immigrant visas; 10 photo-substituted machine on smaller cases, he said. readable visas; and seven photo-substituted U.S. passports. DSs Visa Fraud Prevention Branch, created when Even more disturbing, the phony I Vs were being used by Diplomatic Security was founded in 1985, is investigating both Filipinos and PRC Chinese. fewer cases every year at embassies, according to Davison. States other weapon against visa fraud is CAs 11-year-old How is the State Department combatting visa Office of Fraud Prevention Programs, whose original man¬ fraud? Although the number of cases being date focused on what was then the most common form of investigated has dropped from 294 in 1993 to consular fraud: fake passports. However, the use of about 200 in 1996, these statistics are deceiving, according machine-readable passports and document scanners,

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38 FOREIGN SERVICE J O U RN AL/N OV E M B E R 1997 Focus

phased in over five years beginning in 1992, has helped March 7, the former deputy assistant secretary for INS officials more accurately spot fake passports at ports visa services and consul general in Manila was acquit¬ of entry. Consequendy, FPP now concentrates on train¬ ted of committing visa fraud after a three-day jury ing consular officers to detect visa fraud, predominandy trial in Concord, N.H. He was the highest-ranking widi the use of two databases: CLASS (Consular Lookout diplomat to ever be charged with visa fraud. Automated Support System) and DNCS (Distributed Since Davison took over DS’s fraud division in Name Check System). Davison also credits computer- 1992, no FSO has been convicted. However, one based investigation advances, improved interagency Civil Service employee at U.S. Consulate Tijuana, cooperation and heightened border security with helping one FSN at an undisclosed Central American to solve more visa-fraud crimes. embassy, and four other foreigners have been con¬ The penalties for visa and passport fraud are quite victed of visa fraud in U.S. courts. Statistics from pre¬ stiff: Those convicted face up to 20 years in prison vious years were unavailable. In the Tijuana case, the and $250,000 in fines for severe offenses, such as ter¬ consulate employee was convicted of bribery of a rorist-related ones, and up to 10 years in prison and U.S. government official, receiving five years of $50,000 in fines for less-severe cases. In the vast supervised probation and a $1,350 fine. She is also majority of cases, however, FSNs are simply fired or barred from U.S. government employment for life. asked to quit. The rare FSO who is fingered might be Since corruption is endemic to so many countries, allowed to take early retirement to avoid prosecution. examples of true bribery can be difficult to distin¬ Nevertheless, in the United States, one is innocent guish from “business as usual.” To help consular offi¬ until proven guilty. Take 57-year-old John Adams. On cers handle the ambiguities, DS and CA collaborated

NOVEMBER 1997/FOREIGN SERVIC E ] OU RN AL 39 Focus

on a brief training video, “When The Offer Is Made,” use sophisticated technology that enables them to which depicts a number of variations on this theme. create, market and sell convincing travel documents. The video, shown in the obligatory ConGen Rosslyn FPP’s five-year-old Russian Business Investigation course at the National Foreign Affairs Training Initiative uses data compiled from visa applications to Center, urges collaboration with the host government quash efforts of crime syndicates trying to obtain U.S. when bribery can be proven. entry for people who will help them launder their Once DS decides it has enough evidence, it works funds in American banks. with State’s Office of the Legal Adviser and Office of But FPP’s staff is limited, with only 17 full- the Inspector General, as well as the INS and U.S. timers in Washington, D.C.; a dozen more in high- Attorney’s Office, to arrest and convict suspects. In fraud posts such as Bogota, Kingston, Lahore, an average year, only 15 foreigners — the majority of Manila, Mexico City, and Santo Domingo; and 10 whom are FSNs — are tried and convicted of visa regional consular officers in Africa, Germany (to fraud in their home countries’ courts, which can cover Russia) and Saudi Arabia (to cover the cover offenses ranging from improper visa referrals Middle East). to unauthorized issuance or sale of visas, most com¬ monly NIVs. In America’s politically-charged anti-immigration Still, criminals always seem a step ahead of inves¬ environment, the mere mention of visa fraud can tigators, who are increasingly confronting entire elicit strong reactions. The Federation for overseas industries specializing in manufacturing American Immigration Reform has called for the false entry documents. Operating most aggressively abolition of the U.S. visa-waiver program, which in Russia, Asia, Nigeria and Colombia, these rings Congress passed in 1987 to allow tourists and busi- Home Suite Home Enjoy an extended stay at any of the (3) conveniently located Executive Club Suites! We offer personalized service in spacious apartment size suites. Many amenities include:

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FOREIGN SERVICE J O V RN AL/N OV E M B ER 1997 Focus

nesspeople from certain countries — mostly in could a consular officer have intuited the applicant’s Western Europe — to visit the United States without real plans? a visa. Congress has continued to add countries to On one hand, there is little doubt that many NIV- the program, most recently in 1994, and now 26 holders unfairly use this shortcut to obtain immigrant countries are eligible. Although consular officials visas without waiting in their home countries, and cannot estimate the number of visa-less visitors who begin petitioning the INS to bring over family mem¬ stay on illegally in the United States, FAIR cites the bers as soon as they become permanent residents or high potential for abuse. One of the more trouble¬ U.S. citizens. On the other hand, adjusting immigra¬ some members of this group is Ireland, whose resi¬ tion status with the INS is a technically legal avenue. dents are notorious for misusing the program to Visa fraud will always be a consular concern, and immigrate illegally. no amount of resources, vigilance and dedication will Then there are those foreigners with NIVs who enable the United States to detect and eliminate it claim simply to have changed their minds about all. In the future, interagency cooperation will be going home. While not technically considered fraud, even more crucially important. Observes FPP Office this method of talcing advantage of the INS system is Director Edward Vasquez, “Immigration fraud a common way many immigrant visas are granted, say increasingly involves issues that cross the traditional officials. The foreigner on a tourist or student visa boundaries of Foreign Service work. Confronting it who overstays his term limit and “adjusts” his INS requires the awareness and cooperation of consular status so he can marry an American or legally work is sections, law enforcement agencies, U.S. intelligence technically within the rules, say officials — but only agencies, and political and economic officers. It is if his decision to stay was not premeditated. Yet how preeminently a global issue.” ■

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NOVEMBER 1997/FOREIGN SERVICE JOURNAL 41 DIPLOMACY’S BAD DEAL

WILL RECENT BUDGET AGREEMENT ON FOREIGN AFFAIRS

FORCE MORE U.S. FLAGS TO BE LOWERED ABROAD?

BY HARRY C. BLANEY III

he Clinton administration The budget cutters talk about safeguarding the T and the Republican con¬ next generation, but what good would it do to gressional leadership signed have a balanced budget if it means greater a budget deal in August that poverty for our children and the world? What provides a declining U.S. good is it if it brings a world of racial and eth¬ role in the world for the nic conflict, overpopulation and environmental next five years. The choices made have every¬ degradation? And what good is a budget that thing to do with the worst elements of narrow makes the rich richer and the poor poorer at political goals and least to do with how to make home and abroad? this nation more effective in dealing with its The raw statistics speak for themselves. After challenges abroad. The budget deal should many speeches by both President Clinton and have been about how this nation can be made Secretary of State Madeleine K. Albright about more safe and prosperous, and how people the how funds for U.S. diplomacy are dangerously world over can be drawn out of poverty and inadequate, the administration and Congress despair and brought into the growing world have agreed to a budget deal that requires economy. It should have been about how to major cuts in almost all U.S. international pro¬ conquer disease, hunger and hate. It should grams over the next five years. In the 1960s the have been about how to make the world more foreign affairs budget — or the “150 account” prosperous, democratic and humane. But it was — amounted to 4 percent of the federal budget; none of these. in the 1970s it was about 2.5 percent; in the late The budget agreement should not have 1990s it is about 1 percent; and in 1998, it will been about — first, last and always — how to be about .88 percent. balance the budget. Making this nation and the Even before the deal was cut last May, for¬ world better and more secure is, after all, what eign affairs funding was expected to be reduced many Americans believe this nation is about. in 2002, to .5 percent by the administration’s projection and to .3 percent by the House Harry C. Blaney III is a retired FSO and a former Republican Budget Committee’s projection. staff member of the White House and of the secre¬ This means that not only will funding for tary of State’s Policy Planning Staff. He is presi¬ international programs drop faster than cuts in dent of the Coalition for American Leadership the overall budget, but in real dollar terms, it Abroad (COLEAD). will drop faster than most other discretionary

42 FOREIGN SERVICE JO URNAL/NOVEMBER 1997 accounts, too. This was an account the adminis¬ Other nations and U.S. allies which have fol¬ tration called “important.” lowed Americas active lead are now beginning to The budget agreement provides just $19 bil¬ copy its withdrawal from world affairs. Without lion for foreign affairs for fiscal 1998, but it will U.S. action, the Europeans would not have per¬ be reduced each year in actual dollars, and in sisted in Bosnia, yet American soldiers could soon 2002, it will be $18.2 billion - or, in deflated be withdrawn from this anguished place and with dollars, - only $16.4 billion. This greatly them go U.S. allies and hope for a peaceful out¬ reduced level is a disaster for an effective come. Continued cuts in U.S. aid programs, American presence in world affairs. In contrast, already the most poorly-funded the Defense Department’s fiscal 1998 budget among advanced countries, will be $269 billion, and will increase to $289.6 mean others will follow that The budget deal billion in 2002. tragic path. The Japanese, who This kind of funding makes military spend¬ have the worlds largest assis¬ should liuve been ing a higher priority than diplomacy, which can tance program, plan a 35 per¬ be a preventative to war. In its recent cent funding reduction. At the about how this nation Quadrennial Defense Review, the Defense United Nations, Americas Department states that in the future, “U.S. refusal to pay its legal dues has can be made more interests will continue to be challenged by a reduced U.S. influence in that variety of transnational dangers, and the lives of key body and further threatens safe and prosperous, U.S. citizens will often be placed at risk, direct¬ to undermine its leadership. ly and indirectly ... [including] the potential for If nothing is done, major and how people the further spread of intercontinental ballistic mis¬ areas and programs of vital world over can be siles and weapons of mass destruction.” concern to America will be If the world is so dangerous that defense dol¬ decimated over the next five drawn out of poverty lars must be increased, should not even more years. Other mindless efforts resources be funneled into preventive diploma¬ are being made to impose and despair. cy? The Quad report even acknowledges that, even more draconian cut¬ “If the United States were to withdraw from its backs. The recent House international commitments, relinquish its Foreign Affairs Authorization bill had an diplomatic leadership, or relinquish its military amendment to eliminate the entire budget of superiority, the world would become an even the Arms Control and Disarmament Agency, more dangerous place, and the threats to the the first of the two agencies being integrated United States, our allies, friends and interests into the State Department. The process, which would be even more severe.” will eventually include integration of the U.S. Information Agency into State and reorganizing These depressing budget numbers do not of the U.S. Agency for International tell the whole story. Within the 150 Development, has already meant cutting back account, certain programs are securely protect¬ on vital non-proliferation and weapons-inspec- ed, and will remain roughly at their present tions work, even though Albright has said those funding levels, including aid funds to Israel and issues are among the most important items on Egypt, the childhood-survival account and her agenda. radio broadcasts to Cuba. Together, all these The foreign affairs account has already been programs amount to between $7 billion and $8 cut about 50 percent, after inflation, from its billion, forcing all other 150 account programs high point a decade ago. In the last five years, to take even greater disproportional cuts than the United States has closed or scheduled to the steep decline for the account as a whole. close 36 diplomatic or consular missions, 10

NOVEMBER 1997/FOREIGN S E RVIC E ] O U RN AL 43 USIA posts, and 28 USAID mis¬ balancing. We are now reaping the would not suffer. America enacted sions. And the American flag will consequences of such myopic and laws to make the nation fairer to all likely come down in even more narrow perspectives. and built schools and other infra¬ places around the world should the In this century, America fought structure so that all children could budget cutters get their way. aggression and authoritarianism fulfill their potential and keep this twice in great wars. America saved nation modern. But this problem needs to be Europe from despair and ruin after In short, America was a shining seen in a wider context. We in the last war, creating programs of light to the world of what a nation the diplomatic and larger foreign assistance to the poorest nations, could do, not only for its own peo¬ affairs community need to see creating institutions to serve peace ple but also for the world. That is these problems as part of changes and build international coopera¬ no longer the case. Actions, such as in American society, values and tion. America bound the wounds of this budget compromise, will undo public debate. Too often, we many in hundreds of tragic places all that has been done so that a few thought we could remain immune over this century, even feeding the very rich people will become richer from the impact of politics on soci¬ Soviet communists in the 1920s by unconscionable tax cuts. The ety. Too often we isolated our¬ and the Germans and Japanese budget battle and its outcome are selves from effective engagement even though they were enemies in really about how to tear down in society’s larger issues. We are war. America created new institu¬ much of the good that government too often indifferent to the need to tions, such as the United Nations has done at home and abroad since explain or educate the public and NATO, to build international Franklin D. Roosevelt. about the importance of the world cooperation around the world. This multi-year budget, if beyond U.S. borders, and we are At home, America gave to its implemented, will fundamentally aloof from the debate about own people, through the GI Bill, change the face of American soci¬ domestic issues like the role of Social Security, Medicare, ety and the world, mocking the government, fairness of taxes, Medicaid and Head Start so that very idea that government might quality of education, or budget the old, the young and the poor accomplish collective good.

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44 FOREIGN SERVICE JOURNAL/NOVEMBER 1997 Congress, with the agreement of administration and congressional Senate Majority Leader Trent the administration, wants to Republicans are planning long¬ Lott, House Speaker Newt reduce U.S. assistance to the term cuts in assistance programs to Gingrich and President Clinton are world’s poorest. The big lie of this the poor abroad, including educa¬ all in on it. The “new” establish¬ political season is that big money tion and training, environmental ment has set its sights on tearing can be given to the very rich via tax protection programs, sustainable down the notion that government cuts, that the government can be development, health, international can serve the common good. In its cut drastically, and that all U.S. exchange programs, democracy place, they have raised up their functions safeguarding Americans building, population-reduction favorite idol, that of the survival of at home and abroad can be main¬ activities, as well as efforts against the fittest (read: the richest) as the tained. No one will say that this non-proliferation and preventive ultimate in American society’s val¬ emperor has no clothes. diplomacy. ues. Money in politics has had its Democrats and Republicans All of these efforts shape the way. We in foreign affairs have alike have descended to the level of world toward a direction that is reaped the bitter fruits of such big lies — or just silence. Like safe for Americans and others. simplistic and crass thinking. many congressional Republicans, Where were considerations of how A major change in American the administration is leading to make these efforts better and values and in the willingness of America away from funding pro¬ more effective in either the recent leaders of all parties to enunciate grams that have been the heart of long-term budget cutting debates policies that really solve problems America’s engagement in world or in the so-called “re-organiza¬ and act for the common good affairs for decades. With the excep¬ tion” exercise? must occur if effective solutions tion of such bipartisan voices as Slowly but surely, the politics of are to be found for international Sens. Paul S. Sarbanes, D-Md., greed has transformed this nation. challenges. The foreign affairs Richard D. Lugar, R-Ind., James It has happened not in some fit of community has a role to play in M. Jeffords, R-Vt„ and Patrick D. oversight or neglect, but deliber¬ this debate, and it needs to learn Leahy, D-Vt., both the Democratic ately with malice aforethought. how to do it. ■ Need Auto Parts NOW?

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NOVEMBER 1997/FOREIGN SERVICE JOURNAL 45 THE FENG SHUI WAY

THE CHINESE ART OF BALANCING ENERGY

UNSEEN PLAYER LN U.S.-CHINA DIPLOMACY

BY JOSE ARMILLA

ith the number of power —- help his ch’i rise — but also will widen his W power seekers in perspective, opening his mind to new ways to solve die Washington, Americas nations problems,” The Washington Post reported. leaders have not been The Oval Office has always perplexed feng shui shy about attempting masters. The pumping oi ch’i to an offices interior any way to concentrate can be aided by doors and windows, but too many their power, such as seeking the advice of astrologers openings — seen as mouths voicing different opin¬ or psychics. And now, enter feng shui (pronounced ions — can lead to indecision. The best power spot “fung shoo-ay”), tire ancient Chinese art of balancing for a desk in an office is cattycomer to the door. Since environmental energy with a persons flow of ch’i — the Oval Office has four doors and, of course, no the human spirit. Feng slmi reflects the Tao precept straight walls, the auspicious cattvcornered desk that the art of living is to achieve a well-balanced ch’i, placement in relation to the main door is impossible. which will attract good luck. For centuries, feng shui masters were consulted Feng shui cures are also known to raise a nations by Chinese emperors to determine which direction ch’i as well, and indeed, U.S.-China history is full to face to achieve the most control and moral author¬ of examples of how the mi form played a role in ity over their people. In the modem era, these mas¬ diplomacy between the countries. ters have advised those in the Oval Office on how to For example, in 1844 President John Tvler — no position themselves to best develop a coherent doubt unwittingly — ensured the success of one for¬ national vision. Earlier this year, Time Magazine eign policy initiative by scheduling the signing at a reported that feng shui master Pun Yin had urged high-energy area in Portuguese-ruled Macao. The President Clinton to move from the Oval Office to a site? A Taoist temple on Avenida do Coronel rectangular one “where straight walls would provide Mesquita, which was not on Chinese soil. spiritual support and enhance feelings of contr ol.” In 1843, Tyler appointed prominent Before President Ronald Reagan readjusted his Massachusetts politician Caleb Cushing to lead the view of die Evil Empire in 1983, Master Lin Yim first U.S. diplomatic mission to China that July with a advised him to move his desk forward four to five inch¬ U.S. Navy flotilla boasting 200 guns. The firepower es because he was sitting with his back too close to the was impressive. wall. ‘This will not only improve his reputation and The Chinese believed the Americans’ arrival on Feb. 27, 1844, announced with a burst of gun shots, Jose AnniUa, a retired FSO for the U.S. Information unbalanced their ch ’i. Chinese authorities feared that Agency, served in Vietnam, Chile and Hong Kong. the positive and smooth ch’i of the realm could be

46 FOREIGN SERVICE JOURNAL/NOVEMBER 1997 blasted away. On instructions from the Imperial without setting foot on Chinese soil. The Chinese Court, the governor was to “soothe and stop” the used anotiier tactic diat Cushing found humorous: Americans in Macao, where the mission waited in On the pretext of cramped space, diey asked the vain for clearance to proceed to Beijing. Yankee lawyer to sit on die sacred spot from which In Canton, a second incident that unsettled the die supreme Taoist god’s image had been temporari¬ Chinese ch’i during that episode was inadvertently ly removed. Feng shui supposes diere was a ch’i created by Cushing. The American envoy had transfusion through Cushing’s spirit to steer him to brought a new flagpole, topped by an arrowed weath¬ an agreement with the Chinese. Despite die initial er vane, to be installed at the American consulate. American perception of the Chinese diplomatic The vane, which the Chinese viewed as an American behavior as convoluted, noncom¬ attempt to direct negative energy toward them, so mittal and dilatory, substantive angered the Chinese that a riot erupted within die negotiations lasted only two weeks, Feng shui cures are consulate compound. The mobs ire was directed at from June 19 to July 1. the weather vane, “which shot to all quarters, there¬ The signing ceremony, set for also known to raise a by causing serious impediment to the felicity and July 3, 1844, was classic feng shui. good fortune of the land,” according to the Chinese Within the temple compound, the nation's ch’i as well, report, as reported in the 1923 book by Claude Chinese selected a windowless 30- Fuess, The Life of Caleb Cushing. foot by 10-foot room with one and indeed, U.S. - Indeed, shifting wind directions — underscored door. An elevated platform, with a China history is full by the darting movements of the weather vane —- table cattycomer to the door, was made every Chinese neighborhoods ch’i vulnerable at the far end. Cushing and Ch’i- of examples of how to its negative influence. After 200 Chinese soldiers Ying sat behind this elevated table. arrived at the U.S. consulate on orders o( the gover¬ Two Tartar officers stood by carry¬ the art form pla yed a nor, Consul Robert Forbes removed the offending ing the Imperial Seal of the Great arrow and order was restored. Ching Emperor. role in diplomacy Eight copies of the treaty were The Chinese made Cushing wait four months. On laid out on die table, four in English between the countries. June 18, 1844, he met Imperial Commissioner and four in Chinese. The principal Ch’i-Ying, who made an official call at the American negotiators signed the copies and headquarters in a rented house in Macao. Riding on the Tartars stamped each copy with the Imperial a sedan chair carried high on tire shoulders of bear¬ Seal. At the conclusion, the Americans cheered as ers, the commissioner was flanked and followed by they rushed to the door. This upbeat reaction con¬ Tartar troops. Leading this procession was the grand firmed to die Chinese the wisdom of their chosen marshal, brandishing a fan — not a sword — to indi¬ feng shui tactic — rectangular room, one door, no cate the commissioner’s high rank. The fan, a Taoist windows — to assure consensus. symbol of smooth ch’i circulation, signaled that the The Treaty of Wangxia was a foreign policy suc¬ Chinese were ready to begin friendly negotiations. cess for President Tyler. The Americans came home The hard-driving Cushing, who expected to be with four treaty ports besides Canton in then pockets received at the Imperial Court in Beijing as the U.S. — Ningbo, Shanghai, Amoy and Fuzhou — and envoy extraordinary and minister plenipotentiary, introduced die “most favored nation” clause to bene¬ was persuaded by Ch’i-Ying to negotiate a treaty at a fit die United States in case of future Chinese con¬ Taoist temple in the obscure village of Wangxia, just cessions to odier powers. They also gained “extrater¬ outside die city wall but within Macao’s borders. ritoriality,” the privilege of trying a U.S. citizen Known as the Temple of the Goddess of accused of a crime on Chinese soil in a U.S. consular Compassion Kuan Yin, this auspicious location was court, instead of a Chinese court. The agreement led greeted widi bemused irony by Cushing, who real¬ to a boom in bilateral trade. ized he would negotiate die first U.S.-China treaty Feng shui masters w'ould have been pleased. ■

NOVEMBER 1997 /FOREIGN SERVICE JOURNAL 47 THE ENVOY & THE CLERIC

DID BENJAMIN FRANKLIN INFLUENCE VATICAN I\ CHOOSING FIRST U.S. CATHOLIC BISHOP?

BY ROBERT F. I LUNG

enjamin Franklins accom¬ groundwork for those discussions was laid in 1779. B plishments in securing when Pope Pius VI asked tire papal nuncio. American independence by Archbishop Giuseppe Doria Pamphili, to request a obtaining aid from Franee and copy of the Declaration of Independence from negotiating peace with Great Franklin. When the Treaty of Paris, the peace agree¬ Britain are well-documented, ment’s formal name, was signed in 1783, the Vatican but less well-known is his diplomatic role in helping gave the nuncio the green light to discuss the issue formulate a legal structure for the American with Franklin. Catholic Church. Doria Pamphili engaged Franklin to earnestly As Americas first ambassador to France from explore ways to break away the governance of the 1783 to 1784, Franklin helped the Holy See define American Catholic Church from British control. an independent structure for the American Catholic The Vatican realized the French were ideally Church, which became one of Iris most important placed to help in the matter and that the French diplomatic successes. minister to the United States, Chevalier de la When the American Revolution began in 1775, Luzerne, was able to provide guidance on circum¬ only about 25,000 Roman Catholics lived in the 13 stances in the new republic. What evolved was a colonies, most in Maryland and Pennsylvania, and a three-way discussion, involving Franklin and John handful in New York. There were no local bishops Adams, the future president who was on Franklin’s and British Bishop Richard Challoner, based in Paris staff, for the United States; Doria Pamphili London, was recognized by the Vatican as the official for the Vatican; and French Foreign Minister “vicar apostolic” of American Catholics. Then, as Charles Gravier, the Comte tie Vergennes and the now, it was standard Vatican practice not to alter bishop of Autun for the French. church boundaries or governance without a signed From the Vatican’s perspective, the task ahead treaty, so it was not until the American colonies had consisted of laying the legal groundwork on eccle¬ won their independence and were negotiating a siastical matters between Rome and the American peace treaty with Britain in 1783 that the Vatican Catholic Church, of naming a leader for the would consider the fate of American Catholics. The American community and of training of future American clergy. At this point, the Vatican’s office Robert F Illing is a retired FSO who served in of the Sacred Congregation for the Propagation of Oporto, Portugal; at the Holy See in Rome, and in the Faith, which dealt with missionary churches, Belgrade and Mexico City. came into the picture.

48 FOREIGN SERVICE JOURNAL/NOVEMBER 1997 Heretofore, the church had been used to deal¬ active role in deciding die future of its Cadiolics. ing with two distinct situations: either reasonably August and September 1783 were mondis of fre¬ friendly Catholic powers like France, or hostile quent discussions between Franklin and the nuncio. non-Catholic states like England. The Vatican In mid-August, Doria Pamphili reported in his diary, assumed the Americans would take a strong role in “On a recent occasion presented to me to see and forging a formal relationship with the Vatican speak to Mr. Franklin, I took advantage to inspire and because most nations preferred a formal relation¬ impress on him, as I previously had done, die favor¬ ship witii Rome. The United States proved to be able impression made on our court by their the first exception to that rule. [Americans’] desire to cooperate in the propagation and free exercise The essential first step for separating the of die Roman Cadiolic fafth in the Five years after John American Catholic Church from England was domains of his new republic.” for Rome to designate a cleric with episcopal pow¬ The previous two months of Carroll had become ers to live in America, who would have the power conversations were reported in to ordain priests and conduct Confirmation rites Doria Pamphili’s detailed dispatch head of the U.S. for children. to Rome on Sept. 1,1783, in which Catholic Church, On July 28, 1783, Archbishop Doria Pamphili he noted Franklins view that the advised Franklin in France that having the American “Court of Rome on its own could the pope named him Church governed under die London-based bishop take all dio.se measures useful to “can no longer exist,” noting diat American Catholics die Catholics of America widiout bishop of Baltimore, needed their own bishop. He urged Franklin to seek offense to die Constitution, and Congress’s approval for the Holy See to designate a diat the Congress will not fail to creating the first suitable American priest and city in North America. approve tacidy any choice of a Archbishop Doria Pamphili opined that, since a for¬ French ecclesiastic that full diocese in the eigner would probably be chosen, it was best not to Propaganda Fidei, in concert with name a full bishop at the outset, suggesting instead the Minister Plenipotentiary of United States. the naming of an apostolic vicar or a prefect, prelates United States will make.” He also with partial episcopal powers. If no appropriate reported Franklin’s recommenda¬ American was available, Congress should allow the tion diat American priests be trained in France, but candidate to be chosen from among die subjects of a not at seminaries where Englishmen were also being foreign power friendly to die United States. educated. Finally, the nuncio reported that Franklin The desire of the Holy See to sound out Congress had said “it was absolutely useless to submit anything probably stemmed from its general experience and to Congress because dieir rules and die Constitution practice of leaving no major question unanswered do not permit any involvement in religious affairs, widi government officials. The Holy See preferred all this being reserved to die various states.” Each state aspects of such bilateral relationship to be in writing. constitution, moreover, said Franklin, “is obliged to Moreover, in his professional astuteness, Doria guarantee religious tolerance and protect die mem¬ Pamphili perceived that American representatives bers of all religions in the free exercise of dieir fafth were operating in somewhat uncharted territory. The as long as they do not trouble die public order.” way America acted on a given issue was not prophet¬ In his dispatch of May 27, 1784, Doria Pamphili ic of its actions on odier issues, no matter how simi¬ informed the Vatican diat Franklin was favorable to lar. For in America, he realized, diere was often no naming as vicar apostolic in Maryland, the ex-Jesuit precedent. For some time, Doria Pamphili pressed John Carroll, from one of die colonies’ most promi¬ Franklin for Congress’s approval, obviously consider¬ nent families and who would in 1786 found ing it normal diat die U.S. government wanted an Georgetown University. In 1773 die Pope had sup-

NOVEMBER I997/FOREICN SERVICE JOURNAL 49 pressed the Jesuit order, halting the instructions to the nuncio under cover with what one can get and for die order worldwide for more than 30 of his diplomatic note of Aug. 18. future submit to what God will be years. During that period, former When die nuncio forwarded this long- good enough to grant.” A more pes¬ Jesuit priests, such as Carroll, contin¬ awaited reply from Congress to his simistic — and prophetic — sentiment ued to be priests — but not Jesuits. superiors in Rome, they expressed sur¬ was reported at the same time by the Though the American Catholic clergy prise and satisfaction that a govern¬ Spanish ambassador to France to his had petitioned in 1783 to name a rela¬ ment could exist that was interested foreign minister in Madrid. Jose tively unknown local priest, neither in meddling in religious affairs Monino y Redondo, the Conde de Archbishop John Lewis, as head of the nor in hindering them. Floridablanea, foresaw that, “this tiny American Catholic Church, the pope infant republic, which we now aid in its appointed Carroll on June 9, 1784. Franklins diplomatic overture was birth, may some day grow' to be a colos¬ Benjamin Franklin and John most certainly the first time in the sus and tuni on those who are now its Carroll had met in 1776 when both Cadiolic Church’s long history tiiat it benefactors.” How true that appeared were sent by the Continental Congress had met with genuine religious free¬ in 1898. to Canada to negotiate a neutrality pact dom. Likewise, it was also probably the How important was Franklins rec¬ with French Canadians during the Vatican’s first experience in dealing with ommendation of John Carroll to be American Revolutionary War. The die separation of church and state. the local head of the American mission failed, but, as a result, Carroll It is natural to assume that a man Church? Given that the American won Franklins respect and friendship. like the nuncio, a conservative Catholic clergy, with Carroll's participation, Franklin had told the nuncio about his who represented the most traditional had forwarded to Rome their recom¬ mission to Canada with Carroll, and [lower in Europe, could have been dis¬ mendation that Archbishop Lewis be the nuncio reported that Franklin tressed over the reality of die United chosen instead, there are no grounds believed the choice “would be very States, a rebellious country whose pro¬ for suspecting that the Holy Sees pleasing to many members of claimed republican principles left no choice would have fallen on Carroll Congress and in particular to room for kings, nobles or established had Franklin not strongly supported Benjamin Franklin, who has strongly churches. While the Holy See no him. As the nuncio was willing to recommended him.” doubt recognized the inherent direat accord Franklin considerable influ¬ The Vatican wasted no time. On in the existence of such a republic, like ence in American church affairs, July 1, 1784, the nuncio called on France and Spain it acknowledged the Franklin could just as easily have Franklin to say that, on his recommen¬ advantages in supporting the blocked Carroll's candidacy or pro¬ dation, the pope had appointed Carroll Americans. More than any particular posed someone else. It’s entirely like¬ as “superior of the Catholic clergy in interest in helping the American cause ly, however, that Franklin did not America,” which carried mam powers per se, was an overriding desire to know any other American priests. of a bishop, indicating that he would weaken the power of that arch-hereti¬ Therefore, it seems safe to conclude probably be made a bishop before the cal countrv. Cheat Britain. Another that Franklin was uniquely responsi¬ end of tlie year. hope might have been to provide ble for Carroll ending up as the first On May 11, 1784, Congress finally breathing space to the Catholic Catholic bishop in the United States. issued die long-sought instructions to Spanish colonies throughout Latin Thus ended a little-known but Franklin, which read as follows: America. There was also the possibility rather interesting episode from the “Resolved, that Dr. Franklin be of Catholicism flourishing better in a infancy of American diplomacy. That desired to notify to the apostolic country free of British domination. In a free-thinking, former grand master Nuncio at Versailles, that Congress will any case, the gamble was made. of the Masonic Lodge of always be pleased to testily their The nuncios final report on his con¬ Pennsylvania and venerable of the respect to his Sovereign and State; but tacts with Franklin is dated Aug. 23, Lodge of the Nine Sisters in Paris that the subject of his application to 1784. In it, he comments that, “It is not should have played such a clearly Dr. Franklin being purely spiritual it is sure that the American Republic will sympathetic role in the establishment without die jurisdiction and powers of with time continue to be grateful for of an independent Catholic Church Congress who have no authority to the singular services and favors given in America is surprising; that he permit or refuse it, these powers being them by France and they might fall worked so well with such an unlikely reserved to the several states individu¬ into a revolution similar to Canada. It counterpart as Archbishop Doria ally.” Franklin sent a copy of diese would be convenient to be satisfied Pamphili is, if anything, intriguing. ■

50 FOREIGN SERVICE ] OURN AL/N OVEMBER I 997 BOOKS

MEMOIR RECALLS with such objectivity and judicious¬ GERMAN PSYCHE ness that they remain colleagues. 2 SOVIET GIANTS Justifiably, Gorbachev is his central BEFORE HITLER figure, while Eduard Shevardnadze is affectionately presented as a strong My Years with Gorbachev and supporting player. Unavoidable Germans: Art vs. Shevardnadze — The Memoir of Palazchenko is critical of President Politics and the Consequences a Soviet Interpreter Pavel Bush for failing to help Gorbachev John Mosher, University Press of Palazchenko more, particularly during the end-game America, 1997, hardcover, $49.50, Pennsylvania State University Press, in 1991. He regrets the lost opportuni¬ 402 pages. 1997, hardcover, $35, 394 pages. ty to introduce an international politics based upon greater reliance on the rule BY PIERRE SHOSTAL BY R.T. DAVIES of law following Gorbachevs revolution¬ ary speech to die United Nations in How did a country like Germany, There seems to be no end to the December 1988 — a regret eloquendy home to some of Europe’s best-educat¬ parade of books about the final years of elaborated upon by a Democrat, Sen. ed and brightest thinkers, succumb to the Soviet Union. Now comes Pavel Daniel Patrick Moynihan, in his 1990 Adolf Hitlers lunatic ideology? The Palazchenko, until now best known as book, On the Law of Nations. Instead, political and economic steps in his path the man in the middle between Ronald the newly-elected Bush declared a hia¬ to power have often been charted, but Reagan and Mikhail Gorbachev, and tus in U.S.-Soviet relations that lasted Germany’s rich intellectual climate George Bush and Gorbachev. He has nearly ayear. When the relationship was before World War II is not as well written much that will be of interest, resumed, any chance that existed for a known in tiiis country. John Mosher, a primarily to specialists, but the general¬ fruitful partnership had been lost. Bush businessman who directed overseas cul¬ ist who sticks with it will find this a tes¬ was lacking die “vision thing” in 1989, tural and policy programming at die timony of significant witness to history. and was under no pressure to strengtii- U.S. Information Agency during the The book is a striking advertise¬ en die audiority of international law Reagan administration, analyzes how ment for the Soviet system of selecting until the following summer, when diree German intellectuals shaped their and training interpreters. Saddam Hussein invaded Kuwait. countrymen’s attitudes toward Hitier in Palazchenko’s primary interest is The official disfavor that now Unavoidable Germans. In sketches in exploring what went wrong with envelops Gorbachev is so strong and drawing extensively from published Gorbachevs Sisyphean effort to popular indifference to him so perva¬ works, Mosher explores the legacies of transform the Soviet Communist sive that tiiis dioughtful and quiedy poet Johann Wolfgang von Goetiie, Party into a social-democratic party, passionate book has not yet been pub¬ composer Richard Wagner and writer reform the Soviet economy, and, lished in Russia. It should be. A peer¬ Thomas Mann, with a revealing side most of all, turn die USSR into a nor¬ less translator is immediately at hand: excursion into philosopher Friedrich mal and respected participant in the Pavel Palazchenko. Nietzsche’s influence on the latter two. international community. Operating A complex figure who often changed from within the belly ol the beast has R.T. Davies, a retired FSO and former his views during his long life, Goethe not prevented him from criticizing ambassador to Poland, worked in U.S.- belongs — in Moshers view — to the the blunders, hesitations and wrong Soviet and U.S.-Eastern European German tradition inspired by the turns of his bosses, whom he treats relations from 1947-1980. Enlightenment and its faith in reason.

I NOVEMBER 1997/FOREIGN SERVICE JOURNAL 51 B O 0 A S

Though much of Wagners work was and intellectuals for the nile of unbri¬ Mosher intends tiiis book to be a composed before German unification dled instinct. With the birth of German cautionary tale. Fie sees nothing unique in 1871, his emotionally evocative music music, the German spirit began actively to Germany about the vulnerability of filled a German desire for a common separating itself from reason.” democracy. “Any country, including the past. Wagner was not the first German But it was Wagner who built the United States, can deteriorate into composer to appeal fundamentally to emotional bridge between music and demagogic rule the moment its people emotion; Ludwig van Beethoven, who politics, which was distorted and cease to insist — daily, as Geodie has personally rejected Napoleon in liis exploited by Uider. As Mosher notes, Faust point out — on defending their “Eroica” symphony, paved the way for Wagners influence became so great basic freedoms vigorously.” Wagner by breaking away from the clas¬ that “one’s position toward German Though stimulating, the book has sical musical style that Austrian com¬ music could be regarded as a test of its shortcomings. A map would have poser Franz Joseph Haydn had created ones politics or nationality." helped readers track the journeys of its in the 17(X)s. As Mosher describes the Mann, an opponent of Hitler and an main figures. Rather than a touristy process: “[Beethovens] conflict with apostle of European unity, succumbed account of East German travels, a dis¬ reason, this need to destroy the logical, in his early years to the twin temptations cussion of Germany’s cultural stand socially-accepted forms which had lieen of German nationalism and adulation of today between reason and unreason created over decades of musical history Wagners musical portrayal of it. By the would have been more satisfying. ■ and handed down from the 18th centu¬ time die horrified Mann began in the ry, stands at the outset of a movement in late 1920s to realize die consequences Pierre SI lasted, a rvtiivd FSO who teach¬ Gen nan spiritual history which culmi¬ of a nationalist appeal to unreason, it es at FSI, headed States German desk nated in the 1920s and 1930s, in a was t

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52 FOREIGN SERVICE ] O V RN AL! iV OV E M B E R 1997 IN MEMORY

Karl D. Ackerman, 70, a retired 1983, Mr. Bartz continued to work part Washington, D.C., after a heart attack. FSO, died Sept. 21 at his home in time in public affairs with die State and Mr. Cowell was bom in St. Paul, Bethesda, Md. Defense departments. Minn., and graduated from the Mr. Ackerman joined the Foreign Mr. Bartz moved to Linden, Va., in University' of Minnesota. He served in Service in 1949, and served in Paris, 1973 and settled in Winston-Salem 20 the Army during World War II and was Taipei, Oslo and Bangkok. Before Iris years later. a radio reporter and editor in retirement in 1982, he was assistant sec¬ Survivors include his wife of 50 Minneapolis before moving to retary of State for security. Flis earlier years, Patricia, of Winston-Salem; two Washington, D.C. Mr. Cowell joined Washington positions included execu¬ daughters, Ann Potter of Pilot VOA in 1951 as a newswriter in die tive director of the bureau of Inter- Mountain, N.C., and Isobel Bartz of International Broadcast Service. He American Affairs and director of FS Greensboro, N.C.; a brother; and two later covered the White House, the assignments and career development. grandchildren. United Nations mid the Six Day War Bom in Bellevue, Pa., Mr. and the Vietnam War, and was chief of Ackerman graduated from the correspondents in Europe and Asia. University of Notre Dame and attend¬ Following retirement in 1976, Mr. ed the business graduate school of Henry S. Bashkin, 78, a retired Cowell lived in Clearwater, Fla., and 20 Stanford University. He served in the Commerce Department official, died years later settled in Arlington, Va. Navy Reserve during World War II. of prostate cancer on Aug. 30 at the Mr. Cowells first wife, Grace, died Survivors include his wife of 44 Hospice of Washington, in in 1966. years, Marjorie Ackerman, of Bethesda; Washington, D.C. Survivors include his second wife, six children, Stephen of Bethesda; Karl Mr. Bashkin began his government Sheila, of Arlington; two children from of Charlottesville, Va.; Terri Hollrah of career in 1941 at the War Production his first marriage, Diane Cowell Chun Glenwood, Md.; Kristin Carroll of Board. After serving in die Army din¬ of Gainesville, Fla., and Robert of Austin, Texas; John of Bellevue, Wash.; ing World War II, he joined Waldorf, Md.; a stepson, Dan Boor, of and Paul of Columbia Md. He is also Commerce where he worked as an Washington, D.C.; a brother; three survived by two sisters, a brother, and economist, industry analyst and grandsons; and one great-grandchild. 16 grandchildren. international trade negotiator. A native of Brooklyn, N.Y., Mr. Bartz graduated in 1941 from die City College of New York. Millan Ludmil Egert, 87, a retired Carl Frederick Bartz Jr., 75, a Survivors include his wife, June, of FSO, died of sepsis, pneumonia and retired FSO, died of a stroke on Sept. 4 Washington, D.C.; a brother, Stanley, renal failure on Aug. 26 at Holy Cross at his home in Winston-Salem, N.C. of Tucson, Ariz.; and two sisters, Helen Hospital in Silver Spring, Md. A native of Dallas, Texas, Mr. Bartz of Washington, D.C., and Gladys of Mr. Egert joined the State graduated from Harvard University Denver, Colo. Department in 1947, working with the and received a doctorate in Far UNESCO until 1956. His overseas Eastern history and politics at the posts included Rome and Kabul. In University of California at Berkeley. Washington he served as assistant to His overseas assignments with USIA Roger A. Cowell, 81, a retired the secretary7 of State for administr a¬ included Korea, Japan, Burma and Voice of America correspondent, died tion and as executive director of tire Pakistan. Following his retirement in Aug. 14 at Washington Hospital Center, bureau of Near Eastern and South

NOVEMBER 1997/FOREIGN SERVICE JOURNAL 53 Asian Affairs. During World War II, he Freedom for her “outstanding contri¬ Harry Z. Kaklikian. 75, a retired was attached to the British Army as bution to the Allied causes during Army major and FSO, died on Aug. 27 deputy director of a refugee camp in World War II,” a reference to her clan¬ at Inova Fairfax Hospital in Fairfax, Germany. destine activities while serving from Va., following a stroke. Mr. Egert’s wife, Lillian Hanseom 1941 to 1942 as a neutral diplomat at A Fresno, Calif., native, Mr. Egert, died in 1993. He is survived by Lyon, France, during the Vichy Kaklikian s military career included ser¬ his son, Timothy, of Bethesda, Md. regime. Ms. Harvey was interned for vice in the Army Signal Corps in 13 months with other Allied diplomats Europe during World War II and in the in Vichy and, later, Baden-Baden, fol¬ Korean War. He served in Germany lowing the Allied invasion of North and Guam before retiring in 1965. Robert Eugene Gray, 67, a devel¬ Africa in November 1942. Upon his military retirement, Mr. opment resources officer at the Ms. Haivey’s other overseas Kaklikian joined the Foreign Service, Foreign Agricultural Service, died of assignments included Ottawa; serving ;rs a telecommunications officer cancer on Aug. 23 at his home in Milan, Italy; Basel and Zurich, with assignments in Beirut and Accra. Fairfax, Va. Switzerland; Athens; Bonn; He retired from the Foreign Service in A native of Snyder, Texas, Mr. Gray Edinburgh; and Strasbourg, France; 1986. graduated from Texas Tech University, in Washington, D.C., she worked in Survivors include his wife of 47 where he also received a masters the offices of Italian-Austrian years, Gladys, of Annandale; three chil¬ degree in agricultural education. He Affairs and European Affairs. dren, Gary of Castle Rock, Colo., earned a doctorate in agricultural eco¬ Ms. Harvey is survived by several Debra K. Barker of Springfield, Va., nomics at Michigan State University. second cousins. and Robert of Fairfax, Va.; a sister, Mr. Gray began his career in the Queenie Avakian, and a brother, 1950s as a country agent and agricul¬ Edward, both of Fresno, Calif. tural instructor in Texas, later joining USAID and serving in Paraguay Kenya Coulter Dunham Huyler Jr., 85, and at States Latin America and a retired FSO, died of pneumonia on Caribbean Bureau. He then joined the Sept. 4 at the Potomac Valley nursing John Marshall Leddy, 83, a Agriculture Department, where he home in Rockville, Md. retired official of the State and worked in the Africa Bureau and in Mr. Huyler joined the Foreign Treasury departments, died of lung and Inter-American and International Service in 1946 and served in The kidney failure on Aug. 31 at Inova Programs. Hague, with NATO and with Fairfax Hospital, Fairfax, Va. Survivors include his wife of 42 UNESCO. Bom in Chicago, Mr. Leddy gradu¬ years, Nancy Ann O’Kelley Gray, of A New York native, Mr. Huyler ated from Georgetown University. Fairfax; two daughters, Kelley Snyder graduated from Princeton University Before beginning his government of Westminster, Md., and Cristina and worked for the J. Walter career, he was chief of the economic Carlisle of Arlington, Va.; and a sister. A Thompson advertising agency as a information division at the Pan son, Robert Earl Gray, died in 1986. young man. He served in the Army in American Union. the Middle East and India during Mr. Leddy joined the State World War II. Department in 1941. participating in After retirement, Mr. Huyler international trade and economic ini¬ Constance Ray Harvey, 92, died operated his Hagerstown farm, tiatives. In 1951 he became director of at her home in Lexington, Va., on Aug. where from 1984 to 1994 he ran a the International Trade Policy Office 3, following a long illness. Ms. Harvey bed and breakfast. He was also a and, two years later, was appointed had a long and distinguished career in hospice volunteer. deputy assistant secretary of State for the Foreign Service, beginning in 1930 Mr. Huylers first wife, Lola Ann economic affairs, and later as special as the sixth woman ever commissioned McFadin Huyler, died in 1957, and assistant to Under Secretary of State C. as an FSO. their daughter, Margaret Lee Douglas Dillon. From 1961 to 1963, Bom in Buffalo, N.Y., Ms. Harvey Huyler, died in 1960. His marriage Mr. Leddy was assistant secretary of was educated in France and to Sarah Pluyler ended in divorce. the Treasury for international affairs Switzerland. She graduated from Survivors include two children from and later served as ambassador to the Smith College in 1927 and received a his first marriage, Coulter Dunham OECD in Paris before retiring in 1969. masters degree from Columbia Huyler 111 and Anne Huyler Baker, Mr. Leddv's wife of 43 years, Louise University in 1930. both of Bethesda, Md.; a brother; and Crawford Leddy, died in 1978. Ms. Haivey received the Medal of three grandchildren. Survivors include his wife, Margaret

54 FOREIGN SERVICE J OU RN AL/N OV EM B ER 1997 Hardy Potter Leddy, of McLean, During his 20-year career at the ent in five languages. whom he married in 1983; a son from State Department, Mr. Nyren served Survivors include his wife of 50 his first marriage, Thomas, of Vienna, in Belize, Barbados, Belgium, Italy, years, Ilona Vertesy Reynolds, of Chevy Va.; and two granddaughters. Australia and Turkey. Chase; two children, Mary Jane Born in Boston, Mr. Nyren gradu¬ Miltner of Vienna, Austria, and ated from Boston College in 1941. Nicholas Reynolds of Arlington, Va.; During World War II he served in and three granddaughters. Stewart W. Macdonald, 68, a Europe with the Signal Corps. retired FSO, died of cancer in Austin, Survivors include his wife of 51 Texas, on July 22. years, Genevieve, of Columbia; two Born in Providence, R.I., Mr. sons, John A. of Boulder, Colo., and Edward T. Stever Sr., 79, a retired Macdonald joined the State Philip E., of Aurora, III; six daughters, FSO, died Aug. 8 from cancer and Department as a cryptographer in Patricia Marchetti of Gaithersburg, heart disease at Inova Fairfax Hospital 1955 and later became a general ser¬ Md., Claire Mann of Sterling, Va., in Fairfax, Va. vices officer. His 25-year career Sheila Greco of Potomac, Md., Mr. Stever was bom in New York City included postings in Britain, Paraguay, Barbara McCowat of Lake Forest, and graduated from George Washington Spain, Pakistan, Liberia and El Calif., Rita Nyren of Columbia and University. He joined die State Salvador. Mr. Macdonald took a med¬ Mary Jane Gutkowski of Clifton, Va.; a Department as a procurement officer ical retirement in 1980 due to compli¬ brother and 15 grandchildren. before serving in die Philippines and cations from diabetes. New Guinea with the Army in World Mr. Macdonalds first wife, Mary War II; he rejoined State after die w'ar. Ann, died in 1982. Survivors include Mr. Stever’s assignments included Tokyo, his wife, Jo, whom he married in 1987; Euna Scott Johnson Palmer, Frankfurt, Bonn and Lagos. a son; a daughter; two brothers; and former wife of retired FSO Ronald Survivors include his wife, Madge, of two granddaughters. D. Palmer, died Sept. 28 at the Annandale, Va.; two sons, John of Rockville Nursing Home after a long Manassas, Va., and Edward T. Jr. of Falls illness. Church, Va.; a brother, James, of Mrs. Palmer accompanied her Fredericksburg, Va.; a sister, Helen, of Harry J. Morris, 75, a retired FSO, husband to Foreign Service postings Leesburg, Va.; and diree grandchildren. died Sept. 27 at his home in Bethesda, in Jakarta, Kuala Lumpur, Md., after a heart attack. Copenhagen and Manila. Mr. Morris joined the Foreign Born in Spokane, Washington, Service in 1949, serving as a consular Mrs. Palmer married Preston C. Andrew Bowie Wardlaw Sr., 84, a officer in Europe and the Far East. Johnson Jr. during the war. retired FSO, died Aug. 14 in After retirement from State in 1974, Mr. Survivors include a son, Derek, of Charleston, S.C. Morris lived abroad with his wife, FSO Los Angeles, Calif.; a daughter, Mr. Wardlaw’s 25-year career Mildred V. Morris, until they retired to Alyson, of New York; and a brother, included postings in Canada, the Washington, D.C. area in 1988. Herbert Williams, of Portland, Ore. Colombia, the Dominican A Connecticut native, Mr. Monis Republic, Spain, Guatemala, graduated from Quinnipiae College Paraguay and Japan. and served with the Army Air Force Mr. Wardlaw was born in during World War II. G. Edw ard Reynolds, 75, a retired Greenville, S.C., and graduated from Survivors include his wife, of FSO, died of pulmonary disease Sept. The Citadel in 19.34 and received a Bethesda; a son, John W., of Fairfax 20 at his home in Chevy Chase, Md. master’s degree from Georgetown! Station, Va.; two sisters, Evelyn O’Neill Mr. Reynolds’ 30-year career University. and Sophia O’Neill, both of Branford, included assignments in Hungary, After retiring in 1975, Mr. Wardlaw Conn.; and a granddaughter. Germany, France, Czechoslovakia and was adviser to the Regional Canada. Before his retirement in 1973, Organization of Central America and he was consul general in Tokyo. Panama. A native of Rochester, N.Y., Mr. Survivors include his wife, Frances Albert V. Nyren, 77, a retired Reynolds graduated from the Blakeslee Wardlaw, of Summerville, FSO, died Aug. 4 at Howard County University of Toronto and received a S.C.; a son, Andrew B. Jr., of Columbia, Community Hospital in Columbia, masters degree in Gennan literature Md.; a daughter, Frances Day, of New Md., following a stroke. from American University. He was flu¬ York City; and two grandchildren. ■

NOVEMBER 1997/FOREIGN SERVICE JOURNAL 55 MARKETPLACE

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NOVEMBER 1997/FOREIGN SERVICE JOURNAL 57 REAL ESTATE NOW’S THE TIME!

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NOVEMBER 1997/FOREIGN SERVICE JOURNAL 59 POSTCARD FROM ABROAD In Search of Kafkas Prague

BY ERNEST G. WIENER

In only a half century, Czecho¬ reformer Alexander Dubcek headed slovakian writer Franz Kafka, the Czech Communist Part)' joint con¬ dead since 1924, has gone from Czechs' obsession ferences on Kafka’s work were held in outcast to icon in his native land. Prague and Moscow. In the 12-century town center in with Kafka is ironic: Interest in Kafka’s work was revived Prague, posters honoring the Czech by French writer and Communist Jean wiiter line tire streets and vendors / /is writing was Paul Sartre, who spoke admiringly of hawk T-shirts emblazoned with his him on a lecture tour of Moscow in face. During a recent visit to Prague, I banned by both the 1963. As a result, Kafka’s short story, toured his birthplace, a yellowish “In The Penal Colony,” whose theme is masonry house in the old city’s central Nazis and the the struggle between bureaucracy and square, which bears a plaque with Iris individualism, was printed in the high¬ likeness. I have always felt a strong Communists. ly-regarded Russian literary magazine, connection to Kafka since I, too, was Foreign Literature. That same year, bom in Czechoslovakia. As a young Russian poet Andrei Voznesensky pub¬ man, I met the Kafka family and, lished his poem, “Oza,” w'liich con¬ indeed, we are still in touch. ered Christian, and survived. Ottia her¬ tained Kafkaesque references. His The Franz Kafka Society, revived in self died at Auschwitz in 1943, and her work was also available during the brief i991 following the fall of communism, two other sisters also perished in con¬ reform movement of 1968, the flourishes in two rooms of a renovated centration camps. “Prague Spring,” which dissolved 18th-century building, which was Since Kafka wrote in German, when Warsaw Pact troops invaded. donated to the society by the govern¬ Saudek’s book, Franz Kajka: Letters to At the end of 1989, the Communist ment of Czechoslovakia. President Ottia and Family, was the first time his regimes of Eastern Europe began to Vaclav Havel is an honorary member letters have appeared in Czech, and it unravel, and in Czechoslovakia, Vaclav of die 2,000-member group. became an immediate best-seller. Havel, a playwright who admires In 1996, Voitech Saudek, Kafka’s Ottla’s daughter, Vera Saudek, has Kafka’s work, became its elected presi¬ great-nephew through the eldest translated several books from German dent. Indeed, shortly after taking office daughter of his youngest sister, Ottia to Czech and is working on a collection in 1990, when Havel received an hon¬ edited a Czech-language version of of Kafka’s correspondence with his orary degree from Hebrew University Kafka’s letters to Ottia and other family publisher and best friend, Max Brod. of Jerusalem, he referred to Kafka: “I members. Ottia Kafka David, who like This obsession with Kafka is ironic, always found in Kafka a reflection of my the rest of the Kafka family was Jewish, considering his writing was banned in own experiences in this world.” Kafka divorced her Christian husband during his native land under both tire Nazis, influenced Havel’s politics and writing. the Nazi occupation to save her daugh¬ who occupied Czechoslovakia from Perhaps Havel was referring to ters from a concentration camp. After 1939 to 1944, and the Communists, Kafka’s uncanny portrayals of the tire divorce, the daughters were consid- who ruled until the country achieved methods used by the totalitarian its independence in 1989. During “die regimes in The Trial and The Castle. Emest G. Wiener vs a retired FSO thaw,” a brief period following the Today in Prague, on a street preserved whose 19-year career with the USIA 1953 death of Soviet leader Josef from the Middle Ages, Kafka’s former took him to Brazil, Moscow, Berlin, Stalin, when Nikita Kruschev was writing studio sits in the shadow of the Bonn, Vienna and Geneva. leader of the Soviet Union and castle he once wrote about. ■

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