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The Foreign Service Journal, November 1997

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DWINDLING FUNDS IOK DIPLOMACY ■ I III: ART OF I IAC; SIIUI I BENJAMIN FRANKLIN & TIIE VATICAN $3.50/NOVEMBER 1997 oiii'K :\ MCE JOURNAL THE MAGAZINE FOR FOREIGN AFFAIRS PROFESSIONALS L Give me your strong, your educated. your business people yearning for new markets / IMMIGRANT NATION How a Domestic Issue Evolved into a Foreign Policy Dilemma Affordable Luxury If you are relocating, a business traveler or need temporary housing, we offer furnished apartments with all of the comforts ofhome. AVALON CORPORATE APARTMENT HOMES ARE A MORE SENSIBLE AND AFFORDABLE ALTERNATIVE TO A HOTEL ROOM. • Located minutes from • 2 miles from NFATC Pentagon, Washington, DC and National Airport. • Controlled access entry throughout building. • Luxurious one and two bedroom apartments • Our amenity package completely furnished and includes: outdoor pool, accessorized with fully and spacious Nautilus equipped gourmet fitness center. kitchens and washers and dryers. • Minutes from Ballston Metro. • Free cable TV. • Free underground parking. • Within walking distance of department stores, • Cats welcome. specialty shops and Washington Towers restaurants. • 5p.m. check-in time. • Washington Towers is • 30-day minimum stay. adjacent to bike/jogging trail. Avalon at Ballston No matter which Avalon location you choose, you will be impressed! Washington Towers 4650 N. Washington Blvd., Arlington, VA 22201 703-527-4409 or Fax 703-516-4369 Quincy Towers 1001 North Randolph St., Arlington, VA 22201 703-528-4600 or Fax 703-527-2356 Vermont Towers 1001 North Vermont St., Arlington, VA 22201 703-522-5550 or Fax 703-527-8731 Are you hearing an old cliche from your local insurance company? By purchasing insurance from foreign companies you probably think that your claims will be settled faster or your premiums will cost less. The reality is that these companies often find any excuse to delay a claim — and we've heard them all! Clements is an American company with 50 years experience insuring the Foreign Service at home and abroad. In plain CLEMENTS & COMPANY English, our reputation was built on providing outstanding Insurance Worldwide. insurance programs with unexcelled service at very competitive 1660 L Street, NW, 9th Floor prices. So one thing you'll never hear from us is "L' assegno e Washington, DC 20036 stato inviato per posta." TELEPHONE 202-872-0060 or 800-872-0067 FACSIMILE 202-466-9064 Translation... Clements covers you! E-MAIL [email protected] WEBSITE http://www.clements.com DIPLOMATIC AUTOMOBILE SALES As a member of the Foreign Service Community you are entitled to very special privileges and services when you order a General Motors vehicle through Diplomatic Automobile Sales. Diplomatic Personalized Service A personal representative will assist you in custom factory ordering the vehicle of your choice at the special diplomatic price. Delivery of your vehicle can be arranged anywhere in the United States, or to most overseas locations. Select from General Motors finest products. Cadillac, Pontiac, Oldsmobile, Chevrolet, Buick, GMC Truck, and Geo. Contact Our Diplomatic Sales Representative To receive more information on General Motors products, please complete the business reply card and mail it to us. Contact us in the United States at tel: (516) 496-1806, fax: (516) 677-3701, or E-mail: [email protected] DIPLOMATIC AUTOMOBILE SALES 100 Crossways Park West Woodbury, New York 11797-2084 U.S.A. A program of OMSC Ltd. Authorized distributor of GM vehicles to the Diplomatic Community CONTENTS November 1997 I Vol. 74, No. 10 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 NOVEMBER 1997/FOREIGN SERVICE JOURNAL 3 If Having A Choice Is Important To You Choose the Foreign Service Benefit Plan Rated by OPM Customer Satisfaction Survey as one of the top 3 rated plans in the FEHB for three years in a row Excellent Hi-Option benefits Comprehensive worldwide coverage Over 50 years experience in handling health claims from overseas and stateside This Open Season — make the right choice! The Foreign Service Benefit Plan — meeting the needs of today’s and tomorrow’s Foreign Service 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.
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