The Fashoda Syndrome \ % oreign Service Joui % % 1.25 APRIL 1982 w Defend n Professionalism
T.pttJ) 82
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□ YES! Please rush full details on the Group Accident Insurance Plan avail¬ Mutual iT\ able to me as a member of the American Foreign Service Association. I s^OmahaSL/ understand no agent will call. Name People you can count on... Address MUTUAL OF OMAHA INSURANCE COMPANY HOME OFFICE: OMAHA, NEBRASKA City State ZIP Code FILL OUT AND MAIL TODAY! COVER: Ambassador Malcolm Toon and Senator Charles McC. Mathias (R.-Md.) rush to the defense of a professional Foreign Service with the aid of artist Tom Reed. In this issue, Mathias discusses his proposal for a legal limit to the percentage of non-career ambassadors. Toon, in an interview with the Journal, calls for strong action on the part of senior Foreign Service officers to preserve the professionalism of the Service and the interest of the nation.
Officers and Members of the The Fashoda Syndrome 18 Governing Board In the nineteenth century, imperial rivalries were a CHARLES S. WHITEHOUSE, President ANTHEA DE ROUVILLE, Vice major source of conflict between great powers. Today President WILLIAM SCHOUX, Second Vice the Third World is still the root of many tensions, President this time between the United States and its NATO JOSEPH MCBRIDE, Secretary MICHAEL SPEERS, Treasurer allies. By Robert K. Olson. WILLIAM MCKINNEY, RALPH BARNETT, In the National Interest 22 AID Representatives STEPHEN M. CHAPLIN, ICA Ambassador Malcolm Toon, in an interview with Representative the Journal, discusses current dangers to the Foreign THOMAS MILLER, DONALD K. HOLM, IRVING WILLIAMSON, Service and the importance of a career Service to the State Representatives SPENCER KING, THOMAS national interest. CORCORAN, Retired Representatives Staff Politics or Merit? 28 ROBERT M. BEERS, Executive Senator Charles McC. Mathias (R.-Md.) outlines Director SUSAN HOLIK, General Counsel the reasoning behind legislation he recently introduced SABINE SISK, Members’ Interest! to limit the percentage of non-career ambassadorial Grievance Representative PAT GUILD, Executive Secretary appointments. CECIL B. SANNER, Membership and Circulation Journal: International Pecking Order 34 Scholarship Programs DAWN CUTHELL In wartime, loose lips may sink ships, but on the diplomatic circuit, puckered lips may be an even greater danger. By Jim Slack. Editorial Board H. KENNETH HILL, Chairman Editorial 17 Association News 20E STEPHEN CHAPLIN FRANCIS X. CUNNINGHAM AFSA Elections Section 20A DONALD MACCORQUODALE JAMES L. ROUSH Upcoming AFSA Referendum 20D JOHN D. STEMPEL DAVID WILSON The Foreign ServiceJournal is the magazine of profes¬ Association is open to the professionals in foreign Staff sionals in foreign affairs, published 11 times a year affairs overseas or in Washington, as well as to STEPHEN R. DUJACK, Editor by the American Foreign Service Association, a persons having an active interest in, or close associ¬ FRANCES G. BUR WELL, Associate non-profit organization. Material appearing herein ation with, foreign affairs. Membership dues are: Active Members—Dues range from $52 to $104 Editor represents the opinions of the writers and does not necessarily represent the official views of the De¬ annually. Retired Active Members—Dues are $40 LINDA J. LAVELLE, Ed. Asst. partment of State, the International Communica¬ annually for members with incomes over $20,000; tion Agency, the Agency for International Devel¬ $25 annually for less than $20,000. Associate Advertising Representatives opment, the United States Government as a whole, Members—Dues are $25 annually. All dues pay¬ JAMES C. SASMOR ASSOCIATES, or AFSA. While the Editorial Board is responsible ments include $7.50 allocation for the Journal and 521 Fifth Ave., Suite 1700, for general content, statements concerning the Association News, per AFSA Bylaws. New York, N.Y. 10017. policy and administration of AFSA as employee Subscription to the Journal', one year (11 issues), representative under the Foreign Service Act of $10.00; two years, $18.00. For subscriptions go¬ (212) 683-3421 1980 on the editorial page and in the Association ing abroad, except Canada, add $1.00 annually. ALBERT D. SHONK CO., News, and all communications relating to these, Second-class postage paid at Washington, D.C. 3156 Wilshire Blvd. are the responsibility of the AFSA Governing and at additional post office. Los Angeles, CA 90010 Board. Microfilm copies of current as well as of back ©American Foreign Service Association, 1982. (213) 388-2981 issues of the Foreign Service Journal are available 2101 E Street, N.W., Washington, D.C. JOSHUA B. POWERS, LTD., through the University Microfilm Library Services, 20037. Telephone (202) 338-4045. Offices in 46 Keyes House, Dolphin Sq., Ann Arbor, Michigan 48106, under a contract State Dept.: 632-8160/2548 London SW1. 01-834-8023/9. signed October 30, 1967. April 1982. Volume 59, No. 4. ISSN 0015- International Representatives. Membership in the American Foreign Service 7279. A prestigious board could be of great AUTHORIZED EXPORTER support to both the president and the na¬ tion by offering unbiased and unintimidat¬ GENERAL ELECTRIC ed opinion on ambassadorial nominations. In the beginning the board might send -U.S.A.- suggested nominations to the White LETTERS House for appropriate ambassadorial va¬ cancies. If these suggestions are bypassed for nominees of lesser quality, the board GENERAL ELECTRONICS should take public issue on each case with INC. AFSA and Appointments the White House. While it probably would not be easy for I was greatly interested in Charles Foster’s the board to force its views on the White REFRIGERATORS • FREEZERS thoughtful article “Appointing Ambassa¬ House, after experience in working with RANGES • MICROWAVE OVENS dors” in the November Journal. His idea it, the White House would probably come AIR CONDITIONERS • DRYERS for a permanent presidential advisory to realize its value and be willing either to WASHERS • SMALL APPLIANCES board with a secretariat to pass all candi¬ submit nominations to its judgment or ac¬ AUDIO EQUIPMENT • TELEVISION dates for ambassadorial appointments is cept nominations emanating from it. DISHWASHERS • TRANSFORMERS excellent, but it displays a slight naivete in I urge AFSA’s consideration of this sug¬ assuming any administration will willing¬ gestion. Certainly Mr. Foster has touched Available for All Electric ly give up power. The article touches on on an important subject, and one on which Currents/Cycles this, mentioning the steps taken by the our organization should take action. last administration in establishment of Immediate Shipping/Mailing such a board, and goes on to note it was JULIUS W. WALKER JR. From our Local Warehouse largely ineffective, as the White House ig¬ Ambassador nored it. Ouagadougou, Upper Volta We Can Also Furnish Any such organism created by the chief Replacement Parts for executive and beholden to him can only Uncle Sam’s ‘Cousins’ Most Manufactures have limited value and success, as it is his creation and serves at his will. To have true The Journal and author Marjorie Smith de¬ SHOWROOM value, the presidential advisory board serve the thanks of all Foreign Service members — active and retired — for the General Electronics, Inc. must be independent and institutionalized 4513 Wisconsin Avenue, N.W. outside the White House structure. February article “Working for Cousin Washington, D.C. 20016 Foster also touches on this solution with Sam.” I think it was time someone spoke Tel. (202) 362-8300 passing reference to the American Bar As¬ out for the 10,000 local nationals who TWX 710-822-9450 sociation Committee on Judicial Appoint¬ make up the “other half of the work force. ” GENELECINC WSH ments. The power of this group has grown They are indeed indispensable to U.S. over the years to such an extent that presi¬ government operations at posts abroad, dents are loath to make appointments and their dedication, skill, and continuity without ABA approval. This seems a func¬ cannot be replaced by any other group, tion which AFSA can and should provide. including Americans who live abroad. I
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APRIL 1982 3 The department doesn’t even know how believe, that their staffs have told them any corroborating evidence. The employee many there are, to say nothing of having horror stories about what happened before was eventually transferred instead of being policies and procedures for their their arrival or, even worse, what hap¬ dismissed, but I was astounded to hear employment. pened after the officer departed. from the senior member of the Appeals If the department and the Association Another disappointment for me has Panel that “By God, when I was a section recognize their value, local nationals have been the neglect of these employees in chief, if I suspected somebody, the guy earned our attention to them as colleagues, time of disaster. I know that Americans on was fired on the spot. After all, there isn't friends, and human beings. the scene try to help those hit by earth¬ any law against it and in these foreign quakes and wars, but it seems to me we countries you can never prove anything JAMES R. RUCHTI should do a lot more. I well remember against your employees.” Foreign Services officer, retired approaching the desk officer in the depart¬ We have a long way to go. Washington, D.C. ment during a civil war to ask if anything could be done to help the employees who RICHARD H. MILTON Marjorie Smith’s Working For Cousin Sam had done so much for me and my family a Deputy Assistant Director, ACDA/MA [February] struck a responsive chord. The few years earlier. I was simply rebuffed. Arlington, Virginia lip service paid to the importance and loy¬ When I went to his superior, I was assured alty of our Foreign Service national em¬ that the embassy had reported no particu¬ Culture Shock ployees is clearly not enough, especially in lar problem, thank you, and good day! this period of Equal Opportunity, Affirm¬ I wonder how my hard-working Polish To answer Ms. Connell’s letter in the No¬ ative Action, etc., back home. Aren’t we staff is faring? vember Journal, sorry, but she is barking enjoined to reflect overseas our domestic Finally, I think we have to admit that up the wrong tree. My grandmother was policy and the changing American society? we have not always applied to our Foreign not given a crash course in survival at Ellis Greater centralized management of per¬ Service national employees the most ele¬ Island when she arrived in the United sonnel is unfortunately necessary. The mentary standards of American fair play. I States in 1905. Neither did she have a constant flip-flops in post personnel poli¬ suspect many of us have seen incidents knowledge of English, a university educa¬ cies that result from frequent officer turn¬ such as the time one of my employees (for tion, nor even the ability to read and overs and the autonomy that permits con¬ whom I did not have any great regard) write. But she did have the courage and stant rewrites of post regulations have failed a lie detector test and was to be spirit our immigrant forefathers had and destroyed confidence in what most of our dismissed. Appealing to a panel within the she found her way without crying. Foreign Service national employees per¬ embassy, I pointed out that there had to be Being a nation of immigrants and the ceive as an exceedingly fickle manage¬ some question about the cross-cultural melting pot we are, one wonders what ment. Even the most dedicated and be¬ problems involved in such testing and that country Ms. Connell is from that she could loved personnel officers will admit, I furthermore, there was a total absence of not find anyone who spoke her language,
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APRIL 1982 5 understood her customs, and who could Iran’s Revolution,” November] may or revolution, the nobility of Yorkshire and answer her questions and give advice. Did may not be valid, but his general sense of Kent was replaced by that of Virginia and she even look? history could raise some questions — if not Massachusetts with a minimum of Paine I too have heard from some foreign-born eyebrows. Three examples: (Tom, that is) in the transition. The spouses of Foreign Service employees but “. . . Standard Marxist and Western French saw Danton and Robespierre turn it’s mostly (but not all) about how they theories [are] that to control the rural pop¬ up their toes while Napoleon caused the “had to” give up their countries and were ulace is to hold the key that can unleash Sun (King) to rise again. And, in Russia, forced to become American citizens. This violent upheaval.” Actually, of course, Trotsky’s perpetual world revolution end¬ conjures up images of the State Depart¬ from the bread and circuses bestowed upon ed up on the sharp end of an ice pick as the ment conducting shotgun weddings the restive Romans through the Paris long-term Kremlin lease went to a cabal around the world. Commune to the Marx-Lenin urban prole¬ hardly less nationalistic and autocratic I don’t know if my grandmother ever tariat, it has been almost universally ac¬ than the Tsars. Maybe Stempel's "new did learn how to cook a turkey — she cepted that the masses of the capital city Reza Shah” thesis is meant as a recognition cooked such excellent Polish food we al¬ are the only common people who can of this reality, but one could get there in a ways clamored for more. She never did overthrow a government. The fact that more scholarly way. learn how to read and write either, so when Mao was acclaimed as an original thinker Perhaps all of this proves nothing more they passed a special law in 1961 to waive for his rural strategy is the exception that than the riskiness of sweeping generaliza¬ this requirement for senior immigrants proves the rule. tions . . . But it would be nice to see an (over 50 years in America) she proudly “Historically, the most important analysis of the Iranian situation based on framed and hung her naturalization certifi¬ consequence of the [Iranian] revolution less questionable foundations. cate in a place of honor. may prove to be the rise of religion as a Our country was built by these hearty significant political force.” [Emphasis PAUL WENGER folk who didn’t understand inches. added.] How did the Israelites come to AID/Dakar knock down the walls of Jericho? What Dakar, Senegal FRANCINE L. BOWMAN brought the Crusaders to the gates of Acre? Luxembourg Why is the IRA in the streets of Belfast? There may, indeed, be new things under John Stempel replies: Flawed Premises the sun, but the admixture of politics and Be careful about trying to overload the religion is surely not one of them. stagecoach! The general remarks that Mr. Can sound analysis flow from flawed prem¬ “Successful revolutions naturally Wenger takes exception to, or wishes to ises? John D. Stempel's particular percep¬ tend to evolve toward the most fanatical elaborate on, should not be read as either tions of the Iranian revolution [“Inside positions advocated.” In the American “a” or “my” definitive views on revolu¬ tion, nor an exhaustive analysis, but mere¬ ly comments on some of the contemporary concerns in the study of revolution. They FREE SQUASH were exerpted from a longer discussion of the problem which itself was merely a gen¬ eral study. Mr. Wenger offers some useful MEMBERSHIPS FOR insights and I hope he and others will look at my full treatment of Iran in my book AFSA MEMBERS Inside the Iranian Revolution. Kudos for Pay Conversion As a Senior Foreign Service officer who has been in an adversarial relationship with AFSA recently, I want to congratulate the Association for its magnificent perform¬ ance in winning the lawsuit against the State Department on the conversion of our payscales from the 1947 to the 1980 Act. AFSA members can now play squash at the Capitol Hill AFSA’s victory just before the raising of Squash Club without paying the $60 membership fee. By the pay cap will mean thousands of dollars simply showing your AFSA membership card, you will pay in higher pay for many senior officers.
only the court fees at Capitol Hill’s most luxurious fitness HERMAN J. COHEN facility. Located only a block from the Capitol South Washington, D.C. Metro stop, the Club also offers free use of changing rooms, showers, and saunas before and after playing Bloody Errors squash. I am afraid that my friend Adrienne Huey Capitol Hill Squash Club in her story “February 28: Bloody Friday” [December] got her late husband George’s 214 D Street, S.E. • (202) 547-2255 notes mixed up. It was Mrs. Egan who was frantic and hysterical, for good reason,
6 FOREIGN SERVICE JOURNAL when she telephoned me from Cordoba recently, came across the collected consu¬ Officer’s Query that her husband, the consular agent lar commissions and exequaturs of former there, had just been kidnapped, and not I Foreign Service officer John Corrigan. Cor¬ I am a retired Foreign Service officer and when 1 relayed the distressing news and rigan served in Durban in the mid-1950s would like to get in touch with any For¬ described her call to the security officer and as well as a number of other posts going eign Service employees or retirees who then to Consul General Huey. back at least to the early 1920s. have been, or fear they might be, disad¬ There are several other inaccuracies in The documents are signed by a number vantaged by the provisions of Chapter 8 of the piece too, of which the following are of American presidents, including Wood- the Foreign Service Act of 1980. This examples. The Egans didn’t stay with us row Wilson and Franklin Roosevelt, var¬ chapter includes the provision which when they visited Buenos Aires, although ious secretaries of state, and foreign heads awards part of the annuity of a Foreign we would have been glad to have them. of state, including British King Edward Service employee to a divorced spouse. And it happened in 1975, not 1974. and South African President Hertzog. What depresses me about the story, The Red Cross Society has no idea how JOHN E. WILLIAMS however, is that the Journal cares so little the documents came into its possession but P.O. Drawer 1 about the Foreign Service’s image that it feels they might be of value for historical Carrboro, North Carolina 27510 publishes without question what should reasons to the descendants of John have been suspected as being in error, that Corrigan. Worry-Free Retirement Living a U.S. consul reacted to a crisis so childish¬ If the Journal feels that these old docu¬ ly. Maybe a political or economic officer ments and signatures might be of interest, Is Yours At Kirkside... would be frantic or hysterical, but never a possibly it would like to bring their exis¬ consular officer! tence to the attention of its readers in the hope that someone might know whether WILBUR W. HITCHCOCK John Corrigan left any descendants and Consul how they might be reached in order to Buenos Aires, Argentina ...A nonprofit retirement homeintheCats- make these papers available to them. kill Mountain village of Roxbur.v. to open Spring 1982. Excellent accommodations, Exhumed Exequaturs family - style meals, recreational/cultural ALAN LOGAN program. 24-hour assistance. Walk to stores, churches, library. Write Kirkside. The Durban office of the Red Cross Society Consul General Roxburv. N.Y. 12474 or cull (607) 326-4651. of South Africa, in cleaning out its attic Durban, South Africa Picasso Stayed Here* If we wanted to name drop, our insurance department we could boggle your mind. through its Annual Govern¬ Because for decades, Security ment Service Floater. Storage has been Washington’s Decades of this kind of favorite place to store valu¬ efficient, personal service, and ables. And when it comes to a dedication to quality, have FSO valuables, the Govern¬ made Security an FSO moving ment will cover all expenses, and storage expert. And that’s providing special arrangements why anytime you need depend¬ are made in advance with your able service, it’s good to know transportation officer. Security is there. Silver, jewels, stamp and coin collections, and rare books are protected in Security’s vault. Temperature controlled areas are available for $f(upitii $foragp dompang maximum protection and preservation of furs and off-season wardrobes. And paintings in our Art Room of UJashincjton MAIN OFFICE: receive the same storage treatment as paintings in 1701 Florida Avenue, N.W., Washington, D.C. 20009 <202) 234-5600 MARYLAND: one of Washington’s largest museums. Bethesda-Chevy Chase, Marlow Heights, W:hite Oak In addition, hundreds of your colleagues use VIRGINIA: Alexandria, McLean
APRIL 1982 7 in a short review. Barnett shows balance in his judgments and caution in looking to A hotel the future. But as he ponders the difficult problems with which the leaders in Bei¬ BOOK jing are struggling, what comes through is with little his belief that their new pragmatic ap¬ REVIEWS proach is a reasonable one, and that the to offer. more involved China becomes with the in¬ ternational community, the better off A little hotel that’s practically on China and the world will be. top of some of the biggest names in Washington ... like the Kennedy Barnett Speaks —LEO A. ORLEANS Center, the State Department, and the World Health Organization. We CHINA’S ECONOMY IN GLOBAL PERSPEC¬ have seventy-seven terrific rooms TIVE, by A. Doak Barnett. The Brookings Realpolitik in Iran and suites that cost less than our Institution, 1981. $30. big neighbors. Every room has a INSIDE THE IRANIAN REVOLUTION, by John fully-equipped kitchen, a color tele¬ Every field has a few scholars whose repu¬ D. Stempel. Indiana University Press, 1981. vision, free HBO, a big desk, a queen-sized bed, and a morning tations make us take special note of their newspaper delivered to your door. work. The E.F. Hutton in the field of John Stempel has produced an exhaustive All the little things that make a hotel contemporary Chinese studies is Doak yet lucid account of the Iranian revolution, a home. Plus a delightful cafe, a Barnett: When he speaks, we listen, and an account that is more annalistic than roof garden and a concierge. when he writes, we read. This, his 17th analytic since it does not really delve into Live a little. book, reconfirms his position. the revolution’s causes. Now director of Although Barnett’s primary focus over the State Department Operations Center, the years has been on China's politics and Stempel arrived in Teheran in July 1975 as foreign relations, this book reflects his the embassy’s political officer and left ex¬ much more wide-ranging interests and ex¬ actly four years later as acting chief of the pertise. It is essentially a book about political section. His angle of approach is Riverside Towers Hotel China’s economy, but one that could not naturally that of an American diplomat 2201 Virginia Avenue, NW. have been written by an economist. It is seeking to assess our role in the Iranian Washington, DC. 20037 also about China’s seemingly contradictory debacle, trying to understand which poli¬ 800-424-2870 or (202) 452-4600 concerns about national survival on one cies were self-defeating, and asking what hand and global influence on the other, might have been done to prevent the loss but it could not have been written by a of a vital, strategic ally. He realizes that ATTENTION: specialist in foreign affairs. The book con¬ answers to such questions require some State Department and sists of five interrelated parts, and each background information on Iranian eco¬ Foreign Service Personnel could have been published as an indepen¬ nomic, social, and religious life, but he dent monograph: China's modernization lacks the profound understanding of Iran program; trade and technology imports; as a culture that would enable him to place China and the world food system; China the revolution in the context of the coun¬ Riverside and the world energy system; and the eco¬ try's history. Stempel knows, for example, nomic dimension of U.S.-Chinese rela¬ what the competing political parties are Liquors tions. and how each behaved in the limited peri¬ Although the primary focus is on the od he covers. He does not provide a thor¬ Our 55th Year post-Mao period, when modernization re¬ ough analysis of their socio-economic com¬ 2123 E Street, N.W. At Va. Ave. placed idealism as China’s priority, Bar¬ position and he fails to explain why some (conveniently located across nett meticulously establishes the environ¬ Iranians gravitated to one or the other. from the State Department on E ment of the preceding 25 years in each of Nevertheless, he has produced an excellent Street, next to Peoples Drug the five parts, making the present more htstoire d’evenement. His intelligence and in¬ Store) 5% off on regular low prices on understandable to the reader lacking that tegrity are apparent on every page, and he liquor and wines upon background. The non-specialist may be never mars his account with the grinding presentation of gov’t ID intimidated by the mass of statistics, but of ideological axes, for he has none to No discount on sale items as the author himself suggests, they are grind. Wide variety of Domestic and Imported easily skipped over or skimmed. What re¬ Stempel is concerned with realpolitik. BEERS * WINES ★ CHAMPAGNE Complete Selection of Whiskeys and mains is what makes the book valuable. Politely contemptuous of the advocates of liquor Characteristically for Barnett, the 573 one-track solutions to complex problems, 338-4882 pages of text are followed by 147 pages of he is as unimpressed by the neophyte notes, references, suggested readings, and members of Carter's National Security personal insights—the kind of research Council, who advised the president in Liquor and documentation that all too often dis¬ 1977 "to rough the Shah up a bit” on civil appears when a scholar becomes an author¬ and political rights issues, as he is by Bre- Discounts ity. zinski, who continued to advocate unleas¬ The book covers so much ground so ing the Iranian armed forces well after they Customer Parking at Gulf Station 22nd & Va. Ave. well, it would be picayune to select some had disintegrated. points that could be disputed—especially The Shah who emerges from Stempel’s
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APRIL 1982 book is a half-hearted autocrat whose ener¬ did the previous policies of Nixon and Kis¬ proaching a problem from all possible an¬ gy and judgment has been sapped by the singer limit the Shah’s and the administra¬ gles and their pre-eminence around the cancer that may have been diagnosed as tion’s room for maneuver? Why, since the world in policymaking positions, it was early as 1974. Accordingly, he is an incon¬ embassy had already been attacked in Feb¬ felt that lawyers can and should contribute stant authoritarian. He is too inflexible to ruary 1979, and since there was good rea¬ effectively to the resolution of the popula¬ make those concessions to the National son to suppose it would be attacked again tion problem. Resurgence party that might have saved if we allowed the Shah to enter the United In this connection, the UNESCO group him, yet not ruthless enough to do to his States, was no evacuation plan prepared? accepted a broad definition of population countrymen what Jaruzelski so efficiently Did no one in the State Department or on law as that “body of the law which relates did to his. He rejected the advice of three the National Security Council ask, “What directly or indirectly to . . . population intelligence services to assassinate Kho¬ do we do if and when . . . ?” Did not even growth [and] distribution and those as¬ meini (the CIA was not one of them), and the CIA proffer a scheme? And if it did, pects of well-being affecting, as well as consistently balked at arresting dissident why was it never effected? affected by, population size and distribu¬ leaders or declaring martial law. This re¬ —ALVIN H. BERNSTEIN tion.” The term “well-being” refers, of luctance eventually deprived him of the course, to such indexes on the quality of option of using military force. After the Law and Population life as health, education, job opportuni¬ shooting deaths of some 400 demonstra¬ ties, food and nutrition, housing, the sta¬ tors in Jaleh Square on September 8, 1978, POPULATION LAW AND POLICY: Sources, tus of women, children, and the elderly — the Shah ordered his forces, against the Materials and Issues, by Stephen L. Isaacs. in sum, the social and economic welfare of advice of Carter and Brezinski, henceforth Human Sciences Press, 1981. every individual. to shoot into air above the dissidents. As for the question of a textbook, the When, on November 4, a dozen students In 1974, UNESCO sponsored a meeting of UNESCO group had serious doubts as to were shot and killed toppling a fifteen foot some thirty deans and professors from law whether all the legal issues posed by the statue of the Shah, it became known that schools around the world to explore many-faceted population problem could then Prime Minister Sharif-Emami in¬ whether the time had come to involve fu¬ be compressed into a single volume and tended to punish the soldiers responsible. ture lawyers and law-makers in such press¬ serve the needs of all countries. After all, Afterwards, ranking military officers di¬ ing socio-economic issues as population each country has its own social, economic, rected their forces not to intervene in any and, if so, whether a textbook could be political, and legal systems. Would it not further demonstrations. prepared for their use. The answer to the be more appropriate, asked the group, to For all Stempel's impressively thorough first question was a definitive “yes." Be¬ put together some reading materials on efforts, questions remain. To what extent cause of their training and practice in ap¬ population law which would highlight the relations between population and a few major socio-economic issues, leaving the Coming home - Going overseas? textbook to be developed by each country Buy from the Choose from the complete according to its own conditions and needs? Washington area’s largest line of 4-wheel drive Jeeps, — UNESCO in fact published such materials in plus the AMC Eagle, Concord, 1977 (Readings in Population for Law Stu¬ Spirit and Renault for dents, in English, French and Spanish edi¬ AMC Washington, D.C. area or tions). Now Stephen L. Isaacs has ably overseas delivery. Diplomatic accepted the challenge in preparing a text¬ Jeep • Renault corps discounts. Daily rentals book on U.S. law and population. Dealer available. Phone or write Dick This book is intended for “family plan¬ Schmactenberg, 301-656-0800 ning program administrators, public 4932 Bethesda Avenue, Bethesda, health specialists, physicians, legislators, n Courtesy Maryland 20814 attorneys, students, international develop¬ 755 Rockville Pike, Rockville, ment experts, and clinic counselors, as AMC • Jeep • Renault Maryland 20852 well as members of the public interested in population concerns.” As such, it places heavy emphasis on birth control laws relat¬ DOORNAKAAT GIN • BLACK BULL 100 SCOTCH • LAPHROAIG ing to abortion, sterilization, contracep¬ tion, and the access of minors to these services. These are preceded by a chapter on police power and the right of privacy, which lays the legal foundations for such laws. The remaining substantive chapters also accent birth control: incentives and disincentives; socio-economic laws and policies; population policy from an inter¬ national perspective; and national popula¬ tion laws and policies. Unfortunately, the book has left out some important areas of population law not directly connected with birth control, particularly those re¬ TSINGTAO VODKA • ARMAGNAC MARQUIS DE ROQUELAURE • CACHACA lating to population distribution and mi-
10 FOREIGN SERVICE JOURNAL gration, both internal and external, and banks collapsing as unstable borrowers Incentives fail, in Sampson's view, for legal and illegal. such as Zaire, Poland, or Iran default on two reasons. First, to prevent all their Such minor criticism aside, Isaacs is to their enormous loans. As during the creditors from cashing in their chips at be congratulated for putting together this 1930s, the domino-like collapse of banks once, bankers must maintain the illusion first textbook on U.S. population law and will coincide with the collapse of the world of optimism about the bank’s health, even policy. Hopefully, it can also serve to in¬ economy. Responsibility for this world¬ when that optimism is unwarranted. spire the preparation of similar textbooks wide disaster will, in Sampson’s view, rest Sampson seems to feel that this congenital in other countries. with those greedy international bankers optimism somehow dazes the bankers —LUKE T. LEE who, in their restless pursuit of profit, themselves into making irrational loans. foolishly risk their assets in huge loans to A second, perhaps more plausible, fail¬ Journalistic Crisis the developing world. ure of incentives arises when government This scenario is not entirely implausi¬ and the IMF step in to prevent bank failure THE MONEY LENDERS, by Anthony Sampson. ble. It is true that bank failures contribut¬ or loan defaults. Sampson is concerned Viking, 1981. $16.95. ed to the progressive contraction of the that bailouts remove the risk from the money supply during the 1930s. And shoulders of the bankers. Thus insulated Anthony Sampson's latest, The Money Western banks probably are overextended from real losses, they can afford to be irra¬ Lenders, falls squarely within a great jour¬ in loans to the rest of the world, and have tionally optimistic. nalistic tradition. The central premise of been cutting back. Still, Sampson's However, Sampson’s case that the banks this tradition is that the world just may be breathless journalistic insistence on view¬ have been effectively safeguarded from risk on the verge of a Crisis of Unparalleled ing the world financial system as a “people is an extremely weak one. Bailouts do oc¬ Proportions. The journalist must, of business,” in which a few powerful incom¬ cur, but by making lines of credit available course, tell us what kind of crisis this is to petents can collapse the whole house of to cover temporary crises. The risk remains be, and he must tell us with such a barrage cards, is misleading. with the bank, subject to the limitations of of facts, rumors, anecdotes, and gossip Bankers, of course, prefer not to lose the corporate structure and the bank¬ that we are led to believe he knows some¬ money. The ambitious banker has every ruptcy law. Banks really do lose money thing. By these standards, Sampson’s book incentive to assess the risks involved in sometimes. is a superior piece of work. lending as accurately as possible. It is Yet, the issue here is not the financial The crisis this time is to be a failure of Sampson’s view that bankers are some¬ health of a group of bankers. Rather, it is the international financial system. Samp¬ times led by faulty incentives to misread the threat bad debt may pose to the bank¬ son envisions a replay of the Great Depres¬ those risks, and even with the correct in¬ ing system and indirectly to the world sion of the 1930s, with overextended centives they still sometimes err. economy. The analogy is with the 1930s: Calvert School (R V R n R HR V R □ ;R'“:RHR4/R HR The school that comes to your child Complete home-study course for elementary-level students. Kindergarten through 8th grade An American education anywhere in the world Ideal for COLUMBIA PLAZA PHARMACY enrichment. Home is the classroom, you are the teacher with Calvert's approved 5I6 23rd St.. NW, Washington. D.C. 20037 instruction guide. Start any time, transfer to other schools Used by over 300,000 students Non-profit Write for catalog Admits students of any race, color, na¬ tional or ethnic origin. Sensational SPECIAL-BY-MAIL SALE Established 1897 301-243-6030 Order any time and SAVE 20% on all merchandise Calvert School Send No Money: Pay only after receipt of order The only drug store your family will ever need F4-2 Tuscany Rd Baltimore, Md. 21210 DEPEND ON US! Fast Service! Parent's name t Telephone: 331-5800 Address City State Zip Child's Age Grade ’(R? R HRHRI/RD R R)( R ff R H R
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APRIL 1982 11 Economists still argue about the basic ada and India germinated in the efforts of causes of the economic collapse . . . but the two countries to bring peace to Korea aassMtrci the power and prestige of the American and to reduce the dangers of a clash be¬ bankers were never to be the same tween the United States and the People’s again; for the Great Crash had revealed Republic of China. Reid provides a fasci¬ not only their greed but their incompe¬ nating account of these efforts along with OU. MERCEDES ““ tence. . . . ‘No one who went through insights into the diplomacy of Canada, those times,' one veteran banker re¬ India, the United States, and Britain. He 2 Ik MERCEDES minded me, ‘can feel altogether confi¬ also gives glimpses into the characters of FREE! NEW CAR CATALOG dent when people today say the world's the leading Indian political personalities BUY DIRECT of the time — Nehru, Krishna Menon, The comprehensive NAI Master Catalog contains 32 banking system is fundamentally pages, over 150 illustrations. DIPLOMATIC and FACTORY sound.’ Vijayalakshmi Pandit, Sardar Pannikar, tax-tree prices, equipment, options, colors, and all the de¬ tails on how to order your car at these special savings Radhakrishnan, and Chakravarti Rajago- The Nemet Organization has been meeting the needs of Americans throughout the world since 1916 You will have Sampson gives short shrift to the most palachari among others. In an epilogue your car. waiting where you want it. STATESIDE OR IN EUROPE—when you want it. all serviced and ready to go at plausible current explanation for the written in 1979, the author assesses devel¬ special factory prices Buy your new car from Nemet because we ll be 1930s: the rapid contraction of the money opments in India since 1957 in the light of here when you get home. supply by the Federal Reserve Board at the his impressions 22 years earlier. first sign of an otherwise comparatively Reid’s memoir does not present a flat¬ mild business downturn. Because he ne¬ tering view of U.S. foreign policy during i Please send me a FREE copy of your FSJ-1281 i 32 page Master Catalog. glects the underlying causes of the Depres¬ John Foster Dulles’s management of our , I am Interested in: Stateside Delivery European Delivery sion, preferring instead to focus on the diplomatic establishment. What emerges I AUDI MG RENAULT “incompetence” of bankers, he does not from Reid’s memoir is an obtuse secretary I BMW MERCEDES TRIUMPH I DATSUN PEUGEOT VOLKSWAGEN feel compelled to discuss the level of re¬ of state more interested in military securi¬ I FIAT PORSCHE VOLVO I JAGUAR serves in the current world economy. The ty than in an adroit diplomacy based upon | Name _ Rank _ repetition of such an episode today seems the intelligence and advice of the diplo¬ j Social Security No . Date of Birth _ unlikely since the IMF or any country matic and consular officers stationed in the I Address J Date of Rotation whose currency is widely held as reserves area. By contrast, Reid had a very close • Delivery Place . can — and undoubtedly will — offset any relationship with his minister of foreign ! Nemet Auto International contraction of the money supply which affairs, Lester Pearson, who had the sense J World's Largest Distributor of Tax-Free Cars arises in the banking sector with the cre¬ to pick a good man for New Delhi and I " 'N 153-03 Hillside Avenue. Jamaica. New York 11432 *6 NEMET 0 Telephone (212) 523-5858/Cable NEMETAUTO ation of additional reserves. Indeed, many keep in dose touch with him, exchanging Toll Free 800-221-0177 argue that our major problem is excessive letters, paying attention to his advice, and monetary growth, not the opposite. providing his own views. This is how di¬ Despite its shortcomings as economics, plomacy must be conducted. The Money Lenders succeeds beautifully at Reid’s memoir is favorable to the enig¬ social description. Sampson has an eye for matic Nehru, who indeed had his good BUY the working of power, and for the failings points, or rather one might say more accu¬ and temptations of the people who exercise rately, his good moods. But even Reid it. One is struck by the role which the cannot explain why Nehru was so blind international capital markets have played that he could not see the wrong done by SELL in creating the West’s new, much dis¬ the Soviet Union to Hungary by the 1956 cussed interdependence with the develop¬ invasion. True enough, this occurred dur¬ ing world. Most striking, however, is that ing the same period as the Anglo-French INVEST despite the failings of individual bankers invasion of the Suez. That, Nehru prompt¬ and the system as a whole, the system sur¬ ly perceived to be wrong. Why did he have vives its crises with a comforting to be urged and manipulated to denounce Ed Joyce robustness. the Soviet Union’s aggression against Retired FSIO —PETER L. KAHN Hungary? Why the slippery evasion? This permitted the Soviet Union to drive a LICENSED IN D.C. A Diplomat in India wedge between India and the West, in¬ and VIRGINIA cluding Canada, and also between India ENVOY TO NEHRU, by Escott Reid, Oxford and Pakistan, thus allowing the Kremlin University Press, 1981. $24- to pursue its familiar tactic of divide and rule in the subcontinent. gMouriT Escott Reid was Canadian Fligh Commis¬ Reid suggests that Nehru felt the urg- sioner in India from 1951 to 1957. This ings of the West to condemn the Soviet CVERI\o?i book, based upon his despatches, tele¬ Union were attempts “to divert his atten¬ grams, and letters during this interval, re¬ tion from what he considered to be the CREALTY A lates the story of the special relationship dangerous, arrogant, imperialistic aggres¬ V-INC ^ which existed between the two countries sion of Britain and France against Egypt.” 6257 Old Dominion Dr. and its disintegration, mainly because of He then adds: “If the United States had McLean, Va. 22101 V. K. Krishna Menon, one of Nehru’s had an ambassador in New Delhi of the Off: 821-8300 principal advisers. stature of ambassadors it had had, or was Res: 821-2109 The special relationship between Can¬ about to have — Chester Bowles, Sherman
12 FOREIGN SERVICE JOURNAL Cooper, Ellsworth Bunker, or Kenneth to found a new business journal designed Galbraith — he would have been the advo¬ to promote his remarkable belief that Your community cate of the Western World in talking to "business managers can become trustees of Nehru about Hungary and he would have the public interest through the widespread could use had the weight of a great power behind ownership of U.S. business. " However, he some foreign aid. him.” But the United States had had no soon abandoned the idea, if not the ideal, In the form of a student from another ambassador in New Delhi for seven of a journal that would lead business to its country. For more information about months and Canada was not a great power. soul and embarked on the career in politics hosting a foreign high school student for The account of what Reid did to move that would, he felt, allow him to realize one year, write AFS International/ Nehru is one of the fascinating revelations his potential and contribute something to Intercultural Programs, 313 E. 43rd St., of his memoir and provides a good case the world. And so it did. N.Y, N.Y 10017. Or call toll free (800) study of diplomatic maneuver. He went into the Republican party be¬ 526-7443. In New Jersey (800) 522-4503. —SMITH SIMPSON cause he objected to the Tammany corrup¬ AFS International Exchanges tion in the New York Democratic party, for high school students. We provide the students. You provide the love. Diplomatic Logic and ran for Congress at the first opportu-
THE LOGIC OF DIPLOMACY, by Alan S. Alex¬ androff. Sage Library of Social Research, vol. 120, Sage Publications. Foreign Service People The conclusions of this compact volume, if not its social science jargon, give diplo¬ macy an impressive boost. Alexandroff has Choose the Mover that deliberately tried to use quantitative inter¬ national relations to link analysis to deci¬ Makes the Difficult Part sion-making behavior. Drawing on a quantitative review of diplomatic interac¬ tions between key states in the 1870-1890 of Their Transfer Easy European system, he produces some inter¬ esting findings regarding the relationship That’s because we never miss ... to your teen-ager's equally between cooperation and conflict: Great a pick up. Plus, of course, our irreplaceable record collection. care of your belongings and So, whatever you’re shipping, powers find mixed conflict/cooperative re¬ our attention to detail. you can be sure that every lationships are best for avoiding conflict, Thousands of successful moves item is correctly and carefully and a hard line in bargaining, as recom¬ for the foreign service people packed. mended by some strategists, depends upon have made us their first choice. WE INVITE YOU to ask your the appropriate circumstances. And, wherever you live in the co-workers about us—we Alexandroff concludes that the dy¬ Greater Washington Area, you stand behind our reputation of namics of the diplomatic process influence are convenient to us. care and service. situations and events more than does the WE FORWARD YOUR POSSESSIONS structure of international relations — in carefully packed State power, status, and alliance. For those fa¬ Department custom State Department Approved We are experts at Contractor miliar with the twists and turns in U.S. containers. proper packing of all your foreign policy over the past decade, he pro¬ precious belongings... from FOR MORE INFORMATION OR vides some insightful evidence that things delicate objets d’art... to AN EXPERT ESTIMATE CALL are never quite what they seem, and that irreplaceable antique furniture 301/420-3300 TODAY scholars (and diplomats, too) should look more seriously at diplomacy and the ways in which states interact. —-JOHN D. STEMPEL ^SpSaRi A Public Paradox
JAVITS: The Autobiography of a Public Man, by Jacob K. Javits with Rafael Steinberg. Houghton Mifflin, 1981. $16.95.
What a paradox was the career of Jacob At the Capital Beltway Javits. He was a socialist turned Republi¬ 3850 Penn Belt Place can, a lawyer who defended the little in¬ Forestville, Mary land 2f vestor against those darlings of Repub¬ licans, the giant corporations, and a Republican who supported Franklin Roosevelt. He was an idealist who consid¬ ered working for General Electric in order
APRIL 1982 13 nity. A public man he always was. Of 47 in a style unique to himself) all over the statistical analysis combined with the photographs in the book, all but seven world. The Republican party today misses chronological manner in which the show Javits in the company of the famous his leadership in the Senate. None can speeches were selected (two major and the powerful. The rest, almost as an deny his personal courage or integrity. policy addresses, on the average, out of afterthought, show family and anonymous Anyone familiar with the agonizing bal¬ every year between 1968 and 1980) friends. ancing of goals and values that is intrinsic seemingly regulates the reader to a The book is filled with the nitty gritty to international decision making must re¬ barrage of data describing a hopelessly details of campaigns, legislative battles, spect the Javits contribution to four dec¬ static situation. McNamara depicts the and issues, some now fifty years old. And ades of foreign policy. causes of poverty throughout the the book is a little uneven in tone. Had his —MARIANNE KARYDES developing world in a manner calcu¬ life not been an uphill struggle, it almost lated to impress his respective audi¬ seems as if Javits would have needed to McNamara’s Bank ences (usually the World Bank's Board create one. With due respect for his enor¬ of Governors) with the seriousness of mous energy and his accomplishments, he THE MCNAMARA YEARS AT THE WORLD the situation. The population explo¬ has a certain ambivalence about the obsta¬ BANK: Major Policy Addresses of sion, as the "greatest single obstacle to cles he faced. Wise enough to refuse to Robert S. McNamara, 1968—1981. growth,” became the prime target of attribute snubs or animosity to anti-Sem¬ Johns Hopkins University Press, 1981. McNamara’s development strategy. itism, he is then capable of taking time to $30. McNamara’s intimidating statistics ponder whether his failure as a golfer concerning overpopulation, illiteracy, might have impaired his success. Other Economic growth and the eradication malnutrition, etc., as well as his pleas hostilities he attributes to his penchant for of absolute poverty in the Third World for action—"our most irrecoverable working while others played, or to his were Robert McNamara’s, and conse¬ resource is time . . .”—are present in sponsorship of such unpopular causes as quently the World Bank's, principal nearly every chapter. His criticism of desegregation. He does make an effort to concerns throughout his tenure as Western governments (particularly the downplay his own importance, but the ef¬ president of the bank. The relative United States) for failing to contribute fect is still of a thousand trumpets and usefulness of this commemorative vol¬ an appreciable percentage of their drums. But then, no small ego ever ran for ume depends upon the reader’s ability GNP to the World Bank and for adopt¬ the Senate, and brilliant people are full of to trace the economic thought and ing protectionist trade policies grows contradictions. lending philosophy of McNamara as he with each succeeding chapter. It was a brilliant career. It is a book considers the problems obstructing the However, McNamara’s approach to worth reading for the history of one man’s achievement of these goals. economic growth in the Third World efforts to achieve social justice (sometimes Robert McNamara’s affinity for shifts in emphasis from a government- oriented development program to one that concentrates on the needs of the absolute poor. Programs involving Beacon Country high technology and capital intensive aid in industry are replaced by cottage industry proposals with a more labor intensive approach; import substitut¬ FLORIDA LIVING ing industries, "which perpetuate loss," are tolerated less and less as McNamara AT ITS FINEST... urges Third World countries to in¬ crease their export earnings. A project- by-project investment plan gives way Beacon Country to an overall development philosophy ON FLORIDA’S SUNCOAST intended to provide the basic health and educational requirements required Recreation. Natural Beauty. Convenience. All the things you want' for more than 800 million poor to or need are part of home when you live in a Beacon Community. become increasingly productive citizens Condominiums, Single-Family Homes and Villas are carefully in their respective countries. designed, quality built and affordably priced for the demanding —MICHAEL ST. CLAIR BAILEY homeowner. And Beacon Homes offers a variety of Models and financial packages to suit practically every income. Send for your brochure and see why over 8500 families in the past decade have made Beacon Country their home. Postwar Arrangements
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14 FOREIGN SERVICE JOURNAL when the United States and Great Britain began shifting the emphasis of their plan¬ ning away from winning the war to work¬ ing out arrangements for the postwar This Publication world. The author ends his account in is available in 1947, with Britain’s realization that al¬ though on the victorious side in the war, Microform. economic weakness left it with no alterna¬ tive but to accept a secondary position be¬
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APRIL 1982 15 Tap a world market.
America’s diplomats—a global need. And when posted back to Washington audience of untapped potential they look for the people whose services will make their next overseas tour easier. No From Oslo to Ouagadougou, the Foreign other magazine gives you this entire market Service Journal reaches the diplomatic —well educated, affluent, select and community like no other medium. Our influential. When you advertise in the audience of Foreign Service members and Foreign Service Journal, you have the their families is spread around the world at world on tap. more than 250 posts in 134 countries. In most cases, they find themselves isolated from the American goods and services they JjgreyiaSgEviggsIgimial
The Magazine for Professionals in Foreign Affairs • 2101 E St. NW, Washington, DC 20037 • (202) 338-4045 Let’s Start Again
Although much has been done by the for¬ through temporary employment overseas. eign affairs agencies in recent years to face The fact remains that these measures af¬ up to the needs and aspirations of Foreign fect only a small number of families and that Service spouses, their role in the Service and an ever-increasing number of employees are the dilemma posed by their need for profes¬ going abroad without their families. As we sional fulfillment, as well as the needs of have noted in earlier editorials, the Associ¬ Foreign Service families for two incomes, ation considers this to be an exceedingly continue to raise serious problems. grave and disruptive phenomenon. In more than half the families in Amer¬ Concurrently, the perennial question of ica, both parents are working, and we be¬ the role of the Foreign Service wife remains lieve this is also true of Foreign Service fam¬ unclear. What should families expect dur¬ ilies in the Washington area. Furthermore, ing careers which include many years over¬ the aspirations of American women are in a seas and what should the foreign affairs state of dynamic change. The State Depart¬ agencies reasonably expect of its depend¬ ment and the other agencies have reacted in ents? Recognizing that the well-intentioned a positive fashion to these phenomena, but 1972 directive on wives was outdated, Di¬ the problems accrue. The opening of the rector General Flarry Barnes issued a notice Family Liaison Office in the department, in May 1978 drawing attention to the im¬ with representatives in embassies through¬ portant Report on the Concerns of Foreign out the world, was a first and much-needed Service Spouses and Families, drafted by the step. The effort to help qualified dependents Association of American Foreign Service find overseas employment, the negotiating Women, and promising that the 1972 di¬ of agreements with Canada, Sweden, Nor¬ rective should be reviewed. For reasons that way, New Zealand, the United Kingdom, are not entirely clear this effort was abortive. France, and hopefully with other countries, AFSA believes that it should be reinstituted and the Skills Bank are all important steps. and that the interests of all employees and Now an Executive Order is being requested their families would be well served by a which would permit a spouse to acquire searching re-examination of these vital is¬ non-competitive Civil Service eligibility sues which affect us all. d
APRIL 1982 17 The Fashoda
By ROBERT K. OLSON On a sweltering September day in 1898 one of history’s fam¬ ous encounters took place on the banks of the White Nile. Jean- Baptiste Marchand, captain of the French marines, had raised the French flag over an abandoned Egyptian fort at a “dreary and uninviting” spot called Fashoda. Five hundred miles to the north, British General Sir Herbert Kitchener had just given the Mahdists a good thrashing at Omdurman, avenging the death at Khartoum thir¬ teen years before of imperial archhero General Charles Gordon. He had or¬ ders to forestall any French attempt to annex the upper Nile; when reports of the French party reached him, Kitch¬ ener immediately resumed his march upstream. The subsequent encounter at Fa¬ shoda, however, was more than a gen¬ teel Stanley and Livingston-type meeting. Behind the two officers’ ex¬ changing civilized pleasantries on the banks of the Bahr-al-Ghazal stood the power and ambitions of two rival em¬ pires. In Paris, certain men dreamed of a French corridor across Africa from the Niger to Djibouti. The British, in their disjointed but nonetheless pur¬ posive way, were patching together, piece by piece, the dream of an imperi¬ al corridor from the Cape of Good Hope to Cairo. The two purposes were fhen the French and British empires bound to cross somewhere—with w« more or less predictable results. crisscrossed Africa in the nineteenth When news of Fashoda reached Eu¬ rope, the jingoist press in both capitals century, they collided at a dreary had a field day. To discover the French prowling about the upper Nile con¬ outpost known as Fashoda. Today, the firmed the worst suspicions of Paris United States and its European allies watchers of the time. For Britain to are prone to similar rivalries over Robert K. Olson is a retired Foreign Service officer and the author of U.S. Foreign the Third World. Will NATO fall prey Policy and the New International Eco¬ to the Fashoda syndrome? nomic Order.
18 FOREIGN SERVICE JOURNAL Syndrome
challenge by naked force a perfectly ginning to realize that something hor¬ taing only made things worse when he legitimate claim of prior occupation ribly similar has been going on for proposed convening a conference of confirmed the French in their preju¬ thirty years between the United States European consumers and OPEC produc¬ dice against ‘TAlbion Perfide.” Busi¬ and the Soviet Union, even if under ers without including the United ness between the two countries came to different names. But, by concentrating States. a standstill. The French fleet sailed our focus on NATO and the European The 1979 Soviet invasion of Af¬ blacked out through the Straits of Gi¬ Community, we are failing to recog¬ ghanistan again set U.S.-European braltar for Cherbourg. In England nize that rivalries in the Third World differences into high relief. Jimmy there was a flurry of warlike prepara¬ can divide Western countries as readily Carter called on the allies to boycott tions, and the British fleet sailed for today as they did in the nineteenth the Moscow Olympics, break diplo¬ Alexandria. century — and with equally disastrous matic relations, and embargo trade But cooler heads and political reali¬ results. with Iran. When Europe backpedaled ties prevailed. Marooned between Poisoned Relations and hedged, Carter made his famous British power to the north and south, “ultimatum” of April 1980, telling the French position could not be sus¬ This power to disrupt and divide has the allies that if they did not fall into tained. After five months, as the Brit¬ been demonstrated many times during line, the United States would unilater¬ ish garrison band played the Marseil¬ the postwar years. Indeed, relations ally take whatever measures seemed laise, Marchand and party abandoned between the United States and West¬ necessary. The use of force was not Fashoda and set out for Djibouti. But ern Europe have been at their worst ruled out. Hard words were exchanged even more portentous consequences over conflicts of interest in the Third on both sides. were in store. Fashoda was the last World. Wartime cooperation gave These are only the more dramatic dangerous clash between the French way to conflict and bitterness over disputes. Of possibly greater impor¬ and British empires. Instead of war, postwar decolonization. Relations tance have been the quieter, less public the conflict began that series of diplo¬ with France were poisoned over condi¬ conflicts. The United States has re¬ matic adjustments that led in 1904 to tions attached to U.S. aid against the sented Western Europe’s efforts to re¬ the Anglo-French Entente Cordiale Vietminh. The United States was an¬ place colonial systems with closed eco¬ and, eventually, to the line-up of forces gered when, prior to the French defeat nomic arrangements between the new that went to war in 1914. at Dien Bien Phu in 1954, Jawaharlal countries and the former imperial The Fashoda incident, better than Nehru of India dissuaded British For¬ powers. It has viewed with increasing any contemporary event, illustrates a eign Secretary Anthony Eden from temper Europe’s tendency during the vital syndrome of international life agreeing to participate in a “united ac¬ 1970s to line up with Third World still operating at the heart of relations tion” to ensure the security of South¬ majorities in the United Nations, between the Western powers but to east Asia. The Suez crisis probably did thereby isolating the United States, which we now seem to be blind or more to damage French relations with but at the same time relying on the indifferent. For centuries, conflicts be¬ the Anglo-Saxon powers than any oth¬ United States to hold the line and pre¬ tween rival imperialisms were a fact of er episode since Fashoda. It started vent anything too dire from hap¬ life. They produced a history of far- France on the path to independence pening. flung naval and colonial wars. For leading to the Treaty of Rome in Western Europe in turn has resent¬ Americans, clashes between imperial¬ 1957, the development of the French ed American pressure for rapid de¬ ist powers provided over a century of nuclear force, and to French withdraw¬ colonization. It has been wary of a backwoods wars with the French and al from the military structure of NATO. global economy dominated by the Indians, became the raison d’etre of the The United States and France United States and producing powerful Monroe Doctrine, created the context clashed again over the 1973 OPEC oil and virtually independent multina¬ within which independence was embargo. Henry Kissinger tried to tional corporations. Europe’s sense of gained, and led to one war with Spain weld a united front with the Western vulnerability toward increasing Third and another with Japan. But we seem Europeans, but when the embargo World influence has been heightened to think that the world has graduated threw them into a squalid sauve quipeut by what many consider to be U.S. from all that since the mid-century panic and his efforts failed, he called overreaction to threats in Central dissolution of the great maritime em¬ them “craven” and “contemptible.” America and the Mideast, and by the pires of Europe. We are, however, be¬ French President Valery Giscard d’Es- apparent U.S. unwillingness to take
APRIL 1982 19 the North-South dialogue seriously. pushed Western Europe toward work¬ Europeans have been exceedingly dis¬ ing out its own salvation independent tressed by what they regard as exces¬ tween of the United States economically and sive U.S. consumption of scarce re¬ politically, if not strategically. This sources, driving up prices all over the Western Europe and could, in time, amount to the same world and threatening the pace of thing. One thing we cannot do is Third World development. Current the United States blame the U.S.S.R., even though the U.S. leaders, on the other hand, are Soviets have done everything possible convinced that salvation will come has grown a profound to help the process along. more quickly from free enterprise and The Soviets, with their curious market forces than from the security- and corrosive nineteenth-century interpretation of oriented European and Third World disenchantment. The history, have seen more clearly than we proposals for economic management. that the Third World is the Achilles One of the most portentous difficul¬ American itch toward heel of the West. Building on Marx, ties between the United States and its Lenin transferred the locus of revolu¬ Western European allies is not so unilateralism and tion to the colonies and made them the much a conflict of interest as confusion shoals on which the capitalist-imperi¬ over the United States’ world role. the European mood alist world would founder. Khru¬ American leaders continue to view the shchev’s concept of the “Zone of Revo¬ U.S. role in a primarily military of neutralism are lution” from North Africa to Southeast sense—and not without reason. Not Asia and Brezhnev’s repeated declara¬ only is the United States the only symptomatic. tions of Soviet support for wars of “na¬ credible deterrent to the Soviet Union Appeals to the tional liberation” preserve this theory in Europe, but it is the only common in modern strategic terms. The Soviet link between NATO and the handful of alliance no longer navy provides another powerful di¬ non-European defense pacts. Conse¬ mension of support for the Soviets’ role quently, its characteristic response to inspire. as spoiler in the Third World. troubles and conflicts in the Third Many minimize Soviet performance World has been the extension of U.S. in the Third World as having brought power. From President Truman to U.S. indifference to Third World serious reverses in China and Egypt Ronald Reagan, the United States has, demands. and few lasting or profitable gains else¬ in President Kennedy’s words, viewed As a result of these and other pres¬ where. But Soviet achievements the Third World as “the battleground sures and misunderstandings, there should not be measured in such terms. of the Cold War.” has grown between Western Europe Rather, they should be measured by and the United States a profound and the cost of good will and unity to the Third World Threat corrosive disenchantment. The Ameri¬ Western countries. In that perspec¬ However, the economic shocks of can itch toward unilateralism and the tive, Soviet policies deserve a greater the 1970s brought about a profound European mood of neutralism are respect. Thirty years of revolution have change in the international system; symptomatic. Appeals to the alliance drawn one Western power after an¬ during a period of detente when the and the “Atlantic Community” no other into unpopular police-type oper¬ rigors of the Cold War seemed to be longer inspire. The generation that ations. The account includes Korea, receding, the central theme of the produced the alliance is passing away, Cuba, and Vietnam, Marxist regimes Western community became "interde¬ and no successor generation has arisen in many countries, and influence on pendence.” The implications were to replace it. Europe yearns for auton¬ the powerful in India, Syria, Iraq, and manifold, for the community of inter¬ omy; it is preoccupied with recreating Libya. The Soviet invasion of Afghani¬ dependence extends far beyond Europe its historical identity, not only in Eu¬ stan is discounted as a Soviet Vietnam, and NATO. Whereas the United States rope, but in its relations with the rest but it has also brought rich dividends is the dominant member of NATO, in of the world. In European eyes, the by setting the United States and Eu¬ the economic community it is at most United States is no longer the guaran¬ rope at odds, baiting the United States a primus inter pares partner. If the mis¬ tor of the international economic or¬ with a threat to the Persian Gulf while sion of NATO is the delivery of external der—a view which still sustains U.S. enticing Europe with promises of de¬ power, the mission of the Western eco¬ policymakers—but a threat to Eu¬ tente. It would be ironic indeed if the nomic community is productivity and rope’s economic security. U.S. policies Soviets finally gained their objective of economic health. If the external threat toward the South are perceived as a splitting the alliance through the back to NATO is the Soviet Union, the exter¬ large part of this threat. We cannot door of Third World conflicts. nal threat to the economic community claim that conflicts of interest in the Third World countries are also ex¬ has been the Third World. Hence Eu¬ Third World have driven a wedge in perienced at the game of defending rope’s cringing posture in the North- the alliance—yet. But we can say that themselves by playing one power South dialogue and distress at apparent these pressures have, over the years, against the other, withdrawing into
20 FOREIGN SERVICE JOURNAL AFSA ELECTION SECTION PULLOUT
AFSA ELECTIONS COMMITTEE P. O. BOX 57121, WEST END BRANCH WASHINGTON, D.C. 20037
In accordance with AFSA Bylaws, and pursuant to the terms of the 1982 AFSA Election Call, the following AFSA members have been duly nominated and have accepted their candidacies for the positions indicated below in the 1982 election of Officers and Retired Con¬ stituency Representatives of the AFSA Governing Board. The candidates were all nominated as members of the “Unity Slate”; other nominations were received for several of the positions to be filled but were declined by the nominees. There were no nominations for the third Retired Constituency Representative position.
POSITION ORGANIZATION
PRESIDENT 1. Dennis Hays (Unity Slate) State
VICE PRESIDENT 1. Anthea S. de Rouville (Unity Slate) State
SECOND VICE PRESIDENT 1. William McKinney (Unity Slate) AID—ASIA/PTB
SECRETARY 1. Irving Williamson (Unity Slate) State—USTR
TREASURER 1. Brooke Holmes (Unity Slate) State—IO/CU
RETIRED REPRESENTATIVES 1. Spencer King (Unity Slate) 2. Charles Whitehouse (Unity Slate) 3
It is each AFSA member’s responsibility to see to it The campaign statements which follow are published that his or her proper address and constituency are on in accordance with Article VI(4) of the AFSA Bylaws. In record with AFSA. Ballots will be mailed on or about publishing them, AFSA and its Standing Committee on May 15, 1982, and marked Ballots must be returned by Elections are required by Chapter 10 of the Foreign 5 P.M., June 30, 1982. If you have not received your Service Act of 1980, as interpreted by the Department Ballot by June 7, 1982, notify the Chairman of the of Labor, to do so without making any modification of AFSA Elections Committee IMMEDIATELY in writ¬ their contents. AFSA therefore disclaims any responsi¬ ing at P.O. Box 57121, West End Branch, Washing¬ bility for the content of any campaign statements made ton, D.C. 20037, or by “AFSA Channel” cable marked by the candidates. Content is solely the responsibility of for delivery to AFSA Elections Committee. the candidates.
APRIL 1982 20A Campaign Statement of Unity Slate
The Unity Slate represents a coalition of The goal of the Unity Slate is to repre¬ the benefit of the entire Foreign Service. different groups within AFSA which sent all groupings in AFSA equally and With regard to the retired constituency have joined together to continue working fairly. We believe that AFSA must focus election, the Unity Slate notes that for an improved Foreign Service. The alike on the problems of the Staff Corps, write-in candidates will compete for one candidates who make up the Unity Slate of the Senior Foreign Service, of Mid- of the retired representative vacancies. It are individuals who have contributed Level Officers and of Junior Foreign Ser¬ is our intention to endorse one or more of many hours—as members of the AFSA vice Officers. We believe that all agency the write-in candidates who share our Governing Board, the several Standing constituencies must have input into ser¬ views and goals for the third retired con¬ Committes, and ad hoc AFSA commit¬ vice-wide decisions and that the needs of stituency seat. tees—towards improvement of Foreign individual cones cannot be neglected in The Unity Slate intends to publish de¬ Service life. favor of others. It has not been possible, tailed positions on major Foreign Service The Unity Slate sees itself as the suc¬ of course, to run candidates from all problems in the Elections Section of the cessor to the Slate elected in 1981. The groups within AFSA as part of the Unity May edition of the Foreign Service Journal members of the Unity Slate are pleased Slate. For this reason, the Unity Slate is and in campaign statements. Implemen¬ and grateful that Ambassador Charles committed to nominating representa¬ tation of the new Foreign Service Act is Whitehouse has consented to continue tives from groups not now on the AFSA not yet completed; a great deal of work his service to AFSA by joining the Unity Governing Board to positions on the lies ahead. We invite all groups and indi¬ Slate as candidate for Retired Constitu¬ Board as soon as they become available. vidual members of AFSA to join with us ency Representative. We are also pleased In so doing, it is not our intention to to work on behalf of the entire Foreign that Thea de Rouville has agreed to con¬ nominate individuals who will only try Service community. tinue her role as chief negotiator for to serve their constituency, but individ¬ AFSA and once again will be candidate uals who will try to integrate their group Brief biographical sketches of the Uni¬ for Vice President. interests into a broader perspective for ty Slate candidates follow below:
DENNIS HAYS international relations and agency man¬ Hampshire, B.A., 1954. Graduated agement. Mr. Hays obtained his under¬ from Katherine Gibbs Secretarial School, graduate degree from the University of 1955. Two years experience in private Florida. Mr. Hays was presented the industry as secretary to Director of Per¬ Meritorious Honor award in 1978 and sonnel in large industrial firm. Joined the Superior Honor award in 1981. He is Foreign Service in 1957, served overseas past president of the Junior Foreign Serv¬ 15 years. One of the founders of SEP¬ ice Officers’ Caucus and was a member of TEMBER 17, Member of the Board the State Standing Committee from 1976-1977, Chairman 1977-78, Co- 1979-1981. Chairman 1978—79- Became active in AFSA on returning to Washington in THEA DE ROUVILLE 1975. Member of AFSA State Stand¬ ing Committee 1976—1979, Chairman 1979—present. Elected Vice President of AFSA in 1979. Re-elected Vice Presi¬ dent of AFSA in 1981, Ms. de Rouville has served as chief AFSA negotiator dur¬ ing the past year.
Dennis Hays joined the Foreign Service WILLIAM MCKINNEY in 1976 after a year on the staff of Con¬ gressman Charles E. Bennett. His first Bill McKinney is presently AID Burma assignment was an extended tour in Desk Officer. His first assignment with Kingston where he served in the Consul¬ AID was as Assistant Pakistan Desk Offi¬ ar and Administrative sections. Mr. cer. Before joining AID, Mr. McKinney Hays returned to Washington in 1979 served in India, Bangladesh, and Ghana and worked in A/EX as a Management with the Peace Corps and UNICEF. Mr. Analyst and as an advance man for Presi¬ McKinney has a B. A. from Fisk Univer¬ dential and Vice-Presidential overseas sity in history and political science. He trips. He is presently at the John F. Ken¬ received an M. A. in South Asian Studies nedy School of Government at Harvard Thea de Rouville, FS-4, Secretary. from the University of California in studying for an MPA, concentrating on Graduated from the University of New Berkeley. He also attended Boston Uni-
20B FOREIGN SERVICE JOURNAL BROOKE C. HOLMES gium, Turkey, and Cambodia as well as the Department. In 1966 he graduated from rhe National War College and served as DCM in Guinea. In 1969 he was assigned to Viet Nam as Deputy for CORDS. He served as Acting Deputy Assistant Secretary for East Asian Affairs in 1971 and in 1972 returned to Viet Nam as Deputy Ambassador. In 1973 he became Ambassador to Laos and in 1975 Ambassador to Thailand. He was award¬ ed the State Department Superior Honor Award, the AID Distinguished Honor Award and the State Department Distin¬ guished Honor Award. Since his retire¬ ment in 1978, Ambassador Whitehouse has been actively working on behalf ot versity Law School. Mr. McKinney has AFSA’s retired constituency and has been an active member of AFSA since served on the AFSA Governing Board as 1979 and has served on the AID Stand¬ Mr. Holmes is an FS-2 Consular Officer. Retired Constituency Representative. In ing Committee. Since 1981, Mr. He entered the Service in 1965 and has 1981 Ambassador Whitehouse was elect¬ McKinney has been an AID Constituen¬ served in Rome, Vietnam (CORDS), ed President of AFSA. cy Representative on the AFSA Govern¬ Nassau, Athens, and the Department. ing Board. During this past year he has During the academic year 1977—78 he SPENCER M. KING also served as the chief AID negotiator attended the Kennedy School of Govern¬ for AFSA as part of AFSA’s negotiating ment, Harvard University, where he team. Mr. McKinney is a member of the earned a Master’s degree in Public Ad¬ Thursday Luncheon Group. ministration. He then served in the Bu¬ IRVING WILLIAMSON reau of Consular Affairs as a management analyst for three years, and is currently the Deputy Director, Agency Director¬ ate for UNESCO, in the Bureau of Inter¬ national Organization Affairs. A native of California, Mr. Holmes is-a graduate of Pomona College and has an M.A. from Johns Hopkins' SAIS. He is President of the Consular Officers' Association and a member of the AFSA State Standing Committee.
CHARLES S. WHITEHOUSE
During twenty-eight years in the Foreign Service, Spencer M. King served in Bo¬ livia and Czechoslovakia, as DCM in Ec¬ uador and the Dominican Republic, and as Ambassador to Guyana. He also served Irving A. Williamson, Jr. is an FS-2, a tour as Chief of the East Europe Branch Economic Officer. He joined the Foreign of the Voice of America and worked in Service in 1967 and has served at the the Inspectorate as a traveling inspector following posts: Port Louis, Mauritius, and, subsequently, as Deputy Inspector Antananarivo, Madagascar and Geneva, General. Ambassador King has visited Switzerland. In the Department he has U.S. missions in over 100 foreign cap¬ served in EB, Personnel and the Oper¬ itals, giving him a broad perspective on ations Center. He has also had a detail to Foreign Service life. Ambassador King the Treasury Department and is current¬ uras elected an AFSA Retired Constituen¬ ly on detail to the office of the US Trade cy Representative in 1979 and re-elected Representataive. Mr. Williamson has a in 1981. Ambassador King graduated B.A. from Brown, an M.A. from SAIS, from Yale University in 1940. From and a J.D. from George Washington Charles S. Whitehouse graduated from 1941 to 1946 he served in the U.S. Army University. In 1981 he was elected to the Yale University in 1947 after service in where he was a Major in the Field Artil¬ AFSA Governing Board as a State Con¬ theU.S. Marine Corps from 1942—1946. lery. He graduated from the National stituency Representative. From 1948 to 1966, he served in Bel¬ War College in 1958.
APRIL 1982 20C Referendum on Closing Resolution RESOLVED, that the Foreign Service Club be The Foreign Service Club closed as soon after July 15, 1982, as practi¬ The Elections Committee wishes to give no¬ cal, but not later than September 1, 1982, tice that it has received from the AFSA Gov¬ and that other alternatives be explored to erning Board a resolution proposing that generate income from surplus space. the Foreign Service Club be closed.At the Governing Board request of the Board and in accordance with Statement of Explanation Article V and VII of the AFSA Bylaws, the Elections Committee will submit this pro¬ Ever since the Foreign Service Club posal, accompanied by statements, if any, opened in 1969, its operating expenses have from the proponents and opponents of the consistently exceeded club income. Despite proposal, to the AFSA membership in a se¬ efforts to increase the ranks of AFSA’s Asso¬ cret ballot referendum. A majority of valid ciate Members (most of whom join AFSA votes received will determine the Associ¬ mainly to have access to the Club) as well as ation’s policy on this proposal. the introduction of a wide variety of mea¬ The text of the proposal, which was ap¬ sures over the years to increase Club patron¬ proved by a unanimous vote of the Govern¬ age, the Club has regularly shown an annual ing Board on March 2, 1982, together with operating loss. Today, caught between the a statement of explanation, is given below. twin forces of inflation and the current busi¬ The Elections Committee will circulate the ness recession, it appears that the net oper¬ proposal and appropriate voting instruc¬ ating loss for the Club for the fiscal year tions on or about May 15 to all persons who ending June 30, 1982, will run between are AFSA members as of April 30. The $15,000 and $20,000. Committee will include with the voting In this regard, the Board has conducted instructions the statements it has received preliminary investigations of the various op¬ from proponents or opponents of the tions open to the Association concerning the resolution. use of the AFSA building. The principal Members who wish to submit statements options include: (a) Leasing out the Club in favor of, or in opposition to, the resolu¬ space with minor alterations to another ten¬ tion should send them by mail addressed to ant; (b) adding additional floors to the the AFSA Elections Committee, 2101 E building to increase the space available for Street, N.W., Washington, D. C. 20037, long-term leasing; and (c) selling the prop¬ or by AFSA channel cable. These statements erty outright. These possibilities may re¬ must be received by the committee no later quire some additional study, but prelimi¬ than May 3. nary analyses by reputable realtors indicate The committee has decided that in order that adding to the building would be pro¬ to be acceptable for circulation, a statement hibitively expensive and selling it would must not be longer than 500 words and lead to the leasing of costly office space must be signed by at least five current AFSA elsewhere. members. A member may not sign more It is on the basis of these considerations than one statement. The Committee re¬ that the AFSA Board now wishes to ascer¬ serves the right to shorten statements from tain the views of AFSA’s membership as to the end if necessary to meet space limita¬ whether the Club should continue in opera¬ tions. tion.
20D FOREIGN SERVICE JOURNAL Association News Foreign Service Day AFSA Consults with Management on Scheduled for May 7 Foreign Service Act Report to Hill This year’s Foreign Service Day, the an¬ nual event sponsored jointly by the De¬ The Association recently completed con¬ versions from one skill code to another, partment of State, DACOR, and AFSA, sultations with management on the Sec¬ and to the Senior Foreign Service, as well is scheduled for Friday, May 7. AFSA's retary of State’s first report to Congress as lateral entry into the Service. retired members should have received on implementation of the Foreign Service One section of the report is reserved their invitations and reservation forms by Act of 1980. Known as the “2402 re¬ for the views of the employee organiza¬ the time this issue arrives. port” after the section of the Act that tions on the material presented. AFSA Because of budgetary restrictions, this requires its annual preparation and sub¬ has submitted comments for inclusion. year the traditional reception which con¬ mission, it outlines personnel planning cludes the day-long program will be a processes and five-year projections of at¬ subscription affair, as is the custom with trition, promotion, and recruitment for the Foreign Service Day luncheon. Both the five foreign affairs agencies. AFSA Points Out the luncheon and the reception are op¬ The report also describes the inter¬ Inequity in Medical tional events on the program, and the agency consulting process and efforts to ticket prices for each are fixed to reflect maximize compatibility of regulations Evacuation Per Diem actual costs. and policies. Once fully implemented, At 10 a. m. on Saturday, May 8, AFSA the Act foresees that all tire foreign affairs AFSA recently held discussions with the will host its annual post—Foreign Service organizations—State, 1CA, AID, the Medical Division concerning inequities Day brunch at the Foreign Service Club. Foreign Commercial Service, and the in the number of days of full per diem AFSA’s activities over the past year and Foreign Agricultural Service—will oper¬ paid for evacuations to non-U.S. medical plans for the future will be reviewed, and ate under common statutory authority facilities as opposed to U.S. evacuation there will be an up-date on current devel¬ and share personnel policies and oper¬ points. Currently, regulations authorize opments affecting all present and pro¬ ations to the extent possible. full per diem up to 120 days at U.S. spective Foreign Service retirees. Among other planning factors covered medical facilities — versus only 21 days Since accommodations for the brunch in the report are management’s methods outside the United States. No matter are limited, advance reservations are ad¬ for allocating promotion opportunities, where medical evacuation occurs, per vised. If you wish to attend, send your allowing for "stretch assignments,” and diem is exclusive of time hospitalized. name and address with your check for determining the annual number of limit¬ During our initial discussion, which $10 to AFSA, 2101 E Street, N.W., ed career extensions— (LCEs) —that dealt mainly with medical evacuation for Washington, D.C. 20037. will be available. Also discussed are con- obstetrical care, we were informed that M/Med had actually authorized up to 30 days full per diem for overseas locations Illinois Rep. Paul Simon for some time, but had not got around to notifying posts and revising regulations. To Lecture at Club We requested that a clarifying cable be Congressman Paul Simon (D.-Ili.) will sent to posts immediately. If you feel you speak in the AFSA “Public Diplomacy in are affected by the policy change, check the ’80s” lecture series on April 26 in the with your Admin section or M/Med and Foreign Service Club. His topic will con¬ refer to State 51598 on medical evacua¬ cern the role of cultural exchange in for¬ tion for obstetrical care. Don’t let the eign policy. Simon has long believed that title mislead you, the increase in the one of the United States’ most effective amount of days pertains to all medical tools in maintaining dialogue with other evacuations. countries is a comprehensive, well-con¬ Furthur discussions with MED are on ceived exchange program involving both nomic, and political consequences of this the agenda to determine how to alleviate the government and the private sector. deficiency. He has been a long-time sup¬ inadequate per diem rates, possibly by A four-term representative from his porter of USIA’s and ICA’s exchange authorizing actual subsistence payments state’s 24th district, Simon is a former programs. or extending the maximum time on full newspaper publisher and educator. He is The April 26 program will begin with per diem at overseas evacuation points. the author of the book The Tongue-Tied a cash bar at noon, followed by lunch and MED is now compiling statistics to de¬ American, which deals with the inability the talk at 12:30. Reservations can be termine how many if any individuals suf¬ of Americans to speak and read foreign made by contacting the Foreign Service fered financial hardships due to insuffi¬ languages and with the cultural, eco- Club. cient payment of full per diem.
APRIL 1982 20E AFSA President AFSA, State Goes on TV Confer on ‘Senior To Protest Film Officer Glut’ The opening in many cities of the Uni¬ The Association has recently begun dis¬ versal Pictures film Missing and the issu¬ cussions with management concerning ance of statements by the State Depart¬ the causes of and possible solutions to the ment as well as AFSA raised a flurry of “senior officer glut.” There are currently publicity with regard to the accuracy of between 45 and 55 senior officers, as¬ this film which purports to tell a true signed to the Department on overcom¬ story about events in Chile in 1973. Pro¬ plement status, for whom no appropriate ducer Costa-Gavras and stars Jack Lem¬ jobs are available. mon and Sissy Spacek, plus the family of According to AFSA reps, one major Charles Horman, the missing American, reason for this situation may be the large all appeared on a number of talk shows. number of mid-level officers occupying A few days after the WTTG show Pan¬ Spacek and Lemmon in Missing senior-level positions—so-called “stretch orama interviewed Lemmon, Spacek, and assignments.” Costa-Gavras, AFSA’s president rebut¬ year. He called the film's ending claim It has long been an accepted practice ted their claim that the movie is “a true that the Horman family had been unsuc¬ for management to hold a certain num¬ story.” "It portrays the Foreign Service cessful in bringing suit against the State ber of senior positions in reserve to allow and w'hat took place in ways that are not Department because necessary docu¬ for stretch assignments, which give par¬ entirely accurate,” the president told the ments were declared classified as "inaccu¬ ticularly capable mid-level officers an op¬ show's moderator. "It is based on an epi¬ rate. They received all the information portunity to develop valuable skills and sode that did take place, but not all that the government had.” To implications of demonstrate their capabilities in a more is portrayed was exactly so." He said the possible U.S. embassy involvement in or challenging position than would normal¬ film depicts the Foreign Service officers approval of the death of Charles Horman, ly be open to them. who handled the case as being "extraor¬ the president responded: "I consider that AFSA reps feel, however, that this dinarily negligent and carefree.” On the to be a contemptible accusation against practice should not be pursued to the contrary, he said, “the Foreign Service the Foreign Service and the staff in point where it becomes a serious detri¬ does a good job” in “missing” cases and Chile.” He categorized the accusation as ment to senior officers. noted that these number about 6000 a “monstrous.” Other possible contributing causes for the glut include the assignment of politi¬ cal appointees to ambassadorial posts and appointment of non-career personnel to AFSA Submits Amicus Curiae Brief in positions in the Department. AFGE-ICA Performance Pay Impasse On March 5, the American Foreign Serv¬ requirement of peer review by a board Top Greek Paper ice Association submitted an amicus curiae composed of career Foreign Service em¬ Cites Journal on (“friend of the court”) brief in support of ployees and public members. Instead, Papandreou Story AFGE Local 1812 in its dispute with the director would have authority to ap¬ ICA over the award of performance pay. point whomever he wished to sit on the In an analysis of foreign press reaction to The dispute is now before the Foreign performance pay boards. the new socialist Greek government ap¬ Service Impasse Disputes Panel (FSIDP). ICA’s stand is reminiscent of its 1972 pearing in that country’s prestigious The dispute came to the FSIDP as a attempt to manipulate selection board daily To Yima last January, a journalist result of ICA's last-minute refusal to sign rank-orderings for promotion. That ef¬ based his reporting on stories from the the joint agreement on Senior Foreign fort prompted Congress to amend the London Times, the New York Times, Le Service Performance Pay negotiated by Foreign Service Act of 1946 to expressly Monde—and the Foreign Service Journal. AFSA, AFGE Local 1812, the Depart¬ provide that selection board evaluations In his article “Papandreou’s Greece” ment of State, AID, and ICA. That shall be submitted to the agency head in (January], Journal writer Leigh Bruce, agreement, published as FAMC 81-57, rank order, and that the agency head “stresses that the election of Mr. Papan¬ has been implemented by the Depart¬ make recommendations for promotions dreou should not be viewed as disastrous ment and AID. ICA's major objection to in accordance with the selection board for American interests,” the paper said. the agreement is that it makes selection submission. “Mr. Bruce underscores that the Reagan board recommendations for performance AFSA is very concerned over the out¬ administration should follow toward pay binding on the agency head. ICA come of this impasse dispute, as both Greece a policy similar to the one it fol¬ would have selection board recommenda¬ State and AID management have notified lowed toward French President Mitter- tions be advisory only, allowing the di¬ us in writing that they intend to revise and, who now appears as the strongest rector to alter the rank-orderings and the regulations and explore “alternative U.S. ally. ” The paper concluded that the award performance pay as he chooses. approaches” for the next performance pay Journal article was “a very interesting Further, ICA would do away with the cycle. analysis.”
20F FOREIGN SERVICE JOURNAL official nonalignment, or retreating 1904, formed the Entente Cordiale, a into self-imposed isolation. The Unit¬ relationship which carried them ed States, during its first century of us through the holocaust of World War I. development, tried them all. But the I-rfet After France’s defeat in the Franco- position of developing countries dur¬ not take Europe for Prussian War, it sought solace in colo¬ ing the twentieth century has been re¬ nial adventures abroad and in an in¬ inforced by a convenient historical granted; another eradicable hankering for revanche in myth that has justified an ideology Europe. But this aroused the opposi¬ centering on the victims of exploita¬ serious conflict in tion of Britain abroad and of Germany tion, burdened Europe with a guilt in Europe. A Russian alliance proved complex, and cast the Soviet Union in the Third World such weak and disappointing; Russia failed the role as natural (if usually disap¬ to support France on Fashoda. It was pointing) ally of the Third World. It as Suez, the oil an unwinnable position and France would be too much to assert that this crisis of 1973, or badly needed a stout ally. Gradually mish-mash of nationalism, Marxist during the subsequent years of diplo¬ ideology, and realpolitik has produced even Afghanistan matic maneuvers and despite the hu¬ anything like a clear and effective pro¬ miliation of Fashoda, France decided gram toward the developed world in would drive Europe that its international policy could only general or the United States in particu¬ be sustained through an understand¬ lar. On the contrary, many Third even farther away ing with Britain, itself in the process World countries have victimized of being forced to abandon a policy of themselves, losing vital opportunities and weaken “splendid isolation” toward European in futile political games. Apart from affairs. Thus the entente was created, OPEC, the Third World backlash of the irreparably the ending thirty years of conflict whereby 1970s and the North-South dialogue fabric of Atlantic France finally agreed to recognize Brit¬ have failed to produce any significant ish supremacy in Egypt and Britain results. Nevertheless, the West—and cooperation. acknowledged French predominance especially Europe—is increasingly vul¬ in Morocco. Germany was the odd- nerable to Third World political and man-out. The third option suggested economic instabilities. The Western Several attempts have been made in by Fashoda, therefore, would require community could be divided by the the past to overcome the divisiveness the disaggregation of interests and temptation to seek regional solutions the Third World arouses among the their explicit mutual recognition by to global problems. major powers. For centuries there was the United States and its NATO allies. Western Obsession an unwritten agreement that disputes Today Western Europe finds itself “beyond the Line” would not be al¬ in a position roughly analogous to that This insidious pattern of interna¬ lowed to disturb the peace of Europe. of France at the turn of the century: tional conflict is pervasive, yet almost Similarly, in the postwar world there searching for security in Europe, cher¬ forgotten by a West obsessed for thir¬ have been advocates of linkage and de¬ ishing the dream of reunion, and seek¬ ty-five years with Europe and contain¬ linkage. The Reagan administration ing recognition of its interests in the ment. The Third World has always has based its global policy on the for¬ Third World. Postwar Western Eu¬ recognized it. Lenin did not invent it, mer, Europe and the Soviets on the rope leaned on the United States, faute he merely described what he saw with latter. Negotiated settlements such as de mieux, despite a running conflict a doctrinaire communist gloss. West¬ the Treaty of Tordesillas in 1494 de¬ over Third World relations. After ern Europe now seems to be discover¬ fined more precisely the spheres of in¬ Suez, Britain, like France after Fa¬ ing it anew, reverting to its pre— fluence in the New World granted by shoda, swallowed its pride and made a World War II historical perspective, the pope to Portugal and Spain, and basic decision never again to commit but still insufficiently aware of the con¬ the Congress of Berlin in 1884 settled itself to a position in conflict with the sequences. The United States appears rival claims in the Congo basin. The United States. France decided other¬ to be the slowest learner and is becom¬ postwar world has yet to produce a wise, beginning the process of ridding ing increasingly isolated from the similar attempt whether between the itself from U.S. domination. Even Third World and, more and more, es¬ United States and the Soviet Union or West Germany, profiting from de¬ tranged from its European allies. This even by tacit agreement among the al¬ tente and with minimal global respon¬ failure to adapt is curious since, before lies of the Atlantic or the Western eco¬ sibilities, has increasingly favored the its foreign policy became distorted by nomic communities. old continental system based, in its the Cold War, the United States had a The example of the Fashoda inci¬ revived form, on detente, the Europe¬ more balanced view of the world, at dent brings to mind a third option. an Monetary System, and a stronger least of that portion—Latin America Britain and France, brought to the European foreign policy. But Europe¬ and the Far East—that was not held by brink of war in 1898 after thirty years an autonomy, however attractive and some European colonial power. of colonial disputes in Africa, had, by (Continued on page 36.)
APRIL 1982 21 A Conversation with Malcolm Toon The Foreign Service & the National Interest
When Malcolm Toon, at the tained. He remained in Moscow until time U.S. ambassador to his retirement. the Soviet Union, retired “Frankly, I would During his career, Toon gained a from the Foreign Service in 1979, the strongly recommend reputation as one of this country’s lead¬ press reported that he was openly an¬ ing professional diplomats. The New gry upon learning that his replacement that some of the York Times, when reporting his ap¬ was to be a political appointee. During pointment to Moscow, stated that he his tenure in Moscow, Toon had made professionals who was regarded as the “top Soviet special¬ known his belief that the post should are serving on the ist among the senior diplomats in the be reserved for career diplomats who career service.” Earlier, the Times spoke Russian and had had previous seventh floor should quoted a colleague of Toon as saying experience with the Soviets. Only with that “{Toon] always put American in¬ an ambassador possessing such qualifi¬ resign, and when terests first and was not affected by cations, he told reporters, could the they do they should ‘localitis.’ Moscow embassy fulfill its critical role Toon also gained a reputation for and the national interests of the United go out slamming the candor. Hardly a story appeared about States be safeguarded from Soviet op¬ him that did not include adjectives portunism. When Toon informed the door, as some said such as “outspoken,” “tart-tongued,” Carter administration of his intention I did when I left and “tough-talking.” Nor was his can¬ to retire, he reaffirmed this position. dor limited to the subject of non-career But at the Vienna summit of June Moscow. ” ambassadors in Moscow. His com¬ 1979, Toon discovered—almost at the ments on the adversarial nature of same time that the press did—that his partment. He rose to the rank of am¬ U.S.-Soviet relations and his reputa¬ replacement was to be Thomas J. Wat¬ bassador in 1969, when he was sent to tion for taking a tough view of Mos¬ son, a former chairman of the board of Czechoslovakia. Later, the press re¬ cow’s behavior caused the Soviet lead¬ IBM. Watson’s appointment was in¬ ported that he was being considered for ership to be less than enthusiastic terpreted by some journalists as an in¬ the ambassadorship in Moscow, but at about his appointment. When his dication that the administration hoped the last minute another officer went posting to Moscow was first an¬ to improve economic ties with the So¬ to the Soviet Union and Toon instead nounced by President Ford, the Krem¬ viets. But Watson neither spoke Rus¬ became ambassador to Yugoslavia. He lin held up its approval for more than sian nor had experience in dealing with made his only tour of duty outside of two months. Moreover, during the the Soviets. By the time Toon left his Europe when in 1975 he was named next few years the Soviets publicly post in the fall, his displeasure was ambassador to Israel. He was ap¬ chastised Toon for statements he made well known. pointed as interim ambassador to the on the Soviet system. Toon retired with a distinguished Soviet Union by the outgoing Ford ad¬ Since his retirement, Malcolm Toon record in the Foreign Service. After ministration. President Carter, appar¬ has not lapsed into silence. Far from it. joining the diplomatic corps following ently favoring the idea of a political He has continued to speak out on is¬ World War II, he held a variety of ambassador, initially withdrew Toon’s sues of importance: SALT, detente, the posts in Europe, including two terms nomination, but by the end of April general nature of U.S.-Soviet rela¬ in Moscow. At one time he was in 1977 the new administration had re¬ tions. And he has reiterated his belief charge of Soviet affairs at the State De- considered and Toon was officially re¬ in a strong career Foreign Service in 22 FOREIGN SERVICE JOURNAL believes, the United States risks threatening its own national interests. As part of the Journal's continuing presentation of a variety of views on vital professional and foreign policy is¬ sues, we bring our readers the follow¬ ing conversation with Malcolm Toon. —F.G.B. Journal: There is a lot of unhappiness in the Foreign Service concerning the many senior Foreign Service officers who are without jobs and the large number of political appointments that have been made—appointments to places where they have not been made before or only rarely, such as Romania and Fiji—and to levels lower than be¬ fore, levels generally reserved for career officers—such as the consul general’s position in Bermuda. In the depart¬ ment, positions down to the level of office director have been filled with po¬ litical appointments in a number of places. How do you see these develop¬ ments? Toon: Once we start to go below the ambassadorial level and appoint people who are currently in the present ad¬ ministration or heavy contributors to the party in power to these lower-level posts, then I think we are in trouble— not we in the Foreign Service, but we as a nation. We have abolished the spoils system as far as the civil service is concerned but we have never done it for the Foreign Service. A very bad precedent has been made in the Ber¬ muda appointment. And when defeat¬ ed congressmen and heavy contribu¬ tors to the party receive ambassadorial hearings before the Senate Foreign Re¬ ments but also endanger the effective¬ appointments, I think the result is lations Committee, in speeches around ness of U.S. policy and the safety of our that, in the long run and with some the country, and in interviews for the national interests. exceptions, we are regarded as a bit press. With the Reagan administration’s strange, especially by our European al¬ Toon says he is not concerned with appointments of non-career ambassa¬ lies. After all, we are the only major the morale of the Foreign Service for dors hovering near the fifty-percent country in the world that resorts to narrow professional considerations but mark, Toon is concerned that the role this sort of practice. Our friends must rather with the effect on the national of a professional Foreign Service may wonder about our ability to cope with interest of having non-career persons be neglected more than ever because the problems we face as long as we in key diplomatic posts. As he remarks unqualified persons may be dealing behave this way. in this interview, the United States has with our allies and adversaries. More¬ Journal: Are you unhappy about the had an imposing task entrusted to it over, he fears a growing ideological way matters have been going in this since 1945—a task he says demands component in the selection of ambassa¬ administration regarding political ap¬ the active use of a competent and pro¬ dors and senior officials. In Toon’s pointments? fessional diplomatic corps if it is to be view it seems that political loyalty to Toon: I have been unhappy about other successful. Without qualified, exper¬ the administration in power is becom¬ administrations as well, but this time I ienced people as U.S. representatives ing more important than competence was surprised that Mr. Reagan went abroad, Toon believes, we not only and experience. By continuing to ne¬ this route, particularly after his very risk the disrespect of other govern- glect its professional diplomats, Toon strong statements during the cam- APRIL 1982 23 deputies, who have enough courage to resist this sort of thing, and to say to / think this is a very, very bad Senator Helms, “Look, we are not go¬ ing to appoint just people who are ac¬ business we are involved in — making ceptable to you. We are going to ap¬ point people who we think are sure that Senator Helms is satisfied qualified for the job. And you are go¬ by giving him the right to ‘appoint’ ing to have to go along with this.” Frankly, I have not seen that sort of certain people to certain jobs. I courage and forthrightness on the part of some of the people who hold respon¬ frankly do not think we can survive as sible jobs in this administration. That a major power with a major leadership distresses me as a concerned former Foreign Service officer. role in the free world so long as we Journal: Does this trend toward politi¬ cal appointees stem from the idea that behave this way. ” diplomacy somehow is not a profes¬ sion? Is there a notion in this country paign about relying on the profession¬ apparently a part of the political proc¬ that anybody with a little reading and als in government. He promised ess in which we unfortunately are en¬ maybe a little language training can throughout his campaign that he gaged in the State Department. I think become a diplomat? would make sure that every appointee this is a very, very bad business we are Toon: It goes beyond that. I think to every ambassadorial post would be involved in—making sure that Senator there is a feeling now that not only can entirely qualified. Now to me this Helms is satisfied by giving him the you become a diplomat, you can be¬ meant he would rely primarily on the right to “appoint” certain people to come an ambassador or a principal ne¬ professional service. I do not think he certain jobs. I frankly don’t think we gotiator, so long as you have qualifica¬ has done that. I don’t know what the can survive as a major power with a tions which are satisfactory politically exact percentages are now, but there major leadership role in the free world to the administration. In other words, have been reports in the Journal and in so long as we behave this way. I think you have to demonstrate that you have the press which indicate to me that we we have to appoint far more qualified political fidelity and loyalty above pro¬ are worse off under this administration professionals than this administration fessional competence, and I think that than we have been for years. I don’t is prepared to do. I am reluctant to is a very bad way to proceed. think this is a good development at all. condemn this administration so Journal: Why is it that we as a coun¬ Journal: There are indications that the sweepingly, but I feel very strongly try, including the Congress, the ex¬ percentage of political appointees is about this malpractice. ecutive branch, and the public, accept definitely higher—currently AFSA’s Journal: You mentioned Senator this approach to international affairs? figures show political appointees are Helms, a man who some people have Toon: I think this is probably part of running at about 50 percent. Before said has been unique in practically ap¬ our isolationist background. In the the Carter administration the percent¬ pointing people in the executive Twenties and the Thirties, when peo¬ age used to run in the 30-percent branch himself—certainly he has pres¬ ple couldn’t have cared less about for¬ bracket, and Carter brought it down to sured the White House to appoint his eign policy and about our position in 27 percent. Of course the present ad¬ favorites. But others have said that ap¬ the world, it made very little difference ministration has not completed its ap¬ pointments have been made in past ad¬ to the average American and the aver¬ pointments, but 50 percent of the ap¬ ministrations to satisfy particular age Congressman who was serving pointments they have made have been members of Congress. Do you think where abroad. I think, unfortunately, non-career ambassadors, and to places Senator Helms’s actions are unusual we still have part of this basic tradition they normally have not been sent— from past situations or is it just a mat¬ within ourselves. I don’t think there is Bucharest, the Fiji islands, and else¬ ter of degree? sufficient concern on the part of the where. Toon: It is different in the sense that I public and the people on Capitol Hill Toon: I’m not terribly upset about don’t think we have ever had a senator about this matter. It depends on us, sending a political appointee to Fiji, who has insisted that certain people the professionals of the Foreign Serv¬ but to Bucharest, I think that’s a mis¬ have certain qualifications and pass ice, and on our ability to persuade the take. Some political appointees have certain standards if he is going to vote public that this is a very bad way to run occasionally been credited with know¬ for them. At least in my experience, our diplomatic business. ing the local language or having lived this is a departure from precedent— I have done some speaking around there. But I don’t think this is a justifi¬ and I think a very dangerous one, un¬ the country and I think we are begin¬ cation for appointing this man to this fortunately. I do think there ought to ning to overcome the stereotype that job. I see in the press this man is a close be people in the administration, in¬ some people have of us as striped friend of Senator Jesse Helms. This is cluding the secretary of state and his pants, cookie-pusher types. We have
24 FOREIGN SERVICE JOURNAL tried, with some success, to get across pare diplomacy with the need for mili¬ that some of the professionals who are the idea that we are reasonably intelli¬ tary force to protect the national inter¬ serving on the seventh floor should re¬ gent, reliable people, that we under¬ est and national security? sign, and when they resign they should stand the job we have to do, and that Toon: Certainly, you have to have go out slamming the door, as some we have the competence to face up to both—a strong military to deal with people said I did when I left Moscow. I that job—which I think the American the problems of the world today, par¬ don’t want to be terribly personal public expects. I think the more we ticularly the Soviet menace, but at the about this, but there are people on the speak around the country, the more same time a good, professional Foreign seventh floor today who are responsi¬ the public will have confidence in the Service establishment—which I think ble, in large part, for protecting the Foreign Service. Beyond that, you’ve we have. But the point is that while interests of the Foreign Service—and got to sell the politicians on the idea the military is appreciated by this ad¬ therefore the national interest—and that we must have a competent profes¬ ministration, I don’t think the profes¬ they are not doing it. So long as they sional service abroad. And we have to sional Foreign Service is. Evidence of permit this thing to go on without get across the idea that it is no longer that is the fact that we are apparently making a big noise about it, then I in the national interest to use the For¬ going the route where half of our am¬ think they are not doing their jobs eign Service as a dumping ground for bassadorial posts are going to political properly. Probably what we have to do people who have been defeated in elec¬ appointees. We are not relying on the is to have a Foreign Service officer in a tions or who have made heavy contri¬ professionals to man the negotiating high position on the seventh floor re¬ butions to the party, because now these teams, and I think this is a big mis¬ sign with a bang in order to shake up diplomatic jobs are terribly important. take. I think we’ve got to get this ad¬ these people and make them under¬ And if the country does not have good ministration to understand that unless stand that if they don’t pay attention people in these jobs, the national inter¬ they make better use of what I think is to morale in the Foreign Service, and if est will suffer and, in the long run, we the very good talent we have in the they don’t start using the Foreign Serv¬ will prove ourselves unable to cope Foreign Service, we are going to get ice talent which is there, then they are with the job that has been foisted upon into deep trouble. Deep trouble not going to wind up with a very inad¬ us since World War II. I think it is only in the sense that we will wind up equate Foreign Service or perhaps none terribly important to have top-flight with incompetent people dealing with at all. people in these jobs. And frankly—I adversaries, such as the Soviet Union, Journal: Is resignation necessary? Is it speak subjectively, as a former career and around the negotiating table, but necessary to go outside the Service or is Foreign Service officer—I think the also dealing with the fundamental it simply the effect of resignation? most competent people we can have for problems we face with the Third Toon: Somebody ought to be speaking these positions come from the profes¬ World and in Western Europe. In the out, and in a very strong voice, about sional ranks. process we will end up with a very this problem. I can do this, but I’m Journal: Usually, when we use the serious lowering of morale in the For¬ retired and people will claim I say this terms “national security” and “na¬ eign Service, with the result that in the because I’m not active. But I spoke up tional interest” it is done in regard to long run—I may be totally pessimistic when I was active as an ambassador. I the military, not diplomacy. There about this—we won’t have any For¬ think people who are still active in the seems to be a lack of regard for what a eign Service at all. How can the Service have a responsibility to fulfill. well-conducted foreign policy can do United States face up to the problems Journal: But did senior members of for the country. Obviously, that is un¬ of this world unless it has a competent, the Service speak up in the past? derstood at the level of the secretary of reliable, Foreign Service? I don’t see Toon: I can only talk from my own state, but it doesn’t seem to filter how we can do it. To me the most experience. I have spoken up as an am¬ down below that. distressing aspect of what has been go¬ bassador and after I retired. I testified Toon: That may be. Good evidence of ing on for the last three of four years is before the Senate Foreign Relations that is that we had to resort to the that morale has dropped seriously and Committee in 1979 on the SALT treaty. ranks of the military to find a secretary in the process the Foreign Service has But when I testified I was asked some of state. Don’t misunderstand me, been badly weakened. very serious and searching questions by Alexander Haig has all kinds of quali¬ Journal: Is there something that could Senator Charles Percy about the For¬ fications for the job. But at the time he encourage those who might be think¬ eign Service and about my attitude to¬ was appointed, I said publicly that I ing of leaving the Service, or could ward political appointees as ambassa¬ found it distressing that we had to rely turn around this emasculation of the dors. The senator asked me if I felt that on the military to provide possible can¬ Service? we have had good people serving as didates for the top job in diplomacy. Toon: I think each and every one of us ambassadors from outside the Foreign We didn’t look within the career For¬ in the Service has to do something Service—such as David Bruce, Averell eign Service. There has been a ten¬ which would shock the political lead¬ Harriman. Don’t we need an infusion dency to rely more on the military than ership in Washington into seeing the from time to time? I said, yes, we have on the professional diplomat. dangers we face today as a result of this had topflight ambassadors brought in Journal: Having practiced diplomacy policy of ignoring the professional. from the outside. I said all of us feel all of your adult life, how do you com¬ Frankly, I would strongly recommend there is a justification and a need for APRIL 1982 25 u Watson was assigned to Moscow, some “j : said the Association pulled its JLt is no longer in the national punches. Many Foreign Service officers were upset because it seemed that un¬ interest to use the Foreign Service as a less he was totally unqualified for the job, we could not keep him from hav¬ dumping ground for people who have been ing it. Perhaps we ought to have some defeated in elections or who have made positive, objective standards for ap¬ pointments. heavy contributions to the party, Toon: I was unhappy then too. I told President Carter and Secretary Vance because now these diplomatic jobs are in 1978 that I would be leaving my terribly important. If the country does post in 1979. I had had a good career in the Foreign Service and felt it was not have good people in these jobs, the time to move on and make room for some of the younger people in the pro¬ national interest will suffer. ” fession. This is what I said to Carter and Vance. At the time, I thought my new blood from time to time. But, I mist in a country where our problems replacement would obviously be a ca¬ said, for every David Bruce, you get are not really economic but primarily reer man. When I got to Vienna at the ten Mr. Klunks. At the time I had to political. In Italy we have an equally summit conference in June 1979 and be careful about avoiding a libel suit eminent lawyer who speaks no Italian discovered from Mr. Carter personally against me and I couldn’t name pre¬ in a country where the ambassador that it was going to be Thomas Wat¬ cisely and accurately those I had in must speak the language to have an son, I was disturbed, even angry. mind. So I discussed the problem in impact. There are at least ten Foreign Now, don’t misunderstand me. Tom general terms. Service officers far more qualified for Watson is a very fine guy with great I told the senators that many years each one of these jobs than the person ability and impressive qualifications— ago there was a man who was a manu¬ now occupying it. I think that is a sad but as a businessman. I told the presi¬ facturer of ladies’ dresses who was ap¬ state of affairs. dent and the secretary that of all posts, pointed to a post in the Far East. Journal: Are you suggesting that the Moscow had to be manned by a profes¬ When he came before the Foreign Re¬ Foreign Relations Committee might sional. Their answer was that we really lations Committee he could name nei¬ be the mechanism for screening out the did not have anybody qualified for the ther the prime minister of the country “Mr. Klunks”? post and there may have been some to which he was appointed nor its cap¬ Toon: I think that Senator Percy, the justification for that point of view. But ital. I told the senators it was the com¬ chairman, and others on the commit¬ then I began to get some criticism mittee’s job to be selective. Of course tee, Senator Baker for example, should from the Foreign Service that really we need blood from the outside—I speak up more vigorously than they hurt me. The rationale was, why did think it can be useful—but we do not have in the past. Frankly, I think we in you give up this job if you knew a non¬ have to accept the poor sort of talent the Foreign Service should speak up professional would replace you? If I we have seen over the last year. We too. Beyond that, people who are sen¬ had known at the time that the job have an actor in Mexico City, a politi¬ ior in the Foreign Service today who would go to an outsider, I might have cal post, the most sensitive post in the are serving in the State Department stayed on for a while; until, in the view hemisphere. It is terribly important ought to speak up for the career people of the administration, a qualified pro¬ for us to have somebody there who is much more vigorously than they have fessional was available. sensitive to Mexican concerns, but we done so far. The point is, we have to get AFSA, have a Hollywood actor—and not a Journal: What should be the role of the top officers in the department, and very good one at that. We have a man the American Foreign Service Associa¬ career ambassadors around the world in London who owes his place in life to tion? to speak out about this problem, not in the fact that his parents founded a fur¬ Toon: I’m glad to see that AFSA, in selfish terms but in terms of the na¬ niture polish dynasty. His only quali¬ recent months, has spoken out much tional interest. Specifically, how it is fication for the job is that he speaks more vigorously and eloquently on this bound to suffer in the long run unless English. We have a man in Paris, a theme than it has in years. I am glad to we have a Foreign Service with high highly proficient banker, whose main see AFSA taking a much more active morale doing the job it is supposed to qualification for his job is that he role. AFSA’s job is to get the word out, do. All of us must act in unison. speaks French and is a friend of Giscard get it in the Foreign Service Journal, and Journal: Many times during a change d’Estaing—who is out of power and is make sure it gets to the press. You of administration, a group of Foreign considered the arch enemy of the man have a very sympathetic audience Service officers becomes identified who is running the country. In Ger¬ there. with the outgoing administration’s many we have a very eminent econo¬ Journal: At the time Ambassador foreign policy. Would an incoming
26 FOREIGN SERVICE JOURNAL administration be naive to expect them ideology of the previous administra¬ Toon: I don’t think we should go that to be able to shift gears and accept a tion. On the other side, we now seem route. It seems to me that the Foreign change in policy? Can the senior For¬ to be selecting people because they suit Relations Committee itself should ex¬ eign Service officers working in the de¬ the political bent of a senator. Are we ercise its responsibility to advise the partment with political appointees be moving in the direction of a greater president and see to it that more com¬ sheltered from political pressures so ideological basis to our Foreign Service petent people are appointed than in the the next administration will be able to appointments? past. believe it can use those people effec¬ Toon: Well, that may be the case. I Journal: There is of course language in tively? hate to think that is happening, but, the Foreign Service Act of 1980 that Toon: I think it is important to under¬ frankly, some of the things that have describes the qualities an ambassador stand that most Foreign Service officers happened over the past years tend to ought to have: familiarity with the lan¬ have been absolutely loyal to the ad¬ say otherwise. This whole question of guage, the culture, and so forth. Yet ministration that happens to be in officers’ becoming closely identified this seems to have been applied only to power. As an officer, if I could not with particular administrations and career officers. It also says that as far as stomach the policy of an administra¬ then having their careers finished is practical, career members of the For¬ tion, I had a choice—comply, or re¬ very important. I am reluctant to name eign Service ought to be appointed as sign and get out. Those of us who personalities, but there was the case of ambassadors. If that language were stayed in did so because we felt we Larry Eagleburger, who was told that heeded more, we might move closer to could highlight the problems of the if Mr. Ford lost the election, the presi¬ the kind of goals you have expressed policy being promulgated, and we had dent’s people would be out, and there today. an opportunity to air our opinions in would be no point in Eagleburger’s Toon: Yes, but I think this really re¬ the inner circles. To comply with even showing up in the office. I quires a sensible approach on the part policy or resign—that has been the thought this was the wrong attitude to of any incoming administration, as role of the senior Foreign Service officer take and said so at the time. It is well as the Foreign Relations Commit¬ down through the years and that is the wrong, in my view, to incriminate a tee. I don’t think that you can legislate way the Foreign Service has behaved. loyal officer who became very closely percentages of political appointees. I Therefore, I think it is wrong for an tied to a secretary of state who is now think it is up to the Foreign Relations incoming administration to consider out of power. He was simply doing his Committee and the White House to that just because a person has worked job as a Foreign Service officer. If you make sure the people they are sending under a political secretary he or she is start crucifying Foreign Service officers to important posts are qualified. I closely identified with that adminis¬ because they occupied high positions think if you followed that rule, you tration and therefore cannot be loyal to in previous administrations, then how would end up with 85 or 90 percent of the new administration. With some can you wind up with a good Foreign your ambassadorial posts being filled exceptions, the Foreign Service has ba¬ Service? You can’t do it. They ought to by career people. I think that’s the sically been loyal to every administra¬ be regarded as professionals doing a job proper approach. tion. assigned to them. We don’t really We as a nation have got to get away Journal: Is there room in between make policy; policy is made by the po¬ from the idea that these posts are for quitting and going along whole-heart¬ litical appointees—sometimes on the heavy contributors to the party. How edly with a policy you dislike? Is there basis of our advice-—and we carry it do you do that? Obviously, you do not a possibility for dissent within the out. I said before that those who can’t work on the politicians in Washington department? in good conscience stomach those poli¬ because they have an ax to grind and Toon: I can’t speak for now, but when cies should get out. But those who stay certain debts to pay. I think you have I was in the department, we had all in should not be crucified by the next to work directly on American public kinds of opportunities to express our administration. I faced the same prob¬ opinion. Frankly, I have been encour¬ point of view to the assistant secretary lem as ambassador to Moscow. I was aged by the reaction I have gotten or even to the secretary. I may have appointed by Ford; Carter won the when I speak around the country on been defeated, but I was always lis¬ election and some of Carter’s people this topic. The reaction has been very tened to. If your views have been taken decided to “dump Toon”—I was ap¬ positive. into account, cranked into the delib¬ pointed by a Republican and therefore I want to leave you with two points. erations, and the decision is made to must be closely identified with the First, the top people on active duty go against your recommendation, then Republican philosophy. They were have got to do more. Let them resign you’ve got to decide whether this is a wrong, and their view did not prevail, with a bang, slam the door, make a big matter of deep principle to you, and but this is a danger we will face every noise about it. Secondly, you have got then you have to get out, or whether in four years. to make sure that you are not just fact wiser heads have prevailed, and Journal: Senator Mathias is introduc¬ speaking to the Foreign Service com¬ then you go along. ing a bill that would limit the number munity, but that you are speaking to Journal: It seems new administrations of political appointees to ambassado¬ the concerned public. And you do that have for some time discarded people rial posts. Is it a good idea to legislate by making sure what you are saying is because they were associated with the change in this area? getting to the press. APRIL 1982 27 Politics or Merit?
A Senate Bill Introduced Late Last Year Limits the Number of Non-Career Ambassadors
By CHARLES McC. MATHIAS JR.
For four years, from 1807 to to limit the number of non-career nests of intrigue, and it distrusted dip¬ 1811, William Pinkney, a chiefs of diplomatic missions. lomats who spent years abroad subject square-shouldered, blue-eyed My intention in this legislation, to foreign influences, believing they Annapolis lawyer, labored as the however, is not to prevent modern day emerged tainted from the experience. American minister in London to pre¬ William Pinkneys from being ap¬ As a result, the United States sent few vent war with England. Although pointed ambassadors. Rather, it is to envoys abroad and did not give even Pinkney ultimately failed in his mis¬ provide a safeguard against overload¬ these the rank of ambassador. More sion, his efforts inspired Henry Adams ing the diplomatic circuits with politi¬ importantly, the first American diplo¬ to comment that “America never sent cal patronage appointments. mats were consciously chosen from the an abler representative to the Court of Article II, Section 2, of the Consti¬ mainstream of American life and, as London.” tution imposes special obligations on was the case with William Pinkney, Pinkney was a member of that first members of the Senate regarding the returned to other careers following generation of brilliant American dip¬ appointment of ambassadors. It speci¬ their diplomatic service. lomats who were drawn from public fies that: {The President] shall nomi¬ Perhaps nothing symbolizes more and private life briefly to represent nate, and by and with the Advice and the uniqueness of American diplo¬ their country abroad and afterwards re¬ Consent of the Senate, shall appoint matic practice in this period than that turned to their law practices, their Ambassadors. . .” Sharing the power five of the first eight presidents (both farms, and the domestic political of appointment with the president is John Adams and John Quincy Adams, arena. Pinkney himself returned from not a passive role. It compels the Sen¬ Jefferson, Monroe, and Van Buren) London to be appointed attorney gen¬ ate to use its authority to ensure that served as American ministers resident eral, fight in the Battle of Bladens- the United States is represented abroad abroad. Not only was this without par¬ burg, and serve as a member of the by its ablest men and women. allel in Europe at the time, but, even House of Representatives, minister to Shaping Current Attitudes today, it stands as unique in diplo¬ Russia, and finally as U.S. senator matic history. The outstanding indi¬ from Maryland. To understand some of the problems viduals who served the United States Now, 160 years after William Pink¬ about how we choose our ambassadors, abroad in those early years, among ney graced the Senate with his remark¬ it is useful to consider the unique his¬ them, of course, Benjamin Franklin, able presence, I find myself deeply en¬ torical experience which has shaped created a legacy which strongly rein¬ gaged in an effort that seems to belie our attitude towards diplomacy and forced the idea that a professional dip¬ my distinguished predecessor’s diplomats. When the United States lomatic corps was both unnecessary achievements as a citizen-soldier-dip- won its independence, it also broke and undesirable. lomat-politician. In fact, in November with European diplomatic practice. Over the last two-thirds of the nine¬ 1981, I introduced a bill in the Senate During the nineteenth century, while teenth century and into the early twen¬ most of the countries of Europe moved tieth century, this legacy tended to ob¬ Charles McC. Mathias Jr. is Maryland's toward professionalizing their diplo¬ scure the uglier realities of the spoils senior U.S. senator, now serving his third matic corps, the United States moved system and patronage politics. Begin¬ term. Previously he was elected four times to in a different direction. The newly in¬ ning with Andrew Jackson, continu¬ the House of Representatives. He is chair¬ dependent republic looked upon am¬ ing through Ulysses S. Grant and even man of the Foreign Relations Committee's bassadorial rank and privilege with a Woodrow Wilson, chiefs of U.S. mis¬ International Economic Policy Subcommit¬ jaundiced eye and found it undemo¬ sions abroad were chosen largely from tee. cratic. It viewed European courts as the ranks of the president’s friends and
28 FOREIGN SERVICE JOURNAL supporters. With each change in party in the White House, qualified and un¬ qualified American ministers were packed off to be replaced by others who had earned their posts through family ties, political influence, or campaign support. General Grant sent his broth¬ er-in-law to Denmark, his secretary’s uncle to Belgium, and a military crony to Spain. None distinguished himself. Woodrow Wilson’s appointments were described by diplomatic historian E. Wilder Spaulding as, for the most part, “a non-descript team of lame ducks, non-entities, and political in¬ nocents.” Of course, there also were some dis¬ tinguished representatives during this period. Charles Francis Adams, whom President Lincoln selected to serve as minister to London during the difficult Civil War years, proved to be a superb choice. Adams’s diplomatic skill in maintaining British neutrality con¬ tributed greatly to the Union victory. But, in choosing Adams, Lincoln seems to have been motivated more by domestic political considerations than by Adams’s qualifications for the post. In a biography of his father, Charles Francis Adams Jr. compares Lincoln’s approach to filling this sensitive diplo¬ matic post with the way the president would select a local postmaster. Founding a Career Service Over time, revelations of corruption and incompetence gradually nudged the country toward a career service based on merit. Meanwhile, a few skilled diplomats, such as Eugene Schuyler, William Scruggs, and Henry White, managed to survive the changes of administration to form the core of a professional diplomatic ser¬ vice. In 1924, passage of the Foreign Service Act was a major step toward creating a pool of experienced career diplomats from which ambassadorial appointments could be made. In that year, 18 of 5 1 chiefs of mission were career officers. By 1928, some 30 of 58 chiefs of mission were career. Throughout the remainder of the pe¬ riod between the two world wars, the career segment in the ambassadorial ranks remained close to the 50 percent mark. The next jump in the percentage of career chiefs of mission came after mation hearing that he did not know tion’s record was roughly the same as World War II. As the United States the name of the prime minister of the its predecessors. Secretary Haig also assumed global responsibilities and country to which he was being sent; pointed out that ambassadorial assign¬ the number of overseas missions ex¬ and President Nixon picked an ambas¬ ments tend to follow a cycle. In the panded, the percentage of career chiefs sador who had donated $300,000 to first years in office, a new administra¬ of mission rose in an almost unbroken his campaign. tion typically would select a high per¬ line to 71 percent by I960. For the The Reagan Record centage of political appointees, then, next 20 years, the percentage of career in its later years, there would be a ambassadors hovered around the 70 The Reagan administration is no higher percentage of career ambassa¬ percent mark. It dropped as low as 64 more immune than its predecessors to dors. percent one year under President Ken¬ criticism of its ambassadorial choices. In December, Assistant Secretary of nedy and rose to a high of 78 percent After monitoring the new administra¬ State Richard Fairbanks sent Senator one year under President Carter. tion’s appointments, the American Charles Percy (R.-Ill.), chairman of Changes in campaign financing laws, Foreign Service Association issued a the Foreign Relations Committee, fig¬ increases in some representation al¬ statement in October 1981 critical of ures to support Secretary Haig’s posi¬ lowances, and Congressional insistence the fact that then some 44 percent of tion. These statistics showed that on more qualified nominees have all the administration’s first 81 appoint¬ while only 43 of 85 of the administra¬ helped to establish more firmly the ca¬ ments had come from outside the ranks tion’s new appointees were career offi¬ reer principle. of the career Foreign Service. While cers, 41 career ambassadors remained Nevertheless, no president in recent welcoming such non-career appoint¬ at post. This brought the overall per¬ memory has resisted the temptations ments as Arthur Burns to Bonn and centage of career officers up to 65 per¬ and pressures to make patronage ap¬ Maxwell Rabb to Rome, AFSA com¬ cent, considerably closer to the 76 per¬ pointments. While there have been plained that “the selection of political cent figure achieved by the Carter such outstanding non-career appoint¬ ambassadors continues to be a reward administration. ments as Shirley Temple Black, Mike for party loyalty and campaign partici¬ It would appear that both AFSA and Mansfield and his predecessor in Ja¬ pation. ’’ the administration have made some pan, Edwin Reischauer, John Sherman The administration defended itself valid points in this debate. To the As¬ Cooper, and Averell Harriman, there by pointing to the number of career sociation, the number of new appoint¬ have also been a number of question¬ ambassadors retained at their posts. In ments from the career ranks is disturb¬ able choices and some real losers. an appearance before the Senate For¬ ingly low. Even when the retained President Truman sent the “Hostess eign Relations Committee last No¬ career ambassadors are counted, the with the Mostest”—the chairman of vember, Secretary of State Alexander percentage of ambassadors from the ca¬ his inaugural ball—to Europe; Presi¬ Haig argued that when the number of reer service has dropped 11 percent in dent Eisenhower nominated a busi¬ retained ambassadors was added to the one year. This is the largest drop in nessman who admitted in his confir¬ new appointments, the administra¬ career appointments for any one-year period since at least I960. The pattern of administration ap¬ pointments in certain areas of the world also raises questions. New ap¬ pointments in both Western Europe and the Caribbean seem to be heavily weighted in favor of political ambassa¬ William Pinkney was a dors. Ten of 14 ambassadors to NATO member of the first capitals, and 14 of 18 ambassadors to generation of brilliant European OECD capitals, are political American diplomats appointees. And a political ambassa¬ drawn from public dor has just been named to Ireland. In and private life to the Caribbean, only one of four new serve briefly and then ambassadors is career, and it is likely return to their former that another vacancy, the Bahamas, careers. In today’s will go to a political appointee. uncertain world, says Though all of these non-career appoin¬ the author, the best tees have distinguished themselves in hope for finding other fields, and some will no doubt qualified ambassadors make excellent ambassadors, it is hard lies in the career to understand why there is so little Foreign Service. room for career officers in these areas. Painting courtesy N. Y. The European alliance is the keystone Historical Society. to American foreign policy. With
30 FOREIGN SERVICE JOURNAL growing political and economic strains between the United States and its Western Europe allies, European cap¬ itals can no longer be regarded as com¬ fortable posts to be fdled by friends and political supporters. Rising na¬ “TJL-/< limiting the percentage of non-career tionalism and desperate economic problems make the Caribbean posts far ambassadors does not in itself ensure too sensitive to be viewed as rewards for party and personal loyalty. Both of that qualified ambassadors will be these regions are crucial to U.S. inter¬ selected. There is no way that Congress ests and demand the experience and skills of career ambassadors. can legislate quality appointments. Nor At the same time, the administra¬ tion has made a number of valid points is it intended to exclude qualified in defense of its appointments record. non-career individuals from consideration A cursory look at the Carter adminis¬ tration’s first-year appointments to bi¬ as ambassadors. . . . But it may be possible lateral posts does lend some support to the argument made by Secretary Haig. to control the abuse of ambassadorial President Carter’s percentage of career appointments for patronage purposes and appointments to bilateral posts in his first year was 65 percent, a figure be¬ strengthen the career service. ” low the overall level achieved later in his administration. This suggests that suspect that this administration’s rec¬ non-career ambassadors. In the confer¬ political considerations do weigh more ord, after four years, probably will end ence with the House, the amendment heavily in an administration’s first up looking pretty much like those of was watered down to a mild statement year. It is unfair, then, to compare its predecessors. But I can’t take much of support for a “greater number” of President Reagan’s first year with the satisfaction in that. career ambassadors. four-year record of the Carter adminis¬ Ending ‘Diplomacy by Obviously, limiting the percentage tration. However, the Carter first-year of non-career ambassadors does not in record for new appointments still beats Dilettantism’ itself ensure that qualified ambassa¬ the Reagan administration’s by eight Reviewing the record of the Reagan dors will be selected. There is no way percentage points. administration, as well as the record of that Congress can legislate quality ap¬ The administration has a number of the previous administration, convinces pointments. Nor is it my intention to other points more clearly in its favor. me that the time has come to end what exclude qualified non-career individ¬ For example, nominating a career offi¬ George Kennan once called “diplo¬ uals from consideration as ambassa¬ cer, Walter Stoessel, as deputy secre¬ macy by dilettantism.” The bill I have dors. The concept of the non-profes¬ tary lends credence to the administra¬ introduced, S. 1886, the Chiefs of sional ambassador is deeply rooted in tion’s assurances that it values the Diplomatic Missions Bill, would help our history, and many Americans who career service and that greater numbers us do that. S. 1886 would amend the were not professional diplomats have of career ambassadorial appointments Foreign Service Act of 1980 to provide made outstanding contributions to can be expected in the future. In addi¬ that not less than 85 percent of the American diplomacy. We will con¬ tion, while it is true that more posts total number of chiefs of mission be tinue to need the new ideas and fresh have switched from career to non-ca¬ members of the career service. perspective which they bring to diplo¬ reer, a number of the most important The approach which this bill takes is macy. posts, such as Moscow and Beijing, not new. In 1973, Arkansas’ J. Wil¬ My intention in introducing S. have shifted the other way. This sug¬ liam Fulbright, then-chairman of the 1886 is to control the abuse of ambas¬ gests what every statistician knows: Senate Foreign Relations Committee, sadorial appointments for patronage That numbers will tell you anything tried unsuccessfully to pass legislation purposes and to strengthen the career you want them to. It also suggests that limiting the percentage of non-career service. To achieve these objectives, they should not be the sole indicator of ambassadors. In each of the next two the bill would affect the nomination the health of the career service. years, I introduced bills placing a 20- and confirmation process in three After studying the administration percent limit on non-career appoint¬ ways: and AFSA arguments, my own conclu¬ ments. Although neither of these mea¬ • First, the bill, if enacted into sion is that both sides place too much sures passed, the Senate in 1976 did law, would encourage more careful emphasis on whether the situation is adopt my compromise amendment to scrutiny of non-career appointments “better” or “worse” under the current the State Department authorization within the administration. A presi¬ administration than its predecessors. 1 bill providing for a 25-percent limit on dent who knows that he has a limited
APRIL 1982 31 number of non-career appointments confirmation process knows, the Sen¬ then, to expect that the confirmation can be expected to make choices with ate rarely challenges a president’s am¬ process will screen out any but the considerable care; bassadorial nominations. Most mem¬ most obviously unqualified nominees. • Second, a limit on non-career bers of the Senate believe the president My main aim in limiting the num¬ ambassadors would act as a shield to is entitled to have those whom he ber of non-career chiefs of mission is to protect well-intentioned administra¬ wants serving him. In general, we have strengthen the career service. Obvi¬ tions from the temptations and pres¬ neither the time nor the inclination to ously, there have been career ambassa¬ sures of patronage politics. And it engage in bruising battles over a single dors who were not qualified for their would restrain administrations more ambassadorial nomination, unless the posts. Every Foreign Service officer has prone to spoils than to merit; selection is palpably egregious. Politi¬ a favorite horror story to tell. And it • Third, a limit on non-career ap¬ cally, there is little to be gained from would be naive to assume that all fu¬ pointments would offset the strong such a fight, and contrary to the ste¬ ture career ambassadors will be quali¬ bias in the Senate in favor of confirma¬ reotype, most senators do not enjoy fied. However, in the long run, the tion of nominees. grilling a hapless nominee in front of best hope for having consistently well- As any long-time observer of the his family and friends. It is unrealistic, (continued on page 36.)
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APRIL 1982 33 manners and behavior. As an example stood, hand in hand like Tweedledee Bussing may be a of the power of the political pucker, and Tweedledum, but speaking ear¬ recall Jimmy Carter’s ineffectual buss¬ nestly of oil embargoes, the poetry of hot issue in the ing of Leonid Brezhnev on national Omar Khayyam, and the political television just after they signed the machinations of their common en¬ United States, but second SALT treaty. No wonder it emies. never passed the Senate! The successful My friend has since retired and lives overseas it’s the foreign affairs professional should in Kansas with his excellent collection therefore be attuned to this variety that of Mideastern art, tapestries, and car¬ essence of is the spice of diplomatic life. pets. I am told he frequents the local Take, for example, the Mideastern Lions Club, where he discusses busi¬ custom of greeting male colleagues ness and politics at a distance of about diplomatic cool with hugs and kisses. This is quite three meters, a habit the unsuspecting normal for the Mideasterners. But dip¬ other members find a bit odd. By JIM SLACK lomats from English-speaking coun¬ The Asians, for their part, are as tries, in particular, find it difficult to friendly as the Mideasterners, but cus¬ As a veteran of more than three respond—unlike, say, their Mediter¬ tom prevents them from indiscrimi¬ thousand diplomatic dinners, ranean counterparts. The latter may nately embracing everybody in the receptions, and cocktail par¬ flinch ever so slightly when embraced room. In my view, the Asian pecking ties, I have had the opportunity to ob¬ by another male, but they usually carry order, so to speak, is more impeccable. serve the manner in which my Foreign the moment with an insouciance en¬ It is flexible enough so that a polite Service colleagues conduct themselves vied by the English speakers. The greeting can be extended even to a per¬ at these affairs. The chief function of Mediterraneans understand that Mid¬ son who is currently out of favor. Mind most diplomatic soirees, observers eastern men, by custom, express re¬ you, the Asians know how to adminis¬ generally concede, is to provide an in¬ spect for another man by exchanging ter a snub, but it is both classic in its formal setting in which one can cross- an embrace. simplicity and graceful in execution. examine representatives of other na¬ Puckered Poker Face While most English-speaking male tions on matters of mutual importance diplomats keep a stiff upper lip when in order to file a trenchant dis¬ Despite their Foreign Service train¬ confronted by an affectionate male, patch attributed to “knowledgeable ing, English-speaking diplomats pre¬ they are less reluctant when it comes to sources.” The other fellow usually files fer a manly handshake when greeting embracing women. Hand-kissing, of a dispatch too, thus making the eve¬ male colleagues or, if overcome by course, went out with dress swords and ning a success for all concerned. emotion, a hearty slap on the back. A plumed hats, so that ancient art re¬ But there is another aspect to these learned American friend of mine quires a sense of history and real savoir- gatherings which has escaped the served for many years in the Mideast. faire. Even the French and the Italians scholars, and that is the manner in He spoke graceful Arabic and was seldom attempt the maneuver any¬ which diplomats choose to bestow or scholarly in his knowledge and appre¬ more, unless they happen to pre-date receive an embrace. The way a male ciation of the region’s history, culture, Maurice Chevalier. diplomat embraces a woman—or a and customs. Yet, when thus em¬ A loving smack on the cheek among man, for that matter—is almost a dead braced, he stood like a poker, eyes equals, however, is quite acceptable, giveaway as to his nationality and must popping, looking for the nearest exit. unless the woman’s husband is tempo¬ be not only respected but returned in At various gatherings one of his rarily personna non grata for having kind, though no amount of training counterparts, a man whose intellect he worn tennis shoes to a Vin d’Honneur. can entirely filter out deeply inbred admired, used to grab his hand and In this case, she gets a frosty little wave refuse to relinquish it until their con¬ of the hand from across a crowded Edward “Jim” Slack is a retired Foreign versation ended. My friend would oc¬ room. Service information officer who now lives in casionally make a feeble effort to free In any event, it has been my obser¬ Bangkok, Thailand, where he is a free¬ the imprisoned hand, flopping it vation that kissing women is definitely lance writer, and too far away to give les¬ about weakly, but his colleague hung in among the English-speaking men. sons or advice on his topic. on with oblivious tenacity. There they Cheers! One expects, though, that the
34 FOREIGN SERVICE JOURNAL Pecking Order
male diplomat will exercise discretion note that, while he is politically as¬ would know she was in for it and brace in choosing the women to receive his tute, he is subject to fits of uncontrol¬ for the inevitable. I once saw this man highly touted kisses. He must observe lable passion. enthusiastically buss no fewer than our own American pecking order. An Most male diplomats are discreet eight women in a single evening. To¬ ambassador, for instance, may kiss all when it comes to kissing women at day, he has been mysteriously assigned the women he wants to—but rarely parties. They respect the pecking order to an isolated post. does. He did not rise to ambassador by and do not go around willy-nilly kiss¬ My advice to young diplomats em¬ showering kisses with abandon. ing every woman in sight. But, alas, barked on a career which may well in¬ Junior officers usually confine their one friend, an otherwise stable and clude thousands of parties is to play it kisses to the wives and girl friends of productive officer, had the unfortunate cool. Be graceful and responsive with their peers. On special occasions— trait of becoming instantly puckered diplomats from male-oriented socie¬ New Year’s Eve, Bastille Day, the when exposed to a roomful of attractive ties. Be very choosy in kissing women. Fourth of July, or St. George’s Day— women. The women would quickly Some women may like it, others will when the guests are mostly compatri¬ scurry for cover upon sighting him—if think you are a boor and should be ots, the junior officer, if emboldened they were fast enough. He was a clever somewhere else selling insurance. Re¬ by champagne or a series of double fellow, however, and pursued them spect the customs of our society; expect bourbons, might decide to plant one into the farthest corners. Sometimes he the customs of others. Remember that on the ambassador’s wife. Under these would spot a cowering woman at fifty practices vary. Otherwise, you may get circumstances, he may be forgiven, paces and fix her to her spot by shout¬ the treatment given by the Eskimos, but it is more likely his record will ing, “Ah, there you are, my dear!” She who will rub your nose in it.
APRIL 1982 35 The Fashoda Syndrome Let us not, therefore, take Europe for granted; another serious conflict in Politics or Merit? (Continued, from page 21.) the Third World such as Suez, the oil (continued from page 32.) deeply felt, fails to answer the basic crisis of 1973, or even Afghanistan qualified ambassadors clearly lies in question of how to provide for security would drive Europe even farther away strengthening the career service. One in Europe and protection of overseas and weaken irreparably the fabric of of the most important ways of accom¬ interests. What, then, is it all about? Atlantic cooperation. On the other plishing this is to increase the prospect We are reminded constantly that since hand, recognition of Europe’s needs that career officers can aspire to the the decline of U.S. power during the and interests in a new entente that highest positions in their profession. 1970s, Europe has had no choice but takes account of Third World affairs, Without this possibility, it is difficult to seek its own salvation as best it and perhaps involves a division of la¬ to see how we can continue to attract can—an explanation which rather begs bor, could lower the level of frustration and retain trained, dedicated individ¬ the question. More ominously, could and strengthen the alliance. The At¬ uals at a time when Foreign Service life this urge for independence be the lantic Council of the United States involves increasing hardships and dan¬ stalking horse for a choice, which can¬ urges greater coordination and consul¬ ger. Limiting non-career appoint¬ not be admitted, privately or publicly, tation among NATO allies on Third ments is not just a matter of fairness to toward accommodation with Soviet World matters. German political sci¬ the career service, it is a question of the power following the decline of U.S. entist Wichard Woyke recommends a best interests of the country. authority? division of labor in the Third World Ambassadors in Acting Tough in Europe and creation of a new, permanent co¬ ordinating committee to handle affairs An Uncertain World At this juncture, one thing seems outside the NATO area. There are many Whatever the fate of S. 1886, it is evident. If the United States wishes to other recommendations for ways of obvious that the United States needs retain the good will of Western Europe coping with this problem. more than ever to be represented and to preserve the alliance, it can no Through an arresting historical per¬ abroad by the best men and women we longer do so merely by acting tough in sistence, modern strategic rivalries can find. Perhaps we cannot aspire to Europe. In what may seem to Eurocen¬ have resurrected Fashoda from the the heights of those glorious years tric diplomats something of a paradox, dust-bin of history. Fashoda was im¬ when future presidents represented more fruitful relations could result and portant because it affected the security America abroad. But we can certainly the alliance could be strengthened, of Egypt, Egypt because of the Suez aspire to a better system than we have now as in 1904, through cooperative Canal, India, and the British empire. now. Skillful diplomacy is more im¬ understandings in the Third World. For a United States with its own vital portant today to the security of the “Here is what appears to be, perhaps, interests “east of Suez,” Egypt is again United States than at any time since the greatest weakness of the present a vital component in the world power the Republic was created. The United American administration,” writes matrix. Like Britain, the United States States now finds itself in a world in Dieter Dettke, a member of the Euro¬ must deny Egypt to a rival power at all which it cannot readily impose its will pean parliament for the German Social costs. The Sudan is still important be¬ on others nor retreat to the safety of Democratic party. Europe criticizes cause it still affects the security of isolation. Where we once could use the United States, seeks to convert it Egypt. Who can say that Fashoda (now military or economic power to work with Brandt Commission reports, and named Kodok) may not again become our will in the world, we now find pushes it into the Cancun summit and a flashpoint in a new East-West crisis? ourselves constrained and our options global negotiations because the United But the ultimate meaning of Fa¬ limited. The United States can no States, with its power and economic shoda today is that the Western com¬ longer go it alone. As crises in Poland, size, will determine whether the future munity must take a more spacious Afghanistan, and the Mideast show, is to benefit or damage Europe. Edgar view of its primary relations, a view we need the support of our allies, we Pisani of the European Commission that includes not only Europe and need the cooperation of non-aligned states that the present U.S. approach North America but relations with the countries, and we need to communi¬ could entail "serious risks,” and that Third World as well. These relations cate clearly with our potential adver¬ the only hope is for Europe to reverse can no longer be conducted as the by¬ saries. Bargaining, negotiation, and the course by “sheer determination.” product of a Cold War strategy or eco¬ consensus building are the order of the The fault is not all on one side; far from nomic free marketeering. They must day. To succeed in such a world, we it. European performance frequently be raised to top priority. For the Unit¬ must ensure that our side of the table is falls short of its rhetoric: its reluctance ed States particularly, a new entente peopled with skilled and experienced to negotiate nontariff barriers during with Western Europe over Third diplomats, who are imbued with a the Tokyo Round and its intransigence World differences may, at the least, knowledge of history and who have the during the 1978-79 renegotiation of avoid another serious rift. At the most, wisdom to understand why Napolean the International Wheat Agreement. it may provide Europe with the confi¬ said: “Essentially, the great question But, on the whole, Europe seems to be dence and flexibility it seeks to contin¬ remains ‘Who will hold Constanti¬ the most aggrieved party. ue to grow within the alliance. EH nople?’ ” EH
36 FOREIGN SERVICE JOURNAL retired in 1975 he was the director of Post in Wyoming. He later worked for the emergent markets in the Latin American Chicago Tribune and the Pittsburgh Post be¬ FOREIGN division of the Office of International fore coming to Washington in 1916 as the Marketing. press secretary of Representative Guy E. SERVICE Survivors include his wife and three Campbell. Huntley also worked for the children. The family suggests that expres¬ Pittsburgh Post-Gazette, Washington Times, sions of sympathy be in the form of contri¬ Pittsburgh Sun-Telegraph, and the Detroit PEOPLE butions to a charity of one’s choice. Times. In 1950 Huntley joined the Office of 1982 AFSA/AAFSW Merit DAVID W. CHRISTENSON, an Agency for International Information in the State De¬ Award Panelists International Development official, died partment where he worked as the USIA’s in an automobile accident on January 29 in chief congressional correspondent until he Envelopes with exotic stamps from world¬ Waupaca, Wisconsin. Christenson was retired in 1961. Survivors include his wide overseas posts have been bringing ap¬ serving as chief of the Agriculture Division wife, three children by a previous mar¬ plications for the 1982 AFSA/AAFSW of AID in Kenya. The family suggests that riage, and a sister. Merit panelists to review. On April 1, contributions be made to the AFSA Schol¬ twenty Foreign Service volunteers from arship Fund. HELEN ORHON, long time American resi¬ State, AAFSW, AID, ICA, and the retired dent of Izmir, Turkey, died last year. She Foreign Service community, plus the six ANDREW VINCENT CORRY, a former For¬ was 83. Committee on Education members, will eign Service officer, died of emphysema “Aunt Helen,” as she was known, came sit on four panels to determine the win¬ November 24, 1981, in San Diego, Cali¬ to Turkey in the late 1920s. She was a ners. The 1982 awards are named in honor fornia. He was 77. nurse with the American Board of Foreign of Betty and Norris S. Haselton, long¬ Born in Missoula, Montana, Corry was a Missions serving in Gaziantep. Orhon did time supporters of both AFSA and graduate of Harvard University and a volunteer work for many years at the AAFSW activities. Rhodes Scholar. Corry joined the State De¬ American Girls School. The Merit awards are given in recogni¬ partment in 1947, serving as minerals at¬ According to Beauveau B. Nalle, Con¬ tion of academic excellence and commu¬ tache in New Delhi. He later served as sul General of Izmir, she was “theoretially nity contributions of graduating high consul general to Pakistan and coordinator a lunchroom supervisor, but more usually school students at home and abroad. The of Senior Foreign Service policy. He was a sort of ‘resident grandmother’ to give members of the review panels are as fol¬ ambassador to Sierra Leone from 1964 to advice, strength, and wisdom to all, lows: State — Robert Perry, William 1967, and then served as ambassador to Sri Americans and Turks alike, who came to Weatherford, James Williams, Harriet Lanka and the Maidive Islands until his her. . . . Aunt Helen’s warm, helpful ex¬ Culley; AAFSW — Patricia Barbis, Mar¬ retirement in 1969. Corry was a recipient ample will never be forgotten by those who garet Simons, Jean Teare, Lesley Dorman; of the State Department’s Commendable had the opportunity to know her. Her ra¬ AID — Barbara Ann Dotherow, Fermino Service Award. diant personality, charm, youthful enthu¬ Spencer, Lou Ann Douris, Juanita Mofflet; In a tribute to Ambassador Corry, dur¬ siasm, and common sense made her truly a ICA — Harvey Leifert, Sam President, Jan ing a special session of the House of Repre¬ beautiful American.” Zehner, William Dawson; Retired FS — sentatives, Rep. Thomas Foley (D.- Leslie Brady, Elizabeth Cabot, Roger Wash.) said of Corry, “His rich legacy WILLIAM W. SCHOTT, a diplomat for more Ernst, James McDevitt. The AFSA Com¬ consists in his extremely distinguished than 30 years, died at his home in Bad mittee on Education members are Hon. service to his country over many years and Godesberg, Germany, on November 2. H.G. Torbert Jr., Chairman; Robert Caf- in the high regard and warm memories of He was 88 years old. frey, State; Stephen Chaplin, ICA; David his many friends.” Schott graduated from the Naval Acad¬ T. Jones, State; Sheila Mack, AAFSW; emy in 1916 and served on subchasers and and James Singletary, AID. Winners will MURIEL QUINN GREENWELL, a retired For¬ destroyers in the Atlantic during World be announced May 1. eign Service officer, died of leukemia Janu¬ War I. After a severe back injury, he re¬ ary 25 in Fairfax, Virginia. She was 61. tired as a lieutenant commander. A native of Washington, Greenwall He entered the Foreign Service in the Deaths worked during World War II in the Office early ’Twenties and served in many posts BERNARD J. CAHILL, a retired foreign trade of the Coordinator of Inter-American Af¬ before the war, including that of private official with the Commerce Department, fairs. She was a personnel officer with the secretary to Ambassador Myron Herrick in died of a lung ailment on January 14 in U.S. Information Agency from 1948 to Paris. When the Allied army occupied Fairfax, Virginia. He was 71. 1955, and then joined the State Depart¬ North Africa, Schott was sent to Oran, Born in Alameda, California, Cahill was ment as an administrative officer in the Algeria, where he acted as liaison officer to a graduate of the University of California passport division. She is survived by her the Army, Navy, and the OSS under the at Berkeley. He joined the Labor Depart¬ mother and a brother. command of Undersecretary of State for ment in 1939 and later worked for the Political Affairs Robert Murphy, who War Production Board and served in the THEODORE ALAN HUNTLEY, a retired chief commended Schott highly for his war serv¬ army during World War II. Following the congressional correspondent for the U.S. ice. At the end of hostilities he went to war, Cahill worked for the Civilian Pro¬ Information Agency, died of arteriosclero¬ Berlin as protocol officer under General duction Administration and then joined sis on January 10 in Annandale, Virginia. Clay and later became the chief of liaison the Commerce Department. From 1958 to He was 93. and protocol for the Allied Tripartite I960 he was a commercial attache with the Born in Greenville, Michigan, Huntley Commission in Bonn, where he remained U. S. Embassy in La Paz, Bolivia. When he began his career in 1910 with the Sheridan until retirement from the Service in 1956.
APRIL 1982 37 He moved to Bad Godesberg, where he remained until his death. His wife, Janet Mabon Schott, preceded him in death.
DAVID D. SHERMAN, a retired Foreign FOREIGN EXCHANGE Service officer, died of chronic brain syn¬ drome February 3 in Wheaton, Maryland. He was 75. Born in Brooklyn, Sherman graduated PROPERTY RENTAL BOOKS from National University Law School. He joined the State Department in 1950, and HOME LEAVE: Summer home, five bedrooms, IF YOU ARE LOOKING for an out-of-print book, perhaps I can find it. Dean Chamberlin, FSIO-re- his foreign posts included Japan, Thai¬ three baths, overlooking Long Island Sound near Branford, CT, available monthly July and/or August. tired. Book Cellar, Freeport, Maine 04032. land, Korea, Nigeria, and Brazil. He is Swimming off rocks or private beach, sailing, ten¬ survived by a brother. nis, IDEAL FOR CHILDREN. COMPLETELY fur¬ CURRENT PAPERBACKS airmailed within 5 days nished and equipped. Write G. Cooke, 304 Admin., at reasonable prices. Send for monthly list to Circle Enterprises, Box 1051, Severna Park, Maryland CHARLES W. SMITH JR., a former public Syracuse University, Syracuse, NY 13210 or call 21146. opinion analyst at the State Department (315) 423-4431 day, or 479-9196 evenings. from 1945 until his retirement in 1964, HOME LEAVE OR VACATION RENTAL: Moun¬ RENT A USED CAR died January 19 of a heart ailment in Kis¬ tain-top chalet, spectacular view, side of Cannon simmee, Florida. He was 77. Mountain, Mittersill complex, Franconia, N.H. 4 SPECIALIZING in safe, reliable USED CAR trans¬ Before joining the State Department, twin-bedded rooms. Ideal 6-8 people. Completely portation for $12.95/day FREE MILEAGE furnished. Swimming pool, tennis courts within Smith taught at several universities and ALLOWANCE. Special LOWER rates for week or complex. $300/week, $1100/month. (301) 229- colleges and wrote a textbook Public Opin¬ month. Ideal when shipping POV or on HOME 5731.5101 Cammack Drive, Bethesda, MD 20816. ion in a Democracy. He is survived by his LEAVE. Request brochure to DRIVE-A-BARGAIN wife, a son, and two sisters. RENT-A-CAR, 2850 Jefferson Davis Hwy., Arling¬ REAL ESTATE ton, VA 22202. (703) 684-0070.
LESLIE A. SQUIRES, a retired Foreign Serv¬ HOMELESS? WORRIED about buying or selling a TAX RETURNS ice officer and former assistant director of house when you return to the U.S. or go overseas? the U.S. Information Agency, died Sep¬ Life in the Foreign Service merry-go-round has giv¬ TAX PROBLEMS, return and representation. Com¬ tember 6, 1981. He was 67. en me a special understanding of your real estate pare our low professional rates. T. R. McCartney concerns. Write me or call collect. Elizabeth H. Squires entered the Foreign Service in (ex-FS) and John Zysk (ex-IRS), Enrolled Agents. Masters. VAN METRE PROPERTIES, INC,, 9880 Business Data Corp., P.O. Box 57256, Washing¬ 1942 and during World War II served in Main St., Fairfax, VA 22031. (703) 385-3930. Mexico, Egypt, Turkey, and Hungary. ton, D.C. 20037. (703) 522-1040. His postwar assignments included El Sal¬ NORTH MYRTLE BEACH. Thinking of a vacation TAX RETURNS. All tax matters including consulta¬ or retirement home, or other investment in coastal vador, Greece, India, Morocco, Pakistan, tion, extensions, filing one late return, IRS repre¬ South Carolina? If so, call or write Bill Dozier (FSO- and Bangladesh. He served as assistant di¬ sentation, for one annual fee ($125). Milton E. Carb, retired), Dozier Associates, POB 349, North Myrtle E.A., 833 S. Washington St., #8, Alexandria, VA rector of USIA from 1971-72. Beach, S.C. 29582. Tel. (803) 249-4043. A graduate of Stanford University, 22314. (703) 684-1040. Squires was the recipient of the USIA CHARLOTTE COUNTY-Charlotte Harbor, FL. meritorious award, the State Department Personal Real Estate Service without obligation to INVESTMENTS Foreign Service and retired personnel. JOHN distinguished honor award, and AFSA’s DONEY, AID(ret.). Realtor, Licensed Real Estate Herter award. Broker, 3335-C Tamiami Traii (Hwy. 41), Port Char¬ INVESTMENTS: G. Claude Villarreal (former Survivors include his wife, the former lotte, FL 33952. (813) 627-2024. FSIO), Account Executive, Dean Witter Reynolds Inc., 1850 K Street, N.W. Washington DC 20006. Eloise Lanham, and three children. The (202) 862-9000. Members New York Stock family suggests that expressions of sympa¬ RETIREMENT HOME FOR SALE: Brown's Dam - low taxes. Write Mrs. Henry Stokes, RD1, Box 340, Exchange. thy be in the form of contributions to the New Oxford, PA 17350. (717) 624-2997. AFSA Scholarship Fund. INVESTMENTS: Individual Retirement Accounts WINCHESTER, VIRGINIA: Foreign Service family allow all taxpayers $2000 deduction from taxable must sell 50-acre working farm. Beautiful 1780 income in 1982.1 sent your administration and com¬ Marriage stone house, 90% restored. Barn; pasture with wa¬ mercial officer details. Listed are a dozen alterna¬ ter. Fields can be rented to local farmers. $155,000. tive investments suitable for IRAs available through JORDAN THOMAS ROGERS, a retired For¬ (212) 755-0482. Bruce Lancaster (FSO, Retired), Paine Webber, eign Service officer, was married to 1120 20th St., NW, Washington, DC 20036. (202) 887-6082 or (800) 424-2875. Eunice M. Middleton on June 14, 1981, PROPERTY MANAGEMENT in Landisburg, Pennsylvania. The EXCHANGE RATES couple are making their home at 148 At your next party, you'll be able to rave about us! Old Ford Drive, Camp Hill, Pa. 17011. POTOMAC PROPERTY MANAGEMENT, 602 Pendleton St., Alexandria, VA 22314. Taking care Classified advertising in the FOREIGN EXCHANGE is of your house is our ONLY business. (202) 362- open to any person who wishes to reach the profes¬ Event 2543, (703) 548-3029. sional diplomatic community. The rate is 50 cents per word per insertion. Telephone numbers count ELEANOR DICKINSON, a frequent cover art¬ as one word and zip codes are free. To place a ist for the Journal, will have her African CEMETERY LOTS classified ad, to inquire about display-classified trade cloth paintings on view, April 16- rates, or to receive our rate card for regular display May 22, at the Textile Museum Shop Gal¬ ROCK CREEK: Choice sites, original area, reduced advertising, write Foreign Service Journal, 2101 E St. NW. Washington, DC 20037. Checks should lery, 2320 S St., N.W., Washington, price. Contact Steeves, (717) 642-5431, Carroll Valley, PA 17320. accompany all classified insertion orders. D.C.
38 FOREIGN SERVICE JOURNAL Overseas insurance either replaces your ■ household effects _ at today’s prices or
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