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FOREIGN SERVICE JOURNAL published, monthly by THE AMERICAN FOREIGN SERVICE ASSOCIATION

SEPTEMBER 1954 Volume 31, Number 9

CONTENTS page 20 FEDERAL EMPLOYEE SECURITY PROCEDURES by Security Minded 24 UNITED NATIONS CHARTER REVIEW THE AMERICAN FOREIGN SERVICE by Lincoln P. Bloomfield ASSOCIATION 26 RIF AND RETURN by Melville E. Blake, Jr. Honorary President JOHN FOSTER DULLES, Secretary of State 29 THE FEW BOOKS I HAVE VENTURED TO BUY Honorary Vice-Presidents THE UNDER SECRETARIES OF STATE by David W. Heron THE DEPUTY UNDER SECRETARIES OF STATE THE ASSISTANT SECRETARIES OF STATE 30 FOREIGN SERVICE SCHOLARSHIPS THE COUNSELOR THE DIRECTOR GENERAL OF THE FOREIGN SERVICE 35 THE NEW FOREIGN SERVICE: II SELECTION JOHN D. HICKERSON, President BOARDS DURING INTEGRATION EDWARD T. WAILES, Vice-President BARGARA P. CHALMERS, Executive Secretary by George H. Butler board of directors 38 EXCHANGE OF LETTERS ON INTEGRATION ANDREW B. FOSTER, Chairman V. LANSING COLLINS, JR., Vice-Chairman Charles E. Saltzman—Andrew B. Foster TYLER THOMPSON PARKER T. HART, Assistant Sec.-Treas. PHILIP W. BONSAL departments Alternates ROBERT F. WOODWARD 4 LETTERS TO THE EDITORS WILLIAM C. BURDETT, JR., Secretary-Treasury ROLLIE H. WHITE, JR. 14 TWENTY-FIVE YEARS AGO by James B. Stewart journal editorial board 19 NEWS TO THE FIELD by Lois Perry Jones RAY L. THURSTON, Chairman CHARLES F. KNOX, JR. 32 SERVICE GLIMPSES EDMUND GULLION RICHARD A. POOLE 34 EDITORIALS LF.E E. METCALF EDWARD W. MULCAHY 39 NEWS FROM THE FIELD LOIS PERRY JONES, Managing Editor GEORGE BUTLER, Business Manager JANE D. FISHBURNE, Circulation Manager and 43 THE BOOKSHELF—Francis C. deWolf, Review Editor Editorial Assistant Kenneth P. London Warrick E. Elrod, Jr. Helen G. Kelly The AMERICAN FOREIGN SERVICE ASSOCIATION is an unofficial and voluntary association of the members, 50 AMONG OUR CONTRIBUTORS active and retired, of The Foreign Service of the United States and the Department of State. The As¬ sociation was formed for the purpose of fostering 50 BIRTHS, MARRIAGES, IN MEMORIAM esprit de corps among members of the Foreign Service and to establish a center around which might be grouped the united efforts of its members for the 04 FOREIGN SERVICE CHANGES improvement of the Service. The FOREIGN SERVICE JOURNAL is not official and material appearing herein represents only personal 04 INDEX TO ADVERTISERS opinions, and is not intended in any way to indicate the official views of the Department of State or of the Foreign Service as a whole. The Editors will consider all articles submitted. If accepted, the author will be paid a minimum of one cent a word on publication. Photographs ac¬ companying articles will, if accepted, be purchased at one dollar each. Five dollars is paid for cover pictures. Reports from the Field, although not paid COVER PICTURE: The steeple or bell tower, part of the for, are eligible for each month’s $15 Story-of-the- Month Contest. ruins of the Church of Recoletos in the old walled city of Manila. The church was one of many de¬ stroyed when Manila was liberated from the Japanese Copyright, 1954, by the American Foreign Service by American forces. Photo by Mason E. Proudjoot, Association. Issued monthly at the rate of $3.00 a year, 25 cents Jr. a copy, by the American Foreign Service Association, 1908 G Street, N. W., Washington, D. C. Entered as second-class matter at the Post Office in Washington, D. C., under the Act of March 3, 1879. Printed in U.S.A. by Monumental Printing Com¬ pany, Baltimore. ^ eJLAxH-A. T^Q.

Pseudonyms may be used only if your letter includes your correct a$?Sdtfud&c... name and address.

Tec... O N COUNT CALEB CUSHING” Washington, D. C. July 22, 1954 To the Editors, FOREIGN SERVICE JOURNAL: In the FOREIGN SERVICE JOURNAL, April issue, 1954, at p. 26 and If, Mr. Paul Miller writes interestingly on the “Cush¬ ing Mission to China.” In the first paragraph Mr. Miller states that Cushing “was given [by his own government] title of Count,” etc. In the JOURNAL’S July issue, on p. 10, Mr. Andor Klay, in a letter to the editors, writes that “One should like to know a little more about this intriguing bit of information. . . .” Well, “history” does indeed repeat itself, and “correction” does indeed all too often not catch up with error. I, too, once wondered about that “Count” business, and I too in due course wrote about it; and here—it was printed in The New England Quarterly, Vol. 1. January 1928, at pp. 80-82—is what I wrote: “A tradition is rapidly hardening to the effect that Presi¬ ns dent Tyler, in his letter accrediting Caleb Cushing as the first American minister to China, gave the Yankee diplomatist the title of Count. It seems proper to challenge this tradition be¬ fore it becomes embedded in school texts and popular his¬ tory, even at the cost of spoiling much sport and extinguish¬ ing an alleged United States-given patent of nobility. “Mr. Claude M. Fuess, in his Life of Caleb Cushing (New York, 1923), i, 418-20, remarks: “ ‘Cushing was made the bearer of a letter, addressed to the Emperor of China and signed by the President of the United States, but actually composed by Webster. . . . The The Greatest Name letter reads in part as follows: “ ‘ “Now my words are that the Governments of two such countries should be at peace. It is proper, and according to in Motor Oil the will of Heaven, that they should respect each other, and act wisely. I therefore send to you Count Caleb Cushing, one of the wise and learned men of this country’. . .” Jbr kdp “ ‘To us,’ (comments Dr. Fuess), ‘the choice of “Count” as a title for Caleb Cushing is a delightful touch; but Webster’s sense of humor was always somewhat heavy and he probably composed this masterpiece without a smile.’ “The letter in question was never delivered, as Cushing did not proceed to Peking hut began and completed his negotia¬ tions at Canton. The letter has, however, been the subject of no end of curious comments and gibes on the part of SOCONY VACUUM Oil Co., Inc. various and sundry writers and speakers, some directed at 26 BROADWAY Tyler, some at Webster, and some at the Department of NEW YORK 4, NEW YORK State. For the moment, it is not the writer’s purpose to dis¬ cuss the authorship or the quality of the letter, although it may be remarked in passing that the authorship has been a Mobiloil subject of speculation and that serious thought with regard SOCONV-VACUUM to time, circumstance and antecedents should place the verbiage of the letter itself in a different perspective from that in which a number of critics have viewed it. The busi- WORLD'S LARGEST SELLING MOTOR OIL (Continued on page 6)

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SEPTEMBER, 1954 5 LETTERS TO THE EDITORS (from page 4) ness of the moment is to inquire how there came to be con¬ ferred upon Cushing the title of ‘Count.’ “The text of Tyler’s letter will be found where it was origi¬ nally printed, in 2nd session 28th Congress, Senate Document No. 138 (Washington, 1845), p. 8. The correspondent para¬ graph there reads: “ ‘Now, my words are, that the Governments of two such great countries should be at peace. It is proper, and accord¬ ing to the will of Heaven that they should respect each other, and act wisely. I therefore send to your Court Caleb Cush¬ ing, one of the wise and learned men of this country. . . .’ “Thus, neither President Tyler nor his Secretary of State gave Cushing a title. Who did? Dr. Fuess is not the first commentator to have remarked its existence. FEDERAL STORAGE “In the first edition of John W. Foster’s American Diplo¬ macy in the Orient (February, 1903) there is given an ex¬ cerpt from the text, with proper reference to the original document. In the excerpt (p. 82), appears this reading: ‘I COMPANY therefore send to you Count Caleb Cushing, one of the wise Every Modern Facility for the Safe Handling and learned men of this country.’ Here we have it, and the and Care of Household Treasures source is obvious—a mere misprint. Instead of ‘I therefore send to your Court Caleb Cushing’ the typesetter has pro¬ duced ‘I therefore send to you Count Caleb Cushing,’—and FOREIGN SERVICE the proof-reader and the author have failed to stop the run. In the 1904 printing, the error still stands. In later printings, • LIFT-VANS. We handle Bowling Green steel lift-vans exclusively in Washington. Experi¬ from the title pages of which the publishers have chosen to ence for safety in these well known containers since omit the date, correction has been made. Thus, in a printing the turn of the century speaks for itself. Door to door service is available throughout most of the of not later than 1914, the text appears correctly: ‘I therefore world. We also use wooden vans and cases of all send to your court Caleb Cushing.’ sizes. Recently we have constructed a branch build¬ “Writers who have been surprised or amused at Cushing’s ing across the river in Alexandria, equipped with every modem device for packing and foreign ship- title have apparently relied upon the text of the early editions ping. This building has its own private railroad of Foster’s work. Their surprise was warranted; their amuse¬ spur and motor freight terminal to expedite service, ment harmless. But the choice of ‘Count’ as a title for Caleb and maintain our “on schedule” reputation. Cushing was obviously no part of the preparation made by • WORLD-WIDE INSURANCE. the American Government for Cushing’s mission in 1843; it Complete coverage is available for your household was presumably the ‘delightful touch’ of Mr. Foster’s copyist, goods while in our motor vans, in our lift-vans, in or of a typesetter in the employ of the Riverside Press, Cam¬ our depository, or in your home. Just communi¬ cate with our Insurance Department. Most favor¬ bridge, in the year 1903.” able fire insurance rates apply to your goods in If, however, notwithstanding that excursion, there is any storage, due to the recognized superiority of our other basis for belief and affirmation that Tyler or Webster facilities. or Cushing or some misguided “drafting officer” (“clerk”) — • AUTOMOBILE SHIPMENTS. or any or all of those—thought to beguile the Emperor of We specialize in boxing automobiles. We also China by creating and commissioning to him a “Count,” let have driveaway service to or from pier for auto¬ mobiles which do not require boxing. him who has or who can find the evidence produce it. If not, it may well be in order for each and all of us to make it one We are members of the National Furniture Warehousemen’s Association, the Canadian Warehousemen’s Association, the of our concerns to do what w'e can toward liquidating the British Association of International Furniture Removers, and F.I.D.I. (Federation Internationale des Demenaguers myth, the substance and the implications of which have been Internationaux.) gratuitously disparaging to the good repute of the alleged perpetrators of what would have been a silly hoax. Much of 1701 Florida Avenue “history” is bad enough at its best. Definitely bad “history” Washington 9, D. C. handicaps good diplomats. Stanley K. Hornbeck Telephone ADams 4-5600 Cable BOWLINGVAN GOOD DOMESTIC INSURANCE E. K. MORRIS, President; H. 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SEPTEMBER, 1954 LETTERS TO THE EDITORS thorn page 6) Effects Insurance”—a letter which constitutes a very effec¬ tive free advertisement for London Lloyd’s policies. For nearly half a century now our Insurance Department has been working to obtain through our American underwriters policies of insurance for Foreign Service Officers equal to those of foreign underwriters. Furthermore, over that period of time we have continuously been bringing these American insurance policies to the attention of the Foreign Service through paid advertisements in the “FOREIGN SERVICE JOURNAL.” United States Governmental agencies make a practice of buying American commodities as far as possible, and officers of the government are encouraged to do likewise. This prac¬ tice, however, seems not to include insurance. We are continually receiving letters from Foreign Service LONG active in promoting commerce Officers expressing appreciation of our insurance service. We among the peoples of the Americas, the do not suggest publication of any of these letters in your Chase National Bank today is in the van¬ columns, but perhaps you will mention that there are avail¬ guard of those institutions which are able to Foreign Service Officers wherever they may be sta¬ tioned insurance policies in strong American companies fully fostering Pan-American relations by the the equal of Lloyd’s or other European policies. That our promotion of trade and travel. policies are of special value to the Foreign Service is indi¬ cated by the announcement by the Foreign Service Associa¬ THE CHASE NATIONAL BANK tion in your pages last November. OF THE CITY OF NEW YORK ]. H. Cornwell Hiember Federal Deposit Insurance Corporation Security Storage Company of Washington

MORE ON ECONOMY Department of State Washington, D. C. June 3, 1954 To the Editors, LAOING FOREIGN SERVICE JOURNAL: I have always heard that a successful editor of a publica¬ jiSnSgEC: tion is one who can create or develop a controversial subject. If this be so, allow me to congratulate the writer of your “Foreign Service Economies” editorial in the May With a issue. It appears that Leon Poullada’s article made quite Permanent! FRIENDSHIP, a hit with the author of that editorial. I have no intention of writing a criticism of Leon Poullada’s entire article but, Jf*x as Acting Director of the Office of Finance, I feel required Place on to refute some of the statements regarding the accounting system and to take issue with your editorial in approving Every Bill of Lading... COLOMBIA his thoughts as “constructive.” I find them highly destruc¬ COSTA RICA tive and demoralizing. . . . CUBA Steaming North, the Great White Fleet Mr. Poullada argues that economy should take precedence carries such cargoes as bananas, coffee, over the universally accepted principle that, where a person sugar, abaca and cocoa. Returning to Mid¬ ECUADOR dle America, it may bear any commodity has custody over funds belonging to another, he must render EL SALVADOR produced in this Country. But for more a complete and satisfactory accounting of that stewardship. GUATEMALA than 50 years, our ships have always car¬ In our case, because we are the custodians of public funds HONDURAS ried goodwill and understanding. For the which are to be disposed of in accordance with specific JAMAICA, B. W. I. essence of our service has been reliability NICARAGUA mandates of the Congress, we cannot lightly accept this and usefulness; and where these exist, idea. Yet I agree that there are always opportunities to friendship is fostered too. do things better and more economically. GREAT WHITE FLEET (Continued on page 10) General Offices: 80 Federal Street, Boston ARE YOU COMING TO WASHINGTON? Let us know when, and what your housing needs are! Sales—Larchmont Realty Inc.—Rentals. Mrs. B. R. Kirby, 1073 W. Broad St., Falls Church, Va.

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SEPTEMBER, 1954 Diplomatic and Consular Officers Retired, Ine. LETTERS TO THE EDITORS (from page 8) DACOR HOUSE 1718 H ST., N.W., WASHINGTON, D. C. Mr. Poullada’s statements regarding fiscal centralization ;1 family style club of limited membership for retired display such a lack of knowledge and research that the foreign Service Officers and wives; temporary member¬ JOURNAL should have edited the article in order to qualify ship also available for a limited number of active F.S.O.’s and their wives. such words as “truth,” “fact,” etc. For example, he says that centralization of fiscal operations has usually resulted CLUB MEMBERSHIP (annually) : -Dacor Members including wives in “additional duplication of personnel and energies.” I Resident (within 50 miles) S35 have before me a summary report from twenty-six countries ISon-resident which reported that centralization saved them thirty-one Widows of officers 25 man-years and $102,000. In 1948 there were approximately -■Active F.S.O,9s and wives: 275 posts disbursing, maintaining accounts, and reporting Temporary . . . $6 per month or annually $50. to the Department, Treasury, and the General Accounting ROOMS for members and guests, including breakfast Office. On July 1, 1954, there will be only 95 such posts. Single $6, double $10. This record hardly can be construed as contributing to APPLICATIONS NOW BEING RECEIVED at above address. “duplication.” . . . Mr. Poullada has certainly exaggerated, if not misstated, An American Education for Your Child the handling of a travel voucher. Again, I shall give him the benefit of the doubt and say he didn’t know his subject. Wherever you may be stationed, Calvert “School- His statement that travel vouchers from posts are “passed at-Home” Courses can provide, by mail, a sound, upon by the Department’s Finance Division, where a con¬ modern education for your child. No teaching ex¬ perience needed. Complete, easy-to-follow lessons. siderable number of other people have to audit these vouch¬ Guidance by Calvert teachers. ers, and I are) finally sent to the General Accounting Office Books, supplies provided! Calvert Courses are for a final post audit” is absolutely false. Vouchers of all accredited, stress the fundamentals and are en¬ riched with such studies as art history, drawing sorts, including travel, which are paid at posts, are not and mythology. Children all over the world have reviewed or audited by Department employees but are sub¬ Kindergarten been educated by the Calvert method. ject to audit by General Accounting Office representatives through Start any time. Calvert-taught children transfer who are physically located within the Office of Finance of ninth easily to other schools. Send for catalog. Give child’s age and school grade. the Department. We audit only those vouchers which are grade submitted for payment in Washington. CALVERT SCHOOL f Your editorial statement that the accounting system has 130 JES. Tuscany Rd. Baltimore 10, Md. “gradually become burdensome, cumbersome, and unintelli¬ gible to the average officer,” sounds like a longing for the “good old days,” so let’s have a look at them. In 1946 the Department had fourteen appropriations AUTO INSURANCE which covered the functions now under our one Salaries

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SEPTEMBER, 1954 11 LETTERS TO THE EDITORS (from page 10) 4/10 of one per cent of the total 1951 funds. This was only FOREICN SERVICE OFFICERS AND one-third of the amount of the 1951 supplemental appro¬ PERSONNEL priation. ARE INVITED TO CONSULT, EITHER IN A complete yearly comparison of appropriations which PERSON OR BY MAIL, were equivalent to the present S '& E appropriation follows: 1946 (14 appropriations) 12.5% went to surplus WITH 1947 (14 ” ) 3.9% ” ” 1948 ( 6 ” ) 3.8% ” ” ” j. ALAN MAPHIS 1949 ( 6 ” ) 1.7% ” ” 1950 ( 1 appropriation ) 1.7% ” ” ” Chartered Life Underwriter 1951 ( 1 ) .4% ” ” ” Insurance Advisor to the American Foreign These figures are based on the annual “Digest of Appro¬ Service Protective Association priations” and the “Combined Statement of Expenditures and Balances of the U. S. Government,” both published by about the Treasury Department. I have tried to be specific in these few rebuttals. Is it Coordinating their Group Life and Permanent Life In¬ asking too much of the JOURNAL that future “constructive” surance into an individually designed program for their criticisms be as specific and that the broad-brush treatment, families resorted to by Mr. Poullada and your editorial, be avoided? This everlasting “feeling” that things are not what they Insurance to guarantee a college education for their should be is not very helpful in our efforts to improve fiscal children procedures and is certainly discouraging to the oft under¬ Retirement Income to supplement annuities paid accounting and disbursing personnel at posts who may Insurance available at many stations abroad. read such loose expressions in the JOURNAL. Both Mr. Poullada and your editorial seem to have ig¬ j. Alan Maphis, C.L.U. nored the recent complication imposed on our accountants and disbursing officers at posts by the action of Congress in 1741 DeSales St., N. W. Telephone: creating the United States Information Agency and the Washington 6, D. C. Executive 3-8141 Foreign Operations Administration as separate organiza¬ tions. Since the Department is expected to furnish all or part of their administrative support overseas, and since those agencies have accounting and reporting requirements different from (and much more complex than) the Depart¬ ment’s, wre do not have control over the workload imposed on our own employees. Louis F. Thompson Acting Director Office of Finance Editor’s Note: The JOURNAL is happy to publish the fore¬ going letter from Mr. Thompson, whose constant efforts to streamline Foreign Service accounting and fiscal procedures are a source of great satisfaction to many in the Service. The Editors of the JOURNAL fear, however, that Mr. Thomp¬ son has seized upon a single and admittedly debatable point in Mr. Poullada’s article and the accompanying editorial; whereas, a re-reading of the article and the editorial will indicate the main theme to have been a discussion of For¬ eign Service economies—also, of course, a debatable subject. Friendly hospitality awaits Foreign Service men and their families at this distinguished hotel in the na¬ HAWTHORNE AND POULLADA tion's capital. Its central location is convenient to the White House, embassies and government buildings. Manchester, England Famous for luxurious comfort, fine food and service. July 7, 1954 The Mayflower is the residence of many noted person¬ To the Editors, ages . . . the scene of internationally-important events and the favorite meeting place of society. Exclusive FOREIGN SERVICE JOURNAL: Men’s Bar. Gay Cocktail Lounge. Mr. Leon B. Poullada, in his article “Economy .... True COMPLETELY AIR-CONDITIONED .... and False” in the May issue of the JOURNAL, write “. • • • Members of the Foreign Service who were working under one set of rules relating to leave, weight allowances, travel time, length of tour of duty abroad, etc., suddenly, in WASHINGTON, D. C. the middle of the stream so to speak, found the terms C. J. Mack, Vice President ir General Manager changed to their disadvantage. . . .” A HILTON HOTEL • CONRAD N. HILTON, PRESIDENT (Continued on page 52)

12 FOREIGN SERVICE JOURNAL World’s First Refrigerator that Opens from Either Side!

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SEPTEMBER, 1954 13 c

BY I JAMES B.

25 y^rs ago STEWART

e'..

IAMER1CKAL TREATMENT: WADE HAMPTON ELLIS recently read before the Arts Club, in Washington, a collec¬ tion of limericks inspired by President Wilson. The Presi¬ dent, so states the Washington Star, delighted in this form of “poetical expression. Nothing amused him more than to submit a word for “limerickal” treatment. He frequently challenged Ellis and one day he suggested the word “wiener,” and was vastly entertained when Ellis submitted the follow¬ ing: 1 hey called it a wiener at first, And they made it as bad as they durst; But finally wiener Got meaner and meaner Until it became wiener worst.

BRIEFS: CONSUL RICHARD L. SPRAGUE, from Gibraltar, said that the Sprague family (grandfather, father, and son) had now had 97 years’ continuous service at the Rock. In commenting upon the departure of VICE CONSUL EUGENE HINKLE from Lourengo Marques, the editor of the Guardian stated that “Mr. Hinkle was the nearest approach to English speaking that America has sent us for many a Airlines use long day.” CONSUL ROBERT D. MURPHY, now assigned to the Depart¬ ment, left in July for a month’s trip in Europe. While in Germany Mr. Murphy expected to renew friendships that iheBnestl he had made during his service there. At the Rhodes Scholar Reunion at Oxford University, That is why approximately 45% of the lubricating there were present: DR. STANLEY K. HORNBECK, Chief of oil used by major scheduled airlines within the the Division of Far Eastern Affairs; CONSUL CAROL H. United States is made by Sinclair. FOSTER, of Rotterdam; VICE CONSUL BENJAMIN H. HULLEY, of Stockholm; and VICE CONSUL S. WALTER WASHINGTON, of Buenos Aires. It is believed that it was a 100 percent li¬ ii representation of officers who are former Rhodes scholars. lt pwft b bcuj'kk&ISeAt CONSUL GENERAL and MRS. EDWIN S. CUNNINGHAM, re¬ turning in July from Peiping to Shanghai, were ship¬ wrecked near Tsingtao. All passengers were rescued by an American destroyer.

For cars, FROM VISITORS’ REGISTER SINCLAIR trucks and buses WILLIAM C. BURDETT, Brussells CHARLES C. EBERHARDT, Managua S. E. O’DONOGHUE, Malta WILLIAM P. BLOCKER, Mazatlan Louis G. DREYFUS, Naples C. R. NASMITH, Porto Alegre SINCLAIR HOWARD DONOVAN, Department FRANK C. LEE. Singapore SIDNEY A. BELOVSKY, Vancouver 6tf STOKELY W. MORGAN, Mexico City

(Continued on page 16)

14 FOREIGN SERVICE JOURNAL • • •

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SEPTEMBER, 1954 15 TWENTY-FIVE YEARS AGO (from page 12) FROM POST TO POST LAVERNE BALDWIN, Vice Consul, Ottawa, to Santa Marta. HOMER M. BYINCTON, Consul General, Naples, to Depart¬ ment. Louis G. DREYFUS, JR., Inspector, to Naples as Consul General. JULIAN F. HARRINGTON, Vice Consul, Dublin, to Ottawa. R. HENRY NORWEB, First Secretary, The Hague, to Santiago, Chile. J. HALL PAXTON, assigned Peking for language study. ELY E. PALMER, Bucharest to Vancouver as Consul General. LLEWELLYN E. THOMPSON, JR., F. S. School to Colombo. HAERING-PERRETT. Married at the Ameri- can Episcopal Church, Kyoto, Japan, on SOJ-V^SYI July 3, 1929, CONSUL GEORGE J. ILAERING and Miss Olga A. Perrett. Trade-Builder A daughter, Maud Isabel, was born on June 11, 1929, at London, to COUNSELOR of at work Embassy and MRS. RAY ATHERTON. A son, Michael Francis Hugh William Herbert Robert, This busy Grace Line Santa is doing more than was born on July 18, 1929, at Brussels, to AMBASSADOR and just loading and unloading cargo. By helping the MRS. HUGH GIBSON. Americas to trade with each other, she is helping to build the expanding world trade essential to MORE ABOUT FULWAR SKIPW1TH: In the June col¬ good international relations. umn it was seen that CONSUL GENERAL KEENA in Paris Grace ships have been helping the .Americas do and Gus Ingram, JOURNAL Editor, in Washington, did con¬ business together for nearly a century. Today siderable research regarding that unusual character— Grace Line’s fleet of swift, modern Santas is busier FULWAR SKIPWITH, one time Consul General at Paris. than ever, bringing northward the vital commod¬ There were some differences between the data gathered in ities our nation needs from Latin America . . . Washington and in Paris and about this Mr. Keena writes: carrying south the endless variety of goods needed “0. Henry in his deep human wisdom once wrote, in by our neighbors in Central and South America. substance, ‘There are only two varieties of statement one can make without fear of contradiction. The first of these As a larger world trade becomes increasingly is what happened in a dream and the second, what you important to sound foreign relations, Grace Line heard a parrot say.’ will continue to encourage the growth of inter- American trade and travel. As always, exporters, “I admit that my account of that truly great Consul importers and travelers in all the Americas can General, Fulwar Skipwith, was not based on either of those look to Grace Line for facilities, service and ex¬ rocklike foundations. Consequently I am not wholly sur¬ perience in keeping with the highest standards of prised when Gus rises up out of the dusty pages of the the American Merchant Marine. JOURNAL to challenge the authenticity of my Fulwar. I always admired, though I never shared, his devotion to factual exactness but, in this case he must have been REGULAR DIRECT AMERICAN FLAG misled by some falsification of records. For example, in PASSENGER AND FREIGHT SERVICES his researches, he found that, according to the Department’s BETWEEN THE AMERICAS records, Fulwar bad a brother Robert. That is an obvious Between New York, Atlantic Ports and impossibility. Fulwar could only be the name of an only Netherlands Antilles, son. No set of parents who had ascended to the heights of Venezuela, Colombia, Panama, Canal Zone, thinking up a name like Fulwar could have come forward Ecuador, Peru (Bolivia), Chile. later with Robert. Or if they began with a Robert, could they have, by any conceivable chance, achieved anything Between U. S. Pacific Ports and Guatemala, Mexico, remotely resembling in grandeur of nomenclature, ‘Fulwar El Salvador, Honduras, Nicaragua, Costa Rica, Skipwith?’ Q.E.D. Panama and West Coast of South America. “I’m sure that Gus’ dates as to Fulwar’s tenure of office in Paris, 1794 to 1808, are correct The first time I win the Irish Sweep I shall go to Paris and erect a monu¬ ment to Fulwar Skipwith, and for the plaque I will borrow GRACE LINE Chesterton’s tribute to the greatness of Noah— Hanover Square, New York 5, N.Y. ‘The meat he took was elephant meat and the fish he ate was whale,’ Agents and Offices in All Principal Cities “The JOURNAL can comfortably await the account of the dedication ceremonies.”

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18 FOREIGN SERVICE JOURNAL NEWS to the FIELD

Promotions and Appointments three years for a seminar-lectureship in the University of Sent to the Senate in July by the President was the follow¬ Cincinnati’s Department of Political Science. The agenda of ing list of officers to be promoted or appointed. the seminar each year would include consideration of cur¬ rent vital situations facing the Foreign Service of the The promotion list included: FRANCIS A. FLOOD, from class United States, and the seminar would be treated as “an 2 to Class 1; from Class 3 to Class 2: DANIEL V. ANDERSON, experiment in eliciting interest in important government PEYTON KERR, and WILLIAM W. WALKER; from Class 4 to service as a career.” Class 3: WILLIAM BARNES, FINDLEY BURNS, JR., JOHN E. DEVINE, HARRISON LEWIS; from Class 5 to Class 4 and also National War College Assignments to be Consuls: HOWARD L. BOORMAN, NATHANIEL DAVIS, FRANK J. DEVINE, DAVID H. ERNST, DOUGLAS N. FORMAN, Foreign Service Officers assigned to the National War JR., HAROLD G. JOSIF, RALPH J. MCGUIRE, G. ALONZO College for the coming year are: JOHN H. BURNS, RALPH N. STANFORD, and JOHN PATRICK WALSH; from Class 6 to CLOUGH, ROBERT CREEL, H. FRANCIS CUNNINGHAM, ROBERT Class 5, LAWRENCE H. BERLIN, ALAN G. JAMES, ABRAHAM S. FOLSOM, WESLEY C. HARALDSON, JOHN B. HOLT, RICHARD KATZ, LAWRENCE C. MITCHELL, JACOB M. MYERSON, and A. JOHNSON, DAVID H. MCKILLOP, THOMAS C. M. ROBINSON, PETER J. PETERSON. FRASER WILKINS, and THOMAS K. WRIGHT. Section 517 appointments were: to Class 1 and also to "The Thing" Veiled be a Consul and Secretary, WILLIAM 0. HALL; to Class 2 and also to be Consuls and Secretaries, ALEXANDER B. The question of whether or not JOURNAL editorials are DASPIT and HARVEY KLEMMER; to Class 3 and also to be effective was answ'ered once and for all when the mural Consuls and Secretaries, JOHN M. KENNEDY, and VERNON in the lobby of New State, termed '‘The Thing” in an edi¬ L. PHELPS; to Class 4 and also to be Consuls and Secretaries, torial published in the July, 1952, issue, was “decently JOHN M. BOWIE, CHARLES T. CROSS, MISS EDELEN FOGARTY, veiled” during the first w^eek of August. The JOURNAL, FRANCIS J. GALBRAITH, RICHARD A. GODFREY, WILLIAM F. which has waged an anti-“The Thing”, anti-backdoor puddle, GRAY, ROBERT E. READ, and Miss JEAN M. WILKOWSKI. pro-State Department Library campaign for the past two Appointed to Class 6 and to be Vice Consuls and Secre¬ years, has been given assurances that the puddle w ill be taken taries were LAURENCE E. AINSWORTH, SAM G. ARMSTRONG, care of before Labor Day. There remains, of course, the DANIEL N. ARZAC, JR., ROBERT S. BARRETT, IV, MELVIN question of the whereabouts of the State Department CROAN, WALKER A. DIAMANTI, RICHARD W. FINCH, MARTIN Library. B. HICKMAN, EDWIN D. LEDBETTER, JAMES W. MAHONEY, and S. DOUGLAS MARTIN. Appointments, Designations, Resignations Also appointed to Class 6 were CALVIN E. MEHLERT, JOHN Unofficial news reports indicated that ASSISTANT SECRE¬ E. MERRIAN, ROBERT T. MURPHY, J. THEODORE PAPENDORP, TARY OF STATE HENRY A. BYROADE is expected to be nomi¬ HARRY A. QUINN, CHARLES E. RUSHING, ROBERT G. nated Ambassador to Egypt. At the same time, the New SHACKLETON, FRANCIS R. STARRS, JR., and ROBERT H. York Times indicated that THE HONORABLE JEFFERSON WENZEL. CAFFERY, present Ambassador to Egypt, is expected to resign from the Service this coming January after forty-three years Rockefeller Public Service Award diplomatic service. BEN T. MOORE and HOWARD L. BOORMAN were recently REAR ADMIRAL ARTHUR AINSLEY AGETON of Annapolis, named recipients for Rockefeller Public Service Awards. Maryland, was sworn in as United States Ambassador to Mr. Moore, Director of the Office of European Regional Paraguay on August 2. A graduate of the Naval Academy, Affairs, came to the State Department in 1945 and has Admiral Ageton holds a Master of Arts degree from Johns served as Economic Officer at London in addition to Depart¬ Hopkins and served in the Pacific during World War II. mental assignments which included Assistant Chief, Divi¬ He retired in 1947 to devote full time to writing. sion of Commercial Policy and Officer in Charge of Eco¬ JAMES LAMPTON BERRY, who was recently promoted to nomic Organization Affairs. He plans to devote his year Class 1, was named Consul General at Singapore with the under the Rockefeller program to a study of the functions personal rank of Minister. He joined the Service in 1934 and activities of international organizations dealing with and from then until 1940 served at various posts in South economic affairs. Africa and Mozambique. From 1940 to 1944 he served at How'ard Boorman, a Foreign Service Officer, recently Calcutta and New Delhi. He is currently serving as Deputy completed a four year assignment as Vice Consul at Hong Operations Coordinator on the staff of Under Secretary of Kong. Mr. Boorman will pursue a study of the historical State Walter Bedell Smith following assignments on the background of China in order to assess the depth and Policy Planning Staff and as State Department adviser to dimensions of communism in that country. the Air War College. Foreign Service Seminar CHRISTIAN A. HERTER, JR., a graduate of Harvard College Dr. and Mrs. Julien E. Benjamin, pareuts of the late and Harvard Law School, was appointed to the Policy Plan- LOUIS KUHN BENJAMIN, offered a gift of $2,000 a year for (Continued on page 46)

SEPTEMBER, 1954 19 Federal Employee Security Procedures

By SECURITY MINDED

Any constructive criticism of the Government’s employee- tarian rather than authoritarian. He is impressed by the security procedures must proceed on several assumptions. real hardships if not injustices that have resulted to em¬ They may as well be made explicit at the start, to avoid ployees from this program. To him the best solution to the possible misunderstandings of motive or content. The problem would be a maximum of individual liberty, both writer assumes these propositions: of thought and association, consistent with the essential 1. Employee-security programs are here to stay. The security requirements of a democratic government which argument has been made that previously existing Federal is admittedly a target for Communist infiltration and statutes and Civil Service regulations were sufficient to espionage. There are many who would reverse the order meet any challenge to the security of the country from of values just expressed; they may wish to make Government employees.1 But the fact remains that special allowances. It would be good to hear their constructive loyalty requirements for Federal employment date back to criticisms of the present program, if any. the Hatch Act of 1939, and by now give every appearance Ob jectives of being permanent. The stated objectives of the present employee-securitv 2. The present (“Eisenhower”) employee-security pro¬ program are (1) to protect “the interests of the national gram is not basically different from the old (“Truman”) security’ through the exclusion of employees and applicants loyalty and security programs combined. It extends to believed to be unreliable or disloyal to the country, and more employees and it introduces standards of suitability (2) to assure all employees and applicants of “fair, impartial hitherto considered merely routine Civil Service standards. and equitable treatment at the hands of the Government.”2 But it is not a radical departure with regard to procedures, There appears to be wfide popular agreement that the except perhaps in abolishing the appeals mechanism of the stated aims of the present employee-security program are old Loyalty Review Board, and in deferring formal hear¬ sound in themselves. They at least set some limits to the ings in each case to the last possible stage of decision. scope of the program: Exclusive preoccupation with the 3. A constructive critic will try to judge these pro¬ fairness of the program towards individual employees would cedures by roughly the same standards as the program seriously obstruct the security objective. On the other sets for itself. He departs from those standards at the risk hand, exclusive preoccupation with the security objective of seeming, and in this case probably being, impractical. would preclude fair treatment in any disputed case. 4. For anyone to secure Government employment has The practical problem therefore is to work out a generally been considered, quite properly, as “a privilege balanced employee-security program between these two ex¬ and not a right.” But Government service is also a duty tremes. The basic premises may be stated as (1) that the and in a democracy duty is reciprocal. Between the Government has a need for discretionary power to dismiss Government and its employees there is a network of mu¬ tual obligations (of a contractual nature in effect) which Executive Order 10450, issued April 27, 1953. Preamble: can only be disregarded with peril to the efficiency of and “WHEREAS the interests of the national security require that all public respect for the Government itself. With regard to persons privileged to be employed in the departments and agencies of the Government, shall be reliable, trustworthy, of good conduct security cases, only a few of these obligations are legally and character, and of complete and unswerving loyalty to the United binding, so far as the Government is concerned. But it is States; and generally conceded that there is a moral obligation on the “WHEREAS the American tradition that all persons should receive Government’s part to dismiss an employee on security fair, impartial, and equitable treatment at the hands of the Govern¬ grounds only for due cause, and with fair play throughout ment requires that all persons seeking the privilege of employment or privileged to be employed in the departments and agencies of the the procedure. Government be adjudged by mutually consistent and no less than 5. The author’s bias in this matter is frankly liber¬ minimum standards and procedures among the departments and agencies governing the employment and retention in employment 1See Alan Barth, The Loyalty of Free men (1951). of persons in the Federal Service:”

20 FOREIGN SERVICE JOURNAL anyone adjudged by it to be a security risk, but (2) that hearing at the State Department, and only a few had been this power creates a corresponding need for the employee to finally adjudicated. Such tardiness in either clearing or have an opportunity to defend himself against accusations dismissing persons under suspicion presumably is not in the that are either false or irrelevant to the security of the national security interest. It also results in marked ineffi¬ country. To be realistic, probably any workable employee- ciency in the Government’s use of its personnel resources, security program would fail to satisfy completely those who both directly and through a lowering of morale. And it are interested exclusively either in personal rights or in na¬ occasions serious losses to the individual employee: It en¬ tional security. But few would deny that on principle we tails, progressively, a loss of professional reputation, costs should attempt to reach a broad range of agreement on in hard cash (lawyer’s fees and possibly money to replace both these essentials to a free society in an insecure world. normal income while the employee is suspended) and per¬ haps the job itself (if the employee is persuaded to resign The Central Question on this account). The central question is whether the current employee- Like its predecessors, the present employee-security pro¬ security program actually meets its officially-stated, balanced gram also suffers from a lack of minimum standards of objectives. Of itself, the Executive Order establishing the proof—and from vague if not positively perilous standards new program gives cause to doubt: Only two of its forty of judgment as to what constitutes “derogatory informa¬ paragraphs relate to the aim of assuring the employee fair tion.” If anything, however, the present standards of judg¬ treatment, and its provisions for attaining that objective are ment are vaguer, and more pliable than ever to the service 3 couched in the vaguest terms. The draft regulations of such doctrines as guilt by unwitting association. accompanying that Executive Order are more balanced in A further holdover difficulty lies in the practice of giving this respect, however, and the detailed departmental regu¬ the accused employee only what amounts to a minimum of lations issued under the authority of the Order often go information about the allegations against him. The missing further in that direction. The State Department’s regulations facts usually include the source of the accusation, and often on this subject,4 are discussed below. even the alleged evidence for the formal charge. As a result, Generally speaking, nothing in the present or past em¬ the accused employee, especially if completely innocent, does ployee-security procedures seems to prevent the maintenance not know exactly what he has to rebut. of a balanced program, provided honest and broadminded A difficulty new to the present procedures is the time and men administer it. But there is much about the procedures, money that is bound to be spent before a hearing is held. chiefly by way of omission, that makes a grave imbalance Formerly an employee was not suspended until after he had at least possible, if not probable, under any strong stress of had a formal hearing. Now he is first suspended, without political partisanship. Traditionally the American way of pay, and there is likely to be a period of months before easing the effects of such partisanship has been to curb the a formal hearing can be held. This is unfortunate from exercise of discretionary power—by creating checks and the Government’s as well as the employee’s viewpoint: Often balances and by fixing firm procedural safeguards. These a face-to-face interrogation is the one practical way to de¬ devices are built into our Constitution and its amendments, velop some of the information especially relevant in a case. and are now second nature in our habits of governing, and A hearing might quickly clear up the whole matter. of exercising freedom. In the relatively new field of em¬ ployee-security, therefore, what we are really seeking are Finally there are doubts, on the part of many employees, officials, and members of the general public alike, that the rules of procedure so well designed as to stand the test of changing public moods and changing enforcement officers. present employee-security program is as nonpartisan and objective as it should be. Rightly or wrongly, such doubts Major Difficulties with the Present Program may be aroused by the absence from the program of a fully independent, non-partisan board of appeals such as existed From almost any viewpoint, an admitted drawback to all under the old program, or by the words, if not the actions, employee-security procedures is their extreme slowness. The of some of those officials responsible for making employee- present procedures were slow to come into force in the first security descisions.5 place. The basic Executive Order was issued on April 27, 1953, to take effect one month later. But the State Depart¬ Four Stages of Decision ment’s regulations conforming to the Order were not issued Under the current employee-security procedures, there are until July 27, officially (a week later, actually). The first four stages of decision in a fully-contested and adjudicated suspension of a State Department employee under the new case. In chronological order they are: regulations reportedly was about two months later. In the second place, the current procedures have been slow in operation. A year after the Executive Order came into ®The Administrator of the State Department’s Bureau of Security and Consular Affairs stated in a public speech on August 8, 1953: effect, only a handful of contested cases had gone to a “Sometimes it is extremely difficult because of the Civil Service Act, the Veterans’ Preference Act, and the Foreign Service Act to replace 3Second paragraph of the Preamble, quoted in footnote 2; and an individual whose viewpoint does not coincide with that of the Re¬ Sec. 14 (a) (2), providing for the Civil Service Commission to study publican Party. In the second, third and fourth echelons of em¬ “tendencies” in the program to deny fair treatment. ployees the policy which originates at the top must be implemented. Until such time as we can re-educate those employees or replace them department of State “Manual of Regulations and Procedures,” with proper personnel the progress which we make is sometimes very subchapter 390. (Unclassified). Dated 7/27/53. slow.” Department of State Press Release, No. 425, August 7, 1953.

SE PTEMBER, 1954 21 (1) A decision as to whether or not to put the employee fence, eventually. He is thus subjected to mounting duress on restricted duty or leave. The State Department’s regula¬ while the merits of the case are being decided. tions scarcely allude to this type of employee status,6 but it (3) A decision as to whether or not the employee should occurs frequently. It comes into effect when there is some be reinstated. This determination is on the basis of the adverse information against the employee presumably investigative record, the letter of charges (to be issued serious enough to warrant a security quarantine but not as within thirty days of suspension), and the employee’s reply yet sufficiently developed to warrant formal charges. thereto (due within another thirty days). It is made by the Typically, the employee is shifted from his former assign¬ Secretary of State, following receipt of advice from the ment to one where he has no access to classified material, Department’s Security Counsel (legal officer for security or is simply refused a normal duty assignment and remains matters) and the Administrator. The determination must on “training status,” “consultation” or other limited duty. be either to reinstate the employee (in his old position or one of low7er sensitivity) or to notify him of an intent to Several instances of such practices have continued for discharge him. In the latter case, provided the employee is a year or longer. Sometimes the employee is also “re¬ a citizen and has full tenure, he has a right to a formal quested” to go on leave (with pay, but with a corresponding hearing. All members of the Security Hearing Board of the drop in his accumulated leave balance) while his security Department are chosen by the Administrator, from a roster status is “clarified.” This may go on for several months in of officers from other Government agencies kept by the the cases of Foreign Service employees (since in the past Civil Service Commission. they have been allowed to accumulate up to nearly a half (4) A final decision as to whether or not to discharge year’s leave with pay). The loss of man-hours involved in the employee. This decision is made by the Secretary of these practices, though little known, has added to the dis¬ State also, upon receipt of the findings of the Security Hear¬ rupting effects of deep reductions in force, and more routine ing Board of the Department. Those findings are advisory delays in security clearances. Department personnel officers only. have collected data on at least some of the man hours lost It will be noted that all three of the last decisions are due to this, but have had little control over the problem, made, at least nominally, by the Secretary of State in since the basic decision in each case is made by the person. No one outside the jurisdiction of the Secretary security authorities. To the individual involved, this stage has the power to make a positive determination in a case. of the security process may be the most irksome and frustrat¬ It should also be noted that there are no time limits fixed ing of all. He may be separated from his family overseas, as to when any of the four decisions must be completed. or at any rate he and his family can make no plans for the In one case it took nine months to clear an FSO at the future. He may not even know that his assignment difficulties second decision—on derogatory information merely con¬ cerning a relative by marriage. In three other cases, new¬ are due to security factors, or if so, what the derogatory ly appointed officers of the Foreign Service were prevented information is supposed to be. from receiving overseas assignments for over a year. Then (2) A decision as to whether or not the employee is to again, in some disputed cases where the employee has been be suspended. At this stage the Administrator of the Bureau suspended it has taken five to six months to effect a final of Inspection, Security and Consular Affairs (hereinafter adjudication. Thus several FSO’s have not done useful called simply the Administrator) could completely clear the work for which they have been trained for periods of over a employee on his own responsibility, if he so chose. But if year. If they are cleared in the end, as has happened, it is not, he tenders his advice in the matter to the Secretary of obvious that there are large uncompensated costs to all con¬ State, who normally makes the decision personally.7 The cerned in the long operational delays in the current em¬ ployee-security system. suspension, if effected, is without pay, though the State Department allows the employee to draw on his accumulated Need for More Complete Investigations Idave balance. When and if the employee is later reinstated, The logical first step in an employee-security case is a full however, he is paid retroactively for his loss of pay (or, if investigation to determine the facts. Presumably some appropriate, his leave balance is restored). In such an event, allegations can be discounted or dismissed, after evaluation, the Government of course gets no work in return for the merely on the basis of other information disclosed in a full outlay. The individual meanwhile is forced to put up a investigation. financial stake (likely to equal several months salary, at the It is widely recognized that investigative interviews, be¬ least, plus lawyers’ fees) on his ability to prove his inno- cause they are confidential and unsworn, are efficient in turning up derogatory information about an individual. It is far less clear that they do an equally good job in disclos¬ ®“When considered necessary in order to provide the maximum ing what can be said in his favor. Certainly the individuals protection to the security of the Department of State or of classified investigated and their lawyers have many specific complaints information or material pending the determination [as to whether suspension is necessary], interim action other than suspension should on this count: In the first place, the selection of those to be be used to the fullest practicable extent.” State Dept. Regulations, interviewed by investigative agents sometimes appears 393.5. biased. By actual check, it can be determined that those Statement by the Secretary of State at a news conference at the persons who best knew the individual’s political opinions, State Department, January 19, 1954. He said, “. . . . there has been for instance, were never interviewed before action was no case of suspension or proposed suspension to which I have not given my own personal attention.” (State Dept. Press Release No. taken against him as a loyalty risk. Then again, despite 24, January 19, 1954). instructions to the contrary, no doubt, investigative agents

22 FOREIGN SERVICE JOURNAL are not always as keen in ferreting out the favorable as the seriousness of the adverse information. But that standard unfavorable information in an interview. This is the view need not be lower, one would think, than the “reasonable of many persons who have been interviewed by investigative possibility” of the validity of any information that, if true, agents of the State Department. Finally, an employee may would raise a clear presumption that the person is a security he suspended before he himself has been questioned about risk under the standard of judgment. the information against him. In fact even the final decision The current employee-security Executive Order fails to to terminate his employment can be made without his ever mention any standard of proof, however, with the result that facing the person who determines his fate. it undoubtedly varies considerably from agency to agency, depending upon the regulations and the personalities in¬ Processes of Evaluation volved. The Army’s regulations go so far as to specify that Generally speaking, the main weaknesses in the employee- the employee-security procedures are to be invoked, in security program lie not so much in the collection of preference to normal Civil Service removal procedures, when investigative data, however, as in their evaluation. “sufficient evidence cannot be supplied to permit specific and Actually, several processes are involved in evaluating an 1(1 detailed charges in support of a suitability removal. In investigative record. Thorough-going evaluation presupposes the State Department’s regulations the only mention of that there are applicable standards of proof for accepting “rules of evidence” is that they “shall not be binding” on or rejecting any given piece of information as valid; that the Security Hearing Boards.11 It is true that the Ad¬ there are adequate standards of judgment for balancing up ministrator has said of investigative information that ' If the supposedly valid information on each side of the case; you can’t prove it, then you can’t attach any significance that there are ample opportunities for the development of to it.”12 But in practice, a State Department case can go each side of the case; and that there will be wisdom in the to a hearing admittedly without “proof’ as to what the key weighing of narrow security considerations against the other facts are, and even without verification that the major important results of a decision to dismiss an employee as a charge is not based on a conceded possibility of mistaken security risk. identity. Below, the current employee-security evaluation program Some of these inconsistencies, if not injustices, would is discussed in the light of each of these criteria of per¬ probably be avoided by adopting a few simple standards formance. of proof. These need not be just like legal rules of evidence. Need for Standards of Proof Rather they should be tailored specifically for the needs of evaluating confidential investigative reports. Rules of evi¬ The initial step in the process of evaluation is to determine dence have been developed in similar fields of administra¬ what information to accept as factual. tive law, such as visa and passport cases. There seems to be As the Attorney General said in 1941, “Investigative re¬ no reason why they could not be devised for employee- ports include leads and suspicions, and sometimes even the security cases. statements of malicious or misinformed people.”s The prob¬ lem is often to winnow the facts from that type of “infor¬ Need for More Precise Standards of Judgment mation.” The overall standard of j udgment in the present employee- The standard of proof used must be sound, for the whole security program is that the employment of the individual superstructure of evaluation must rest, in logic and justice, shall be “clearly consistent with the interests of the national on the presumption that the facts are established. Con¬ security. 13 clusions cannot be sounder than their premises. For in¬ This has been interpreted popularly, but not officially, as stance, the findings of the old Loyalty Review Board meaning that the employee must prove “beyond any doubt against John Carter Vincent were vitiated by this bit of that his employment is consistent with national security. reasoning: “Without expressly accepting or rejecting the The existence of that interpretation is perhaps justified in testimony of Louis Budenz ... or the findings of the Senate part by the language of the State Department’s regulations Committee on the Judiciary .... the panel has taken these for weighing certain types of evidence: they state that “A 8 9 * factors into account.” former course of conduct or holding of beliefs shall he Either the testimony and findings were probably valid and needed to be credited, or they were presumed to continue in the absence of clear and convincing probably invalid, and could not. evidence to the contrary.”14 In an employee-security case the operating standard of On the other hand the Department’s one other general proof should certainly be as high as feasible. Reason would rule in weighing evidence seems to imply that in an adverse require that there be at least a “balance of probability that finding there should be at least a “reasonable doubt’ that the data on which a charge will be based are true. Surely (Continued on page 58) the penalty of dismissal as a security risk is too great to be imposed on a more-than-even chance that the “informa¬ 10Quoted in article by Murray Harder, Washington Post, January tion” in question is false. The standard of proof for a 29, 1954, p. 20. suspension could perhaps be lower, depending upon the nState Department Regulations, 395.27 (a) 12Interview in U. S. News and World Report, February 12, 1954, 8Attorney General Robert H. Jackson, now Associate Justice of p. 68. 13 the Supreme Court. Quoted in Barth, The Loyalty of Free Men, Executive Order 10450, Sec. 8 (a) and State Department p. 159. Regulations, 392.1. 14 '■'New York Times, January 4, 1953 State Department Regulations 392.31.

SEPTEMBER. 1954 23 UNITED NATIONS CHARTER REVIEW

By LINCOLN P. BLOOMFIELD In the fall of 1955 the United Nations General Assembly will vote on the question of calling a general conference to review the present United Nations Charter. If the Assembly votes to call such a conference, it will presumably be held sometime in 1956. Thus the United States Government, as well as the other fifty-nine member states of the United Nations, has approximately two years in which to deter¬ mine its attitudes toward a variety of questions, some of them of great political significance. Today in the United States many groups of citizens are hard at work studying the issues that arise in connection with Charter review, hammering out divergent opinions and attitudes, and preparing to make their voices heard in order to effect and influence the course of this Government’s policy. A United States Senate subcommittee consisting of eight distinguished senators is actively taking the pulse of the American people through public hearings which will ultimately cover the four corners of the country, with a view to recommending to the Senate and, through the Senate, to the President the considered views of the national electorate. While this is happening, the Department of State is intensively engaged in preparing its own studies; the United Nations Secretariat is busily putting in shape a large mass of pertinent documentation; and many other governments are getting their own preparations under way. How does this come about? What is actually involved? And what does the United States propose to do about it? Background The United Nations Charter like most comparable organic instruments contains provision for its own amendment. Two methods are provided: under Article 108, in order for amendments to come into force they must be first approved by two-thirds of the members of the General Assembly, that is to say forty nations, and second, ratified in accordance with their respective constitutional processes also by two- thirds of the membership, including the permanent members of the Security 'Council. This means that the United States, China, France, the UK, and the Soviet Union must all give

United Nations permanent head¬ quarters. The marble and glass Secretariat Building towers above the dome-topped General Assembly building. - zmsi

SPW ~J0 7 to actionbytheGeneral Assembly.AtSanFranciscothere vided foranamendingprocess,but limited theprocedure were agreedto.TheDumbartonOaks Proposalshadpro¬ operative. by asimplemajorityoftheGeneral Assembly,becomes conference willnothavebeenheld by thetenthyear, San FranciscoConferencein1945before theseprovisions provision foratenyearconference, whichcanbecalled ments, orareviewconferencemaybeheld.Sincesuch the GeneralAssemblymayactatanytimetoinitiateamend¬ including theBigFive. tutional processesbytwo-thirdsofthetotalmembership, must beratifiedinaccordancewiththeirrespectiveconsti¬ two-thirds oftheconferencemustapproveand,again,they in orderforamendmentstocomeintoforceallmembers Council.” and bvavoteofanysevenmemberstheSecurity by amajorityvoteofthemembersGeneralAssembly Assembly, andtheconferenceshallbeheldifsodecided shall beplacedontheagendaofthatsessionGeneral conference hasnotbeenheldbeforethetenthannualsession of theGeneralAssemblyfollowingcomingintoforce paragraphs laterandisworthouotinginfull:“Ifsucha calling ageneralconferenceforthepurposeofreviewing of thepresentCharter,proposaltocallsuchaconference provision fromwhichthepresentactivitystemscomestwo by atwo-thirdsvoteoftheGeneralAssemblyand vote.” consented tobytheUnitedStatesSenate,atwo-thirds of anvsevenmemberstheSecurityCouncil.Thekey have togothroughtheconstitutionalprocessesofbeing the Charter.Suchaconferencecanbecalledatanvtime When theUnitedNationsheadquarterswasatLakeSuccess,flagsof a treaty,whichwouldineffectbenewandit “any amendmentoftheCharterwouldbean of theBigFive.SecretaryDulleshastoldSenatethat part oftheCharter.Ineffect,thismeansa“veto”byany their assenttoeachandeveryamendmentbeforeitbecomes There wasconsiderablediscussionof thismatteratthe Thus, therearetwoavenuesforamendingtheCharter: At suchaconferenceeachnationwillhaveonevote,and Article 109oftheChartercontainsprovisionsfor member nationsflewoutsideHeadquarters. 7 At ameetingoftheUNGeneralAssembly'sPoliticalCommittee,Mr. general conferencetoreviewtheCharter.InAugustof 1953, SecretaryDulles,inhisaddresstotheAmericanBar focusing publicattentiononthepossibilitiesinherentina had neverreallyexisted)betweentheCommunistworld of anintransigentandobstructiveCommunistbloc. within theexistingframeworkforcarryingoninface and thefreeworld,newpotentialitieswerebeingfound Cold Warandthegrowingawarenessthatwhileareasof apparent agreementwererapidlydiminishing(orperhaps ing ourselves,togivetheexistingdocumentafairtrial. the stageofaformalvotebyAssemblyitself.And, the Charterinsomeparticular,theyhaveneverevenreached One canspeculatethatitisalsoduetotheimpactof doubtedly duechieflytothewillingnessofmembers,includ¬ there hasbeennoseriousmovetoconveneareviewcon¬ on occasion,beenmadeoverthepastnineyearstoamend themselves alsorepresentanecessarycompromise.As ference priortothetenthyear.Thatthisissoun¬ alterations inthedocument.Andyetwhileproposalshave, that intheorycouldbeusedatanytimetoeffectneedful be theunderminingofGreatPowerunanimity,i.e.,an nant motiveforreviewingtheCharterwouldinevitably something lessthanenthusiasm,maintainingthatthedomi¬ tenth year,thatthepressureforaspecificCharterprovision Recent Developments assault ontheSovietUnion’srighttoveto. Union viewedtheprovisionforareviewConferencewith footnote, itisperhapsofhistoricalinterestthattheSoviet Powers wereuniformlyinagreementthatamendmentsmust was onlyafterdetailedprovisionshadbeendraftedprovid¬ mises amongnationalpositionsthatwerenecessaryto be subjecttotheirconsent,andsotheamendmentprovisions on withdrawaldiminished.Atthesametime,Great ing machineryforareviewoftheCharter,atleastby the questionofwithdrawalfromorganization,andit secure wideagreement.Alsoinvolvedinthedebatewas the resultinpartofstrenuousobjectionsanumber was somedissatisfactionwithvariousprovisionsofthe Council, andinparttheresultofinevitablecompro¬ of thesmallerstatestoGreatPowervetoinSecurity Charter asitwasbeingdrafted.Thisdissatisfaction The UnitedStateshastakenaconsiderableinitiativein There isthusbuiltintotheCharteranamendingprocess V. K.KrishnaMenon(right,firstrow)ofIndiaspeaks. (Continued onpage56) and Return By MELVILLE E. BLAKE, JR.

When Circular Airgram 1400, which ominously began the Department in carrying out this unpleasant task, tripped “The Department must reduce staff during the current fiscal through an outline of the procedures which had been estab¬ year. . . reached my desk April a year ago I scanned it lished to cover my separation from the service and to guaran¬ and, deciding that it did not apply to me, promptly threw it tee that I was getting a fair shake, and concluded with the in my out basket. After all, the directive stated that cuts faint praise that “A separation because of reduction in force would be made “largely in the middle grades of the Staff is not to be construed as a reflection on an employee’s per¬ Corps,” and my FSS-9 status, in my estimation, put me safely formance or usefulness to the Service. . . .” Whether it was below that level. Besides, an enclosed directive stated that to be construed as a reflection on his loyalty or morality, the cuts would be made among limited and resident-U.S. person¬ letter did not indicate. nel first, and I was a career-indefinite vice consul considered While the separation notice stated that I could appeal the available for assignment on a worldwide basis. decision to release me from the Service, a glance at the list of I was the officer in charge of the Consulate at Bremer- officers of my level who were being released at the same haven, Germany, a one-officer post, and saw my immediate time—which had been sent to the post—showed that vice supervisor, Bremen’s Consul General Edward D. McLaugh¬ consuls whose length of service and efficiency far exceeded lin, at least weekly. Therefore, I was not surprised when I my own were suffering the same fate. Accordingly, there received a telephone call on May 15th from Mr. McLaughlin’s seemed no alternative but to make arrangements for my de¬ secretary who said that he wanted to see me at once. From parture. Although the Consulate General at Bremen was her solicitious inquires regarding the state of my health short-handed, a newly arrived vice consul was transferred to and the Bremerhaven weather while I waited in her office that Bremerhaven, and well before the 30-day time limit set in afternoon I should have known that something was amiss, the dismissal letter had expired, my wife Rozanne and I had but I did not. Then Mr. McLaughlin invited me into his packed our effects, finished the sad business of leaving a post office, the door was closed, and the boom was lowered. and sailed aboard the America. Regretfully Mr. McLaughlin handed me a letter from Although the separation procedure did not authorize a HICOG’s personnel division. The opening sentence struck a consultation period in the Department, I rather naively as¬ familiar note, for it began “The Department must reduce sumed that I had been given a pink slip inadvertantly and staff during the current fiscal year to a level which can be could clear the matter up or. if worst came to worst, that 1 supported by the appropriations requested .... Following could get another overseas job with some agency affiliated paragraphs informed me that I had been selected to assist with the Foreign Service, and we went to Washington. It

Beef cattle are a major industry in Loudoun county. Here a 4-H youth Horses are a way of life in Loudoun Counfy. Here riders and moun+s receives the grand prize in state competition for this Angus. make a jump neck to neck at the Middleburg Hunt steeplechase. took less than a day there to show how wrong I was. RIF’ing had not only taken the Foreign Service by storm but it was widespread throughout all government agencies. Where vacancies existed most personnel offices were attempting to fill them from within their ranks or delaying action pending the end of all government separations. Worse, however, was the attitude of personnel officers in general towards separated Foreign Service employees or, at any rate, towards this particular one. Adopting a “there but for the grace of the Civil Service System, go I” attitude most personnel officials were almost hostile in their refusal to assist me. As one bored young clerk explained it, govern¬ mental jobs were awarded on a merit basis, and merit was Board of Supervisors meetings are the backbone of county government in rural America. Here reporter Melville E. Blake, J., (far right) sits at determined by length of service and the acquisition of perma¬ the conference table for a board meeting to insure complete coverage nent status through the competitive Civil Service examination of the session. system. As Foreign Service employees took no Civil Service exams to get their jobs they did not acquire status and there¬ fore they could not be considered for employment under the merit system. To abuse George Orwell slightly, all govern¬ ment employees were meritorious but some had more merit than others. Speaking more bluntly one recruiting officer, to whom I pointed out my efficiency record, said, “Efficiency has noth¬ ing to do with it. The system is what counts.” Within a week I was ready to leave Washington for a short vacation at home before getting down to serious private-type job hunting. Then we received another setback. Rozanne, who was well on in pregnancy, was advised by an obstetrician that it would be unwise for her to travel until after the baby was born. There was no alternative but to find a job in the Washington area. Job hunting is hardly a pleasant task, but in Washington during July, with thousands of others on the same mission, it can be nightmareish. Government employment out, I turned to my next love, journalism, as a likely career. How¬ ever, to a man virtually every Washington newspaper editor or bureau chief turned .me down for lack of experience. The consensus of opinion was that, while a Foreign Service back¬ ground had made me an interesting conversationalist, I should begin on a small daily and work my way up to the big time although, as one editor remarked, “you probably won't be able to live on a small paper’s salary and will be too old by the time you are ready for a large daily.” To pass the time I tried free lancing and, w'hilfe sympathetic publishers accepted two articles, the return was too uncertain with a wee one on the way. Next I tried selling Cutco (the Windows are set at the Consolidated High School for which the knife with the flexible blade) and various appliances with Loudoun Times-Mirror long fought. notable lack of success. Advancing America’s good name abroad is scant preparation for hard selling at home. A broom sale each year by Loudoun's Lions Clubs is but one of many community activities carried out to help the local needy. Fortunately the impasse did not last long. In August Mrs. Estill Guinane of my university’s placement center telephoned that the Loudoun Times-Mirror of Leesburg, one of Vir¬ ginia’s largest and most respected weekly newspapers, needed a man. If I wanted it, she felt that the job was mine. I hastened to an interview the same day and two weeks later began work as the paper’s advertising manager and reporter. One of Virginia’s most prosperous farming regions, Loudoun county is characterized by its distinct social groups. While dairying and ranching form the basis for the county’s economy, to its farm population must be added the local merchants, retired government officials largely from the For¬ We of the Times-Mirror were not so namby-pamby. News eign Service and the armed forces, and the country estate set. coverage went far beyond the church social or country auc¬ The members of these four groups seldom intermingle and tion level and was as comprehensive for the area as the have only one attribute in common: they take rare delight in service offered its community by any city newspaper. Lees¬ potshooting at any one, either from within or without their burg and special county activities became my beat, and be¬ crowd, who takes an opinion contrary to their own. Rugged cause of the generally dissenting nature of the average individuality is the way of life in Loudoun county no matter Loudouner enough revolutionary fireworks developed to how the winds of conformity may blow in the rest of the make a Central American political reporting officer feel right country. (Once when a visiting editor from outside the at home. county was told that the paper was running its annual edi¬ One of the more interesting hassles began when Leesburg’s torial on Spring that week, he remarked, “And how do the mayor, who was also the town’s chief of police, fired the people of Loudoun feel about Spring? Are they for it or principal police officer without notifying the town council. against it?”) Annoyed, the council rehired him and passed a second res¬ I had remarked to one of my fellow passengers aboard the olution stating that any future charges against police officers America on the way home that I expected to find employers would have to be aired at a full meeting of their group. suspicious of anyone who had been separated from the Smarting under this reprimand the mayor vetoed these reso¬ Foreign Service, and he had gloomily agreed with me. So lutions also on the grounds that they were an invasion of far this assumption had been pleasantly disproven; in fact, executive duties by the town’s legislature. Immediately the the only antagonism I had encountered had been from gov¬ council passed a resolution hiring the policeman in question ernment interviewers while journalists had been generally again and stating its collective opinion that the mayor had no understanding and sympathetic. As I now prepared to move veto powers—only to have his honor veto this resolution also into a typical rural community I wondered what reaction and add insult to injury by refusing to sign the officer’s pay- there would be to a recently separated vice consul. Would I check. When I got off the merry-go-round the matter was be accepted at face value? In view of the volume of adverse being presented to the local circuit court for a precedent¬ comment about the State Department it seemed more likely setting decision. to me that there would be widespread feeling that where Byproducts of the affair were a threatened libel suit against there’s smoke there’s fire and that I must have been one of the newspaper for covering council meetings too closely, a the embers. threatened black eye for the paper’s sole reporter by a 250- I was pleased to be found wrong again. While most of my pound council member, and a sudden predilection on the acquaintances in Loudoun who were native to the area had part of Leesburg's formerly leisurely policemen for ticketing only the vaguest notion of what the Foreign Service is—most the cars of the editorial staff’s members. thought that it is a collective term used when speaking of the Then there was the series of articles which the newspaper armed forces abroad—they generally realized that greatly carried on the county’s school lunch program and which distorted charges had been levelled at America’s representa¬ developed into an inquiry into the school system in general. tives abroad. Interest in my Foreign Service experiences was Before it was over the newspaper had accomplished the aver¬ keen, and the awareness of the government’s objectives in age small boy’s dream—most of the principals in the county' foreign policy was surprising. Unfortunately, however, most were furious but impotent over revelations of unsanitary people had a romanticized opinion of Foreign Service activi¬ conditions or inadequate procedures in their schools. Yet ties and no conception of passport, visa, notarial and the the result was a better school system crowned by a modern many other humdrum tasks which form such a large part of consolidated high school for which the Times-Mirror long Sendee duties. fought. Two months after I had written my last biographic report Like many families in the Foreign Service we had revelled I was writing personality sketches of 4-H club leaders, from in the sense of solidity, of permanence, which we had felt in placating disgruntled seamen I turned to interviewing Europe’s cities and buildings, and we had tended to deplore drought-harrassed farmers, and all the while I was trying to the American trend towards comfortable conformity in sell something far more intangible than American goodwill housing. In this respect we failed to anticipate Loudoun. —the effectiveness of advertising used cars, work clothing or After some searching we found an apartment, one quite any saleable object in the Times-Mirror. different from any we had lived in or ever shall occupy A weekly plays a unique role in news dissemination for it again. A tiny fieldstone cottage, deep-set windows framing is a much more integral part of the community it serves the nearby Blue Ridge, it had been erected in 1725 and than its city sisters. When a reader has a news item he (or served after the owners moved into the big house as a slave more likely she since it is usually about a tea or bridge party) quarters until the end of the War Between the States. While considers of community interest, he usually brings it to the we occasionally longed for a modern house with airtight office, stopping for a casual gossip session. In the weekly windows, we would not have parted w'ith our quarters’ field it is unthinkable to criticize the star in a community charm for a penthouse. play, to damn local public officials or to knock local condi¬ Memories of a Scandinavian fall, Bavaria’s winter or tions. When the finger of wrath must be pointed to sustain spring in the Tyrol paled after a year in Loudoun, too. Fall reader interest it is the usual policy to select a target suffi¬ colors along the Blue Ridge, haze mellowing each fertile ciently general or so far removed from the community that valley rivalled any European panorama. no irate letters to the editor or canceled subscriptions will In January a siren telephoned from Foreign Service per- result. (Continued on page 62)

28 FOREIGN SERVICE JOURNAT, THE FEW BOOKS I have ventured to buy

By DAVID W. HERON

‘"I shall subjoin the few books I have ventured to buy for FOREIGN PUBLICATIONS: Procurement.” you,” wrote Thomas Jefferson from Paris in a letter to Certainly there are radical differences between the specific James Madison dated November 11, 1784, “I have been purposes of Jefferson’s acquisitions for Madison and the induced to do it by the combined circumstances of their multifarious requirements of publications procurement by utility and cheapness. I wish I had a catalogue of the books the Foreign Service. However, there are similarities between you would be willing to buy, because they are often to be the situation which prompted Jefferson’s letter and present met with on the stalls very cheap, and I would get them as problems w'hich are worth noting: he knew that books the occasion arises.” were needed, and for the primary purpose of guiding his Jefferson was serving as the senior diplomatic repre¬ government, but he was unsure of his own ability to select sentative of the United States in Europe. Both he and Madi¬ them. Second, and of no little importance, he was impressed son were very much preoccupied with the unstable political by the “combined circumstances of their utility and situation following the adjournment of the Second Continen¬ cheapness.” tal Congress, with plans for a more effective goverment than The Department of State has evolved a tremendous, com¬ that provided in the Articles of Confederation, and with the plex, and remarkably effective system for gathering informa¬ entry of their new State into the family of nations. Both tion necessary for the formulation of a realistic foreign were scholarly men, well-read and deeply aware of the policy. This evolution has been particularly rapid since magnitude of their responsibility in the establishment of a the war years of the early forties. In proportion to our strong and equitable system of law. There were no con¬ increasing involvement in world affairs, the Department has venient precedents for this Constitution. It is no wonder had to provide for selection, evaluation, and application of that they both felt deeply the need for finding its place in a tremendous fund of facts, figures, and opinion. During the context of history, of adapting for their use the results the Second World War the “dearth of foreign research of man’s successful efforts to govern his affairs, and of avoid¬ materials at Washington’s disposal amply demonstrated” ing the errors which had resulted in failure. The authors the inadequacy of that part of the system which concerned of the Constitution worried, argued, prayed, and read what¬ itself with published material. At the end of the War the ever hooks they could find in this new land, far from the Department established, within what was then the Division book stalls of London and Paris, which could broaden their of Research and Publication, a new program devoted to the understanding of the complex processes of government. prompt and efficient procurement of foreign publications Jefferson, even before he sailed for France, had an to supply the needs of the Department and other Government excellent library of his own, which formed the nucleus for research organizations.1 the present Library of Congress after the first Congressional It was reported in January 1946 that Publications library was burned in the War of 1812. Madison, after pro¬ Procurement Officers had been assigned to all major posing unsuccessfully to the Second Continental Congress diplomatic missions, and that plans were drawn for the that they assemble a library for their use (basing his lists of assignment of technically trained officers to 25 or 30 such suggested titles to a considerable extent upon a catalog posts. However, according to figures released in the of Jefferson’s library) found it necessary to enlarge his summer of 1953 there were only “six full-time and fifteen own library. At this particular time he could not readily part-time Publications Procurement Officers stationed in afford this expense, but the opportunity presented by foreign countries.”2 This figure was apparently reduced to Jefferson’s mission to France was not to be missed. Madison a considerable extent by the RIF of the following autumn arranged with his friend for the purchase of books in Europe, and subsequent reductions. Present budgetary pressures for which he paid by contributing to the support of Jeffer¬ suggest the possibility of further attrition. son’s nephews in Virginia. Since it is safe to assume that the present world situation It would be pretentious to assert that the informal trans¬ (Continued on page 52) actions between these bookish Virginians who later became third and fourth Presidents of the United States are the original ancestors of the publications procurement program 1Hu mphrey, Richard A. “Procurement of foreign research ma¬ of the Department of State. However, to belabor the trope, terials.” Department of State Bulletin, v. 14, no. 341 (January 6-13, 1946) p. 22 ff. there are family resemblances apparent in the paragraph 2Brownson, Helen L. “Coordination of information services,” quoted above to anyone familiar with the latler-day phrase Library Trends, v. 2, no. 1 (July, 1935) p. 130.

SEPTEMBER, 1954 29 ^yoreian<3oreicjn . eserviceje

^)cli (or\h

Charles B. Hosmer and American Foreign Service Association Scholarship Nicholas B. Millet - $450.00 Walter Alan Ray 450.00

Foreign Service Journal Scholarship William Edward Beauchamp, son of William E. Beauchamp, John I. Fishburne. Jr. 500.00 Jr., was awarded one-half of the William Benfon Scholar¬ William Benton Scholarship ship. A senior at St. Louis University, Mr. Beauchamp is Virgilia N. Dabell .. 500.00 particularly interested in cre¬ William Edward Beauchamp - 500.00 ative writing and in language. He has had several articles Wilbur-Franck Scholarship published, plans to teach French in college after John L. Braddock 500.00 graduation and do creative writing. Michael N. Zirkle 500.00

John A. Washington, son of S. Walter Edwin Anthony Newton, son of the late Mulford Jay Colebroolc, son of Mul- Washington, has been selected to receive Elmer Newton, was awarded one-half of ford A. Colebroolc, receives one- one-half of the Oliver Bishop Harriman the Robert Woods Bliss Scholarship. He half of the Overseas Foreign Service Foreign Service Scholarship. Mr. Wash¬ will enter his freshman year at Harvard. Scholarship. He will enter his sopho¬ ington is entering his freshman year at On graduation from college he hopes to more year at Earlham College. His the University of Virginia and is inter¬ study law, and his ultimate goal is to particular interests are History, ested in the possibilities of a medical enter the Foreign Service. Philosophy and the Social and Po¬ career. litical Sciences.

Nicholas B. Millet, son of Charles S. Millet, is the re¬ cipient of one-half of Charles Ana Maria Pages, daughter of Dorothea B. Hosmer and American For¬ Ida Knauer Pages of Buenos Aires, will eign Service Association Schol¬ receive one-half of the Robert Woods arship. Last year he was Bliss Scholarship. Miss Pages is entering awarded one-half of the Rob¬ her senior year at Miami University ert Woods Bliss Scholarship. where she is majoring in Languages. Mr. Millet is entering his sen¬ Following graduation, she hopes to study ior year at the University of at Georgetown University and become Chicago where he has had an an interpreter and translator. excellent record. He plans to make a career in Museum work in the field of Egyptology. Sck ofcirshipS

^ydiuarclj

Robert Woods Bliss Scholarship

Ana Maria Pages 500.00 Edwin Anthony Newton 500.00

Overseas Foreign Service Scholarship

Mary Catharine Randolph 375.00 Mulford Jay Colebrook 375.00 The recipient of the Foreign Service Judith Grummon, daughter of Stuart E. Journal Scholarship is John I. Fishburne, Grummon, will receive one-half of the Jr., son of John I. Fishburne. Mr. Fish¬ Oliver Bishop Harriman Foreign Service burne will enter his senior year at The Scholarship. Miss Grummon has just Oliver Bishop Harriman Foreign Service Scholarship Lawrenceville School, where he has had graduated from the Oakwood School, an outstanding scholastic record this past Poughkeepsie, and will enter her fresh¬ Judith Grummon one-half of trust vear. He is planning to make application man year at Radcliffe. Her main interest for admission to Princeton University. is in international affairs. John A. Washington income for each

Virgilia N. Dabell, daughter of Mrs. John L. Braddock, son of Daniel M. Michael N. Zirkle, son of Vernon B. Frances M. Dabell, will receive one-half Braddock, is the recipient of one-half of Zirkle, has been awarded one-half of the of the William Benton Scholarship. Miss the Wilbur-Franck Scholarship. He will Wilbur-Franck Scholarship. He will be a Dabell is attending George Washington enter his freshman year at Harvard. Mr. sophomore at the University of Virginia University and plans to enter the For¬ Braddock received the award for the out¬ and is majoring in Foreign Affairs. Mr. eign Service on completion of college. standing senior on his graduation this Zirkle is planning to make the Foreign year from the American School in Manila. Service his career.

Mary Catharine Randolph, daughter of John Randolph, is Walter Alan Ray, son of the the recipient of one-half of the late Guy W. Ray, has been Overseas Foreign Service awarded one-half of the Hos- Scholarship. Miss Randolph is mer-Association Scholarship. transferring from Grinnell Col¬ Mr. Ray will enter his sopho¬ more year at the Massachus¬ lege to enter her junior year at the University of Florida, etts Institute of Technology. He is studying to become would like to enter some either a Mechanical or a branch of the Government for Metallurgical engineer. work abroad. SERVICE GLIMPSES

Jts

1. Damascus—When the Syrian Minister of Education gave a 3. Rome—Minister-Counselor Elbridge Durbrow threw out the first luncheon in honor of Dr. Robert P. Tristram Coffin of Bowdoin Col¬ ball at the fourth of July baseball game in Rome. lege, The Honorable James Moose, Ambassador to Syria, and Mrs. Moose were present. In the picture above, from left to right, are 4. En Route—Arthur Hopkins Jr. and Arthur Hopkins III shown Ambassador Moose, Mrs. Moose, Dr. Coffin, Dr. Salaheddin Junna- aboard the S. S. United States en route to New York from Beng¬ jod, of the Syrian Ministry of Education, and Miss Jane Hockett. hazi. Arthur Hopkins III was the first American child to be born in Benghazi. 2. Havana—Ambassador Arthur Gardner is shown here greeting Ernest Hemingway upon the American novelist's return from a year¬ 5. Tunis—In accordance with tradition, a formal Memorial cere¬ long hunting trip to Africa in which he narrowly escaped death in mony was held on May 30 at the American Cemetery at Carthage, two airplane crashes. Mr. Hemingway resides near Havana. a suburb of Tunis. It was attended by French and Tunisian officials,

32 FOREIGN SERVICE JOURNAL the clergy and the Consular Corps. In the photograph above, mately six hours by air, not counting the time in going to and Consul General Morris Hughes is shown greeting Minister Delegate from the airport at each place. Robert Boisseson, and the Bey's representative General Maaovi. British Consul General Williams is shown at the left. 7. Havana—The multi-windowed chancery of the U. S. Embassy in Havana provided a ready-made background for a novel tribute to 6. Tripoli—Mrs. Henry Villard, wife of the Minister to Libya, is Cuba on its Independence Day, and for a Fourth of July stunt on shown here with Queen Fatima of Libya and Sandra Villard, fol¬ its own national holiday. By pulling the blinds on certain windows, lowing an informal luncheon. To have this informal lunch with the the words "Viva Cuba" were worked out in lights on the two flat Queen, it was necessary for Mrs. Villard and Sandra to fly by USAF sides of the chancery on May 20, and on the Fourth of July the airplane from Tripoli, home of the American Legation, to Benghazi, same idea was used to spell out "1776" on one side and "U.S.A." where Queen Fatima resides. This meant a round trip of approxi¬ on the other.

SEPTEMBER, 1954 EDITORIALS

THE NEED FOR CONFIDENCE and purposefulness we see in carrying out the reorganiza¬ “The multiple purposes of the Foreign Inspection Corps sug¬ tion of the Foreign Service. No concrete demonstration of gest that it should be attached to the Office of the Deputy the Department’s intentions would impress us more than Under Secretary for Administration. the immediate recognition of the wisdom of the Public “This is logical because the reports of the Inspectors are sent Committee’s recommendation regarding the Foreign Service for action to the area Assistant Secretaries, to the Personnel and Administrative Offices, and to the Office of Security—in Inspection Corps. brief, to many offices within the Department. The Deputy Un¬ We have confidence that the inherent logic of this matter der Secretary for Administration and his immediate staff occupy will prevail. The recognition by the Department of that logic the convenient position in the Department’s organization from which the various findings and recommendations submitted by will in turn serve to increase our confidence. And there is a the Inspectors can be followed up.” Report of the Secretary real need for confidence just now7. of State’s Public Committee on Personnel, June, 1954. “THE INTERESTS OF THE Among the many factors militating for and against the NATIONAL SECURITY” success of the Wriston Proposal, none is more basic than the degree of confidence which the members of the Foreign To anyone whose primary responsibility has to do with Service have in those who shall be called upon to administer the exclusion of security-risks from Government “the inter¬ the Integration Program. The JOURNAL has already ex¬ ests of the national security” may seem to depend chiefly pressed the hope that its initial concern over the almost on what qualities the men and women who make up our 7 complete absence of names of senior, experienced Foreign Government do not have. It is enough, perhaps, if they show Service Officers and Foreign Service Staff Officers from the no signs of possible disloyalty and are without certain de¬ rosters of those charged with executing the Program will fects of behavior. “The interests of the national security,” soon prove to have been unfounded. The confidence of the by these negative standards, W'ould be realized absolutely if Service itself in the Program will he in direct proportion to the Government were staffed entirely by wooden Indians. the degree of participation of Foreign Service personnel in Those of us whose business it is to meet our country’s the remaking of their own house. The job at hand must be external dangers, however, know7 how much the national done in an equitable, prompt, and forthright manner. security depends on positive qualities, on the dedication, the In the weeks that have passed since the publication of vision, the energy, the intellectual development, and the ac¬ the Proposals, no indication has been made as to the Depart¬ cumulated knowledge of those who compose the Government. ment’s acceptance or rejection of the Public Committee’s Staff it w7ith w7ooden Indians and the interests of our coun¬ recommendation that the Foreign Service Inspection Corps try’s enemies will be abundantly served. be transferred to the jurisdiction of the Deputy Under Secre- The public belief that our Government was riddled w7ith retary for Administration. traitors inevitably required a dramatic internal security The JOURNAL believes that few items in the Public Com¬ program with emphasis on negatives. The negative good it mittee’s Report have received more widespread approval in has done is undoubted. Such a program was bound, how¬ the Foreign Service than this recommendation. We have ever, to take its toll of the positive values. In arriving at always been proud of our Inspectors, FSO and FSS—and security judgments suspicion of evil has counted for more of the traditionally impartial, constructive and helpful than knowledge of good, since the latter was technically manner in which they have exercised their difficult offices. irrelevant. Officials whose qualities are difficult to replace We have always had confidence in them and have been ac¬ have been lost. Government service has sometimes seemed customed to dealing with them in a spirit of mutual confi¬ unattractive, of late years, to men who are disposed to walk dence. Frankly, we dislike the Corps’ present incongruous around the statue of conformity and see it from all sides. location in the home establishment and were happy that the Many of them have been tempted away from our Govern¬ Secretary’s Public Committee also took note of this anomaly. ment, with corresponding loss to “the interests of the na¬ As George Butler suggests in an article in this issue of the tional security.” JOURNAL, the Inspection Corps can, and should, play an Some of this was inevitable, given some actual cases of increasingly important role in our expanded Foreign Service disloyalty and the consequent public alarm. We may hope, in the years immediately ahead. In a real sense, the Inspec¬ however, that now at last the crisis has been weathered and tion Corps is the “tie that binds” the Service together. It our Government can settle down to its positive job of tend¬ welds the scattered components of our Service into one ing the nation’s business. Employee-security procedures, organization with one purpose; it guards our standards and operative since 1939, are here to stay. They are a necessity insures the uniform and high level of performance that our of our times. But from now on the emphasis should be on country expects of the Foreign Service. We venture to improving them, making them more sensitive to the varied suggest that the new shape of the Service gives rise to the needs of real national security, bringing them into harmony consideration of expanding the area of the Inspection Corps’ with our national tradition, correcting the defects that ex¬ responsibility to include its personnel and activities at home perience has revealed. as well as abroad. It is with this constructive purpose in mind that we Indeed, we feel that the confidence we are expected to publish “Federal Employ7ee-Security Procedures” as the evince in the new order of things hinges upon the sincerity leading article in this issue.

34 FOREIGN SERVICE JOURNAL THE NEW FOREIQN SERVICE: II Selection Boards During Integration

By GEORGE H. BUTLER The comment about Selection Boards that is made in the Wriston Committee report deals with certain administrative The concluding paragraph of the report of The Secretary faults in the promotion system. It is fair to assume that the of State’s Public Committee on Personnel (Wriston Com¬ Committee had no adverse criticism to make regarding the mittee) reads as follows: basic principles of the promotion system that has been in “Public confidence is the ultimate measure of a job well effect for the past seven years. done. In its half century of existence the Foreign Service Selection Board findings are based on the personal records has rendered distinguished service. Vigorous and con¬ of Foreign Service officers that are made available to the certed action now will strengthen American diplomacy, Boards for study and evaluation. This fact gives rise to a fit it more surely for its great tasks, and will assure it an new series of problems that Selection Boards must resolve even more notable future.” as the result of integration. These will be examined in In order to make good this hope and purpose, a high subsequent paragraphs. order of administrative action and procedure must be According to the Wriston Committee report, “The Foreign exercised in carrying out the Committee’s recommendations. Service Staff category should henceforth be used solely for This is essential, not only to win public confidence but to the employment of technical, clerical, and custodial person¬ convince the many thousands of individuals in the Depart¬ nel of lower than officer rank.” This seems to require ment of State and in its Foreign Service, whose lives and amendment of Sections 415 and 416 of the Foreign Service careers will be greatly affected by the changes to be made, Act of 1946, which provide for Foreign Service Staff Officers that what is done is in the best interests of a career service and Employees. The Report of the Committee on Foreign based on high standards and merit, and also satisfies to the Affairs, House of Representatives, contains this statement maximum extent consistent with Service needs the just about Staff officers: “The creation of the staff branch with aspirations of all categories of personnel concerned. the salaries authorized by this section will afford an at¬ There are three bodies within the Department’s adminis¬ tractive and rewarding career for specialists in manage¬ trative organization which will play important roles during ment or in various technical and functional fields.” Selec¬ and after integration. All of them are provided for in the tion Boards now will have to evaluate the performance of Foreign Service Act of 1946. All of them are the subject former Staff officers and rate their special skills in com¬ of comment in the Wriston Committee report. They are the parison with the broader qualifications of the old Foreign Foreign Service Selection Boards, the Board of Examiners Service officer group. for the Foreign Service, and the Foreign Service Inspection The Wriston Committee report states: “The Reserve Corps. should be retained as provided by statute and should be used The positions that these three bodies are given in the primarily as means for bringing into the Service on a administrative area, the responsibilities assigned to them, temporary basis specialists to deal with unique problems.” and their personnel and procedures, will furnish significant It further observes: “Officers appointed to the Reserve criteria by which to judge the effectiveness and fairness of category under this interim arrangement should be given the effort to strengthen American diplomacy and fit it more firm assurance of their prompt shift to Foreign Service of¬ surely for its great tasks. ficer status as soon as the necessary clearances and ap¬ This article is devoted to some of the new problems that provals can be obtained.” This is a new phase of the will confront Foreign Service Selection Boards, particularly generalist-specialist problem that Selection Boards must during the next few years while integration is being ac¬ consider in the future. complished. Finally, there are the thousands of officers in the Depart¬ Section 623 of the Foreign Service Act of 1946 provides: ment and the Foreign Service officer corps who will be “The Secretary is authorized to establish, with the members of the integrated Service. It is these two groups advice of the Board of the Foreign Service, selection which, in the past, have been charged with most of the boards to evaluate the performance of Foreign Service substantive work in the field of our international relations. officers, and upon the basis of their findings the Secretary Selection Boards will have the responsibility of evaluating shall make recommendations to the President for the and comparing their records. These records were made promotion of Foreign Service officers. No person assigned under different conditions of work, different requirements, to serve on any such board shall serve in such capacity and different systems of selection and promotion. for any two consecutive years. ’ The first Selection Boards met in 1947. Their findings Personal Records have governed the promotion of Foreign Service officers ever Personal records, on which Foreign Service Selection since. The procedures and the work of Selection Boards, Boards must base their findings, are the key to the promotion like those of every other human device, can and should he system and to the proper functioning of the Selection Boards. improved. There is convincing evidence, however, that the Section 601 of the Foreign Service Act of 1946 defines system is essentially sound and fair and that it is so re¬ “efficiency record” as the term which describes materials garded by the large majority of Foreign Service officers. pertinent to the preparation of an evaluation of the per-

SEPTEMBER. 1954 35 formance of an officer or employee of the Service, and Selection Board-promotion problems is an immediate and “efficiency report” as the term which designates the analysis substantial increase in the staff of Personnel. Essential of the performance of an officer or employee made by his records for an integrated Service cannot possibly be com¬ supervising officer or by a Foreign Service inspector in piled and kept up to date by the present staff. This opinion accordance with such regulations as may be prescribed by results from personal experience as a member of 1954 the Secretary. Selection Board A. After more than three years of retire¬ The comment on Section 601 made by the Committee on ment, it is with diffidence that I comment upon staffing in Foreign Affairs of the House of Representatives was: the administrative area. It is my impression, however, that “Section 601 (1) and (2) serves to distinguish between the a great many transfers of positions could be made to the terms ‘efficiency report’ and ‘efficiency record’ which are personnel section from other less important, or perhaps un¬ sometimes confused. The Director General is required to necessary, sections. When I entered the Service, and during evaluate materials going into the record so that insofar as practically all of my 25 years of active service, Foreign possible personnel decisions will not be based on irresponsi¬ Service officers attended to many matters which now are ble allegations or reports contrary to fact.” being performed as official services by the Department. It It is clear that efficiency records are broader in scope probably would not be an undue hardship for Foreign than efficiency reports. They include all important factors Service officers again to take care of themselves to a greater that have a bearing on the preparation of an efficiency re¬ extent. Many thousands of man-hours would be saved to the port. Examples of these factors are integrity, character, government. general attitude, experience in and outside the Service, In summary, every possible action to assure the prepara¬ background, education, initiative, work habits, adaptability tion and maintenance of adequate efficiency records for the to new environment and conditions, health, and the influence members of the integrated Foreign Service is essential if of members of an officer’s family on his official position. future Selection Boards are to be in a position to act wisely The records of Foreign Service officers have been compiled and fairly in the vitally important system of promotion and with these requirements as the objective. Improvement is selection-out. necessary and possible. Similar records now must be pre¬ Generalist-Specialist Problem pared for all officers who are to be brought into the in¬ Selection Boards now are called upon to consider the tegrated Foreign Service. Until these records are avail¬ generalist-specialist problem principally in connection with able, Selection Boards will have many difficult decisions to officers engaged in economic and commercial, agricultural, make in order to assure a maximum of fairness in their and labor reporting and activities. Integration will add to recommendations for promotion. The magnitude of the the Foreign Service officer group large numbers of other record job is indicated by the Wriston Committee’s estimate specialists who now are in the Staff and Reserve categories. of an integrated Service numbering some 3,900 officers as It will require careful study and time to develop criteria compared with less than 1,300 Foreign Service officers now and procedures that will enable Selection Boards to act on the rolls. in the best interests of the Service and with a minimum of Efficiency reports pose less of a problem, although it prejudice to individuals’ careers. will be a year or more before Selection Boards can be There is extensive comment in the Wriston Committee furnished with the two basic efficiency reports on each of¬ report regarding the problem of specialists and their place ficer: the efficiency report by the supervising officer, and in the Foreign Service. Selection Boards, I believe, give due the efficiency report by a Foreign Service Inspector. weight to the point that specialists must be given credit for An immediate and substantial strengthening of the Foreign their work in spite of the fact that their availability for as¬ Service Inspection Corps would be a feasible and valuable signments is not as great as that of officers with broader action to help solve the new problems that Selection Boards experience. There seems to be no doubt, either, that spe¬ face. The findings of practically all of the Selection Boards cialists who so desire should be given an opportunity to that have met since 1947 have emphasized the necessity and broaden their experience. The outline for some possible usefulness of efficiency reports by Foreign Service Inspectors. general rules do take form as the generalist-specialist prob¬ It is more important than ever that, within two years if lem is studied. possible, an efficiency report be made by a Foreign Service One preliminary assumption must be made. Familiarity Inspector on each member of the integrated Foreign Service. with the tools of one’s profession and experience in using The comment of the Wriston Committee on the Foreign them are essential. In this respect there is a fair basis of Service Inspection Corps points out that one of its primary comparison between the work of those dealing with inter¬ functions is: national relations and that of engineers, lawyers, doctors Personnel: “To prepare efficiency reports on American and other professional personnel. One does not design and personnel at the several posts and to advise the Depart¬ construct a great dam, practice before the Supreme Court, or ment on placement and career management of their perform major operations until after a long and arduous personnel. These efficiency reports make it possible to apprenticeship. All members of the integrated Foreign compare officers and employees with other members of Service should accept the fact that they must have some their class on a service-wide basis. Selection Boards have familiarity with and experience in the performance of the testified to the effectiveness of these reports as the most manifold duties of Foreign Service officers. This is not useful basis for decisions regarding promotion, selection- contrary to the sound principle that full use must be made out, and transfer.” of special skills. It does seem to require that a substantial Another administrative action that would ease the new (Continued on page 48)

36 FOREIGN SERVICE JOURNAL m

maw- Vancouver, Canada lias its own distinctive character

Seagram’s YO. GarniJian QG/uoiy JaiA a c/oifinctwe cfiaraetea/E iti own

Wherever you go, you will find Seagram’s V. O. Canadian Whisky honoured for its clean taste, its light body, its delightfully different flavour. The first time you try this clean-tasting Canadian Whisky you, too, will know why . . . of all whiskies exported throughout the world, more Seagrarn's V. O. is sold than any other brand. The House of Seagram, Distillers since 1857, Waterloo, Canada. Seagram’s VO. JCWVUILW WHISKY oJummml tfie ivordl otmv EXCHANGE OF LETTERS ON INTEGRATION

CHARLES E. SALTZMAN—ANDREW B. FOSTER

Under Secretary of State American Foreign Service For Administration , Association W ashington August 16, 1954 August 10, 1954 Dear Mr. Foster: Dear Mr. Saltzman: I have read with great interest the material in the August Thank you for your letter of August 10 concerning the 1954 number of the FOREIGN SERVICE JOURNAL which dis¬ articles and letters in the FOREIGN SERVICE JOURNAL on the cusses Various aspects and possible effects of the integration integration program. It is most heartening to me and my program which was recently adopted by the Secretary of fellow members of the Board of Directors of the Foreign State. Service Association to know7 of your interest in this material I feel that these articles and letters contain helpful ma¬ and of your feeling that it is helpful. terial for the consideration of the Department’s administra¬ As I told you and the other members of the Wriston tive officers. I thought you would be interested in the at¬ Committee during my association with the Committee earlier tached memorandum on this subject which I have sent to¬ this year, the Board was anxious to ensure that the Foreign day to Mr. George Wilson who is spending his full time, Service viewpoint on the problems in question was made under my supervision, in directing a small special staff which known to the Committee. As Associate Staff Director for is engaged in setting up the necessary arrangements for the Committee I had the opportunity to put the Board’s putting in operation the Secretary’s new program including views before the Committee. In addition, the Committee the integration program. Yours sincerely, heard, of course, from many officers of the Service at first Charles E. Saltzman hand and through letters addressed to it. (memorandum attached) Perhaps I need not emphasize that the viewpoint to which I refer is founded on the convictions of the Service itself August 10, 1954 concerning the kind of organization which can best serve PER—Mr. George Wilson: the interests of the United States Government and of the American people. Those interests are our sole concern and, As I mentioned in our conversation this morning, I have we believe, must be the single criterion against which to seen and heard a variety of expressions of apprehension that the integration program may operate inequitably with re¬ measure the steps being taken to implement the reorganiza¬ spect to young officers in the Foreign Service who are al¬ tion program. ready serving in the lower classes of the service. You will Your letter and its accompanying memorandum to Mr. recall that the Secretary’s Public Committee on Personnel Wilson show that you are well aware of the questions and realized that this might be the case and suggested in effect anxieties among members of the Service regarding certain that the situation be examined carefully with this in mind aspects of the integration program and that you intend to so that any necessary action might be taken to mitigate or take these into account as far as it lies in your power to eliminate any inequities that may result to these officers or do so. As I told you during our conversation this after¬ to any other affected categories. noon, I am confident the Service will be gratified and reas¬ Will you, therefore, please have your special staff which sured to learn this. is engaged in the organization and operation of the new pro¬ T During our meeting you w ere good enough to tell me that gram make a thorough study of the effects of the integration you would be glad to have the Board of Directors submit to program on the various categories of affected officers, wheth¬ you for consideration the letters reaching it and the JOURNAL er in Civil Service, Foreign Service Officer Corps, or For¬ from members of the Service asking questions about the eign Service Staff in order that we may be sure that we recognize any possible inequities and may decide promptly implementation of the program or offering comments and on any actions that ought to be taken in the interests of the suggestions concerning it. In behalf of the Board—and, State Department and its personnel. In examining this I think, of the entire Service—I should like to express our question you will undoubtedly want to consult representative very real appreciation of your offer, which we are happy to individuals in the three types of service which are involved. accept forthwith. Please treat this as a matter of priority and keep me Very sincerely yours, posted as to your progress, findings and recommendations. Andrew B. Foster, Chairman Charles E. Saltzman Board of Directors

38 FOREIGN SERVICE JOURNAL HEWS FROM THE FIELD

CYPRUS of his birth. Though he may even spend his entire produc¬ By DANIEL SPRECHER tive life away from the Island and his family, his remit¬ At first sight, the Island of Cyprus strikes one as being a tances from abroad seldom fail. romantic place and, in point of fact, there is much to sup¬ Cyprus has had a long, varied, and interesting history though an amazingly passive one. Many peoples of the port this impression. Situated in the Eastern Mediterranean, Near East have at one time or another sacked or occupied not far from Turkey, Syria, Lebanon, Israel and Egypt, the the Island, including the Egyptians, Persians, Assyrians, Island can well claim to be a crossroads of the Middle East. Saracens and Turks. Powers further removed, such as Cyprus has mountains and beaches, pine forests and plains, Venice. Rome and Great Britain have not neglected it. No a relaxed pace of life and friendly people. If one’s stay in less personages than Richard the Lionhearted and Alexander Cyprus is less than idyllic, the blame can be placed on two the Great had a hand in the Island’s affairs. things: the climate, which is more or less one of extremes, One cannot help but think that many rulers in olden days and transportation difficulties. Nevertheless, the idea of must have felt like the Turkish Sultan who, after tasting Cyprus as a get-away-from-it-all retreat is justifiedly wide¬ Commandaria, a famous Cyprus wine, is said to have re¬ spread. It is only an occasional traveller who leaves the marked : “The Island that produces this wine must be mine.” Island without looking back with pleasure on his visit and In modern times, until 1878, Cyprus belonged to Turkey. without fostering the thought of one day returning. In that year it passed under British Administration and in 1925 assumed its present status as a crown colony. Cul¬ turally about 80% of the population is Greek and 17% Turkish. Armenians and other minorities make up the re¬ mainder. Foreign incursions upon Cyprus have left vestiges rang¬ ing from the slag heaps of the Phoenician and Roman copper smelters to the tomb of Mohammed’s Aunt. The lover of antiquities, consequently, can find several inter¬ esting excursions to make. Though not well preserved, the Island’s antiquities are easily accessible. No site is more than a few hours’ trip from Nicosia. It is even possible to

The famous Abbey of Bellapsis

The site of the birth of Aphrodite (Venus) located near Koulclia, on the Western tip of Cyprus. Nicosia, the capital and site of the Consulate, has a total population of only around 50,000. It is mainly a trading center, with few important industries. Sheep and goats, adding a bucolic note, often graze just outside the ancient walls of the town. The wide moat that surrounds these massive walls now is used for public gardens and play¬ grounds. One searches in vain for lavish entertainment in Nicosia, or, for that matter, in any of the other towns on the Island. Movies and somewhat less than first-class night clubs are about the only attractions. Rather than remaining in town, the visitor is better ad¬ vised to go to the hinterland. There one finds friendliness and hospitality. The Cypriot is essentially a good-natured person, proud of his Island and deeply attached to his village. He may, as is often the case, emigrate to another country and stay there for much of his life, but the chances are he will sooner or later find his way back to the village

SEPTEMBER, 1954 39 drive to Paphos at the western tip of the Island, where the passed down from mother to daughter with religious uni¬ birthplace of Venus is located, and return the same day. formity. These women work with fascinating speed and dex¬ The trip most frequently made by visitors is to St. terity. Their needles and thread are the only measuring Hilarian Castle, built almost a thousand years ago. The devices used in sewing the intricate patterns. One of the few drive to the Castle is in itself interesting. As the narrow remaining home-work industries, embroidering allows the road hairpins its way up the mountainside, there are fine women to take care of their homes and earn money as well. views to be had of the valleys, the sea, and the resort town It is not unusual to find a tea service or bedspread that has of Kyrenia on the coast. taken a year or more of a woman’s work to complete. St. Hilarian is spectacularly situated atop one of the The method of selling Lefkara lace is rather unusual. The mountains in the Island’s northern range. It is rather di¬ men of the village go abroad, staying for years in foreign lapidated now, but in its time it withstood every attack and lands, selling the articles their womenfolk have produced. never fell by storm. Originally, it formed part of the Byzan¬ At any one time, there are about 150 Lefkara men travelling tine defenses of the Island along with the castles of Buffa- overseas selling their goods. Hundreds of years ago, Lef¬ vento, Kyrenia, and Kantara. kara men were itinerant world peddlers of olive oil. In Also in the northern range of mountains is the Abbey of recent years, they have merely changed their commodity. Bellapsis. The history of the Abbey goes back to the Augus- Unfortunately, like many another home industry, this one tinian canons who probably came from Palestine where faces the problem of finding young hands to replace the old. their order had custody of the Church of the Holy Sepulchre. The Augustinians left Jerusalem when it fell in 1187. The Abbey has been restored during various periods, and is in BOMBAY a better state of repair than most of the Island’s relics. The common mode of reckoning the longer stretches of The Marble Forum at Salamis, near Famagusta on the time in Bombay is less by the calendar than by the monsoon. southern coast, is not devoid of interest. Although only a “When did you arrive—before the monsoon?” “When are few columns have been re-erected, the Forum nevertheless you due home leave—after the monsoon?” and “How many is a good place to muse on the transitory nature of civiliza- monsoons have you been in Bombay?” Now that we are t;ons. involved again in this annual bedlam of rainfall, your correspondent recalls that it has been a whole monsoon since he reported for the post. Any refinement in the monsoon’s gauge of time is pro¬ vided by visits of the US Navy. These are also sufficiently memorable to provide benchmarks more real than those of the calendar. There is only one monsoon a year, but the climaxes of official activity and private hospitality which rise with the tide of a naval visit occur three or four times a year. Offering a fine harbor, Bombay is so tempting an invitation to naval (as to merchant) vessels as to provide a convenient nautical substitute for calendar reckonings. Three US Navy visits have been paid to Bombay since the last monsoon, the last, in May, being that of Rear Admiral W. G. Beecher, Commander Middle East Force, on the V.S.S. Valcour, a seaplane tender. AMBASSADOR H. FREEMAN MATTHEWS was quoted in a recent issue of the JOURNAL as saying that good humor is just about as important a trait as any one needs in service abroad, and the present monsoon has provided an illustrative episode. It involves our genial and efficient General Services Officer, LARRY J. ROBERT. Larry has justly acquired a reputation in Bombay and New Delhi for the rapidity with which he whips shipments off the docks, clears them through customs, One trip not frequently made by foreigners is to Lefkara, and speeds them on to their destinations. But a possession of the center of a renouned lace embroidery industry. The his own became stranded in Bombay. A record player. drive from Nicosia to Lefkara takes about an hour and a Where was it? On a barge. Where was the barge? Out half, through both flat and hilly country. The roads for¬ in “the stream.” Reason? Dockers “go-slow” strike in ever bend and turn; indeed, a stretch of straight road is a Bombay, so that ships had to unload on barges and barges rarity on the Island. By the end of the trip, an observant were forced to wait their turn to discharge on the docks. traveller can tell a carob tree from an olive tree. Both are A joke in one sense, it was no joke to have a record player relatively abundant in Cyprus, and although the olives are exposed to the down-pouring monsoon. Yet Larry has not of excellent quality, the carobs, which are used primarily taken it with his usual good humor. as a cattle feed, are exported in large quantities. Since the last monsoon, Bombay has run the gauntlet of Lefkara is picturesquely located in the southern hills, and reduction-in-force. In addition, it has lost by transfer E. F. is both clean and quiet. Some 350 women, working inde¬ DRUMRIGHT and acquired the veteran and affable WILLIAM pendently, turn out the embroidery for which the village is T. TURNER as Consul General. The undersigned, who was famous. in charge during the merry interval, takes this opportunity Embroidering in Lefkara is centuries old; the art is of reporting the magnificent way in which the staff responded

40 FOREIGN SERVICE JOURNAI to the overwhelming burden of dispatching the business of which he emphasized his government’s appreciation of Mr. this active post with a drastically reduced staff. There was Lawton’s many contributions to the development of never a thought as to whether the work of the post could Surinam, both as a private businessman and as an officer be done under these critical circumstances. All assumed of the American government. The ceremony took place in it could be done. And it was done—in cases, at some a Paramaribo hospital, where Mr. Lawton is recovering sacrifices of health. This splendid spirit and performance from a recent severe illness. take their place beside many another demonstration of the “Mister Jim” first came to this tropical outpost in 1911. Service’s ability to meet emergencies thrust upon it far His quest for copper and other minerals took him to all from home and the convenient cushions of support and corners of the then virtually unexplored bush. In 1917 he comfort which home provides. was appointed Consular Agent, a post he filled with dis¬ Arrived, also, since the last monsoon have been ROGER tinction until 1942, when the Consulate was opened. As BREWIN from Bern, the WILLIAM J. BARNSDALES from Bari, Vice Consul, Mr. Lawton continued to be the best known the ERIC SHEARERS from Rome, the RUDOLF DAYS from and best loved American in Surinam. He and his charming Washington, MARY TOLLESON from New Delhi, EVELYN wife Mildred have chosen to make their permanent home NEWELL from the Department, and MABEL WOODCOCK in Paramaribo amid their many Surinam and American from Stuttgart. friends. Outside my window, as I write, the rain falls. The DeWitt L. Stora cluster of ships in the harbor present a great society of wet hulls, masts, gossiping cranes, funnels, and flags. Behind HANOI them is a sky of varying shades of gray. A typical monsoon TURNER CAMERON arrived to replace PAUL STURM as Con¬ scene in the port of Bombay. And so—in the monsoon’s sul in April. The period since with the rapid march of events midst—I sign off as this post’s correspondent to take up in North Viet Nam has been anything but a quiet one. July new duties at Lourengo Marques. I shall only add that Fourth was celebrated in the traditional fashion however those who have not sampled Bombay yet have much to with a reception at the consular residence which was attended anticipate. As one of India’s important cities, it has a by about one hundred and fifty persons including the Gover¬ range of industrial, financial, commercial, publishing, nor of North Viet Nam and General Cogny, commanding shipping, labor and political activity which makes the post French Union forces in North Viet Nam. In the receiving a stimulating one, fully testing the best abilities of anyone line with Consul Cameron were LT. COL. LANIER D. BUFORD, in the Service. It is also a post which invites a wide range Assistant Army Attache, stationed at Hanoi, FOA Director of friendships among Indians and a sizeable American for North Viet Nam GERALD STRAUSS and Assistant Public colony. As all those know who have served here, Bombay Affairs Officer, HOWARD THOMAS. COL. LEO SHAUGHNESSEY, is a challenging post one never forgets. Army Attache at the Embassy at Saigon, was in Hanoi for R. Smith Simpson the weekend and added very welcome extra color to the af¬ PARAMARIBO fair. Consul Cameron was ably assisted in organizing the reception by VICE CONSUL SAM BROWN. There has been a complete changeover in personnel at Hanoi since the last “News from the Field” report. Among new arrivals in addition to Consul Cameron are Vice Consuls Sam Brown and ED WELLINGTON, Administrative Assistants CARROLL INGRAHAM and PIERRE PAMBRUN, JOE KOZLOWSKI and LARRY OSWALD, code clerks, and FRANCIS ROCHE, STEVE STOKEN and NORMAN FRANCIS, radio operators. MARTIN ACKERMAN, Public Affairs Officer, Howard Thomas, Assist¬ ant Public Affairs Officer, and MELVIN PETERSON, Informa¬ tion Assistant, are the new arrivals for USIA. Despite wartime conditions existing in Hanoi all personnel are in good spirits and are able to continue their normal activities. Though we are, for most purposes, restricted to the city, there is plenty of opportunity for tennis, swimming, sailing, gastronomic exploration in three different cuisines— French, Vietnamese and Chinese, and for the amateur pho¬ tographer to take pictures of colorful local costumes and cus¬ toms. From left to right, Mrs. Mildred Lawton; the Honorable Jan Klaasesz, Perhaps this will be the last report from Hanoi for some Governor of Surinam; James S. Lawton, former American Vice Consul in Paramaribo. time so if events are such that there is no longer a consulate here when time for publication arrives we hope this will be Queen Juliana of The Netherlands paid fitting tribute to published just the same. Despite the summer heat and the more than 40 years of public-spirited service in Surinam confusion resulting from the influx of refugees and the when she conferred knighthood in the Order of Orange- proximity of the war, all those who have served at Hanoi will Nassau on James S. Lawton, former American Vice Consul be glad to know that the city has not lost its charm nor the in Paramaribo, in the July Honors List. people their good nature. The Honorable Jan Klaasesz, Governor of Surinam, Howard C. Thomas, Jr. presented the medal after making a moving speech in (Continued on page 44)

SEPTEMBER, 1954 41 and the diplomatic discussions between the Vietminh and the \y French which led to the outbreak of civil war. Attempts at « reaching first a Bao Dai-H'o Chi Minh solution and then a | Francis C. deWolf, Review Editor fj| Bao Dai versus Vietminh solution are described in such a r>'-; r ■ itKv-v.; way as to make it evident that either solution was inadequate. - Dr. Hammer’s descriptions of French efforts to perfect the independence and sovereignty of the three Associated States THE BOOKSHELF leave the impression that the French were always in the process of perfecting without achieving the fact of inde¬ pendence. Dr. Hammer succeeds in portraying the costs of the struggle for Indochina to France, to the indigenous peoples, and to the American government not only in dollars and NEW AND INTERESTING cents, but in terms of lives lost and hopes frustrated. The type of warfare with no defined front lines or political boun¬ by FRANCIS COLT DE WOLF daries between the enemies is brought out sharply in the volume. 1. Power of Words, by Stuart Chase, published by Dr. Hammer portrays the issues as more than a battle of Harcourt, brace and Company $3.95 a colonial nature between local nationalists and the French. The old Maestro is at it again! The author of “The She locates the situation in the world picture. One paragraph Tragedy of Waste” (1925) now approaches the prob¬ of comment is especially pertinent in the light of the Geneva lem of communications and has a lovely time with conference: “So today it is to be hoped that the keen interest semantics, mass media, machines that talk—and even of the United States in this region of the world will not per¬ bee talk! Useful, interesting and good fun. mit any settlement of the Indochina war which does not agree 2. The Tunnel of Love, by Peter de Vries, pub¬ with the basic imperatives of American policy in that area.” lished by Little Brown $3.50 Zany doings of the artistic fringe of Connecticut's Review and Reflection, a Half-Centnrv of Labor Rela¬ Suburbia by one of the New Yorker family's best. tions, by Cyrus S. Ching. B. C. Forbes & Sons Publishing 3. A Time to Love and a Time to Die, by Erich Co., Inc'., New York. 1953. 204 pp. $3.95. Maria Remarque, published by Harcourt, Brace Reviewed by HELEN G. KELLY and Company $3.95 Along with religion and politics, labor unions are just Gruesome yet beautiful! A young German soldier dur¬ about as controversial a subject of conversation as can be ing the last war struggles to keep alive and to enjoy found. No one with pronounced views on any one of the every borrowed moment. Book-of-the-Month selection. three is ever convinced of anything other than what he be¬ lieved at the beginning. That is why this book is outstanding The Struggle for Indochina by Ellen J. Hammer. Stan¬ —or unsatisfactory. Unsatisfactory if you are pro-manage¬ ford University Press, Stanford, California, pp. XVII, 332. ment or pro-union. Outstanding, if you can see both sides 1954. and recognize the good and the bad of both. Reviewed by KENNETH P. LANDON With the same impartiality and good humor he displayed There is a large library of information in French on his¬ as Federal Mediator, Mr. Ching has portrayed the develop¬ toric and recent developments in Indochina. Publications in ment of the labor movement in this country from the time he English on this area, however, are exceedingly slight. It is first came from Prince Edward Island to Boston to work on gratifying to discover that this volume provides a substantial the street railways there. Then, management was completely basis for understanding the diverse factors involved in the in the saddle, and the laborer had no rights. Today, with current struggle involving the thirty million people living in labor unions holding the wliiphand, the situation has re¬ the three Associated States of Laos, Cambodia and Vietnam versed. Mr. Ching points out the faults of each, and the in Indochina. Dr. Hammer’s book reflects years of prepara¬ dangers invested in either having control of industry. His tory research before the actual writing took place. Her se¬ own fine career is the thread on which this history is strung, lected bibliography includes Franco-Vietnamese documents, and, in addition to his straightforward, intelligent analysis documents in the Vietnamese language issued by the Gov¬ of labor problems, the book depicts Mr. Ching himself, a ernment of Vietnam, publications of the governments of the thoughtful man, who likes and understands people, and is United States, Great Britain, and France, United Nations willing to believe the best about them. Because he is so im¬ documents as well as newspapers and periodicals in French, partial and just, his comments regarding Government em¬ Vietnamese and other languages. The books and pamphlets ployees are worth quoting: listed indicate thorough familiarity with current studies. “One of the things I acquired . . . was a healthy respect Dr. Hammer starts her story with the movement of the for government employees. The impression is widespread Japanese into Indochina as a preface to World War II and among people who are unfamiliar with Washington that describes the effect of Japanese sponsorship on the develop¬ government workers are a sort of parasitic growth on the ment of national independence from French administrative political and economic system. The belief is that they do control. She traces the rise of the Communist Vietminh, the as little work as possible and receive salaries far out of occupation of northern Indochina by the Chinese at the end line with what people get in private industry. Nothing of World War II, the consolidation by the Vietminh under could be further from the truth.” Chinese protection of their administrative control in Tonkin, For those seeking knowledge of the difficult subject of

42 FOREIGN SERVICE JOURNAL labor relations, the book is recommended for its clarity. It relations and established the sanctity of contract. could have been pedantic and biased. And for those who Both Greek and Roman methods were preferable to that like autobiography, the book is recommended, too. of the Renaissance Italians which falsified and discredited the diplomatic art by the practices learned through Venice The Evolution of Diplomatic Method, by Sir Harold from Oriental Courts. Nicolson. Constable. England. Price 10/6. It remained for the French to bring to the art of diplo¬ Reviewed by WARRICK E. ELROD, JR. macy the element of certainty and centralization so that the His readers on both sides of the Atlantic have come to word of command in foreign affairs “should be delivered expect only the finest from Sir Harold Nicolson. He has by a single voice only, and not by a chorus of discordant never disappointed them and they are likely to find them¬ voices. And Louis XIV was wise enough, Nicolson points selves exceedingly well pleased by his latest offering, the out, to realise that international relations if handled by a publication in book form of his Chichele Lectures delivered few professionals were less likely to become tense or em¬ last November at Oxford. Sir Harold was an admirably bittered while his abiding principle was that negotiation chosen lecturer and he wisely responded by selecting a dip¬ must remain as confidential as possible. His chapter on lomatic subject, having, as he says, “spent much of my the French is a treasure of references to de Callieres and life in the practice and study of diplomacy.” will profit everyone interested in the diplomatic art. In less than a hundred pages Nicolson traces the history Nicolson recognizes that some sort of experiment and of diplomatic practice and procedure from ancient Greece innovation in diplomacy was inevitable after the first World to the present day, expressing discreetly along the way his War; he regrets that the resulting development emphasized opinions on many of the diplomatic methods and procedures defects of previous systems rendering diplomacy’s chief I or lack of them) which have followed in recent years. He aim, international stability, more difficult. Too often the leaves no doubt where his choice of method lies—in the development was not true diplomacy and, with a nostalgic theory and practice of international negotiation originated glance at the League of Nations, Nicolson dismisses UN by Richelieu, the French statesman of the 17th century, meetings as mere exercises in forensic propaganda purport¬ analysed by another Frenchman de Callieres, and adopted ing to be experiments in diplomatic method. by all European countries during the three centuries that Though the implications unfavorable to American methods preceded the change of 1919. As Nicolson says: “I regard are many—we are charged with dangerous imprecision, this method as that best adapted to the conduct of relations failure to indicate who has the first and last word on our between civilized States. He so buttresses his argument foreign policy—Nicolson trusts for improvement in the that there is left little ground for taking exception to his American capacity to learn rapidly and to progress. He conclusions. especially, and justly, laments the American Foreign Serv¬ b y “evolution” Nicolson does not intend to suggest “a ice’s lack of necessary influence with their own government continuous progression from the rudimentary to the effi¬ or public. cient.” On the contrary, he shows that international inter¬ If there is a weakness at all in these lectures it is Nicol- course has always been subject to strange retrogressions. son’s failure adequately to recognize the change that Com¬ By '"diplomacy' and “diplomatic” Nicolson means the art munist ideology has forced in diplomatic method. He does of negotiation, not foreign policy nor international law. say that the basis for the old French method no longer exists While in “method ’ he means not only the actual machinery as before and perhaps he is right within the limits of his for negotiations, but also the general theory, in accordance definitions in concluding that Soviet method is no method with which the machinery was used. at all. He is on safer ground when arguing that the elements The published form of the lectures maintains the division of the French system might today be better applied. into four periods, each representing a definite stage of de¬ We should cheer when Nicolson refuses the pessimistic velopment: The Greek and Roman, the Italian of the 15th view of the professional diplomatist and the belief that “a and 16th centuries, the French of the 17th, 18th and 19th diplomatist today is no more than a clerk at the end of a line.” In these days of our buffets Nicolson comes, as cham¬ centuries and that of transition after 1919. Nicolson calls the last period “The Transition between the Old Diplomacy pagne to the weary, to refresh our strength, and to lend support to the belief Lhat a trained elite is not incompatible and the New,” in preference to “the American method” with modern forms of democracy. since “the Americans have not as yet discovered their own formula.” There is little doubt he considers the second and fourth periods to be retrograde. Though crediting the Greeks with the development of diplomatic method Nicolson finds them to have been too in¬ solent, while the Romans were too haughty, to study or per¬ fect method as an art. If the Greeks realised that stable Any book reviewed in this Book Section principles must govern international relations and nego¬ (or any other current book) supplied by tiated through accredited missions they failed through their return mail. You pay only the bookstore love of discord, their tactlessness and inability to establish price. We pay the postage, anywhere in a correct distribution of responsibility between the Legis¬ the world. Catalogue on request. lature and the executive. Greek failure is also attributed to THE B00KMAILER, Box 101, New York 16 the use of active politicians on embassies, their underpay¬ ment and exposure to heavy penalties if on their return they failed to convince the Assembly of their success. Though the Romans following were too dictatorial to appreciate diplomatic niceties they introduced order into international

SEPTEMBER. 1954 4"> NEWS FROM THE FIELD (from page 41) HELSINKI KUALA LUMPUR The Fourth of July party given by the American Con¬ sulate and American community in Kuala Lumpur this year, at the residence of CONSUL and MRS. ERIC KOCHER, was ac¬ claimed by all who attended as the best and most original party of the year. Its theme was that of a typical small¬ town Country Fair in the U. S., and there were various game booths, many colored lights, an abundance of hot dogs and hamburgers, Coca-Cola (as well as other more potent drinks), and square dancing. With everyone chipping in to help, the party was a huge success despite reduced representation allowances. Mem¬ bers of the Consulate and USIS staffs, both American and local, helped construct the “fun” booths and painted the amusing backdrops for the photo Booth—where guests could substitute their faces for those of George and Martha Washington doing the “Mount Vernon Strut”, or for those of Washington and his men crossing the Delaware, or for After the wedding cake was cut, Mrs. Castleman offered Mr. McFall those of the fife and drum boys in the “Spirit (s) of ’76”. a piece, while Mr. Castleman gave Mrs. McFall a sample. The booths themselves were manned by members of the American community and by Consulate personnel, some In Helsinki, Finland, the former Miss JOYCE CAROL LOTZ of whom turned out to be excellent “barkers”. and MR. THOMAS BENJAMIN CASTLEMAN were married on Among the 400 guests were the Sultan of Selangor and March 6, 1954. Mr. Castleman is in the employ of the Ameri¬ his wife, the Tenku Ainpuan, who threw darts and quoits can Legation, Administrative Section, Mrs. Castleman in the with the best of them. High British military and Govern¬ Office of the Naval Attache. The wedding ceremony was held ment officials and important Malayans from Govern¬ at 3:00 p.m. in the German Lutheran Church of Helsinki. ment, business and labor circles were also among the gue ts It was followed by a wedding reception in the Minister’s who thoroughly enjoyed themselves and entered into the Residence, given by MINISTER and MRS. JACK K. MCFALL informal spirit of the party—which was a welcome change and attended by fifty people. Next day Mr. and Mrs. Castle¬ from the usual rather formal type of reception held in Kuala man left for a two weeks’ honeymoon at Garmisch, Germany. Lumpur. Exotic Malay costumes, bajus and sarongs, Indian Good luck and congratulations! saris and lovely Chinese brocades contrasted nicely with William J. Karppi European clothes and with the loud shirts and American- REYKJAVIK style blue jeans worn by the square dancing teams. MINISTER and MRS. EDWARD B. LAWSON left Iceland on The highlight of the evening was an exhibition of square May 29, after four and a half years of service in this country, dancing given by a group of young Asians who had for by far the longest tour of any American Minister here. Mr. several months been taking lessons at the USIS theaterette Lawson is proceeding, after leave, to his new post as Am¬ from MRS. KOCHER and MR. TOM NOONAN (USIS Cultural bassador to Israel. Affairs Officer). After each exhibition, the dances were re¬ Their departure has been a considerable wrench to both pealed with guests participating—and this was such a hit the Icelanders and the staff of the Legation, for the Minister that the “calling” services of Mr. Noonan have now been was by far the most senior veteran of the American members requested by the very exclusive Lake Club! of the legation. He has also been the principal participant Fortunately, the weather was fine and the much-feared in the recent important developments in American Icelandic rains did not fall. It was still quite light when the party relations, especially those in connection with the negotiation began at 6 p.m., but by the time it ended around 10, there and implementation of the Defense Agreement of May 5, was a new moon and many stars glittering in a tropical 1951. sky against which floodlighted palm trees were dramatically Many farewell social occasions were held for the Lawsons silhouetted. Typical American Fourth of July music was before their departure, including an official dinner given by wafted over several loudspeakers, and just managed to the Government of Iceland, a large dinner-dance held by the make itself heard above the hubbub of conversation and Icelandic-American Society of Keykjavik. and another given the hoopla at the booths. The setting was most attractive, by all the members of the staff of the Legation and USIS. the party being held on the large lawn which slopes down on Perhaps the most unusual send-off given any departing diplo¬ two levels in front of the Consul’s residence, surrounded mat from Reykjavik was accorded the Lawsons on their by palm trees and various varieties of tropical flowers. sailing, when over a hundred friends, including leading Ice¬ Three anthems were played during the course of the landic personalities, came on board the M. S. Gollfoss to wish evening: the State Anthem of Selangor (one of the nine them Godspeed. Malay States) upon the arrival of the Sultan, “God Save Pending departures include JOHN DIGGINS, Consular Of¬ the Queen”, and of course the American National Anthem. ficer, for home leave and transfer to Antwerp; ROLAND The party ended with a toast by Mr. Kocher to the continued BEYER, Political Officer, leave and transfer to Brussels; JERRY friendship of the three countries. WINEMILLER. accounting clerk, and Ruth Johnson, secretary. R. Nelson. Roland K. Beyer

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SEPTEMBER, 1954 45 NEWS TO THE FIELD (horn page 19) “There is more to the Foreign Service than rules, regu¬ ning Staff. He served as an elected Representative in the lations and obligations; there is also the duty of all citizens Massachusetts General Court from January, 1951, until July, to make certain that their fellow citizens in the Service can 1953, when he resigned to accept the position of Executive put their hearts as well as their minds into the work of Assistant to the Vice President. representing the United States of America before the peo¬ ples of the entire world.” WILLARD BUNCE COWLES of Lincoln, Nebraska, was ap¬ WILLIAM R. DUGGAN, Foreign Service Officer now at pointed Deputy Legal Adviser of the Department. Until his Copenhagen, wrote an article entitled “Life in the U. S. appointment, Mr. Cowles was professor of international law Foreign Service Is Far From All Beer and Skittles’ which at the Law School, University of Nebraska. In 1941 he appeared in the Sunday section of the Louisville Courier was Special Assistant to the Attorney General of the United Journal. He said, in part, “We have no unions to defend States and from 1943 to 1945 he was adviser on interna¬ us or to exert strong political pressures in our behalf. Many tional law to the Judge Advocate General of the Army. of us, by virtue of our service abroad, have even sacrificed Mr. Cowles succeeds JACK B. TATE, now Yssociate Dean of our right to vote. the Yale Law School. “We have no high-powered press agents; nor do we, at ANTONIO A. MICOCCI, who immigrated to this country this moment, seem to have many true friends. . . . at the age of five, became Deputy Administrator of the “Unless the American public gives us its confidence and Refugee Relief Program on July 29. He served overseas in trust in return for our devoted sacrifice, how can we per¬ 1943 and 1944 with the Psychological Warfare Branch in form our duties toward that public either well or faithfully ? North Africa and Italy and then served as European “Members of America’s Foreign Service must indeed be Specialist in the Office of War Information in 1944-45. Since good ‘security risks’ — politically and morally — yet with¬ entering the Department in 1946 he has served in the Infor¬ out loyalty FROM Americans, we will never satisfactorily mation Program as Chief of the Italian Service of the Voice of America; he has also served in several executive capacities including that of Area Director of the information program for Europe and as Special Assistant to all the directors of the International Information Administration and the United States Information Agency. Since early this year he has been in charge of the Office of Research and Intelligence.

Chrysler Corporation Cuts Auto Prices The Chrysler Corporation has informed the Personal Pur¬ chases Committee that, effective June 15, 1954, the “dip¬ lomatic discount” for Chrysler, DeSoto, Dodge and Ply¬ mouth passenger automobiles has been substantially in¬ creased for members of the Foreign Service. Notification of the new price was made by the Chrysler Corporation in a letter dated June 25, 1954 addressed to the Administrative Officer at each Foreign Service Post and marked “For Per¬ sonal Purchases File”. Interested personnel should consult the Personal Purchases File at their post for the new price information, order forms and instructions. prove ourselves to be a ‘first line of national defense’ — the In the Press forward and far-flung bulwark of America’s true security. GEORGE T. BROWN, a staff member of the Office of the Carroll Kilpatrick, writing in The Washington Post and President of the American Federation of Labor and a Times-Herald, commented: “The Wriston committee report member of Selection Board C, 1954, published an article on the Foreign Sendee argued strongly for a Foreign Serv¬ complimenting the Foreign Service in the American Federa- ice Institute patterned on the Army War College, the Naval tionist in July, 1954. Concluding the article he stated: War College and the National War College. It is essential “. . . the time has long since arrived when the real contri¬ that we develop such an institution with the highest profes¬ butions of Foreign Service officers should be broadcast to sional standards. Foreign Service officers . . . have little the people of America and the cheap, political attacks be time to study and to examine the premises on which they ended. While they are public servants in the highest sense work. It is absurd to think that education is completed with of that term, they should not be treated in a manner which the award of the college degree. . . The American people no household servant would tolerate. in general and the foreign service in particular need the “Let’s have an end to bad jokes and poor taste when discipline that comes with scholarly re-examination of major referring to the men and women who make up our Foreign problems. A basic understanding of the facts of history, the Service. principles of government, and of the meaning of cultural “Next, let us make sure, when a citizen of the United traits are essential tools of a nation that attempts to be a States, ‘toes the mark’ as a Foreign Service officer, that his world leader.” government does not forget to be a good employer. The SCOTT MCLEOD, administrator of the Bureau of Security, wages, hours and working conditions of the Foreign Sendee Consular Affairs and Personnel, was the subject of a full today are outmoded; job security is ebbing; and the self- length feature article published in The Reporter magazine respect of these men and women is suffering. . . . entitled “ ‘Big Brother’ on Foggy Bottom.”

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SEPTEMBER, 1954 47 SELECTION BOARDS (from page 36) work, in shipping and notarials, and in many other activities part of the first few years of service be devoted to doing that are an integral part of the conduct of our foreign re¬ “chores.” Specialization then can be the major part of a lations. Selection Boards will have a heavy responsibility career until an officer approaches the top classes. At this in trying to avoid injustice to them as a result of the elimi¬ point, all who so desire should be given the opportunity to nation of the Staff officer category. broaden their experience sufficiently to qualify for appoint¬ Department officers who will become Foreign Service ment as career ministers and to other high offices in the officers in the integrated Foreign Service are in a position Service. distinct from either the present Foreign Service officers or Staff officers. In the substantive work that they do, they have Selection Boards for Foreign Service officers do not act much in common with Foreign Service officers. Except for upon either Staff or Reserve officer promotions at the personal knowledge, it would be difficult for one to dis¬ present time. Recommendations for promotion of Staff tinguish between Department officers and Foreign Service officers are made by Staff Selection Boards. Future Foreign officers filling similar government positions in Washington. Service Selection Boards should include one former Staff Most Department officers have not had the service abroad officer as soon as Staff officers are integrated into the new that Foreign Service, Reserve, and Staff officers have had. Foreign Service. This would give Selection Boards the Their work, also, usually differs from the specialized and benefit of the experience and points of view of former administrative work of many Staff and Reserve officers. Staff officers. The experience of Selection Boards probably bears out the Integration under the Wriston Committee recommenda¬ assumption that, after one or two field assignments, it will tions involves “a program for transferring many but not be comparatively easy to rate the former Department group all Departmental, Reserve, and Staff Officers into the Foreign in comparison with officers whose background is in the Service Officer corps” on the existing statutory foundation. Foreign Service. As a rule, Selection Boards should have This means expanded and accelerated lateral transfers under no major generalist-specialist problem as between these two Section 517 of the Foreign Service Act of 1946. As the groups. The difficulty will arise in comparing them with Wriston Committee report points out, lateral transfer, in the the specialists in the former Staff and Reserve categories, as House Committee’s language, meant that “outstanding men well as with the economic and commercial, agricultural and should be able to join the permanent service at ranks com¬ labor specialists. mensurate with their age and qualifications.” The “age and As the Wriston Committee report makes clear, and as the qualifications” standard would be useful to Selection Boards; experience of Selection Boards confirms, it is necessary to but it is difficult to reconcile with it another statement in distinguish between types of specialists. Many specialists the Wriston Committee report, namely: “The grade-and- in such fields as commerce, agriculture, labor, public re¬ salary rule for transfers should be that a candidate’s grade- lations, et cetera, probably are just as necessary and and-salary in another Government post is justified and permanent members of a modern Foreign Service as are should not be reduced on transfer into the Foreign Service.” those who carry on the traditional diplomatic and consular There have been many cases of lateral transfer, I believe, functions. Other specialists are “unique” and their services where former Department and Staff officers did accept a are required for unusual needs and for limited periods of reduction in salary when they became Foreign Service time. Any good system of personnel and promotion must officers. As the Wriston Committee observed, there are im¬ take these facts into consideration. Criteria and procedures portant differences in the comparative terms of employment should assure the most efficient functioning of the Foreign of the Foreign Service Officer corps and the Reserve and Service and the maximum of fairness in the treatment of its Staff categories: “Reserve and Staff have their own person¬ members. Selection Boards can and should make a major nel systems. The Foreign Service Officer, for example, is contribution to the task. obliged, under the provisions of the 1946 Act, to demon¬ strate a potentiality for continuous progression to higher Preparatory Work Needed posts or be separated from the Sendee by a process called It should be possible to accomplish much important selection-out. Contrastingly, members of the Staff are not preparatory work before Selection Boards are faced with subject to selection-out, while service in the Reserve is dealing with the new and greatly enlarged Foreign Service limited by law to a maximum of four years. Their respec¬ officer group. Unless this is done, it is difficult to avoid the tive retirement systems, and in the case of the Staff, the pay- conclusion that Selection Boards will be unable to meet scales, differ from those prevailing for the Foreign Service their responsibilities. Officer corps.” A personal record or folder should be ready for sub¬ These points may not seem pertinent to a discussion of the mission to the appropriate Selection Board by the time an problems of Selection Boards, but it should be remembered officer has completed the lateral entry process and has that one of the principal duties of the Boards is to evaluate been commissioned as a Foreign Service officer. This record the record of each officer and compare him with all other should be of the kind now used for Foreign Service officers. officers in his class. It is decidedly pertinent for Selection There would be the usual personal history of place and date Board members to know if an officer is in a given class be¬ of birth, education, marital status, nationality of wife, num¬ cause of his salary in a former category or because of his ber and ages of children, health record, chronological state¬ age and qualifications. In fairness to the Selection Boards, ment of experience and service, and various references and there should be clear decisions and directives regarding such background material. Efficiency reports and related material questions. would be included; followed by other reports, letters and Staff officers with many years of loyal and able service comment pertinent to the officer’s performance. This would represent a strength that the Foreign Service must not lose. give Selection Boards a good starting point for their evalua- They are specialists in accounting and visa and passport (Continued on page 50)

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SEPTEMBER, 1954 49 SELECTION BOARDS (from page 48) AMONG OUR CONTRIBUTORS tions and recommendations. Lincoln Palmer Bloomfield, who wrote the article on Personnel work during recent years has included some “United Nations Charter Review”, obtained a B.S. degree counseling service which gives officers an opportunity to from Harvard University and attended the Harvard Uni¬ discuss their records with mature and experienced colleagues. versity School of Public Administration. During the war he Memoranda of these conversations are made a part of the served overseas with the U. S. Navy, entering the Depart¬ personal record and are of substantial help to Selection ment in 1946. Now planning adviser to the Assistant Sec¬ Board members. An expansion of this procedure would be retary for United Nations Affairs, his earlier assignments particularly desirable at the present time. The Wriston have been as executive officer to the Office of Special Political Committee report estimates that “there are upward of 1,440 Affairs and as acting chief of the Information Staff. positions in the Department in Washington .... which it Melville Blake, Jr., who published “Visa Work under seems agreed in the Department should be filled by Foreign the DP Act'’ in the JOURNAL last year during his “free¬ Service Officers.” Would it not be possible to anticipate lance” period, dropped the manuscript of “RIF and Re¬ some of these assignments in order to make an immediate turn ' into our laps as he sailed to return to the Service. start on personnel and Selection Board work resulting from integration? David W. Heron, now with the University Library at Two or three senior Foreign Service officers who have the University of California, writes that his article, “The served as principal officer at a post and who are familiar Few Books”, “is an expression of the conviction, developed with personnel and administrative work; two or three De¬ during the period in 1952-53 when I was Embassy librarian partment officers with many years of service; and two or and acting PPO in Tokyo, that the publications procurement three senior Staff officers could be assigned immediately to program was not being exploited to the limit of its possibili¬ the work of preparing personal records for Selection Boards. ties.” They should conduct as many interviews as possible with George H. Butler, able Business Manager of the JOUR¬ officers who are integrated into the Foreign Service officer NAL, served on the first Selection Boards in 1947 and again corps. during this past year. He entered the Service in 1926, as The success of the integration program will depend upon vice consul at La Paz. During most of his Service career the efficiency and fairness with which it is carried out. Much he was assigned to posts in Latin America. Appointed Am¬ of the effectiveness of the new Foreign Service will depend bassador to the Dominican Republic in 1946, he returned to upon good personnel work. It does not seem necessary or the Department and served on the Policy Planning Staff be¬ desirable to set up an elaborate new organization, based fore retiring. on charts and boxes. Firm leadership in the spirit of the final paragraph of the Wriston Committee report does seem to be the first and most essential factor. This would make possible the clear basic decisions that are to govern the MARRIAGES administration of integration and the new Foreign Service. CHILDS-MORRIS. Miss Marion Palmer Morris, who was The assignment of the best qualified and most experienced with the firm of Bristol-Myers as Director of Educational officers to key positions, and the transfer of positions from Services, was married on May 28, 1954, at the Fifth Avenue over-staffed or unimportant units to those divisions and Presbyterian Church in Washington, D. C. to Foreign Serv¬ offices that will carry the extra work load of the integra¬ ice Officer A. William Childs, recently Consul General in tion job, would seem to answer reorganization needs. Nigeria. Selection Boards for the next few years might be composed KLINE-LEFEVRE. Miss Madeleine Lefevre of Vezaponin, of two public members; four Foreign Service officers chosen France, and Mr. Steven Kline of the Embassy in London from among those whose former service was in the Foreign were married in Paris on April 3, 1954. Service, the Department, the Staff corps, and the Reserve; MC CREA-FENTON. Miss Norma F. Fenton of Hollywood, and the three observers from the Departments of Agricul¬ California, and Mr. Russell J. McCrea, Assistant Economics ture, Commerce, and Labor. It would be desirable for Commissioner with FOA at the Embassy in Rome, were mar¬ Agriculture, Commerce and Labor to make their observers ried in Rome on March 27, 1954. Mr. McCrea’s home is in available for full time work on the Selection Boards. They San Diego, California. then could read all the records and participate more fully RICHTER-MILLS. Miss Sheila Mills, daughter of the Hon¬ in the deliberations of the Boards. Selection Boards then orable and Mrs. Sheldon Tibbetts Mills, was married on would have a broadly representative view about the new June 19, 1954, to Mr. Marcel Kessel Richter in the Cleveland Foreign Service and would be in a position to contribute Park Congregational Church, Washington, D. C. Mr. Mills materially to the growth and strengthening of the Service. is the newly appointed Ambassador to Ecuador. BIRTHS YATES-BLAND. Miss G. Edith Bland, Foreign Service Staff BERGESEN. A daughter, Susan Reid, born to Mr. and Mrs. Officer, recently retired, was married to Mr. Lloyd D. Yates, Alf E. Bergesen on June 17, 1954 at Vienna. The baby is former Foreign Service Officer, on May 27, 1954, at An¬ the granddaughter of Mrs. H. F. Arthur Schoenfeld of Wash¬ napolis, Maryland. ington, D. C. and the late Mr. Schoenfeld. PRICE. Twin sons, Carl Michael and Roger Lee, born to IN MEMORIAM Mr. and Mrs. Hoyt Price on June 2, 1954 in Clinique St. RHODE. Mrs. Ruth Bryan Rhode, the first woman envoy Paul in Saigon. Incidentally, this was the day after the of the United States to a foreign power and the daughter of night in which the large ammunition dump exploded just William Jennings Bryan, died in Copenhagen on July 26, outside Saigon! 1954.

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SEPTEMBER, 1954 51 LETTERS TO THE EDITORS (from page 12) A FEW BOOKS (from page 29) This sounds familiar. increases, rather than decreases, our needs for information In support I submit the following from Randall Stewart’s from abroad, the simplest explanation for the reduction of Nathaniel Hawthorne A Biography, Yale University Press, the publications procurement program might be stated as 1948. p. 181: . . The Consulate had not been as profitable follows: the information available in foreign publications as he had hoped, for a congressional act passed about the is essentially unevaluated; more reliable information is middle of his term had reduced the consular emoluments— available through normal reporting, and the research or¬ unjustly, Hawthorne thought, because the law retroactively ganizations are not adequately staffed to organize and violated the conditions on which current appointments had analyze published material except for established sources been accepted. . . .”. of specific information. Hawthorne was United States consul in Liverpool, Eng¬ This states somewhat categorically a problem which must land, from 1853 to 1857. be related to a number of other considerations, such as the Rolf Jacoby size and nature of research programs, and the wide variation in the quality of published material in different geographical FOR UPGRADING FSOs and subject areas. Regardless of the nature of its rationaliza¬ Geneva, Switzerland tion, however, the result is the same. At a time when the United States Government has an unprecedented need for June 29, 1954 foreign intelligence, one of the most comprehensive and To the Editors, inexpensive sources of information is being reduced. The FOREIGN SERVICE JOURNAL: judicious selection of hooks, pamphlets, periodicals and I agree heartily with most of the observations and recom¬ newspapers, government publications, maps, ephemera, and mendations contained in the so-called W'riston Report to scholarly journals provides at a very low cost a wealth of the Secretary of State dated May 18, 1954. Further, I information which is in no other way available. welcome such constructive and forthright criticism. Scholars have expressed alarm at the rate of increase in Among the few things with which I disagree is the state¬ the volume of published material. It has been estimated that ment in part 5 that “The foreign staff category should the number of titles published in the English language henceforth be used solely for the employment of technical, alone has increased by 24 per cent within the last ten years. clerical and custodial personnel of lower than officer rank. It is fairly safe to assume an increase of comparable I do not believe it appropriate that specialists such as radio dimensions in other languages as well. In this particular operators, and even plumbers, who have been given high connection it is probably safe to assume, as well, that the FSS ratings in order to make their salaries sufficiently at¬ increase in quantity presupposes a decrease in quality. This tractive to induce them to go to such places as Korea, means that an inadequate publications procurement program belong in the Foreign Service Officer category. I agree with will enjoy the reassurance that a large proportion of the the report, however, that most officer specialists should be material it has missed will have been useless anyway. This integrated into a single service. is a small satisfaction, however, if it is discovered that some More important is the further blow to morale of present germinal political document or critical economic tabulation Foreign Service Officers, dealt by the light treatment of is overlooked. our situation with regard to salary and rank. The report There are two possible means of meeting the ever-increas¬ points out most aptly and convincingly that the lateral entry ing output of published material. One is to rely on presently program has been hindered by too rigid administration diminished facilities for selection and procurement with the interpretation. Foreign Service Officers have suffered this calculated risk of overlooking a fraction of the usable same rigidity with regard to the levels of their appointments material on the assumption that it will come to someone’s and promotions. But the only place I find a reference to attention if it later becomes important. The second, and in this matter is well buried in a brief paragraph in part 5 many respects preferable, is to put forth the necessary under the heading “Time-in-Service Factors. It is stated effort to improve the process of selection at the point where there, “As part of the program, consideration should be it can most effectively be made: in the United States mis¬ given to an accelerated promotion rate for present Foreign sions in the countries of publication. Service Officers who might otherwise be placed at a dis¬ In those major missions where full-time PPO’s are advantage.” assigned this system is operating effectively. Although Those of us who entered at the bottom and those of us these are the posts where it is expected that the results will who came in under the Manpower Act or subsequent lateral be most valuable, they are very few in number. In the entry have been held down in rank and salary whereas our great majority of posts, in the absence of a coordinated Departmental brethren, as pointed out in the report, have publications program there is duplication of effort and con¬ had the advantage of more flexible and rapid promotion fusion in the procurement of publications. This manifests opportunities. I am vastly disappointed that more attention itself in multiple requests from different offices of a large had not been given to this point. There should be extensive embassy for any particularly interesting document, giving upgrading of present Foreign Service Officers, coincident rise to embarrassment occasionally, and frequently to inter¬ with the integration of the four personnel systems. R. Kenneth Oakley est in the reasons for the demand. If the publications are purchased, by the same token unnecessary expense may be incurred. WRITE YOUR CONTEST More serious than the error of commission is that of MANUSCRIPTS IN THE NEXT omission, and by far the more frequent in the absence of FORTY-FIVE DAYS an active publications procurement program. It is true that (Continued on page 54)

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SEPTEMBER, 1954 53 A FEW BOOKS (from page 52) the Foreign Service can afford, particularly since publi¬ the press will usually call attention eventually to any cations procurement is a relatively low-grade source of publication which arouses any considerable interest in the foreign intelligence by comparison with skilled reporting. country of publication. This mechanism is not always Certainly it would be ill-advised to suggest that the report¬ effective, of course: scholarly publications are frequently of ing system be weakened in the interest of shopping for great value but receive very little public attention, and printed matter. political ephemera of considerable importance may escape The point to be made here, however, is that even within wide public notice. Granting, however, that reviews and the present organizational strength the system could per¬ references in newspapers and periodicals may be depended haps be improved, and that with the addition of very few upon to call attention to significant publications, there is a hours per week per foreign mission it could be made to considerable delay in their acquisition in the normal function more effectively. “passive” procurement process. The periodicals in which This might be accomplished through two courses of reviews appear must travel to Washington, which very action: (1) Acknowledgement of the importance of the frequently takes a month or more, and by the time a request program and assignment within the standard organizational has been sent back to the Foreign Service post in the pattern for diplomatic and consular establishments of country of origin the publication may well be out of print, specific responsibility for its conduct, and (2) Establish¬ and will certainly have lost any current intelligence value. ment of a specific program or orientation and training for Superficially the effect of an expanded Publications any officer responsible for this type of activity. Procurement program would appear to be a proportional Provision exists, of course, for both of these actions. In increase in the volume of unevaluated print emptied out the first instance, one officer at each Foreign Service post of the pouches in Washington. In fact, the gross volume of is assigned, either formally or informally, the responsibility publications should be often in inverse proportion to the of buying foreign publications. In most cases, however, effectiveness of the program. The key, of course, is this consists only in acquiring materials which are enlightened selection; the result should be a decrease, specifically requested, and it is often most effective to assign rather than an increase, in the work load of the government’s the actual work to a competent local employee, with the researchers and librarians. responsible officer exercising the minimum supervision The achievement of this selection is a matter of specific required by his having to initial the correspondence. The training, as applied particularly to the part-time PPO. second proposal, as has been suggested above, is perhaps of Certainly there are some particular personal attributes the greater initial importance. No specific provision is which are desirable: a knowledge of books and publishing, made in the Foreign Service Institute for preparing Publica¬ some familiarity with the language and people of the tion Procurement Officers for their duties abroad. If country to which he is assigned, and the energy and assignment of this responsibility were made more de¬ imagination required to find material hot off the press. All liberately, an auxiliary PPO could fairly easily be given a these are desirable, but the critical requirement is an comprehensive orientation regarding the research organiza¬ adequate knowledge of the specific needs which he is supplying. He should have some considerable knowledge tions he will be serving, either directly or indirectly, and their specific requirements. This training program might of the current reporting of his mission, of the research include consultation with the offices concerned, but the requirements of the Department and other agencies which instructors should be able to supply most of the general he is serving, and of their quantitative capacities for information. organizing and using the materials which he obtains for them. With adequate orientation in the Institute, a PPO should This must be difficult for full-time PPO’s. For the be able to carry out his responsibilities with a minimum auxiliary officers it is practically impossible. Insufficient of supplementary instruction during his overseas assignment. attention is given to integrating these people into the It may be that the rotation of Foreign Service and De¬ procurement system, with the result that they are generally partmental personnel envisioned in the Wriston Report will neither able nor authorized to do more than fulfiill requests provide some stimulus to the publications program, but a from Washington for publications, usually weeks or months general training process is definitely to be desired. old, which have been noted, listed, or reviewed in the press. As suggested in the 1946 publications procurement plan, Even if they are fortunate enough to have above-average it may be worth considering consolidation of one or two information as to what types of information are most needed, other related functions under the PPO’s jurisdiction. The the auxiliary PPO’s have other primary responsibilities procurement of publications for the intramural use of a which prevent their devoting adequate time to bookstores, large diplomatic establishment may well be a sizeable opera¬ libraries, and publishers. The acquisition of foreign tion, particularly in a country where extensive translation is publications is not a new activity, but it has never been required. If this operation is not coordinated, the result regarded as having great importance in the context of the can be expense and inefficiency. The inclusion of procure¬ mission’s responsibilities: generally speaking, neither time ment for local use in the PPO’s duties increases efficiency nor funds are available to part-time PPO’s to permit any and reporting officers’ access to new publications. appreciable initiative. At best, if he is primarily concerned In this last connection it might be worth considering with reporting, he will seldom do better than to forward assignment to the PPO of responsibility for the post free or inexpensive material related to his own work. If reference library. This potentially useful adjunct to any he is a member of the administrative staff he is unlikely to diplomatic or consular establishment is occasionally have either the time or the operational information to do organized and maintained by a full-time librarian, but in more than fill routine requests. small posts it is generally made the responsibility of a It may be argued with conviction that this is as much as (Continued on page 56)

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SEPTEMBER, 1954 55 A FEW BOOKS (from page 54) James F. Byrnes, representing the United States on the reluctant clerk, and no training is provided for its effective Charter review items in the Assembly’s Legal Committee, operation. As a result of this wide variance in quality of added to this the warning that changes in language alone post libraries, many requests for information must be made would not transform the behavior of nations. Governor by air and wire to Washington for information which could Byrnes told the Committee that the United States had an inexpensively be made available in the field. open mind as to whether there were improvements in the Whether a full-time librarian is in charge of the post Charter that would advance the common purposes of the library, or it is operated on a part-time basis by a file Members. clerk, it is a part of the intelligence operation, and since it Previously, the Senate, in July 1953, had passed Senate consists primarily of published material, it might well be resolution 126, introduced by Senator Gillette and warmly advisable to assign it to the PPO as a part of his responsi¬ endorsed by the Department of State, creating a special bility, even though it might not require his close supervision. subcommittee of the Foreign Relations Committee to exam¬ These proposals for combining the Foreign Service ine proposals to amend the Charter and report to the Senate activities related to publications might make it possible in the consensus of American opinion as to possible changes. small posts where the total time required for these activities Senator Wiley is the Chairman of the subcommittee, and it is very brief to consolidate a number of small but relatively also includes Senators Ferguson, Knowland, Cooper. Hol¬ specialized jobs under the jurisdiction of an officer with land, Sparkman, Gillette, and Mansfield. The subcommittee some training in the techniques and special requirements has already heard Secretary Dulles and Ambassador Henry involved. Even though the total time involved is small, the Cabot Lodge, Jr., in public session in Washington, and has quality of performance should be the highest possible. held public hearings in various parts of the country. In large embassies, legations, and consulates general it might well be economical to assign more publications United States Position officers, with somewhat enlarged fields of responsibility, The Administration has charted the course of United as a means of consolidating related activities. However, the States Government policy in the field of Charter review in major part of the publications procurement program will a way that is almost unique in our history. Determined that still be in the hands of officers for whom it will be a our policies on this broad and far-reaching subject will secondary duty. Consideration should perhaps be given to represent the best thinking of the American people and a the cost of increasing their capabilities—of supplying them genuine reflection of their will, Secretary Dulles has made “with a catalogue of the books you would be willing to it plain that we will not adopt final positions until we have buy”—because today, even as it was in 1784, published had the benefit of such advice. The one concrete policy material is an inexpensive and valuable source of informa¬ decision which has been publicly announced is a decision tion from abroad. The economies effected by its efficient to vote in favor of calling the review conference when this use should more than offset the cost of adequate training. item appears on the General Assembly s agenda in the fall of 1955. Short of this, however, it is fair to say that the CHARTER REVIEW (from page 25) United States is approaching the review conference with a Association cited the importance of the projected review determination to see if there are ways of improving the conference, calling on the lawyers of America to prepare United Nations, but with an open mind pending public and themselves for the conspicuous opportunity it afforded. Congressional advice. The Eighth Session of the United Nations General Assem¬ There are, then, four vectors of influence that will con¬ bly, which met in New York the next month, had several verge to a point at which basic policy decisions will be related items on its agenda involving Charter review. Al¬ made by the United States Government: the advice of the though the United States was not a sponsor of any item, American people as expressed by them individually or in we strongly supported a resolution co-sponsored by Argen¬ groups; the advice of the Senate to which the special sub¬ tina, Canada, Cuba, the Netherlands, New Zealand and committee will make its report “prior to February 1, 1955’ ; Pakistan, which, as passed, cited the need to prepare for the studies that the Department of State now has underway; Charter review and called on the Secretary-General to pre¬ and the views of other governments. pare and publish various documents and studies. It is of Thus in terms of timing one can foresee that in the earl\ interest that this resolution, debated at considerable length part of 1955 a variety of necessary elements in the formula¬ and somewhat altered in the process, was finally approved tion of policies will be in the process of becoming available by a vote of 54 to 5, with the Soviet bloc characterizing it to the Department. Against the backdrop of its own pre¬ to the bitter end as a transparent guise masking the deter¬ liminary studies, the Administration will then review the mination of the United States to wreck the Charter and guidance that it has received, and, after consultations with undermine the principle of great power unanimity. other governments, out of this will emerge the definitive In addressing the General Assembly, Secretary Dulles positions to be stated by United States spokesmen at the described tbe review conference as of major importance review conference. Secretary Dulles has anticipated that and urged that it engage the best thoughts and attentions it may he desirable to establish at that time a group that of all governments and private organizations. He recalled would confer with private organizations and the legislative that Article 109 represented to many nations at San Fran¬ branch. cisco a commitment that they would have another oppor¬ While making our policies contingent on a process of tunity to review the Charter in the light of experience, and widespread democratic discussion, the Administration has, said, “it is already apparent, after eight years, that this however, taken the leadership not only in inviting this opportunity should be grasped.” He pointed out that a discussion but also in laying out certain basic guide lines or review conference would not work miracles, and Governor (Continued on page 63)

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SEPTEMBER. 1954 57 SECURITY PROCEDURES (from page 23) In other words the Department does not need to complete the person's employment is inconsistent with the national an investigation, nor judge a person on the basis of all the security. This rule is put negatively as follows: available evidence, provided it has any piece of information “No decision shall be made to employ or retain in which may of itself preclude a favorable finding. employment a person if there is a reasonable doubt as to The basic defect in this use of the specific security whether such employment or retention in employment is standards is that it permits merely punative (rather than clearly consistent with the interests of the national se¬ preventive) security dismissals. The overall security stand¬ curity.”15- ard, that employment shall be consistent with national Nowhere is it stated positively that there must be at least security, is correctly oriented to prevent future misdeeds a reasonable doubt that the person is a security risk before rather than punish past ones. The only important question he can be dismissed as such. Nor. in any case, is there any to the Government is whether or not the person is a security reviewing authority, like the former Loyalty Review Board, risk—that is, has a questionable security potential. This has to ensure a consistent standard as to what shall be con¬ been recognized in official statements.20 But by making it sidered a “reasonable doubt.”16 possible for certain types of past behavior to preclude a The present overall standard of judgment is also rudi¬ favorable finding, the current regulations prejudice the basic mentary in another respect. It fails to specify whether the issue of security potential. In effect, they lay down that a decision to employ or remove must be based on all the single instance of past behavior may justify a prediction as available evidence in the case or may be based merely on to future behavior. It is not difficult to imagine circum¬ part of it. The Executive Order and the “draft regulations” stances wherein a person could have once committed one of accompanying it make no mention of this vital point. The the eight listed misdeeds and now be no security risk at all, State Department’s regulations declare that the decision judging from all the available evidence. shall be “based on all the available evidence,”17 but the In recognition of this fact, there is often an attempt to effect of this general requirement is largely nullified by the trace a “pattern” of personal conduct that might bear the next paragraph of the regulations: burden of presumption from past to future behavior. Both “Information regarding an applicant or employee of security officials and accused individuals use this device. the Department of State which may preclude a finding In some cases, no doubt, there are enough, and recent that his employment or continued employment is clearly enough, instances of particular actions or associations to consistent with the interests of the national security shall establish a pattern of probable behavior. But how many relate, but shall not be limited to the following:”18 instances make a pattern? One? Certainly not! Two? There follow eight paragraphs listing character faults, Hardly! Or at least most reasonable men would think not, crimes, and indications of disloyalty—the same list as that on general grounds of logic and experience. Three? given in the Executive Order as subjects for security Possibly, though certainly three or many more instances of investigations-19 some types of association might be of little significance. v >Ibid„ 392.32. or with an espionage or other secret agent or representative 16“The abolition of the old Loyalty Review Board—no matter what of a foreign nation, or any representative of a foreign nation its record—is a distinct step backward. Not only does this remove whose interests may be inimical to the interests of the United any machinery for securing uniformity of application of the vague States, or with any person who advocates the use of force or standards as among different departments, but it has another serious violence to overthrow the Government of the United States effect which apparently has not been publicly noted. Under the old or the alteration of the form of government of the United loyalty program, an employee, once cleared of disloyalty charges States by unconstitutional means. based on a particular set of facts, could not be attacked again—for d. Advocacy of use of force or violence to overthrow the Gov¬ disloyalty—on the sgme facts, since a central review board had passed ernment of the United States, or the alteration of the form on the question. Under the new system, nothing is ever res judicata.” of government of the United States by unconstitutional Letter by Alexander B. Hawes, attorney, to the W'ashington Post, means. June 10, 1953. . e. Membership in, or affiliation or sympathetic association with, 17State Department Regulations 392.1. any foreign or domestic organization, association, movement, lsIbid., 392.2, first paragraph. Italics supplied. group, or combination of persons which is totalitarian, Fascist, Communist, or subversive, or which has adopted, or shows, 19Ibid., 392.2, paragraphs (a) through (g) : a policy of advocating or approving the commission of acts a. Depending on the relation of the Government employment to of force or violence to deny other persons their rights under the national security: (1) Any behavior, activities or associa¬ the Constitution of the United States, or which seeks to alter tions which tend to show that the individual is not reliable or the form of government of the United States by unconstitu¬ trustworthy. (2) Any deliberate misrepresentations, falsifica¬ tional means. tions, or omissions of material facts. (3) Any criminal, f. Intentional, unauthorized disclosure to any person of security infamous, dishonest, immoral, or notoriously disgraceful con¬ information, or of other information disclosure of which is duct, habitual use of intoxicants to excess, drug addiction, or prohibited by law, or willful violation or disregard of security sexual perversion. (4) An adjudication of insanity, or treat¬ regulations. ment for serious mental or neurological disorder without g. Performing or attempting to perform his duties, or otherwise satisfactory evidence of cure. (5) Any facts which furnish acting, so as to serve the interests of another government in reason to believe that the individual may be subjected to preference to the interests of the United States. coercion, influence, or pressure which may cause him to act 20For example, the Administrator of the Department’s Bureau of contrary to the best interests of the national security. Security, Consular and Personnel Affairs stated before the House Ap¬ b. Commission of any act of sabotage, espionage, treason, or propriations subcommittee that: “The investigation attempts to look sedition, or attempts thereat or preparation therefor, or con¬ into a man’s background up to the day when you evaluate his spiring with, or aiding or abetting another to commit or security potential. ... On the basis of the information you have attempt to commit any act of sabotage, espionage, treason, or . . . . you attempt to project into the future a judgment as to sedition. whether or not he. is potentially a security hazard. I make this c. Establishing or continuing a sympathetic association with a point because you cannot prove how this fellow’ is going to act in the saboteur, spy, traitor, seditionist, anarchist, or revolutionist, future.” New York Times, February 24, 1954.

58 EOREIGN SERVICE JOURNAL Much depends upon the circumstances, which could be, reason appears why the factor should not have been variously, accidental, or incidental, or intentional. If an spelled out by the President in the first place.”25 individual can prove that a few dubious associations he Many of these dangers inherent in standards of association might have once had years ago were purely accidental or were foreseen by the President’s Committee on Civil Rights incidental, it would no doubt convince most reasonable men in 1947. Its words are now as appropriate as ever: he was presently innocent on those counts. Still, the present “The character, the policies and the leadership of many regulations, if taken literally, hardly encourage such a organizations change. Individuals, too, change their opinions. The greatest care must be taken to avoid the reasonable conclusion. Any of the eight specified acts, if misinterpretation of affiliation. Individuals may be mem¬ proved, “may” result in a finding that the person is a bers of suspect organizations out of ignorance. Before security risk. A more reasonable rule would follow that such affiliations may even be considered as relevant, the formerly governing the use of the Attorney-General’s list of subversive organizations: 25Letter to Editor by Alexander B. Hawes, Washington Post, June 10, 1954. Italics supplied. “Such membership, affiliation or sympathetic associa¬ tion is simply one piece of evidence which may or may not be helpful in arriving at a conclusion as to the action which is to be taken in a particular case.”21 A further defect in the list of eight specific standards is PERSONAL SHOPPING SERVICE their extreme vagueness about matters of opinion and from a trifle to a trousseau conscience. For example, any official, high or low, may While you’re abroad we do your shopping at home he dismissed if he has done any act judged to be “Perform¬ ing or attempting to perform his duties, or otherwise acting, Just mail us your list . . . we'll take care of everything so as to serve the interests of another government in Insured delivery • Substantial savings on most items 22 preference to the interests of the United States.” There is Men’s, women’s and children’s wearing apparel • Accessories • Furs not a phrase in that standard which is not normally the Furniture • Radios • Gifts • Household Appliances subject of perfectly legitimate differences of opinion. Again, any employee may be discharged for “Any behavior, THE GUILD SHOPPERS activities, or associations which tend to show that the 47 W. 34 St., N. Y. C. Tel. TR. 7-4186 individual is not reliable or trustworthy,” depending upon Cable address: Waltathan, N. Y. C. the relation of his employment to the national security.23 Another of the eight specific standards makes it a ground for dismissal if the individual is found to have had “a sympathetic association” with any “combination of persons Collective Security which is totalitarian, Fascist, Communist or subversive.”24 No definitions of these terms are presented, and no longer Group Insurance is it required that only groups listed by the Attorney-General For: be considered as belonging in those categories. It is likely, therefore, that ignorance or personal prejudice will enter Foreign Service Officers into judgments based on this standard, with the result that Foreign Service Staff Officers every evaluator and every hearing board will have a dif¬ Permanent American Employees ferent opinion in the matter. On the whole it would seem of the Foreign Service desirable to resort to the one-time fount of authority on this subject, namely the Department of Justice with all its in¬ The annual report for the insurance year ended Feb¬ vestigative facilities and experience. ruary 28, 1954 will be sent to members as soon as the auditor's report is received. Members' copies should be There is another standard similar to that above except in the mail before the end of June. that it applies to association with subversive individuals In spite of losses in membership due to resignations from the Service last year, the Protective Association rather than groups. As has been pointed out by a Washing¬ had another successful year. Membership again is grow¬ ton attorney: ing and is approaching the 1600 mark. “ I his and other of the standards completely omit any There will be attached to the annual report a section regarding several administrative matters that will help reference to the vital factor of knowledge on the part of members understand the Group Plan. Please read both the employee. 1 here is reason to believe that the Supreme the annual report and the explanatory material. Court will insist that this factor must be read into the test If additional information is needed, write: —if the matter can be raised before that court—but no AMERICAN FOREIGN SERVICE PROTECTIVE ASSOCIATION J15 CFR 210.11 (b) (2). 1949 ed., p. 106. Italics supplied. —Executive Order 10450, Sec. 8 (a) (7), and State Department Care of Department of State Regulations 392.2 (g). Washington 25, D. C. -‘Executive Order 10450, Sec. 8 (a) (1), (i), and State Depart¬ ment Regulations 392.2 (a) (1). Italics supplied. or 24Execulive Order 10450, Sec. 8 (a) (5), and State Department 1908 C St., N.W., Washington 6, D. C. Regulations 392.2 (e).

SEPTEMBER, 1954 59 motive of the individual should he clearly established. Derogatory information against an employee will come The determination of the suspect character of organiza¬ to him, under the current regulations, as official “charges ’ tions is complex and must be handled with the greatest against which he must defend himself.29 According to State care. For the individual the ultimate test must always be Department regulations, it is true, the “statement of charges his own trustworthiness.”26 . . . shall be as specific and detailed as security considera¬ tions, including the need for protection of confidential Need for Maximum Development of Relevant Evidence sources of information, shall permit.”30 But the sources are Adequate standards of proof and of judgment cannot nearly always treated as confidential, despite suggestions guarantee that the facts in a case will be fully developed. to the contrary.31 By long experience it has come to be recognized in the West Furthermore, the disclosure of any “evidentiary” informa¬ that it is essential, both to fact-finding and to justice, that tion may be refused on the ground that it might help the witnesses be produced and examined on either side of a dispute. employee to identify the source. This is not an entirely un¬ realistic argument, but competent authorities could no doubt Seven centuries ago the principle was incorporated in the often disclose more without definitely identifying the source. Great Charter of our freedoms: In any event, an indirect disclosure of the apparent source “No Bailiff, for the future, shall put any man to his would not give grounds for legal action against him. In law, upon his own simple affirmation, without credible reply to this argument some officials profess to be con¬ 27 witnesses produced for that purpose.” cerned over what non-legal, coercive action might neverthe¬ Reflecting on this and other traditions of Anglo-Saxon less result in such a case. In other words they are afraid law, a Presidential Committee on Civil Rights wrote in the accused might resort to gangster methods, or something 1947: subtler without the law7. This is presumption of guilt ad “Our system of democratic justice has proved again absurdum in most cases, for the normal employee wants and again its ability to protect us in peace and in war. To only to clear himself and not get further involved. make a conspicuous departure from it against govern¬ Extreme precautions to protect sources are justified in ment workers would surely weaken the safeguards of the cases of suspected espionage, sabotage or other active rights of all citizens.”28 subversion. Such acts are clear and present dangers to the The Government’s interest in securing the facts in an national security, and counter-intelligence techniques must employee-security case, if nothing else, should dictate a be used to deal with them. But to use the same techniques liberal policy of producing the hostile as well as favorable to root up officers and employees of long standing who are witnesses for cross-examination. This is not the present not suspected of any disloyal act on the job, or indeed any policy, at least in normal practice. The identities of disloyal act at any time, is a travesty of good sense and witnesses hostile to the individual are rarely disclosed, fair play. particularly where the allegation is most serious, as in loyalty Actually, if the Government has good evidence of sub¬ cases. versive acts, it does not need the employee-security pro¬ The release of information about sources and their cedures; it can act under long standing statutory powers evidence is discretionary. In the first place, it is usually both to dismiss the employee and to prosecute him under the discretionary with the individual interviewed by the investi¬ law7. One of the tragic ironies of the times is that in the gative agent. In the second place, it is discretionary with latter event the individual has many more rights of defense the investigative agency, which may want to protect its than he does under the employee-security program. methods to the extent of not telling the evaluating agency There does not seem to be any valid reason why sources (by whom the individual is employed) of the identity of cannot be revealed in non-loyalty security cases. Partial the source. Finally the evaluating agency may exercise its credibility might be given to information from a source own discretion in the matter. As a net result, very little but who is at least w'illing to be cross-examined by the officials the minimum identification of the nature of the allegation is of the evaluating agency, or its security board. That device ever likely to seep through to the hapless accused. could be used more often. Another means of appraising credibility would be to cross-examine the investigative agents 2®The President’s Committee on Civil Rights, To Secure these responsible for a report.32 Rights, p. 50. 27Article 38 of the Magna Carta (1215 A.D.). 2®The President’s Committee on Civil Rights, To Secure These "State Department Regulations, 394.11 (a). Rights, p. 51. 31 29The psychological effect of the legal terminology “charges” is to “. . . . there appears to me to be no sound reason why persons say that the employee has been indicted following an impartial who furnish information with respect to behavior patterns and examination of all the facts. It makes the Government’s action seem personal habits of employees should not be requested to identify much worse than it really is to the employee, his friends and the themselves and face those they accuse.” The Administrator, Bureau general public. Under the last employee-security procedures (and of Inspection, Security and Consular Affairs, Department of State, apparently still so), the employee must be “charged” if there is Dept, of State Press Release No. 135, March 15, 1954, p. 8. any information, however disputed, that taken at its face value 32This is done by employee-security hearing boards in the United would make him a security risk. Probably ignorance of this rule Kingdom: “Before the interview with the civil servant, they can has led some innocent persons to resign when they saw the “charges” and do call before them the agents of the intelligence branch and against them. Certainly it has caused unnecessary shame and anguish cross-question them closely regarding the evidence in the file and to those who dispute the allegations against them. Actually, of course, the informants from W'hom it has been obtained. This advantage, the balance of advantage has been so heavily in favor of the accuser which is denied our loyalty boards, unquestionably offsets to a up to this point that the employee may not even know' that any large degree other handicaps of secrecy peculiar to the English accusation was on his record. It would be more fair to use the program.” Bontecou, Eleanor, The Federal Loyalty-Security Pro¬ word “allegations” instead of “charges” at this stage. gram, p. 265.

60 FOREIGN SERVICE JOURNAL With proper precautions, these rules could probably apply agencies, the State Department not excluded, there are as well to most if not all loyalty cases. Surely evaluating nonsensitive types of work to which a suspected employee officials owe it to the Government not to give full credence can be usefully relegated while his security status is being to the unexamined testimony of an unidentified informant, resolved. Under present regulations the employee must be no matter how highly his credibility may b^ rated by some suspended without pay as soon as he receives his written official of an investigative agency. Nothing could play more charges, or before. He must remain suspended without pay into the hands of any misguided or malicious person, or an while awaiting his charges (if they are delayed), while pre¬ informer who is still under Communist discipline or play¬ paring his reply, and while awaiting the decision on his ing the role of a double agent. We must assume that the reply. And of course if that decision goes against him, the Communists have long been trying to throw the FBI off employee must then wait until after a hearing is held and their trail by deliberately identifying innocent people as a final decision is made. Probably some completely innocent Communist Party members. To avoid that trap, the Govern¬ persons have resigned rather than ride out this uncertain ment cannot wisely afford to accept any uncorroborated and potentially ruinous situation. Certainly it does no credit accusation from an unexamined informant as the basis for to our traditions of fair play that the practice is allowed to an employee removal action. exist at all. While the Government therefore has a recognized interest in developing all the relevant information in a case, it Need for More Safeguards of Objectivity also has an interest in excluding masses of irrelevant Under current employee-security regulations, all officials data. This is difficult if not impossible in most disputed who can make a positive determination in a case are cases, where the “charges” are so vague as to indicate subordinate to the head of the agency, who has the final merely the general nature of the derogatory information. authority. There is no independent reviewing authority ^ ithout knowing the specific evidence against him, the which can direct a contrary finding once a Department head employee, especially if completely innocent, is at a loss to has made his final decision. (The Civil Service Commission’s know exactly what is relevant by way of reply. The chances review authority over the program is generalized in form, are that his replies to the charges will often miss the point. and also merely advisory.) The burden of proof in the standards forces him on the In all disputed employee-security cases, therefore, the defensive for justifying his whole career. He must “prove” responsibility for being a prosecutor, judge, jury, and ap¬ he has always been loyal and trustworthy. As a result, he peals court are rolled together. The head of the agency could often winds up by expending a great amount of his own apportion these responsibilities among his subordinates, but and others’ time and effort on a “biographic sketch,” the regulations show they are inextricably mixed. The documented with numerous affidavits from friends and only explicit restriction that appears is that the legal officer samples of his own writings in the past. The whole effort at a hearing “shall not act as a prosecutor”33 (though in the may be quite irrelevant, or unnecessary, but how is the State Department, at least, the same officer—the Security employee to know? He does not want to take a chance on Counsel—drafts the charges which occasion the hearing).34 so momentous a matter as his proposed dismissal. In short, the employee’s main safeguard for objectivity is Much of this colossal waste and inconvenience, both to the fairness and reason that he hopes to find among his ex¬ the Government and to the individual, could be avoided by aminers. And in the last analysis, his fate depends on the bolding formal hearings early in any disputed employee- fairness and reason of one man, the head of the agency. security case. As it is now, formal hearings are only held The concentration of so much discretionary authority in at the last stage of decision, actually on appeal from a one individual, and his subordinates, doubtless has certain decision for removal from employment. Presumably this advantages. It fixes responsibility and theoretically may is on the theory that time is saved by reserving full dis¬ lead to more rapid decisions. Often, as in matters of dire cretionary powers to clear an employee at earlier stages. urgency, such considerations are overriding. But are the But in practice this apparently has not resulted in many vast majority of employee-security cases of such urgency? clearances in disputable cases, and instead has delayed To judge from the usual long delays in deciding disputed final decision on nearly all of them. In any event, it is cases, even under the latest procedures, the answer would desirable in any form of fact-finding or adjudication to have seem to be negative. It seems to be acknowledged, tacitly, the position of each party aired to the other at an early that other important values are also involved. stage. This brings out information not otherwise available and usually results in a narrowing of the issues. The The truth is that, much as some contend that employee present employee-security procedures could be greatly security is or should be a matter of administrative discretion facilitated and strengthened, therefore, if it were at least alone, it is undeniably a semi-judicicd process. It develops possible to hold a hearing, when desired by either party, and weighs evidence, considers charges and rebuttals, and before or immediately after the “charges” are issued in a applies a penalty (dismissal as a security risk). In some case. ways the penalty is more damaging than that meted out in many regular civil or criminal judgments. A discharge on A corollary measure that would be a great benefit both to loyalty grounds, particularly, is likely to do irreparable the Government and to the employee would be to make suspension discretionary instead of mandatory. Suspension without pay should not be necessary except in the extreme 33Draft Regulations, Sec. 8 (g). case — of suspected active subversion. In nearly all 34State Department Regulations, 395.25.

SEPTEMBER, 1954 61 damage to a reputation and a livelihood. In the words of But he must bring with him to the job two comparatively the Supreme Court, it constitutes punishment “of a most rare and enduring qualities: wide executive vision and a severe type.”35 To pretend, as has been done, that such judicious spirit. results are merely an irrelevant incident to an administra¬ A security official with executive vision and a judicial tive decision is certainly unrealistic. approach will not have to be reminded of the broad ramifica¬ Considering the inevitably judicial function of the em¬ tions of any and all employee-security decisions. They do ployee-security program, then, a great danger becomes ap¬ far more than help the Government to keep its secrets, im¬ parent. It places tremendous powers over the lives of others portant as that is. They affect the Government’s ability to in the hands of a few individuals who are not strictly discover new truths and to develop new resources—our accountable to anybody in these matters. These same officials positive security assets, and the most effective deterents to are normally subject to great political pressures, particularly enemy asault. They affect employee morale, and therefore the head of the agency who is the final arbiter in any case. efficiency, in a chain reaction pattern: from one employee It would be quixotic to expect that all agency heads will believing himself wrongly suspected, to his friends, to their at all times stand firm against these pressures. And it would friends. And they affect the moral sensibilities of the general be even more unrealistic to expect that they will all be public, which slowly but surely will suspect that its cherished free of personal biases—or collectively attain “mutually traditions of fair play have been compromised. consistent and no less than minimum standards”36 over a 38 period of time. The machinery to produce such results is “In the debates, great stress was laid on the necessity of obtaining men of informed judgment to evaluate the evidence sub¬ simply lacking. mitted to the minister by the investigating agency. The Prime Certain devices and certain practices could ameliorate this Minister declared that experience and knowledge of human nature situation. Among the devices, an independent review panel were more important qualifications for members of the Advisory like the old Loyalty Review Board has often been suggested, Board than was legal training.” Bontecou, Eleanor, op cit., p. 268. and would be most desirable. As an appeals body it could enforce minimum standards both of security and of fair RIF AND RETURN (from page 28) play. An alternative device would be to empower the present security hearing boards of each agency to make final positive sonnel. She had been trying to locate me for a month, the determinations. This would have the merit of providing an caller complained after a tender greeting, and had just 37 learned my address. A migration program to be adminis¬ independent appeals body but would not assure consistency as between agencies. tered by the Department of State was getting in full swing, Practices that could improve the chances of objectivity in and the Foreign Service needed experienced consular officers. evaluating employee-security cases have to do with the Would I consider returning the the Service? selection or training of top security officials and members My first impulse was to refuse the offer. Like many an¬ of security hearing boards. There appear to be no training other young officer I had tended to idealize the Foreign Service, and the events of the previous year had been a bitter requirements for these positions at present, and appointments to them have sometimes been frankly political or based on jolt to reality. One the other hand, leaving the Foreign Serv¬ ice involuntarily is like leaving an exciting play at the end of partly irrelevant qualifications. the first act—even though you may resent being flung from There is a noticeable tendency, for instance, to capitalize the theater you wonder how the plot developed. on the prestige of the FBI, by appointing its ex-agents to top Nostalgia played fast and loose with our sensibilities, too. security posts. But the FBI, at its own insistence, is not an Each envelope bearing a foreign stamp from a Service friend evaluating agency in security matters. There would seem was a reminder of the pleasures we had known abroad or a to be no logical reason why an ex-FBI agent should take token of parts yet unseen. While the letters they contained the broadest and most objective view of the worth of FBI recounted the hardships of this or that post and expressed investigative reports, or the relative value of other available envy of our lot, it was also obvious that none of our corre¬ information on suspected security risks, or of the likely spondents would have traded places with us. effects of employee-security decisions on the development In the end we decided to return to the Foreign Service. Ac¬ of positive security assets. It would seem desirable for the cordingly, we bid farewell to Loudoun and I drove Rozanrie Civil Service Commission, or some other central authority, to screen and train persons for these semi-judicial posts. home to California, there to await the arrival of a second child. On June 10th, exactly a year after I left the Service, What should be the qualifications of a security hearing I was sworn back into the fold. board member, or of the top security officials in any agency? The purely technical knowledge he need have is probably Was the year away from the Service wasted? Definitely the least important: He can soon familiarize himself with not, for even though I had lost contact with various regula¬ tions and procedures I had gained something far more im¬ the provisions of the regulations and the investigative portant. While my service abroad had not been lengthy it resources available. Training in the law would be helpful.38 had imperceptively dulled any awareness of the casual give and take in everyday Stateside living. Working on a coun¬ 35 U. S. v. Lovett, 328 U. S. 303 (1946). try newspaper opened my eyes to community life at home 3B There has never been any specification of what these admirable again, dispelled any false impressions which might have been phrases front the Preamble to the Executive Order 10450 are supposed to mean in practice. acquired abroad and reaffirmed my belief in those traditional 37Under present regulations in the State Department, the members American concepts which do not lend themselves to defini¬ of the Department’s Security Hearing Board are selected by the tion or limitation by tangible boundaries. Administrator, who also plays a major role in all previous stages In this respect my experiences during a year Stateside pre¬ of decision in an employee-security case. This would have to be changed before that body could become a genuinely independent pared me to be an even more convincing representative of appeals organ. America abroad.

62 FOREIGN SERVICE JOURNAL CHARTER REVIEW (from page 56; before concluding that a textual change should or could bench marks designed to provide a realistic and balanced not be made in the United Nations Charter. framework for this country’s approach to Charter review. Around these central issues Secretary Dulles, in his testi¬ The definitive statement of this framework was made by mony, developed a context that can be briefly summarized Secretary Dulles when he testified on January 18 of this as follows: The United Nations has not lived up to all of year before the special Senate subcommittee. His prepared our expectations. The Communist bloc has departed from statement has received wide attention, but certain of its both the spirit and the language of the Charter. Neverthe¬ highlights are well worth restating. less, the UN has many achievements to its credit. The He identified six of the major problem areas that will Charter as it stands can be made to serve well the cause doubtless be considered by the review conference and on of international peace and justice. There are a number of which he believed there should be an educated public opin¬ things we have done and can do within the present Charter ion. These major questions, broadly phrased, are as fol¬ so that it can carry more traffic in its present form. Our lows: First, the problem of universality: should the United plan is to undertake a review in depth with the hope that Nations be as universal as possible (drawing the line, of changes which are clearly reasonable and desirable in the course, at regimes such as the Chinese Communists who do eyes of world opinion would mobilize support sufficient to not respect the elemental decencies of international conduct influence the Soviet Union when it comes to the point of and cannot properly be brought in the organized family of using its veto. At the same time, “while a Charter review nations) or a coalition of completely like-minded states? conference should be welcomed as a means of strengthening Second, the problem of collective security: should the Se¬ the United Nations, differences of opinion about how to curity Council formally yield its responsibility for the do this should not then be pressed to a point such that the maintenance of international peace and security to the review conference would result in undermining the United General Assembly where there is no veto, or to regional Nations or disrupting it. The United Nations as it is, is or other collective defense arrangements authorized by the better than no United Nations at all.” Furthermore, an Charter? Third, the veto in the Security Council: should attempt to write a brand new Charter would be undesirable we not implement the Vandenberg Resolution of 1948 by since it would open a Pandora’s box, and, once the ties proposing the elimination of the veto on pacific settlements of the present Charter were broken, it would not be easy of disputes and on the admission of new members? (Mr. to reassemble the present membership. Dulles suggested at this point that the United States would In reply to questions from members of the subcommittee, doubtless hesitate to surrender its own veto on measures Secretary Dulles further defined the boundaries of the De¬ involving the use of our own armed forces). Fourth, voting partment’s thinking in the following way: It would not in the General Assembly: the trend in the United Nations be within the proper scope of the review conference seri¬ is toward giving the veto-free Assembly greater responsi¬ ously to entertain proposals to expel the Communists, to bility; should there be some form of weighted voting in withdraw United States membership, or to create some the Assembly to reflect more realistically the actual distri¬ kind of super-state. At the same time, we will of course bution of power among nations? Fifth, armaments and be thinking about proper techniques for manifesting the disarmament; in view of the total nature of modern weap¬ Organization’s clear disapproval of action by a member ons, are there any changes in the Charter that would en¬ state that stands in condemnation by the UN, despite the hance the prospects of dealing with this problem, for in¬ Great Power veto on the Charter provision for suspension stance, by creating a new major UN organ? And sixth, or expulsion. the development of international law: what can be done to Chaite- Review and the TSalional Interest encourage this process, given the lack of a real consensus In conclusion, the process of Charter review should be between free nations and the Communist regimes as to rcn id'-red a part of the continuing effort of peace-loving basic values. nations to seek ever-better means so to structure inter¬ Secretary Dulles posed these issues in the form of ques¬ national relations as “to save succeeding generations from tions that should be asked and carefully weighed before the scourge of war.” It is, to repeat, a part of this effort, final answers are reached. and no more a panacea than, in retrospect, was the original There are doubtless other questions which will be actively Charter. We live in a world of soverign states, and we are considered at a review conference, stemming from the acute still working with all of our powers to try to achieve the interest of many nations in such fields as the administration level of orderly international interaction set forth in the of non-self-governing and trust territories, economic develop¬ original Charter. The stated Purposes and Principles of the ment of underdeveloped countries, human rights and funda¬ Charter still represent in many ways a definitive articulation mental freedoms, greater coordination between the UN and of the United States’ purposes and principles in the world. the specialized agencies, and the competence of the UN as If our national interest is interpreted to take account of related to domestic jurisdiction. It is apparent that in each these broad purposes as well as of the multiplicity of other major question one can raise there are inherent dilemmas needs that animate and guide our nation, and if we approach and conflicts of interest not only as among nations, but the problem of Charter review as we approach any other within the hierarchy of national objectives of a single nation important segment of our foreign relations—guided by such as our own. Some questions can be answered only enlightened national interest, we have the opportunity to by weighing in the balance our long-term objectives against advance the United States’ purposes in the world and cer¬ short-term imperatives. Others may yield no genuinely tainly a full opportunity, whether the Charter is actually satisfactory answer in the form of a solution. But to do amended or not, to inform ourselves as to the nature and j ustice to the national interest it is essential that these thorny direction of these purposes and the problems that arise in questions be asked, debated, and thoroughly understood achieving them.

SEPTEMBER, 1954 63 Taylor, Henry L. San Luis, Potosi Mexico CHANGES OF STATION IN JUNE, 1954 Tetrault, Vernon A. New Appt. Thomsen, Raymond Karachi Bonn Abreu, Abelardo Medan Djakarta Dept. Belgrade Frankfurt Von Hellens, L. W. Allan, Willard Regensburg Wahl, Theodore A. Lalo Dhahran Tripoli Allen, Artur B. Baghdad Weiss, Rudolph R. Yokohama Mexico D. Anderson, Einar T. Warsaw Djakarta Manila Helsinki Singapore Williams, Jack S. Anderson, William O. Dept. Williams, Murat W. Natl. War College Salonika Dept. Armstrong, Sam G. New Appt. Wood, Harold C. New Appt. Dept. Bonn Bache, Gerald M. New Appt. Woods, Velma May New Delhi Tokyo Backs, Lawrence H. New Appt. Bonn Tokyo Dept. New Delhi Young, W. Lawrence Bartlett, Frederic Natl. War Col Zweig, Ben Habana Belcher, Taylor G. Glasgow Mexicali Berger, Samuel D. Tokyo Wellington Bergin, Martin J., Jr. New Appt. Tehran Berry, Lampton Dept. Singapore CANCELLATIONS AND AMENDMENTS Beyer, Roland K. Reykjavik Brussels Birgfeld, Clarence Natl. War Co Athens Barrett, Raymond J. FSO Additionally accredited to Cork Bishton, Robert A. Cornell Univ. Surabaya Blasier, Stewart C. FSO Salzburg cancelled, now trfd to Bonn Blake, M. Williams Manchester Dept. Boehringer, Carl H. FSO Saigon cancelled, now trfd to Manila Blattner, Charles H. Surabaya Djakarta Brown, Robert A. FSS now trfd to Bonn Bracken, Katherine Princeton Istanbul Brown, Stephen C. FSO Bangkok cancelled, now trfd to Manila Caldwell, William B. New Appt. Habana Fagan, Dorothy N. FSS Kobe cancelled, now trfd to Taipei Caprio, Gene F. Dept. Taipei Greene, Joseph N. FSO St. John cancelled, now trfd to Bonn Cavanaugh, Robert J. Windsor Naples Higgins, Herbert N. FSS Koblenz cancelled, now trfd to Bombay Champagne, Eugene Bombay Bucharest Hille, Violet L. FSS Oslo cancelled, now resignation Clark, Ruth G. Singapore Florence Lanford, Homer W. FSS Assigned additionally to Belgium and Italy. Collier, Theodore New Appt. Dept. Macauley, Edward, III FSS Additionally assigned to Belgium, Portugal, and Collins, V. L. Natl. War Co Luxembourg Cope, A. John, Jr. Trieste Penang Meyerkort, Roberta L. FSS Rangoon cancelled, now trfd to Milan Cowles, Leon L. Natl. War Co Dept. Niemela, Toinette P. FSS Hong Kong cancelled, now trfd to Amman Darling, Susan L. New Appt. Bern Nethercut, Richard D. FSO Windsor cancelled, now trfd to Dept. Davenport, Philip M. Santiago Taipei Oakley, R. Kenneth FSO St. John cancelled, now trfd to Calgary Davis, Nathaniel Columbia U Moscow Petersen, Dorothy FSS Rangoon cancelled, remains assigned to Guatemala Donovan, Eileen R. Manila Milan Rush, James T. FSS Tokyo cancelled, now trfd to Nagoya Dreessen, Robert Princeton U Tabriz Thurgood, Harriet C. FSS London cancelled, now trfd to Dept. Eagleton, William Beirut Kirkuk Tremblay, Theodore A. FSO Bangkok cancelled, now trfd to Dept. Falzone, Michael A. Taipei Verineulen, Jacobus J. FSS New Delhi cancelled, now trfd to Tehran Finger, Seymour M. Harvard U Woods, Velma May FSS Tokyo cancelled, now trfd to Saigon Flournoy, Wm. E., Jr. Santiago Fraleigh, Wm. N. Dept. Wellington Frank, Laurence Tehran Dept. RESIGNATIONS AND RETIREMENTS Fratzke, Ralph C. Windsor Leopoldville Funkhouser, R. New Appt. Bucharest Elliott, Richard W. Gowen, Franklin C. Mexico D.F. Geneva Dhahran McCully, Edward Hall, Claude H. Lyon Smith, Stewart P. New Appt. Dept. Hall, Mary Ellen Tener, George E. Hall, Norman E. Trieste Manila Tyler, W'illiam R. Was FSR—resigned from FS— Harrop, William C. New Appt. Palermo Mooers, Horatio T. Retirement Hays, Margaret F. Dept. Manila Nyhus, Paul O. Retirement Cairo Paris Heissel, Clarence Preston, Austin R. Retirement Hoover, John P. Salisbury Habana Horner, John E. Natl. War Cc Paris Houck, Fred H. London Melbourne Houghton, Robert B. London Beirut Jaques, Dorothy S. Rotterdam Jensen, Earl L. New Appt. Tel Aviv INDEX TO ADVERTISERS Johnson, Richard C. New Appt. Dept. Jones, Marshall P. New Appt. Tel Aviv Jones, Ralph A. Regensburg Munich American Express Company Judd, Thomas M. Athens Benghazi American Foreign Service Protective Association Kardas, Edward P. Bogota Buenos Aires American Security & Trust Company Kelsey, Warren A. Columbia U Moscow Bookmaker, The Kennedy, Donald D. New Appt. New Delhi Kerry, Richard J. New Appt. Berlin Brown-Forman Distillers Corporation Kimrey, Chester H. Mexico City Nogales Calvert School Labrie, Hector R. New Appt. Manila Chase National Bank _ Lauve, Anita C. Dept. Saigon Circle Florists Lawler, Esther D. Paris Saigon Leavitt, John H. New Appt. Tehran Clements & Company Levin, Burton New Appt. Tainei DACOR Levin, Helen R. Johannesburg Manila Educational Consulting Service Lewis, Orville M. Baghdad Vienna Federal Storage Company Lincoln, Winslow, S., Jr. New Appt. Tokyo Lukashewich, Olga Mexico Wellington Firestone Tire & Rubber Company Lutkins, Larue R. Tokyo Hong Kong Francis Scott Key Apartment Hotel Macauley, Edward New Appt. Paris General Electronics, Inc. Ithaca, N. Y. Djakarta Macquaid, Robert J. General Foods Corporation Madison, Peter S. Hamburg Ciudad Juarez Martin, Doyle V. Stockholm Dakar Goodman, Henry J. Sc Co. Martin, S. Douglas New Appt. Bonn Government Services Insurance Underwriters Matthews, H. F., Jr. New Appt. Palermo Grace Line Tokyo Hamburg McCarthy, William P. Guild Shoppers McFadden, William A. Columbia U Moscow Mein, John G. Natl. War College Djakarta International Telephone & Telegraph Corporation Meyer, Richard N. New Appt. Budapest Larchmont Realty Inc. Midkiff, Harold M. Tripoli Ponta Delgada Maphis, J. Alan Miller, George E. Port of Spain Cherbourg Mayflower Hotel Mills, John L. San Salvador Benghazi Merchants Transfer Sc Storage Co. Muller, Carsten D. New Appt. Salzburg Neely, John C. New Appt. Monterrey Moroccan Banking Corporation, The O’Connor, John G. New Appt. Dept. National Distillers Products Corporation Bonn O’Shaughnessy, Elim Moscow Neuert, Wilton Sc Associates, Inc. Page, Orris C. Jidda Tokyo Ney’s Shopping Service Pal lister, Mervin V. Ottawa Karachi Palmer, Gardner E. Vienna Saigon Philco International Corporation Papendorp, J. T. The Hague Rotterdam Powell, Mrs. Paulus Pearson, Paul H. Munich Manchester Radio Corporation of America Phillips, Richard I. Nairobi Santiago Naples Riggs National Bank Post, David Paris .11 Sc III Cover Poullada, Leon B. Lahore Kabul Schenley International Corporation Pournasas, Catherine New Appt. Athens Seagram’s V. O. 37 Raineri, Peter J. Rio de Janeiro Asuncion Security Storage Company Reed, Henry C. Naples Hamilton B : Service Investment Corporation Rice, Charley L. Mazatlan P ed ras Negras Sinclair Refining Company Dept. Santiago Robinson, Reed P. Socony-Vacuum Oil Co., Inc. Ronhovde, Andreas Dept. The Hague State Department Federal Credit Union Sappington, J. C. Pretoria Dept. Scharff, Arthur B. Manila Seoul Swartz, Walter H. Co. Service, Richard M. Brussels Florence United Fruit Company Shockley, William P. Beirut Singapore United States Lines - Simpson, R. Smith Bombay Lourenco Marques von Zielinski, Carl M. J. r Skora, George W. Brussels Mexico City Waldorf-Astoria, The L Smith, R. Douglas Paris Dept. Webster-Chicago Corporation — Djakarta Snider, Clyde W. Amsterdam Williams, Winifred Bonn Salisbury Steere, Loyd V. Woodward & Lothrop Sternfield, L. M. New Appt. Santiago Zenith Radio Corporation Strom, Carl W. Dept. Seoul

FOREIGN SERVICE JOURNAL 64 MEMBERSHIP II\ THE AMERICAN FOREIGN SERVICE ASSOCIATION

The problem of eligibility for membership in the Foreign Service Association for overseas personnel of agencies other than the Department of State has arisen in the last few months. The Board of Directors announces that the following rulings on this question are now in effect:

Active Membership — There is no change in requirements for Active membership, the provisions re¬ garding which are contained in Section XI, Subdivision (1) (a) and (b) of the By- Laws of the Association. In short, this membership is open to all Chiefs of Mission and all Foreign Service Officer, Reserve and Staff personnel employed by the De¬ partment of State.

Associate Membership — With regard to Associate membership, however, certain changes have had to be instituted. Associate membership may now include all American Foreign Service personnel of FOA and USIA together with Military, Naval and Air Attaches and their staffs. Associate membership has all privileges of membership except the privilege of voting. The provisions of Section XI, Subdivision (2) (a) and (b) of the By-Laws of the Association opening Associate membership to former Active members and cer¬ tain professional personnel of the Department of State and defining the conditions of such membership remain in full force and effect.

The Board of Directors has also decided to institute certain changes with regard to dues. Active dues will remain at $10.00 per year. Associate membership dues will be raised to $10.00 per year, effective June 24, 1954, except as provided below. Those Associate members who had, before June 24, 1954, been billed for Fiscal Year 1955 at the old rate of $7.00 are not being called on to pay the additional sum but will pay $10.00 dues from July 1, 1955 on. Furthermore, the Associate membership dues will remain at $7.00 per year for all persons not on active duty who were Asso¬ ciate members as of June 24, 1954, or for persons who will become Associate mem¬ bers in the future who are not on active duty but who have had at least 15 years’ service in the Department of State and/or the Foreign Service.

The Foreign Service Discount Club will be abolished on June 30, 1955, when all present annual memberships will have lapsed, no new Discount Club memberships having been accepted after June 23, 1954. Personal purchase privileges will hence¬ forth be enjoyed through membership, either Active or Associate, in the Foreign Service Association rather than through membership in the Discount Club.

Prospective members are reminded that dues are pro-rated on a quarterly basis for new members joining after July 1. Thus, beginning October 1 membership is $7.50; beginning January 1, $5.00; and beginning April 1, $2.50; with the full dues being billed as of July 1 of the next year. 3s

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