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DAVID H. McKILLOP, President PRINCETON LYMAN, First Vice President HORACE G. DAWSON, JR., Second Vice President

Board of Directors

WILLIAM C. HARROP, Chairman THOMAS D. BOYATT, Vice Chairman BARBARA J. GOOD, Second Vice Chairman DAVID W. LOVING, Secretary-Treasurer JOHN J. TUOHEY, Assistant Secretary-Treasurer HERMAN J. COHEN JAMES L. HOLMES, JR. F. ALLEN HARRIS WILLIAM R. LENDERKING, JR. FOREIGN SERVICE JOURNAL LINDA LOWENSTEIN W. A. WHITTEN Staff FEBRUARY 1973: VOLUME 50, NO. 2 GERALD BUSHNELL, Executive Director CLARKE SLADE, Educational Consultant HELEN VOGEL, Committee Coordinator C. B. SANNER, Membership and Circulation

Journal Editorial Board

TERESITA C. SCHAFFER, Chairman RALPH S. SMITH, Vice Chairman Needed: A Second Generation of FREDERICK QUINN Supranational Institutions 9 EDWARD M. COHEN HARRIETT S. CROWLEY LESTER R. BROWN G. RICHARD MONSEN JOEL M. WOLDMAN

Journal

SHIRLEY R. NEWHALL, Editor The Decline and Fall of MclVER ART & PUBLICATIONS, INC., Arf Direction American Efficiency 15 EDMUND A. SCHECTER Advertising Representatives

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©American Foreign Service Association, 1973. The Foreign Service Journal is published twelve times a year by the Amer¬ Soldiering for State and ican Foreign Service Association, 2101 E Street, N.W., Wash¬ Surviving 18 ington, D. C. 20037. Telephone (202) 338-4045 RONALD D. PALMER Second-class postage paid at Washington, D. C.

OTHER FEATURES: Rosebuds ’Round Her Navel, by Jorma L. Kaukonen, page 4; American Wine, by Robert J. Misch, page 29.

The FOREIGN SERVICE JOURNAL is the journal of professionals in foreign affairs, published twelve times a year by the American For¬ DEPARTMENTS eign Service Association, a non-profit organization. Material appearing herein represents the opinions of the writers and is not intended to indicate the official views of the Department of State, the United States Information Agency, the Agency for International Letters to the Editor 2 Development or the United States Government as a whole. Membership in the American Foreign Service Association is open to The Bookshelf 20 the professionals in foreign affairs overseas or in Washington, as well as to persons having an active interest in, or close association with, Editorials 34 foreign affairs. Membership dues are: Active Members—Dues range from $13 to $52 annually depending upon income. Retired Active Members—Dues are AFSA News 35 $30 annually for members with incomes over $15,000; $15 annually for less than $15,000. Associate Members—Dues are $20 annually. For subscription to the JOURNAL, one year (12 issues); $6.00; two years, $10.00. For subscriptions going abroad, except Canada, add $1.00 annually for overseas postage. Articles appearing in this journal are abstracted and indexed in Historical Abstracts and/or America: History and Life. Microfilm copies of current as well as of back issues of the FOREIGN SERVICE JOURNAL are available through the University Microfilm Li¬ brary Services, Ann Arbor, Michigan 48106 under a contract signed COVER: Oberrieden, Switzerland, by Eva Marsh October 30, 1967. mesh his subordinates handling per¬ ing abroad for the United States LETTERS TO | sonnel. It would impair if not even¬ Government. Agreed—but they are tually destroy the morale of the not all diplomats, and you are naive Foreign Service. if you assume that shared nationality Dissent and Heresy The recent publicity and one¬ equals a line drawn for the benefit ■ A number of inquiries as to ap¬ sided propaganda emanating from of non-diplomats through the lowest propriate organizations to which AFSA has already adversely affected common denominator of achieve¬ contributions may be made in mem¬ that morale by focusing the atten¬ ment. ory of John Carter Vincent have tion of Foreign Service personnel been received and it was decided on their privileges, grievances and A Modest Proposal security, at the expense of their that the American Civil Liberties I T’S still the same old problem. Union in seeking to preserve and responsibilities, opportunities and Even after ex-President Hoover, defend the basic human rights of obligations. Secretary Herter, Dr. Wriston and a individuals at times of unrest and As I observed upon first reading host of others, most lately Bill Ma- popular reprisals is the most repre¬ Executive Order 11636 (which comber, have had their way with sentative of his ideas and philoso¬ never should be applied to the reformation and reorganization, ev¬ phies. He knew well the form such officers of the Foreign Service, who erybody still seems to go on hating reprisals can take, and their effect are not “employees” but men and the State Department. Bob Short women commissioned by the Presi¬ on the individual. has taken the Senators to Texas, dent of the United States, by and My husband’s favorite philoso¬ and now State has moved up to the with the consent of the Senate), pher and theologian was Spinoza, position of number one Washington one searches through those dreary who also went through great trials whipping boy. paragraphs for such phrases as and tribulations and who said, “The The blunt truth is that the For¬ “pride of accomplishment,” “patri¬ misfortunes of history made dissent eign Service itself is obsolete. In an otic performance,” “willingness on from the most palpable absurdities, era of jet planes and hot lines, we behalf of the country to face hard¬ capital heresy” and so it was with are still relying on the old Foreign ship and peril”—or in one word, Service, disciplined in the arts of John Carter Vincent and the whole “service”—but he who reads that diplomacy and protocol. Even the China service, in the 1940s. Executive Order searches for those so-called “new diplomacy” is merely ELIZABETH THAYER VINCENT the logical extension of the old di¬ Cambridge words in vain. Instead, for all the obeisances to plomacy to the new responsibilities A Congregation of Grievants professionalism and merit, I find of the United States as a world power in the second half of the This section was inadvertently omit¬ AFSA, under that Executive Order, twentieth century; it has nothing to ted from Ambassador Ellis O. Briggs’ promoting a Congregation of Griev¬ letter in the January JOURNAL. do with the age of technetronics. ants, whose greatest triumph will not The State Department’s top echelon ■ Your basic premise is further be in meeting the challenges you may know what is wrong with the nourished by the notion that State salute, but in spitting in the eye of Stanley Steamer on today’s su¬ Department “management,” unless Management—and getting away with perhighways, but somehow they curbed by the vigilance of those it. How, moreover, does your solici¬ haven’t yet grasped the fact that armed with the weapon of “exclu¬ tude for “grievants” jibe with your they too are using the wrong kind of sive bargaining,” and with what you statement that only a “minute pro¬ power. They are still on the wrong term “impartial review” (by which portion” of Foreign Service person¬ track, no pun intended. I suppose you really mean a mechanism de¬ nel believe they have been unfairly an ecologist would say that eutroph¬ signed to override a decision of the treated? To gratify that “minute pro¬ ication has reached irreversible lim¬ Secretary of State), will inevitably portion,” is it necessary to erect that its in Foggy Bottom. Anyway, the result in exploiting the workers— elaborate array of boards and panels Foreign Service has become as ex¬ i.e. the personnel of the Foreign and commissions and committees, tinct as the passenger pigeon and just about as useful. Retool or re¬ Service. dedicated, if I correctly read the direct the Service all you like, it can Wherefore you propose that mat¬ portents, to the survival of the un- never again be a substitute for Air ters henceforth be “co-determined” fittest? between the State Department on Force One. Lastly, in your preoccupation with the one side, and AFSA, as the pro¬ Somehow the worst is over when anti-elitism and your pursuit of egali¬ tector of the workers, on the other. this hard fact is faced. After all, in tarian drabness, you would make In the circumstances of profes¬ an era when every American tourist sional diplomacy, that philosophy, of elite an ugly word, a term of op¬ is officially labeled an Ambassador as outlined in the printed “AFSA probrium. Who questions that the of Good Will, there must be some Platform,” is nonsense. mechanic in the motor pool, the ac¬ place for career ambassadors. Not Worse, it is nonsense of a dan¬ countant who balances the books, to mention first, second, and third gerous and pernicious character. the courier who carries the diplo¬ secretaries. If an army can become If adopted, it would hamper the matic pouches, and the Ambassador a “peace-keeping force,” if a cob¬ ability of the Secretary of State to who deals with the Foreign Minister, bler’s bench can be turned into a perform his functions. It would en¬ are not all American citizens work¬ (Continued on page 35)

2 FOREIGN SERVICE JOURNAL, February, 1973 The fine art of summitry has seldom been In the New York area, contact Diplomatic practiced with such authority as by the 1973 Sales, Ford Export Corporation, Ford Motor Lincoln Continental and the Ford LTD. Company, 153 Halsey Street, Newark, N.J. Each is a leader in its own realm. The 07102. Telephone: 643-1900. From New Lincoln Continental . . . the final step up York, telephone: 964-7883. around the world. The Ford LTD . . . a better idea in luxury and quiet. Both are available at exceptional savings when you exercise your diplomatic discount privileges as a member of the U.S. Foreign Service. Order now. Save now. Arrange delivery stateside or overseas. For full information: 1973 Ford LTD Brougham

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All 1973 cars must meet Federal Emission Standards before sale. See your Ford Dealer for details. A RETIREMENT CHRONICLE by JORMA L. KAUKONEN

iL AST spring, when I was in Washington briefly, I politan newspaper, no daily morning staff meetings to called on Margaret Turkel—an old and dear friend— attend, and nothing to do except prune the roses. and she was intrigued by how I spent some of the hours Let me begin with a factual statement of some of the of my retirement. I am by nature a dignified, polysyllabic, fringe benefits of my new life. I was at a concert recently somewhat pompous man and she thought it amusing here in San Francisco at the Winterland where the that I should have become involved peripherally in the Jefferson Airplane, in a manner of speaking, was making world of rock music. It was her idea, I guess, that there a triumphant return to its birthplace. The Airplane had might be something inspirational in my story for other not concertized for quite a while in its native city and this Foreign Service officers, suddenly thrust into a non was a major cultural event in any man’s book. I was nine-to-five environment, out of reach of a major, metro- backstage in the dressing room, listening to my son Jorma, the guitarist, and Jack Casady, the bassist, warm up. Later they would be joined in this backstage mini¬ Jorma L. Kaukonen’s government service began in 1935 and ended in 1970. He worked for the Social Security Board, the concert by other members of the group, but at the Public Health Service, the Federal Agency and the War Man¬ moment I was listening to a great piece of stringed power Commission. WWI1 took him to Japan as a censorship virtuosity in an ambiance which was peculiarly San officer, to Korea as a labor advisor, to Pakistan as representa¬ Franciscan—permissive, free and easy. tive of the Asia Foundation and to the Department of Labor as The dressing room was pretty crowded, except for the a Far Eastern area specialist. In 1957 he joined the Foreign Service as Labor Attache and First Secretary in Manila, trans¬ corner where young Kaukonen and Casady were warm¬ ferring to Stockholm in 1962 and to Ottawa in 1967. ing up, and people garbed in the non-Brooks Brothers, Worldwide Ill-Risk Insurance Coverage For Government Employees Special rates for American Foreign Service Association members

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FOREIGN SERVICE JOURNAL, February, 1973 5 Peter, Jorma, Sr., and Jorma, Jr. in Jorma, Jr.’s living room. “The big eye behind us is friendly."

non Neiman-Marcus costumes of the day wandered back and forth. Shades of Hogarth and Custer and the Plains Indians and the Cavaliers and the Forty Niners and the 25th century! As I sat there bemused, a bare midriff appeared in front of my eyes and was stationary for a moment. It belonged to a “chick,” if I may be permitted the vernacular, in the first full flush of her nubility. She had a wreath of rosebuds tattooed around her navel and I knew from the colors that this was the work of Lyle Tuttle who is responsible for a veritable renaissance of this ancient art in the Bay area. This was a fringe benefit indeed. I never would have seen it, had I not been impelled to become a rock music aficionado and to write from time to time—not so much about the Airplane as about the music of Hot Tuna and Black Kangaroo. I ought to conclude this sidelight by saying that the concert that evening was great, the Airplane invigorated by the guest reappearance of Marty Balin whose duets with Grace Slick were highlights of the late ’60s. Lights flashed, people danced, and the music was evocative—some of it—of that simpler time of which Woodstock was the symbol. But I think I like the music of Hot Tuna even more than that of the Airplane at this moment. Hot Tuna has some of the same personnel as the Jefferson Airplane— lead guitarist Jorma Kaukonen, bassist Jack Casady, and violinist Papa John Creach. It has an immediacy, an intensity, a compelling palpable power which moves people physically as well as intellectually and it is Hot Tuna which has propelled me into my retirement voca¬ tion as campfollower and writer about rock and as a part time sound archivist. The first thing I wrote about Hot Tuna was what has been described as their official biography. This was followed by an article on the art in a popular rock magazine and I was gratified recently to be stopped by a young man in Constitution Hall who had an article of mine in hand and who said he had liked it. Anyway, Hot Tuna is something—a passionate en-

6 FOREIGN SERVICE JOURNAL. February. 1973 ANNOUNCES

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or 1750 Pennsylvania Avenue, NW, Suite 1305, Washington, D.C. 20006 Telephone: 298-7570 gine, perhaps. I have heard it develop from its earliest days when it opened the bill at Fillmore East for the Airplane, with Kaukonen Jr. and Casady shifting easily from one identity to the other, assisted by Jorma’s brother Peter. But it isn't just the Airplane and Hot Tuna which All risks interest me. There is a group called Black Kangaroo which culminates a development that began with Petrus, a band of great musicality which had a reputation in the early days of the San Francisco musical renaissance and insurance which led to Lizard, a trio utilizing an acoustic bass which attracted a considerable following in Bay area clubs. Black Kangaroo is the name of Peter Kaukonen’s band and of his recently released record. With tape recorder in hand, I have heard and recorded much of Peter’s musical development during the past several $1.50 per years. He has responded to his own musical imperative which took him out of Hot Tuna at an early stage of that group’s development to begin a journey which has taken him a long way toward his goal as an artist recognized in $100 per annum his own right. Recently, Black Kangaroo and Hot Tuna appeared on the same bill in New York at the Academy of Music. Incredible. It made me think of the year in Stockholm when Peter was studying at Stockholm University and WORLDWIDE playing and singing American blues to the prescient Swedish audiences in such places as the Domino and Grona Lund, to mention but two. Now in 1972, he has (including USAI his own band and is on tour to play on the same bills as Hot Tuna, The Byrds, Alice Cooper, and Albert King, among others, with a brief excursion to play for the students of Hotchkiss in Lakeville, Connecticut where he NO DEDUCTIBLE prepared himself for Stanford and the nine to five career Foreign Service officers try to inflict on their children. Well, they’re both free of that and I occasionally ask Underwritten at myself what I did that was right when they were growing up. Nothing, I guess, except throw every obstacle I could think of in their way. But I doubt that was the spur Lloyds either. I think they are lucky to be doing what they want and to be doing it well. As for me, I’ve gotten a number of insights I wouldn’t For very many years U.S.O.I.B. Ltd. have insured otherwise have had, over and above the nubile navel members of the Foreign Service. First class service and claims settlements. surrounded by Lyle Tuttle’s artistry. Like for instance, Mick Jagger needs a new choreographer and his music Complete and return coupon for full details. doesn’t say anything new to me, although the Rolling Stones are very slick and professional and watching their audience is like watching sea plants responding to the forces of wind and wave. Or that the Who live is a To: United Services Officers'! nsurance Brokers Ltd. musical experience not to be missed. Or that I like J. J. Clanville Lodge, Andover, Hampshire, England. Cale and Osibisa and John Hammond who appears frequently with Hot Tuna and whose blues are almost Please airmail details of your special policy for beyond compare. And that I don’t have to have the New serving members of the Foreign Service. York TIMES, the Manila CHRONICLE, DAGENS NYHETER, Name or the GLOBE AND MAIL first thing in the morning and that since nothing changes in what used to be my real Address world, I can make do with that occasionally charming provincial paper the San Francisco CHRONICLE. And, finally, in the world of the performing arts, even for the bystander, there is no nine to five syndrome and I am glad of that. ■

8 FOREIGN SERVICE JOURNAL, February. 1973 H Second Generation of Supranational Institutions

LESTER R. BROWN

world is so interdependent United States. An African govern¬ of mankind’s more pressing prob¬ and so interwoven today that ment’s expropriation of the holdings lems have purely national solutions. economic, political or scientific deci¬ of a US mining company can affect They can be solved only through sions taken within one country may the retirement income of an elderly multinational or global cooperation. affect far more people outside that couple in Minneapolis. A decision While the more perplexing prob¬ country than within. Decisions by a by the United States Government in lems man faces today are global in multinational corporation may August of 1971 to devalue the dol¬ scope, the institutions to cope with affect the well-being of the people lar relative to other major curren¬ them are largely national. New in a given country more than those cies caused a precipitous drop in the technologies are creating problems taken by the government of that value of common stocks on the but not the institutions capable of country itself. In many cases, those Tokyo stock exchange, a drop that solving them. who are adversely affected have no the Japanese Government was pow¬ The political complexities and political recourse to those responsi¬ erless to prevent. obstacles involved in creating ef¬ ble for their plight. Economic actions have social fective supranational institutions Decisions by a US Congressional consequences extending far beyond should not obscure the fact that Committee allocating sugar import national borders. So, too, do ecolog¬ many existing international agencies quotas may have a greater impact ical forces. Deforestation in Nepal have already served mankind well. on the well-being of rural laborers increases the severity of flooding in One need only think of such agen¬ in northeastern Brazil than almost the Indus and Gangetic Plains in cies as the World Health Organiza¬ anything the Brazilian Government India and Pakistan. The discharge tion or such bodies as the Interna¬ itself can do. Permission by the of waste mercury by Japanese and tional Monetary Fund, which has Government of Afghanistan to its Taiwanese industrialists can cause thus far weathered many crises en hard-pressed farmers to produce swordfish to be taken off menus in route to creating an international opium for sale to illicit drug han¬ the United States. Oil spills from monetary system. dlers could negate efforts to arrest Norwegian tankers affect beaches in In the environmental field, the the spread of drug addiction in the Florida. The discharge of industrial UN conference held at Stockholm in smokestacks in the Ruhr and Great June 1972, has made a good begin¬ Lester R. Brown is a Senior Fellow with Britain blackens snowfall in Scan¬ ning toward creating a global infra¬ the Overseas Development Council. He was formerly Administrator of the Inter¬ dinavia, chemically contaminating structure to cope with problems of national Agricultural Development Serv¬ rivers and streams. the environment. The Stockholm ice and served as policy adviser to the We live in an age when problems Conference provided a unique forum Secretary of Agriculture on world food are increasingly world-wide—the in which both developed and de¬ needs and agricultural development world monetary crisis, threat of veloping countries took the initial abroad. Recognized as a leading au¬ thority on the world food problem while world inflation, world environmen¬ political decisions that will help still in his 20s, Mr. Brown was selected by tal crisis, world drug problem, world them to act together in a manner the Jaycees as one of the “Ten Outstand¬ population problem, the world food consistent with the earth’s physical ing Young Men of America” in 1966. problem, and so forth. Few, if any, limits and interdependencies. With

FOREIGN SERVICE JOURNAL, February. 1B73 9 some 90 percent of the earth’s peo¬ RECENT efforts to establish an in¬ statement of principles “placing the ple represented, important new ternational oceanic authority provide seabed beyond the reach of national principles were adopted to serve as a specific example of the kind of sovereignties, linking benefits from guidelines for future national per¬ problems, and the difficulties in¬ its peaceful use to the needs of formance. Despite strongly held volved in resolving them, that ur¬ developing countries and looking convictions about national sover¬ gently call for international agree¬ toward conservation and antipollu¬ eignty, the nations agreed that they ment and cooperation. The need for tion measures.” The United Nations have a mutual responsibility for such authority is a consequence of Conference on Trade and Develop¬ common property such as the atmos¬ new technologies that permit the ment (UNCTAD) meeting in Santi¬ phere and the oceans. The un¬ exploitation of energy, mineral and ago, Chile in May of 1972 called precedented Declaration on the Hu¬ fish resources in the world’s oceans; for a moratorium on exploitation of man Environment also stresses the of the fierce competition for these resources of the seabed until an responsibility of nations not to in¬ resources as evidenced by disputes international oceanic regime was es¬ flict environmental damage on each over fishing rights off the West coast tablished. other, and calls for the conservation of Latin America, and of the con¬ A UN Conference on the Sea is of finite resources, from minerals to flicting claims of jurisdiction over now scheduled for 1973, but as plant species. newly discovered underwater re¬ preparatory work has encountered The Stockholm delegates pro¬ serves of oil in the South China sea numerous obstacles, it may not be duced a 109-point program of inter¬ by Mainland China, Taiwan, Japan convened until 1974. Should an In¬ national actions, and recommended and South Korea. ternational Oceanic Regime come the establishment of a permanent In order to avoid potentially dan¬ into being organized along the lines vehicle within the United Nations to gerous conflicts over exploitation of now being considered, it would es¬ coordinate these actions, as well as oceanic resources, Malta’s ambassa¬ tablish UN sovereignty over two- a voluntary environmental fund to dor to the UN, Arvid Pardo, pro¬ thirds of the earth’s surface in much finance it. The United Nations envi¬ posed in 1967 that an international the same manner that the 160 na¬ ronmental unit will have a broad oceanic regime be established after tion-states have sovereign rights mandate which stretches from moni¬ appropriate study under the aegis of over the remaining one-third. Rev¬ toring the earth’s atmosphere, land the UN “to ensure that national enues from licensing governments and oceans, to providing environ¬ activities undertaken in the deep or corporations interested in exploit¬ mental education to the peoples of seas and on the ocean floor will ing the ocean’s potential would the developed and developing conform to the principles and provi¬ provide an independent source of worlds. The proposed machinery is sions incorporated in the proposed income, giving the UN a certain envisaged both as a source of assist¬ treaty [the treaty creating the new independence it does not now en¬ joy, and, thus enhancing its capacity to serve mankind. Effective environmental instituations cannot be expected to flourish Such a fall-out from the establish¬ in a weak UN system. New supranational institutions are needed to ment of an oceanic regime would be cope with numerous problems now emerging. of great significance because a ma¬ jor obstacle to the existence of a stronger UN has been the limited ance to governments in dealing regime].” The ambassador also rec¬ support provided by the super¬ with their own environmental prob¬ ommended that the UN refuse to powers as reflected in their paltry lems, and in cooperating with each recognize any new national claims financial contributions. The Ford other in attacking problems whose of sovereignty over the oceans and Foundation’s disbursements in 1970 solutions must necessarily be mul¬ that poor countries be given prefer¬ exceeded the total budget of the tinational. ence when considering the use of UN, which amounted to just over However, nations must go beyond possible financial proceeds from $200 million. In other terms, the what they are willing to discuss at regulating oceanic exploitation. sum of all national contributions to Stockholm and explore crucial, long- The United States indicated its the UN budget amounted to one- range aspects of international co¬ support for an international authori¬ fifth of one percent of UN mem¬ operation which are needed now ty governing the exploitation of the bers’ total military expenditures. If that the global nature of many envi¬ world’s oceanic resources in a White nations are serious about creating ronmental concerns has been estab¬ House statement issued in the sum¬ meaningful global institutions, mere lished. For effective environmental mer of 1970. It declared that the tokenism will not suffice. institutions cannot be expected to resources of the oceans were the flourish in a weak UN system. New common property of all mankind supranational institutions are need¬ and should be made available to all THE internationalization of produc¬ ed to cope with numerous problems nations large and small, marine and tion—that production which results now emerging. Prominent among landlocked. The 42-member UN from combining labor, capital, man¬ these are the management, conser¬ Seabed Committee made consider¬ agement and technology from two vation and exploitation of ocean able progress in 1970 in formulating or more countries under the frame¬ resources, regulation of the national the guidelines for regulating exploi¬ work of the multinational corpora¬ corporate interface; global research tation of the oceans. In the same tion—has brought with it many new strategies and institutes and coordi¬ year the General Assembly Political problems along the national- nated global disaster relief. Committee unanimously adopted a corporate interface. The lack of a

10 FOREIGN SERVICE JOURNAL, February, 1973 consistent set of rules regulating the ments can find ways to cooperate, outlook and purpose. Two problems relationship between national gov¬ the greater will be the chance that which would lend themselves readi¬ ernments and corporations, particu¬ the new technology will bring the ly to this approach are population larly in areas such as anti-trust reg¬ poor countries into mutually benefi¬ stabilization and waste disposal, the ulations, ownership rights, capital cial association with the industrial latter largely a matter of recycling. repatriation, labor relations, tax countries. Dr. Melville Watkins who The population issue requires a ma¬ laws and the issuance of securities headed a Canadian commission to jor research effort ranging from has generated costly apprehension examine foreign investment in reproductive biology and more and mistrust. No two nation-states Canada described this need as fol¬ effective contraceptive methods to have identical rules governing all as¬ lows: “The major policy concern of social motivation research analyzing pects of a multinational corpora¬ the government surrounded by cor¬ factors influencing child bearing de¬ tion’s activities. This results in over¬ porations should be to create an cisions. Governments now support lapping, conflicting and inconsistent environment within which the cor¬ family planning efforts in countries regulations in some instances and in porations function for the public containing a great majority of the others no regulation at all. Leaders good. Since the operations of the world’s people, but are handicapped in the poor countries have feared the multinational firm transcend the jur¬ by a lack of successful experience to power of some of the corporate isdiction of any single nation, a case draw upon in organizing their own giants, while at the same time every can be made that it should be sub¬ programs. instance of expropriation by govern¬ ject to international or supranation¬ The waste disposal question ments has contributed to a hesita¬ al control and, indeed, will not oth¬ needs attention for two reasons: ex¬ tion if not actual pulling back of erwise be effectively controlled in isting methods of disposal are ex¬ corporations investing in these coun¬ all respects. Multinational corpora¬ ceeding the ecosystem’s capacity to tries. The net effect has been to in¬ tions have substantial economic absorb waste and recycling is also hibit the flow of capital and, per¬ power and political influence and the key to conserving scarce raw haps more importantly, technology their operations are far too impor¬ materials. If methods of recycling from the rich to the poor countries. tant to many people for a nation¬ can be perfected, progress will be Part of the difficulty in this rela¬ state to ignore them.” made on two critical fronts. The tionship arises from governments at¬ Beyond the need to arbitrate dis¬ waste disposal problem, though tempting to deal with multinational putes there remains the problem affecting virtually every country, is institutions with what are essentially that few multinational corporations one which few individual govern¬ national policies. The anachronistic are truly multinational; most identi- ments can afford to research ade¬ character of this approach was rec¬ which is supranational or global in quately. Technologies evolved to fa¬ ognized in the method of patenting new technologies. In order to avoid the repeated patenting procedures The major policy concern of the government for individual nations, 35-countries surrounded by corporations should be to create an had signed a Patent Cooperation environment within which the corporations function for Treaty as of early 1971. The Treaty the public good. established a standardized interna¬ tional patent application to be cen¬ trally filed. fy with the nation-state in which cilitate recycling, however, are often International tax regulations of they are domiciled. This has led universally applicable. global corporations could clear some Orville Freeman, former Secretary Not all research needs are global; of the existing problems confronting of Agriculture and now President of some are regional or affect only home and host countries. If handled Business International, and Arnold those countries in a certain ecologi¬ by an international organization Toynbee, British historian, to sug¬ cal area or at a certain stage of such as the United Nations this new gest that the exclusive authority to development. The locust threat source of global public revenue grant charters to all corporations which emerges periodically and af¬ might be better distributed to areas wishing to operate across national fects countries of East Africa and where the need is greatest. Although borders should be granted to a neu¬ the Middle East is an example of many poor countries are exercising tral authority, perhaps one situated the latter. Other institutes might fo¬ their increased leverage in demand¬ on a small island. This would have cus on specific diseases such as does ing a greater share of the profits the effect of divorcing or at least the cholera institute in Bangladesh. derived from subsidiaries located in greatly weakening ties between na¬ These proposed institutes would their country, many corporations tion-states and corporations, reduc¬ be mission-oriented with specific so¬ are still profiting from ill-defined or ing the extent to which one could cial objectives. The boards of direc¬ liberal tax laws. use the other to help further its tors and staff would be both inter¬ There is a pressing need for a basic political or economic objec¬ disciplinary and international in supranational institution to regulate tives. composition, and independent of the interface between global corpo¬ any national government or interna¬ rations and nation-states, particular¬ As the multitudinous problems fac¬ tional organization. Long term fund¬ ly where the poorer nation-states ing mankind become increasingly ing should be assured, perhaps are concerned. The sooner these global in scale, they call for a new through an initial endowment sup¬ corporations and national govern¬ form of research institution, one plied by an individual country such

FOREIGN SERVICE JOURNAL, February, 1973 11 as the United States, which is in the The earthquake in Peru, the cat¬ strengthen the United Nations. process of shifting some of its aid astrophic typhoon in East Pakistan, Foremost among these is the need resources from bilateral to multi¬ the floods in Italy, the earthquake for universality. The recent admis¬ lateral channels. Or perhaps better in Turkey, and a number of mine sion of Mainland China, resulting in yet, the United States and Soviet or disasters, all come to mind. None of part from relaxation of US opposi¬ Japanese governments could com¬ these individual countries, with the tion and the US initiative to reestab¬ bine resources, jointly launching possible exception of Italy, pos¬ lish the dialogue with Mainland such an institute. An institute on sessed the resources to respond to China, is a giant step in the right population or any other subject disaster on the scale experienced. direction. If a way could be found, relating most directly to the poor All welcomed external assistance. perhaps a package deal as Richard countries should be located within Once a United Nations Disaster Re¬ Gardner has suggested, to bring the poor countries themselves. For lief Force was established and oper¬ East and West Germany, North and social technologies such as family ational, it would be called upon at South Korea and North and South planning or waste recycling, these the first sign of a natural disaster, as Vietnam into membership, the cre¬ institutions would play much the automatically as calling the local dentials of the United Nations same role in disseminating technolo¬ fire department in case of fire. It would be much more credible. gy across national borders as mul¬ would be a source of comfort to all Given the difficulties in establish¬ tinational corporations now do for and a source of aid to those caught ing new supranational institutions, it industrial technologies. up in a natural disaster. Not only might be desirable in tactical terms would this provide a sense of securi¬ to concentrate on establishing those ty but it would also contribute to a global institutions which are easiest A s the world has become smaller sense of mutual dependence, a sense to establish, such as in the research by virtue of advances in transporta¬ of community among nations. In ad¬ field. Some could even be launched tion and communication, it has be¬ dition to reducing the loss of life and unilaterally, as with the United come feasible to consider a single alleviating suffering among those in States initiative in the creation of disaster relief force for the entire disaster areas it would give the INTELSAT, or that of the Canadi¬ world. The economic advantages of United Nations a much needed psy¬ ans with the International Develop¬ maintaining a single force to serve chological shot in the arm. ment Research Center, an institu¬ all nations is that, with a given tion funded by the Canadian Gov¬ investment of resources in men, ernment but managed by an inter¬ equipment, food stores and medical B RINGING into existence the su¬ national board of directors. supplies, a much more effective job pranational institutions discussed In many situations it may be can be done with a single force above is an enormous, complex un¬ necessary to start with something covering the entire world than with dertaking. But this is only a begin¬ less than a global organization. In¬ numerous smaller forces of varying ning. This chapter is not intended to deed many supranational institu¬ degrees of effectiveness serving indi¬ provide an exhaustive listing of the tions now including most of the vidual countries. many supranational institutions world’s nations in their member¬ Poised to respond whenever needed, but rather to select for illus¬ ship, such as the GATT, IMF and called to national disasters—storms, trative purposes a few of those most INTELSAT, started with a relative¬ floods, hurricanes, earthquakes and urgently needed. ly limited number of participants. volcanic eruptions—such a group The need for the United Nations The United Nations itself began would be manned by professionals itself is much greater today than it with only two-fifths of the members with the most modern equipment. was a generation ago when the or¬ it now has. Given the hourly weather informa¬ ganization was created. And public Building new supranational insti¬ tion now available through the recognition of the need for a United tutions which are effective and have global system of meteorological Nations is much greater than ever authority will not be easy. Nations satellites, potential weather-induced before. But despite some landmark are still torn between wanting both disasters could be identified as they achievements such as assisting with the benefits of autonomy and those arose, and with continuous monitor¬ decolonization of territories contain¬ of cooperation. Only with public ing relief could be moved into po¬ ing nearly a billion people, ratifica¬ recognition that the balance of ben¬ sition on the basis of a severe tion of the partial test ban treaty, efits is shifting toward the latter can threat, not even waiting for the peacekeeping activities in Zaire and we expect significant adjustments to disaster itself. Such a disaster relief Cyprus, the nuclear weapons non¬ occur. And this in turn requires an force should have a sizable medical proliferation treaty, the declaration educational effort designed to contingent including doctors, nurses, of principles governing the seabed provide a better understanding of paramedical personnel trained in and other important accomplish¬ the relationship between various the immediate care of the injured, ments, most people are disillusioned problems confronting people at the and portable hospitals and power with it. The problem is not that a local or national level—such as ris¬ generating equipment. It would be global institution cannot function ing seafood prices, threatened spe¬ able to provide food and temporary effectively. What is lacking in the cies, polluted beaches, drug addic¬ shelter for large numbers of people. United Nations is the political desire tion, aerial hijacking, urban deterio¬ It would also have a well developed among many of its members for it to ration and rising unemployment— logistical capability in the form of assume an effective role. and the cooperative supranational planes, helicopters, jeeps and a so¬ There are several specific actions efforts needed to solve these prob¬ phisticated air drop capacity. which can be undertaken to lems. ■

12 FOREIGN SERVICE JOURNAL, February, 1973 "Efficiency of a practically flawless kind may be reached naturally in the struggle for bread."—Conrad

THE DECLINE AND FALL OF AMERICAN EFFICIENCY

EDMUND SCHECHTER

w■ WE returned to Washington a to-day aspects life was smooth surance companies—in short, effect few months ago after a long stretch enough. a quick readjustment to a routine, of assignments overseas—first in In this last long period of service stateside life. Europe and then seven years in abroad I found all this, at least Thus, without the benefit of a Latin America. Of course, I had initially, fully confirmed. Europe gradual transition we were suddenly come back to the United States was sophisticated, its cultural fare exposed to the shattering experience from time to time, either on consul¬ stupendous, its restaurants superb, of the incredible deterioration of tation or on home leave. But in both its sidewalk cafes inviting, but when¬ American efficiency, traditionally instances I lived more or less as a ever local friends complained about one of the pillars of the American visitor, shuttling back and forth be¬ endless difficulties with their bu¬ life style. tween USIA and State when on reaucracy, or their banks and I would like to illustrate this consultation, or traveling around the stores, or public and private institu¬ sweeping statement by a number of country when on home leave. For tions, 1 had my complacent smile examples from various fields and I many years, therefore, I had little ready. They might have their Cost¬ am sure that associates in the serv¬ exposure to what I like to call the ings all right but what really counts ice will recognize these experiences “mechanics of life” in the United for the average citizen are the easy as very much resembling some of States. “mechanics of life” and in this field their own. When we left the country in 1958 the United States was unbeatable • We ordered living room furni¬ “things” worked well in the United These convictions grew, of ture from a well known and reputa¬ States. Telephones, electricity, air¬ course, even stronger after our ble store. No earlier delivery date lines, department stores, banks, bro¬ transfer to Latin America. There, than eight weeks was possible. A kerage firms, car manufacturers even sworn enemies of “Norte couple of days prior to the “magic” functioned perfectly and their serv¬ America” would reluctantly ac¬ date my wife checked by phone. ice was courteous and above all— knowledge that though the United Everything fine, the answer was, the efficient. There were gripes—after States was “imperialist” and its store had just talked to the factory all griping is one of the treasured “capitalist” society “inherently and delivery was confirmed. Noth¬ privileges of a free citizen—but evil,” efficiency was our very spe¬ ing happened, however, and after these were concerned with entirely cial attribute and practically another frantic phone call a cheer¬ different matters. People would synonymous with the word “Ameri¬ ful voice from the store advised us complain that Washington was a can.” that the factory had just discovered “hick town”; that there was not Sure enough, in the last few years that they did not have the fabrics enough cultural life; that restaurants all of us abroad read in papers, and thus were unable to deliver at were provincial. But nobody doubt¬ magazines and books about the all. However, the store manager ed that in the more mundane, day- changes in our society, learned added helpfully, we could naturally about them from visitors, witnessed have our deposit back immediately! some on occasional trips home—but • We bought our bedroom furni¬ it is one thing to hear about changes ture from one of the big department Edmund Schechter, FSIO 1, retired a and another to experience them first stores in the area. In this case we few months ago after 28 years with hand. got our precious merchandise quick¬ USIA. His last post was Caracas, Vene¬ When returned to take up resi¬ ly, except that the mattresses were zuela. where he served as Counselor for dence again in Washington, we Public Affairs. Previous assignments in¬ all of a different color. “No prob¬ cluded La Paz, Rome, Washington, Bonn, had to find an apartment, buy a lem,” said the store in reply to a Munich and Berlin. Mr. Schechter is car, furniture and clothing, select a quick inquiry. It will be exchanged presently on the staff of the Presidential school for our son, straighten out immediately. And so it was—four Study Commission on International Ra¬ our neglected problems with banks, times because three times they re¬ dio Broadcasting. brokers, savings associations and in¬ turned with the original wrong col-

PORBIUN SERVICE JOURNAL, February. 1973 13 ors. The “captain” of the delivery particular stock. However, a few lent myths about this new phenom¬ team explained matter of factly that days later the broker’s secretary enon of American inefficiency. the whole procedure resembled a phoned and stated with a voice full The first is heard around town more lottery game and that they might of compassion for my financial in the form of a “whisper- have to go on exchanging indefinite¬ plight that there was a debit on my campaign.” Inefficiency, so the story ly since the wrappings did not indi¬ account and exchange regulations goes, is caused mainly by the sud¬ cate a color. One day, he added are adamant in requiring settlement den influx of blacks into jobs for optimistically, they would hit on the within a prescribed period. I felt which they are “simply not ready.” package with the right color! We duly chastized but took the liberty No question that blacks carry trusted the law of averages and our of pointing out that I had brought their share of rudeness and careless¬ trust was eventually rewarded. the check over personally days ago. ness but it is pure escapism to • We had to change our ad¬ After a few hours the young lady blame these dramatic developments dresses with magazines, banks, sav¬ phoned back and briskly announced on blacks. In most of my examples ings institutions and what have you. that the “misunderstanding” was the culprits are as white as can be. This proved to be an undertaking of “completely” cleared up. The mon¬ There is no black in the broker’s truly major proportions and unex¬ ey had been credited to a wrong office, none in the Virginia savings pected adventures. However, by account but rectification was on its association, none in the New York dogged insistence we made signifi¬ way. “No harm done,” she said. I trust company and I did not see a cant inroads and gradually letters, agreed and expressed my everlast¬ black face in the ticket office of the statements, magazines and checks ing gratitude for the prompt action. transatlantic airline. It was newly started to arrive at our new address • A few weeks ago we started acquired American inefficiency re¬ rather than making the fascinating preparations for a summer trip to gardless of race, creed and color. detour via Latin America. In two Israel and Europe. Indoctrinated by The second myth and this one of cases, unfortunately, our defeat long years of Foreign Service regu¬ old standing and still believed in by seems to be final: Both my wife and lations in regard to travel by Ameri¬ the vast majority of people, includ¬ I hold passbooks with a Virginia can flag airlines I started my in¬ ing Government employees them¬ savings association. Somehow I had quiries with one of the two big US selves, is the superiority of private managed to have the address on my carriers flying the Atlantic. I asked business over Government bureauc¬ passbook properly changed. I also about the 22 to 45 days excursion racy. was in possession of a treasured fare and the authorized number of I submit that at the present stage written promise of imminent change stopovers. “None” was the quick of affairs the average services in my wife’s book. By the end of answer, this year IATA had de¬ provided by Government agencies March I sent both books in for cided to discontinue stopovers dur¬ are more efficient and more courte¬ dividend credit, shrewdly putting ing the peak season for that particu¬ ous than those by the private sector. both in one envelope and marking lar excursion fare category. Even I had in the last few months the correct return address on all for IATA this seemed to me to be numerous dealings with Govern¬ sides of the forms and the envelope. an improbable ruling since few peo¬ ment offices on such items as new Helas, I had not taken into account ple would like to spend their 45 passports, vouchers, retirement, so¬ the zeal and devotion to duty of the days vacation in just one place. cial security and, on the whole, people in the Virginia office. The Since airline schedules and travel things functioned very well. I even next day my passbook was back as arrangements happen to be my hob¬ got a tax refund from the much hoped for, but my wife’s was care¬ by as gardening and carpentry is maligned D.C. tax office a few fully “selected out” and sent to with others, I walked over to an weeks after filing my return, where¬ Caracas! European airline across the street as it took many months and a letter The other “holdout,” a New York and asked about stopovers. The re¬ of complaint to the president of the bank, provide to be even more thor¬ ply was that there was a reduction company to get the refund of my ough. They never answered my let¬ in stopovers all right, but one stop¬ excise tax from one of the big three ters, never changed the address and over was, of course, authorized on American car manufacturers. simply sent an interest check to the return portion of the trip! I went I am fully aware of the vast area Caracas with a deduction of 30 per immediately back to the US airline of potential improvement still open cent. The accompanying note ex¬ telling them what I had just learned, to Government operations; the lack plained that a foreign address pre¬ pointing out that the stopover au¬ of imagination and initiative in sumes that the recipient is a foreign thorization is a decisive factor in some agencies and the mania for national and the tax deduction, planning a costly trip. The lady at clearances in others. But T believe it therefore, is compulsory! the counter became visibly annoyed is fair to state that the trend in • The other day I bought some with the distrustful client but con¬ Government services has been up¬ stocks. Immediately after I received sented to make some more in¬ ward and the trend in private busi¬ the “buy” slip, I hand-carried the quiries. The outcome was a terse ness downward. check to the broker’s office with a and disgusted: “Yes, Sir, one stop¬ There are many reasons for this note indicating the name and num¬ over allowed” and with this she change of traditional roles and they ber of the account. This accom¬ turned to another client. probably would merit a serious plished, I limited my further invest¬ study. Some reasons might lie in the ment activities to the daily examina¬ “glass house” character of Govern¬ tion of the downward move of my LET me try to destroy two preva¬ ment operations and consequently

14 FOREIGN SERVICE JOURNAL, February, 1973 the easy detection by Congress and information media of shortcomings, waste and plain inefficiency; a more Success, betterment, advancement were the great complex and careful hiring system; movers in American life. Work had a per se value beyond and “old-fashioned” rating and pro¬ motion procedures. its immediate financial recompense. Not My almost sacrilegious statement working was, if not a sin, in favor of Government operations applies not only to the rank and file certainly not something to be proud of. but even more so to top manage¬ ment. Government officials in the upper ranks can be wrong a very limited number of times before sooner or later they will have to pay past two years I twice headed a um techniques and popular interest the price for their wrong judgments. USIA inspection team abroad; I and participation in cultural events In the private sector top executives was inspected myself at my last of all sorts have become very much part of the American scene. Thus “rule” in an almost autocratic fash¬ post; and I served on the last USIA ion, their decisions known only to selection panels. In all four in¬ we witness today a fascinating re¬ versal of traditional roles between relatively few people but the price stances prominent “public mem¬ for their errors paid by literally mil¬ bers” were part of the team who Europe and the United States with Europe taking over America’s tech¬ lions of users of their products and started their work with a healthy nical and efficiency prerogatives services. and somewhat condescending scep¬ ticism in regard to the “quality” of and the United States moving rapid¬ People might agree or disagree Government personnel and ended ly to become one of the world’s that the acquisition of the large and as great admirers of the compe¬ great cultural centers. costly 747 jumbo jets was an error tence, hard work and, yes, efficien¬ in judgment at least as far as the cy of the people involved. timing was concerned; or that the WHAT happened to America’s attempt to develop and introduce efficiency? Why its decline? Is it the into the market a picturephone was NOT all homecoming surprises were law of history that after reaching misjudging the public interest; or on the negative side. The big posi¬ the peak there is only one direction that the refusal to believe that there tive change was the strong upsurge open—downward? Every sociologist was a genuine demand for a small of interest in culture. I have no and historian will have his theory and parkable car led to the invasion great sympathy for the quibbling and probably all will contain some of the American market by Euro¬ over fine points in the planning or small truth. The major issues in pean and Japanese manufacturers. construction of the Kennedy Center. American life have their impact But few persons will disagree that The fact is that at long last Wash¬ such as the drug scene, the Vietnam tolerating malfunctioning at lower ington has a concert hall, an opera war, the rightful pressure of minori¬ levels as described in my story, is house and a legitimate theater ty groups for a place in the sun and certainly not an example of “strong worthy of the capital of a big coun¬ the general distrust in the “estab¬ leadership.” And few people will try. Performances are frequently lishment.” And there are other even quarrel with me that it is not the sold out, a good part of the people more specific reasons such as the ultimate in “imaginative” manage¬ who attend are young, prices, computer and as a consequence an ment to meet all corporate difficul¬ though not cheap, compare favor¬ ever diminishing personal involve¬ ties with the stereotyped and sim¬ ably with Europe though the income ment; the ever more specialized as¬ plistic remedy of increase in prices, level there is still considerably be¬ sembly line with its depersonalizing rates and fares or with demands for low ours. effects and the affluent society and higher custom duties to keep out In comparing the two phenom¬ the fading memories of the depres¬ foreign competition. ena, the decline of efficiency, the sion. I shared with most other Ameri¬ quality which was most characteris¬ As a consequence of all these and other causes we are now witnessing cans the almost mythical awe of and tically American, and the upsurge admiration for the top executives in and respectability of culture which the erosion of the American Work big business. Their know how, was the least typically American, a Ethic. This work ethic used to con¬ vert—consciously or unconsciously efficiency, planning capacity, fore¬ number of interesting observations —every American of whatever reli¬ sight, seemed in popular imagina¬ emerge. gious or ethnic origin. Success, bet¬ tion to approach virtual infallibility. These days good trains, efficient This nice American dream is not terment, advancement were the telephone service, practical and well great movers in American life. the only one lost in the shuffle of constructed small cars, modern in¬ Work had a per se value beyond its the last decade. dustrial plants, renovated inner cit¬ immediate financial recompense. In this context it is interesting to ies, good maintenance are to be Not working was, if not a sin, cer¬ note the impressions gained by found in Europe, at least Western tainly not something to be proud of. prominent persons from the private Europe, and Japan. On the other sector when confronted for the first hand, wonderful orchestras, new ap¬ I always felt that the difference time with the so-called inefficient proaches in theater and opera, ex¬ between this legendary American Government machinery. Over the periments in ballet, modern muse¬ (Continued on page 24)

FOREIGN SERVICE JOURNAL. February. 1973 15 make the Foreign Service fun. You will remember these AN OPEN LETTER TO trips after all diplomatic receptions are mercifully forgot¬ ten. NEW APPOINTEES TO Visa work has always been regarded with a certain amount of dislike by Foreign Service officers. The fact is that most work, whether it is reporting on essentially the THE CONSULAR CONE same political scene for months at a time or rehashing CHARLES S. KENNEDY, JR. economic statistics, can be dull and repetitive. However, there are two things that make visa work stand out. First, there are decisions to be made, decisions which have a real effect on real people. In fact, you may find that your | WOULD like both to congratulate you and warn you as you enter the ranks of professional consular officers. I judgment is never again so important as it is in your extend my congratulations because you are going to have decisions on visa cases. Secondly, visa interviews offer more interesting work, more responsibility and more fun you a unique opportunity to talk to a large number of than most of your colleagues in the other specialties, and people, and on the non-immigrant side, to meet a broad I give you warning that you will have far less of an cross-section of the country to which you are assigned. opportunity to rise high in the Foreign Service than your Protection and welfare work is becoming the guts of fellow officers. consular business as our visa and citizenship processes Let’s look at the positive side first. You are going to be become more liberalized. The number of Americans dealing with people on an individual, face-to-face basis abroad is increasing each year. Our fellow citizens, God for your entire career. Unlike political officers you will bless them, bring trouble by the bushelful with them. not have to consider abstractions such as “the German Hospitals abroad are full of our people who stumbled people,” “Africans,” “the population of the southern over unfamiliar cobblestones or who climbed the Acropo¬ provinces” and unlike economic officers, you will not see lis at noon in August at the age of 75. Because of people as “the consumers,” “the workers,” “the upper language problems, or understandable fright, or confu¬ middle class” and the like; you will be eyeball-to-eyeball sion over foreign ways, they need your help. A test of with honest-to-God peasants who smell of garlic, tough real diplomacy is not how well you can negotiate a cops who don’t like foreign officials messing in their treaty, but how well you can help an absolutely impos¬ cases, and Americans who have gotten themselves into sible, demanding little old lady in a dispute with a local the damnedest messes and expect you to get them out. doctor on whom you will have to rely long after the little Not for you are the pretty boys of the Foreign Ministries old lady has left. who are interchangeable stock items that vary little from Protection and welfare work also means prison visiting. one country to the next, including, I might add, your Before the Now Generation hit us, we could count on own. You will soon learn that if you want to get having at the most one or two Americans serving a few something done you have to bypass the Ministries and go months in jail for negligence resulting in auto accidents. to the policeman on the beat, the doctor, or the county Perhaps in every tenth country there would be a resident clerk to get results. American murderer. Hash and pot have changed all this. You will find that consuls have a broader mandate Despite our own gradual relaxation on marijuana enforce¬ than do diplomatic officers. Diplomats are accredited to a ment, governments abroad are not playing the game country’s Foreign Ministry, and while they can, in some and are tossing our kids in jail at an ever increasing rate. countries, develop contacts with other parts of the gov¬ In spite of a tremendous effort on the part of our ernment of the country to which they are accredited, they Government to warn our young travelers that they can have to be careful not to stray too far. Consuls, on the get in serious trouble with drugs of any sort abroad, the other hand, usually have a treaty or convention which young set just won’t believe it—perhaps it is a built-in allows them to approach anyone in the host country who immunity to any type of advice coming at them, whether can help them with the legitimate concerns of Ameri¬ from their parents, soap companies or the Department of cans. While stationed in Yugoslavia, I more than once State. Anyway, you are going to spend a good bit of your found myself trying to convince the registrars of small time in jails and prisons trying to help Americans. You Bosnian or Montenegrin villages that the consular con¬ can do quite a bit of good by prodding the lawyers, vention of 1881 between Serbia and the United States seeing the public prosecutors, persuading the wardens of allowed me to check their records for Social Security the prison to treat our people gently, and helping the claims. Americans themselves to realize the situation they are in These Social Security, VA or other federal benefit and persuading them to act accordingly. investigations, by the way, are a wonderful way to get The real reward in consular specialization is that very you out of theoffice and into the country since most early in the game you stand a good chance of being in immigrants come to the United States from out of the charge of your own consular section. It may be only you, way villages and you have to go there for records. It is an American secretary and a local clerk, as was my hard work but batting around the backwoods in a jeep, situation in Dhahran, but it is yours. Unless you foul up, arguing with local officials and sleeping in fourth rate you will find that the rest of the post will be very happy hotels away from any other Americans for days at a time to let you take care of your problems. The responsibili¬ Charles Kennedy entered the Foreign Service in 1955 and has ties are yours and the decisions are yours—these are the been Consul General in Athens since 1970. Prior to that he was rarest gems to be found in the Foreign Service. You also Consul General in Saigon, Consul in Belgrade and Vice Consul will see some immediate results of your work: the visa in Dhahran and Frankfurt. He has also served in PER and 1NR. applicant does go to the United States; the woman

16 FOREIGN SERVICE JOURNAL, February. 1973 recovers from her accident because of your arrangements Consulates General, logic would say that the heads of for medical treatment. these posts should be heavily weighted towards econom¬ Now let us take a look at the dark side of the moon. ic/commercial and consular officers. With our desire to Our present personnel policy, which probably will be expand trade, we should have specialists out where the with us for some time, guarantees that if you are a foreign consumers are in order to persuade them to buy normal officer you will have 20 years in the Foreign American. Millions of Americans are traveling overseas Service from the time you become a FSO-5. Therefore and we are required to protect them, and logic would say you certainly have a very good chance, as do officers in that specialists in the field of protection should be in the other specializations, of reaching FSO-3. The ques¬ charge of posts where there are many tourists or resident tion is then, what are the opportunities for consular Americans. Now using my coning analysis system, let’s officers to rise to the FSO-2, FSO-1 ranks? (I am look at our 68 posts. Here is what I found: excluding Career Minister and Career Ambassador as Political 40 being too exalted for consideration.) The answer, I am Economic 14 sorry to say, is that the chances are slim. The April Administrative 6 Department of State NEWSLETTER Supplement gave its Consular 6 analysis of the last promotion list. For consular officers the message was loud and clear—abandon hope all ye Unfilled (as of the publication who enter here (if you want to rise to the top of the tree). of the FS List) 2 Only one consular officer went to FSO-2 (out of 57), Apologists for the system may explain that these and only one other went to FSO-1 (out of 18). The consular posts are not headed by consular, economic, 1971 list was as grim. I don’t have the figures at hand, political or administrative specialists but by the highly but I believe that there was only one professional consular selected members of the executive cone. This does not officer going from 0-3 to 0-2, and none from 0-2 to 0-1. hold water. Consular and Administrative officers are Unless there is a recurrence of the Black Death, striking supervising large sections for most of their careers while only senior consular officers, there is little likelihood that a large number of economic and political officers are the promotion list will change much in future years. lucky if they have half a secretary under them until they Why is the prospect so bleak for consular officers? One reach the 0-2, 0-1 levels. This is not to disparage their reason is the simple fact that the professional consular work because it is mainly analysis and representing officers number, I would guess, between 10 and 15 American interests to the host government. These just percent of the officer corps, Remember that a good don’t happen to be executive skills. Another argument is number of the lower ranked consular positions are filled that political activities in the provinces are so important with junior rotational officers marking time before they that we must have skilled reporters on the spot. This may turn into political or economic specialists. Other positions be true in a few countries, but by and large, with modern are filled by language officers or area specialists. For communications and the growth of centralized power, the example, I doubt if there is more than a handful of action is in the capital. For example, we have four professional consular officers on the whole continent of consulates general in France. The last significant political Africa and certainly not one over the rank of 0-4. movement outside Paris was during the time of the Another reason for the dismal prospect is that we are Royalist revolt in the Vendee in 1793. now tying promotions to rank openings in each cone. Much of the consular problem goes back to the early There has been a gradual lowering in the rank require¬ division between consuls and diplomats. Consuls were ments for consular positions throughout the world. In the often businessmen involved in “trade,” while diplomats lower ranks this is fine: it means that you can be the were aristocrats personally representing their kings. The senior consular specialist in a country as an FSO-5 (as I division carried over into our republican form of govern¬ was in Yugoslavia, for example). When you rise in rank, ment. Traditionally diplomats were drawn from the however, you will find the staffing patterns are working upper classes and had to have private means to support against you. themselves in the style they were used to. Consuls, on the Normally you would think that the 68 Consulates other hand, could actually make money at lively com¬ General around the world would be fair game for mercial ports such as Liverpool. They got a cut of all consular officers. Don’t kid yourself! Let me introduce charges for documentation of ships and cargoes going to you to your own personnel policy analysis kit. Take the the United States. Nathaniel Hawthorne and Bret Harte current Foreign Service List (October 1972) and the were given consular posts to help them over their finan¬ stud book (the Biographic Register); list all the consuls cial embarrassments. This system no longer prevails, and general heading our consulates general; then look them while the snob distinction still lingers, unfortunately there up in the stud book. While there are rather fancy is no monetary compensation. In the British colonial formulas for putting officers in their cones, you can world it was said that Kenya was for officers and probably do the job as effectively by a two-minute Rhodesia was for “other ranks.” Consular work in our examination of an officer’s bio data. One of our Supreme service has been traditionally for “other ranks.” We are Court Judges said that while he could not define pornog¬ not alone in this distinction. Call up the nearest British raphy, he knew it when he saw it. The same applies to Embassy sometime and talk to the consul: then call a cones. You will know a professional consular officer political officer. Listen to the difference in accent. when you see his assignments. As a rule of thumb, he Back in 1968 there was a study of the consular cone. should have had at least one consular assignment as a At that time slightly less than one half of the officers middle grade officer since many junior officers are vice were college graduates. Recruitment had been mainly consuls before moving on. Now going back to the 68 (Continued on page 27)

FOREIGN SERVICE JOURNAL, February, 1973 17 This memoir, written in 1968, describes a diplomat’s tour of duty with the taps-to-reveille group—and how he enjoyed it SOWING FOR STATE AT WEST POINT AHH m RONALD D. PALMER

THE average junior FSO goes along in his career Babylon-on-the-Severn) because both these schools con¬ without a thought of being uprooted and thrust into a tinue to cultivate the Spartan spirit. Early to bed and classroom to teach, armed with nothing other than his early to rise; lots of good, clean work; a healthy mind in native wit and a startlingly rusty and outdated under¬ a healthy body, all of that! graduate and perhaps graduate education. Well, take Life here rotates about the cadets and their schedule. heed, there are three such positions for which officers The cannon that goes off at 5:50 A.M. to awaken the are considered when they near the lofty heights of class Corps also awakens the Faculty. Cadets form up for four. These teaching slots are at the Military, Naval and breakfast at 6:15 A.M. when they march into their Air Academies. The jobs date from 1965, in the case of mess hall to the accomplishment of drums and bugles for the Military Academy, 1964 for the Naval Academy the first of the meals that reportedly provide some of and 1963 in the case of the Air Academy. them up to 4000 calories a day. After breakfast the Since little has been written to date to inform the cadets are free until 7:45, when the academic day service on the rewards and pitfalls of these jobs, I will begins. seek to do so for the position I currently hold at West When most First Classmen (or seniors) arrive in my Point. classroom, it will be on a day when they are attending First, to answer the question of how one is chosen for classes in military history, literature and ethics and such assignments, my answer is that I do not know. military instruction. On the next day they will attend a However, it appears to have something to do with being course in Civil Engineering, Ordnance Engineering, and between 30 and 40, being an FSO-4, or nearly so, and at least one elective subject. Everyone takes the same having had a sufficiently interesting and varied career to courses except for a limited elective program and more have a diverting, if not laughable, file. Doubtless one advanced core curriculum courses for the more apt and useful asset in such a file will be indications of the industrious. Twice a week, additionally, cadets not on capability to survive in small, isolated posts. varsity squads are required to participate in intramural In my own case, Personnel must have observed that sports after classes end at 3:15 P.M. In the fall and since I was on loan to USIA and a cultural attache in spring there are two full-dress parades a week. In the Copenhagen at the time of my assignment to West winter, weather permitting, there is either a parade or a Point, and that I had endured and succeeded in not full-dress inspection in ranks on Saturdays. Moreover, being laughed out of Denmark, would indicate that I all First Classmen at some point in the year will have apparently had enough brass to survive in a classroom. chain-of-command responsibility for running the Corps Second, if you are assigned to a Service Academy and of Cadets. are presently overseas and addicted to la vie diplomatique, The First Classmen earn some 20 academic credit get your fill of it before you go to Colorado Springs hours a semester in their final year; by the time they or West Point (Annapolis is a different order of reality graduate they will have accumulated nearly 160 credits altogether and my remarks to follow will not apply to overall. They end their four year program with the Ronald Palmer comes from a coal mining and blacksmithing equivalent of an engineering science major, with a family in western Pennsylvania. He was educated at Howard heavy lacing of social sciences and humanities (some 40 University, the University of Bordeaux and the School of Ad¬ vanced International Studies of Johns Hopkins University. Since percent of the required curriculum). The added military entering the Foreign Service in 1957 he has spent about half his training and physical training further reduce the oppor¬ time in the Department (INR, S/S-O, CU and EA) and half tunity for idle boys to play at the games of the Devil. abroad in Indonesia, Malaysia and Denmark. Upon completing The point of this digression is that the FSO at West his '67-68 tour at West Point he was awarded the Department of the Army Certificate of Appreciation for Patriotic Civilian Point teaches core curriculum courses six days a week Service. His present assignment is American Embassy, Manila. from 7:45 to 10:25 A.M. Therefore he receives stu-

18 FOREIGN SERVICE JOURNAL, February, 1973 dents with attitudes toward the social sciences ranging honor of the Corps of Cadets. Occasionally, I look back from the enthusiastic through the indifferent to the wistfully to the quieter diversions of Copenhagen. antagonistic. To succeed in creating interest and impart¬ On the more traditionally academic side of things, I ing information at 7:45 A.M. to busy young men, some would offer a third injunction: be prepared to be of whom would prefer to be anywhere other than in a intellectually humble while you catch up on everything classroom, is a worthy challenge. that has happened since you went to school. At West Being an early riser by preference and, according to Point the FSO teaches in the Department of Social my wife, a scandalously cheerful morning person, the Sciences which is loaded with former Rhodes Scholars, cadets and I have worked out an implicit bargain: I will former cadet First Captains and young officers from not be too sunny and boosterish in the morning, if they West Point and other schools who have distinguished study. If they do not study I make up bad puns and themselves militarily and academically. They generally otherwise harass them with good cheer. They generally teach for three years and then resume their military prefer to have studied. careers. Afternoon working hours at the office may extend to Colonel George A. Lincoln, who headed General 4:30 or later; there are no specified “office hours.” In Marshall’s War Plans Staff in World War II, and who the afternoon one is supposed to study, prepare exams, gave up general’s stars to come back to the Academy in counsel cadets, and be available for administrative 1947 to become Department head and permanent pro¬ duties. The gregariousness of the working situation is fessor, believes in recruiting military officers of unusual such, however, that in my case—as the only civilian promise to work for him. General Charles Bonesteel, present—all too much of my research and lesson prepa¬ 8th Army Commander; General Andrew Goodpaster, ration seems to take place between dinner and the Deputy Commander, USMACV; the then Colonel Dean “Tonight Show.” Rusk and many others worked on that wartime staff. There is a Department of Army Regulation calling Alumni of the Lincoln era at the Department of for semi-annual physical proficiency tests. This, com¬ Social Sciences seem to be generally highly regarded as bined with the fact that almost half of my Department’s both command and staff officers and are often found members have successfully survived Ranger training, dealing with the tougher military/political/economic tends to make my colleagues take physical conditioning problems in their later assignments. Quite a few have seriously. Social pressure to go to the huge and fantasti¬ gone on to distinguished academic careers also. cally equipped Cadet Gymnasium is low-keyed but Colonel Lincoln’s personnel theory is to find highly persistent. One’s colleagues tend to indulge in PT from motivated and well-rounded officers, put them in class¬ 10:30 A.M. to noon. My predecessor at West Point, Jim rooms and then let them alone. However, since he Rosenthal, did successfully lead a movement with the enjoys visiting and participating in classes and will brave title of “Athletes Anonymous,” the purpose of sometimes bring guests, one is never quite sure when he which was to stay as far away from the Gymnasium as will turn up. Therefore his faculty members tend to possible. But I found I was made of less indomitable keep a finely honed edge. Nevertheless, these occasional material and succumbed rather quickly to my col¬ visitations are invariably pleasant and relaxed. leagues’ jibes about the cases of Tuborg beer I was In sum, the FSO will operate in a highly decentral¬ ized and relaxed atmosphere and will have as colleagues men at the rank of major who tend to be 25 to 35 years old, most of whom will have had command positions The painful thing about being an FSO at and generally combat experience in Vietnam, all of West Point is that one is considered whom will have recently studied at some of the best to be the expert on all things relating to diplomacy graduate schools in the United States. Necessarily, many of these young men are clearly destined to have out¬ and the daily events standing military careers. taking place in the world. Obviously, the best advantage an FSO has is his experience, but a wise man will quickly begin reading the standard works in the area of political science and international relations that have been produced in stag¬ carrying in a spare tire around my middle when I gering number since he went to graduate school and arrived here from Denmark. with which his younger military colleagues seem to be To my consternation I now find myself an occasional all too casually familiar. A short list of such authors starting member of my Department’s basketball team in would include Seymour Lipset, Gabriel Almond, Sam¬ the sado-masochistic “Officers Noontime Basketball uel Huntington, David Easton, Zbigniew Brzezinski, League,” the local version of group therapy. Such Edwin Reischauer, Henry Kissinger, Herman Kahn, participation got me eight stitches over my right eye last Lucian Pye, Raymond Aron, Adam Ulam, Samuel spring, but it was worth it when I walked into class the Beer, Sidney Verba, Talcott Parsons, Max Weber and next morning and my cadets gasped in awe and one of James S. Coleman. This list excludes the obvious bibliog¬ them said, “Gee, sir, that’s going to make a cool scar.” raphy which would include the standard works on My colleagues and I have become so proficient and Vietnam, and those of Hans Morgenthau, George Ken- arrogant that we recently defeated a good cadet in¬ nan, etc. tramural team by 20 points. Unfortunately, we have Fourth, the painful thing about being an FSO at a now been challenged to a match by the Brigade In¬ facility such as West Point is that one is considered to be tramural Champions who have sworn to avenge the (Continued on page 25)

FOREIGN SERVICE JOURNAL, February, 1973 19 prevail in the tooth-and-claw Wash¬ ideas on the limitations of dem¬ P3J BOOKSHELF ington jungle. ocratic societies in conducting war I mention this little incident be¬ and diplomacy. Finally, he has writ¬ cause it illuminates, in a small and ten memoirs which in brilliance of George F. Kennan personal way, the dilemma confront¬ style and content must assume a ing today’s State Department, of position in the front ranks of Ameri¬ Redivivus which it might be said, as was said can autobiography. No mean of post-war Britain, that it has lost achievements, these, and hardly the MICHAEL DAVIS an empire and has not yet found a stuff of a failed career. role. It illuminates as well the Like Henry Adams, Kennan dis¬ MEMOIRS, 1950-1963, by George F. Kennan. Atlantic-Little, Brown, $12.50. dilemma in evaluating the public plays a peculiar temperament which career of George F. Kennan, the influenced his views of men and later years of which are meditated events and his assessment of his W HEN I entered the Foreign Serv¬ upon in these memoirs—a career own work. At least three predilec¬ ice, a little more than a year ago, I which Kennan himself called a fail¬ tions are prominent in this tem¬ thought my background as a histori¬ ure. perament: conservatism, profession¬ an and professor made me unusual¬ For many like myself, with heart alism, and intellectualism. ly qualified for the diplomatic serv¬ divided between cloister and Kennan’s conservatism reveals it¬ ice. My intellectual temper and chancery, Kennan is a kind of hero self in countless ways in these academic discipline, I reasoned, a man who made important con¬ memoirs: his carefully measured would help me become the very tributions in both worlds. That he prose, his preference for hierarchy model of a modern diplomatist. To considers his diplomatic career a and authority, his respect for his¬ make a gift of my talents to the failure is disturbing, and I find upon tory, his affection for the rural Mid¬ government was, I thought not an inquiry that a number of his For¬ dle West of his youth (“I view it. . . ignoble thing. eign Service colleagues will not dis¬ as the heart of the moral strength My smugness lasted for about agree with him. “George was always of the United States”), his admira¬ three days after my arrival in Wash¬ a better scholar than a diplomat,” a tion for the values and statecraft of ington. The very day my junior retired ambassador told me. Critics the Founding Fathers. His diary of officers’ class first assembled at the of Kennan say that the scholar, travel in the United States in 1951 Foreign Service Institute, I opened however brilliant, was intolerant of expresses sorrow for a country the pages of the Washington POST the domestic political imperatives growing overpopulated, industrial¬ to read that people like me were which weigh upon a President and ized, and urbanized, an America- precisely what was wrong with the was indifferent to the bureacuratic becoming-California. This despair Foreign Service and in large part competition which bends the twig of influenced his thoughts upon diplo¬ responsible for the decline of the a growing foreign policy. Kennan macy: “What use was there, I had State Department in the councils of admits as much. He confesses “a to ask, in attempting to protect in its foreign policy making. This opinion total disregard for the American do¬ relations to others a society that was was cast in the form of a long mestic-political process.” Diploma¬ clearly failing in its relation to it¬ review of the late John Franklin cy, he believes, is an art above the self?” Campbell’s book, “The Foreign main chance, above politics. Closely allied to Kennan’s conserv¬ Affairs Fudge Factory.” The re¬ Kennan practiced the art atism is his sense of professional¬ viewer went on to say that Mr. throughout a long and varied career ism (which some might construe as Campbell’s proposed reforms would (the first 25 years of which were “elitism”). He has never doubted not suffice to rescue the State De¬ recounted in an earlier volume of the basic good sense and good in¬ partment from limbo; what was memoirs). He was 28 years a For¬ tentions of the American people. needed was a different type of For¬ eign Service officer, Ambassador to But diplomacy is too subtle and eign Service officer. The academic Moscow and Belgrade, head of the exacting an art to be left to the elitist, the intellectual, the writer of Department’s Policy Planning Staff, people’s representatives. Art should brilliant memoranda content to cast and articulator of the “contain¬ be practiced by artists. “Our func¬ his pearls of wisdom and let them ment” policy, which, though some¬ tion, the function of career diploma¬ lie—he would no longer do. What times twisted into Procrustean cy,” Kennan writes, “was, as it ap¬ the department needed were efficient shapes which dismayed Kennan, re¬ peared to me, a pure one: a matter managers and bureaucratic pol¬ mained the basis of American for¬ of duty, dedication, reason and inte¬ iticians. The State Department must eign policy for over twenty years. grity.” The practice of diplomacy realize, the reviewer went on, that Along the way, and continuing after and the rendering of advice to the it is no longer an elite with an his retirement from public life (a President on foreign affairs is the exclusive province in foreign affairs, most active retirement spent largely proper province of men of such but that it is one bureaucracy at Princeton’s prestigious Institute of professional commitment, and not among many competing for influ¬ Advanced Study), he reached hun¬ of congressmen and bureaucrats, ence in the making of foreign poli¬ dreds of thousands of American whose interests are parochial and cy. The lamb of Foggy Bottom through his lectures and writings; who often are ignorant of foreign could not lie down with the lion of penned several books, at least two peoples; of generals, whose perspec¬ the Pentagon and expect to survive. of which remain standard reading tive is military, not diplomatic; or of Skilled bureaucratic infighters were on university campuses; and ad¬ silent men in the White House con¬ needed if the Department were to vanced a number of interesting cerned solely with reelecting the

20 FOREIGN- SERVICE JOURNAL, February, 1973 President. Kennan does not say it, of bread. The emphasis is upon the non grata in Eisenhower’s Washing¬ but if Presidents had listened less to concrete, the immediate, the thing ton, as well, but he hung on until these voices and more to the profes¬ done. Dulles retired him in 1953. The sional diplomatists, perhaps our There is, then, a difference in brief Belgrade ambassadorship un¬ course in Vietnam would have been function and in temper between the der Kennedy was an addendum to less tragic and destructive. intellectual and the politician. Per¬ his career in diplomacy. An offended sense of profession¬ haps this is why intellectuals usually There remains the summing up. alism contributed to Kennan’s do poorly in politics; the few who In no sense can Kennan’s career, disenchantment with federal serv¬ have been successful politicians gen¬ taken as a whole, be called a fail¬ ice. He was dismayed and demor¬ erally cease functioning as intellec¬ ure. The public and private phases alized when the State Department tuals while in public life. In retire¬ of his career combined to produce failed to support his colleagues John ment, Kennan was approached by some brilliant thinking and writing Paton Davies and John Service, his neighbors to run for Congress. about American diplomacy. The in¬ slanderously accused by Joseph He considered the prospects, then tellectual, scholarly temper made McCarthy. Somewhat earlier he had turned the offer down. To accept the Foreign Service officer an ex¬ had the occasion to reflect upon the political contributions, he believed, ceptionally keen observer and an¬ limitations of the professional diplo¬ would compromise his independ¬ alyst; the professional diplomatic mat in influencing the foreign policy ence. Independence of judgment is experience was the leaven to the of his government. As Ambassador essential to an intellectual; it is in¬ intellectual accomplishments of the to Moscow, Kennan had submitted comprehensible to a politician. last two decades. a perceptive memorandum on the Perhaps his propensity to intellec¬ And what of the State Depart¬ Soviet Union’s response to NATO tualism explains in part why Ken¬ ment? There are those who claim and the rearming of West Germany nan was not a very successful bu¬ there is no place in the modern thoughts which prefigured by sever¬ reaucratic politician (I am not Foreign Service for men of Ken¬ al years the arguments of the “revi¬ speaking of his skills as a diplomatic nan’s gifts and temper. Let them hie sionist” cold war historians. The negotiator, where compromise is a themselves to the academy, or the memorandum, apparently, was necessary virtue). From his fertile foundations or think tanks, but not without effect in Washington, and mind has sprung many clever ideas to the diplomatic service. But I can¬ Kennan concluded that even am¬ on the nature of American and So¬ not believe this is the wisest course. bassadors counted less than, say, viet societies, the future of commu¬ If the State Department wishes to labor leaders or congressmen in nism, and the inflated role of mili¬ reassert itself as the primary agency charting the course of American tary and political considerations in for foreign affairs, it must do more foreign policy. “The realization of our diplomacy. For Kennan, the in¬ than improve its method of manage¬ this fact,” he writes, “diminished my tellectual advocacy of these ideas ment. It must proffer to the pres¬ enthusiasm, in the ensuing months, consisted in brilliantly stating them. ident the best possible advice on for remaining in a profession where He submitted them to history rather foreign policy. To do so, it must passivity, inscrutability and tactical than to public or bureaucratic opin¬ encourage and reward critical and ingenuity were valued so highly, ion. He reveals his disagreements innovative thinking about that poli¬ and serious analytical effort—so with American decisions to invade cy; it must provide a medium where little.” North Korea, support Chiang Kai- experience in diplomacy can enrich Kennan’s disposition for, and ac¬ shek on Taiwan, station forces in analysis. Most of all, it cannot complishments in, serious analysis Japan, rearm West Germany, and afford to send its best minds into suggests his intellectualism. Like depend upon a policy of massive exile. ■ “conservative” the word “intellectu¬ nuclear retaliation under Eisenhow¬ al” is the victim of many attempts at er. He declared his objections to The Vietnam War Trial definition, quite a few of them pej¬ these policies at the time of their THE BEST AND THE BRIGHTEST, by orative. But central to intellectual¬ executions, but apparently, he did David Halberstam. Random House, ism is a belief in the integrity and not lobby actively against them. $10.00. efficacy of ideas. Ideas are abstract Perhaps the former is all a dissent¬ instruments the mind uses to com¬ ing intellectual can do, save to F OR the makers of American na¬ prehend reality. Ideas are not sub¬ resign dramatically. tional policy in the early 1960s, ject to compromise to win public But Kennan did not resign. He those who were the “best and the approval but only to being demon¬ accepted the Moscow ambassador¬ brightest,” Vietnam was a historical strated useful or not useful in fur¬ ship in 1951. Without effective in¬ trap. Its jaws wounded their country thering understanding. Politicians, structions and without support from and shredded their own personal whether in Congress, city hall, or the effete, lame-duck Truman ad¬ reputations. Following up his earlier the federal bureaucracy, are not ministration, harassed and isolated pathological studies of Vietnam, Da¬ concerned with abstractions but by a hostile Stalin regime, Kennan’s vid Halberstam in this long, smooth¬ with concrete quantities such as ambassadorship was an unhappy ly written, and fascinating book ex¬ money, votes, and services. Unlike climax to his professional career. A amines the men who made Vietnam ideas, these quantities are subject to chance remark at the Berlin airport policy and the process that took us compromise; they can be manipu¬ about Stalin’s repressions (a slip for where we went. lated, multiplied, divided. If the which Kennan makes no excuses) Halberstam argues that the Ken¬ whole loaf is not available, the pol¬ led to his recall at the request of the nedy men were too proud, too anx¬ itician takes a half, or even the slice Soviet government. He was persona ious to appear tough, too reluctant

FOREIGN SERVICE JOURNAL, February. 1973 21 to examine the basic propriety and Love Those Wheels The Cultural Revolution worth of our policies. Military op¬ THE GREAT ROAD RACES, 1894-1914, MAO AND CHINA: From Revolution timism and can-do spirit polluted by Henry Serrano Villard. Arthur to Revolution, by Stanley Karnow. their judgments. They scorned the Baker Limited, London, £2.00. Viking Press, $15.00. doubters—Stevenson, Bowles, Ball ■—even as they increasingly shared H ARRY VILLARD’S love affair with the doubts in private. Halberstam the automobile continues to flourish. T HIS is an important book by a person most qualified to write it. rides particularly hard on McNa¬ For years he provided JOURNAL mara, General Taylor, and Mc- readers annually with a sort of high For some eleven years Stanley Kar¬ now, one of our most esteemed George Bundy, although few escape class Consumers Report on the new China-watching journalists, followed unscathed. President Johnson, for models. Now he has gone back to the developments on the Mainland instance, is portrayed as tortured the beginnings to give us a graceful, from that active pimple on China’s and confused, and a most difficult elegant and informative period piece underbelly—Hong Kong. In a sense, man to work for. on road races from the 1894 Paris this book is a culmination of his ex¬ Vietnam will long influence Amer¬ Rouen (winner’s average speed, 11.6 perience there. ican policy, and much of what Hal¬ mph) to the 1916 Vanderbilt Cup berstam discusses concerns basic (winner’s average speed, 86.9 mph). Mr. Karnow begins with back¬ problems of our profession. For in¬ It will surprise many Americans to ground material on Mao, his rise to power and his philosophy, as well stance, how does the State Depart¬ learn that the US was way behind as with the policies, problems and ment win arguments with the De¬ Europe in the development of the personalities that dominated the first fense Department and the military automobile; of the 300 cars in the services? Should government report¬ fifteen years of the regime. Since, US in 1895 only four had been made however, he was in Hong Kong ing be trusted, or in fact is the New in this country and it was not until York TIMES more reliable? Should from “The Opening Salvos” (Chap¬ 1908 that an American car won a ter 8) of the Great Proletarian Cul¬ reporting be shaped to support policy major race. The author has written or argue a case? What loyalty is tural Revolution through most of a delightfully readable book with a “The Road to Recovery” (Chapter owed superiors with whom you dis¬ high energy nostalgia generator in¬ agree? What are the talents and 20), Mr. Karnow’s book is essen¬ cluded as original equipment. But tially a detailed treatment of the background, character and ambitions he has also managed to make it a of your superiors, and their effect “when,” “who,” “how,” and some¬ real Who’s Who of the pioneers and times the “why” of that self-induced on his decisions and recommenda¬ a practical handbook of technical tions? What real choices are there national trauma. development for the layman. How¬ as the day’s decisions are made, de¬ Pieced together from hundreds of ever, it would be more useful in this cisions that form small waves in a sources, interviews and personal respect if the index were more com¬ cumulative flow of policy? communications (almost 50 pages plete. This is a book which should One of Halberstam’s major criti¬ of footnotes), Karnow’s version of be in the library of every car buff. cisms of the Vietnam decision mak¬ the Cultural Revolution is a com¬ —J. K. PENFIELD ers is that they never did examine fortable combination of fact and the other basic alternative, that of Feet of Clay speculation. Although there are al¬ abandoning Vietnam. They chose in¬ most as many interpretations of the A SENSE OF THE SENATE, by Seymour stead a gradualist course which in F. Freidin. Dodd. Mead & Company, whys and wherefores of this phase the end sucked the US all the way $8.95. in China’s history as there are in¬ into war. The principals may feel, terpreters, the author shuns the however, that in their own minds THE author, a syndicated colum¬ “probably’s” and “possibly’s” and they had thoroughly considered this nist, decided to study the Senate writes his story not only as if he basic alternative, and had rejected it from a Senator’s office. His host was were in China during that period, because the costs in domestic criti¬ the late Senator Dodd—the only but as if he were actually in the cism and international instability Senator to be officially chastised by presence of the key participants. If seemed too great. All too much his fellows in the last decade. With this were written by a less qualified should have been done otherwise, the piety of a good guest, Freidin man, the approach might well be but perhaps the major reason Viet¬ seldom mentions Dodd in his study, questioned, but although it is easy nam was such a trap was that all concentrating on the failings of oth¬ to disagree with some of his details, the basic alternatives were lousy ers. His concluding chapter heading, one feels himself to be in good hands ones. “The Senate—Nearly Two Hundred with Mr. Karnow. His writing is For now Halberstam’s incisive Feet of Clay,” indicates his mood. persuasive, he succeeds in being study of the decision making on Few of those mentioned come out quite objective despite his positive Vietnam is clearly the mainstream unscathed; Senator Fulbright being a approach, and one is willing to ac¬ of historical judgment. The princi¬ main target. The book lacks organi¬ cept some of the author’s interpreta¬ pals deserve their rebuttals, but most zation, and reads like a jumble of tions more readily than some of the of them maintain a hurt silence. Per¬ comments transcribed from 3x5 other writings on the subject. haps someday, however, even on cards. It has no index to its innuen¬ Mr. Karnow believes that al¬ Vietnam a revisionist school of inter¬ does. In sum, a disappointing treat¬ though Mao may not be very real¬ pretation will emerge. ment of an important subject. istic in his visionary goals and in his —JOHN SYLVESTER JR. —DAVID R. RAYNOLDS efforts to change human nature, the

22 FOREIGN SERVICE JOURNAL, February, 1973 Cultural Revolution did manage to over into the “rice bowl” of south¬ tage and pride in China’s status as a lead the Chinese people “to the re¬ east Asia? world power after a century of hu¬ discovery of their grandeur by in¬ In his authoritative study of miliation. culcating them with a spirit of na¬ China’s population, Dr. Orleans Apprehensions about an expan¬ tional identity, a sense of purpose, points out that most southeast Asian sionist China should not rest on her countries have been rice-surplus and a dedication to self-reliance.” population problems. China does areas but that, even before the ex¬ Whether the end was worth the seek to expand her influence and pansion of the Indochina war, the means depends on the outlook of ideology among the new states of the individual observer. area’s total rice exports amounted to but two percent of China’s grain Asia, Africa, and Latin America. Despite ourselves, some of us output. Hence, the area is no “rice Among them, she may well carry on tend to write for our colleagues even bowl” to feed China’s hungry mil¬ disruptive, revolutionary activities when we try to reach a more gen¬ lions. Also, any forceful occupation when conditions seem auspicious. eral audience. This probably hap¬ of the area would require sizeable China’s militancy, however, may pened to Mr. Karnow. The detail in numbers of occupation troops and spring from any number of national the events and the innumerable would disrupt food production. objectives: desire to spread inter¬ names may be just a little too much China realizes that there is no im¬ national communism, to restore for the uninitiated. The insights mediate solution in adjacent coun¬ China’s past grandeur, to eliminate gained into this period, however, tries to her population/food dilem¬ the “white peril” in her part of the should well compensate the reader’s ma and is making every effort to re¬ world, and to elicit greater sacri¬ effort. solve it internally. fices from the Chinese people. “But —LEO A. ORLEANS Fears have been voiced that the this militancy is not the result of twenty million overseas Chinese (96 pressures generated by masses of Chinese people in search of Lebens- China’s Population percent of whom live in Asia) may constitute a built-in Fifth Column raum.” EVERY FIFTH CHILD, by Leo A. Or¬ for a militant China. In this regard, The chapter on the implications leans. Stanford, $8.50. Orleans states that the overseas and consequences of China’s popu¬ Chinese are deeply engaged in cap¬ lation will interest laymen. Most of DOES China threaten her neigh¬ italist enterprise; they are neither this scholarly work is, however, for bors, and the world, because her willing to serve as tools of Peking specialists concerned with economic large, expanding population presses nor to give up economic security for and demographic conditions in upon her limited resources? Is there ideological struggle. They do, of China. danger that her masses will spill course, feel a sense of cultural heri¬ —ROBERT W. RINDEN SPECIAL ORDER BOOKSERVICE NOW AVAILABLE TO AFSA MEMBERS §" FOR AT DISCOUNT PRICES £ • For a number of years the Marine Corps Association has been pleased YOUR to make its world-wide mail order bookservice available to AFSA Mem¬ bers as an unadvertized courtesy service. READING • NEW POLICY NOW PERMITS MCA MEMBER DISCOUNT PRICES TO BE EXTENDED TO AFSA MEMBERS. (Discounts routinely average 10%. No PLEASURE discount available on paperbacks) • Any book in print may be ordered. QQ • No postage or handling charges on pre-paid orders. THE MARINE CORPS Mail Your Orders To ► ASSOCIATION PO BOX 1775 QUANTICO VA 22134 AMERICAN EFFICIENCY country, on the other hand, the de¬ We can only hope and pray that from page 15 cline of belief in the all redeeming these negative phenomena are not devotion to work and the former quality of work is something to be manifestations of an irreversible easy-going European attitude could observed everywhere and was dra¬ process but rather the natural con¬ best be understood by watching the matically documented in its rela¬ sequences of the ferment of the first number of able-bodied, healthy and tion to the young blue collar worker fully developed industrial society in youngish men sitting in European in the excellent Washington POST human history wrestling with new cafes at all times of the day, doing series published last April. values and aspirations. absolutely nothing and what was To end on a lighter, though mel¬ worse—-visibly enjoying it. ancholy, note: Whatever the future In the United States, on the con¬ THE spectacular decline of Ameri¬ holds for our “efficiency,” in the trary, a man who was temporarily ca’s efficiency and parallel to it the long run it holds the same for Eu¬ out of a job, or on vacation, or in disintegration of belief and interest rope and the other developed na¬ between, always felt somehow guilty in work and service, is bound to tions. The pressures of industrializa¬ and compelled to explain why he have far reaching consequences for tion, modernization and mechaniza¬ would “loaf” and be seen walking this country—nationally and inter¬ tion in the postwar period were so or strolling outside his only legiti¬ nationally. Internally, it contributes strong that Europe had faithfully mate day-time abode—his place of materially to the increasing deterior¬ followed the so-called Americaniza¬ work. ation of the quality of life thus tion process, copying all its good and It is interesting for the thesis nurturing even further the feelings bad manifestations. Whether they of the reversal of roles between of malaise and discontent prevalent and we like it or not, it is therefore, the continents to read Joseph in many sectors of our society. In¬ only reasonable to expect that the Wechsberg’s amusing but sad article ternationally, it will make us in¬ next stage—deterioration of their in the New York TIMES sometime creasingly less competitive with oth¬ efficiency and quality of life—will back, describing the slow death of er nations, thus further damaging also be unavoidable. the European cafe as an institution. our exports and balance of pay¬ And every tourist to Paris and Mi¬ ments and contributing to a vicious And certain impressions during lan can testify to the quick lunches circle of poor quality and high price my very recent official trip to some of unspeakable hamburgers which products, diminishing exports, high¬ European countries lead me to be¬ replaced the delicious two hour er imports, more unemployment and lieve that that sad future has al¬ meals and civilized siestas. In this greater discontent. ready begun. ■

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24 FOREIGN SERVICE JOURNAL, February, 1973 SOLDIERING FOR STATE AT WEST POINT The course will end with a role-playing exercise called from page 19 “Operation Statesman.” the expert on all things relating to diplomacy and the The FSO and the other eleven officers who teach daily events taking place in the world. You can disap¬ these senior courses are expected to be able to teach at point a few of the people some of the time, but you various levels of cadet proficiency. The West Point can’t disappoint all of the people all of the time; System of “order of merit” ranks the First Classmen or therefore one must study strenuously and earn respect seniors from man number one to man number 745. To for one’s professional and academic prowess. achieve such an order of merit rather frequent, short The courses the FSO teaches help a great deal toward daily examinations or writs are given. Normally, a cadet the development of that easy academic, but profession¬ will have been examined on about one-third of his al, insouciance one’s colleagues and students appear to classroom attendances. There are 48 such attendances expect. The FSO teaches Comparative Political Systems for International Relations, for example; thus, a cadet in the fall semester and International Relations in the would probably have had 14 to 18 daily writs by the spring semester. end of the course, dependent upon his luck in getting a Comparative Political Systems requires teaching the professor who likes or dislikes to correct writs. The David Easton concept of “the Political System” and the second third of a cadet’s final grade consists of his term Gabriel Almond and G. Bingham Powell concept of paper, and the last third is his final examination grade. comparative politics. Once the theoretical model is Classes are “resectioned” by order of merit two or established one then teaches the British, French, West three times a semester. Thus, one can expect usually to German, Soviet, Chinese Communist, Indian and Japa¬ teach high, middle and low sections. Unfortunately, the nese political systems on a comparative basis. average FSO tends to use big words so unless he is The International Relations course, like the Com¬ careful he can be somewhat ineffective in the bottom parative Political Systems course, is a standard under¬ sections where a disproportionate number of football graduate survey. It includes sections on the nature of players and similar scholars reside and where the main international politics; decision making for foreign policy; requirement is to use simple, direct and forceful lan¬ foreign policy problems, which will include close read¬ guage. These amiable bottom section cadets generally ings this semester of Kissinger’s “Troubled Partnership” have one principal interest and that is “to get the and Heilbroner’s “The Great Ascent,” and an examina¬ straight poop,” no frills and no extraneous, hard-to- tion of Warsaw Pact Politics and other current prob¬ digest, extra stuff. They are understandably concerned lems, including Vietnam, the Middle East, and the UN. with surviving until graduation when they can emerge

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FOREIGN SERVICE JOURNAL, February, 1973 25 from their academic chrysalises and become soldiers. Katzenbach. He was amused, but barely so. There are not many “mute, inglorious Miltons” in the Sixth, as far as amenities are concerned, the schedule bottom sections. leaves little time for foreign service-style entertaining, Teaching upper sections is easy since these boys are but though partying tends to end early, it is intense bright and literally hunger for information. during its duration. Similarly, the New York theatre The middle sections are the greatest challenge as district is only a little over an hour away. Also, one can these young men have carefully developed protective maintain ties with foreign diplomatic friends, for the UN shells of “cool” to protect them from the cadet’s existen¬ diplomatic colony is relatively near at hand. tial existence. Joseph Heller’s character Yossarian, of Housing is excellent. The post school is a three “Catch-22,” is well-known to the cool middle. Camus is minute walk from the assigned FSO quarters. The PX is the hero of a cadet of my acquaintance. The middle relatively well-stocked. Women’s activities are low- sections have the ability but need motivation. This has keyed and non-compulsory. Facilities for children are been the group with whom I have enjoyed working most remarkable. and had the most return in terms of student interest and In summary, West Point is an excellent post. The performance. atmosphere at the Academy is friendly and people here Fifth, as a function of being an FSO and thereby an are well-disposed toward Foreign Service officers. The expert on everything and also a civilian and therefore job is demanding, but rewarding and immensely satisfy¬ an expert on the care and feeding of other civilians, the ing, if one finds that he enjoys teaching. FSO is implicitly expected to be present for all academic The personal and career benefits of immersion for and social functions where visitors from outside are two years in an academic environment should be appar¬ welcomed. While this can lead to meeting a dazzling ent in terms of newly created or rejuvenated intellectual assortment of academicians, Establishment potentates, and physical energy. high government officials and leading generals, it can Above all, it is a great experience to become ac¬ represent a formidable pressure on the waistline and quainted with the cadets and to come to understand the liver similar to that of being posted in Graustark. There positive role a teacher can come to play with regard to is another danger, too. One develops a certain oracular the intellectual and spiritual development of young quality in the classroom, particularly as the only profes¬ people. sor dressed in civilian clothes. Charmed by the sound of Lest I sound too much like Pollyanna, I rather look my own voice I found myself recently making grave ex forward to resuming again the wicked life of an FSO in cathedra pontifications to former Under Secretary his true habitat. ■

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26 FOREIGN SERVIOE JOURNAL, February, 1973 AN OPEN LETTER sections.) The results are as follows: from page 17 Consular Administrative through the promotion of secretaries, couriers, and com¬ Officers Officers munications personnel. I should add that the Administra¬ 0-1 1 7 tive cone was recruited in much the same manner. Many 0-2 6 22 excellent people came in, in this way, but the class dis¬ O-3/S-l 20 23 tinction remained, and to some extent remains today, al¬ 0-4/S-2 22 28 though there is now a much greater effort to use the same 0-5/S-3 21 12 criteria for all cones. Today there is the danger that there 0-6/S-4 18 2 will be a subtle form of discrimination in that women 0-7/S-5 7 1 and minority group members recruited into the Foreign O-8/S-6 1 0 Service officer ranks, to the accompaniment of tremen¬ dous publicity, will be shunted disproportionately into the You can see that the Administrative cone has kept a consular cone. We will be gaining good officers, but such reasonable ladder to the top, while there is next to none disproportion would only perpetuate the present attitude for consular officers. (Had I included the top political towards the cone. and economic officers in each embassy section the differ¬ Much of what I have said also applies to the Adminis¬ ence between their positions and those of the senior trative cone, but at least to an outsider the situation does consular officers would have been far greater.) One could not look as serious. The class discrimination may be say that if there is any sense to the rank system, the there, but administrative men hold the levers of power in higher the rank, the more expertise. Apparently in our the Department of State and at its posts abroad and they order of priorities we have been giving more expert can take care of themselves. The Administrative cone attention to government property than to American citi¬ has not let the series of position cuts seriously diminish zens in trouble overseas. the rank levels of administrative positions overseas. I don’t point the finger at the administrative officers. As an exercise, I took the Foreign Service List of In fact I think they have acted properly to see that there February 1972 and listed the rank of the chief of the is a proper career structure open to them. For consular consular section and of the chief of the administrative officers, as you can see, the situation abroad is bad and it section from each of our embassies which had both may be getting worse. There have been recent examples consular and administrative officers. (There are some of turning the consuls general at some of our major very small African embassies which do not have separate embassies into “meeters and greeters.” There is nothing

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FOREIGN SERVICE .JOURNAL, February, 1973 27 wrong with this idea except that you can be sure that the there aren’t many consular officers promoted to senior system will not ask the rough diamonds of the consular ranks anyway. cone to do this work, but only insure that the FSO-1 All right, I have painted a bleak picture. What is the Political Cone Consul General has a professional consular solution? Frankly I don’t think there is any. The facts will FSO-3 as an assistant to tell him where to sign his name. remain the same. We are a very small group in the Every one of these social type assignments takes the bread Foreign Service; our work is concentrated abroad, which out of a consular officer’s mouth. is removed from the seat of power over positions and If the situation in the field is depressing, the one in promotions; and we don’t have much of a chance of Washington is impossible. The great joy of consular wbrk gaining effective representation in the upper echelons of abroad is that you have very little supervision from the the professional Foreign Service. Perhaps there will be Department. Most of your decisions have to be made some room for registering our unhappiness in the new right away and you don’t have time to consult with grievance procedures and employee organizations that anyone. This means, however, that there is a very small are being established, but the same people who represent support staff in the Department and consequently very, us will probably be our competitors from the other cones. very few high ranking consular jobs. See if you can name We can however fight the downgrading of our positions the top professional consular officers in the business. If and we can keep an eye on what senior positions have the consular establishment is small in the Department, been left to us and scream like hell if anyone outside our what about senior executive jobs in other areas? After ranks muscles in on our turf. all, almost from a consular officer’s first assignment, he is Why then should any officer stay in the consular field? running an office and making his own decisions and it If movement up above the 0-3 level is a primary would seem he should be qualified to hold executive concern, I suggest that early in your middle career you positions. If my experience as a personnel officer trying move to another cone. The personnel policy keeps chang¬ to place consular officers in the Department outside of ing, but there is always a chance for maneuver if you the consular area is any criterion, then you can forget don’t wait too long. For the rest, I come back to the about it. The other cones hold the positions, and they are original point, that consular work is fun and is its own not interested in taking on consular officers; they have reward. For one thing, you will not be a 50-year-old enough trouble finding slots for their own senior officers. officer carrying some one else’s attache case, nor one They do have, I would suspect, proportionately far more whose main job is getting the requisite number of initials senior slots allocated to them than do consular officers. on a piece of paper. You will be helping people, and The only reason that the problem is not acute is that often having a hell of a good time doing it. ■

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28 FOREIGN SERVICE JOURNAL, February, 1973 “Drink no longer water, but use a little rate products—and one of them is wine for thy stomach’s sake.”—1 Timothy wine. The second vicissitude to con¬ front native wines was Prohibition— all those fallow years between 1913 and 1934, when the bathtubs of the amertean Wines nation ran white with gin, and wine was something you made with ex¬ tract and yeast in the clothes closet. R. J. MISCH Well, we suffered through that, and came out on the other side with vineyards a shambles, skilled vint¬ ners gone back to the homeland, and a couple of generations entirely MA 1 MERICAN wines have had a lot “import” has enormous charisma to untutored in matters vinous. Amaz¬ to contend with, over the years, and the American. The most chauvinis¬ ing that a wine industry survived at are just now coming into their own. tic American Legionaire positively all. The first strike against them—as melts at the label “imported fabric,” But its roots were deeper than we with so many products of American “imported cheese”—even an “im¬ realize. Way back in 1769, the good origin—is the fact that the word ported” Count to marry his daugh¬ Fathers of Mission San Diego had ter. Not that this was—or is— grown grapes and made wine in baseless. Many imports are unique southern California. These were A founding member of the "Wine Com¬ Mission grapes and they didn’t mittee for the State Department,” to and should be revered for what they counsel the diplomatic corps on wine are. What brandy in the whole make very good wine. They still service, around the world, Mr. Misch is world approaches the Cognac of don’t. The generally accepted father also a Chevalier du Tastevin. His publi¬ Charente? I have yet to taste a of modern California wines was a cations include "Robert J. Misch’s For¬ cheese as delectable as a ripe Brie, Bordelaise named, highly appropri¬ eign Dining Dictionary" and “Quick or to feel a sweater as melting as Guide to Wine.” He also writes a weekly ately, Jean Louis Vignes. He tapped syndicated food column for 150 news¬ Scottish Cashmere. But, there his bungs near Los Angeles, in the papers. should be recognition for our first early 1840s.

FOREIGN SERVICE JOURNAL, February, 1973 29 Usually the somewhat lugubrious It remained for Thomas Jeffer¬ Wine Festival” in 1964—making Count Agoston Haraszthy is cred¬ son, our one and only Renaissance California wines more respectable. ited with being the true founder of man, to say, referring to the native The prestigious Trader Vic featured California’s industry. It is true that “Alexander” grape, “I think it will and extolled the Californias in his he was sent to Europe by the State be well to push the culture of this exotic restaurants. Just why Zinfan- of California to bring back foreign grape without losing time and efforts del and Polynesian spare-ribs grape vine slips. He couldn’t take a in the search of foreign vines. . . .” should be a get-together, deponent joke, returning with 200,000 or so How well his words were heeded is sayeth not. Such oases as Pot Luck cuttings. To the everlasting disgrace borne out by the roster of Eastern with its wine card of old Californias of the State, California reputedly States where, in the 1880s, wine tabbed at $20, $25, $35 a bottle, never repaid him. That doesn’t ex¬ was being made: Missouri was first, helped to convert the wine snob. actly explain why he ended up in then Ohio; New York was a poor Probably the most significant Central America and was devoured, third, just a mite ahead of Alabama factor, however, was the yeoman a point, by an alligator—but he did in production. All this is changed work of the oenologists of Davis, and he was. The descendants of today. The Finger Lake region has University of California, under Haraszthy’s fledglings are the arrogated to itself the greatest share Maynard Amerine and others. Their present-day vines of California. of the Eastern wine picture, with work on grape hybridization, viti¬ In the East, there was a different Taylor and Great Western (one culture, viniculture and all allied situation—vast acres of grapes of management) dominant. vinous subjects, really brought the Labrusca and other native A number of significant events about the American wine revolu¬ families, growing wild. Remember helped US wines achieve their cur¬ tion. the Viking’s reference to “Vin- rent popularity. There was the They must be doing it right be¬ land?” Not content with wine from creation of the California Wine Ad¬ cause in 1971 California sold 226 such obvious sources, we find a cer¬ visory Board and its hand-maiden, million gallons of wine, an increase tain Lord De la Warr, in 1616, the Wine Institute—no wall-flowers, of 15 percent over 1970, and the asking France to send vintners and they. They sponsored national pub¬ sixth straight record year. But you vines. They were sent, but the vines lic relations campaigns—sent lectur¬ want to hear about wines, not statis¬ could not survive the rigors of the ers to address college audiences and tics. Eastern climate, nor could the vint¬ to speak on radio and TV. New You can divide California’s wines ners. York’s Waldorf held a “California into, roughly, four parts. The first

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30 FOREIGN SERVICE JOURNAL, February, 1973 part are the dessert or fortified the Varietal name of the white wine The next rung are the Generics. wines, the so-called Ports and Sher¬ grape of Burgundy; Sauvignon and These are, as the name implies, ries and Angelicas, etc. Where once Semilion are the great grapes of the simply blends of any wines from they rode high, they are losing out— white Bordeaux, from dry Graves to any grapes, and all too often named praise be—to the low alcohol, natu¬ sweet Sauternes; Riesling or Johan- for foreign wines which many re¬ ral table wines. These latter can in nisberg Riesling is the premier semble not at all. California Claret, turn be classified as Varietals, Ge¬ grape of the Rhineland. All of these California Burgundy, California nerics and Monopoles or private make wines using their respective Sauterne—these are the wines of brands. grape names-—and they do it almost this category. Many reputable pro¬ Let us discuss Varietals, first, as exclusively in the cooler reaches of ducers make them in vast quantity. they are our proudest offerings. By the northern counties of Napa, So¬ Gallo (which accounts for nearly V3 law, these are wines which, to use noma, Santa Clara. More southerly of California’s total production— the “varietal” name of the grapes as climes and hotter valleys are not and who, in this writer’s opinion, their nomenclature, must contain 51 conducive to the growing of these offers top value for the prices he percent or more of that grape vari¬ so-called “noble grapes.” Here, Cal¬ charges), United Vintner’s (some ety; viz. Cabernet Sauvignon (from ifornia must rely on lesser European good ones here, too—if you search) the grape of Bordeaux, the one that varieties, even raisin and table are the big boys, along with the makes the great Chateaux; it is grapes, and special hybrids created generic production of Almaden, probably California’s best red at Davis to meet the climatic need. Masson, and Christian Brothers. wine), Pinot Noir (Burgundy’s When we speak of California’s The third group are the “name” great red wine grape), Gamay (the good wines we generally mean the brands—wines with specific Compa¬ grape of Beaujolais), Zinfandel (a “Varietals,” discussed above—wines ny labels. These are represented by grape which has lost its parents but from such splendid Houses as Mar¬ such wines as Emerald Dry (a produces vast quantities of a rela¬ tini, Wente, Buena Vista, Inglenook, house brand of Paul Masson—and tively pleasing drinkin’ wine). With Beaulieu, Berenger, Krug, Mirassou, a good one); Paisano (a house 51 percent or more of any one of Mondavi, Concannon, Korbel, Heitz, brand of Gallo—and a lot of wine these grapes in the bottle, the label Sebastiani—plus some of the better for the money); Rubion (a house may bear that grape’s name. wines of the huge producers such brand of Masson—deservedly pop¬ In white wines, the same is true. as Almaden, Masson and Christian ular), etc. If it is these wines you Chardonnay or Pinot Chardonnay is Brothers. want, then you must buy them from

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FOREIGN SERVICE JOURNAL, February, 1973 31 their one and only maker. If it is a too young. California whites can’t French wine grape super-structures. Varietal or a Generic, then your be sold too young. The results are quite fascinating— scope is far greater, for dozens of In New York, we have a some¬ Chelois (pronounced Shelloy) for vintners make their version of each what different picture, but the more instance. This is only the beginning. of these wines, and you must let it is different, the more it is the Young Walter Taylor, in his new your palate be your guide. same. There is a proportion of and excellent small property, Bully Before leaving California, a word sweet appetizer and dessert wines— Hill, is doing the same, and offering about a relatively new develop¬ fortified and purporting to be Sher¬ some excellent reds and whites, ment—the growth of the small ry, Port, etc. while Phil Wagner at Boordy (sometimes tiny) producer of quali¬ Then there are the New York (formerly in Maryland, now in ty wines, often so small the wines (and Ohio) Varietals such as Ca¬ Westfield, N.Y.) offers some out¬ never even leave California, or even tawba, Diamond, Dutchess, Dela¬ standing wines of hybrid extraction. the vineyard. Some are outstanding ware, Niagara, Scuppernong (often That’s about the story. and many are the highest priced going under such brand names as As a wrap-up, I will say this. bottles in California. To mention a Lake Keuka, Lake Niagara, etc.) United States wines are on the march few: Stony Hill (especially New York and Ohio Generics are —improving steadily and growing Chardonnay), Ridge (especially the biggest category: Rhine Wines, in importance. American vintners Cabernet Sauvignon and Zinfan- Chablis, Sauternes, Burgundies and are among the best in the world, del), Chalone (especially Chardon¬ the like. The Taylor people, with a and certainly among the most hon¬ nay), Mayacamas (Chardonnay). bit more candor, call theirs simply est. If they were asked—are the You’ll pay 4 to 6 or even 7 Lake Country Red, or White or wines of the United States as great dollars for some of these—and of Pink. If a slightly grape-y taste is to as the very best of the French, they course at these prices, you must your liking, you’ll enjoy these would reply to a man, “No—not the decide if they represent as good wines. Charles Fournier has done greatest, not yet and maybe never— value as foreign counterparts at some fine things at his Gold Seal but certainly the equal of many.” these, or even lesser, figures. winery and Great Western has been Wine shouldn’t be a contest nor a Vintage? Forget it. It’s helpful to experimenting with the newest thing vituperative name-calling, as I have have it on the label so you can tell in Eastern grapes—the French hy¬ too often witnessed. Suffice to say: how long the wine is in the bottle brid. These manmade grapes grow “American wines are different and California reds are generally sold on hardy US root stock but sport they are good.” ■

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32 FOREIGN SERVICE JOURNAL, February, 1973 LETTERS continued from page 2 branches, and their wives, who will learning the job from the bottom coffee table and an old VW into a soon find it essential to make their up. dune buggy, there is hope for the own on-the-spot analyses of this It will be necessary to revise the Foreign Service. newest member of the United Na¬ newly inaugurated track system in We cannot expect that other na¬ tions. order to adapt it to the new situa¬ tions will readily dismantle their di¬ Political reporting from the Peo¬ tion. Food-handling, office manage¬ plomatic establishments even if we ple’s Republic of China could be ment, and motel housekeeping do. This would cause a representa¬ passed over to the CIA in a move might be among the new streams of tional vacuum for the United States that would finally end the eternal choice, all leading to the peak of the in the capitals of the world if we did problem of duplication of efforts. pyramid—the maitre d’ or ambassa¬ not manage to fill it somehow. Then Their operation would be housed dor. too, our embassies, our chanceries neatly and inconspicuously in the There is no need to go into great and their highly skilled local em¬ official American motel, along with detail about the operation of the ployees represent a formidable the permanent representative of Dr. official motels beyond underlining American investment abroad and Kissinger’s staff. The entire staff of the point that they would provide also a real American asset. The the motel, above the rank of waiter secure and comfortable accom¬ problem will be to exploit these and busy boy, would be included on modations (a motel luxe) for the existing facilities by streamlining the diplomatic list, headed by the multitude of official US visitors who them into useful and constructive maitre d’ who would, of course, have become such a part of Ameri¬ channels. have the title of American Ambas¬ can operations abroad. What form shall American rep¬ sador. Additional advantages would ac¬ resentation abroad take in this era The emphasis on executive train¬ crue to the conversion of today’s of instant communication? What are ing and management skills for embassies into the motels of tomor¬ the useful functions left to our am¬ American ambassadors in recent row. Food- and beverage-handling bassadors and our embassies now years has qualified them remarkably operations of US motels in many that several Chief Executives have well for this new type of assign¬ countries might be self-supporting replaced the cumbersome apparatus ment. Most would require only a and even profit-making. The prolif¬ of the State Department with a brief course in motel management erating agencies of the US govern¬ mini-Foreign Office in the White before they assumed their new re¬ ment which long ago outmanned the House basement? What shall we do sponsibilities. The tact, dignity, and Foreign Service at posts abroad with our men in the field when the group leadership considered essen¬ would now rent office space at mini¬ President himself, or a Kissinger, tial attributes of successful Ameri¬ mum rates from the Embassy motel Harriman, Vance or Agnew (de¬ can ambassadors are also pre¬ management and provide another pending on the party in power) eminently necessary to the maitres fiscal write-off. With the courtesy orbits the globe on missions of state? d’ of the official American motels. title of Military Attaches, the De¬ One possible answer would be to Retooling the other members of fense Department alone would take transform today’s embassies into a the Foreign Service could proceed over at least one floor in each motel global system of official American gradually. Consular and visa officers and provide a steady clientele for motels. These would have the would take over the motel travel the catering operation as well as the immediate purpose of providing safe and booking operations in addition restaurants and bars. Perhaps De¬ and suitable shelter for the jet¬ to their present duties. The general fense could be persuaded to set up setting official travelers and their services staff would be trained to a PX operation somewhere in the entourages. Motels have the advan¬ handle the important housekeeping lobby, under the supervision of tage of being uniquely American and end of the motel. The administra¬ some of its expert sergeants. The yet eminently exportable. Their tive office would naturally move boutiques would naturally come un¬ flexibility would permit us to adapt into billing and record-keeping. The der the Commerce Department, each individual structure to its par¬ economic section would have to spe¬ while Agriculture could supervise ticular locale and to American oper¬ cialize in home economics in order exterior planting and the motel ations there—open to the air and to operate the food-handling end of greenhouse. sun in some climates, surrounded by the establishment, which would in¬ The possibilities are endless, the concrete walls and slit trenches in clude restaurant, coffee shop, and opportunities unlimited. The prob¬ others. the motel’s catering service. The bar lem will be whether or not the For¬ Peking would seem to provide an and cocktail lounge would be the eign Service is up to the challenge. ideal site on which to inaugurate the natural purview of the political It seems unnecessary to suggest that new system. Our first ambassador, officers. USIA men and women Conrad Hilton would make an ideal far from being a political expert would handle press and public rela¬ Under Secretary of State. Of course who might again give China away, tions, and they would also be in there will be scoffers like Senator would instead be a skilled Chinese¬ charge of the entertainment sched¬ Thurmond who will insist that the speaking maitre d’hotel. With a firm uled in various public rooms. Foreign Service cannot change. I grasp of management and cost ac¬ (Officers with a potential as masters would simply like to point out that counting, he would be able to oper¬ of ceremony should immediately be most of them already possess their ate the vast establishment necessary screened out for special training.) striped pants. to accommodate all the members Junior officers would all do a stint —D. B. L. of the legislative and executive as bell hops and bus boys, thus Washington

FOREIGN SERVICE JOURNAL, February, 1973 33 P2J EDITORIAL

Membership—Key to AFSA Success

^^IE ASSOCIATION is dedicated to the development of these consultations and to broader communications with an increasingly professional and effective Foreign Service our membership. of the United States, and to an improved career system To obtain the necessary resources, AFSA will launch for the people who make up the Service. a series of membership drives. We will conduct the first Now that AFSA is two-for-two in representation elec¬ among Washington-based State personnel February 5-23, tions at State and USIA and optimistic about results in and then move on to our other two agencies at home AID, we face a major challenge^serving as exclusive and to our posts in the field. Our goal is to have a cam¬ representative of the Foreign Service. The key to success paign representative personally contact every member of as exclusive representative is membership—for two good the Foreign Service who does not now belong to AFSA. reasons—at least: We need your help in this endeavor. For readers who are 1) AFSA policies, priorities and leadership will be not members, we urge you to join. For those who are, decided through membership meetings and by means of we urge you to help get others to join. all-member pollings. Each AFSA member will be direct¬ ly involved and directly consulted: the vigor and quality of our organization will be determined by the extent of participation in it; Certification - Certification - Certification 2) A large membership means financial resources to continue work already started, to meet the new responsi¬ bilities which come with exclusive representation, and WW W EDNESDAY, January 24, was a day of mixed emo¬ to further expand our professional activities. Also, the tions at AFSA. Sorrow at Lyndon Johnson’s untimely larger our membership the more influence AFSA has death was tempered with rejoicing over the end of the within the government, with the Congress and the public. Vietnamese conflict and with a purely internal celebration This latter theme is a familiar one, and crucial to our of the Certification of Representative handed AFSA by success. You will note in the financial statements appear¬ the Employee-Management Relations Commission. ing elsewhere in this issue that our revenues have been The objections to AFSA’s certification in the State brought into balance with the expenses of current pro¬ Department election in which the Association garnered grams and operating levels. But to maintain this balance 3093 out of 4858 votes cast were reviewed by the Com¬ in the face of expanding requirements we need a sub¬ mission. The Commission found there was no evidence to stantial expansion of our membership. support the objections and said: Our objectives are clear; “Having overruled all of the Objections to the elec¬ 1) Establishing a fair and impartial career system for tion and inasmuch as AFSA has received a majority of FS personnel in regard to promotion, tenure, assignments the valid ballots cast, we shall certify it as the exclusive and grievances. representative of the employees in the unit for the pur¬ 2) Establishing appropriate comparabilities to the poses of consultation with the Agency under the provi¬ Civil Service and the military in pay, allowances, retire¬ sions of the Executive Order.” ment and other fringe benefits. It went on to say: 3) Strengthening AFSA’s role as a foreign affairs “IT IS HEREBY CERTIFIED that the American professional organization, improving the quality of our Foreign Service Association has been designated and performance in service to the nation and expanding our selected by a majority of the Foreign Service employees Openness Program to improve two-way communication of the Department of State, excluding management of¬ with Americans outside the Foreign Service. ficials and confidential employees as defined by Execu¬ We intend to work constructively with Management, tive Order 11636, as the exclusive representative of such but we also expect some hard bargaining. Even under employees for the purposes of recognition and consulta¬ optimistic circumstances we will have to devote more tion with the Department of State under the provisions time and money to provide necessary staff support for of Executive Order 11636.”

34 FOREION SERVICE JOURNAL, February, 1973 evaluation system. Fifty-eight per¬ cate not only that AID employees JOURNAL NEWS cent of those polled were either are dissatisfied with the present This issue is not built around a very dissatisfied or somewhat dis¬ system, but that a substantial single theme; rather, it is intended satisfied with the present system. number believe the system is un¬ as a kind of mirror image of the In response to questioning by an fair. Clearly, the results are a man¬ diversity of functions the Foreign AID official, Dr. Warwick pointed date both to management and to Service performs outside of the out that in his experience gen¬ the exclusive representative of “classic” diplomatic jobs of polit¬ erally 40 percent of employees AID employees to substantially ical and economic reporting and can be expected to be dissatis¬ improve the Performance Evalua¬ of representation. We feature an fied with their performance evalu¬ tion System. “Open Letter” to consular ap¬ ation system. However, he pointed The Study Group has drafted pointees, reflections on an FSO’s out that the AID level of dissatis¬ several sample PERs which use teaching assignment at West faction was 15 to 20 percent above a goal-setting and evaluation pro¬ Point, and a probing analysis of what he would consider to be the cedure. The AFSA Reform Com¬ the kind of international organiza¬ industrial norm. mittee suggested this approach in tions needed for the future. Secondly, Dr. Warwick ex¬ its meeting with the Study Group. AFSA and the Journal will sore¬ pressed interest in the result that The Association has urged the ly miss Ambler Moss, who re¬ only 8 percent of the responses Study Group to seek comments signed from the Journal’s editorial characterized merit as being the from AID personnel in Washington board in January in order to take factor which counts most in be¬ and overseas on its proposal, be¬ up his new job in the Brussels ing promoted. Approximately one- fore sending its recommendations office of Coudert Brothers. Amb¬ third of the respondents thought to AID management. ler had served on the Journal that style was most important and Management is pushing the board since 1968, and was vice- another third thought that the in¬ Study Group to make its recom¬ chairman for over a year. The terest of one's supervisor was the mendations by April 1, so that the Journal was the richer for the pro¬ key factor. new system can be put into effect vocative articles he was able to The two pay classifications most on May 1. AID management in¬ solicit during this time, and we dissatisfied with the present sys¬ tends to change the current cal¬ fondly hope that he will remem¬ tem were the FSLs and FSSs. By endar year rating cycle to one run¬ ber us as he moves on to new job category, most dissatisfaction ning from May 1 to April 30. AFSA adventures. was found among Staff, secre¬ has pointed out that this may en¬ taries, program officers and econ¬ tail a four month delay for promo¬ omists. The survey results indi- tions in 1974. Management wishes AID NEWS to adopt the new timing so that PER Survey Results INDEX it can appoint personnel to sit on selection boards during the early The Foreign Service Evaluation AID News 35 summer months when they are in Study Group held an Open Meet¬ Washington between tours or on ing in Washington on January 17 Staff Corps News 37 home leave. to present the results of its world¬ USIA News 35 wide employee survey on the AID Performance Evaluation System. State News 38 USIA NEWS Sociology Professor Donald War¬ General F. S. News 36 USIA Elections wick, the consultant to the Study Group, emphasized two findings AFSA Activities 38 AFSA won the USIA election with a vote of 574 (AFSA), 470 of the Study as demonstrating a Members’ Interests 39 need for fundamental revision of (AFGE), and 66 (against). Although the AID Performance Evaluation AAFSW News C III AFSA received a plurality of the System. First was the high level USIA votes, it did not receive the of dissatisfaction with the present Foreign Service People C III needed majority of the ballots cast

FOREIGN SERVICE JOURNAL, February, 1973 35 for certification, as there were 113 factors affecting their careers. On board that considers only 20 files challenged ballots. Consequently, the other hand, there is also wide¬ for a retroactive findings as to where the Employee Management Rela¬ spread concern that the awarding the grievant would have stood in re¬ tions Commission must now de¬ of promotions on a non-competitive lation to officers close to the promo¬ cide which of the 113 challenged basis, as a compensation for injus¬ tion line could probably accomplish tice, may be harmful to the prin¬ voters are eligible to cast their its task in one day. If the process ciple of promotion by merit and thus needed to be repeated retrospective¬ ballots. Of these voters, 92 were may create another kind of injustice. ly for additional years, that task challenged by AFGE in support of The problem, as we see it, is that could be accomplished in a few ad¬ their FAS lawsuit which contends the Department and the Foreign ditional days. Such action would Be that these employees are unlaw¬ Service have not yet devised a work¬ a small price to pay, in our opinion, fully employed in the Foreign able mechanism which strikes an for maintenance of the integrity of Service and should be converted equitable balance between the right the merit promotion system. to Civil Service status. of the individual employee to full Our proposal would also make it If the EMRC finds most of the redress for unjust treatment and unnecessary for the Secretary of challenged voters eligible to vote, the right of all the other members State to be placed in the position AFSA needs roughly one-third of of the same group and grade in the of having to accept or reject a rec¬ ommendation for promotion on the these votes in order to be certi¬ Foreign Service class. While a non¬ basis of a finding that he lacks the fied as exclusive representative in competitive promotion may fully re¬ dress the injustice suffered by a means to review. Such a finding can USIA. given employee, it could well, in only deal with the injustice suf¬ Grantees Sue for those instances where other Foreign fered by a grievant, not with the specific quality of the person in re¬ Retirement Credit Service employees in the same cate¬ gory were more deserving of promo¬ lation to others in his (or her) class. A large number of former Bi¬ tion than the aggrieved employee, re¬ No one, except a selection board, national Center grantees presently sult in tangible injury to other mem¬ can make that kind of finding in ly employed in USIA are support¬ bers of the Service. complete fairness and equity. ing a lawsuit, Taylor vs. Hampton, We propose a mechanism that At the same time, no grievant to obtain retirement credit for will satisfy both the requirement of should feel disadvantaged by the their prior service in the Grantee justice and the requirement of the slight delay entailed by the work of a special selection board. Indeed, a Program. merit principle. promotion on the basis of the find¬ In cases where redress by means In a recent administrative de¬ ings of such a board would be of short of promotion is being recom¬ termination, the Civil Service greater value since it would assure mended, there would be no change Commission ruled that Binational the employee of the respect of his in the present procedures (removal Center Grantees were not Federal (or her) peers who otherwise might of unjustified prejudicial material employees and could not receive from the file, lengthening of time in feel that it was the grievance pro¬ cedure, more than actual merit, that credit toward retirement for serv¬ grade, etc.). resulted in the promotion. ice in the Binational Program. Mr. Where it is found that promotion Samuel Borzilleri is the Attorney is the appropriate means of redress, AFSA Comment: We believe that for the Grantees. AFSA is explor¬ we understand the present pro¬ much of the concern surrounding ing the possibility of entering the cedure is for the Board of the For¬ this issue is caused by the mis¬ lawsuit as a friend of the Court eign Service to recommend such pro¬ understanding that a promotion in support of the former Grantees. motion, including even retroactive resulting from grievance board promotion, and that those recom¬ findings is a merit promotion. It mendations are given effect without is not, and does not pretend to GENERAL F. S. NEWS regard to the competitive standing be. Rather, it is a compensatory Grievance Promotions of the employee in his or her class. promotion to redress injuries suf¬ We think this is not completely just. The following letter, regarding fered. We recommend that in such cases The AFSA Board believes that promotion as a result of grievance the Department should convene a in our personnel system a promo¬ board findings, resulted from a specially constituted selection board tion is the only remedy which can series of meetings held in the in accordance with Section 623 (a) adequately compensate an indi¬ State Department by a group of of the Foreign Service Act, to com¬ vidual in cases of truly egregious concerned Foreign Service of¬ pare the amended record of the discrimination or inequity. We be¬ ficers. This group was not affili¬ grievant with the records of the 20 lieve it is impossible for a griev¬ ated with AFSA, although many officers just above and below the cut-off line (i.e., the 10 lowest- ance board or a special selection members of the Association par¬ ranked employees of the same grade board to reach a responsible theo¬ ticipated. The letter was signed who were promoted, plus the 10 retical judgment as to where an by 120 FSOs. A comment by the highest-ranked employees who could individual, had he not suffered a Board of Directors follows thte let¬ not be promoted). If, on the basis proven misjustice, might have ter. of this comparison with 20 files, the ranked by merit in comparison special selection board determines with his colleagues in any given There is wide agreement in the that the employee in question Foreign Service that there must be ranked high enough to have been rating period. In most cases the an effective procedure for the re¬ promoted but for the injury suffered, performance file which would be dress of grievances of Foreign Serv¬ then it would recommend promotion reviewed would have had material ice personnel involving their per¬ to the Secretary. deleted as prejudicial by the griev¬ formance ratings and other major A specially convened selection ance board.

36 FOREIGN SERVICE JOURNAL., February, 1973 It is therefore the Board’s view TION made up of only GS em¬ that the promotion remedy must ployees. Assistant Secretary Usery STAFF CORPS NEWS be available as an ultimate com¬ found a “community of interests" One Solution to Overtime pensation for injury. The Board between the Foreign Service and strongly believes that this remedy Civil Service employees of ACTION After AFSA’s headquarters and should be awarded in only the despite the lack of common bene¬ its Keyman made representations most severe cases, and that the fits, pay scales and different ul¬ about the failure to pay overtime Association, as exclusive employ¬ timate control. to Staff employees at an ARA ee representative, should code¬ post, its Administrative Officer in¬ This decision underscores the termine with management strict stituted a system of staggered guidelines for this ultimate com¬ importance of Executive Order work weeks and other measures pensation. We anticipate that very 11636 for the three Foreign Affairs to avoid overtime. As the post did few such cases would arise, and Agencies. It is now clear that the not have funds budgeted to pay we believe that the Service should Labor Department does not view overtime for FY 1973, the post be able to absorb them. If the in¬ the distinctions between the For¬ management has taken a number cidence were to rise to any sub¬ eign Service and the Civil Service of imaginative steps to avoid stantial number—to, say, over two as being significant enough to re¬ overtime work in the Mission. or three in a single year—then quire separate bargaining units. Funds have, however, been re¬ the effect on overall promotion Fortunately, the Assistant Sec¬ quested to pay overtime for FY opportunities would become such retary of Labor’s decisions do not 1974. This is an example of how as to require careful rethinking. affect the Foreign Service’s sep¬ solutions acceptable to Staff em¬ Frankly, AFSA has confidence in arate management system. ployees can be worked out to the system we are developing, and avoid forcing Staff secretaries to does not anticipate any high rate “volunteer” to work overtime reg¬ of discrimination or arbitrariness Duty Rosters Expanded ularly. in the future. AFSA’s Bonn and Santiago Chapters have been instrumental The Training Myth Commission on Foreign Policy in revising the duty rosters at Do you speak English? The House of Representatives their posts. The action of these Parlez vous Anglais? and the Senate have appointed AFSA Chapters has resulted in Mylate Agglyka? their representatives to the Com¬ certain employees being added to Czy paw mowi po Angielsku? mission on the Organization of the duty roster who were previ¬ Ong noi tieng anh duoc Khong? Government for the Conduct of ously excluded for a number of Foreign Policy. The Senate ap¬ Useful phrases for Foreign Serv¬ tenuous reasons. AFSA Chapters pointees are: Sen: Mike Mansfield ice secretaries who didn’t learn should ensure that the duty rosters (Montana), Sen. James B. Pearson their post’s language at home. in their Embassies are equitably (Kansas), Mrs. Charles W. Engel¬ AFSA has just found out that hard, Jr. (New Jersey) and Mr. drawn up, so that the burden of Management Reform Bulletin No. Frank C. P. McGlinn (Executive duty work is fairly shared through¬ 30of November8,1971, “Increased Vice President, Fidelity Bank, out the mission. Training Opportunities for Staff Philadelphia). Support Personnel,” is not being The House has appointed: Rep. Proposal for More Liberal carried out vis-S-vis secretaries— Clement J. Zablocki (Wisconsin), Granting of Diplomatic Titles we were unsuccessful in getting statistics on other Staff Corps em¬ Rep. William S. Mailliard (Cali¬ AFSA’s State Advisory Commit¬ ployees and are still trying. fornia), Dr. Stanley P. Wagnor tee on Career Administration has (President, East Central State Col¬ proposed that the Association If you have recently been as¬ lege, Ada, Oklahoma), and Dr. signed to a Foreign Service post, seek a liberalization in the grant¬ Arend D. Lubbers (President of you may be that one in fifteen Grand Valley State College, Allen¬ ing of diplomatic titles. The Com¬ secretaries who received foreign dale, Michigan). mittee points out that our typical language training prior to depar¬ middle grade officer finds that of¬ The Executive Branch has not ture for post. As for the other four¬ as yet appointed its members to ficers of comparable age in other teen, some might be lucky enough the Commission. However, a re¬ diplomatic services hold the rank to be allowed to study at post one cent story in the Washington Star of First Secretary, and that for¬ hour a day—bosses’ morning cof¬ indicated that retiring Assistant eign counterparts of American fee and other “needs of the Serv¬ Secretary for Congressional Rela¬ Class-3 officers are usually Coun¬ ice," notwithstanding. tions David M. Abshire will be ap¬ selors while the American is a As for area studies, if you were pointed to the Commission. First Secretary. AFSA would ap¬ not one of the three out of every preciate submissions from Chap¬ 60, consult your local library for FS and GS Combined in ACTION ters in the field on the compara¬ self-help. In the meantime, we The Assistant Secretary of Labor bility between ages and diplomat¬ have asked the Department for a has denied the establishment of a ic titles of American and foreig' full explanation and will let you collective bargaining unit in AC¬ diplomats. know.

FOREIGN SERVICE JOURNAL, February. 1973 37 meet the Junior Officers and consideration. STATE DEPT. NEWS AFSA’s major concern that the Although the Association was FSRU Appointments Threshold has not to date evalu¬ pleased that the selection out pro¬ ated officers for performance at The Department has begun to cedures to be used by the Thres¬ mid-career. hold Board are to be based on an make FSRU appointments under AFSA mentioned in its presen¬ the Foreign Affairs Specialist Pro¬ established standard of perform¬ tation to the BFS the adverse ef¬ ance for that class, the Associa¬ gram for two categories of Foreign fect of training assignments on tion is disappointed that no pro¬ Service personnel: those whose an officer’s ability to cross the vision was made for making the applications were fully processed threshold. The Precepts were and approved prior to the Court's standard public. Furthermore, the amended, giving an officer full injunction, and those who by the Association failed to have the credit for achievement in training. same selection out procedure ap¬ end of 1972 would have exceeded The BFS did not accept AFSA’s plied to Classes 7 and 8 in State the age limits set out in Manage¬ proposal that all Junior Officers and USIA. The Class 7 and 8 Board ment Reform Bulletin No. 8. who are in effect on probation, be is charged with lowranking the The Association continues to evaluated and reviewed for pro¬ bottom three percent of Classes urge management to implement motion twice yearly. Nor was 7 and 8 nonprobationary officers, the FAS Program in a manner con¬ AFSA’s suggestion adopted that many of whom have only two or sistent with career principles. the Precepts be amended to pre¬ three reports in their files. AFSA AFSA opposes the backdoor entry vent the Director General from believes that the same absolute of nonspecialists and political ap¬ returning an individual name to selection out process should be pointees to career status under the selection board for further used for all junior officers. the FAS Program. Junior Threshold AFSA ACTIVITIES The AFSA Board was unani¬ mously instructed at an Open 1972 Audit Report by Leopold and Linowes, Certified Meeting of Class-6 Officers in late Public Accountants. December to urge the Board of Your Board and the Secretary- For comparative purposes, the the Foreign Service (BFS) to sepa¬ Treasurer are pleased to release Revenue and Expenditure Sched¬ rate the tenure decision which is a summary of the Association’s ules, which follow, contain FY made at the Junior Threshold Audit Report for the fiscal year 1971, audit information also pre¬ from promotion to Class-5. On ending June 30, 1972, as prepared pared by Leopold and Linowes. January 8, AFSA appeared before COMPARATIVE STATEMENT OF REVENUES AND EXPENDITURES the Board of the Foreign Service JUNE 30, 1971 AND JUNE 30, 1972 to present the views of Class-6 Of¬ GENERAL FUND* ficers on revising the junior thres¬ hold. The Association pointed out Year End Year End that the Junior Threshold was not June 30, 1971 June 30, 1972 in fact fulfilling its purpose of REVENUE: identifying officers with the po¬ Membership Dues $119,916 $184,499(1) tential and ability to do mid-career Club Sales 103,618(2) work over a 20 year period; in¬ Advertising Sales 52,086 53,257 stead, the Department was spend¬ Subscriptions Earned 35,867 41,090 ing an enormous amount of money Miscellaneous Income 6,526 8,433 and energy on a threshold pro¬ Contributions 16,138 14,876 gram which had one major goal— Total Revenues $230,533 $405,773 to recone junior officers. AFSA al¬ EXPENDITURES: so indicated that the present sys¬ Salaries and Benefits $118,416 $146,094(3) tem was having a serious adverse Food and Beverages 41,732(2) effect on the morale of junior of¬ Printing 65,105 65,720 Professional Fees & Contract Services 11,999 16,659(4) ficers. Other Expenses 107,287 60,314 The Board of the Foreign Serv¬ Capital Expenditures 19,333 8,220 ice did not adopt the AFSA/ Total Expenditures $322,140 $338,739 JFSOC proposal to revise the Excess of Revenues over Expenditures ($ 91,607) $ 67,034 threshold; instead, the Board of the Foreign Service included an (1) Revised membership rates were effective May 15, 1971. additional precept directing the (2) The Association terminated its contract with the Automatic Retailers of Threshold Board to consider the America in August, 1971 and assumed direct management of the club. (3) Includes Club salaries of $58,283; Club salaries approximating $58,000 are not extent to which the Junior Officer included in the 1971 total of $118,416. See note 2 above. A salary figure for has developed the core skills of 1971 comparable to $146,074 expenditure in 1972 would be $118,416 plus the Foreign Service. This added $58,000 or $176,416. (4) Includes legal, advertising and auditing fees. emphasis is certainly needed and *Abstracts of audits by Leopold & Linowes completed October 2, 1972 and welcome. However, it does not October 24, 1971.

38 FOREIGN SERVICE JOURNAL, February, 1973 The improvement in operations audited figures in terms of FY sentation of AID employees.) In in FY 1972 was largely due to the 1973 projections During the cur¬ addition, the Headquarters build¬ impact of the dues increase, ef¬ rent fiscal year, the Association ing will require maintenance that fective May 1971, to the assump¬ must fund new activities connect¬ was not carried out in FY 1972. tion of direct management of the ed with its recently won status as In brief, to sustain the favorable club by the Association, and to a exclusive representation of for¬ position achieved last year, the general reduction in operating eign service personnel in State Association will need additional costs, including salaries. and USIA. (It is anticipated that members, a better return from Caution must be taken, how¬ this new responsibility will in¬ Club operations and more efficient ever, in the interpretation of the clude, in the near future, repre¬ use of the Headquarters building. Laos Chapter Elects Officers COMPARATIVE STATEMENT OF REVENUES AND EXPENDITURES JUNE 30, 1971 AND JUNE 30, 1972 AFSA’s active Chapter in Laos SCHOLARSHIP AND AFSA FUNDS* recently elected new officers and Scholarship Fund AFSA Fund board members. John Woods was elected President and Messrs. June 30 June 30 June 30 June 30 1971 1972 1971 1972 Melvin B. Ein, Herbert N. Miller, REVENUES: Joseph M. Chudzik, Howard W. Hardy and Ms. M. Lea Knott were Contributions $ 88,892 $79,621 $35,237 $ 7,179 Investment Income 17,883 17,279 (348) 4,441 elected to the Board. Miscellaneous 68 AFSA/Laos has urged that the Total Revenues $106,775 $96,900 $34,957 $11,620 wives of AID employees be listed in the Biographic Register as are EXPENDITURES: names of wives of State and Salaries and Benefits $ 13,148 $17,768 $15,143 $20,130(2) USIA employees. AFSA/Washing- Professional Services 1,235 7,105(1) 2,929 1,176 Other Expenses 1,316 7,480 1,435 4,418 ton concurs. Awards and Grants 43,950 40,536 3,000 3,000 Total Expenditures $ 59,649 $72,889 $22,507 $28,724 MEMBERS INTERESTS Excess of Revenues Tax Deductible over Expenditures $ 47,126 $24,011 $12,450 ($17,104) A Federal District Court in Ne¬ (1) Incident to the cost of the successful resolution of tax status of the Scholar¬ braska has ruled that a former ship Fund. State Department Inspector can (2) Includes 50% of costs of salaries for Association Counselor and Secretary deduct as a business expense the funded from gifts to AFSA. *Abstracts of audits by Leopold & Linowes completed October 2, 1972 and cost of taking his wife on foreign October 24, 1971. trips. The Court found that the unreimbursed travel expenses at¬ STATEMENT OF FINANCIAL POSITION tributed to the Inspector’s wife AS OF JUNE 30, 1972 are deductible as ordinary and GENERAL—SCHOLARSHIP—AFSA FUNDS* necessary business expenses of her husband, in that the wife’s General Scholarship AFSA Fund Fund Fund presence served a bona fide busi¬ ness interest The Court found ASSETS: that the Inspector’s wife substan¬ Cash $ 37,193 $ 69,183 $ 2,502 tially contributed to the gathering Accounts Receivable 9,763 32,735 9,949 of information and provided a psy¬ Inventory and Prepaid Expenses 6,617 chological lift to the morale of Securities 392,617(1) 14,250 Mortgage Receivable 100,000 Foreign Service personnel. In ad¬ Land, Building & Equipment dition, the wife, by performing (Less Depreciation) 515,672 numerous incidental tasks, freed Total Assets $569,045 $594,535 $26,701 her husband to devote more of his time to substantive duties. LIABILITIES: The Justice Department plans to Accounts and Notes Payable $ 91,120 $ 43,234 $ 738 appeal. Accrued Expenses 21,234 Dues & Subscriptions Paid Housing for Single Employees in Advance 102,230 Deputy Under Secretary of State Mortgages Payable 369,311 for Management Macomber re¬ Total Liabilities $583,895 $ 43,234 $ 738 Fund Balances (14,850) 551,301 25,963 plied to AFSA’s request of last May that housing allowances paid Total Liabilities and Fund Balances $569,045 $594,535 $26,701 to single employees be brought into line with those paid to mar¬ (1) Market value $472,511. ried couples without children. 'Abstracts of audits by Leopold & Linowes October 2, 1972. After a “thorough review of cur-

FOREIGN SERVICE JOURNAL, February. 1973 39 rent policy,” the Department has present legislation was turned can now accompany the remains affirmed its current practice of down. The GAO response upheld to the US at government expense. making changes based on quar¬ an earlier GAO opinion rendered This was previously not permitted ters expenditure reports sub¬ in 1966 at the State Department’s and constituted an anomaly that mitted from the field. The De¬ request. The GAO view is that the generated a considerable amount partment concludes that the aver¬ term “elementary and secondary of mail from AFSA members. age single United States civilian education” as stated in the Over¬ The reform was first recom¬ employee receives more favor¬ seas Differentials and Allowances mended by Task Force V in 1970 able treatment in his or her quar¬ Act could only mean grades one and has been pushed by AFSA ters allowance under the Depart¬ through twelve in accordance and working level administrators ment’s policies than his or her with the standard dictionary defi¬ in the State Department until it counterpart in other systems. In nition at the time the legislation was implemented. The citation in addition, the Department stated was enacted in 1960. The GAO the regulations is 3 FAM 699.5 in that they were unable to identify also cited a Senate Committee re¬ case you want to read the full any other organization which as port on the legislation which details. a matter of policy paid the same pointed out that education allow¬ AFSA is still not satisfied with quarters allowance to single em¬ ances in the Foreign Service were the regulation even as amended ployees and employees with one limited to grades one through because only one family member dependent. twelve. can travel at government expense The Association has received a AFSA is disappointed with the to accompany the remains when detailed housing survey from our GAO response which is somewhat obviously the entire family nor¬ Chapter in Madrid. Studies are weak in argumentation for that mally would wish to do so. The under way by AFSA Chapters in prestigious organization. But it number of deaths among employ¬ several other posts. AFSA’s Mem¬ would be pointless to continue to ees and dependents abroad is for¬ bers’ Interests Committee needs seek redress through that chan¬ tunately small enough to allow full further information from its Chap¬ nel, and AFSA must now work to family travel rights without major ters and members to support our enact the kindergarten allowance budgetary burdens or the agen¬ concerns with regard to the dis¬ legislation currently before the cies involved. AFSA is also dis¬ parity between housing allowances OMB. Meanwhile, 15,000 children satisfied with the $200 and $100 paid to single employees and of DOD employees abroad attend deductible provisions on emergen¬ those paid to employees with one kindergarten at government ex¬ cy visitation travel which we hope dependent. We are going to have pense on the basis of an annual to negotiate out of existence. to prove our case in dollars and line item in the DOD appropria¬ cents and not with arguments tions guaranteeing free elemen¬ Overseas Transfer Allowance: The about fairness. tary and secondary schooling cov¬ new expanded overseas transfer ering grades kindergarten through allowance went into effect on Oc¬ Transatlantic Air Fares twelfth grade. tober 25, 1972, the date the Presi¬ The November 26, 1972 Euro¬ dent signed the State/USIA ap¬ pean edition of Stars and Stripes Emergency Visitation propriation. GAO regulations pre¬ reported that Pan American Air¬ Rights Expanded vented a retroactive start up date ways had proposed special trans¬ In case you missed the notices, of July 1, 1973. AFSA has per¬ atlantic discounts for Defense De¬ the regulations covering emergen¬ suaded management, however, to partment civilians stationed in cy family visitation in the event of modify the start up eligibility reg¬ Europe beginning January 1, 1973. death or serious illness have been ulation. The original rule made AFSA investigated this proposed expanded. In the event an em¬ employees eligible for the new new discount in response to a ployee’s dependent residing at an allowance if their travel orders number of queries from members overseas post dies, the employee were authorized on or after Octo¬ who were protesting the obvious or another member of the family ber 25, 1972 The eligibility rule discrimination against civilian employees working for other USG agencies in Europe. AFSA was in¬ formed that the Civil Aeronautics AFSA—Legal Fund Board has vetoed the proposal as c/o American Foreign Service Association being discriminatory against civil¬ 2101 E Street. N.W. ians in general. Consequently, the Washington, D.C. 20037 new fare discount will not.be im¬ plemented except for uniformed Enclosed please find my contribution of $ to help finance a members of the armed forces sta¬ second court test on home leave deductions. I understand that my tioned in Europe. contribution will be returned if insufficient funds are received.

Kindergarten Allowances Name_ — AFSA’s request to the GAO for a ruling that the payment of kinder¬ Address garten allowances is legal under

40 FOREIGN SERVICE JOURNAL, February, 1973 now includes employees who Officers’ Club at Ft. Lesley Mc¬ dore E. Stickler on December 17, travel after October 25, 1972 re¬ Nair, Thursday, March 15. Our in Asmara. gardless of when their orders were speaker will be Liz Carpenter, authorized. This change will help whose topic is the Women’s Revo¬ MARRIAGES a significant number of people lution Sharp-Borger Beverly Sharp, take advantage of the new ex¬ The AAFSW will try to make daughter of Frederick Dent Sharp, panded allowance who might available the main points dis¬ FSO-retired, and Mrs. Alleyne otherwise have been ineligible. cussed in the panel on the For¬ Howell, was married to Dr. James The next step is to modify other eign Service wife at the January A. Borger in Fairfield, Connecticut provisions of the regulations to meeting, as well as the question on December 2. Mr. Sharp is now make it easier to qualify for the and answer period. If you would with the National Savings and full allowance. like to receive this report, please Trust Company in Washington. contact Program Chairman Dallas R&R for Ambassadors: Chiefs of Finn, 229-6652, 7007 MacArthur DEATHS Mission in Latin America have Blvd., Washington, D.C. 20016. Kaufmann. John H. Kaufmann, been authorized R&R travel at AID, died on December 30 in government expense. ARA had Hollin Hills, Virginia. Mr. Kauf¬ been the only State bureau pro¬ mann joined AID as director of its hibiting Ambassadors at unhealth¬ Near East office in 1961. He later ful posts from taking R&R. AFSA served as assistant director of the joined Ambassador Siracusa in Second Careers AID mission to Brazil and as as¬ the successful appeal for relief. sistant administrator for the bu¬ As Ambassador Siracusa argued, Orville H. Goplen, who retired reau for program and policy coor¬ chiefs of mission can always find from USIA last fall after 28 years dination for the last three years- a way of leaving the country on of government service, promptly Mr. Kaufmann is survived by his official orders, but their families assumed new duties as Sports In¬ wife, Helen Reynolds Kaufmann are stuck. formation Director for Hamilton College, Clinton, New York. Ham¬ of 7317 Stafford Road, Hollin Hills, F.S. CLUB NEWS ilton competes in 11 inter collegi¬ Va. 22307, a son, Jeffrey, and a ate sports. daughter, Rebecca K. Williams, who was married on December 29 Duncan Lyon, the Foreign Serv¬ Mr. Goplen said that among the in a family ceremony at his bed¬ ice Club’s able and dedicated man¬ highlights of his career with USIA side at his wish. ager, has resigned to take a posi¬ was conducting press conferences Krausse. Henry G. Krausse, FSO- tion as food and beverage man¬ for three Nobel Peace Prize Win¬ retired, died on October 3 in ager at the Hospitality House, ners in Oslo, Ralph Bunche (1950), Brownsville, Texas. Mr. Krausse Williamsburg, Virginia. This new Martin Luther King (1964) and entered the Foreign Service in establishment will be opening in UNICEF (1965). In addition to two 1917 and served at Matamoros, early March and Duncan hopes tours in Oslo, Mr. Goplen had Nuevo Laredo, San Luis Potosi, that many AFSA members will overseas assignments in Reyk¬ plan a trip to Williamsburg, drop¬ javik, Frankfurt, Koblenz and Sai¬ Saltillo, Reynosa, Merida, Vera¬ ping in to see him at that time. gon. cruz and Mexicali before his re¬ tirement in 1956. He is survived Drinks, of course, are on the Raymond L. Thurston, former house! by his wife, Otila, of 1654 W. Ambassador to Haiti and to Som¬ Washington St., Brownsville, a Duncan's successor will be Lo¬ alia, served as Dean with the well B. Walker, ex-Marine, who son, FSO Henry G- Krausse, Jr., World Campus Afloat-Chapman American Consulate General, Sao brings considerable experience College for the fall 1972 semester gained from the management of Paulo and five grandchildren. at sea. WCA left Los Angeles for Osborne. Virginia Wharin Osborne, military and civilian clubs in this a study-voyage to ports in the country and overseas. In addition wife of Melville E. Osborne, FSO- South Pacific, Asia and Africa, retired, died on October 13, in to this, Mr. Walker has had addi- terminating December 22 at Port ditional formal training in man¬ Dallas, Texas. She had served Everglades, Florida. Dr. Thurston with her husband in Mexico City, agement, administration and sup¬ is part of WCA’s permanent staff. ply. Mr. Walker served in the Ma¬ Rio de Janeiro, and La Paz and, prior to her marriage, had been rine Corps from 1952 to 1971. His BIRTHS Chief of Files and Records in San¬ plans for the Club's future opera¬ Amundson. A son, Eric Wayne, tions include all on-going pro¬ tiago and in Guatemala City. She born to FSR and Mrs. Ellsworth grams plus stricter methods of is survived by her husband, since Amundson on December 8, in quality control. 1969 Director of the Center of Bangkok. Ibero-American Civilization at Kuhn. A daughter, Kimberly Lynn, Southern Methodist University, of flflFSW NEWS born to FSR and Mrs. Ernest Kuhn 3641 Stratford Avenue, Dallas, AAFSW President, Mrs. William on December 11, in Vientiane. Texas, a daughter, Anne C. Kent, Leonhart has arranged for the Stickler. A son, Matthew Alexan¬ a son, Clifford B. Wharin, and six AAFSW to hold a luncheon at the der, born to FSO and Mrs. Theo¬ grandchildren. k ^ I 1 CONCIERGE

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