FOREIGN SERVICE JOURNAL JUNE 1972 60 CENTS Works when you can’t! AFSA’s Income Protection Plan Pays up to $600.00 a month when you’re sick or hurt and can’t work!

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City. State ZIP. American Foreign Service Association

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. LINDA LOWENSTEIN W. A. WHITTEN

FOREIGN SERVICE JOURNAL Staff JUNE 1972= VOLUME 49, NUMBER 6 GERALD BUSHNELL, Executive Director MARGARET S. TURKEL, Executive Secretary CLARKE SLADE, Educational Consultant HELEN VOGEL, Committee Coordinator

Science and the Shrinking Ocean 17 Journal Editorial Board CHARLES MAECHLING, JR. JOHN D. STEMPEL, Chairman TERESITA C. SCHAFFER, Vice Chairman The Stockholm Conference— AMBLER MOSS MICHAEL P. CANNING What Does It Mean? 20 FREDERICK QUINN RALPH S. SMITH FITZHUGH GREEN ANTHONY C. E. QUAINTON EDWARD M. COHEN Journal The Ides of May—Baghdad, 1941 23 SHIRLEY R. NEWHALL, Editor WILLIAM J. PORTER, in collaboration with GORDON H. MATTISON and THOMAS R. DE BRINE, Editorial Assistant WILLIAM S. FARRELL MclVER ART & PUBLICATIONS, INC., Art Direction

Advertising Representatives OTHER FEATURES JAMES C. SASMOR, 295 Madison Ave., , N.Y. 10017 (212) 532-6230 ALBERT D. SHONK CO., 681 Market St., San Francisco, Calif. Communication re.- The Foreign Service Illusion, by James G. Huff 6 94105 (415) 392-7144 JOSHUA B. POWERS, LTD., 5 Winsley Street, W.l 01- 580 6594/8. International Representatives. A Foreign Service Fable, by H. Christopher Martin 14 ©American Foreign Service Association, 1972. The Foreign Service Journal is published twelve times a year by the Amer¬ ican Foreign Service Association, 2101 E Street, N.W., Wash¬ DEPARTMENTS ington, D. C. 20037. Telephone (202) 338-4045

Letters to the Editor 2 Second-class postage paid at Washington, D. C.

Special Book Essay: 's War 28

The Bookshelf 29

JOURNAL Competition 36

The FOREIGN SERVICE JOURNAL is the journal of professionals in Editorials 44 foreign affairs, published twelve times a year by the American For¬ eign Service Association, a non-profit organization. AFSA News 45 Material appearing herein represents the opinions of the writers and is not intended to indicate the official views of of State, the Information Agency, the Agency for International Proposed Amendments to the Certificate Development or the United States Government as a whole. of Incorporation 51 Membership in the American Foreign Service Association is open to the professionals in foreign affairs overseas or in Washington, as well as to persons having an active interest in, or close association with, Photographs and Illustrations: foreign affairs. Cover: Seer No. T, by Zehra Rehmatulla Post. Membership dues are: Active Members—Dues range from $13 to $52 annually depending upon income. Retired Active Members—Dues are $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 , 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 October 30, 1967. assign, failure to promote, etc., etc., and injunctions will be issued only if LETTERS TO | and to suspend all action until the the grievance board feels it necessary complaint is adjudicated. to prevent an injustice. I have just read in the latest Is Anyone Listening? Foreign Service JOURNAL that the Scramble for Cones Foreign Service Association actively ■ Please advise me whether there is ■ Once upon a time, when I joined supports the Bayh Bill, and this has the Foreign Service fourteen years some minority group which I could given me pause. We all accept the join or found. I have not been pro¬ ago, we were told that all FSOs in a desirability of having machinery to given class would be rank-ordered moted as rapidly as I would have remedy justified grievances. But this by a selection board and, within the wished, and this, in my opinion, is is not the same thing as machinery limits of available jobs and funds, clearly evidence of discrimination which will permit anyone, for what¬ would be promoted in strict accord¬ against me for being white, male, ever reason or whim, to hold up the ance with that rank ordering. This Protestant, middle-aged, beardless, functioning of the Foreign Service. was called, not inappropriately, the and happily married. Further evi¬ It seems to me that the AFSA merit system, and it seemed to work dence of discrimination may be and some of its members are getting quite well. found in the fact that: 1) I am up rather far away from the original Now, however, the merit system for reassignment; 2) I am in the concept of the Foreign Service as a has been deformed, if not de¬ Political Cone; and 3)1 am facing disciplined, elite corps dedicated to stroyed, by the cone system, under a probably indefinitely long stay in the furtherance of the international which officers may be promoted out the limbo world of non-assignment. interests of the United States and of class-wide rank order to satisfy To whom may I appeal for redress? prepared to serve anywhere at any the exigencies of a job-classification DONALD S. HARRIS time. Instead, I gather that the em¬ structure. We thus have the un¬ Berlin phasis is now predominantly on the pleasant result that officers who interest of the individual officer and would easily rank in the top 50 Free Trade? employee and on protecting him within their class are passed over ■ I would like to call to the atten¬ from undesirable jobs, hardship for promotion in favor of colleagues posts, and selection out. The ques¬ tion of your readers an excellent ar¬ who would be ranked well below tion is not “where can I do the most ticle in the Sunday, March 26 Wash¬ them on a class-wide basis, simply good?’ But, “how can I get the ington POST Outlook section by Bar¬ because the lower-ranked colleagues most?” have opted for the cone which has a bara Sharkey. It is hard for me to see how Ms. Sharkey presents a compel¬ current scarcity value. On the most esprit de corps can exist in a body recent promotion list, a number of ling argument in favor of the United which is so dominated by the indi¬ States adopting a protectionist posi¬ highly-qualified political officers vidual wishes of its members. One were held back in favor of col¬ tion rather than one of “free” trade. can hardly take pride in being a leagues in the economic and admin¬ While this is not exactly the situa¬ Foreign Service officer when one’s istrative cones. Should large num¬ tion as I myself see it, we are going colleagues are busily engaged in bers of political officers now rush to to see in the future more views avoiding undesirable assignments the favored cones of the moment, similar to those of Ms. Sharkey. and in wrangling with the senior If the Department intends to con¬ the economic and administrative of¬ officers of the Service (“Manage¬ ficers might well suffer similar dis¬ tinue its support for “liberalized” ment”!) over privileges and per¬ criminatory treatment next year. trade, we will have to develop ap¬ quisites. When promotion depends to so sub¬ pealing counter-arguments; ones with As I said at the beginning, I am the authority and imagination erf the not fully familiar with the provisions stantial a degree on the fortuitous writer, but which avoid presenting of the Bayh Bill, and I hope that choice of today’s favored cone, little assumptions as facts. the gloomy conclusions I have remains of the merit system. RICHARD F. KING jumped to are unjustified. If so, I If all the officers in a given grade were distributed among the cones in Falls Church shall be happy to hear from some¬ one who can clarify the picture. exact relationship to the number of Provisions of Bayh Bill openings at the next higher grade, JOHN D. JERNEGAN then presumably the cone system ■ Only recently have I become Norfolk could co-exist more comfortably aware of the Bayh Bill now pending with what remains of the merit sys¬ in Congress, and I am not familiar EDITOR’S NOTE: The provisions are: tem—though it would be a merit with all of its provisions. What I Foreign Service employees will have a system stripped of the class-wide have heard, however, is that it right to file for redress under the Bayh- rank-ordering feature which long would establish some sort of special Cooper bill for any management ac¬ stood as its strongest element. But board empowered to hear and de¬ tion which is discriminatory, arbitrary, even this uncomfortable co-existence cide any and all complaints about or violates regulations. This is true if the action affects promotion, assign¬ would require considerably more personnel actions in the Foreign ment or shipment of goods, etc. The openness than we have yet seen on Service. Further, the bill is said to bill does not give anyone any rights the part of Departmental officials. authorize complaints in regard to to a particular assignment or promo¬ Some of the selection boards, for any personnel action whatsoever: tion. It only provides for redress when example, knew at the start of their assignments, promotions, failure to there has been administrative abuse (Continued on page 42)

2 FOREIGN SERVICE JOPEXAL, June, 1972 ^cKholders Ae fot^

- *l\i*<* ont ir i! _ | pl{l wl VJUMIH-SS wen- Uir nose field , ,wts° , „■ p>a' . ,»1Je»^eS u faced as a nation as iduals. tespon^ '* rSi talented «»r fV ration in many years: an adverse nation- ' ah r Ujt* ft corP°5‘ downs in many foreign markets, ««* ope aS‘ select h CotnPa?a>f w ^*L**yr " rr<*ncy changes dns time affecting the divert® » *n »u 1,y- * it-tH States dollar itself, domestic wage- . * ;Aa us 'antian a general tension in international 1 U a e c 0 1 * £a\ con«n hi‘ At h^ "l\e c *** aw ocn^r aB A nS " i ab'dihes - dte»*** rti&lelad° '.n wYneh performance was demandet a VeeaT ^IdnS^: <*** W VAS ~ >’' ‘ Ollf,ul onr OHlU»contingencySv„, v plans «#w* and forsvard- u f try,atld - - *»' auS oi the past were finally put to the rea ft, cie M wt>oh r-Hons. our ^ 9ll. whb « , ns 0C report that wir Comwan. ha:.^£u d° lvVide eo ' ^pa-nV & i0 eaSed P \ pl n.sts with stiliySnotVier year ot recot' aU>a b c 1 AiogS— „ mconit”and earnings per share be- tran^ $ * " ue jrrtfl teve« ’ xhis is the twelfth consecutive rdinar I^*tf*° ch results have been achieved byjyo^ ^ W^ ,ote. * i^6,ip^ty^Tis also interesting that tins record cai U fPvaift^ l\# nVuncd through three so- h test ^ that foJ. \l ^ ^ \ vi vveha -^ Men# ;v. ,nanageioe«t C0anrmh ^irU > ^ ,9^b u wxuv m1***.**^ind that— - the reason, t«r « uo <1\’ 6^^ b; "n °U a-to perform • ■ under tt>r adverse as "weV Wehav- ^ ^dvvbb- A. „«nvmlv tlH insult of «®T We keep repeating ourselves.

It's getting to be a familiar story. before the extraordinary charge, not include Chilean operations nor In 1971, we again achieved new amounted to $3.45, compared with the premiums and revenues of the record levels in consolidated sales restated earnings per share of insurance and finance subsidiaries. and revenues, net income and $3.14 in 1970, an increase of 10%. This would amountto$1.5 earnings per share. The special non-recurring charge billion for the year, and represents Worldwide sales and revenues was equivalent to 60 cents per share. an increase of 15% over the totaled $7.3 billion, a record comparable 1970 results. Increase in dividends high and an increase of 13% over Annual report available the 1970 sales and revenues of For the eighth consecutive year, $6.5 billion as restated to include the dividend on the common You will find these and other companies added through pooling stock was increased, reaching a new results detailed in our 1971 annual of interests. annual rate of $1.19 per share, report. within the limitations of the Wage For a copy, write: Director of New high in income and Price program. Investor Relations, International Consolidated income reached a At the close of 1971, ITT's man- Telephone and Telegraph new peak of $407 million, before ufacturing backlog had reached Corporation, 320 Park Avenue, the extraordinary non-recurring a new high of $2.8 billion, New York, N.Y. 10022. charge of $70 million to cover the compared with the record level uninsured portion of our investment of $2.3 billion, as restated, for 1970. in Chile. Such earnings increased Capital expenditures for plant 12% over the restated 1970 net and facilities amounted to $654 income of $363 million. million, marking the third year in On a per-share basis, after which such outlays exceeded $500 recognition of all common stock million. ITTSERVING PEOPLE AND NATIONS EVERYWHERE equivalents, earnings for the year. The sales and revenues figures do AMERICA alt ! 34 ON $1.17 A DAY. '^yii

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RE:

THE FOREIGN SERVICE ILLUSION

OTHER observers have treated with varying degrees of nently solvable problems, a substructure of feelings, intelligence the objective or quantifiable problems of the traditions, and rarely whispered conventional wisdoms modern Foreign Service; i.e., problems of management, which, insofar as they do not lead themselves readily to problems of staffing and personnel development, prob¬ “management-reform” solutions, may subvert any at¬ lems of the use of modern and scientific techniques to tempt to genuinely reform the Foreign Service from improve in-house operations. However, there lurks be¬ within and may, in this officer’s opinion, make it difficult hind this superstructure of quantifiable, and thus immi¬ for the State Department ever to regain the pre-eminent

ly not surprising that a great eign service people dip into their :ets to he sure that Security heir moving and storage problems.99 —consensus of many letters we have received.

if its 80-year history, Security has been the odds-on f top U.S. Government officials, both civilian and mill- yell as the leading diplomats of most foreign countries d in the Washington area. ’s only one reason for this. Security does a better job— re careful job which assures this group of knowledge- : and widely travelled people that Security will perform yell as and probably better than any moving and stor- company in the world. ou’ve never used Security, may we suggest that you ply inquire among your colleagues. You’ll get the iver far more quickly than if you visited us and took a ducted tour of our eight immaculately kept and con- itly situated locations. me, write or cable us. When you use Security, you get irity.

jSfrurify jSf'orag? (Jompan|j TEL. (202) 234-5600 I of tUashingfon CABLE: STORAGE PHILIP LARNER GORE, President 1701 FLORIDA AVENUE, N.W. WASHINGTON, D.C. 20009 y r. FOREIGN SERVICE JOURNAL, June, 1972 Quiet Diplomacy: 1972 GRAN TORINO (Quiet...Because it’s a Ford)

Gran Torino. The most changed And you pay no U.S. excise tax on tribution Operations, Ford Motor automobile in the mid-size class. any American-made Ford Motor Company, 153 Halsey Street, Computer-tuned to eliminate noise. Company car when shipped Newark, N.J. 07102. Telephone— Computer-tuned to provide a plush, abroad. For full information: 643-1900. From New York, tele¬ phone—964-7883. quiet ride. Beautifully quiet. Like it In the Washington area, contact or not . . . when you drive a 1972 Diplomatic Sales, Ford Motor Com¬ Gran Torino you have to be quiet pany, 9th Floor, 815 Connecticut FORD • TORINO • THUNDERBIRD MUSTANG • MAVERICK • PINTO about it. Quiet... because it'sa Ford. Ave., N.W., Washington, D.C. MERCURY • MARQUIS • MONTEREY 20006. Telephone-298-7419. As with all Ford-built cars, you MONTEGO • COUGAR • COMET can order your new Gran Torino In the New York area, contact LINCOLN CONTINENTAL now at full Diplomatic discount. Diplomatic Sales, Overseas Dis¬ CONTINENTAL MARK IV voice in foreign policy decision-making. It is this senti¬ access to confidential, governmental decision-making, mentally determined substructure from which derives the and do have the feeling that they are part of an “Foreign Service illusion.” intrinsically important process—that of foreign policy The Foreign Service illusion represents a collection of formulation diverse, subjectively determined feelings shared by many However, these feelings, which in themselves are not Foreign Service officers which, sadly enough, tends to be necessarily harmful, are the groundwork for a more based upon an ultimately hubristic view of their own pervasive and, as implied, ruinous professional pride merits and undertakings. Hubris, the ruinous sort of which is the essence of the Foreign Service illusion. It is over-vaulting pride and insolence which the ancient professional pride tinged and oftentimes transformed by, Greeks scorned above all else, is ever present in much of the meanest sort of self-righteous sectarianism and what the Foreign Service does and thinks on a daily hubristic insolence that is the bane of today’s Foreign basis. Ostensibly, this is not difficult to understand if one Service. These feelings often translate into the assertion takes into account the background of most Foreign Serv¬ that, if only the State Department and its officers had the ice officers. In spite of many, most laudable recruitment power and influence which they rightly deserve, the reforms in recent years, one is forced to acknowledge, solution of most of this nation’s foreign policy problems however painful this may be, that Foreign Service would be rapidly forthcoming. It is this over-vaulting officers, by virtue of their background, life styles and confidence in its own ultimate wisdom that is the essen¬ above all, education, still see themselves as an elite tial weakness of the Foreign Service and which, inciden¬ which has quite selflessly given up opportunities to tally, has made power shifts to the White House staff, succeed in other, more lucrative professions in order to the Treasury, and others, all the more difficult to bear. render service to the nation. This tendency towards Not only professional pride has been hurt, but the professional elitism is reinforced by the diplomatic hubristic basis of the Foreign Service mentality has also routine itself, with its superficial glitter and sometimes been stung to the quick. inspiring glimpses of governmental power in action. The The reality and routine of the Foreign Service is, fact is that Foreign Service officers do often live a more however, often somewhat different than most Foreign interesting life than that, say, of a worker on an assembly Service officers would be inclined to admit publicly, line or even that of a member of one of our larger although many privately realize this to be the case. corporations. In addition, Foreign Service officers do Except for the most exceptional circumstances and, per¬ sometimes come into contact with important haps, for the most senior officers, the Foreign Service United States or foreign political personalities, do have routine is, when stripped of its glamorous illusions, just BHOW to order wines you can serve with pride and confidence. If you buy for Embassies or other American fine varietal wines are always available for delegations abroad, you will want a copy your needs from this noted Napa Valley of our specially prepared “Export Guide” to vintner. We offer complete service any¬ The Christian Brothers Premium California where in the world. Wines. A superb selection of California’s r CHARLES J. CANDIANO, DEPT. F.S. FROMM AND SICHEL, INC. 1255 POST STREET SAN FRANCISCO, CALIF. 94109 Please send me a copy of your “Export Guide” to The Christian Brothers premium California Wines for foreign service buyers.

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8 FOREION SERVICE JOURNAL, June, 1972 OUR PRESIDENT HAS A SOFT BERTH FOR THE FOREIGN SERVICE.

When you're assigned entertainment and time to Take your pets along too! to the Orient — the only unwind in the warm sea Next time the Govern¬ rule about getting there is breezes. Brush up on your ment sends you to the that you must go by a U. S. ping-pong, soak up the sun, Orient (or brings you back) flag carrier. swim, dance or stroll the talk to your Transportation Why not go by ship? moonlit decks. You'll meet Officer about American You and your family can interesting friendly people President Lines and leave travel to your next assign¬ to be remembered long it to us to get you shipshape ment in the Orient in after you reach port. for your next assignment. comfort and safety on our Where will your President Wilson or Presi¬ children be while all this is dent Cleveland. Arrive going on? Enjoying super¬ American there refreshed after a well- vised crafts or games and earned two or three weeks their own shipboard enter¬ President holiday en route. tainment. We'll take them Your ticket covers off your hands and keep Lines almost everything — first them happy for hours at class accommodations, a time. round-the-clock service, Bring 500 pounds of gourmet dining, exciting baggage per adult fare, eoi California Street, San Francisco, California 94108 Ships of U. S. Registry that—-a routine, little more. Reports are prepared, opinion of self that has contributed forcefully to the contacts are made, changes in position are noticed—and ruinous pride that is the hallmark of today’s Foreign are compiled to form part of the professional gossip Service. It is this particular form of personalized hubris of the telegram traffic which crosses the Foreign Service that must be eliminated if the State Department is ever officer’s desk each morning. Abroad, much of what the to play a significant role in the formulation of this Foreign Service officer does is make work, designed mere¬ nation’s foreign policy. ly to insure his continued bureaucratic livelihood, or, The shattering of the Foreign Service illusion cannot through various ruses, is designed to catch the eye be brought about by normal bureaucratic solutions. Clev¬ of someone in Washington. Probably all of us, at one time er personnel or management reforms will not get to the or another, have been part of the upward classification heart of what is subjectively wrong with today’s Foreign ritual—a sign, par excellence, of professional hubris. Or Service. Rather, in psychological terms, what is needed is we have witnessed the pathetic instance of an officer, his a form of collective catharsis that will force each officer telegram repeating essentially what is already public to place his individual contribution and that of the knowledge, searching for some piece of gossip or not Foreign Service as a whole in the proper perspective in widely known speculation to include as commentary to terms of the formulation of United States foreign policy. “spice up” his efforts. Or should we not, in our heart of The Foreign Service must first, as a collective body, hearts, recognize that much of the typical Foreign Serv¬ acknowledge that it is not in possession of ultimate ice officer’s time is spent serving others in the bureau¬ wisdom in foreign policy and that there may be some, cratic structure, plowing through the normal mass of indeed very substantial reasons, besides the personal extraneous paper crossing his desk, or facilitating visits, Nixon-Kissinger relationship, for the gradual accumula¬ exchanges, etc.—activities somewhat estranged from the tion of influence by the NSC staff. It may be necessary to superficial glamour of the diplomatic life. recognize that, both individually and collectively, the The tragedy is not that the typical Foreign Service Foreign Service has been responsible neither to the officer’s actions are, for the most part, routine; this can needs of the President nor to the needs of a modern only be expected to be the case in any bureaucratic foreign policy. Finally, each officer should strive to strip structure whether it be that of the Department of State, away the pretentiousness which, in all likelihood, has the CIA, or even the White House staff. It is, however, increasingly pervaded his conception of his daily routine tragic that so many Foreign Service officers should take and his place in the web of interacting individuals and their jobs and the contribution that they feel they make agencies that formulate US foreign policy. There is, in so seriously. It is this misplaced seriousness and inflated short, a need for individual humility if the Foreign Service

Your New AnnottntiiKg Mercedes-Benz vZV a very inferring af+erncrteC* Overseas or Stateside: to Southern Ca\ifomidAzoffmiFbridci ordSouihern Arizona Easy to arrange—here. Easy to enjoy—there. Just stop in to see us about the time you get your overseas For at least ninety years, The information we will orders. You can test-drive various Mercedes-Benz models, and our neck of the woods has send you may very well decide which one is just right for you. Then select the color, been a closely guarded change your mind about trim and options you want. And that’s the hard part. The rest private secret among the where you go to finally we do. knowing few. (And not just settle down or establish a because of our low tax new base for your goings Our Overseas Delivery experts will schedule delivery almost rates). We count 14 golf and comings. We hope so. anywhere in the world. And handle all the details—documenta¬ courses, enough tennis Drop us a line. Or call. tion, licensing, insurance, the works. courts and more bridle Or come down and As a member of the foreign service your diplomatic discount paths and trails than a inspect will save you money. thoroughbred hunter Come in today and we’ll figure out exactly how much you can can cover in a year. Now we have a condo¬ save. Or mail the coupon below for your free guide to overseas minium type community delivery. It has all the facts, plus a handy worksheet to help of charming one, two, three you to compute savings on the model of your choice, equipped and four bedroom homes the way you want it.

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10 FOREIGN SERVICE JOURNAL, June, 1972 You’d think Oldsmobile built this one espe¬ could pay a lot more for a lot less car.” cially for service with the Foreign Service. The respon¬ Now add the edge you enjoy with General sive Rocket V-8 engine runs on no-lead, low-lead or Motors service for the Foreign Service. Like local de¬ regular gas. The body by Fisher is strong and dirt-tight livery from an authorized General Motors dealer—even with guard beams in every door. Rust resisting front if you ordered your car in another part of the world, fender liners. Anti-corrosion battery. Heavier finned with exactly the color, equipment and op¬ front brake drums for cooler operation. Aluminized tions you specified. Reliable General Motors muffler and tailspout. Bias-ply belted tires for longer parts and service are available anywhere in tread life. Olds calls all this “the Oldsmobile Edge” the world, too. A great car and great service and puts it on the Cutlass S at a price that says:“You to give our customers the edge...every where. OLDSMOBILE AWVS A STEP/1HE AD

General Motors Overseas Operations, 767 Fifth Avenue, New York, N.Y. 10022, U.S.A. as a whole is ever to succeed Nor would an FSO’s view of the Service’s “eliteness” Ironically, it may be that the wounds of pride and the necessarily be mistaken. Although the Foreign Service perceived loss of general influence will do more than any does not possess “ultimate wisdom” about foreign affairs, vague prescriptions for improvement to stimulate mental the fact remains that a good FSO does possess a deeper catharsis and the transformation of the Foreign Service. expertise on India, Pakistan, or whatever his specialty This is to be hoped. If the State Department is ever to be than most if not all others about town. a viable contributor to foreign policy formulation, the The real problem is: why does the FSO not act as hubristic bases of the Foreign Service illusion must, though he were part of an elite? Why does he so often ultimately, be shattered. JAMES G. HUFF run scared? It could be that precisely the opposite of what Mr. Foreign Service and “Hubris” Huff alleges is actually the case. The feeling of “elite¬ ness” may be running a bit too anemic. The mirror- JAMES G. HUFF has cut very close to the bone with his image opposite of Mr. Huff’s “professional hubris” is “es¬ communication on “professional hubris.” Taking a differ¬ prit de corps,” and in an “elitist” outfit, like everything ent approach from that of “organizational ' ineffec¬ else in the universe, one should expect to find both such tiveness,” which has been worked over so exhaustively, matter and anti-matter. he concentrates on a subjective or “personal ineffec¬ Just to begin with, it is too clear that the Service today tiveness” view of the individual FSO, who lives, in Mr. lacks the loyalty-up-and-down characteristic of organiza¬ Huff’s view, under an illusion. tions with true esprit de corps. To put it bluntly, how Yet, I think Mr. Huff misses the point entirely. His many officers can be truly effective knowing that neither central assumption, that an individual is psychologically the System nor, often, their immediate superiors, will hampered by the belief that he is part of an important back them up? but neglected “elite,” runs quite contrary to historical In effect, the “pretentiousness” which Mr. Huff ob¬ experience and hardly explains the effective performance serves is probably defensive, a face-saving device, rather of such super-elites as the British Colonial Service, our than manifestation of an “elitist” mentality. He is right in Submarine Service (particularly during World War II) that the Service needs a “collective catharsis,” but what or, for that matter, the Marine Corps. And what “elite” it needs, on the individual level, is not another dose of has not had to struggle against other elements in its “humility” but a tonic to raise the individual from a bureaucratic environment, being occasionally thrust aside supine position. or put down in the course of events? AMBLER H. MOSS, JR.

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Q ^^INCE World War II the pros¬ The world community has a spe¬ especially the United States—are pect of new riches from the oceans cial stake in the forthcoming con¬ viewed by many coastal states as and seabed—and the fear that oth¬ ference by reason of the Interna¬ mere harbingers of selfish exploita¬ ers might appropriate them first— tional Decade of Ocean Explora¬ tion. Twenty years ago an oceano¬ has led to a succession of unilateral tion. This cooperative international graphic research vessel had free run encroachments upon the free spaces research effort, inaugurated by the of the high seas up to territorial of the ocean without precedent in UN in 1970, has as its primary goal limits—in most cases three to six international law. Politico-legal expansion of man’s knowledge of miles from shore. Today, the same norms that were once the exclusive marine resources and the marine vessel risks harassment or detention concern of the great maritime pow¬ environment. The programs being if it comes within 200 miles of shore ers are now undergoing clamorous conducted by different universities or collects data from continental challenge by the countries of Asia, and oceanographic institutions all shelves without fulfilling consent re¬ Africa, and Latin America. Just over the world include collection quirements imposed by the coastal how fundamental oceanographic re¬ of accurate base-line data on glob¬ state. Even when permission is nor¬ search will fare in the forthcoming al levels of marine pollution, map¬ mally granted, advance notification Law-of-the-Sea Con¬ ping of the seabed and assessment requirements have grown more rigo¬ ference, to be held in 1973, should of its resources, and analysis of rous, and red-tape has imposed pro¬ be of vital concern not only to the ocean currents and their effects hibitive delays. Brazil, with its scientific community but to every¬ on weather and climate. These lengthy coastline, requires foreign one concerned with the rational use studies have already yielded invalu¬ applications for continental shelf re¬ and development of the marine en¬ able information about the seabed search to be submitted six months in vironment. and oceans. Nevertheless, the data advance accompanied by impossibly gathered will be defective and in¬ detailed routing information. In complete if derived from deep over a dozen instances US oceano¬ ocean areas alone. Science requires graphic expeditions, all engaged maximum access to every corner in non-commercial research intend¬ of the ocean, and this is being de¬ ed for open publication, have nied. actually been refused permission to Charles Maechling, Jr. is legal adviser For the last decade, research operate over foreign continental for international matters to the National close inshore and over continental shelves. Science Foundation and the National shelves has encountered mounting Until World War II the juridical Academy of Sciences. He was Director for Internal Defense and Special Assist¬ resistance from the developing status of the oceans and seabed had ant to Undersecretary Averell Harriman countries. Research vessels of the remained comparatively stable for in the Department of State, 1961-67. advanced industrial countries— 300 years. The freedom of the seas

FOREIGN SERVICE JOURNAL, June, 1972 17 beyond territorial waters was uni¬ lateral appropriation of the free ing the Six-Day War. Six more versally accepted, subject of course spaces of the ocean or seabed was Latin American countries joined the to the exigencies of warfare. Most increasingly relied upon by nation¬ 200-milers, and India, Pakistan, coastal states adhered to a three- alistic coastal states to justify the Ceylon, and Ghana claimed 100- mile limit for their territorial waters, most extravagant assertions of sov¬ mile exclusive fishing zones. More thereby leaving free passage in in¬ ereignty. American fishing boats were con¬ ternational waters through all but a From a law-of-the-sea conference fiscated on the high seas. The few straits and archipelagoes. The held in 1958 there emerged four island nations of Indonesia and the coastal seabed had no economic sig¬ international agreements—on the enclosed their ar¬ nificance except for fishermen, oys- High Seas; the Continental Shelf; chipelagoes within territorial waters. termen, and crabbers. National jur¬ the Territorial Sea and Contiguous Canada enacted the Arctic Waters isdiction over the seabed was Zone; and Fishing and Conserva¬ Pollution Prevention Act of 1970, thought to coincide with jurisdiction tion of Living Resources—which unilaterally asserting the right to over the superjacent waters; when codified large areas of international establish anti-pollution standards in in 1953 Congress passed the Sub¬ law. Nevertheless, the most signifi¬ international waters north of the merged Lands Act, reversing the cant effects of the conference flowed 60th parallel. By 1971 only 26 Supreme Court decision which took from its failures. By one vote the countries, including the United away title to submerged lands below conferees failed to reach agreement States, still adhered to the three- the territorial sea from the states, on a six-mile territorial sea, thereby mile limit; nearly 50 countries had the effect of the Act was generally leaving the way open for another shifted to 12 miles. Everywhere in confined to no more than three wave of unilateral extensions. And the world the free spaces of the miles from the coast. in the Convention on the Continen¬ ocean were shrinking, and with it In September 1945, however, tal Shelf the conferees failed to set a the opportunities for advancing President Truman issued a procla¬ seabed boundary rigorously defined man’s knowledge of the marine en¬ mation asserting US sovereignty in terms of depth or distance. In¬ vironment. over the natural resources of the stead, the Convention set the sea¬ The concern of a vast number of United States continental shelf— ward limits of national jurisdiction nations, both developed and less which an accompanying press re¬ at 200 meters, “or beyond that limit developed, over the threat of un¬ lease defined as an area contiguous to where the depth of the super¬ bridled exploitation of marine to the coast, extending to a depth of jacent waters admits of the exploita¬ resources, unrestrained assertions of 600 feet. The Truman Proclamation tion of the said areas.” New deep- sovereignty, and use of the seabed was rationalized on the ground that sea drilling techniques soon made for the placement of nuclear weap¬ the national interest justified a claim this definition open-ended. No one ons came to a head in the summer that the submerged extension of the could say what the ultimate bound¬ of 1967 when Malta asked the continental land mass was the ary of the legal continental shelf United Nations to consider a pro¬ rightful property of the coastal state. would be, except that it would posal reserving the deep ocean floor The Proclamation was implemented march seaward as technology pro¬ beyond the limits of national juris¬ by enactment of the Outer Conti¬ gressed. diction for peaceful purposes and nental Shelf Lands Act which picked The 1958 Continental Shelf Con¬ for the benefit of all mankind. A up exclusive jurisdiction for the vention also attempted to safeguard special UN Seabed Committee con¬ Federal Government where the off¬ scientific research. Section 1 of Arti¬ vened to study the matter agreed shore jurisdictions of the states left cle V of the Convention prohibits that the resources of the deep ocean off, and carried it seaward to an “any interference with fundamental floor beyond national jurisdiction undefined limit. The Act also set up oceanographic or other scientific re¬ should be the “common heritage” of a system for Federal leasing of min¬ search carried out with the intention mankind, but was unable to resolve eral rights in the vast new area. of open publication.” However, this two key questions: what should be The 1952 Declaration of Santi¬ language is qualified by Section 8 the appropriate limits of coastal ago, in which Peru, Ecuador, and of the same article which inserts a state jurisdiction, and how should Chile proclaimed exclusive jurisdic¬ requirement for coastal state con¬ the mineral resources seaward of tion over ocean and seabed to a sent and, in the case of research these limits be administered for the distance of 200 miles from the conducted by a qualified institution, benefit of the world community? coast, was the direct and avowed the right of the coastal state to After three years of internal de¬ consequence of the Truman Procla¬ “participate or to be represented in bate the position of the United mation. Shortly thereafter occurred the research.” Within a few years States on these issues was an¬ the first seizures of foreign whalers this ostensibly blameless, and even nounced in a lengthy statement on and tuna boats. Various countries praiseworthy, provision opened the ocean policy delivered by President extended their territorial waters first door to the most pernicious kinds of Nixon on May 23, 1970. In August to six and then to 12 miles. Other bureaucratic delay, interference and 1970 this was supplemented by a countries began to assert exclusive obstruction on the part of nation¬ more specific US proposal in the fishing rights well beyond these lim¬ alistic regimes. form of a draft Convention for the its. Henceforth, the principle—first Meanwhile, freedom of the su¬ international seabed area which was enunciated by the world’s greatest perjacent waters also deteriorated. tabled as a “working paper” at the sea power—that national interest Early in 1967, Egypt closed the Geneva meeting of the UN Seabed alone is sufficient to sanction uni¬ Straits of Aqaba, thereby precipitat¬ Committee.

18 FOREIGN SERVICE JOURNAL, June, 1972 The US proposal called for attempt by the United States to ter¬ serting them in different form—as renunciation by all nations of claims minate unilateral assertions of na¬ an “exclusive economic zone,” to seabed resources beyond the tional jurisdiction over the high seas which would include control over depth of 200 meters; for these and seabed; to stabilize the limits of scientific research. Subcommittee III resources to be the “common heri¬ territorial waters and seabed at 12 of the UN Seabed Committee, tage” of mankind; and for an inter¬ miles and 200 meters, respectively; which is responsible for scientific national trusteeship zone for miner¬ and to satisfy the concerns of the research and marine pollution, gave al exploitation from the 200-meter less developed countries by awarding little attention to safeguards for the depth to the edge of the continental them a monetary share in any pro¬ former and spent most of its time on margin in which exploration and ceeds from mineral exploitation sea¬ the jurisdictional aspects of pollu¬ exploitation of resources would be ward of 200 meters. It was hoped tion, a subject of more immediate under the effective regulatory con¬ that the prospect of substantial rev¬ popular concern and one that ties in trol of the coastal state as trustee for enues would make the less de¬ directly with the territorial sea ques¬ the international community. It veloped countries more amenable to tion. made provision for allocation of compromise on the key issues of To most governments, including substantial mineral royalties from boundary, international straits, and that of the United States, the expan¬ the trusteeship zone to an economic the right to assert unilateral claims. sion of scientific knowledge seems assistance fund for the less de¬ On this score the United States was peripheral to the central issues of the veloped countries, while beyond the soon to be disappointed. forthcoming Law-of-the-Sea confer¬ continental margin all mineral ex¬ From 1970 to 1972 United States ence, especially seabed boundary, ploration and exploitation would be ocean policy suffered a series of seabed regime and conditions of under the control of a new interna¬ rebuffs. Continuing seizures of passage through international straits. tional seabed authority. In the in¬ American fishing boats by Peru and For this reason, its legal status runs terim, coastal state leasing would Ecuador demonstrated once again considerable danger of being bar¬ continue. the incapacity of the United States gained away. Hence, every aspect In a parallel move, the United to safeguard its vessels on the high of the forthcoming negotiations States for the first time accepted the seas, either by diplomacy or naval which impinges on the very qualified 12-mile territorial sea as the only protection. An ill-conceived move freedom which research now enjoys compromise realistically attainable, by the State Department, under under international law deserves but subject to the condition that goading by the Pentagon, to force anxious attention. there be free transit through straits Canada into a conference on the As regards the US position, the that would otherwise cease to be Arctic aimed at internationalizing its protection accorded to oceanograph¬ international waters. We also ac¬ Arctic anti-pollution legislation, was ic research can hardly be described cepted in principle the concept of coolly checkmated. A United States as satisfactory. To the extent that preferential fishing rights for coastal effort to get the United Nations to the US draft treaty already alluded states beyond the 12-mile territorial agree on a set of principles to gov¬ to is still a factor, Article 3 is entire¬ sea. ern the seabed negotiations, which ly too vague, while Article 24 does The United States draft treaty should have included freedom of not contain the same absolute prohi¬ also sought to safeguard scientific scientific research, terminated in bition against interference with research. Article 3 of the draft trea¬ passage by the General Assembly of scientific research as is set forth in ty declared the international seabed a pallid resolution (A/Res/2754, of Section 1 of Article V of the Conti¬ area open to use by all states except December 17, 1970) which merely nental Shelf Convention. The ab¬ as otherwise provided in the text—a endorsed international cooperation sence of a clear line of demarcation catch-all provision intended to in scientific research. between open research and all other provide access for all uses, including The UN preparatory meetings for kinds of research and exploration military, not connected with com¬ the 1973 Conference, held in New positively invites rejection of Article mercial exploitation. Article 24 of York and Geneva in 1971 and 24 by the developing countries. the draft treaty provided that each 1972, provided an ominous augury Nor does the United States seem contracting party would agree “to for both the US position on freedom prepared to make a strong defense encourage, and to obviate inter¬ of the seas and non-interferrence for freedom of scientific research. ference with, scientific research.” with oceanographic research. In the The generalities from time to time Scientific research, however, was general sessions, most important expressed by US spokesmen on this deliberately left undefined—and the coastal states continued to insist that point offer only marginal comfort. key words “conducted with the in¬ even with the territorial sea extend¬ At the time of passage by the UN of tent of open publication” were omit¬ ed to twelve miles, vessels passing Resolution 2749, which contained ted. With the vital distinction now through straits, archipelagoes and the anodyne language endorsing in¬ blurred as between open research coastal waters must observe the re¬ ternational cooperation in scientific on the one hand, and military re¬ quirements of “innocent passage” research already alluded to, the US search and commercial exploration (i.e. coastal state control) rather representative, in voting for the on the other, Article 24 was left than have the right of free transit. Resolution, stated that implicit in open to the most invidious interpre¬ Brazil, Peru, Chile, and other Latin the obligation to promote cooper¬ tations by the developing countries American and African states only ation was an undertaking on the —and with good reason! modified their extravagant jurisdic¬ part of states not to interfere with The draft treaty was an ingenious tional claims to the extent of reas¬ (Continued on page 40)

FOREIGN SERVICE JOURNAL, June, 1972 19 The Stockholm Conference- What Does It Mean?

FITZHUGH GREEN

THI:I HIS month marks a first in man’s long history—he (most of the na¬ tion states) will gather at Stockholm to discuss how to preserve the deli¬ cate supply of air, water and earth we call our biosphere—something we all share and mistreat. Foreign Service people on duty overseas have heard natterings about the Stockholm Conference on our threatened environment. We resident Americans have been treated to press comment about it for the past two years. Indeed, the news media lead us on the home front to look to Stockholm as a meld of Armageddon (against pollution) and the Second Coming (of clean seas and skies). Thoughtful Americans at home and abroad are wondering—what does it all mean? Will, or can Stock¬ holm conferees take decisions that will put a stop to planetary pollu¬ tion? Are American idealists going to be cut down by cynical diplomats who see the depollution movement as a rich-nation plot to impede economic growth of the poor coun¬ tries? Is the United States itself real¬ ly committed to a clean environ¬ ment? Or only to a fad that will fade? The prospects for Stockholm sound a little like the Versailles Conference and the League of Na¬ tions. Suppose we persuade reluc¬ big industry polluters in the United In short, what is the prognosis for tant nations to join our ecology States then kill this dream as the this huge, humanitarian conclave, kick, as we did our League kick. Senate snuffed out President Wil¬ which, if some don’t back out in Will opposition from big city and son’s? I don’t believe so, but the protest over East ’s non- recollection of Versailles leads me attendance, will draw 130 partici¬ Fitzhugh Green is a former Foreign Serv¬ to start this brief assessment of pant nations? ice Information Officer, businessman, Stockholm with a caution—don’t Sweden suggested the Conference oceanography adviser to a United States expect too much; you may be dis¬ in 1968 to focus government and Senator, Congressional candidate and illusioned. public attention on the budding en¬ freelance writer. Now Associate Adminis¬ Let’s be practical. What, for ex¬ trator of the United States Environ¬ vironmental crises. The Swedes mental Protection Agency, he is an offi¬ ample, are national attitudes toward also sought to coordinate the multi¬ cial participant in the US Delegation to the alleged threat to our biosphere? ple, sprawling activity of several the Stockholm Conference on the Flu- How well prepared are national UN Specialized Agencies—each of man Environment. Not surprisingly with governments to take corrective ac¬ which was trying to assume ,the total this wide background he has given tion, both political and technical? role of purifying the environment. JOURNAL readers an authoritative, multi¬ dimensional glimpse at the complex en¬ What can we expect to happen at The UN General Assembly unan¬ vironmental doings in Sweden this month. Stockholm, and afterwards? imously endorsed the Conference

FOREIGN SERVICE JOURNAL, June, 1972 and decreed a 27-nation Preparato¬ doesn’t overlook any good ideas, sisting it is fine for industrialized ry Committee (PrepCom) to get it Secretary of State William Rogers nations, but irrelevant for underde¬ rolling. (America’s PrepCom Dele¬ asked Senator Howard Baker of veloped ones, except as a threat to gation has been led by the able Kentucky to form a representative economic growth. Assistant to the Secretary of State advisory committee. This he has Yet in Brazil one can find a [for Environment] Christian A. done, and held hearings around the broad constituency that palpably Herter, Jr.) country to collect significant view¬ thinks otherwise. Last August a The PrepCom has met four times, points as to what we should strive congressional commission staged a and its subcommittees more often. for at Stockholm. conference in the House of Rep¬ Conference Secretary General Mau¬ Every nation has befouled its sur¬ resentatives at Brasilia. More than rice Strong’s staff has collected 12,- roundings to some degree, or 300 prominent citizens of many 000 pages of scientific comment. suffered from man’s Yahoo depre¬ walks of life came and presented In the process, the world has bared dations committed beyond their their positive views. I was privileged numerous clues to its attitudes and boundaries. Even in paradisical to speak for the United States and abilities regarding pollution abate¬ Eleuthera, Bahamas, where I’m was then questioned by the audi¬ ment. writing this piece, one little seaside ence for two hours. In the United States, as we begin village pumps raw sewage into its The futuristic Brasilia itself shows to understand the price of protecting picturesque bay, whereupon the eloquently how to avoid the urban nature against man, a confrontation prevailing, on-shore breeze blows a mess that plagues us moderns. It is shaping up between ecologists and dreadful scent back into the town, stands unique in the world today as those responsible for economic and the tourists out of it. And ever¬ the only city with no visible air, health both in business and govern¬ present tar, sent gratis from thought¬ water or solid waste pollution. And ment. The United States Environ¬ ful tanker captains flushing oil tanks in Sao Paulo the government is now mental Protection Agency (EPA) at night, mars the lovely, pink coral cracking down on industrial bad says that corrective measures in the sand. boys—to the extent of closing 50 first half of this decade will run Yet despite the commonality of factories that refused to obey mu¬ higher than $105 billion. Noting the such problems, only seven counter¬ nicipal regulations. cost/benefit ratio, EPA also stresses parts to EPA have been set up: In This ambivalence doesn’t typify that air pollution damage alone Canada, Japan, The United King¬ the less prosperous nations. They adds up to an annual $16 billion in dom, Sweden, Germany, , complain they simply can’t afford to ruined crops, destruction of materi¬ and Holland. A more hopeful note waste development money fiddling als, deterioration of buildings, and comes from Dr. Lee Talbot of the around with a peripheral issue like man-days lost through pollution- Council on Environmental Quality dirty cities. Poverty hurts more than related illness—not including medi¬ who has visited over 90 nations. He pollution, they aver. One speaker cal expenses. says most of them have now estab¬ put it vividly: “Would you snatch a However the ultimate cost bal¬ lished some sort of governmental crust of bread from a starving child ance turns out, America has already machinery to deal with eco-upsets. just to give him a breath of fresh acquired a hearty appetite for refur¬ In the PrepCom sessions delega¬ air?” bishing our natural habitat. At least tion members trampled each other We don’t have all the answers to we have a solid core of eco-freaks. to be first in bewailing environment this poignant if misleading query. One tiny indicator resulted from an ills. But when brought to the point But we can all agree no one should ad about ecology in TIME maga¬ of changing old policies or spending have to make such a choice. Proper zine’s domestic and European edi¬ new money, many proved bearish. urban planning should provide not tions. Purportedly, in the week after Only a few governments have only the means to survive but also a the issue appeared, 400 letters came taken firm, forward steps such as quality of life worth living. This is from American readers; in Europe Britain’s $3.5 billion river renova¬ an ambitious goal, particularly when the response totaled two letters. tion program. Or Canada’s $250 you consider Maurice Strong’s dis¬ Thousands of citizens’ ecology million pledge to improve the Great covery that the present rate of ur¬ groups have been generated. You Lakes. Or the Soviet Union’s re¬ banization in many emerging coun¬ don’t find such private interest any¬ cently announced $1 billion project tries far outjumps the experience of where else—except for the United to scour industrial wastes from the older, industrialized societies. And Kingdom and Scandinavia. House¬ Volga and Ural. And Japan’s spe¬ pollution’s cutting edge hits the in¬ wives, fraternal organizations, pro¬ cial Diet to weave a whole skein of ner city dweller first, in every na¬ fessional conservationists, teenagers, environmental legislation. We even tion. His children are bitten by rats even primary school children have hear that Communist China forbids attracted by uncollected garbage; boarded the bandwagon. Evidently manufacturers to operate their his family breathes the worst quality they have found the cause that plants until they can prevent toxic air soiled by vehicular traffic and creatures of the Judaic-Christian effluents and emissions. But all this industry, and they have contami¬ ethic demand to satisfy their souls. only thumbnails the surface of what nated water to drink when the mu¬ And they all want to go to Stock¬ is really going on. nicipal service breaks down. holm! Since the Conference is lim¬ Skeptical statements by national Criss-crossing the world for the ited to government officials, that is spokesmen don’t tell the whole story past year and a half, Maurice impossible. either. Brazilians in the UN have Strong has talked to thousands of But to be sure our delegation chivied supporters of Stockholm, in¬ city, state and national opinion

FOREIGN SERVICE JOURNAL, June, 1972 21 leaders. He has done much to others, like Britain in water man¬ concur on what time to hold the sweeten negative thinking on the agement, France in noise abate¬ coffee break, much less such road to Stockholm. This tireless ment, Germany in correcting river weighty matters as the survival of young (43) ex-industrialist from basin soilage and the Soviet Union mankind. But it is hard to prognos¬ Canada is a skillful salesman and in reduction of particulates caused ticate. There is a tide for accom¬ organizer. His talents and devotion by steel manufacture. plishment at this meeting, despite have maximized the Conference’s Outside of the United States the counter-currents I have men¬ chance of success. American experts serve on technical tioned. It’s not pessimistic to guess America’s official attitude toward panels of the Organization for that none of these ideas may be care of the environment has been Economic Cooperation and De¬ implemented, nor is it pollyannaish exemplary. In 1970 the President velopment, NATO’s Committee on to bet that one or two might win a created EPA out of 15 on-going but the Challenges of Modern Society, green light. disconnected Federal programs. He the UN Intergovernmental Mari¬ If total agreement to act can’t be determined to deal in an integrated time Consultative Organization, to reached, regional pacts on one or way with our biosphere, since it is a name a few. more topics are possible. At the very single, interrelating system. He ap¬ Russell Train, Chairman of the least, contacts among delegates can pointed Assistant Attorney General Council on Environmental Quality, lead to bilateral activities on a per¬ William D. Ruckelshaus to run makes numerous overseas initia¬ son-to-person or agency-to-agency EPA, which now has nearly 9,000 tives. He is popular and influential basis that may be the most practical employees with a budget of $2.4 both at home and in foreign capitals result. billion. as an architect of America’s envi¬ Just to have the world’s top envi¬ Early in 1970 the President sub¬ ronment-saving movement. Not sur¬ ronmentalists palaver together will mitted to the Congress 300 pages of prisingly he will head the US Dele¬ be useful. And mass communica¬ legislative proposals to strengthen gation to Stockholm. The Stock¬ tions media will project the ideas, EPA’s earth-keeping capacity. None holm Conference is a kind of people, and happenings of this have yet become law, but the con¬ world-wide examination for which great colloquy into the homes of troversial water quality control bill the students have not properly human beings everywhere. The cov¬ has reached the joint conference prepared themselves. As you can erage, regardless of what is done in stage. Other key measures ripening see from this short round-up of the Conference, will be a giant step toward final action concern ocean what national governments are toward educating people on this vi¬ dumping, pesticides, noise abate¬ presently doing and thinking about tal subject. ment and toxic substances. environmental worries, the record to How can we maintain the fine Along with these moves, the date is spotty. But nations are per¬ momentum of interest which the United States is hurrying to expand colating with change both in attitude Conference has already produced? current limits of science and tech¬ and know-how about the subject. President Nixon has advocated a nology. Much research remains un¬ Ready or not, participants will sit $100 million, jointly financed fund finished as to the extent and fix- down to an agenda that encompas¬ within the UN to ensure a followup ability of the pollution around us. ses every conceivable environmen¬ of decisions and directions taken There are conflicting doomsday re¬ tal woe: human settlements, natural at Stockholm. There are many ports by the Club of and resources, identification and control thoughts on what institutional set¬ some London scientists, as well as of pollutants, information and edu¬ up should handle post-Conference the UN sponsored Study of Man’s cation to build favorable public moves for global action. My own Impact on Climate (SMIC). Last opinion, economic development and view is that Maurice Strong’s super¬ year, for example, SMIC warned the environment, and institutional lative leadership should be retained that man, by misusing natural re¬ arrangements necessary to preserve along with the Conference’s tiny but sources, may be permanently alter¬ the biosphere. effective secretariat. ing the global climate, with dire And the delegations have to pon¬ United States Foreign Service results. der more than 100 action recom¬ officers and staffers also will have The United States is working to mendations on these agenda items, an opportunity to give a fair breeze encourage the rest of the world to which were submitted by member to whatever Stockholm directives share our concern about environ¬ nations. there may be. They can do so by mental degradation. Director Frank The most Significant action pro¬ learning as much as possible about Shakespeare has applied some of posals include: an international the subject and disseminating USIA’s worldwide communications convention on ocean dumping; a knowledge and enthusiasm in their horsepower to this effort. Foreign global monitoring network for both countries of assignment. Books, interest is increasing. In fact hun¬ air and water pollution; a world pamphlets, films and a constant cur¬ dreds of visitors now come annually heritage trust to maintain art and rent of news articles and features from other lands for briefings by our architectural treasures; and a dec¬ should be available through USIS specialists. laration of general intent on envi¬ for this purpose. At present we seem to rank ronmental care-taking. The end of the Conference will, ahead of most nations in pollution The chances for passage for this we hope, mark the beginning of a control capability, even those in the whole package seem slim. One hun¬ real pledge by man to stop mis¬ thoroughly industrialized category. dred and thirty sovereign delega¬ treating his one and only life sup¬ Nevertheless, we do learn from tions of six people each can hardly port apparatus on the planet Earth.

22 FOREIGN SERVICE JOURNAL, Jun-e, 1972 Baghdad nights and Baghdad days were punctuated with gunfire and loaded with suspense—in 1941

WILLIAM J. PORTER, in Collaboration with GORDON H. MATTISON and WILLIAM S. FARRELL

One of the little known crises of Ambassador, Sir Kinahan Corn¬ woman clad in the traditional abaya World War II developed in Iraq in wallis, when events had already and thick black veil descended and 1941. Overshadowed by larger clashes moved beyond the point of recall. was taken in by the kavass to Mr. of other armies and the march of The pro-Nazi Iraqi Rashid Ali, of Lawrence, the Legation’s dragoman events on other fronts, the Rashid dubious mental stability, had seized (a talented Iraqi Christian). Soon Ali coup d’etat in May of 1941 at¬ power on April 2. Lawrence appeared, as one of our tracted little attention, despite the fact Our knowledge of this had indeed members aptly put it, “quivering that if it had succeeded the Axis forces would have had bases on the been first hand. We started work like a jelly fish.” He gasped, “The Persian Gulf, the British lifeline to early on April 2—summer hours Regent is here and wishes to see India could have been severed, and they were called—but in times of His Excellency the Minister imme¬ Allied forces in Egypt completely out¬ crisis, extra long hours. A horse- diately.” In a few moments Law¬ flanked. drawn vehicle (arabanah) entered rence’s well-founded fears were fur¬ The importance of these events the Legation compound and drove ther enhanced, and he reappeared, has remained obscure, and even up to the Chancery entrance. A this time literally green in color and more so the key role played by United reported, “Sir, there are men with States diplomacy in support of the guns crawling across the wall.” British position and the successful This got our undivided attention, termination of a minor war which might well have turned the tide in and there was a quick rush to our favor of the Axis powers. The story, William J. Porter, now heading arms cabinet. Fortunately, the men “The Ides of May—Baghdad 1941,” up the peace talks, has served were members of the Regent’s loyal is the first-hand account of these as Ambassador to and Al¬ personal bodyguard, who had not events as written by three of the geria and as Deputy Ambassador to Vietnam. Ambassador Porter wished their entrance to the Lega¬ Foreign Service officers who were sta¬ entered the Foreign Service in tion to be observed. tioned in Baghdad at that time. 1937, after serving as secretary to The Regent had his problems, the American minister to Hungary and had placed them right in our in 1936-37. lap. He had been forewarned of William S. Farrell joined the I HE early months of 1941 wit¬ Foreign Service in 1929 and served Rashid Ali’s coup d’etat (engi¬ nessed the alarming development of at City, Addis Ababa, neered by four army officers—a pro-Nazi tendencies among the pop¬ Aden, Beirut, Sofia, Istanbul, Te¬ quadrumvirate which came to be ulation of Iraq, fanned and foment¬ heran and Cairo before the assign¬ known as the “Golden Square”) ment to Baghdad described in this ed by Arabic broadcasts from Ber¬ article. and that his life was in grave dan¬ lin and by secret German and Italian Gordon Mattison entered the ger. Having spent the night clandes¬ agents on the spot. A British Am¬ Foreign Service in 1937 and re¬ tinely on the west bank of the Tigris bassador who bore little repute tired at the end of 1969. His prin¬ River, he dared not cross the heavi¬ among his own colleagues and less cipal area of service was the Near ly guarded bridges, and had there¬ East, with posts in Baghdad, Basra, among others had frittered away Cairo, Beirut, , Teheran fore sought refuge in the American time when time was of the essence. and Calcutta. Legation. Minister Paul Knaben- He had been replaced by a strong Copyright © Jack K. McFall shue, in his planning, had not antic-

FOREIGN SERVICE JOURNAL, June, 1972 23 ipated this dilemma, but notwith¬ other cars.” The drive back, he told its base of support among the peo¬ standing this, his improvisations us later at the Legation, was ple was not strong, and that once were remarkable. He had to let the uneventful. He knew that he had the British established themselves in British Embassy (which had radio been more vulnerable on the return force, the rebel government would facilities) know that the Regent trip, for if the ruse had been discov¬ be toppled. Therefore the chances was, at least temporarily, safe. With ered, the frustrations of the Iraqi of precipitate Iraqi action were in¬ the Axis-oriented Iraqi army now military would have transcended creased. in firm control, it was essential that any of the slightly known and negli¬ Under this tenuous and delicate the Regent be taken to safety out¬ gibly observed bounds of diplomatic situation the decision was taken to side of Iraq. And above all, the practice. evacuate British and American Regent’s presence at our Legation Knabenshue was not a forthcom¬ women and children. This was ac¬ must remain a dead secret. Commu¬ ing man to talk to. We had the complished on -the afternoon of nication with the British Embassy impression that he intended to write April 29. Evacuation centered on was established in carefully phrased it all up later. Unfortunately, tragic the RAF base at Habbaniyah, telephone conversations. It was soon circumstances intervened, leading to whence they were to be flown out to established that the Embassy was so his untimely death at the zenith of Basra in southern Iraq the following closely covered by the Iraqi military his career. day. that it was impossible for them to The new British Ambassador, Sir The evening of April 29, Farrell, make any move that would safely Kinahan Cornwallis, arrived in Mattison and Porter made a recon¬ accomplish our joint objectives. Baghdad that evening and faced a naissance of downtown Baghdad to Therefore, anything that was to be virtually impossible diplomatic situ¬ get reaction to the evacuation move. accomplished had perforce to be a ation. Another purpose of this excursion totally American effort. Our re¬ Sir Kinahan’s assets derived from was to check Baghdad’s principal sources were slim, but Knabenshue his previous incarnation as an advi¬ hotels to see if there were any tran¬ used them. The United States Gov¬ sor to the Iraqi Government (his sient Americans not known to the ernment did not provide a car for Arabic was excellent) as early as Legation who might need assist¬ the Legation. Our Minister provided 1921 when it emerged from the ance if the going got rough. While his own and drove it himself except defeated Ottoman Empire. Indeed, checking out the Tigris Palace Ho¬ for ceremonial occasions. So it was he had accompanied King Faisal tel, which boasted a bartender not an uncommon sight for him to when the latter assumed the throne named Jesus (though his bar was be seen at the wheel in Baghdad in that year. The Ambassador had not stocked with Lacrimae Chris- traffic. Shortly after noon the Minis¬ also a strong personality and good ti!), we became conscious of a con¬ ter drove out through the Legation common sense. He and Knabenshue tinuous rumbling, roaring noise in gates, flag flying, with Mrs. Knaben¬ were old friends. (Knabenshue had the streets outside. shue in the back seat (perfectly been stationed in Baghdad from the Iraqi -tanks, armored troop carri¬ normal by Arab standards if the time Iraq had become independent, ers and guns were on the move. husband were driving). The only a matter of some six years.) Were they setting up posts in the unusual item was the large lap robe The month of April continued city as a security measure? Had the which covered Mrs. Knabenshue’s with tensions unabated. With the army switched its allegiance? Was legs, for it was a very warm April exception of the Japanese and Ital¬ there another coup d’etat in the day. Beneath the robe at Mrs. Kna¬ ian Governments a policy of non¬ making? These and many other benshue’s feet was Prince Abdul recognition was pursued by major questions demanded an answer. We Ilah, Regent of Iraq. The robe, fur¬ powers represented at Baghdad. slipped our car between a tank and thermore, was garnished with bou¬ The British Government responded a field gun and joined the column quets of flowers, ostensibly for to the strong urgings of its new wending its way through Baghdad’s presentation to the Knabenshues’ Ambassador and succeeded in the streets, across the Tigris to where “luncheon host,” the Air Vice Mar¬ ticklish task of landing limited the road turned off to Habbaniyah. shal at their destination, and was forces in Southern Iraq “to protect There we were stopped but we had thus intended to represent a normal the lines of communication in ac¬ our answer. Iraqi armor was en- and innocuous social occasion— cordance with the terms of the route to Habbaniyah. We hastened “Definitely,” Farrell quipped, “a sub Anglo-Iraqi Treaty.” But the Iraqi back to our Legation. Knabenshue, rosa situation.” army, numbering some 50,000, un¬ roused from his bed, immediately This camouflage, though some¬ der the professed guise of assisting called Pat Domville, the RAF intel¬ what of a departure from the norm, the British to protect their lines of ligence officer, who lived nearby, passed unnoticed. Knabenshue, as communication, took up positions conveniently across from the Italian he said later, “drove like hell” (he which actually constituted a threat Legation. Domville got to his Em¬ enjoyed driving) but slowed down to the British forces. Their units bassy and sent a signal to Hab¬ at the many Iraqi army check points were small and not in sufficient baniyah. Strangely enough it was en route to the British Air Force strength to react with force until the the first news that the RAF had of base at Habbaniyah. He did not arrival of more substantial contin¬ the approaching Iraqi armored dramatize in his telegram to the gents scheduled for the middle of column. Department: “We passed unchal¬ the month—the Ides of May. The On his arrival at the Legation lenged units of the army along road Gailani Government and its Axis about 7:00 a.m. the next day, Mat¬ which were stopping and searching advisors were quick to realize that tison was greeted by Knabenshue

24 FOREIGN SERVICE JOURNAL, June, 1972 with the words, “I have just been Iraqi tanks, armored troop carriers and guns were on the tipped off that they are out to get move. Were they setting up posts in the city as a security Domville—take my car, fly the flag and bring him to the Legation.” measure? Had the army switched its allegiance? A very tired and sleepy Domville debated whether to make an at¬ tempt to reach his own Embassy, soon noted that their machine guns cluded the US Legation. but decided to accept our hospital¬ were pointed directly toward the The United States was not at ity. Legation gates, not in the direction war, but we at the Legation felt Word was received that the Iraqi that would have covered a mob very close to it at that moment. army column had appeared on the attacking the Legation.) Principles of International Law and escarpment which dominated Hab- That night Domville went over the arrogance of the Iraqi threat did baniyah Air Force Base. The com¬ the wall in an Arab costume. The not concern us at the moment—it mander of the Iraqi forces had no¬ risk was great, but he felt that he was our lives and those of our refu¬ tified the RAF commander that they had no other alternative. His duties gees to whom we had offered pro¬ would open fire if any planes took as RAF Intelligence Officer re¬ tection. Also at stake were the repu¬ off. The reply was that this would quired that he get to the British tation and career of our Minister- be an act of war. Embassy. He was a good man at his Resident, Paul Knabenshue. He had With the imminence of such dan¬ job, and he made it. taken a hard-nosed line in full sup¬ ger, tensions in the Baghdad streets Before he left, Farrell and he put port of the British position, with became so acute that Knabenshue their heads together to work out cautious support from the Depart¬ reported that “a mixed lot of Amer¬ some means of communication be¬ ment. But he had also been warned icans and miscellaneous foreigners tween the Legation and the British not to so closely identify the US and some Iraqi subjects numbering Embassy. Domville had a small net¬ with the British as to endanger US about 100 (later verified as 162) work of Iraqis that he was confi¬ lives. Our British “guests” recog¬ fearing mob violence have taken dent would stand fast, and he felt nized the predicament, met as a refuge in the Legation.” Actually assured that it would be possible to community group, and decided to these were predominantly British, slip messages over the wall. But we leave the Legation before the 12 and they came in accordance with a had no codes in common. A simple noon deadline, hoping to make their carefully prearranged plan. Equal code was devised. Farrell went it way through the hostile populace to facilities were granted at the British one better. He would transliterate it the British Embassy. Embassy to American citizens who into Amharic characters which Knabenshue refused to allow lived on that opposite (east) bank would phonetically represent Eng¬ them to do this. His own intuition, of the Tigris. lish words. (This alphabet and lan¬ based on nearly thirty years of ex¬ They came singly and in groups guage he had acquired, self-taught, perience in the Near East, told him bringing with them a minimum of while in Addis Ababa.) He knew a that the Iraqis would not carry out bedding, emergency food supplies, fellow Amharic scholar in the Brit¬ their threat, and that the greatest reading material, strictly utilitarian ish Embassy who could handle it. So danger lay with the mobs, and that clothing, and most of them with any messages would be only a well- the British departure might well supreme confidence that the RAF dirtied scrap of paper handwritten trigger a tidal wave of mob atroci¬ and the British Army in Basra in Amharic letters, totally alien to ties which would engulf any who would soon have the situation in the Arabic script. remained in the Legation. hand. But the news that the Iraqis We did have a small voice radio The British received Knaben- had surrounded the Habbaniyah transmitter which Porter, of our shue’s refusal with cheers, and Air Base, before the women and staff, who was adept at such things, immediate air raid precautions were children could be evacuated, quick¬ had “borrowed” from the local rushed. Unfortunately, the cellars of ly cut through the layer of op¬ RCA dealer. This had been tested the Legation were useless, being timism. and it worked. It was one of the flooded with knee-deep filthy water By nightfall the gates were thor¬ early casualties. We had to surren¬ teeming with water vermin (it was oughly barricaded. The barriers had der it to the Iraqi authorities who the flood season). been predesigned and built by the found out that we had it after Later in the day Knabenshue’s Legation Jack-of-all-trades—a tal¬ “sweating” the local RCA dealer. judgment proved sound. While not ented Assyrian Christian who was Our balloon really went up on withdrawing the bombing threat, ready to take on the Iraqi army May 4. According to the Iraqis the the Iraqi government demanded singlehanded. British had sent an ultimatum that that all British subjects be surren¬ Our internal “commander” was unless Iraqi forces were removed dered to it. Knabenshue countered Col. Page from the British Military from the vicinity of Habbaniyah by that he would comply immediately Mission. Watches and a guard sys¬ 12 noon the British Air Force would upon receipt of an official note tem were set up. Arabic-speaking commence bombing public buildings guaranteeing the proper treatment liaison officers with the Iraqi police in Baghdad. The Iraqi government of British subjects “in the present were designated. (Police detach¬ sent a counter-ultimatum stating circumstances in accordance with ments had encamped around the that they would bomb subjects the accepted principles of Interna¬ Legation compound, allegedly for wherever they might be found. It tional Law.” Still later in the day our protection. However, it was was made clear to us that this in¬ word was received that British sub-

FOREION SERVICE JOURNAL, June, 1972 25 "Our diet of stale rice and Tigris salmon was varied by purgative. the vivacity or rigor mortis of insects in the former, and by [There were a few hardened souls who tried the beer a second the size of bone and proportion of fish heads to fish torsos time and found that they had ac¬ in the wholesale chopped batches of the latter." quired immunity to the purgative effects. They kept their secret well and prospered since surplus laxative beer was not rationed.] The trademark of the Axis im¬ jects would be removed when a fancy dickering with the police in pressed on the Rashid Ali govern¬ suitable internment camp was the dark of the night, about whiskey ment became even more apparent prepared. as well as victuals. The influence of as the month rolled on. Radio Ber¬ The day ended, hot as ever, dusty the British Police Advisor brought lin spewed forth an avalanche of as ever but these discomforts went many a donkey-load of Scotch to anti-British invective in Arabic and unnoticed. The evening ration, or our wall, where willing hands lifted in all of its language services. Bagh¬ “tot” as it was called, was served. it up and over and the next load dad Radio did everything it could to What had been a conglomeration of was ordered. There was a minor outdo Berlin. Fake messages in code refuge seekers now became a group, riot one night, though, when the groups also were read out. not unified but at least cohesive be¬ British discovered to their horror The situation in the air was not cause it had survived another day. that what was coming over the wall good. Habbaniyah was at that par¬ With all the adversity, and the un¬ was something called “Danny Deev- ticular time a training base for the certain fate of families under bom¬ er, Scotch-type whiskey made in RAF. Its trainees were a mixed bardment in Habbaniyah, there was Holland!” Worse, it was mixed with group, mainly volunteers, many of still the spark of hope that things cases of “X.T.C. (Ecstasy) Scotch- them Greeks. Their training planes must turn out right. type whiskey” from the same coun¬ were antique Gypsy Moths. They It soon became apparent that an try. Muffled imprecations and had no bombers as such. They were easy quick victory over the Iraqi efforts to heave the boxes back over subject to Iraqi fire when taking off. rebels was not in the cards. From the wall resulted, and at one point a (The Iraqis did not try to destroy the BBC we learned that a small Britisher almost throttled a friend the base. They were confident that column of Jordanian troops under whom he had mistaken in the gloom it would fall into their hands like Glubb Pasha had set out to “re¬ for the offending merchant. the proverbial ripe plum to serve as lieve” Habbaniyah. The British The food we lived on was not an operational base from which forces in Basra were not moving good. As Farrell later described it, German and Italian planes could toward Baghdad. Indeed, the com¬ “Our diet of stale rice and Tigris control the Persian Gulf.) mander was organizing his lines of salmon was varied by the vivacity Against all these obstacles, the retreat. or rigor mortis of insects in the RAF mounted a magnificent offen¬ Inside our walls, food was our former, and by the size of the bone sive—not large, because it didn’t first preoccupation. Our initial sup¬ and proportion of fish heads to fish have the planes, but nevertheless plies of canned goods had dwindled torsos in the wholesale chopped effective. We had a grandstand seat to the point at which they were batches of the latter.” Our bread at the Legation. The principal Iraqi really “emergency” in nature. We was the unleavened Iraqi “khubz,” Air Force Base was at Rashid were fortunate in two respects: one which was solid, dry and gritty. Our Camp, scarcely a mile distant. was that Betty Sulman, King Faisal butter was rancid “ghee” or sheep’s- Mostly the action was by night or II’s governess, who had taken ref¬ tail fat. Leafy vegetables were, of just at dawn. uge with us, was also a trained course verboten (for fear of dysen¬ About the 15 th of May we sight¬ dietitian. The second was that one tery) and not purchased. ed our first Axis planes. Baghdad of our British refugees had, in the Strangely enough we had no seri¬ Radio had been talking about them early days of Iraqi independence, ous illness among the group. Our for nearly a week. One Italian been in charge of the police training one bout of trouble had its amusing plane flew very low in its landing mission. He still had the confidence side. One of our enterprising pro¬ pattern and passed within a few and respect of the Iraqi police. He duce dealers had managed to secure hundred feet of the Legation. Every was able to negotiate with them an a number of cases of Japanese Arab in Baghdad was firing his rifle arrangement whereby a local pro¬ “Cascade” beer. Everyone was al¬ at it, believing it to be a British flyer duce dealer would come each morn¬ lowed a half-bottle of beer at lunch intent on carrying out yet another ing and take our order. We soon time to mark the occasion. By two “massacre of women and children,” noted that we had a different dealer o’clock in the afternoon, there were for there had been many such, ac¬ each day and found that the police waiting lines at the latrines, which cording to Baghdad Radio’s fanciful were shaking down each merchant had been dug in the garden. Acute anti-British propaganda. The Ital¬ upon his departure. We had little diarrhea was rampant. Bad fish was ians were returning the fire. We in sympathy with the merchants who suspected immediately, but some our turn took cover. We learned were gouging us, and felt that the thinking non-drinkers checked with later that the son of German Gener¬ resultant income for the police kept other non-drinkers. None of them al Blomberg had been killed by them interested in our welfare. had suffered. It was obviously the similar ground fire while landing a Porter recalls that there was some beer that had acted as a complete plane.

26 FOREIGN SERVICE JOURNAL, June, 1972 This was a time of high tension in in enforced separation. The incident vantage of either the British or the world affairs. The magnificent de¬ was spotlighted by the witty remark Iraqis. So the British forces as¬ fense of Crete after an all-out made by Judge Drower (Advisor of sumed an increasingly threatening parachute attack on May 20 pre¬ the Iraqi Judiciary): “Happiness posture, and hoped that something vented a further commitment of and unhappiness are Poles apart.” would give. Axis forces to Iraq. It gave the Judge Drower was not quite It did, but in a surprisingly unex¬ rallying British forces the opportuni¬ aware of everything, however. With pected quarter. The surrender of ty to foil the Axis attempt to control Knabenshue’s consent, Porter ar¬ Baghdad did not come on the bat¬ the Persian Gulf—with all that such ranged for the couple to share a tlefield. At five o’clock or so on the control meant—oil shipping routes, room (in Mattison’s house) for two afternoon of June 1, the long-dead and ultimately the whole outcome hours on Saturday afternoons. Kna¬ telephone of the Legation came to of the war. benshue, always a humanist, or¬ life. The Lord Mayor of Baghdad What was our way of life during dered this perhaps because Porter wished to speak to His Excellency this month? It was organized to the told him that the Pole was preparing the American Minister. The Mayor, degree necessary to achieve our sur¬ to drown himself in the swimming Arshad A1 Umari, was a small, vival, but not over-organized. The pool—our reserve water supply— softspoken political moderate who two secretaries’ houses in a separate and “we can’t have that.” Porter had managed to weather many a compound at the rear of the main personally stood guard at a discreet storm and crisis because he seemed Legation compound were used for distance, and later reported to Kna¬ genuinely more interested in run¬ the women and children. They were benshue that the Pole had consider¬ ning the city than in running the off-limits except for the essential ably brightened and that they were nation. guards at the gates. Water was ra¬ together trying to plan a radio sys¬ “Your Excellency,” he told Kna¬ tioned as a precautionary measure. tem which would be a valuable re¬ benshue, “I would like to call at The blackout was enforced at night serve element. The episode provided your Legation and consult with you by the Iraqis—our power was a fresh and novel subject of conver¬ regarding the surrender of Baghdad turned off. It was cooler outside sation, a welcome variation from the and the peaceful entry of British than it was in, so most of us slept repetitious “When is the bloody troops.” out, either on the ground or on the British Army going to get off its Knabenshue knew his Arabs and wide stone terrace at the rear of duff and do something?” realized that the call to him was a the Legation building. The air raids The days moved slowly. The face-saving gesture designed to con¬ were our nighttime entertainment. bombings of Rashid Camp in¬ trive an effect of third-power media¬ The persistent, inveterate and some¬ creased. And then the day came tion. He accepted the mantle of times unbearable sand-flies with when a keen ear heard a different peacemaker with good grace, tele¬ their red-poker sting made night a sound. It was artillery fire coming phoned the British Ambassador to misery. Their real toll fortunately out from the west. Distances were give him the news, and requested came after internment, when a calculated. We would be free the him to call off a threatened attack number of cases of dengue fever next day, it was widely proclaimed! on Baghdad scheduled for that af¬ developed among the erstwhile refu¬ But this interval of expectancy ternoon. He changed into a clean gees, including Mattison. dragged out for two days, and noth¬ but well worn sports shirt and re¬ Classes were held in a wide vari¬ ing happened. ceived the Lord Mayor at the side ety of subjects including Hindustani We had learned earlier from the gate. The barricade was taken down and lectures on the devil-worship¬ BBC that Habbaniyah had been re¬ by willing volunteers; the siege of pers of the Northern Iraq (Yazidis). lieved by Glubb’s column from the Legation was lifted. Knaben¬ There were regular religious services Transjordan, but not before the shue conveyed the Lord Mayor to by Protestant and Catholic clergy¬ British-officered Assyrian Levies the British Embassy, where the men. We had a daily mimeographed from the base itself had seized the terms were completed. newspaper of highly dubious liter¬ initiative and captured a key posi¬ The “ration” was lifted that after¬ ary quality. tion at a flood gate on an irrigation noon, and a mild celebration was After two weeks a Polish engi¬ canal. staged. We discovered that our con¬ neer refugee made representations The tardiness and delay in invest¬ versation was already nostalgic, we to Knabenshue. He objected to the ing Baghdad, which irked us so were not sure that we liked the segregation of the sexes and wanted much at the Legation in our impa¬ shape of the world into which we special arrangements made for him tient final hours of internment, was, were about to emerge. The loud to set up housekeeping with his wife as it turned out, well founded. The conversation was drowned out by a who was quartered in the ladies’ British force approaching the capi¬ squadron of RAF Wellington bomb¬ compound. The engineer had been tal was so small that, while it could ers which sailed majestically over unwise and had discussed his hard¬ take the city against a disorganized Rashid Camp and dropped their ships with many other persons be¬ Iraqi army, it could not possibly entire load in unison, with earth¬ fore placing his problem of logistics control it or police it. The column quake-like effect on windows, glass¬ before Knabenshue. The answer under General Clark which had es and anything that was loose. had to be no, of course, so his finally moved northward from Basra Knabenshue rushed to telephone the Polish spouse remained quartered on the Persian Gulf was still some British Embassy, dismayed that the with the British and other women. days away. A complete breakdown fragile peace which he had just au- He continued as before for awhile of public order was not to the ad¬ ('Continued on page 39)

FOREIGN SERVICE JOURNAL, June, 1972 27 SPECIAL I SUMMER RQDK SECTION pgj BGDK ESSAY habitation and were never recog¬ precincts of Calcutta. The self- Unresolved Legacy of the Raj nized by China. righteous Nehru set the seal on both In the east, a forward boundary boundaries by declaring them to be line from Bhutan to Burma, which non-negotiable. DOES anyone remember the Sino- followed the edge of the Tibetan Despite the turgid rhetoric and a Indian border war of 1962, except plateau, was also drawn unilateral¬ hardened Indian position the dis¬ in terms of the almost universally- ly. However, this line, named after pute would still have remained accepted picture of a peaceful, its framer, Sir Henry McMahon, academic had not, during the late unoffending India, brutally attacked became the subject of Sino-British 1950s, the Indians discovered that, by an aggressive expansionist Chi¬ negotiations, and was even initialed in their quiet way, the Chinese were na? Can we remember the wave of by Chinese representatives to a con¬ completing construction of a strateg¬ sympathy throughout the Western ference at Simla in 1914. Although ic road link between the Karakoram world for Prime Minister Nehru, never formally agreed upon, the and Kuen Lun ranges that cut desperately trying to rally the moth¬ McMahon Line was nevertheless through a desert area of Ladakh erland against an unprovoked on¬ given a degree of tacit acceptance called the Aksai Chin. One stretch slaught? If so, for a salutary correc¬ by China, even though later British of the road bisected the most ex¬ tive, read “India’s China War,” by maps sometimes showed a boundary treme paper boundary claim be¬ Neville Maxwell, (Pantheon Books, running well south of it. queathed by the British, so it was 475 pp. with maps, 1971). Mr. Max¬ Over the years, the Chinese posi¬ immediately considered in New well covered India for the TIMES of tion on both disputed regions, as Delhi as being Indian. Goaded by a London throughout the years in repeatedly set forth in diplomatic jingoistic Parliament and a hysteri¬ question, and subsequently took notes and public pronouncements, cal press, Nehru now proceeded to two years off as a Fellow of the was that these boundary disagree¬ compound self-righteous intran¬ London School of Oriental and Af¬ ments were unresolved issues to be sigence with a course of bluster and rican Studies to pursue his resear¬ settled by negotiation. Alternative¬ reckless folly. ches into Indian Government pa¬ ly, if no negotiations were possible, Again disregarding Chinese offers pers, dispatches and reports, many the Chinese were willing to settle for to negotiate all difference on a of them unpublished, and to write the status quo, with neither side peaceable basis, and rebuffing Chou this book. attempting to disturb the thinly- En-lai when he visited New Delhi in The Sino-Indian border dispute occupied settlements and frontier the spring of 1960, Nehru and his was one of the many unresolved posts of the other. But the Chinese colleagues of the Congress Party legacies of the British raj, in this would not accept a legal boundary decided to adopt a so-called “for¬ case deriving from Anglo-Russian imposed unilaterally. In these re¬ ward policy.” This consisted of imperial rivalries of the late 19th spects, the position of the Chinese moving small units of the Indian century. Specifically, it consisted of Communist regime after 1949 coin¬ Army into areas occupied by the two separate and distinct questions, cided with its predecessors’. Chinese and planting them there in the delimitation of an eastern The British generally accepted outposts and pickets. boundary in the unsettled frontier this modus vivendi. They would In Ladakh, Indian units moved region of Ladakh, and the validity have liked to clean up the juridical into positions that threatened the of the so-called McMahon Line, status of both frontiers, but never Aksai Chin road. In the east they which purported to delimit the Sino- regarded it as a pressing issue. Tibet prepared to move in force up to the Indian frontier from Bhutan to was autonomous, China was weak, McMahon Line. The troops were Burma. and in both regions the areas were poorly armed, improperly clothed The disputed region of Ladakh so thinly populated that ethnic for the high altitudes and frigid between northern and Ti¬ problems were minimal. weather, and unsupported by main bet is one of the most bleak and With Indian independence all this force units and air power. The uninhabited areas on earth. Consist¬ changed. Aloof, dispassionate impe¬ Chinese soon surrounded the Indian ing of windswept upland plateaus rial rule was replaced by autocratic positions with their own well- bounded and intersected by the leadership superimposed over a clothed, well-armed forces but took snow-covered peaks of the Karako¬ venal political class and an igno¬ no aggressive action. Instead, they ram, Kuen Lun, and Himalayan rant, apathetic electorate. This was reiterated their desire to negotiate. ranges, it was penetrated during the called a democratic political sys¬ The final act of folly came in late 19th century by a few intrepid tem. It attacked an essentially tech¬ October 1962 when a pliant Indian British explorers and survey parties. nical question of conflicting bound¬ Commander decided to push north Later, in order to preempt Russian ary claims with all the hysteria of of the McMahon Line in order to ambitions, the British administration immature nationalism. In the minds oust Chinese forces forming in de¬ in India at various times drew of Indian politicians the vaguely de¬ fensive positions along a ridge over¬ boundary lines on their maps to lineated area of Ladakh was now looking the Line. The Chinese reflect these penetrations. The resul¬ an inalienable part of Mother India, waited to complete their own dispo¬ tant boundary claims extended well and the McMahon Line to the east sitions and then launched a concert¬ beyond the farthest points of Indian was as juridically sacrosanct as the ed preemptive attack against Indian

28 FOREIGN SERVICE JOURNAL, June, 1972 forces in both east and west. They of this fascinating and well- “take charge” mentality as Mr. Bra¬ surrounded the Indian outposts, cut documented exposure of the fabri¬ den. Finally, he opposed extensive the Indian supply lines, and rolled cations of others. Mr. Maxwell’s au¬ military assistance to the Latin up the isolated units. thoritative book ought to be re¬ American republics, which ranged The issue was never in doubt for quired reading for the White House the Pentagon against him, and when a moment. Four weeks after the Staff—not to mention the Bureaus Secretary Marshall turned the ques¬ attack all of the Indian forces in of South and East Asian Affairs. tion over to Maj. Gen. John H. both disputed areas were dead, —CHARLES MAECHLING, JR. Hilldring, who had been brought prisoners, or in precipitate flight. into the State Department, and a Then, in a gesture of supreme con¬ | BGSKSHELF bill, embodying Pentagon desires, tempt, the Chinese announced a was drafted by Hilldring and sent to unilateral cease-fire and withdrew Congress without consultation with their forces to precisely the lines Spruille Braden: Diplomat the Assistant Secretary for Latin they occupied before the Indian DIPLOMATS AND DEMAGOGUES: The American affairs, Mr. Braden got penetrations. The war was over. Memoirs of Spruille Braden. Arlington the message. He made a graceful This chronicle of Indian pre¬ House, $12.50. exit, with none other than Mr. Ache¬ sumption and incompetence would son draping around his neck the seem incredible were it not for the S PRUILLE BRADEN was baptized in Medal of Freedom. painstaking documentation which diplomacy at the Montevideo Con¬ Presidents are forever exhorting Mr. Maxwell brings to bear on ev¬ ference of 1933, where he promptly their diplomatic agents to “take ery phase of the conflict, mostly demonstrated his skill in dealing charge” and as a “take charge” man from Indian sources. But its chief with Latin Americans. He further Mr. Braden was popular with them. lesson lies in the Pavlovian manner displayed his gift for effective tactics There was no question who was in with which the West in general, and at the Pan American Commercial charge of any mission which he the United States in particular, Conference and was consequently headed and that went for the mili¬ reacted to the Chinese punitive offered the ambassadorship to Peru tary attaches on his staff. He effec¬ foray. Indian screams of unpro¬ but got sidetracked to the Chaco tively asserted his own judgment voked aggression were accepted at war, which, in three and a half years when confronted by errant officials face value. The appeals for immedi¬ of uphill and highly resourceful di¬ of the Department and other parts ate military aid by the professor of plomacy, he helped to end. One of of our government, and there were economics then serving as United the few things that Cordell Hull and many such in the New Deal and States Ambassador to India (and, Sumner Welles shared was admira¬ World War II periods, as those of us like his predecessor, privately doub¬ tion for these performances and Mr. familiar with those years can attest. ling in a reverse capacity) found a Braden served successively as am¬ Like all mortals, Mr. Braden made receptive ear in the academic ad¬ bassador to Colombia (1939-42), to his mistakes and his career col¬ ministrator then advising President Cuba (1942-45) and to Argentina, leagues feel he committed his most Kennedy on national security from which he was lifted after six egregious by involving himself in affairs. months to become Assistant Secre¬ such flamboyant opposition to Since none of the three was re¬ tary of State for American Republic Peron as to appear to be campaign¬ motely conversant with the compli¬ Affairs. In two years he was out due ing against him in Argentine politics. cated historical background of the to differences over policies, diplo¬ It is well to have Mr. Braden’s side boundary question, or accustomed matic tactics and organization. of this stated and to have both the (as the British were) to viewing The Truman Administration de¬ principle at issue and the tactics em¬ Asiatic representations with a cer¬ cided not to continue the opposition ployed set forth by the tactician. tain degree of skepticism, it is not to Peron which Mr. Braden had ini¬ The principle is not one which, to surprising that no one bothered to tiated when in Buenos Aires and, as my knowledge, has been seriously— scrutinize the record. The mere fact Assistant Secretary, worked hard to much less satisfactorily—analyzed that one of the parties to the conflict continue. He opposed the establish¬ by any career officer. One cannot was Communist China was suffi¬ ment of an office of intelligence and help but wonder if things would cient to transfer the level of appraisal research in the Department, on the have turned out differently if Mr. from objectivity to demonology. ground that this work could be done Braden had displayed in his confron¬ In the final event, the traditional adequately by the geographic bu¬ tation with Peron that consummate Chinese inclination to accommodate reaus. He not only crossed Under skill in quiet maneuver which had boundary settlements to a de facto Secretary Acheson on this issue but earned him victory over Saavedra situation—the Korean armistice is a refused to be outflanked by Mr. Lamas in bringing the Chaco war prime example—coupled with a Acheson, Alger Hiss and others of to an end. In any case, the critics of well-founded reluctance to project the Acheson team on others. Having Mr. Braden will have to read his their exiguous forces into the Indian had in the field some disconcerting book. Their appraisal to date has heartland, probably saved the experiences with communist pene¬ obviously been based largely, if not United States from yet another de¬ tration of the Department, he coura¬ exclusively, upon his anti-Peron tac¬ structive entanglement on the main¬ geously faced this problem which tics and anti-communist stances land of Asia. Otherwise, we might Mr. Acheson was inclined to pooh- rather than upon a full perspective today be reading the fabrications of pooh and thus again ran afoul of an of the man and his career. a “White Paper” on India, instead Under Secretary with as strong a —SMITH SIMPSON

FOREIGN SERVICE JOURNAL, June, 19 72 29 The Real Immorality cow who has been covering the De¬ He knew 14 languages, and in his partment of State since 1966, has career with the Imperial Tsar’s Di¬ THE RIVALS: America and Russia Since World War II, by Adam B. written an engrossing and eminently plomatic Service from 1893 to 1917 Ularn. Viking, $10.95. readable book about Russia and he negotiated a border treaty be¬ space. Let none fear that he is in tween Siam and French Indochina As a historian, Professor Ulam has for tedious explanations of 'thrusts, which helped preserve the independ¬ a global outlook and broad sweep. and Machs, and telemetry, and such ence of Thailand, and prevented a As an author, he organizes his ma¬ other exotic flora beyond the com¬ massacre in the Balkans when Turk¬ terial well, and presents it with clar¬ prehension of any of us generalists. ish civil and military authorities ity, suavity and wit. The necessary data are there but pulled out of a consular region Daniloff is describing primarily the In “The Rivals” there is a mini¬ which he supervised. birth and maturity of an idea. The mum of straight reporting or re¬ Andrew D. Kalmykow, a second- interaction between the Soviet and cording of facts, figures and dates echelon figure in the Russian For¬ American space programs, between connected with Soviet-American eign Service, came to America after the Soviet military and the Soviet relations after World War II. Ra¬ the Russian Revolution and spent physicists, between a Soviet leader¬ ther, Professor Ulam analyzes the the next quarter-century as a lan¬ ship intent upon accomplishment forces and personalities involved in guage teacher and completing a here and now and future-oriented the major events which actually book, “Memoirs of a Russian Diplo¬ scientists is all there in lucid form. took place, and ruminates on what mat, Outposts of the Empire, 1893- So, too, are the main players in the developments might have been had 1917,” which Yale University Press drama: Tsiolkovsky, Tsander, Ko- has recently published, and which either side in the rivalry acted dif¬ rolyev, Khrushchev and the others. ferently. The result is some real in¬ represents something of a minor sight, a great deal of the insight of Not too surprisingly, this reviewer publishing coup. hindsight, and considerable far¬ learned from the book that when Kalmykow’s “Memoirs” is an ex¬ fetched speculation on “what might you are second in a space race, you traordinary book, not for any new have been.” He takes sharp issue try much, much harder. Daniloff information it discloses about the with the so-called “revisionist” his¬ includes good evidence showing that diplomacy of tsarist Russia, but for torians. Instead of the immoral it was precisely because the United the incredibly sensitive, beautifully malevolence they attribute to Amer¬ States had an international bomber, written glimpses of life it provides ican policy, he sees emotionalism, an atomic bomb, and a number of of several posts where the author veterans of the German V-I pro¬ naive moralism and a capacity for served. A respect for others and a gram, that the Soviet leadership self-deception that made us seek the thoughtfulness in human relations gave the green light (along with the wrong objectives and miss repeated leaves the book remarkably free of funds) to the Soviet rocketeers in opportunities to press Moscow for cultural chauvinism; it is written the late nineteen forties. “Other¬ concessions and settlements which with charm and humor, and the sec¬ wise, we would have slept,” a re¬ would have produced a more order¬ tions on the Russo-Japanese War, sponsible Soviet official is quoted as ly world. The real immorality in¬ the Balkans, the coming of World saying. After Sputnik and Gagarin, volved, Professor Ulam concludes in War I and the personalities of vari¬ the roles were reversed and this his final chapter, is “The Immorality ous tsars and their Foreign ministers of Unrealism.” time the United States gave space the priority which led to the 1969 is refreshingly clear, honest, and Many theses are advanced in moon landing. For the future, Dani¬ candid. “The Rivals” with which I would loff holds out less than confidently Above all, the book is extremely quarrel—for example, the attribu¬ the perspective of an “arduous and, well-written. The end result is like tion to Khrushchev of a profound in the immediate years ahead, un¬ looking at tsarist Russia through a and consistent “grand design” in spectacular” growth of Soviet-Amer¬ stereoscope and with a set of care¬ conducting his “Sputnik diplomacy” ican space cooperation. After read¬ fully preserved pictures of an age from 1958 to 1962. Others, such as ing Daniloff’s book, one hopes all that has past. the author’s analysis of Russian pre¬ —FRED QUINN occupation with China, seem to me the more that the isolation of Tsiol¬ indisputable. All are presented with kovsky from Goddard and the other a logic and an informed intelligence Western pioneers, and the subse¬ The Top Secret Stamp which provokes the reader to quent space race belong to history PROJECT PAPERCLIP: German Scien¬ thought. This, I assume, was one of to be replaced by cooperation. tists and the Cold War, by Clarence Professor Ulam’s major purposes in —PETER SEMLER G. Lasby. Atheneum, $8.95. producing the study. A Diplomat of the Past PROJECT PAPERCLIP —FOY D. KOHLER describes the MEMOIRS OF A RUSSIAN DIPLOMAT, cloak-and-dagger-type operations Outposts of the Empire, 1893-1917, undertaken at the end of World Russia and Space by Andrew D. Kalmykow. Yale Uni¬ War II for the purpose of carrying THE KREMLIN AND THE COSMOS, by versity Press, 1972. off to the United States the leading Nicholas Daniloff. Knopf. German scientists who were later to H is posts included Tabriz, Astara- play such a vital role in the success NICHOLAS DANILOFF, a journalist bad, Bangkok, Ashkabad, Tashkent, of our missile and space programs. with five years’ experience in Mos- St. Petersburg, Uskub, and Smyrna. This tricky maneuver not only de-

30 FOREIGN SERVICE JOURNAL, June, 1972 prived the Russians of the German ate description tinged at times, par¬ cadres who then lead the peasants expertise but also resulted in acri¬ ticularly in the case of France and and workers in discussion of current monious rivalry between various in¬ Russia, with an understanding of the policies and programs. terested departments of our govern¬ higher motives of the collaboration¬ Unquestionably, in a totalitarian ment as well as such tight secrecy ists, he does not explore the deeper society mass communication plays a that at Potsdam President Truman psychological and political motiva¬ very special and a very vital role. innocently denied Stalin’s accusation tions for treason. The line between According to Dr. Liu, this has been that the Americans were snatching patriotism and treason is a perilously especially true in China where the German scientists out of the Russian fine one at any time, and the book mass media has been called on not zones. would have benefited had its analy¬ only to indoctrinate the Chinese An interesting sidelight is the in¬ sis of the weak, ambitious, power- masses but also to instill in them cident of the “one man” (not hungry men of Nazi Europe also ex¬ national identity and political con¬ named) in State who, singlehanded, plored more fully the higher aspira¬ sciousness which have been so lack¬ held up the whole enterprise for tions of what later was to be seen ing in the past. some time. as only unmitigated and base treach¬ —LEO A. ORLEANS “Paperclip” is unexpectedly time¬ ery. ly, echoing as it does the recent —A. C. E. QUAINTON The Need to Know reverberations of discord behind the COMPUTERS, COMMUNICATIONS, AND scenes in government—the slap of Communicating Mao’s Thoughts the Top Secret stamp, the sharp THE PUBLIC INTEREST, ed. by Martin Greenberger. Johns Hopkins Press, voices of disagreement “leaking” COMMUNICATIONS AND NATIONAL IN¬ $12.50. through the curtain. TEGRATION IN COMMUNIST CHINA, by —REBECCA H. LATIMER Alan P. L. Liu. University of Cali¬ fornia Press, $8.50. w ORKS that originate from the ed¬ ited record of a series of lectures Collaborators Revisited ALAN P. L. LIU, now on the facul¬ with subsequent discussion periods THE PATRIOTIC TRAITORS, A History ty of the University of California in seldom make smooth reading. This of Collaboration in German-Occupied Santa Barbara, has been studying volume is no exception. Neverthe¬ Europe, 1940-45, by David Littlejohn. and writing about the mass media in less, a variety of interesting and Heinemann, £3.90. the People’s Republic of China for important questions are raised. almost a decade—first at MIT’s What has the computer to offer the B ETTER Red than Dead” was a Center for International Studies and policy maker? How can the citizen’s common aphorism of the 1950s, par¬ later at the Center for Chinese privacy best be protected from com¬ ticularly to those in Europe who saw Studies at the University of Michi¬ puterized governmental information the future as a stark choice between gan. He is a true expert in his field. systems? Most basic of all, how does Communism and nuclear holocaust. The book under review draws on man properly fit into a highly Fifteen years earlier at the begin¬ Dr. Liu’s earlier monographs on ra¬ mechanized, information-rich world? ning of World War II Europeans dio broadcasting, the press, book The foreign service reader will had faced a comparable choice: col¬ publishing and the film industry. He find a variety of familiar problems laborate or suffer the devastation covers the structure and organiza¬ touched upon in a new context: the and deprivations of resistance to the tion of the mass media and its prop¬ dangers of information overload might of the Nazi juggernaut. Mr. aganda role within the broader per¬ (how to avoid missing the signifi¬ Littlejohn’s book explores the his¬ spective of China’s national goals cant developments when wading tory of the collaborationist move¬ and the changing political and so¬ through the telegraphic traffic), the ments in most of the countries of cial environment. The appendices scarcity of executive attention (how German-occupied Europe. present statistical data that show to get that memo to the top), access The names of Quisling, Petain quantitative trends and include a to information (who has the “need and Laval are familiar to students of content analysis of radio broadcasts, to know”). European history, but Scavenius in films and the PEOPLE’S DAILY. The answers are not here, nor Denmark, Mussert in Holland, De- Mao Tse-tung has always stressed would we expect them to be, for the grelle in and Vlasov in Rus¬ the importance of oral and visual answers will be as complex as the sia are perhaps less well known. The communication in a country such as world to come and will be provided author catalogues and describes in China, where adult literacy is still only as that world emerges. detail the organizations, activities far from universal. Thus, in the —LEO J. MOSER and policies of these shadowy fig¬ utilization of the mass media for the ures. As such his work is an invalu¬ purpose of indoctrination, the em¬ able source of information other¬ phasis has been on radio broadcasts A Wife in Afghanistan wise not easily available to the gen¬ via the loudspeaker system, on SPIES BEHIND THE PILLARS, BANDITS eral public. movies shown by mobile projection AT THE PASS, by Kathleen Trautman. However, for those interested in teams, and even on comic books McKay, $6.95. ’ the philosophy of treason the book designed to present a political mes¬ provides few insights. Although Mr. sage. The circulation of newspapers HAVING lived in Afghanistan at the Littlejohn eschews an attitude of and magazines has always been lim¬ same time as the author, I surely self-righteousness to the wartime ited; for the most part they are am biased, but I do think she “told non-resisters, in favor of dispassion¬ intended for collective reading by it like it is.” This is surprising, given

FOREIGN SERVICE JOURNAL, June, 1972 31 the fact that she was there only a on obfuscation?) by adopting a poli¬ PUBLIC DIPLOMACY year and was not experienced in cy of preparation—improve bilateral AND THE living outside the United States. Her ties, but lay the groundwork for BEHAVIORAL SCIENCES diary-like stories are amazingly re¬ future revolutionary triumphs. Lar¬ by Glen H. Fisher alistic and humorous, and show kin rightly notes even if China’s much compassion for a poor but aims are never achieved (he rates In an age when mass com¬ wonderful small country. this the almost certain outcome), munications have rendered —HELEN VOGEL her influence on Africa will be great. His set of hypotheses on page 190 traditional diplomacy obso¬ Inside bears reading by anyone interested lete, diplomats must learn to A DAY IN THE LIFE OF THE NEW in Africa or China. anticipate the public as well YORK TIMES, by Ruth Adler. Lippin- —JOHN D. STEMPEL as the official reactions to cott, $6.95. their countries’ policies. The Managing China Dean of the Center for Area CHINA: MANAGEMENT OF A REVOLU¬ STILL another book about the TIONARY SOCIETY, edited by John M. and Country Studies, Depart¬ newspaper that every desk jockey H. Lindbeck. University of Washing¬ ment of State, explains how skims along with his morning coffee, ton Press, $12.50. the behavioral sciences can to find out what’s going on in his help with this problem. area. This one is an inside job. Ruth T HE Chinese Communists, who 192 pages (paper $2.95) $6.00 Adler, who edits the TIMES’S house seem to have more effective control organ, has logged the activities of over the territory and people than the multitudinous staff, at home and any previous Chinese government, abroad, hour by hour and some¬ have also the formidable task of times minute by minute through one running the world’s largest social INSURGENCY AND “ordinary day, picked at random.” system from a central government. COUNTERINSURGENCY The day was Feb. 28, 1969, and They have, too, the continuing prob¬ IN ALGERIA quite a lot happened to brighten up lem of translating their revolution¬ next day’s front page. ary goals into concrete policies and by Alf Andrew Heggoy Her account, compiled from jot¬ programs. In this book, ten scholars tings made by staff members alerted examine the ways in which the Mr. Heggoy’s informed and in advance, gives a fascinating pic¬ Chinese Communists have managed perceptive assessment of the ture of a great newspaper’s immen¬ their vast and diverse society. More Algerian experience sheds sely complex organization, and of specifically, these papers (originally the many chancy decisions that presented at a conference in the new light on anticolonial strug¬ even an “ordinary day” demands. It summer of 1969—sponsored by the gles elsewhere. should interest anybody who won¬ Joint Committee on Contemporary 352 pages $10.00 ders how the TIMES does it, 365 China) deal with problems of au¬ days a year. thority, relation of the polity to the —TED OLSON society, strategies and problems of restructuring Chinese society, man¬ QUISLING agement of foreign affairs, et cetera. Exporting the Revolution Students of the Chinese People’s The Career and CHINA AND AFRICA 1949-1970: The Republic and of comparative poli¬ Political Ideas of Foreign Policy of the People’s Repub¬ tics will find much of value in this lic of China, by Bruce D. Larkin. Uni¬ Vidkun Quisling, erudite work, written by and for versity of California Press, $8.50. those highly competent in these 1887-1945 fields. Others may feel that it de¬ by Paul M. Hayes T HE sudden intense fascination mands too much of the average with the diplomacy of the People’s reader in terms of background in A major study written by a Republic of China will be at least Chinese politics and political sci¬ professional historian who partially gratified by this excellent ence concepts. brings new material and new study of China’s relations with —ROBERT W. RINDEN insights to bear on the enig¬ Africa from 1949-1970. Larkin sketches well the basic Chinese di¬ The Law Is Not For Keeping matic figure of Quisling. lemma: export revolution and risk 352 pages $12.95 ELECTION CAMPAIGNING JAPANESE being shut out by annoyed and sus¬ STYLE, by Gerald L. Curtis. Columbia picious governments, or take advan¬ University Press, $10.00. tage of traditional diplomatic meth¬ Indiana University Press ods to build strong bilateral rela¬ ROBERT SCALAPINO once offered tions, but risk losing the support of a first-rate insight into Japanese pol¬ Bloomington, local revolutionaries and malcon¬ itics: “Japan represents the para¬ tents. dox of an open society made up of Indiana 47401 China fuzzes the question (who closed components.” Gerald Curtis said Foggy Bottom had a monopoly here gives us as much light as we

32 FOREIGN SERVICE JOURNAL, June, 1972 are likely to get on one of those The all important role of party de Gaulle’s Memoirs components—just how does a politi¬ endorsement (there are no pri¬ cian go about getting elected to the maries) and the fascinating way MEMOIRS OF HOPE, RENEWAL AND ENDEAVOR, by ; Japanese social psychology seems to Diet. To do this he lived for 13 Simon and Schuster, $10.00. months before the 1967 Diet elec¬ require everything be done in and tion in the home of a successful through groups are other well de¬ candidate and he had constant close veloped points. THE publisher is wrong when he contact with family, friends, cam¬ The author is now back in Japan says “seldom has any great states¬ paign associates, etc. Given the and we can look forward with inter¬ man written so openly about his feel¬ make-up of both Japanese home life est to the results of his current re¬ ings, his intentions, his vision.” This and political life, this in itself was a search. Perhaps, he might look into book is as candid and spontaneous tour de force. The candidate is a the making of a Diet member from as a lycee history text, and therein Liberal Democrat from Beppu, a the bureaucratic class (that group lies its strength and real disappoint¬ resort town in Kyushu that is proba¬ makes up the largest single element ment. This, the last volume of de bly no more typical than Asbury in the legislature, over 30 percent. Gaulle’s “Memoirs,” begins by Park or Blackpool. But Japanese It may be important in the future to grounding recent French policy deep homogeneity is such that one would US-Japanese relations to know more in Gallic history. All the old famil¬ be wise not to challenge the study as about these men. The younger gen¬ iar themes are there, the question atypical. eration seems to have a strain of of frontiers, geography, resources, and the post World War II economic Professor Curtis does much to anti-US sentiment not reflected in the present leadership. and political problems with their make Japanese politics intelligible Not only is this an excellent study roots extending back to the stale¬ to the outsider. None is more valu¬ but it is well turned out by Colum¬ mate society of the Third Republic. able than an explanation of what bia (which also did “How the Con¬ In reading the chapters on “Over¬ the Pharisical Election Law really servatives Rule Japan,” a good seas,” “Algeria,” “The Economy,” accomplishes. Unaccountably he companion to the Curtis book) with “Europe,” etc., the inescapable con¬ waits until page 65 to introduce this clear tables and an unfussy type clusion is that one is thumbing problem, but his conclusions are sol¬ face. To a reviewer who learned his through old issues of Le Monde, or id: The detailed rigidity of the law economics before Professor Gal¬ seeing a rerun of late 1950 newsreel brings the law itself into disrepute braith invented the affluent society, films, or pondering texts of press and disregard, while campaigns still though, the price seems rugged. conferences of a decade ago, care¬ end up “extraordinarily expensive.” —J. K. HOLLOWAY fully nuanced in the questions that

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FOREIGN SERVICE JOURNAL, June, 1972 33 were allowed to be asked and the heard in opposition to American Asia. The genre is one which offers replies given. foreign policy during the critical vast variety. Some have been im¬ But there are moments of un¬ years after World War II. So we portant and perceptive, and some deniable greatness too, as in the have essays, with appropriate quota¬ charming. This volume fits into nei¬ triumphal 1958 pre-independence tions, about what Walter Lippman, ther category. tour of Africa or in the 1960 Henry A. Wallace, Senator Claude It is a personal history, as the Algerian journey and the subsequent Pepper, Senator Robert A. Taft, title indicates. It is only peripherally working out of this thorny problem I. F. Stone and others said and personal and essentially anecdotal. for France. wrote at that time. Beech seldom comes across as a All in all, this is the weakest vol¬ The trouble is that all these es¬ personality, which is unfortunate, ume of Gen. de Gaulle’s “Memoirs” says, by eight revisionist authors, because when he does, he is quite for three reasons, because there is are so uncritical. Some very sensible sympathetic. He covers the range of no visible change in the author’s things were said by critics of US Asia from India to Japan. His vig¬ perspective from the earlier vol¬ policy in those days, but also some nettes of individual incidents and umes, because it contains little in¬ horrendous nonsense. The authors interviews with a broad spectrum of formation that has not long been picture the critics as farsighted and Asians, while often revealing in the available to the public, and because fair, and the policy-makers of the individual case, are often so lacking times changed and their author- day as invariably blundering—when in perspective that much is lost. president didn’t, making the final they weren’t deliberately fomenting Beech is basically optimistic about years of his presidency a distinct trouble. the past role of the United States in anticlimax and an anachronism. —M.F.H. Asia, including the American in¬ —FREDERICK QUINN volvement in Vietnam. Without A Correspondent Writes questioning his basic thesis, the ar¬ Minor Revisionist Effort NOT WITHOUT THE AMERICANS, A guments are presented in such sim¬ Personal History, by Keyes Beech. plistic terms that they seriously ne¬ COLD WAR CRITICS—Alternatives to Doubleday. American Foreign Policy in the Tru¬ gate the premise. The style con¬ man Years, edited by Thomas G. tributes to the simplistic analysis. It Paterson. Quadrangle Books, $2.95. THERE is a long and distinguished is clear and concise, but without the catalogue of books by correspon¬ subtleties his subjects deserve. T HE idea was good—to assemble dents which has enriched both the Keyes Beech has lived in Asia for in one volume the voices that were browser in and the specialist on over twenty years, and, according to

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34 FOREIGN SERVICE JOURNAL, June, 1972 his publishers, is considered the interesting anecdotes, but its con¬ of the so-called “Program of Man¬ dean of Far East correspondents. If clusions do not appear to take into agement Reform” outlined in the this is true, we can have more hope consideration the rich body of litera¬ task force reports printed in “Diplo¬ for enlightenment from the faculty ture which Arthur Link among oth¬ macy for the 70’s.” Nevertheless, it of that school than from its adminis¬ ers has contributed on this complex clearly supersedes such earlier works tration. subject. as McCamy’s “The Administration —DAVID I. STEINBERG Finally, the author does not in¬ of American Foreign Affairs” and ject much of his personality or views Stuart’s “The Department of State.” Between Two Wars in his memoirs. The personal obser¬ —THOMAS A. DONOVAN PEACE AND COUNTER-PEACE FROM vations are often reduced to a series WILSON TO HITLER, by Hamilton Fish of carefully-honed, cleverly told East Bengal Then Armstrong. Harper & Row, $12.95. anecdotes, some of which are very THE VILLAGE CULTURE IN TRANSITION, funny, but almost all are told with A study of East Pakistan Rural So¬ HE purpose of a book of mem¬ T a control and dispassion that leaves ciety, by S. M. Hafeez Zaidi. East- oirs is to add new documentation the reader fascinated but not at all West Center Press, $6.00. about a historical period or event, sure about the author’s real opinion. enlighten us about the personalities PROFESSOR ZAIDI —FREDERICK QUINN was born in of the period, or about the author Urdu-speaking Northern India, edu¬ himself. Unfortunately, this book On Administrative Routine cated at Aligarh University and the falls short on all three counts. Its University of London, is now a resi¬ subject matter is essentially Europe THE ADMINISTRATION OF UNITED STATES FOREIGN POLICY, by Richard dent of Karachi (West Pakistan), between the two wars, and as such A. Johnson. University of Texas Press, did most of the research for this is a competent and readable account, $10.00. book while working in Comilla in but not one going beyond the stand¬ East Pakistan, and did the actual ard histories of the period. Its por¬ T HIS book by a retired FSO with writing while serving as a Senior traits of the European and Ameri¬ some experience in the administra¬ Specialist at the East-West Center, can statesmen of the period are tive area will be useful to students University of Hawaii. This book on somewhat pale compared to those and other outsiders seeking infor¬ East Pakistan, then, is the product in Richard Watt’s recently published mation on the organization of the of a West Pakistani scholar with a “The Kings Depart.” The chapter Department of State. It is not quite British-India background, aided by on Woodrow Wilson and Colonel up-to-date, of course, for it was American financial generosity. House at Paris is built around some written before the implementation Whether because of the recent HAVING PROBLEMS WITH

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FOREIGN SERVICE JOURNAL, June, 1972 35 tragic events in Pakistan, future navian Political Studies, a joint ef¬ works of this sort—with this kind fort by a group of Nordic political JOURNAL COMPETITION of diverse and emotionally uncom¬ scientists, is not for anyone who is mitted background—are possible is looking for a little light reading by Anthony C. E. Quainton problematical. Let us, therefore, be about developments in the North. It The JOURNAL competition con¬ thankful for what we have: a is worth reading for those who are straightforward account of village seriously interested in the area or in tinues, with results of the initial one, life in East Bengal; its stratification, the study of political science. announced in the April issue, to be structure and ethos. In addition to providing infor¬ printed in August. A prize of ten Professor Zaidi’s approach is mation about Scandinavian political dollars will be awarded to the read¬ scholarly and thorough, and he is developments, this volume contains er who submits the most original refreshingly lucid for a social sci¬ some interesting observations on po¬ and humorous response to the com¬ entist. Of particular interest are his litical phenomena in general. For petition. The winning entry and accounts of how different groups— example, Elina Haavio-Mannila’s Hindus, Muslims, high caste, low study “Sex Roles in Politics” (right those of two runners-up will be pub¬ caste—react and adapt to change. on, Elina!) shows that women’s lished in subsequent issues. Not always are the “progressive” voting and voting for women “are This month, entries to be sub¬ elements most adaptable. not one-dimensional phenomena” in mitted by August 15, readers are Although there is nothing start¬ all social circumstances, i.e., in some lingly new presented, the amount of areas of Finland, voting activity by asked to submit in no more than 50 thorough and fundamental infor¬ women is low but a high proportion words a draft telegram of congratu¬ mation given the reader makes the of women are elected to office. lations to one of the following: the book a worthwhile one for those The articles on changing voting Queen of Sheba on her coronation; with a more than passing interest in behavior in Sweden, party cohesion, Pope Roderigo Borgia (Alexander Bengal. —SOL SCHINDLER and the Norwegian labor union elite VI) on the birth of a son; Henry The Nordic Nations as well as a descriptive review of the recent ill-fated attempt by the VIII on his marriage. SCANDINAVIAN POLITICAL STUDIES, Nordic Nations to form a customs Please mail entries to: Foreign VOLUME 5, edited by Olof Ruin. Co¬ union (NORDEK) make this book lumbia University Press, $10.00. Service Journal, 2101 E Street, worthwhile reading. N.W., Washington, D.C. 20037. T HE fifth volume of the Scandi¬ —WILLIAM BODDE, JR.

36 FOREIGN SERVICE JOURNAL, June, 1972 through media pollution, particular¬ ly on the Six O’clock Report or in R.I.P.: Peace Corps & Vista the ‘modern living’ sections of the newsweeklies . . What then finally killed them? Why did they suddenly succumb? “I Excerpted from “R.I.P.: Peace Corps effects, such as ennui, insecurity, don’t really know,” Miss Idealism and Vista,” by Wallace Roberts, SAT¬ frustration, and, in a few cases, said. “No one does, and anyone URDAY REVIEW, April 1, 1972. despair or fear. “Together, all of who pretends to know is fooling Copyright 1972 Saturday Review, Inc. these amounted to disenchantment, himself. Trivalization is a strange PORTLAND, Oregon, April 1, 1973— which in simple political terms disease. It can lie dormant for Peace Corps and Vista, that charm¬ means lack of support.” months and even appear to be de¬ ing couple of liberal hope who At that point in our conversation, feated by treatments; then suddenly danced, sang, and chatted for mil¬ Dr. Economy was recalled to the the patient just pops off, apparently lions of Americans during the Six¬ dinner party he was attending at the in this case because the disease had ties, died last week in a Portland, Portland County Country Club, but progressed further than any of us Oregon, nursing home, penniless he referred this reporter to Professor expected. You just can’t fight the and without friends. The cause of False Dichotomy, who holds the ratings.” death in both cases was reported to Walt Disney Chair of Social Pathol¬ You just can’t fight the ratings. be lack of support, but it was under¬ ogy at the University of California To the generation that took The stood that this attack was compli¬ at Nevada City, for a more com¬ Greening of America to heart, those cated by advanced stages of triviali- plete and thorough description of gentle democrats who believed there zation.. . the effects and causes oft rivializa- were rational solutions, Peace Corps Asked to explain in layman’s tion. and Vista were symbols of a way terms just what this disease did to Professor Dichotomy said, “Trivi- out, of Hope itself. Any public is the body, Dr. Economy said in a alization is a disease of the primary fickle, but the politics industry is, telephone interview that trivializa- mythologizing system. Its basic perhaps, the most fickle of all. tion attacked the soul and, by frag¬ cause is an obscure virus, hitherto Whatever the coroner’s verdict, the menting its relatively few parts into regarded as benign in terms of hu¬ real cause of their deaths, and the millions of tiny duplicates, made man biochemistry. The common obscurity that preceded them, is our them, in effect, useless. This name of the virus is Soaring GNP, own perception that they were only brought on, he said, severe side and the method of infection is what we made them.

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FOREIGN SERVICE JOURNAL, June, 1972 37 FOREIGN SERVICE FABLE he too began coming in on Satur¬ attention of the Ambassador. These days although this meant giving up were taken in relatively good humor from page 14 a long-standing regular golfing ar¬ at first, but as they persisted the pointee who had made his fortune rangement. However, both he and Ambassador became increasingly as a strip mine operator and who the chief of the Political Section testy. Unbeknownst to Schott, the found in his new role of Ambassa¬ began saving work from Friday so Ambassador had been coming to dor a measure of respectability. that they could be gainfully em¬ the chancery on Saturdays only to This he expected to retain when his ployed at the chancery on Saturday. pore over topographical maps and diplomatic assignment ended by re¬ When the Administrative Officer aerial photographs of his estate, to tiring in the manner of Thomas noted from checking the Marine draft minute instructions to its man¬ Jefferson to his recently purchased Guards’ sign-in book that the other ager, and to carry on an extensive estate near Charlottesville. chiefs of Sections were coming in on correspondence with the Albermarle Soon after arrival at his new post, Saturdays, he surmised that more County (Va.) Historical Society Schott noted that while the Ambas¬ must be going on at the chancery on concerning the earlier eminent own¬ sador worked at the chancery every Saturdays than he had previously ers of his estate. The tranquillity and Saturday morning, no other member imagined and concluded that he too satisfaction the Ambassador found of the staff except the Communica¬ had better be aboard lest he be in these pursuits on Saturday morn¬ tions personnel did so. This he labeled a slacker. Finally, the poor ing was now completely shattered promptly changed by reporting for Consular Officer, who had three by a querulous staff headed by a work at 8:30 a.m. the next Satur¬ young children and whose wife hard-driving DCM. day, even though he had cleared his counted on his presence at home for Mr. Schott obviously had to go. desk by 4:00 p.m. Friday. weekend relief, dutifully joined the Three weeks later he received out Noting Schott’s presence in the throng. It had by then grown con¬ of the blue a letter from the Depart¬ chancery the previous Saturday siderably since no self-respecting ment informing him of an urgent through a judiciously dropped re¬ Section chief could work without his need for an officer of his experience mark on the part of Schott, the chief secretary. and leadership in that “exciting” of the Political Section decided he With a full staff dragooned tropical country, Upper Ennui. had best make an appearance the aboard, new problems inevitably SMoral: In the Foreign Service, as following Saturday. When the chief arose which, inevitably, DCM elsewhere, doing too much may do of Economic Section learned of this, Schott was forced to bring to the you in. ■

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38 FOREIGN SERVICE JOURNAL, June, 1972 IDES OF MAY fore were quickly reassembled. Bill Syrian airfields had been used by from page 21 Porter volunteered to serve in this the Axis during the Iraqi campaign. thored was already shattered. emergency and took Knabenshue’s They could also be used against “Call them off.” warned Knaben- car into the worst of the riot area in Egypt. The main British fighting shue, “or I won’t be responsible for the old city, where he rescued units, mostly Ghurkas and Austra¬ the consequences.” Hurried consul¬ American missionaries who were in lians, were scheduled to move on to tations with Habbaniyah revealed grave peril. He was pale and ex¬ the Syrian campaign. that the cease-fire signal had not hausted from what he had seen. We accompanied Knabenshue to been communicated in time to the The gutters were literally running greet the Regent on his return. The Egypt-based bombers which had with blood. The Iraqi “man-in-the- cermony was simple, on the dusty, made the raid. Fortunately the street” had been quick to exploit shell-torn road leading in from Hab¬ Iraqi authorities had no alternative this phase of lawlessness to settle baniyah. The Regent’s smile and but to accept a statement of this personal feuds, achieve vendettas. handshake for Knabenshue were fact as explanation. Helpless minority groups suffered particularly warm. Much to the disgust of the British severely. In summary and retrospect we all community the official position was The situation was soon resolved agree that, despite its difficulties soon adopted—that of “forgive and when the police were ordered to and tensions, the month’s intern¬ forget.” shoot to kill. Investigations and in¬ ment of May 1941 was an experi¬ The immediate fruits of this poli¬ dependent eyewitnesses established ence we do not regret. We learned cy were not good. The “Golden the fact that the riots had been more about each other than we Square” had fled to Mosul with the planned and instigated by the de¬ would have done in years of normal German and Italian technicians and parting Nazis and their agents. service. We certainly learned more advisors. But they had left their Despite all of this, the British about the British than we would seeds of hate behind them. The very “grand strategy” paid off. Great have in a lifetime, and they in turn situation which all of our planning Britain could not afford to hold out came to acquire a totally different had envisaged—mob violence— and maintain Iraq as occupied ene¬ attitude and approach toward broke out. The Iraqi police were dis¬ my territory with a large garrison. If Americans. Above all, we got a organized and wavering. the war in the western desert was to firsthand lesson in the advantages of The refugees which Knabenshue be won, the Vichy nest in Lebanon practical, positive, “do-it-yourself” had released reluctantly the day be¬ and Syria had to be cleared out. diplomacy in the field. ■ COLQUITT-CARRUTHERS REALTORS DESTINATION WASHINGTON? Our PICTURE GALLERY OF FINE HOMES and DESTINA¬ Sales—Rentals—Investments TION WASHINGTON with complete information on financing, taxes, insurance, schools, etc., plus the do's Specializing in Residential Properties and don'ts of buying or ranting, sent fro* for th* asking. Our 75 full-time associates can provide real Northwest Washington and Montgomery County service to your family. Offices in Alexandria, Arling¬ ton, Fairfax and McLean. Please Write for Information

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FOREIGN SERVICE JOURNAL, June, 1972 39 SHRINKING OCEAN other scientific research conducted tries, and has become such a politi¬ from page 19 with the intent of open publication cal issue, that the principle of non¬ scientific research conducted with a and every other type of research or interference is likely to encounter view to open publication. A similar exploration. continuing hostile rejection unless declaration in support of non¬ Second, the agreement must con¬ they can be convinced that scientific interference formed part of the US tain an absolute prohibition against knowledge is an important key to statement at the first meeting of interference by any state with fun¬ their future development. Subcommittee III of the UN damental or other scientific research What is needed is a decision by Seabeds Committee (covering ma¬ conducted with the intent of open the governments of the United rine pollution and research) held in publication anywhere on the oceans States, the Soviet Union, and other Geneva on March 25, 1971. Nei¬ or seabed up to 12 miles from land. advanced maritime countries to take ther of these pronouncements was Third, the concerns of the less freedom of scientific research out of followed up with concrete propos¬ developed countries must be catered the bottom drawer and give it high als. to by (a) a program of cooperative priority in future negotiations. Gov¬ The crucial test for scientific re¬ oceanographic research under inter¬ ernments of coastal states need to search in the forthcoming Law-of- national auspices, and (b) a pro¬ be convinced of the vital importance the-Sea Conference and preliminary gram of technical assistance for the of open research conducted for the negotiations will not be whether the coastal states of Latin America, benefit of all and the necessity of world community endorses pious Asia and Africa, also under interna¬ protecting it. Open research needs banalities in favor of international tional auspices, to enable them to to have its supranational character cooperation, but whether it will develop oceanographic capabilities recognized and be emancipated from adopt specific guarantees against of their own. Knowledge itself is the strategic and political consider¬ non-interference. To achieve this, useless without the capacity to apply ations—many of them obsolete— three steps are essential. it. that determine negotiating instruc¬ First, any future international Just how salable such a program tions. agreements covering the seabed and would be is a legitimate question for Open research is the'key to man’s oceans beyond territorial limits must debate. Suspicion and fear of rational use of the marine environ¬ draw an express and unequivocal western technology is now so deeply ment. It deserves maximum protec¬ distinction between fundamental or ingrained in the developing coun¬ tion under international law. ■

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40 FOREIGN SERVICE JOURNAL, June, 1972 The American Foreign Service Protective Association ANNUAL REPORT FOR THE INSURANCE YEAR ENDED FEBRUARY 29, 1972

I. OPERATIONS As of March 1 1971 1972 Members carrying Group Life 3017 2998 Group Life in Force $81,586,525 $80,760,775 (inclusive of Reversionary) Enrolled in Foreign Service Benefit Plan 9115 9339 Claims paid during year: Group Life, Number 35 34 Amount $ 421,625 $ 602,875 Family Coverage, Number 12 14 Amount $ 26,000 $ 43,000 Accidental Death, Number 2 1 Amount $ 45,000 $ 17,500 Foreign Service Benefit Plan $ 1,797,594 $ 2,168,558

Benefits in general have been frozen under the Wage- Price Con- trols and, therefore, for the first time for many years there are no changes or increases to be reported.

THE BOARD OF DIRECTORS: David D. Newsom, President Neil C. McManus, Sec.-Treasurer Waldemar J. Gallman, Vice President Fraser Wilkins, Director John M. Steeves, Director

Address applications and inquiries to:

The American Foreign Service Protective Association c/o Department of State, Washington, D. C. 20520

or 1750 Pennsylvania Avenue, NW, Suite 1305, Washington, D.C. 20006 Telephone: 298-7570

FOREIGN SERVICE JOURNAL, June, 1972 41 LETTERS TO |ZC; | simply by letting another Division eign Service life was largely spelled from page 2 or two have a copy of your telegram out, if not by official administrative after it had gone out. No one ever fiat then by tradition and “the sessions how many officers could bothered to consult anyone from word.” be promoted in each cone, but this another Department and meetings Three cheers for those who en¬ information was never made avail¬ were unheard of. joyed the responsibilities placed on able to the Service as a whole as it There was stiff competition, as “Foreign Service Wives” by the Old should have been. Perhaps the De¬ well as cooperation, to get things Order. I have the greatest respect partment fears that many of its top done quickly and effectively. And for them, and assume that they will officers would engage in an undigni¬ everyone had enormous pride— continue to live their lives in the fied scramble for a “better” cone— pride in his job, in his Division, in Foreign Service in such a way as to or worse, that they would take ad¬ his Service, in his Country. derive a sense of satisfaction and vantage of full information on their Today we seemed to have piled fulfillment. What the policy changes promotion prospects (dim for many the Pelion of organized mediocrity recognize, however, is that not top-flight political officers, it would on the Ossas of bureaucratic obesity everyone shares their point of view; seem) to seek alternative employ¬ and strangulative coordination. that many women prefer to spend ment. If the management mind is It would be most unsporting to their time in other ways than in the thinking along these lines, it would kick the unfortunate able FSO after established forms of “Foreign Serv¬ be all too easy to decide that honesty he has been mugged by the NSC, ice Wifery”; that these women de¬ is not the best policy . . . the CIA, and the JCS and is bat¬ serve as much respect as those who I count on AFSA to do something tered and bleeding on the pave¬ choose the traditional Foreign Serv¬ to save the merit system from the ment. I have no thought of doing ice wife’s role; and above all, that total destruction to which it now so, but his weaker brethren appar¬ this decision should be made by appears doomed. ently have. each family individually rather than ANDREW L. STEIGMAN Obviously American world-wide by the system. To suggest that cou¬ Paris responsibilities are far wider, more ples in the Foreign Service commu¬ complex and more important today nity will stop “sharing” just because Piling Pelion on Ossa than in the happy days I have de¬ the Foreign Service no longer writes ■ Those who love the Service have scribed. Obviously it takes bigger it up in an officer’s efficiency report been profoundly saddened by Ex¬ and more complex human machin¬ is an insult to women who were ecutive Order 11636. More accu¬ ery to deal with them. But ... we comfortable with the traditional role, rately, they are saddened by the seem at times to go out of our way to women who fought for the policy dismal decay of Service spirit which to create the proverbial camel—the changes, and to their husbands. led to it. horse designed by a committee— TERESITA C. SCHAFFER In the late Sumner Welles’ with Rube Goldberg as a consul¬ Washington memoirs there was a sharp change tant. of language coincident with the time I know that the Service still con¬ And an F.S. Wife his resignation as Under-Secretary tains many, many people with the was requested and accepted. Fre¬ guts, brains, determination, energy, ■ Perhaps you might be interested quent references in the earlier part and negotiating ability to fight their in how one foreign service wife re¬ of the book to “the wise foreign ideas, and their way, up through the acted to Secretary Rogers’ airgram policies of the United States Gov¬ gooey tangle of bureaucratic spa¬ on “Policy on Wives of the Foreign ernment” disappear and are re¬ ghetti. It’s a lot tougher than it used Service Employee.” placed thereafter by “the stupid to be. May its very toughness stimu¬ Shortly after reading the airgram mistakes of the State Department.” late the able ones to even greater I was called by the principal of the I confess to a somewhat similar effort. American Collegiate Institute (a view, in no sense personal and with THEODORE C. ACHILLES Junior and Senior High School for no sharp cut-off date, but rather Washington Turkish girls) and asked if the State Department had any feelings against with respect to the passing of an Wifely Traditions era. wives working—and, if not, would Not too long ago the five geo¬ ■ Letters like the one from Solie I please help the school out of a graphic divisions of the Department Reinhardt, which appeared in the critical English teacher shortage (and they were “Divisions,” with April issue of the JOURNAL, com¬ caused by the rather stringent aca¬ the responsibilities of the present pletely miss the point of the recent demic background required of teach¬ Bureaus but staffs smaller than changes in the Department’s policy ers and extremely low pay. many contemporary country desks) regarding the wives of Foreign Serv¬ I accepted the position and I’ve were small enough for their officers ice employees. since had a most exciting and re¬ to concentrate on important things. Neither the Department nor those warding time teaching, 10 hours a The oceans of trivia with which who fought for the policy changes week. And, I can’t help but feel the Professor Parkinson’s disciples have wish to remove “sharing” from mar¬ interchange has been mutually bene¬ inundated their successors never riage by administrative fiat. What ficial. even crossed their minds, let alone they are fighting against, rather, is a Naturally, I’ve had to delete a their desks. situation in which the form of “shar¬ few things from my schedule—dup¬ Coordination was often achieved ing” considered appropriate to For¬ licate bridge, a few naps and an oc-

42 FOREIGN SERVICE JOURNAL, June, 1972 casional tea party. the budget for the Fulbright pro¬ passenger ships. Today there is no grams in his country. We American choice because there are no Ameri¬ However, I still may never have can passenger ships in operation, started teaching, if long before the diplomats have been curiously in¬ sensitive on such matters, overly nor even freighters carrying passen¬ airgram arrived, Consul General eager to delegate responsibility to gers. Most families who crossed the and Mrs. Thomas D. McKiernan lesser agencies, and thus generally Atlantic by sea enjoyed the trip. In had not created an atmosphere that indifferent to arguments that culture any case, everyone appreciated hav¬ not only permitted, but encouraged and information should be admini¬ ing a choice. creativity in members of their staff. stratively differentiated. USIA in¬ We all know the reason why our MRS. DUDLEY SIPPRELLE fighters usually dismiss the logic of travel is limited to jet. In a word, Izmir this distinction with pejorative ref¬ the regulations say you must travel erences to culture’s desire to be by American carrier, and at first the “pure.” Meanwhile, tolerance of the regulations at least had a logical Solution for USIA present anomaly has pointlessly en¬ basis. They were fashioned to pro¬ dangered the reputation of Ameri¬ tect American financial and com¬ ■ The personality clash between can academic activity abroad. mercial interests. Senator J. William Fulbright and In the light of what we are begin¬ USIA Director Frank Shakespeare While President Nixon may have ning to learn about our earth, the should not obscure the policy issues hard political reasons for giving the only known home of life, it is no underlying their confrontation. right-wingers in his party, like Shakespeare, their head, he is prob¬ longer logical or even moral to force Old-timers will recall that the ed¬ ably aware that Senator Fulbright people to travel by jet. We don’t ucational and cultural program of is really strengthening the Nixon know enough today to say what is the State Department, including Doctrine itself. That is, by increas¬ happening to our world’s atmos¬ funds for the Fulbright program, ing the cultural component, quiet¬ phere and, until we do, it is up to has been administered in the field ing the propaganda decibels, and each individual to decide to what since 1953 by USIA, the chief ideo¬ thus getting closer to the “de- extent he is willing to contribute to logical arm of our Government. ideologizing” of our foreign policy the “need” for faster flight and the The unfortunate commingling of that seems to want. “demand” for larger planes. our overseas academic presence and our official propaganda agency has There is a simple solution to the Without going into the specifics of been repeatedly noted and deplored problem: re-absorb USIA into the jet pollution, I want to make the by studies of the Council on Foreign Department, put information activi¬ point that no matter what you read Relations, the Brookings Institution ties under the Bureau of Public or believe, one thing is clear: we and Columbia’s American Assem¬ Affairs and all cultural programs don’t know precisely what the effect bly, which have recommended a (including centers and books) un¬ might be of hydrocarbons being re¬ separation of the two functions. Be¬ der CU, having the information leased in great quantities into the cause of involved personal relation¬ officer (or PAO) and cultural offi¬ atmosphere. Meanwhile, while we ships, inertia, and perhaps the su¬ cer report separately to the Ambas¬ are learning about the ecosystem, it perior bureaucratic footwork of sador and run distinct although not is up to every person to cut down on USIA in comparison with the Bu¬ conflicting operations. Such an ar¬ the amount of (just to name one reau of Educational and Cultural rangement would not appreciably thing) fossil fuel he uses or causes to Affairs (CU), the problem has widen the CM’s “span of control” be used. If the trip is necessary, the festered for a generation. problems. And it would underline question we should ask ourselves is There is no need to support the a vital distinction. what is the cleanest way, not the specific proposed reductions in “Structure is policy.” The effi¬ fastest, or most convenient way to USIA’s media operations. But it ciency-minded administrators of the take it. should be quite clear that Senator Nixon Administration have not got I believe that something can be Fulbright is trying to restore some around to rationalizing the manage¬ done by you and me about the balance in our communications with ment of our intellectual relations condition of our world, and that it is foreign publics. Contrary to the with the rest of the world. Senator just as much each individual’s busi¬ charge of AFGE, he has specifically Fulbright is nudging the executive ness to get to work on it as it is the exempted the Center Service of branch to do just that. Beneath the “big polluters.” Who says we want USIA and related programs from sound and fury of the Herschensohn bigger everything? Faster every¬ cuts. The Senate Foreign Relations affair and its sequel, let us not over¬ thing? We’re transferred to Wash¬ Committee has also voted a sub- look this all-important fact. ington this summer, and I’m taking the ship. I’ll have to pay for it tantial raise in funds for the ex¬ JOHN R. KING myself, but for $370 I’ll have seven change program in 1973, which San Francisco would bring it up to $50,000,000. days at sea and the good feeling that So a scalpel, not a meataxe is being I’m helping to clean up humanity’s applied. Solution for Pollution nest. The pollution per passenger of For years the international credi¬ a ship must be infinitely less than bility of American scholarship has ■ A few years ago Foreign Service the plane the “regulations” would been needlessly jeopardized because families traveling between Europe require. the chief US propagandist in every and the United States had a choice KAY FESSENDEN embassy is ultimately in control of of going by air or by United States Bonn

FOREIGN SERVICE JOURNAL, June, 1972 43 P3J EDITORIAL Grievance Legislation: 111 Agreement “in Principle?”

W WE note the Department’s recent conclusion, in letters addressed to the Chairman of the Senate Foreign Rela¬ T" USIA’s Unfinished Business tions Committee and the House Foreign Affairs Com¬ mittee, that, although existing proposals for grievance HE Senate vote on May 1 to restore USIA’s full budget legislation give the Department “the most serious request of $200 million was gratifying news. In recent years there have been important improvements in the concern,” “legislation setting forth general principles for level of the Agency’s performance, its professionalism, a grievance procedure along the lines discussed in Am¬ and its sophistication. It remains the most effective bassador Johnson’s letter would be desirable at this time.” American organization—public or private—for commu¬ AFSA developed its proposals for grievance regulations nicating with foreign governments and their peoples. well over a year ago and the Department has yet to give “That being said, it would be a serious error for the AFSA its comments on them. When legislation virtually Foreign Service—and especially for us who are USIA identical to the AFSA proposals was introduced in Con¬ Officers—to ignore the implications of the attempted gress, the Department still had no comment, other than oblique references to the “inappropriateness” of any leg¬ budget cut.” USIA won a reprieve, not a full pardon. islation on this subject. Now the Department has finally There is, in short, some unfinished business to be attended agreed that legislation is not only appropriate but “desir¬ to if the Agency is to perform its mission more effectively. able” ... in a general sort of way. The first item is to work out procedures for preparing This endorsement by the Department of broad princi¬ future Country Program Memoranda—the chief planning ples for grievance legislation is in response to a letter document of USIS posts overseas—in unclassified ver¬ .sent to Ambassador Johnson by several hundred Depart¬ sions. This has been done in several instances, and has ment officials. In the covering letter these individuals not imposed any obstacle to the efficiency of post opera¬ argue that pending grievance legislation would destroy tions. There is also a need to prune rigorously some the merit promotion system, “suspend and discredit” the traditional activities no longer useful and redirect the formulation and implementation of substantive foreign Agency’s basic orientation from Washington to the field. policy and “disrupt the operations of the Department and Another item of high priority is for USIA to revise the adversely affect the rights of the great majority of Foreign entire selection process—including hiring, assignment, Service employees.” Serious charges, but all invalid: promotion, and selection out—with the purpose of in¬ those knowledgeable in statutory interpretation and griev¬ suring that excellence of performance is always the basic ance procedures generally, as well as Senators and mem¬ consideration. The machinery has become creaky, and in bers of their staffs, agree that the current bill cannot be far too many cases it neither results in the assigning and read to permit these results. promotion of the most proficient officers, nor offers the Conversely, seven of the eight “Principles” contained individual employee full due process in the decisions in the letter to Ambassador Johnson and indirectly en¬ that affect his life and livelihood. “State and other agen¬ dorsed by the Department are contained in the existing cies are also in need of change, of course, but USIA Senate bill: provision for informal procedures to resolve has been able to point the way in several instances in grievances was added by floor amendment on May 10; personnel reform, and we would like to see this tradition all five of the enumerated due process rights (and more) continue.” are so contained; the definition of grievance in the “John¬ A third item for re-assessment is in redefining the son letter” is broader than that contained in the bill (ex¬ Agency’s mission. Not only is there need for clarification cept that the bill does not address, and does not need to of the long-ambivalent—and sometimes false—distinction address, the “substantive foreign policy” straw-man). The between information and cultural activities, but USIA’s only major discrepancy between the “Principles” and the relationship within the foreign affairs community should pending bill lies in the creation of the grievance board: be re-assessed. It would be especially helpful if the Agen¬ the “Principles” call for a board appointed by the Secre¬ cy could improve its working-level contacts with the State tary “with the concurrence” of the exclusive employee Department, Defense, and White House. This might organization, while the bill as now amended calls for a result in a better realization of the contributions that board composed of one member chosen by the Secretary, USIA is able to make and enable USIA to end its isola¬ one chosen by the employee organization and a third tion. As Edward R. Murrow said years ago, if USIA chosen by the first two from a panel of twelve candidates must cope with the crash landings, it should be in on agreed upon beforehand by the Secretary and the em¬ the take-offs. ployee representative. This last difference scarcely justi¬ Finally, much of the confusion about USIA’s basic fies the extraordinary efforts the Department is making mission could be clarified by formulating realistic objec¬ to kill the pending legislation. tives and insuring that the Agency’s products relate to In calling for the grievance board to establish its own them, rather than to what individual officers, some without organizational and procedural regulations, the current overseas experience, think foreign audiences should know Senate bill admits that not all matters of detail can be about the United States. handled by this, or any, legislation. But the pending legis¬ In short, the Senate action has presented USIA with lation does create that essential framework for the resolu¬ a challenge and an opportunity to improve its perform¬ tion of grievances under rules of due process which the ance. “The Foreign Service of USIA will accept the Foreign Service has needed, and gone without, for so challenge if given the chance, and we are sure that all many years. This Association will continue to support the Agency’s employees will do no less.” ■ the legislation and work for its early passage. ■

44 FOREIGN SERVICE JOURNAL, June, 1972 SPECIAL ANNOUNCEMENT AFSA’s annual general business HQ REPORT meeting will be held Wednesday, A Grievance System for the Foreign Service June 28, 1972 in the International Given the reluctance of the For¬ dures was introduced in the Sen¬ Conference Room, Department of eign Affairs Agencies to adopt an ate by Senator Birch Bayh and in State. equitable grievance system, the the House by Representative Lee The agenda: AFSA Board became convinced Hamilton. Agency management 1) Chairman’s Report that the only way that the Foreign immediately indicated its oppo¬ William C. Harrop Service could obtain such a sys¬ sition to grievance legislation. In 2) Treasurer’s Report tem was through legislation such response to pressure from Con¬ David W. Loving as the Bayh Bill or the Bayh- gress, the public, and AFSA, the 3) Consideration and vote upon Cooper Bill. We have supported Foreign Affairs Agencies belatedly proposed amendments to the and we continue to support enact¬ instituted “Interim Grievance Pro¬ Certificate of Incorporation, ment of such legislation. cedures" for all Foreign Service as published in the June In late 1970, AFSA requested personnel in August 1971. AFSA Foreign Service Journal. the Department to discard the in¬ made nine formal recommenda¬ 4) Other business adequate 3 FAM 1820 grievance tions to the Foreign Affairs Agen¬ procedure, which expressly ex¬ cies and to the Board of the For¬ E. 0. ELECTIONS cluded cases involving major con¬ eign Service to improve the cerns such as promotion, assign¬ Interim Procedures, three of which AFSA Petitions for ment, or selection out. Under were adopted. Election at State these procedures the Director of On April 29,1972, after the Bayh- On May 15, our showing of in¬ Personnel was in the unique posi¬ Cooper Bill was reported out by terest topped 2025 cards and the tion of being defendant, defense the Senate Foreign Relations Com¬ AFSA Board submitted a petition counsel, and judge simultane¬ mittee, Secretary Rogers informed calling for an election under E.O. ously. This was as unfair to the Senate and House leaders that, 11636 among State Department Director of Personnel as it was to although he continued to oppose Foreign Service employees. AFSA’s the individual grievant. Unfortu¬ the Bayh-Cooper Bill, he had de¬ petition is now supported by over nately, AFSA’s request was re¬ cided to support legislation “at 2200 showing of interest cards jected on the grounds that a this time," incorporating general collected in Washington and over¬ broader grievance system would principles for a grievance pro¬ seas. We expect the showing of undermine the discipline of the cedure along the lines of a draft interest to exceed the required Foreign Service. submitted to Ambassador Johnson 25% in USIA and AID in the near Spurred by the repeated failure by certain concerned senior offi¬ future enabling us to petition for of grievants to obtain a fair hear¬ cers. These principles were a elections in these units as well. ing, AFSA drafted a new proce¬ modification of a vaguely worded The filing of an election peti¬ dure which was submitted to the draft bill prepared by manage¬ tion triggers the democratic elec¬ Secretary of State on March 31, ment. tion process for exclusive repre¬ 1971. This draft became the basis Unfortunately, Department offi¬ sentative and enables a variety for the Bayh Bill and later Bayh- cials exerted heavy pressure on of challenges. How much time Cooper Bill. AFSA urged the man¬ members of Congress and were elapses between our election pe¬ agement of the Foreign Affairs instrumental in preventing the tition and the election itself de¬ Agencies to adopt such a system Bayh Bill or any grievance legis¬ pends upon how much stalling and to negotiate any problems. lation from being reported out by AFGE and management intend to The Department refused to con¬ the House Foreign Affairs Com¬ do, using legalistic roadblocks. sider seriously any reform in its mittee on May 4. House leaders Postponing the election only de¬ grievance procedures; USIA mere¬ have agreed to hold hearings at lays the time when AFSA can ly acknowledged receipt of the some future date, and the Depart¬ approach management as an equal AFSA draft. ment says that it will now work to co-determine employee benefits In June 1971 a bill based on the for the enactment of “general and our personnel system. ignored AFSA grievance proce¬ grievance legislation.” But, we

FOREIGN SERVICE JOURNAL, June, 1972 45 have been told by our supporters it should be noted that the Grievance Bill Amended in Senate in the House that there is little Pell amendment to Section 623 of Senator Cooper with support possibility of legislation in the the Foreign Service Act would from Senator Bayh added a num¬ current session after the Depart¬ require the establishing of regu¬ ber of amendments to the Foreign ment's blocking action. AFSA will lations setting out the special Service grievance legislation on continue to urge the passage of circumstances under which the the Senate floor on May 10. The legislation guaranteeing full and Secretary could promote Foreign most important amendment, which complete due process. Service Officers on the recommen¬ AFSA urged, establishes informal dation of a grievance panel. In The Issues—“WHO DECIDES?” procedures for resolving griev¬ codetermining these regulations ances prior to a formal grievance The purpose of a grievance sys¬ with management, AFSA would hearing. The amendment limits tem is to remedy arbitrary action, urge that promotion would be such informal procedures to 60 discrimination, or violations of available as a remedy in only the days and extends the statute of regulations. If an employee be¬ most severe and unusual cases. limitations by the same period of lieves such has taken place, he or Management’s position is that time. she is entitled to a hearing. The an “impartial board” should be Several amendments were add¬ Department, with the best of in¬ appointed by the Secretary of ed regarding the grievance board tentions, cannot delineate in ad¬ State, without specifying how. itself. A new procedure was adopt¬ vance the areas of abuse. AFSA AFSA believes that the selection ed for the choosing of the third strongly believes that the griev¬ procedure should be done with board member; board members ance panel must decide whether the employees' representative hav¬ are to be paid on a per diem basis; an allegation of abuse has merit ing an equal say in determining each board shall elect a chair¬ or not. This may allow the filing of the make up of the panel. The man; and the grievance board was frivolous grievances, but the AFSA Bayh-Cooper “I choose, you specifically authorized to adopt its Board believes that this is neces¬ choose, we choose" formula ac¬ own regulations. sary to insure that no bona fide complishes this. Equally important Several changes were made in grievances are denied a fair hear¬ to AFSA, grievance panel mem¬ the procedures. The interrogato¬ ing as in the past. We count upon bers should not be Foreign Service ries may be denied if the board a responsible panel to reject frivo¬ personnel who will be dependent finds them irrelevant or imma¬ lous grievances and to establish on agency management for their terial. The board must find any a body of precedent which would next assignment and career de¬ document to be furnished by the discourage their submission. More velopment. Retired Foreign Serv¬ agency to the grievant not only importantly, we have confidence ice personnel would be appropri¬ relevant, but material, to the pro¬ that the Foreign Service will not ate, but no panel member should ceedings and the board may con¬ abuse an open system. be subject to command influence, sider only materials which are The Department holds that man¬ real or apparent, and personnel a part of the record in making its agement should decide when it is managers should not be faced decision. reasonable to suspend an action with the temptation to exert such Another amendment provides which has been challenged. The influence. that the board’s decision is final stay power of the panel, like the AFSA insists that the regulations or not, depending on whether the injunctive power of the Courts, is issued by the Secretary promul¬ relief, not the grievance as before, an important discretionary author¬ gating the grievance system con¬ relates to promotion, assignment, ity to be used in extreme cases tain provisions for the informal or selection out. to prevent injustice and irrepa¬ resolution of grievances. The Bayh- The State Department tried to rable harm to an individual or his Cooper Bill would permit such have a number of amendments family. regulations. However, the informal introduced on the Senate floor to The Department, although will¬ procedure must be prompt and weaken the grievance bill. AFSA ing in minor matters to have the must in no way undermine the is working very hard to insure grievance board make binding de¬ right to a hearing. that the due process provisions cisions (e.g., allowances, travel of the grievance legislation are vouchers), is not willing to accept, not watered down, and that prompt without an additional in-house BOARD ACTIONS hearings on grievance legislation substantive review, recommenda¬ AFSA Overseas Chapters are be¬ will be held in the House. (See tions regarding promotion, assign¬ ing formed or revitalized through¬ editorial.) ment, or selection out. If the out the world in anticipation of grievance panel system is to work, the executive order elections and then the panels must have the relationship. If your post does not authority to make binding deci¬ have a Chapter and wishes to NOTE: Please see AFSA Reform sions. Clearly, the Secretary must form one, please contact AFSA Bulletin No. 15 for the full AFSA always have the ability to reverse for sample bylaws and informa¬ position on the grievance system. any decision which he feels will tion. The Board would appreciate If you have not seen this red hinder the foreign policy or na¬ receiving the names of all AFSA border Reform Bulletin, please tional security interests of the Chapter officers to update its contact your Chapter head or Key- United States. files. man, or write AFSA directly.

46 FOREIGN SERVICE JOURNAL, June, 1972 AID Foreign Service employees AID NEWS are currently covered by the Civil MEMBERS INTERESTS AID Management Backs Foreign Service annuity plan. An estimat¬ Service Retirement Plan ed 850 who are not now eligible COMMITTEE AID Administrator John Hannah for retirement would immediately Packing and Shipping: is now pressing hard for inclusion become eligible under the Foreign The Age Of Containerization of AID Foreign Service Personnel Service plan. AID management expects that about half would As in so many other sectors of in the Foreign Service Retirement everyday living, Foreign Service System established by the Foreign actually retire. The Foreign Service Retirement employees and their families are Service Act of 1946. In order to finding that modernization and en¬ implement the proposed AID re¬ System and the Civil Service re¬ tirement system have three main hanced efficiency do not always forms, including reductions in the eliminate problems. They merely number of direct-hire Americans differences: 1. Foreign service annuities are change in shape and form. The abroad, Dr. Hannah is intent upon containerization of household ef¬ reducing total personnel numbers. slightly higher. They are cal¬ culated on 2% of the highest fects is the latest problem to come He now sees the Foreign Service to our attention. retirement plan as the best means three year base whereas Household effects moving in to achieve this end without a RIF. civil service annuities aver¬ 3 both directions between Western Earlier this year, AFSA board age about 1 - A% of the same Europe and the USA, and between members met with Dr. Hannah to base. urge him to make a strong bid 2. Foreign service personnel some areas of the Far East and for inclusion of AID Foreign Serv¬ may retire after age 50 and the USA, are now being packed in ice employees under the preferred 20 years of service without special containers which are plan. At that time, although he penalty. Civil service person¬ made to fit into special contain¬ supported such a move in prin¬ nel may retire without pen¬ er cargo ships. The advantages ciple, he was seeking more limit¬ alty after they reach age 55 of containers are greater speed ed special legislation to facilitate with 30 years service, age in shipment and lower cost. But a one-time early retirement of 60 with 20 years service, or there are some disadvantages 62 with 5 years service. large numbers, both Civil and from the point of view of the em¬ Foreign Service. Subsequent sig¬ 3. Foreign Service retirement ployee who owns the household is mandatory at age 60; civil nals from key Congressmen have effects being shipped. service retirement is not led Dr. Hannah to drop the special Containers are expensive items legislation request in favor of mandatory until age 70. that cannot be stored in ware¬ general application of the Foreign houses. Like jet planes, they make Service Act retirement plan. The money for their owners only when proposal, which was last sought USIfl NEWS they are in motion carrying cargo in June of 1969, would be added FSIO-1 Promotion List Held Up between two points. Most Foreign as an amendment this year to the Service employees are in no posi¬ The USIA promotion list has security assistance authorization tion to receive their effects im¬ been cleared by the Senate For¬ under the Foreign Assistance Act. mediately from the port of en¬ eign Relations Committee. How¬ AFSA has strongly supported such try. They are usually unable to ever, the promotions of ten FS10-2 legislation for a number of years. find permanent housing quickly officers to Class One have not enough. The containers must been approved because of the STAFF CORPS NEWS therefore be unpacked, and the Committee’s disapproval of this effects palletized inside a ware¬ Due to a number of abuses year’s alphabetical listing of Class house awaiting final reception by which have been called to AFSA’s Two officers judged eligible for the employee and his family. attention, the Staff Corps Advi¬ promotion to Class One. This is where the problems arise. sory Committee (SCAC) is compil¬ AFSA strongly opposed USIA ing a list of those Bureaus and Director Shakespeare’s by-passing When the effects are unloaded posts where overtime payments the rank order merit system for from the container into a ware¬ are not being made as required Class Two officers but does not house, the original inventory is by agency regulations. Since many favor delaying any promotions for checked by the receiving storage AFSA members are reluctant to this year. AFSA continues to work company. What happens if some¬ file grievances on these violations, for passage of an amendment to thing is missing? The receiving the SCAC is collecting informa¬ Section 623 of the Foreign Service storage company scratches the tion to raise the issue as a class Act to guarantee that all promo¬ item from the new inventory it is action on behalf of everyone. Your tions would be made on the basis making. Who is responsible for the help is needed. If overtime pay¬ of the objective rank order find¬ missing item? That's the problem. ments are being made according ings of the selection boards. This The sending company says every¬ to Agency regulations, this infor¬ amendment has been reported out thing was there when they sealed mation would also be useful. of the Senate Foreign Relations the container. The receiving com¬ Please write Staff Corps Advisory Committee and is awaiting action pany says that it isn’t their fault. Committee, c/o AFSA. by the full Senate. Besides, the container may have

FOREIGN SERVICE JOURNAL, June, 1972 47 arrived without any seals or locks. The disappearance might have Unionism's New Frontier taken place anywhere enroute. By A. H. RASKIN State affiliates of the National One AFSA member lost a full set Education Association and the © 1972 by the New York Times of new tires during a recent con¬ American Federation of Teachers Company. Reprinted by permis¬ tainerized shipment between Eu¬ are urging their 190,000 members sion. rope and Washington. to approve a merger of these once After a full generation of stag¬ The effects must also be pallet¬ legendary enemies—a merger that nation in unionism’s traditional ized. This is a warehouseman’s may eventually unite the two par¬ blue-collar strongholds, labor orga¬ euphemism for stacking things on ent organizations and make the nization is suddenly racing ahead top of each other. So, if the em¬ fused group the biggest union in in fields where Samuel Gompers ployee feels reasonably assured the A.F.L.-C.I.O. never would have dreamed of find¬ to see his effects packed nicely The militant forward push of ing a union button. and tightly in the container, he teacher unionism in the last dec¬ The State Department’s Foreign may be surprised to see his furni¬ ade and the substantial advances Service, once an “old-boy club” of ture chipped and scratched as a it has brought both in salaries career diplomats whose class result of “palletizing” at the other and in union voice in determining identifications matched their work end. educational policies are major clothes of striped trousers and What are the answers to these elements in the current surge cutaways, is preparing for its first problems? First, there must be toward union-type activity in the union election. Another group un¬ greater controls on the contain¬ erstwhile bastions of professional used to overalls—Wall Street ers themselves. Management has elitism. stockbrokers—proclaim them¬ agreed to have inspectors present The second spur to professional selves “fed up with being under at the opening of containers in unionism is the heavy shakeout of the thumb of a feudal overlord, Washington area warehouses to engineers and other .holders of the New York Stock Exchange,” check the inventories against the scientific degrees as a result of and plan to turn their association actual contents. If enough inspec¬ cutbacks in defense and space into a collective bargaining instru¬ tors can be made available, es¬ and in government-financed re¬ ment at a meeting tomorrow. pecially during the mid-summer search projects. Jack Golodner, rush, this should lower the possi¬ Hospital internes and staff doc¬ executive director of SPACE, the bility of theft by warehouse per¬ tors, engineers, chemists and a central council the A.F.L.-C.I.O. sonnel who otherwise would be dozen other varieties of industrial set up four years ago to coordi¬ under no control. There is also no scientists, college professors, nate recruiting efforts among reason why containers should ar¬ lawyers, architects, museum cura¬ scientific professional and cul¬ rive at warehouses without seals tors, even a few artists and sculp¬ tural employes, puts it this way: and locks. Foreign Service effects tors are following big league base¬ “The balloon has popped. What coming into the USA from abroad ball and football stars toward with the economic depression in are usually waved through by cus¬ unionization. To be sure, not all the technical professions, these toms under the able management these groups are rushing head¬ people suddenly feel very naked. of the US Despatch Agent. long into the embrace of the A.F.L.- The old fear that unionization Second, effects packed into C.I.O. or other established labor meant you’d have some Teamster containers should first be packed bodies. But even the most moss- telling you what to do is long as if there is no container. If you bound of professional associations gone. Now there is a great sense can get your packer to make a lift find themselves under intense of their own impotence, a worry van that will fit into a container, internal pressure, especially from about whether they will have so much the better. If not, at least their younger members, to take enough clout even if they do join have each item packed for maxi¬ on economic concerns in dealing a union.” mum protection against scratch¬ with giant corporations, universi¬ Unionism’s advent to the For¬ ing and theft. A lift van type of ties and that biggest boss of all eign Service has brought an¬ envelope around your effects in¬ —government. guished wails from some old stal¬ side a container does not count Thus the annual meeting of the warts. Even before the American against your weight allowance, so American Chemical Society in Foreign (Service) Association filed take full advantage of as much Boston last month authorized a a formal election petition last physical protection as you can ar¬ new department to study salary week, Ellis 0. Briggs, a retired ca¬ range for your family's posses¬ scales and draw up a model code reer ambassador, resigned com¬ sions. The rule of thumb should of employment standards. The plaining that the organization was be: Nothing should be placed into American Association of Univer¬ turning into a “foggy bottom local a container in its natural un¬ sity Professors, after years of of the amalgamated bureaucrats of packed state. shunning direct involvement in the Potomac,” dedicated to letting Finally, we need better insur¬ bread and butter matters, has just drones take over under the watch¬ ance protection from the Govern¬ voted overwhelmingly to seek bar¬ word, “Mechanics of the motor ment. AFSA is working on reforms gaining rights on campuses all pool, unite: let the ambassador in this area. over the country. The New York put on his own damned chains.”

48 FOREIGN SERVICE JOURNAL, June, 1972 A Grievance Law for Diplomats Reprinted from the Washington Post, May 3, 1972 with permission. The Foreign Service continues tions of fair play. The Foreign to be Washington’s most troubled Service, like most other American But William C. Harrop, chairman bureaucracy, and its troubles are institutions, is divided over ques¬ of the association’s board, who now being brought, once again, tions of the proper limits to dis¬ has had sixteen years in foreign to the floor of the Senate. The sent. And those questions have a service posts in Europe and Africa immediate issue is legislation to special edge in an organization and is currently attached to the establish a new and independent whose business involves political State Department planning staff, grievance procedure for Foreign analysis. What one man considers feels confident that the organiza¬ Service officers and the other creativity may seem insubordina¬ tion can play a vigorous economic employees of the foreign relations tion to another, and personnel role while maintaining its concern agencies. The Department of State disputes often revolve around pre¬ for high professional standards. strongly opposes this legislation, cisely that distinction. That is why the association helped arguing, with considerable justice, The Department, under Mr. Ma¬ negotiate the text of a special that it has already corrected the comber, has made a series of executive order signed by Presi¬ worst abuses of the recent past. important improvements in the dent Nixon last December to gov¬ Unfortunately, the temper within personnel system recently. A ern labor-management relations the Foreign Service has become grievance panel has been set up in the Foreign Service, as distinct sufficiently distrustful and bitter under a professional arbitrator, from those in the rest of the that administrative reorganization Mr. Simkin, former head of the sprawling Federal establishment. by the State Department alone Federal Mediation and Concilia¬ The association’s election rival cannot cure it. What the Depart¬ tion Service. Employees are now will be the American Federation ment has given, some of its em¬ given access to their personnel of Government Employes, whose ployees fear, the Department can files. The old up-or-out firing sys¬ unit chairman, Don Kienzle, says take away. These employees are tem, which works well in the mili¬ unreservedly: “We feel we can entitled to legislation guarantee¬ tary services but badly in diplo¬ develop more clout in the eco¬ ing that the Department will apply macy, has been suspended. The nomic and legislative process by its rules fairly, and will provide Department says that it is pre¬ having formal links to the 15-mil¬ a right of appeal to an impartial pared, in principle, to support lion workers in the A.F.L.-C.I.O.” referee. Both the American For¬ grievance legislation. For Wall Street tomorrow’s eign Service Association and the But it argues that the bill be¬ scheduled vote by the Associa¬ American Federation of Govern¬ fore the Senate is much too broad. tion of Investment Brokers on ment Employees, the two chief The bill’s supporters, in contrast, amending its bylaws to include organizations representing these say that it is limited to issues of collective bargaining on compen¬ employees, support the legislation due process, and would only re¬ sation, working conditions and now before the Senate. It is high quire the Department to follow its grievance procedures is an even time for Congress to enact it. own rules. The senators sponsor¬ more startling departure than the Grievances mainly involve, as ing the bill can perhaps make moves toward unionizing the dip¬ one might expect, promotions and their intentions on this point lomatic service. Indeed, it may be firings. These matters can be han¬ explicit in the floor debate. The a jolt for the command of orga¬ dled fairly smoothly in a corps next question is who shall be the nized labor if later on the associ¬ of stable size and rank. But the judge. The present bill suggests ation decides it wants to apply State Department has been cut a three-seat panel, with one seat for a union charter. back about 20 per cent over the filled by the person bringing the However, with billions of dol¬ past five years, resulting in many complaint, one by the Department, lars of union treasury and pension firings of officers well into middle and one by agreement or failing funds now invested in corporate age, too old to change careers agreement by the Court of Appeals securities, labor’s view of stock¬ easily but too young for pensions. here. In this instance, Senator holders has changed a bit from Mr. Macomber, the deputy secre¬ Bayh’s Amendment seems prefer¬ the days of the old Knights of tary of state for management, has able. He proposes filling all three Labor a century ago. The Knights put a stop to the wholesale purges seats with professional arbitrators. were committed to organizing “all of people in mid-career. But the The malaise in the Department branches of honorable toil” into White House apparently believes goes a great deal deeper than the one big union. The only ones who that too many officers are clus¬ personnel rules. The Department couldn’t get in were lawyers, doc¬ tered in the upper ranks of the is, in fact, going through one of tors, bankers, stockbrokers, liquor Foreign Service, suggesting that its periodic bad times, and bad sellers and professional gamblers. there will be few promotions in times for the Department are bad The brokers may be asking one coming years. The cuts in both times for the men and women day soon whether that “keep out” positions and promotions has who have committed their careers sign is still there. exacerbated all the familiar ques¬ to it. Many of their traditional re-

FOP.EIGN SERVICE JOURNAL, June, 1972 49 sponsibilities have been carried BCIU APPOINTS BOOK FAIR off to Dr. Kissinger’s office at the White House, or to the Treasury. Members of the Association of The Vietnam war has churned up American Foreign Service Women all of the basic questions of for¬ are diligently collecting, sorting, eign policy, and the organizations and pricing donated books in that deal with it. But the Depart¬ preparation for their fall Bookfair ment and its sister agencies have to be held Oct. 17-20 at the State an unusual proportion of first-rate Department. people highly trained and highly For over a decade, the Rare specialized. They are not dispens¬ Book section in the Bookfair has able to this country’s central pur¬ been a great success. Again you poses. At a time when policy dis¬ can find unusual and exciting vol¬ putes are profound and vehement, umes with beautiful leather bound grievance legislation can reassure covers and gold inscriptions. This these valuable people that their year books printed in 1712, 1740, own superiors will deal with them 1768, AN VIII (revolutionary calen¬ equitably in their personal careers. dar in France, i.e., 1800) and the entire 19th century will be repre¬ sented. The Art Corner of the Bookfair is looking for art prints, paintings, ForeignService picture frames in any condition, John Habberton, former Execu¬ art portfolios and art magazines. tive Director of the Business They will gladly accept all types DEATHS Council for International Under¬ and media: old or new, modern or Arellano. Mary Slevin Arellano, standing, has been promoted to transitional, originals or copies, FSS-ret, died February 23. The President by Chairman George C. camp or funk. posts at which she served in¬ McGhee and the Board of Direc¬ Book donations of all kinds, cluded La Paz, Monterrey, Mexico tors. John S. Walter is Executive plus worthwhile magazines such City, and San Jose. Vice President and Charles Pow- as American Heritage, National Cummins. Richard D. Cummins, leske is Vice President. Geographic, scholarly and profes¬ FSO-6, died April 28 as the result BCIU is a non-profit organiza¬ sional publications, etc. are need¬ of an accident in Washington. He tion of 75 member companies. Its ed. Proceeds of the Bookfair was currently serving in the Exec¬ frequent seminars prepare inter¬ benefit the AAFSW scholarship utive Secretariat of the Depart¬ national executives for doing more and special education funds. ment of State and had served in effective business in and with Please donate your books and art Vietnam and Greece. Mr. Cum¬ other cultures. items as early as possible. mins is survived by his mother, Mrs. Michael Cummins of the ret, died in Washington May 2. As Embassy in Beirut. labor attache, Mr. McKelvey had Flexner. Magdalen G. H. Flexner, served in , Singapore, FSO-ret., died April 18 in Washing¬ Malaysia, Germany and the Philip¬ ton. After serving in the Legal Ad¬ pines. He also had been deputy viser’s Office Mrs. Flexner joined to the Special Assistant to the the Foreign Service in 1954. Mrs. Secretary of State and coordinator Flexner then served in , of labor affairs. His wife, Nadine, Cardiff, Paris and London before of 3003 Van Ness St. N.W. Wash¬ retiring in 1967. A sister, Mrs. Neil ington, D.C. 20008, and two sons McLaren, P.O. Box 1105, Stuart, survive. Fla. 33494, and two brothers sur¬ Valentine. Rachel W. Valentine vive. died May 4 in Washington. Mrs. Mailiefert. Cathryn Maillefert, wife Valentine was the mother of the of FSO-ret. William B. Maillefert, Honorable Samuel Z. Westerfield died at her home in Westport, Jr., Ambassador to Liberia. She Connecticut on April 1. The MaiI- also leaves two daughters, three leferts had been assigned to sisters, and three grandchildren. Dacca, Khorramshahr and Cal¬ Wolf. “B” Wolf, the wife of Frank¬ cutta. Mr. Maillefert may be lin Wolf, FSO-ret., died at her Mrs. John McDonald displays a leath¬ reached at 146 Kings Highway home in Little Silver, New Jersey er bound turn-of-the-century diction¬ ary to her co-workers as they sort and North, Westport, Connecticut, Con¬ on April 22. Mr. Wolf retired in price donated books for the Associa¬ necticut 06880. the early ’50s after serving in tion of American Foreign Service McKelvey. Graham McKelvey, FSO- Montevideo and Karachi. Women’s annual fall Bookfair.

50 FOREIGN SERVICE JOURNAL, June, 1970 CLUB NEWS Cover Artist PflCOR NEWS Zehra Rehmatulla Post, wife of At the 21st annual members’ Who is Cynthia, what is she, Edward Post, our June cover art¬ meeting of DACOR on April 17, that all our swains commend her? ist, has exhibited in one-man eight new Governors were elected (Apologies to W.S.) shows in Rome, Bombay, Damas¬ for a three year term: Messrs. Commend or not, our compe¬ cus, Delhi, Calcutta, Manila and Maurice M. Bernbaum, Robert G. tent, dedicated Cindy O’Brien is Washington. Her exhibit last fall Cleveland, C. Burke Elbrick, John deserting her post as manager of at the Foreign Service Club was D. Hickerson, Jack K. McFall, John the Foreign Service Club to get widely admired. Mrs. Post is a na¬ M. Steeves, T. Eliot Weil, and Rob¬ her degree at the University of tive of Hyderabad and studied ert F. Woodward. On April 27, the Michigan. As her replacement, we there and in Rome. newly constituted Board of Gover¬ welcome back Duncan Lyon, for¬ nors held its first business meet¬ mer Club manager. Duncan will be Biography Coming ing and elected the following offi¬ remembered as the handsome de¬ Philip F. Dur, FSO-retired, has cers for 1972-73: James Riddle- lightfully English-accented young received a grant from the Nation¬ berger, President; Richard Butrick, man who helped to make the Club al Endowment for the Humanities Vice President and Treasurer; run smoothly from early 1971 to for the period June 1,1972-May 31, Joseph Satterthwaite, Vice Presi¬ late that year. We regret that ARA 1973 to write a biography of Am¬ dent; Robert Woodward, Vice Pres¬ found other places that needed bassador Jefferson Caffery. Pro¬ ident; Gerald Warner, Secretary; his talents then and we are de¬ fessor Dur occupies the Jefferson William Affeld, Jr., Executive Di¬ lighted that Duncan so likes Foggy Caffery chair of political science rector; Theodore Hadraba, Assist¬ Bottom that he is willing to re¬ at the University of Southwestern ant Secretary; and Cyril Theil, turn to us. Louisiana in Lafayette, Louisiana, Assistant Treasurer. The business 70501, and can be reached at that meeting also included discussion came the second former Governor address. He would appreciate re¬ of legislation and liaison with of DACOR to be elected an Hon¬ ceiving anecdotes and personal AFSA and the Department of State orary Governor in recognition of reminiscences of the ambassador regarding current personnel pro¬ his dedication and many years of from the latter’s friends and for¬ posals. George Gregg Fuller be- service to the organization. mer colleagues in the Service.

CERTIFICATE OF INCORPORATION

OF AMERICAN FOREIGN SERVICE ASSOCIATION AND PROPOSED AMENDMENTS OF MAY 22, 1972*

The Board of Directors has undertaken a revision of the The resolution adopted by the Board on May 22 follows: Certificate of Incorporation and the By-Laws of the Associ¬ “RESOLVED, that the Board of Directors of the Ameri¬ ation. Our legal advisers have recommended that the Asso¬ can Foreign Service Association recommends to the member¬ ciation be registered under a new and broader chapter of ship that the Association elect to avail itself of the provisions the District of Columbia Non-Profit Corporation Act. Cer¬ of Chapter 10 of “The District of Columbia Non-Profit tain changes in our Certificate and By-Laws are advisable Corporation Act,” (Act of August 6, 1962, Public Law due to the terms of Executive Order 11636. 87-569, 76 Stat. 279) Title 29, District of Columbia Code A report of the By-Laws Revision Committee is currently (1967). under study by the Board, the Legal Committee and repre¬ “Be it further resolved that the question of such accept¬ sentatives of Covington and Burling, attorneys for the ance be submitted to a vote at the annual general business Association. Because of a number of technical problems meeting, to be held in the City of Washington, District of the By-Laws are unfortunately not ready for consideration Columbia, on June 28, 1972. by the membership at this time. “Be it further resolved that the Board of Directors adopts The revision of the Certificate of Incorporation, however, the following amendments to the Certificate of Incorporation which is of more immediate concern, has been cleared for for submission to a vote at said meeting of membership membership consideration. The revision of the Certificate having voting rights being held in the City of Washington, of Incorporation is included on the agenda and will be voted District of Columbia, on June 28, 1972.” upon in a general business meeting scheduled for June 28 in accordance with a Board resolution of May 22, 1972. THIS IS TO CERTIFY that we do hereby associate ourselves to establish a corporation, not organized for profit and in which no The resolution and the annotated proposed new Certificate capital stock is required or is to be issued, under and by virtue of are printed below. Chapter 6 of Title 29 of the Code of Laws for the District of Colum¬ Following its consideration by the members at the business bia, and Acts amendatory thereof, for the purposes and under the meeting under Article XI of the Association By-Laws, the corporate name hereinafter mentioned; and to that end we do by this, our Certificate, set forth as follows: new text will be submitted to the entire voting membership. A two-thirds majority of the members casting ballots is * All changes and new material herein appear in bold face type, required in order to approve the amendments. italic type indicates a deletion in the wording of the original article.

FOREIGN SERVICE JOURNAL, June, 1972 51 Delete after “under and by virtue of” and substitute the following: inure to the individual benefit of any donor, grantor, or testator, or his or her heirs, representatives, or assigns, or of any member of the the provisions of Chapter 10 (“The District of Columbia Non-Profit Association or of any private shareholder or individual other than Corporation Act,” Act of August 6, 1962, Title 29, District of Co¬ through payments of life, sick, accident, or other benefits which may lumbia Code (1967), for the purposes and under the corporate name be provided for the members of the Association and no pari of the hereinafter mentioned; and to that end we do by this, our Certificate, net earnings or of the principal or assets of this Association shall be set forth as follows: diverted to carrying on propaganda or in otherwise attempting to I influence legislation. The name of the Association is to be AMERICAN FOREIGN ARTICLE IV (d) SERVICE ASSOCIATION. Line four delete the words “Chapter 6” and substitute “Chapter NO CHANGE 10.” II Delete everything after “Association,” in the fourth from the last The principal office of the Association is to be located in the City line, and substitute the following: of Washington, District of Columbia. ; except that the Association may pay compensation, including the NO CHANGE employer’s share toward any social security or pension scheme, to III any Member, Associate, or Director in a reasonable amount for services rendered; and provided, further, that no substantial part of The term of existence of the Association shall be perpetual. the net earnings or of the principal or assets of the Association shall NO CHANGE be diverted to carrying on propaganda or otherwise attempting to IV influence legislation. The objectives and purposes for which the Association is organized (COMMENT: This language, virtually identical to that approved by as a corporation are, as follows: the previous Board of Directors, would regularize the current practice (a) To promote in all lawful, legitimateof andcompensating appropriate AFSA ways Membersthe who serve on the permanent staff advancement of the welfare of the members of the Foreign Service as Executive Director or in other positions. It also makes clear the of the United States Government, or as otherwise designated, in the Association’s authority to compensate an AFSA Member, normally American Foreign Service who shall become members of this Asso¬ a board member, for services rendered to the Association during a ciation including the welfare of their dependents or their designated year’s leave of absence from a Foreign Affairs Agency. A fixed beneficiaries; to foster among them an esprit de corps; to advance in formula for such compensation will be adopted by the Board. This every possible way the intelligent, efficient and skillful discharge of amendment would also remove the absolute prohibition on propa¬ the duties of their occupation; to advance and safeguard their eco¬ ganda and lobbying which was derived from the since changed In¬ nomic interests; and generally to encourage and promote better and ternal Revenue Code on exemption from taxation of non-profit more satisfactory employment conditions for them; organizations.) Delete and substitute the following in sub-paragraph (a) on objec¬ V tives and purposes: The management and administration of the affairs of the Associa¬ (a) To promote the intelligent, efficient and skillful discharge of tion for the first year of its existence shall be by a Board of Directors the professional duties of the Foreign Service and of the missions of of five persons. For the next ensuing years of its existence, the man¬ the Foreign Affairs Agencies in the service of the President of the agement and administration of the affairs of the association shall be United States; to advance and safeguard the careers, economic in¬ in a Board of Directors of not less than five and no more than eleven terests, conditions of employment, and welfare of the members of members, as the By-Laws of the Association from lime to time pre¬ the Foreign Service, including the welfare of their dependents or scribe. designated beneficiaries; to foster among them an esprit de corps; ARTICLE V to enhance understanding and rapport between the Foreign Service and the American foreign affairs community; Fifth line: delete remainder of paragraph after “Directors” and substitute the following: (COMMENT: This new language would delete the present reference to Foreign Service members “who shall become members of this as prescribed by the By-Laws of the Association. Association,” which the Legal Committee has advised is too restric¬ (COMMENT: This language leaves more flexible the number of tive in view of AFSA’s representation of all members of the Foreign Directors the membership may wish to prescribe.) Service. It would include a clause relating to our openness program as a central objective of the Association.) VI (b) To acquire such real and personal property as may be neces¬ This Certificate of Incorporation shall constitute the Constitution sary for the purposes of the Association, and such other real and per¬ of the American Foreign Service Association. sonal property, the inome of which shall be applied to the purposes of the Association; (COMMENT: There is a legal requirement that employee organiza¬ NO CHANGE tions “shall adopt a constitution and by-laws.” AFSA’s Certificate, with the addition of this clause, can serve a dual purpose.) (c) To accept, administer, apply, and use any property acquired by gift, grant, devise, bequest, or otherwise, in accordance with any VII of the purposes of the Association that may be specified by the donor thereof subject, however, to the qualification and condition to be Amendments to this Constitution may be proposed by the Board understood and accepted in all such cases that, if in the judgment and of Directors or by a petition signed by ten percent of the Members discretion of the Board of Directors of this Association, the purposes as of the date submitted. The Board of Directors will thereupon or objectives so specified become unattainable or are obsolete or are submit the proposal to all Members for ratification by ballot. If ap¬ not reasonably susceptible of attainment, then the property involved proved within 60 days by a two-thirds majority of the Members in any such case shall be subject to other objectives and purposes of voting, the amendment will become effective. this Association; (COMMENT: Provision for amending the Certificate of Incorpora¬ NO CHANGE tion presently appears in the By-laws; such provision should be in (d) To do all and everything necessary, suitable, convenient, usual the Certificate itself.) or proper for the accomplishment of the purposes herein expressed VIII or incidental thereto and, generally, to exercise and enjoy all rights, powers and privileges now or hereafter granted by Chapter 6 of Title The Corporate seal of this Association shall have inscribed thereon 29 of the Code of Laws for the District of Columbia, and Acts the name of the Association, the year of its creation, and the words amendatory thereof, and any other rights, powers, and privileges now “District of Columbia.” An impression thereof shall be affixed to tills or hereafter granted by law; provided, however, that no part of the Certificate of Incorporation. net earnings or of the principal or assets of this Association shall (COMMENT: This provision is transferred from By-laws.)

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