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CITY STATE/COUNTRY ZIP Cannot be driven in the U.S American Foreign Service Association Officers and Members of the Governing Board THOMAS D. BOY ATT, President F. ALLEN HARRIS, Vice President JOHN PATTERSON, Second Vice President RAYMOND F. SMITH, Secretary JULIET C. ANTUNES, Treasurer CHARLOTTE CROMER & ROY A. HARRELL, JR., AID Representatives FRANCINE BOWMAN, RICHARD B. FINN, CHARLES O. HOFFMAN & FRANCIS J. McNEIL, III State Representatives STANLEY A. ZUCKERMAN, USIA Representative FOREIGN SERVICE JOURNAL JAMES W. RIDDLEBERGER & WILLIAM 0. BOSWELL, Retired Representatives JULY 1975: Volume 52, No. 7 Journal Editorial Board RALPH STUART SMITH, Chairman G. RICHARD MONSEN, Vice Chairman FREDERICK QUINN JOEL M. WOLDMAN EDWARD M. COHEN .JAMES F. O'CONNOR SANDRA L. VOGELGESANG Staff RICHARD L. WILLIAMSON, Executive Director DONALD L. FIELD, JR.. Counselor HELEN VOGEL, Committee Coordinator CECIL B. SANNER, Membership and Circulation

Communication re: Excess Baggage 4 Foreign Service Educational AUDINE STIER and Counseling Center MARY JANE BROWN & Petrolimericks 7 CLARKE SLADE, Counselors BASIL WENTWORTH

Foreign Policy Making in a New Era: Journal SHIRLEY R. NEWHALL, Editor United States Missions and Conferences MclVER ART & PUBLICATIONS, INC., Art Direction Part II 8 RICHARD N. GARDNER Advertising Representatives The United States in Opposition 12 JAMES C. SASMOR ASSOCIATES, 521 Fifth Ave., Suite 1700, New DANIEL P. MOYNIHAN York, N.Y. 10017 (212) 683-3421 ALBERT D. SHONK CO., 681 Market St., San Francisco, Calif. 94105 (415) 392-7144 JOSHUA B. POWERS, LTD., 46 Keyes House, Dolphin Sq., London SW1 01-834-8023/9. International Representatives.

'American Foreign Service Association, 1975. The Foreign Service Jour¬ nal is published twelve times a year by the American Foreign Service Association, 2101 E Street, N.W., Washington D.C. 20037. Telephone (202) 338-4045

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DEPARTMENTS Editorials 2 The FOREIGN SERVICE JOURNAL is the journal of professionals in Letters to the Editor 25 foreign affairs, published twelve times a year by (he American Foreign Service Association, a non-profit organization. The Bookshelf 26 Material appearing herein represents the opinions of the writers and is not intended to indicate the official views of the Department of State, the AFSA News 29 United States Information Agency, the Agency for International Develop¬ ment or the United States Government as a whole. 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 foreign affairs. 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 Canada, add $1.00 annu¬ ally 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 Oc¬ COVER : Safari—African cloth painting by Eleanor Dickinson tober 30, 1967. P3J EDfTORlAL

ASSIGNMENTS—“CROOKED, BUT IT’S THE ONLY GAME IN TOWN”

"I know the game is crooked, but it's the only game in ments, etc. State and USIA can take little comfort that town.” Thus, the reply of the card player in an unfamiliar their procedures are marginally better and fairer. town when asked why he played in a poker game well- Our criticisms, though accurate and real, are not aimed known to be fixed. This comment eloquently represents at the hard working professionals in all three Agencies the sentiments of Foreign Service people regarding the who try to make some sense out of the assignments chaos assignments processes of the three Foreign Affairs and who try to be fair while working within a system Agencies. which is inherently corrupt. The fact remains, however, In response to our 1974 telegram to all posts on the that assignment processes are not working equitably and Cone System in State, the Association received over 100 have no credibility with the men and women of the cabled replies and numerous letters. Without exception, Foreign Service. posts urged the establishment of an open assignments Recent Directors General have deplored the "lack of system. In cable after cable our respondents criticized Service discipline” and “an unfortunate tendency toward the present system as unduly favoring persons assigned negotiated assignments.” Regretably, "service disci¬ to Washington, and as being liable to all kinds of political pline” is in fact a euphemism for the majority of us ac¬ abuses and favoritism. Similar complaints from AID and cepting assignments made by the system and remaining US1A Foreign Service personnel have become pan¬ quiet about the hanky-panky going on around us. Of demic. course, assignments will be “negotiated” as long as it is As usual* the collective wisdom is accurate. Consider the only way for the rest of us to try to have some input the following: into the system, and as long as the system itself • The political section of an pleasant EUR post will encourages “negotiations” with the White House, politi¬ soon be staffed by a 7th floor special assistant and the cally appointed Ambassadors, geographic bureaus and former staff assistant to the current ambassador; assorted ageney potentates. • The cases of favored colleagues finding niches in To deal with this problem, the Association is develop¬ comfortable embassies and remaining 6, 8, or 10 years are ing proposals which will be tabled shortly with the three well-known; Foreign Affairs Agencies. We seek an agreement de¬ • In State, Regional bureaus retain their authority to signed to establish policies and procedures which will treat assignments like club memberships; guarantee an open and equitable assignments system. • In all three Agencies, top-level management can and Our proposals will be based upon the following elements: does manage favorable assignments for favored loyalists; • A firm tour of duty policy; • In all three Agencies, ‘‘who you know” matters • A strengthened, centralized panel system which will more than your qualifications fora particular job. particu¬ have authority to make assignments, coupled with an larly in AID. oversight role for AFSA in panel determinations; • Foreign Service colleagues in State working in Per¬ • A prohibition against ambassadors and other high- sonnel continue consistently to pick off choice assign¬ level officers interfering in the assignments process, ex¬ ments, while AID is plagued with the opposite problem cept in the case of their personal staff and of DCMs; of Foreign Service assignments largely in the hands of • The publication and distribution to all posts of all GS personnel; assignment availabilities to be brought up-to-date each • Politically appointed ambassadors can and do ar¬ month; with ample opportunities for employees to ex¬ range to corrupt the assignment and appointment pro¬ press their preferences based on a knowledge of which cesses in order to place hordes of FSR personal assis¬ jobs are actually available. tants (Ambassador Saxbe has two FSR-ls with him in • A clear set of guidelines setting forth how the as¬ New Delhi; Ambassador Richardson took three high- signment process is to be integrated with career planning, ranking FSRs with him in London); career development and training. • AID continues to RIF on the one hand and make The assignment process is central to the whole Foreign forced placements on the other; and Service concept. Where you are assigned has a critical • The term “black bag job” as a description for all of impact on career development, job and professional satis¬ the shenanigans in the assignments process has become a faction, “life-style” and off-duty activities, the health, common phrase in the corridors. education and economic well-being of you and your fam¬ These horrors are merely indicative. To get you the ily, promotion prospects, future assignments and your specifics we will publish in the JOURNAL each month a chances to rise to greater responsibilities. While Foreign new feature called THE OUTRAGE OF THE MONTH. Service personnel will continue to play “the only game in Serious abuses apply to the assignments processes in town” until something better comes along, it is in all our the three Foreign Affairs Agencies. In this, as in other interests—the people of the Foreign Service and the matters, AID’s normal disorganization has been com¬ three agencies—to bring about radical reforms in the as¬ pounded by the current RIFs, the elimination of assis¬ signment system as a matter of real urgency. The game tance in Southeast Asia, and the resulting forced place- cannot be crooked.

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4513 WISCONSIN AVENUE, N.W. (OPPOSITE SEARS), WASHINGTON, D.C. Ail orders destined New York A.P.O. and F.P.O. add $3.00 for first item and $2.00 each additional item for Parcel Post, Insurance and Handling. San Francisco A.P.O. and F.P.O. please write for Proforma Invoice. two other groups, each with its own ally tied to a lifetime of lowered ex¬ know only in a secondary way (I “tone and style.” In other words pectations simply because we are know the husband, child or boss you raise your consciousness only women.” Which is a lot of hog- first or better) or those who are so with a congenial “bunch of the wash. The maid is tied because of a dim in their own right that they girls.” Somewhere along the line lack of education and/or capability. must be defined by such reference. Colombian women were invited to Household workers in many coun¬ The writers find themselves, as a speak to the group. Shades of all tries are men, glad to have a job. result of their communing, likely to those wives’ meetings we are all rather than women. The Foreign challenge an anti-woman remark. supposed to despise! Service wife is tied to a lifetime of Without consciousness raising I There is an alarming bit about lowered expectations only if she is find myself very ready indeed to what all this self examination has lazy or not very bright. challenge the kind of whining and done to their feelings about their The writers of this article put self delusionary thinking this article maids. “Maids are often treated as themselves in the latter category by abounds in. Coping with the prob¬ servants rather than employees” is some of their sloppy thinking. One lems of overseas life as married another of those linguistic niceties of them has enrolled at the univer¬ women is what troubles the writ¬ that doesn’t mean much. Anybody sity to study Spanish. This seems a ers. What robbed them of their who works for someone else is a fairly obvious thing to do if you are identity was “the ultimate triviality servant—he serves his employer. having trouble with linguistic bar¬ of the problems we were expected The maid would be happy just to be riers. But this poor woman had to to handle." This from a group of treated as a human being, and one have six months of consciousness women the majority of whom have hopes the writers aren't going to raising before the thought occurred children! While they were out pay¬ raise her consciousness to the point to her. The group finds that the ing calls or shopping for brass their where she is no longer willing to be sessions have enabled them to like husbands were solving the world’s a domestic. For in all likelihood and respect other women better. I problems. I suggest that most of this is her only way of earning a am glad this has happened, but the husbands were really oversee¬ living, unless she takes over the job most of us don’t need a year of nat¬ ing the travel of a great many pa¬ of her male counterparts in society, tering to each other to “see women pers from an in-box to an out-box, such interesting and lucrative oc¬ as worthwhile people” and thus to and that if the ladies were shopping cupations as dishwashing in a discover that “we ourselves are for brass it was their own fault. restaurant or being a hall porter, for persons of value.” The only They speak of worrying about the instance. The writers say that they, women 1 see as someone’s wife, maids’ taking care of their children, “as much as our maids, are cultur¬ mother or secretary are those I Continued on page 25

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FOREIGN SERVICE JOURNAL, July, 1975 7 Part II FOREIGN POLICY UNITED STATES MAKING IN A MISSIONS AND NEW ERA CONFERENCES

RICHARD N. GARDNER

In Part 1, Professor Gardner proposed or¬ tional professional qualifications to ton policy conference, a visit with a ganizational changes to improve the per¬ their assignments. It is no reflec¬ formance of the Department of State in the foreign diplomat, or an attack on field of multilateral diplomacy. The article tion on those who have occupied US policy in a UN debate, will not is adapted from a report written at the re¬ these posts in subsequent years to be able to provide the kind of lead¬ quest of the Commission on the Organiza¬ state the simple fact that a similar ership in support of stronger mul¬ tion of the Government for the Conduct of concentration of talent has not tilateral institutions that is now re¬ Foreign Policy. been assembled since. quired. Moreover, whatever the One frequently debated question background of the US Ambassador is whether or not the United States to the United Nations, he must be Ambassador to the United Nations willing to serve as a loyal member United States Missions should be a national political figure. of the United States Government and Conferences A good case can be made on both team—fighting hard if necessary to Whatever reforms are carried out sides of this argument. There are shape or change his instructions in Washington, the United States undoubted advantages in having a but prepared to carry them out Government will not be meeting UN Ambassador who can tele¬ when a policy decision goes against the challenges of multilateral di¬ phone the President at will, com¬ him. plomacy unless it makes some mand headlines with his statements One of the most serious deficien¬ basic improvements in the “deliv¬ on world affairs, and force the re¬ cies of the United States Mission to ery system”—US missions to in¬ consideration of major policies by the United Nations is its lack of ternational organizations, US dele¬ the threat of resignation. On the competence in economics and gations to international confer¬ other hand, someone with his own other important specialized areas. ences, and the handling of multilat¬ national constituency may be It is paradoxical that these “non¬ eral issues by US country mis¬ tempted to run “a second State political” subjects now account for sions. Department” in New York and to half the items before the General ignore or even sabotage policy di¬ Assembly, most of the items before Missions to rectives emanating from Washing¬ subordinate UN bodies and a pre¬ International Organizations ton. ponderance of the work of the Sec¬ The most important of all the US It is doubtful that this question retariat, yet of the five Ambassado¬ multilateral missions is the United can be answered in the abstract. It rial appointees at the US Mission States Mission to the United Na¬ will certainly help if the Ambas¬ there has seldom been more than tions. Little more than a decade sador to the United Nations has one at any given time with a solid ago, the five Ambassadorial posts “political clout,” but it is even academic background or practical at USUN were occupied by Adlai more important that he be a solid experience in these subjects—and Stevenson, Francis Plimpton, professional with substantive sometimes there has been none at Charles Yost, Philip Klutznick and knowledge in the main areas of UN all. In view of the increasing prom¬ Jonathan Bingham. Stevenson, of activity. A US Ambassador who inence of economic and functional course, was a man of world stature, has to turn to a staff member for issues in the work of the United but it is also significant that all four advice before he can respond to an Nations, this kind of competence of his top associates brought excep- argument made during a Washing¬ should be a major factor in the

8 FOREIGN SERVICE JOURNAL, July, 1975 choice of the United States Perma¬ of the UN Secretariat have been of US missions to multilateral nent Representative and the other located in Geneva and the confer¬ agencies as glorified hotel-keepers four Ambassadorial appointees. ence schedule there is even more and airport-greeters. The national What has just been said about crowded than the one in New interest in multilateral diplomacy professional qualifications at the York. requires that we have outstanding top level of USUN also applies at With the passage of the Trade representatives maintaining good the staff level. In recent years men Act of 1974, attention is now being relations with other delegations and who had spent ten years or more given to establishing another US with the international Secretariat. specializing in UN work have left Ambassador in Geneva to handle This is essential if the high-level the Mission, to be replaced by the multilateral trade negotiations meetings of people from capitals Foreign Service officers on two to following the practice that was em¬ are to be well-prepared and effec¬ four year assignments. With a few ployed during the Kennedy Round. tively followed up. notable exceptions, the decline in But creating a separate Mission in One vitally important area in competence and commitment at Geneva to deal with trade negotia¬ which US missions to international USUN has been alarming. Service tions will only make it harder to agencies are not adequately per¬ with the Mission is rarely an asset build up the quality of the regular forming their tasks is the recruit¬ in the career of a Foreign Service Geneva Mission. It will also create ment of qualified people for the in¬ officer^ and the expense of living in serious jurisdictional conflicts, for ternational Secretariat. Time after New York imposes a heavy finan¬ the regular Geneva Mission is sup¬ time US interests have suffered as cial burden (though this has been posed to deal with UNCTAD and a result of unfortunate personnel somewhat eased by the recent de¬ ECE, as well as ongoing GATT decisions by the UN Secretary- cision to grant housing allowan¬ problems. The next round of trade General on programs of major ces). To make matters worse, negotiations will cover a much interest to the United States. Much USUN has been obliged to reduce broader field than the trade negoti¬ more attention needs to be paid to its staff in response to budgetary ations of the past, ranging broadly personnel questions by our Am¬ economies at a time when the beyond tariffs into non-tariff bar¬ bassadors in New York and variety and complexity of the items riers, commodity problems and ac¬ Geneva and by senior officials in on the UN agenda are greater than cess to supplies. This will make it the Department of State. The issue ever. even harder to separate the ac¬ is not just one of promoting qual¬ To give just one example of what tivities of the Mission in charge of ified Americans for international the present staffing pattern means, trade negotiations from those of the posts, but of working with other USUN now has only four officers regular Mission responsible for the governments to see that better can¬ assisting the Ambassador to the UN economic agencies. For all didates from all countries are made Economic and Social Council to these reasons the United States available so that the management cover trade, development, food, would do well to follow the practice of essential multilateral programs is energy, environment, population, of most major foreign govern¬ put in capable hands. the law of the sea, science and ments, who head their Geneva In view of the national interest in technology, and US interests in the Missions with men of substantive more effective international insti¬ UNDP and other voluntary funds competence and employ them both tutions, a much more systematic ef¬ to which the United States makes for trade negotiations and general fort is needed to identify key pos¬ major contributions. These officers UN business. itions in the Secretariats where spend much of their time trying to Special importance should also vacancies will occur—and the qual¬ satisfy the General Accounting Of¬ be attached to strengthening the ified persons from the academic, fice that US contributions to the United States Mission to the scientific, professional and busi¬ UN are well spent. OECD in Paris and the United ness worlds who can step into these With the decline in both the qual¬ States Mission to the European assignments. Preparations for fill¬ ity and quantity of personnel at Communities in Brussels. The ing vacancies should be made USUN, it is not surprising that the Paris post is now more important months and even years in advance. Mission has made a smaller and than ever, in view of the initiatives Otherwise the United States will smaller contribution to the making recently undertaken among the in¬ become more and more dependent of policy. In matters as diverse as dustrialized countries to deal with on Foreign Service officers to fill disarmament, outer space, envi¬ the energy crisis. such posts. There is a particular ronment. and the law of the sea, It is sometimes argued that US need to attract more qualified USUN has been reduced to a missions to international organiza¬ young people and women into UN transmission belt for decisions tions are unimportant because sig¬ service. An important step forward made in Washington. nificant business is handled by would be the creation of a UN Fel¬ The situation is even more dis¬ high-level officials from Washing¬ lowship Program, in which a small couraging at the United States ton and other capitals. There is no number of outstanding young peo¬ Mission to the European headquar¬ doubt that international organiza¬ ple could be recruited by world¬ ters of the United Nations in tions tend to be more effective wide competitive examination. Geneva. For years the Geneva when they bring together the peo¬ Another notable failure in US Mission has been treated as a ple in national governments who multilateral diplomacy is reflected second-rate Foreign Service as¬ have the power to take policy deci¬ in the disarray of the non- signment, or, even worse, as a rest¬ sions and see that they are carried Communist industrialized nations ing ground for the politically de¬ out. Nevertheless, it would be a in the United Nations on issues serving. Yet more and more parts serious mistake to treat the heads such as the Middle East and the

FOREIGN SERVICE JOURNAL, July. 1975 9 New International Economic Or¬ academic groups. Members of the During recent State Department- der. To be sure, the North Atlantic delegation to the UN General As¬ sponsored tours of Africa and nations and Japan frequently per¬ sembly should be named three to Asia, the writer was repeatedly ceive their national interests on six months in advance of each As¬ asked by the personnel of US Em¬ these subjects differently; never¬ sembly, so that they can prepare bassies to explain US positions on theless, more could be done in themselves with the help of US UN specialized questions ranging from forums like NATO and OECD to and the Department of State. In the law of the sea to UN harmonize positions in the global some years, public members have peacekeeping procedures and in¬ forums, both on matters of sub¬ been appointed only a few days be¬ ternational monetary reform. This stance and on administrative and fore the opening of an Assembly— is not intended as a criticism of the budgetary questions. It is a sad in one case an appointment was ac¬ officers involved—they had care¬ state of affairs that the twenty tually made after an Assembly was fully read the telegrams of instruc¬ countries accounting for two-thirds already underway. tions and other material forwarded of the world’s GNP and two-thirds by the Department. But they sim¬ of the UN’s budget should so often United States ply did not have the necessary act at cross-purposes while the Country Missions specialized background to under¬ nearly 100 developing countries United States policy in multilat¬ stand the significance of the mate¬ work together as a potent bloc. eral institutions cannot be effective rial and to present it convincingly unless US country missions are to experts in the host government. Delegations to able to deal effectively on multilat¬ To be sure, the major United International Conferences eral issues with other governments. States Embassies have Treasury or Also neglected in the “delivery Reflecting the change in the nature Agriculture representatives and system” for multilateral diplomacy of modern diplomacy, issues before personnel from other Executive are the US delegations to interna¬ multilateral forums now account departments to perform certain tional conferences. Given the im¬ for as much of the work of our specialized functions. But most portance of the global agenda and country missions as traditional United States Embassies do not. the difficulty of mobilizing support bilateral questions. But this fact is Moreover, such representatives for US positions, every delegation not yet adequately reflected in the owe their first allegiance to the member should be able to function way US missions are organized and Executive departments which con¬ effectively as a member of the US staffed. trol their careers; they tend to re¬ team. Yet this is seldom the case. The failure of US country mis¬ flect the Treasury or Agriculture In recent years, for example, the sions to give adequate priority to view. Finally, the system of sec¬ public members of US delegations multilateral issues can prove ex¬ onding from Executive depart¬ to the United Nations General As¬ tremely costly to the national inter¬ ments often leaves important gaps sembly have often lacked profes¬ est. For example, in the 1960 in the expertise of the country sional qualifications or have been Geneva Conference, the United missions—such as oceans, envi¬ absent for much of the session. States lost by one vote in its effort ronment, population, and the United States representation on the to achieve a six-mile territorial sea whole array of constitutional and Sixth (Legal) Committee of the with an additional six-mile fishing procedural matters arising in the General Assembly has been a no¬ zone. The day after the voting took UN system. table victim of this practice—we place, the representatives of sev¬ It is time to reorganize the US repeat our commitment to the “rule eral developing countries indicated missions to all but the very smallest of law,” yet there has hardly been a that they would have voted with countries with which we have rela¬ General Assembly in the last the United States, had their in¬ tions to reflect the new importance twenty years in which the United structions arrived in time. It was of multilateral diplomacy. In line States has been represented by a subsequently learned that the with the changes suggested earlier distinguished jurist. Under both United States Ambassadors in in the Department of State, the parties, the White House has used these countries had not considered Ambassador in each mission delegations for easy political re¬ the law of the sea as a subject im¬ should be supported by a senior wards. This has hampered the US portant enough to take up on a political aide and a senior aide for performance, not only in the Gen¬ priority basis at a high level of the economic and multilateral affairs. eral Assembly, but in meetings of host government. As a result, the The former would be responsible the Specialized Agencies and in world community was left without for the multilateral and bilateral as¬ specialized UN conferences like any agreement on the territorial sea pects of political-military affairs; the Stockholm Conference on the arid fishing limits, a vacuum which the latter would supervise not just Human Environment. has led to unilateral claims of up to bilateral economic affairs but all If we are serious about our 200 miles. Had our country mis¬ multilateral economic and func¬ commitment to the strengthening of sions done their job in 1960, the tional questions. In the major Em¬ multilateral institutions, the Presi¬ United States would now be bassies, the senior aide of the Am¬ dent should appoint the public negotiating in the Law of the Sea bassador for economic and mul¬ members of delegations on a merit Conference from a far stronger tilateral affairs would carry the basis. Nominations should be made legal and political position. rank of Minister and might have as by the Department of State in con¬ The ability of our country mis¬ many as three or four staff mem¬ sultation with other executive sions to perform effectively on mul¬ bers to deal with multilateral issues agencies and, where appropriate, tilateral issues is not much better like oceans, energy, environment, with business, labor, scientific and today than it was fifteen years ago. and population.

10 FOREIGN SERVICE JOURNAL, July. 1975 A New Personnel System: the Environmental Protection Ad¬ academic world. An Essential Reform ministration, etc., have their own The new service in economic and It is frequently acknowledged in career services with their own de¬ multilateral affairs would aim to theory, but not always reflected in partmental loyalties and perspec¬ develop the kind of prestige that practice, that people are more im¬ tives. This makes it even harder to has been acquired by the French portant than tables of organization. achieve a coherent US government “inspecteurs des finances.” It If the basic ideas emphasized thus policy in multilateral diplomacy would be an elite service with entry far are to be translated into and helps explain why our system restricted to approximately 100 action—giving central priority in of “portfolio government” is so persons per year based on competi¬ US foreign policy to multilateral often exported into the system of tive examination, academic records diplomacy, developing a more international institutions. and professional experience. coherent interdepartmental effort It is recommended, therefore, as Members of the service could look within the Executive Branch, giv¬ an essential element in the package forward to a much broader range of ing the State Department a new of reforms advocated in this paper, career possibilities than are avail¬ leadership role, improving the “de¬ that there be created a new career able to economists and other livery system” for the conduct of service for economic and multilat¬ specialists now in the Foreign multilateral diplomacy—then there eral affairs. This new service would Service—they would move into will have to be a new personnel take its place alongside the Foreign senior assignments throughout the system in the Executive Branch. Service as a second “track” for Executive Branch and leading pos¬ To begin with the most obvious itions in the private sector. Corpo¬ point, the Department of State rations, law firms and universities does not have the specialized com¬ would regard this elite service as a petence in either economic or other In addition to crippling the prime source of top level person¬ multilateral affairs to enable it to nel. assert its leadership in relation to State Department’s poten¬ The new career service would other parts of the government, such tial as a lead agency for bring together economists (includ¬ as Treasury, Agriculture or Com¬ multilateral diplomacy, the ing experts in international trade, merce. The “Wristonization” pro¬ present personnel system international finance and interna¬ gram of the 1950s destroyed the tional development) and also critical mass of economic and in¬ reinforces the separatist specialists in international law, in¬ ternational organization experts tendencies of the different ternational organization, energy, which the State Department had Executive agencies. agriculture, population, environ¬ built up during the wartime and ment, oceans, and relevant areas of early postwar years. Although the science and technology. A young Foreign Service has recently put expert concerned with the world emphasis on the need for econ¬ food problem could move from omists and other specialists, its careers in the Department of State. back-stopping FAO in the State system of recruitment and career It would also provide personnel for Department's IO Bureau to a re¬ development works against this ob¬ the international divisions of other lated assignment with the Depart¬ jective. The nation’s top graduate executive agencies. In contrast to ment of Agriculture to the United students in economics, business, Foreign Service personnel, officers States Mission to the FAO in law and other relevant specialties in the new service would spend at Rome and perhaps also to a period for the new diplomacy are only least half of their careers in Wash¬ of service with the FAO or the new rarely attracted to a Foreign Ser¬ ington, could look forward to a World Food Council. Similarly, a vice career, because this means a series of jobs making full use of specialist in environmental matters succession of foreign assignments their professional specialties, could move from the State De¬ mostly unrelated to their fields of would be able to stay in assign¬ partment’s Bureau of Oceans, specialization. With a few notable ments longer than the two to four Environment and Science to the exceptions, outstanding specialists years that is standard in Foreign Environment Protection Adminis¬ who join the Foreign Service find Service careers, and would be free tration to the National Oceano¬ their specialty an obstacle in career to move back and forth between graphic and Atmospheric Agency development. Country ambas¬ the State Department and interna¬ and perhaps to service with the sadorships tend to be reserved to tional work in other Federal agen¬ United Nations Environment Pro¬ Foreign Service officers specializ¬ cies. The members of this new gram. ing in the particular region, while career service would serve at The new career service would the few ambassadorships to mul¬ USUN and other US missions to provide a natural channel for the tilateral institutions are usually multilateral organizations. They recruitment of outstanding talent awarded to political appointees. would also serve with US country for the international agencies. By In addition to crippling the State missions in assignments in econom¬ facilitating movement back and Department's potential as a lead ic and multilateral affairs. The new forth between the Federal Gov¬ agency for multilateral diplomacy, career service would encourage ernment, the international insti¬ the present personnel system rein¬ lateral entry of distinguished per¬ tutions and the private sector, the forces the separatist tendencies of sons from the private sector and career service could promote better the different Executive agencies. grant liberal leaves of absence for communication and cooperation Treasury, Commerce, Agriculture career personnel to take positions between three essential elements of Labor, the Federal Reserve Board, in private business, law and the the international system. ■

FOREIGN SERVICE JOURNAL, July, 1975 11 In the modern world the intelligence of public opinion is the one indispensable condition of social progress.—Charles William Eliot

The United States in Opposition

DANIEL P. MOYNIHAN

WE ARE FAR from living in a single United Nations, of much of the comfiture and distress with which world community,” writes Edward cold war. It is now a received idea, Americans responded to the events Shils, '“but the rudiments of a and its impress may be measured of the 29th General Assembly of world society do exist.” Among by the success with which advo¬ the United Nations in 1974, some those rudiments, perhaps the most cates have found audiences for is¬ measure would have to be attrib¬ conspicuous, if least remarked, are sues defined in international terms: uted to the discovery that a vast the emerging views as to what kind the world environmental problem; majority of the nations of the world of society it is. A measure of self- the world population problem; the feel there are claims which can be awareness has appeared, much as it world food problem. Not a genera¬ made on the wealth of individual did for smaller polities in earlier tion ago, these were national issues nations that are both considerable times. These assessments tend at at most. and threatening—in any event the international level to be as di¬ Much of this internationalist threatening to countries such as the verse as those commonly encoun¬ rhetoric is based on things real United States which regularly finds tered concerning national societies, enough. There is a world ecology; itself in a minority (often a minority or local ones. Some will think the there is a world economy; and of one or two or at most a half- society is good and getting better; some measures important to indi¬ dozen) in an assembly of 138 mem¬ others will see it as bad and getting vidual countries can only be ob¬ bers. worse. Some want change; some tained through international ac¬ The tyranny of the UN’s “new fear it. Where one sees justice, cord. Thus the concept of inter¬ majority” has accordingly been another sees wrong. dependence has become perhaps deplored, and there has been much The notion of a world society is the main element of the new con¬ comment that whereas opposition nothing new to Americans. It sciousness of a world society. This to the United Nations was once a dominated the rhetoric of World is a valid basis on which to posit the position of “conservatives” in the War 11, of the founding of the existence of a society; it is almost a United States, it is increasingly one precondition of a society’s coming of “liberals” also. Yet while there into being. have been some calls to boycott the Yet societies rarely stop at the General Assembly, or not to vote Daniel P. Moynihan has just returned to acknowledgment of the need for in it, there have been but few calls Harvard after two years as the United cooperation which is implied by the for withdrawal from the United States Ambassador to India. Among the many other positions he has held in govern¬ term interdependence. The image Nations. It is almost as if American ment service, he was a member of the of a society as a family is a common opinion now acknowledged that United States delegation to the 26th United one, and with reason, for in both there was no escaping involvement Nations Genera! Assembly. Mr. Moyni¬ cases the idea of cooperation is fre¬ in the emergent world society. All han’s books include "Maximum Feasible Misunderstanding," "The Politics of a quently supplemented or even the more reason, then, for seeking Guaranteed Income," “Coping,” and (with supplanted by the idea of obliga¬ to understand what has been going Nathan Glazer) "Beyond the Melting Pot.” tion. What does one member owe on. another? This is something new in Reprinted from COMMENTARY, by permis¬ sion; Copyright c; 1975 by the American international pronouncements. If Now, OF COURSE, a lot is going on, Jewish Committee. one were to characterize the dis¬ and no single element dominates.

12 FOREIGN SERVICE JOURNAL, July, 1975 Yet it may be argued that what From the perspective of their ... The intervention in happened in the early 1970s is that impact on others, the American question was a fairly mild for the first time the world felt the and French revolutions can be impact of what for lack of a better treated as a single event. They business, it being no liber¬ term I shall call the British revolu¬ were not of course identical in al’s view that the state was tion. That is the revolution which themselves, and profoundly impor¬ an especially trustworthy began in 1947 with the granting by tant distinctions can be made be¬ servant of the citizen. The socialist Britain of independence to tween them. But these distinctions socialist India. In slow, then rapid, were little noted in the political citizen, as liberals viewed order the great empires of the rhetoric of the century that fol¬ the world, was a very im¬ world—with the single major ex¬ lowed, or in the forms of govern¬ portant person, especially ception of the Czarist empire- ment fashioned in the likeness of perhaps if he tended to broke up into independent states; this rhetoric, or in the goals of gov¬ the original membership of the ernments so fashioned. Men sought clean linen. United Nations of 51 grew to 138. a constitutional regime which dis¬ These new nations naturally varied established ancient privilege, guar¬ in terms of size, population, and re¬ anteed liberties, and promoted the sources. But in one respect they general welfare through what came most vivid, and the most attended hardly varied at all. To a quite as¬ to be known as liberal social to, movement in the world. tonishing degree they were ideolog¬ policies. Fiberalism was at first The British revolution of the ically uniform, having fashioned characterized by the opposition to second quarter of the 20th century their polities in terms derived from state intervention in economic af¬ attracted no such attention. Every¬ the general corpus of British fairs. and later by the advocacy of one certainly recognized that new socialist opinion as it developed in such intervention, but the interven¬ states were coming into existence the period roughly 1890-1950. The tion in question was a fairly mild out of former European, and in¬ Englishmen and Irishmen, Scots¬ business, it being no liberal's view deed mostly British, colonies, but men and Welsh, who created this that the state was an especially the tendency was to see them as body of doctrine and espoused it trustworthy servant of the citizen. candidates for incorporation into with such enterprise—nay, gen¬ The citizen, as liberals viewed the one or the other of the older revolu¬ ius—thought they were making a world, was a very important per¬ tionary traditions then dominant social revolution in Britain. And son, especially perhaps if he tended elsewhere in the world. It was not they were. But the spread of their to clean linen. generally perceived that they were ideology to the furthest reaches of The Russian revolution of 1917 in a sense already spoken for—that the globe, with its ascent to domi¬ brought into existence a regime they came to independence with a nance in the highest national coun¬ even more dramatically different preexisting, coherent, and surpris¬ cils everywhere, gives to the from its predecessors than had the ingly stable ideological base which, British revolution the kind of liberal regimes of a century earlier while related to both the earlier worldwide significance which the been from theirs. Everything, it traditions, was distinct from both. American and French, and then the was understood, had changed. This most likely accounts for the Russian, revolutions possessed in Those who would change every¬ almost incurious initial reaction in earlier times.* thing, or who believed that, like it what would soon be known as the or not. everything was going to First and Second Worlds. In the Republic of India the United States *The term British revolution is open to change, rallied to this rhetoric. As objection as seeming to exclude the influ¬ for the rest of the world, it came could see democracy; the Soviets ence of continental socialism on the new na¬ soon enough to know that a wholly could see socialism. In truth, a cer¬ tions, and indeed a good case could be tain Hegelian synthesis had oc¬ made for calling the phenomenon I am try¬ extraordinary event had occurred, even that the future had occurred. curred. On the one hand, the Min¬ ing to describe the revolution of the Second imal State of the American revolu¬ International. But the term British can be For three decades, culminating in justified by the fact that of the 87 states to the triumph of Communist arms in tion; in response, the Total State of have joined the UN since its founding, more China in 1948, this was quite the the Russian revolution; in syn¬ than half—47—had been part of the British thesis,-the Welfare State of the empire. Even apart from the empire. British British revolution. culture was in the first half of this century incomparably the most influential in the world, and that culture was increasingly suf¬ SAMUEL H. BEER describes the fused with socialist ideas and attitudes. I doctrine of British socialism as fol¬ anticipate and hope for a rigorous critique lows: of the arguments of this paper, but / also hope it will not be too much distracted by . . . it is especially the socialist's com¬ the difficulties of finding a concise term to mitment to "fellowship" that funda¬ describe what was on the whole a concise mentally distinguishes his ap¬ phenomenon; the development of socialist proach. . . . For private ownership he doctrine and the formation o f socialist par¬ would substitute public ownership; for ties in Western Europe at this time. / should production for profit, production for also note that the political ideology in the use: for competition, cooperation. A new states of the Third World of which / will be speaking was best described by the tale cultural and ethical revolution would George Lichtlieim as “national socialism.” also take place, and motives that had This term has. of course, acquired an al¬ aimed at individual benefit would now together unacceptable connotation. aim at common benefits. Industry,

FOREIGN SERVICE JOURNAL, July, IV75 13 which had been governed by individual erty: the very antithesis of the so¬ British socialists, despite their par¬ decisions within the competitive sys¬ cial condition socialism sought. ty's fundamental and central at¬ tem, would be subject to collective and (This detail perhaps did not escape tachment to democratic processes, democratic control. . . . Government the well-to-do of the developing na¬ became supporters of the Soviet would consist in comprehensive and tions when the prospect of regime. Russia was the future. continuous planning and administra¬ America was the past. With the tion. socialism on the British model first appeared there.) coming of the cold war this attitude Two general points may be made became institutionalized and al¬ about this British doctrine. First, it THE SECOND general point about most compulsory on the British contained a suspicion of, almost a socialist doctrine as it developed in Left. The NEW STATESMAN, a bias against, economic develop¬ Britain was that it was anti- journal which tended to follow ment which carried over into those American. More anti-American, Asian and African graduates after parts of the world where British surely, than it was ever anti-Soviet. they had left Britain and returned culture held sway. The fundamen¬ home, became near Stalinist in its tal assertion of the age of the attachment to Soviet ways with the Diamond Jubilee was that there What the civil service be¬ world and its pervasive antagonism was plenty of wealth to go ’round if to things American. only it were fairly distributed. No gan, British education And yet the NEW STATESMAN matter what more thoughtful completed. Has there ever was never Communist, and nei¬ socialist analysts might urge, redis¬ ther, save in small proportion, were tribution, not production, remained been a conversion as com¬ its readers. They were British central to the ethos of British plete as that of the Malay, socialists, part of a movement of socialism. Profit became synon¬ opinion which spread in the course ymous with exploitation. That the Ibo, the Gujarati, the of the first half of the 20th century profit might be something concep¬ Jamaican, the Australian, to the whole of the British empire, tually elegant—least-cost produc¬ a domain which covered one- tion—made scarcely any impress. the Cypriot, the Guyanan, quarter of the earth’s surface, and “Production for profit” became a the Yemenite, the Yoruban, which an inspired cartographic formulation for all that was wrong the sabra, the fellaheen to convention had long ago decreed in the old ways, and Tories half- be colored pink. It was British civil agreed. (For it was the Liberals and this distant creed? The servants who took the doctrine to the Radicals who were being re¬ London School of Econom¬ the colonies. (How curious, in ret¬ pudiated by such doctrine, and it rospect, are the agonizings of was the Liberal party that went ics was often said to be the Harold Laski and others as to under.) This, too, was passed on. most important institution whether the civil service would When Sir Arthur Lewis in 1974 carry out the policies of a socialist gave the Tata lectures in India and of higher education in Asia government. What more congenial found himself pleading, as a and Africa. task for persons whose status socialist and as a man of the Third comes from the power and prestige World, but also as an economist, of government? But in the Britain that profit was not a concept The reasons for this are not that of that era it could be thought that public-sector enterprise could af¬ obscure. The British were not class origin would somehow over¬ ford to ignore, no less a personage overmuch admiring of Americans come occupational interest.) than the head of the Indian Plan¬ in that era, nor we of them. In part What the civil service began. ning Commission felt called upon their attitude began as aristocratic British education completed. Has to rebut him. disdain. (An intimate of Pandit there ever been a conversion as To be sure, much of this redis- Nehru's describes once asking In¬ complete as that of the Malay, the tributionist bias was simply inno¬ dia's first Prime Minister why he Ibo. the Gujarati, the Jamaican, cent. British socialists, for exam¬ was so anti-American. This was in the Australian, the Cypriot, the ple, proved in office to know al¬ 1961. Nehru's first reaction was a Guyanan. the Yemenite, the most nothing about how actually to rather huffy denial of any such pre¬ Yoruban, the sabra, the fejlaheen redistribute income, and British in¬ disposition, but he then became re¬ to this distant creed? The London come has not been significantly re¬ flective and after a moment admit¬ School of Economics. Shils notes, distributed. Coming to power just ted that, yes, it was true, and that was often said to be the most im¬ after World War II, the socialists probably it all dated back to his portant institution of higher educa¬ appeared to think they had abol¬ days at Harrow. There was one tion in Asia and Africa. In her au¬ ished wealth by imposing a top American boy there at the time: tobiography, Beatrice Webb wrote income-tax rate of nineteen shil¬ filthy rich, and much too pushy.) that she and her husband felt “as¬ lings six pence in the twenty¬ But more importantly, of course, sured that with the School [ LSE] as shilling pound, which is to say con¬ America was seen as quintessen- the teaching body, the Fabian So¬ fiscating the rich man's pay tially capitalist. ciety as a propagandist organiza¬ envelope. Few seemed to note that With the Russian revolution, and tion, the LCC [London County capital gains remained exempt from then especially with the world de¬ Council] as object lesson in elec¬ income tax altogether, so that in pression of the 1930s and the onset toral success, our books as the only large measure thereafter only those of popular-front movements in elaborate original work in eco¬ with property could acquire prop- Europe, a considerable number of nomic fact and theory, no young

14 FOREIGN SERVICE JOURNAL. July, 1975 man or woman who is anxious to exactly as the working class is said Political traditions in each study or to work in public affairs in socialist theory to have been ex¬ can fail to come under our influ¬ ploited under capitalism. The sec¬ case were different from ence.’- For reasons that are under¬ ond is the belief—also, of course, the British. But only slightly standable. this was true most par¬ often justified—that they have been different: viewed from ticularly for young men and women subject to ethnic discrimination coming from abroad in that long corresponding to class distinctions Mars, London, Paris, and and incongruously optimistic in¬ in industrial society. As with the The Hague are not widely tellectual age that began amid late belief in the right to independence, Victorian plumpness and ended these concepts, which now seem separated or disparate with the austerity of postwar Bri¬ wholly natural, rarely occur in na¬ places. By the time of the tain. In 1950 the conservative ture. They are learned ideas, and Michael Oakeshott succeeded to they were learned by the new na¬ granting of independence, the Fabian Harold Laski’s chair in tions mostly where they mostly all were democratic with a political theory at LSE and in a originated, in the intellectual and sense that party was over. But by political circles of Britain of the late socialist intelligentsia and then not Communists but Fabians 19th and early 20th century. Gan¬ often as not a socialist could claim that the largest portion dhi greatly elucidated the moral government. of the world's population lived in dimensions of exploitation and dis¬ regimes of their fashioning. Before crimination, but he did so in the very long, the arithmetical majority context of a worldwide political and the ideological coherence of movement that was more than re¬ of the movement there were those those new nations brought them to ceptive to his ideas, a political who saw the future not just in terms dominance in the United Nations movement of which he was a part. of redistribution, but of something and. indeed, in any world forum At root, the ideas of exploitation ominously close to looting, in any characterized by universal mem¬ and discrimination represent a event, the past was by no means to bership. transfer to colonial populations of be judged over and done with. the fundamental socialist assertions There were scores to be settled. In¬ with respect to the condition of the BUT IF the new nations absorbed ternally and internationally. European working class, just as the ideas about others from the doc¬ A final distinctive character of idea of independence parallels the trines of British socialism, they the British revolution concerns demand that the working class also absorbed ideas about them¬ procedure. Wrongs are to be break out of bondage and rise to selves. The master concept, of righted by legislation. The move¬ power. course, is that they had the right to ment was fundamentally par¬ independence. This idea goes back Now it is possible to imagine a liamentarian. The Labour party country, or collection of countries, to the American revolution, and came to power through the ballot, even beyond to the Glorious Rev¬ with a background similar to that of and proceeded to change society by olution in 17th-century Britain, but the British colonies, attaining inde¬ statute. This was dramatically so British socialism readily incorpo¬ pendence and then letting bygones with respect to the empire. For the rated and even appropriated it. As be bygones. The Americans did first time in the history of mankind that: our political culture did not the 20th century wore on and the a vast empire dismantled itself, suggest any alternative. Interna¬ issue of independence arose with piece by piece, of its own syste¬ respect to these specific peoples tional life was thought to operate in matic accord. A third of the nations Wordsworth’s terms: and places, it was most often the of the world today owe their exis¬ socialists who became the principal The good old rale tence to a statute of Westminister. political sponsors of independence. . . . The simple plan What more profound experience It was a Labour government which That they should take, who have the could there be of the potency of in 1947 granted independence to power. parliamentary majorities in distant And they should keep who can. India and formally commenced the places, and of their enactments? vast, peaceful revolution that fol¬ So in their own terms might Marx¬ Plainly, not all the new nations of lowed. The Indian Congress party ists judge the aftermath of Marxist the postwar world were formerly had been founded in 1883 by a triumph: history was working its British. There were French col¬ British civil servant, Alan Octavian ineluctable way; there would be no onies. Belgian. Dutch. Portuguese. Hume, whose politics were essen¬ point, no logic, in holding the past Political traditions in each case tially Liberal. But by the time of to account. Not so the heirs of the were different from the British. But independence, it was a matter to be British revolution. British social¬ only slightly different: viewed from taken for granted that the Congress ism is, was, and remains a highly Mars, London. Paris, and The was socialist and that its leaders, moral creed. It is not a poli¬ Hague are not widely separated or Gandhi and then Nehru, were tics of revenge; it is too civil for disparate places. By the time of the socialists too. that. But reparations? Yes: repara¬ granting of independence, all were Two further concepts triangulate tions. This idea was fundamental to denriocratic with a socialist in¬ and fix the imported political cul¬ the social hope of a movement telligentsia and often as not a ture of these new nations. The first which, it must ever be recalled, socialist government. With the ex¬ is the belief—often, of course, rested on the assumption that there ception of Algeria—which is justified—that they have been sub¬ existed vast stores of unethically marked by the exception—the ject to economic exploitation, accumulated wealth. On the edges former French and Dutch colonies

FOREIGN SERVICE JOURNAL, July, 1975 15 came into being in very much the (now numbering 96) drew up an days,” the Chinese statement con¬ manner the British had laid down. Action Program which stated, inter tinued. "the United Nations often For a prolonged initial period the alia, that developing countries takes on the appearance of an in¬ former British possessions had should ternational court with the Third pride of place in the ex-colonial World pressing the charges and encourage and promote appropriate world—they speak English at the commodity action and. particularly, the conducting the trial." A statement UN. not American—and pretty protection of the interests of primary to which many could subscribe. much set the style of politics which producers of the region through inten¬ But no such statement could come has become steadily more con¬ sive consultations among producer from an American statesman, no spicuous in international affairs. countries in order to encourage appro¬ such praise would be accorded priate policies, leading to the estab¬ American policy. Clearly at some NOT EVERYONE has noticed this. lishment of producers’ associations and level—we all but started the United Indeed, there is scarcely yet a vo¬ understandings. . . . Nations—there has been a massive cabulary in which to describe it. In This was represented in the press failure of American diplomacy. part, this is because the event is re¬ as a major gain for the black Afri¬ But why? Why has the United cent: but also because it was in¬ can states who carried the point States dealt so unsuccessfully with complete. As with the liberal rev¬ over objections from Latin Ameri¬ these nations and their distinct olution which came out of Amer¬ cans accustomed to working out ideology? A first thought is that we ica, and the Communist revolution raw material and commodity ar¬ have not seen the ideology as dis¬ which came out of Russia, this rangements with the United States. tinctive. Not recognizing it, we socialist revolution coming mainly But the idea was fundamentally a have made no sustained effort to re¬ out of Britain carried only so much heritage of the British revolution, late ourselves to it. The totalitarian of the world in its initial period of and if the black Africans took the states, from their point of view, expansion. The liberal revolution lead in proclaiming it, there is no did. They recognize ideologies. By of America was not exactly a spent reason to think it was any less fa¬ 1971 it was clear enough that the force by the mid-2()th century, but miliar to Arabs. They had all gone Third World—a few exceptions {pace the Mekong Delta Develop¬ to the same schools. Was it not here and there—was not going ment Plan) there was never any right for those who have only their Communist. But it was neverthe¬ great prospect of its expanding to labor to sell, or only the products of less possible to encourage it in di¬ new territories. On the other hand, their soil, to organize to confront rections that veered very consid¬ the heirs of the Russian revolution capital? Had they not been ex¬ erably from any tendency the bloc did capture China, the greatest of ploited? might have to establish fruitful rela¬ all the prizes, in 1948. and at least tions with the West; and this was part of Indochina a bit later. But in How HAS the United States dealt done. It was done, moreover, with the main the Communist revolution with these new nations and their the blind acquiescence and even stopped right there, and the two distinctive ideology? Clearly we agreement of the United States older revolutions now hold sway have not dealt very successfully. which kept endorsing principles for within fairly well-defined bound¬ This past year, in the 29th General whose logical outcome it was aries. Since 1950 it has been not Assembly, we were frequently re¬ wholly unprepared and with which they but the heirs of the British re¬ duced to a voting bloc which, with it could never actually go along. volution who have been expanding. variations, consisted of ourselves, Almost the first international Chile, and the Dominican Repub¬ A RELATIVELY small but revealing political act of the new states was lic. As this "historic session" example of this process may be to form the nonaligned bloc, distin¬ closed, the Permanent Repre¬ seen in the development of the guishing themselves—partially— sentative of India to the United World Social Report, a document from the two blocs into which the Nations declared: "The activities of the Economic and Social Coun¬ immediate postwar world had of the Soviet delegation at the ses¬ cil. The first volume, covering the formed. From politics the emphasis sion showed once again that the year 1963, was directed almost ex¬ shifted to economic affairs. In 1968 Soviet Union deeply understands clusively to problems of the de¬ these countries, meeting at Algiers, and shares the aspirations of the veloping countries, and the United formed the Group of 77 as a formal Third World.” This was not States took its advent as a promis¬ economic bloc. Their Joint State¬ Krishna Menon, but a balanced ing event. The 1965 report, concen¬ ment described the group as "com¬ and considerate Asian diplomat. If trating on “practical methods of prising the vast majority of the no equivalent pronouncement on promoting social change," might human race”—and indeed it did. China comes immediately to hand, have caused some to take note, but The B’s in the list of members gave this may be because the Chinese American officials were entirely a sense of the range of nations and feel free to identify themselves as unwary: this was, after all, a report peoples involved: Bahrain, Bar¬ members of the Third World. As designed to help the developing bados, Bhutan, Bolivia, Botswana, such, at the end of 1974 they de¬ world. In actual fact, it was becom¬ Brazil, Burma, Burundi. And yet clared that the new majority had ing a document based on the veri¬ there was—now somewhat hidden written a "brilliant chapter" during tably totalitarian idea that social —unity to the list. Of these eight the twelve months previous, that it justice means social stability and countries, five were formerly was "sweeping ahead full sail as that social stability means the ab¬ British-governed or British-di¬ the boat of imperialism [the United sence of social protest. Thus by rected. At its second Ministerial States] and hegemonism [the 1970, the Soviet Union—not much Meeting in Lima in 1971. the group Soviet Union] founders." "These social protest there!—emerges as

16 FOREIGN SERVICE JOURNAL, July, 1975 the very embodiment of the just United States until then did not The Brazilians suddenly state, while the United States is a protest. To the contrary, the nation in near turmoil from the in¬ United States actively participated stormed onto the scene to justices it wreaks upon the poor in preparing this sustained assault denounce the whole en¬ and the protests these injustices on American institutions. The 1970 terprise as a conspiracy of have provoked. And Western Social Report had been three years Europe hardly comes off any bet¬ in the making. During those three the haves to keep the ter. years it made its way through have-nots down and out. What happened here was that a layers of bureaucracies, all manner “Finlandized” Secretariat (the of¬ of meetings. Americans were al¬ The argument was that the ficial in charge of preparing the ways present, and Americans al¬ rich had got rich by pollut¬ document was indeed a Finn) ways approved. This was, after all, found that the developing countries a Third World document; it was to ing their environments and and the Communist countries had be treated with tolerance and un¬ now proposed to stay that an easy common interest in por¬ derstanding. Complacency of this traying their own progress, justify¬ order could only arise from the way by preventing anyone ing the effective suppression of dis¬ failure to perceive that a distinctive else from polluting theirs. sent, and in the process deprecat¬ ideology was at work, and that skill ing and indicting the seeming prog¬ and intelligence were required to ress of Western societies. It is easy deal with it successfully. and political relations were nothing enough to see that this would be in of the sort. To the contrary, they the interest of the Soviet bloc. (The THE BLINDNESS of American di¬ were symptomatic of economic and Chinese did not participate in the plomacy to the process persists. political exploitation and injustice debate.) But why the developing Two large events occurred in 1971, which could only be resolved by and a series of smaller ones were world? First, the developing na¬ the most profound transformation: tions could ally with the totalitar¬ set in motion. China entered the to expropriate the expropriators. ian in depicting social reality in United Nations, an event the Third At Stockholm itself, this quickly this way, in part because so many, World representatives saw as a de¬ became the dominant theme— having edged toward authoritarian cisive shift of power to their camp. espoused by a dominant majority. regimes, faced the same problems In that same year the Lima confer¬ “Are not poverty and need the the Communists would have en¬ ence established the nonaligned as greatest pollutors?” Prime Minis¬ countered with a liberal analysis of an economic bloc intent on pro¬ ter Indira Gandhi of India asked. civil liberties. Secondly, the de¬ ducer cartels. Less noticed, but “There are grave misgivings,” she veloping nations had an interest in perhaps no less important in its im¬ continued, “that the discussion of deprecating the economic plications, a distinctive radicaliza- ecology may be designed to distract achievements of capitalism, since tion began in what might as well be attention from the problems of war almost none of their own managed termed world social policy. and poverty.” She was wrong in economies was doing well. To de¬ This radicalization was first this. They were not so designed. plore, to deride, the social effects clearly evidenced at the United But at Stockholm the nations who of affluence in the United States is Nations Conference on the Human feared they might be took control Environment, held at Stockholm in scarcely a recent invention. For a of the agenda. The conference de¬ generation the British Left has held 1972, or more precisely at the 26th clared as its first principle: the patent. Further, there is an al¬ General Assembly, which was fi¬ most automatic interest on the Left nally to authorize the conference. Man has the fundamental right to free¬ in delegitimating wealth—prior to The conference was in consider¬ dom. equality, and adequate conditions of life, in an environment of a quality redistributing it—much as the op¬ able measure an American initia¬ which permits a life of dignity and well posite interest exists on the Right. tive, and while American negoti¬ being, and bears a solemn responsibil¬ Small wonder that officials could ators were primarily concerned ity to protect and improve the describe the Social Report as the with ways to get the Russians to environment for present and future most popular document in the UN join (which in the end they did not), generations. In this respect, policies series, a statement intended as the Brazilians suddenly stormed promoting or perpetuating apartheid, more than faint praise. Yet it has onto the scene to denounce the racial segregation, discrimination, co¬ been more representative than whole enterprise as a conspiracy of lonial and other forms of oppression otherwise. There are hundreds like the haves to keep the have-nots and foreign domination stand con¬ it, suffused with a neo-totalitarian, down and out. The argument was demned and must be eliminated. anti-American bias. that the rich had got rich by pollut¬ The American delegates rou¬ American protests at the 26th ing their environments and now tinely voted for this resolution. It General Assembly have evidently proposed to stay that way by pre¬ was, after all, language the new influenced the most recent Social venting anyone else from polluting countries wanted. What wholly Report, submitted to the 29th. but theirs. This, among other things, unwelcome meanings might be at¬ here the significant fact is that this would insure that the rich would tached to “other forms of oppres¬ protest—entered at the very last continue their monopoly on the use sion and foreign domination” moment, when the document was of the raw materials of the poor. which stood “condemned” and being presented for pro forma Thus was it asserted that matters had to be “eliminated” was a approval—was the first of its kind, originally put forward as soluble in thought scarcely in keeping with or one of the first. In fact the the context of existing economic the spirit of the occasion.

FOREIGN SERVICE JOURNAL, July. 1975 17 derdeveloped countries is a result THE STOCKHOLM Conference had THIS TONE attained to manic pro¬ been turbulent. The United Na¬ of historical evolution, and is a di¬ rect consequence of the imperialist, portions in Population Tribune, an tions World Population Confer¬ colonialist, and neo-colonialist unofficial, American-financed par¬ ence, held nearly two years later, in allel conference of a form that first August 1974, had an air of insurrec¬ policies of exploitation of many peoples.” He called for “a new in¬ appeared in Stockholm. Ritual re¬ tion. This conference too was cantation became the order of the largely an American initiative, the ternational economic order” and condemned “a pessimistic out¬ day as one notable after another culmination of years of State De¬ look” on population growth. confessed to a class-bound past partment effort to put population which had blinded him to the infi¬ on the agenda of world social pol¬ But if this was to be expected, few could have anticipated the wild nitely bright future. Most of the re¬ icy. The Secretary General of the canters were American, but it was United Nations proclaimed the energy of the Chinese assault on the Western position. China has Professor Rene Dumont of France gathering would be “a turning point who epitomized the argument in a in the history of mankind.” The the strictest of all population- control programs. Yet the Chinese statement, “Population and Can¬ centerpiece was a Draft World nibals,” which was subsequently Population Plan of Action, which arrived in Rumania to assail with unprecedented fury and devastat¬ given the full front page of DE¬ in essence set 1985 as the year VELOPMENT FORUM, an official, crude birth rates in developing ing zeal the very idea of population control as fundamentally subver¬ five-language, UN publication. countries would be reduced to 30 Professor Dumont—blaming the per thousand (as against an antici¬ sive of the future of the Third World. The future, the Chinese “Plunderers of the Third World” pated 34) and when “the necessary proclaimed, is infinitely bright. for world conditions—“They . . . information and education about Only the imperialists and the ‘under-pay’ for the rare raw mate¬ family planning and means to prac¬ rials of the Third World and then tice family planning” would be hegemonists could spoil it, and population control was to be their squander them”—put the case with available “to all persons who so wrecking device. A theory of some vivacity: desire. . . There can be no doubt of the social change implicit “consumerism” emerged: it was Eating little children. I have already excessive consumption in the de¬ had occasion to show that the rich in such a conference’s even meet¬ veloped economies which was the ing: in most industrialized coun¬ white man, with his overconsumption true source of the problems of the of meat and his lack of generosity to¬ tries, family planning has only just underdeveloped nations and not achieved the status of an accepted ward poor populations, acts like a true the size of the latter’s population. cannibal, albeit indirect. Last year, in social value deserving of public None dared oppose the thesis. The over-consuming meat which wasted the support. Yet neither should there Indians, who are thought to have a cereals which could have saved them, be any doubt that a disaster over¬ population problem, went to the we ate the little children of the Sahel, of took the American position in the conference rather disposed to en¬ Ethiopia, and of Bangladesh. And this course of the conference, and that year, we are continuing to do the same dorse a Plan of Action. But they thing, with the same appetite. this disaster was wholly predict¬ did nothing of the sort. Instead, the able. Maharaja of Jammu and Kashmir, Dr. Han Suyin, a sympathetic To begin with, the conference who headed the Indian delegation, commentator on Chinese Com¬ was thought up by Americans to found himself denouncing “colo¬ munist affairs, summed up for deal with a problem we consider nial denudation” of the East, and others: that other people have. (In fair¬ the “vulgar affluence” of the West. ness, not long ago the United The scene grew orgiastic. You cannot cut off any talk about popu¬ States itself was thought to have a In the end, a doctrine emerged lation, about people, from economics problem of population size, while which is almost certainly more true and politics. You cannot put in a vac¬ the provision of family-planning than otherwise, namely that social uum any talk about population and services is an issue of social equity and economic change is the funda¬ world resources without relation to the as well as of population growth.) mental determinant of fertility present as it exists. I admire people Specifically, it was considered a change, compared with which fam¬ who can talk about a noble future proble.m of the developing coun¬ ily planning as such has at most a where there will be an equal society tries: countries, that is, of the residual role. There need be no dif¬ and where resources will be controlled by all. But, forgive me for saying so, if British revolution who are ani¬ ficulty with this assertion. The dif¬ this is to be done, then we have to begin mated by the liveliest sense that ficulty comes with the conclusion by sharing now everything and that their troubles originate in capitalist said to follow: that economic would mean that a lot of people who and imperialist systems of which growth in the West should cease have a lot of private property, for in¬ the United States all but offered it¬ and the wealth of the world be re¬ stance, should divest themselves im¬ self as an exemplar. Further, the distributed. We are back to Keir mediately of it in favor of the poor. It conference met in Bucharest, capi¬ Hardie, expropriating the expro¬ means that at this very moment we tal of a Communist country. At one priators. Not to produce wealth, should start to implement a very simple level no great imagination would but to redistribute it. As with the thing—something which we heard . . . environment conference, the popu¬ at the United Nations at the sixth spe¬ have been required to anticipate cial session of the United Nations the outcome. President Nicolae lation conference turned into where the voice of the Third World— Ceausescu opened the conference another occasion for reminding the the majority of the world—at last for¬ by declaring that “The division of West of its alleged crimes and un¬ mulated their demand for more equita¬ the world into developed and un- resolved obligations. ble terms of trade, and for an end to 18 FOREIGN SERVICE JOURNAL, July, 1975 exploitation, for an end to the real casioned as much as anything by Because of the British rev¬ cause of poverty and backwardness, the devastating impact of oil price which is not population, but which is increases, the special session dwelt olution and its heritage, the injustice and exploitation. The Third on every conceivable abuse of eco¬ prospect now is that the World has a word for it. it calls it im¬ nomic power save that one. At the perialism and hegemony. end of the regular autumn session, world will not go totalita¬ And the American delegation? the General Assembly solemnly rian. In the Christian sense, The official view, flashed to dip¬ adopted a Charter of Economic has there been such politi¬ lomatic posts around the world, Rights and Duties of States which was as uncomplicated at the end as accords to each state the right cal “good news’’ in our it had been at the outset: “ALL freely to exercise full permanent time? But there is bad BASIC US OBJECTIVES WERE sovereignty over its wealth and ACHIEVED AND US ACCOMPLISH¬ natural resources, to regulate and news also. The great dark¬ MENTS WERE MANY. ... US DELE¬ exercise authority over foreign in¬ ness could yet consume us. GATION UNANIMOUSLY PLEASED vestments, and to nationalize, ex¬ WITH FINAL RESULT.” propriate, or transfer ownership of foreign property pretty much at THE WORLD Food Conference will. The vote was 120 to 6—the tional scene. American diplomacy which followed in Rome in United States, Belgium, Denmark, has yet to recognize this fact and, November was even more explic¬ West Germany, Luxembourg, and failing to recognize it, has failed itly an American initiative. Yet as the United Kingdom. What was even to begin dealing intelligently the American delegation somewhat being asserted was a radical discon¬ with it. sadly noted, the plenary forum was tinuity with the original, essentially used to the fullest by LDCs (Less liberal vision of the United Nations BUT IF the beginning of wisdom in Developed Countries) to excoriate as a regime of international law and dealing with the nations of the the United States and other de¬ practice which acknowledges all Third World is to recognize their veloped nations as responsible for manner of claims, but claims that essential ideological coherence, the the current food crisis and the gen¬ move in all directions. Now they next step is to recognize that there erally depressed state of their part moved in one direction only. is every reason to welcome this of the world, calling for “radical In general a rhetoric of expropri¬ ideology, and to welcome the adjustment in the current economic ation became routine. At year’s coherence also. Because of the order and, in effect, reparations end. Prime Minister Indira Gan¬ British revolution and its heritage, from developed countries” to the dhi, opening the 56th Conference the prospect now is that the world less developed. Such negotiations of the International Law Associa¬ will not go totalitarian. In the as took place were somewhat more tion meeting in New Delhi, de¬ Christian sense, has there been sober since something immediately clared : such political “good news” in our of value—wheat—was at stake and Laws designed to protect the political time? But there is bad news also. obviously only the United States or economic power of a few against the The great darkness could yet con¬ and a few such countries were pre¬ rights of the many, must . . . yield sume us. The potential for absorp¬ pared to part with any. Even so, by place to laws which enlarge the area of tion of these states into the totali¬ the time the conference was con¬ equality, and . . . law itself should be tarian camp is there and will con¬ cluded, one of the great, and truly an ally and instrument of change. tinue to be there. This is perhaps liberal, innovations of world social She spoke a now common language especially true where one party policy—the American-led assertion of resentment over population is¬ states have been established, but that the hungry of the world should sues: even where multi-party democracy be fed by transfers of resources— Is it not a new form of arrogance for flourishes the tug of the “socialist had been utterly deprecated. Thus affluent nations to regard the poorer na¬ countries,” to use the UN term, the Indian Food Minister's state¬ tions as an improvident species whose persists. ment with respect to the needs of numbers are a threat to their own stan¬ The outcome will almost cer¬ the developing countries: dard of living? tainly turn on whether or not these It is obvious that the developed nations She suggested a reversal of roles nations, individually and in groups, can be held responsible for their [the had taken place as between the new succeed in establishing sufficiently developing nations'] present plight. nations and the old: productive economies. If they do Developed nations, therefore, have a not, if instead they become perma¬ An obligation rests on the haves to nently dependent on outside assis¬ duty to help them. Whatever help is generate confidence among the have- rendered to them now should not be re¬ nots ... A new approach to foreign in¬ tance, that assistance is likely more garded as charity but deferred compen¬ vestments is indicated, in which in¬ and more to come from the totali¬ sation for what has been done to them vestments abroad are regarded more as tarian nations, and with it the price in the past by the developed countries. a service to the recipient community of infernal political influence from The UN General Assembly pur¬ than as an enterprise where profits and the totalitarian camp through the sued this theme with notable per¬ their repatriation must be secured at all local pro-Moscow, or pro-Peking, sistence throughout 1974, com¬ cost. Communist party. For everywhere mencing with a special session in Now there is nothing unfamiliar there are such parties. They appeal¬ the spring which dealt with the in this language: only the setting is able to go on indefinitely in a dor¬ economic crises of the underde¬ new. It is the language of British mant state, and can be awakened veloped in just such terms. Oc¬ socialism applied to the intema- pretty much at will. India, with a

FOREIGN SERVICE JOURNAL, July, 1975 19 population equal to that of the —do not have any claim to superior from an instrument of economic ra¬ whole of Africa and South America wisdom on the subject of these tionality to an instrument of politi¬ combined, is the best current economies. Starting in the 1950s a cal rationality. It is sometimes dif¬ example. Parliamentary democ¬ large number of first-rate eco¬ ficult to recall, but early socialist racy is vigorous enough there, but nomists began working on theories theory expounded the greater effi¬ economic incompetence on its part of economic growth designed to ciency of production for use rather and diplomatic blunders on ours get the LDCs on a path of self- than for capital, and put much have led to an increasing depen¬ sustained growth. “To be per¬ stress on capitalist wastefulness. In dence on Soviet support, which in fectly brutal about it,” Jesse Burk- practice, however, the real attrac¬ the space of three years has head recently stated, “it hasn’t tion of the managed economy has brought about an open electoral al¬ worked.” And yet there is no need been the means it provides to col¬ liance between the Congress party to stand mute. Two assertions may lect enough political power at the and the Moscow-oriented Com¬ be reasonably put forth, of which center to. maintain national munists, an alliance we would have the first is that to say these econo¬ unity—almost everywhere a thought worth fighting a war to mies haven't worked as well as chancy thing in these generally prevent two decades ago, but hoped is not to say that none has multi-ethnic states. which we scarcely notice today. worked at all. There has been One must still conclude, how¬ This alliance would not have growth. In the main, things are bet¬ ever, that these political gains are come about save for the failure of ter than they were. For every purchased at the expense of even the Indian economy to prosper and Argentina—that “miracle” of eco¬ more conspicuous economic the success—typical—of the argu¬ nomic nongrowth—there is a losses. India will serve for a final ment that the cure for the damage Brazil. For Ghana, Nigeria. For example. In the year of its inde¬ done by leftist policies is even more Calcutta, Singapore. The second pendence. 1947, India produced 1.2 leftist policies, which in practice assertion is that relative failure is million tons of steel and Japan only translates into dependence on the particularly to be encountered in 900.000 tons. A quarter-century la¬ Soviets and alliances with their economies most heavily influenced ter. in 1972, India produced 6.8 mil¬ internal allies. And here is the nub by that version of late Fabian eco¬ lion tons and Japan 106.8. These of the bad news: for all the attrac¬ nomics which compounded the outcomes are the result of deci¬ tions of this variety of socialist poli¬ Edwardian view that there was sions made by the ruling party of tics, it has proved, in almost all its plenty to go around if justly distrib¬ each nation, and only an innocent versions, almost the world over, to uted with the 1930s view that could continue to accept Indian be a distinctly poor means of pro¬ capitalism could never produce protestations that the results were ducing wealth. Sharing wealth— enough to go around regardless of unexpected. The break in Indian perhaps. But not producing wealth. distributive principles.* growth came precisely in 1962 Who, having read British political when the United States, which had journals over the past quarter- STILL, THERE are gains in the been about to finance its largest aid century, would be surprised to find relative loss of income associated project ever, a steel complex at that during this period (1950-73) the with the managed economies of the Bokharo in Eastern India, insisted United Kingdom’s share of the Third World which need to be ap¬ that it be managed privately. India “Planetary Product” has been re¬ preciated. An Asian economist has insisted on a public sector plant, for duced from 5.8 to 3.1 per cent? said of his own country, plaintively which read a plant that would do Why then be surprised that those yet not without a certain defiance: what the Prime Minister of India who have made British socialism “We are socialists, so we do not wanted done. In the manner of the their model have trouble taking off believe in capitalism. We are dem¬ Aswan Dam (and with as much in the opposite direction? Yet even ocrats, so we do not believe in ter¬ political impact), the Russians so, one must be surprised at the de¬ ror. What, then, is our alternative stepped in to finance the public- cline of economies such as those of save one per cent a year?” There is sector plant. By 1974 this plant had Burma and Sri Lanka: immensely a welfare state of sorts; there is yet to produce sheet steel. For the productive places not a generation protection of industrial labor; and period 1962-72 Indian steel produc¬ ago. Sri Lanka, for example, hav¬ in some countries, at least, there is tion grew by a bare 1.8 per cent, ing first got to the point where it freedom to protest. while Japanese grew 13.4 per cent. was importing potatoes from Po¬ But the most distinctive gain and There is no serious way to deny land, has now got to the further the least noted is that in the course that India has in a very real sense point where it can no longer afford of its outward journey, the man¬ desired this outcome, just as there to do so. A recent survey of the aged economy was transmuted is no way to deny that high living Ceylonese economy in the FAR standards in the modern world are EASTERN ECONOMIC REVIEW was * This latter idea is very much alive. On associated with relatively free entitled: “Conspiracy or Catas¬ leaving my post as United States Ambas¬ market economies and with lib- trophe?” For what else could ex¬ sador to India, I gave a press conference in eralist international trade policies. which inter alia I touched upon the failure of plain such failure? India to achieve a productive economy. The Granted that much economic pol¬ What else, that is, to those ex¬ NATIONAL HERALD, the Nehru family icy does not have high living stan¬ periencing it (with all that implies newspaper, commented in an editorial: dards as its true objective, but is for political instability)? The out¬ "Mr. Moynihan may be justified in some of rather concerned with political sta¬ his criticism of the state of the Indian sider can indulge a more relaxed economy, but what he is trying to sell is the bility, and granted that such a con¬ view. The fault lies in ideas, not capitalist system which can only impoverish cern may be wholly legitimate in a persons. Americans—Westerners India’s millions further." new nation—in any event it is not

20 FOREIGN SERVICE JOURNAL, July, 1975 anyone else’s business—it never¬ the kind of painfully impotent If we were to ask who is the theless remains the case that the threats which are sometimes heard relative economic failure accom¬ of America’s “pulling out.” Any¬ most important interna¬ panying political success in regimes one who doubts that Dubai can pay tional official, a persuasive such as that of India sooner or later for UNESCO, knows little of case could be made for begins to undermine that very suc¬ UNESCO, less of what the United cess. Promises are made and politi¬ States pays, and nothing whatever choosing the Inspector cal stability, especially in the more of Dubai. General of the Interna¬ democratic regimes, requires some In any event, matters of this sort measure of performance. When it is aside, world society and world or¬ tional Atomic Energy Au¬ not forthcoming, regimes change. ganization have evolved to the thority, the man who They become less democratic. point where palpable interests are They become less independent. disposed in international forums to supervises the safeguard Neither of these developments a degree without precedent. Wit¬ agreements of the world’s can be welcomed by the United ness, as an instance, the decisions States. The United States in the of the World Court allocating the atomic reactors. Few would past may have cared about the oil fields of the North Sea among know the name of this un¬ course of political events in these the various littoral states in dis¬ nations, but only in the most tinctly weighted (but no doubt obtrusive Swiss chemist; abstract terms. (Consider the casu¬ proper) manner. Witness the cur¬ few, perhaps, need to. alness with which we armed Paki¬ rent negotiations at the Law of the stan and incurred the bitter and Sea Conference. Two-thirds of the enduring hostility of India, the sec¬ world is covered by the sea, and impressive manner. If we were to ond most populous nation in the the United Nations claims the sea¬ ask who is the most important in¬ world.) But India has now bed. That seabed, especially in the ternational official, a persuasive exploded a nuclear device. That region around Hawaii, is rich_ in case could be made for choosing may well prove the most important so-called “manganese nodules”— the Inspector General of the Inter¬ event of the turbulent year 1974. concentrations of ore which national Atomic Energy Authority, Other Third World nations are American technology is now able the man who supervises the likely to follow. Hence political to exploit, or will be sooner than safeguard agreements of the stability in the Third World ac¬ anyone else. At this moment we world’s atomic reactors. Few quires a meaning it simply has have, arguably, complete and per¬ would know the name of this un¬ never in the past had for American fect freedom to commence indus¬ obtrusive Swiss chemist; few, strategic thinking, as well as our trial use of the high seas. This free¬ perhaps, need to. But more than a general view of world politics. dom is being challenged, however, few do need to know that the post and almost certainly some form of is there and that its viability derives WHAT THEN is to be done? We are international regime is about to be ultimately from the international witnessing the emergence of a established. It can be a regime that system of which it is a part. For the world order dominated arithmet¬ permits American technology to go moment, American security de¬ ically by the countries of the Third forward on some kind of license- rives primarily from our own ar¬ World. This order is already much and-royalties basis. Or it can assert maments, and our strategic agree¬ too developed for the United States exclusive “internationalized” ments with the Soviet Union and a or any other nation to think of opt¬ rights to exploitation in an interna¬ few other powers. But the interna¬ ing out. It can’t be done. One may tional public corporation. The tional regime of arms control is al¬ become a delinquent in this nascent stakes are considerable. They are ready important and certain to be¬ world society. An outcast in it. But enormous. come more so. one remains “in” it. There is no And then, of course, there re¬ If, that is, it does not go down in escape from a definition of nation¬ mains the overriding interest, a true the general wreckage of the world hood which derives primarily from international interest, in arms con¬ system embodied now in the the new international reality. Nor trol, and here true international United Nations. But assuming that does this reality respond much to government has emerged in a most the new majority will not destroy the regime through actions that drive nations like the United States away, is it not reasonable to antici¬ pate a quasiparliamentary situation at the international level—the General Assembly and a dozen such forums—in which a nominally radical majority sets about legislat¬ ing its presumed advantage in a world which has just come into its hands? The qualification “quasi¬ parliamentary” is necessary, for in fact the pronouncements of these assemblies have but limited force. So did the pronouncements of the

FOREIGN SERVICE JOURNAL, July, 1975 21 Continental Congress. They are undergoing it in the 1970s. But the direct fact is that any crisis the not on that ground to be ignored. truth is that international liberalism United States takes to an interna¬ What then does the United States and its processes have enormous tional forum in the foreseeable fu¬ do? recent achievements to their credit. ture will be decided to the disad¬ The United States goes into opposi¬ It is time for the United States to vantage of the United States. (Let tion. This is our circumstance. We start saying so. us hope arms control is an excep¬ are a minority. We are outvoted. One example is the multinational tion.) Ergo: skepticism, challenge. This is neither an unprecedented corporation which, combining The world economy is the most nor an intolerable situation. The modem management with liberal inviting case for skepticism, al¬ question is what do we make of it. trade policies, is arguably the most though it will be difficult to per¬ So far we have made little— creative international institution of suade many Americans of this dur¬ nothing—of what is in fact an op¬ the 20th century. A less contro¬ ing an American recession, and al¬ portunity. We go about dazed that versial example is the World though the rise in oil prices is now the world has changed. We toy Health Organization. In 1966 it set creating a crisis in the Third World with the idea of stopping it and get¬ out to abolish smallpox, and by the which is neither of American con¬ ting off. We rebound with the time this article is read, the job will trivance nor of American discovery thought that if only we are more more than likely have been suc¬ nor of American invention. But reasonable perhaps “they” will be. cessfully completed—in very sig¬ until the dislocations caused by (Almost to the end, dominant opin¬ nificant measure with the tech¬ OPEC, things were simply not as ion in the US Mission to the United niques and participation of Ameri¬ bad as they were typically por¬ Nations was that the United States can epidemiologists. While not trayed. Things were better than could not vote against the “have- many Americans have been getting they had been. Almost every¬ nots” by opposing the Charter on smallpox of late, the United States where. In many places things the Rights and Duties of States— has been spending $140 million a were very good indeed. Sir Arthur all rights for the Group of 77 and no year to keep it that way. Savings in Lewis summed up the evidence duties.) But “they” do not grow that proportion and more will im¬ admirably: reasonable. Instead, we grow un¬ mediately follow. Here, as in a reasonable. A sterile enterprise very long list, a liberal world policy We have now had nearly three decades which awaits total redefinition. has made national sense. of rapid economic growth. . . . Output Going into opposition requires We should resist the temptation per head has been growing in the de¬ veloped world twice as fast as at any first of all that we recognize that to designate agreeable policies as time within the preceding century. In there is a distinctive ideology at liberal merely on grounds of agree¬ the LDC world, output per head is not work in the Third World, and that it ableness. There are harder criteria. growing as fast as in the developed has a distinctive history and logic. Liberal policies are limited in their world, but is growing faster than the To repeat the point once again, we undertakings, concrete in their developed world used to grow. have not done this, tending to see means, representative in their The data can be quite startling. In these new political cultures in our mode of adoption, and definable in 1973, as Sir Arthur was speaking, own image, or in that of the to- terms of results. These are surely the “Planetary Product,” as esti¬ talitarians, with a steady shift in the the techniques appropriate to a still mated by the Bureau of In¬ general perception from the former tentative, still emergent world so¬ telligence and Research of the De¬ to the latter. But once we perceive ciety. It is time for the United partment of State, grew at a real the coherence in the majority, we States, as the new society’s loyal rate of 6.8 per cent, an astonishing will be in a position to reach for a opposition, to say this directly, figure. The Third World product certain coherence of opposition. loudly, forcefully. expanded by 5.75 per cent, no less Three central issues commend astonishing. themselves as points of systematic THE ECONOMIC argument—which Simultaneously it is to be as¬ attack: first, the condition of inter¬ will appear inconsistent only to serted that these economies do less national liberalism; second, the those who have never been much in well than they ought: that the dif¬ world economy; third, the state of politics—is that the world economy ference is of their own making and political and civil liberties and of is not nearly bad enough to justify no one else’s, and no claim on any¬ the general welfare. The rudiments the measures proposed by the one else arises in consequence. of these arguments need only be majority, and yet is much worse This will be hard for us to do, but it sketched. than it would otherwise be in con¬ is time we did it. It is time we It is the peculiar function of sequence of measures the majority commenced citing men such as “radical” political demands, such has already taken. The first half of Jagdish N. Bhagwati, Professor of as those most recently heard in the this formulation will require a con¬ Economics at MIT, an Indian by international forums, that they siderable shift in the government birth, who stated in the Lai bring about an exceptional depre¬ mind, and possibly even some Bahadur Shastri lectures in India in cation of the achievements of lib¬ movement in American elite opin¬ 1973: eral processes. Even when the ion also, for we have become great radicalism is ultimately rejected, producers and distributors of crisis. In the 1950s our economic programs were considered by the progressive and this is rarely from a sense that es¬ The world environment crisis, the tablished processes do better and democratic opinion abroad to be a world population crisis, the world model of what other developing coun¬ promise more. American liberalism food crisis are in the main Ameri¬ tries might aspire to and emulate. To¬ experienced this deprecation in the can discoveries—or inventions, day. many of us spend our time trying 1960s: international liberalism is opinions differ. Yet the simple and desperately to convince others that 22 FOREIGN SERVICE JOURNAL, July. 1975 somehow all the success stories else¬ and civil liberty, and doing so in de¬ For the United States to go where are special cases and that our tail and in concrete particulars, is performance is not as unsatisfactory as something that can surely be under¬ into opposition in this it appears. And yet, we must confront taken by Americans with enthu¬ manner not only requires a the fact that, in the ultimate analysis, despite our socialist patter and our siasm and zeal. Surely it is recognition of the ideology planning efforts, we have managed to not beyond us, when the next So¬ show neither rapid growth nor signifi¬ cial Report comes along, to ask of the Third World, but a re¬ cant reduction of income inequality and about conditions and events in versal of roles for American poverty. many countries of the Third World of which almost everyone knows, spokesmen as well. As if to It is time we asserted, with Sir but few have thought it politic to compensate for its aggres¬ Arthur—a socialist, a man of the speak. The AFL-CIO does it. Third World—that economic Freedom House does it. Amnesty siveness about what might growth is governed not by Western International does it. American be termed Security Council or American conspiracies, but by socialists do it. The time has come its own laws and that it “is not an for the spokesmen of the United affairs, the United States egalitarian process. It is bound to States to do it too. has chosen at the UN to be be more vigorous in some profes¬ It is time, that is, that the Ameri¬ extraordinarily passive, sions, or sectors, or geographical can spokesman came to be feared regions than in others, and even to in international forums for the even compliant, about the cause some impoverishment.” truths he might tell. Mexico, which endless goings-on in the A commentator in THE STATES¬ has grown increasingly competitive MAN, Calcutta's century-old and in Third World affairs, which took Commissions and Divisions most prestigious journal, recently the lead in the Declaration of the and Centers and suchlike warned: Economic Rights and Duties, It would be unwise for policy planners preaches international equity. Yet elusive enterprises asso¬ in the developing world to dismiss too it preaches domestic equity also. It ciated with the Economic easily . . . the basic premise of a soci¬ could not without some cost ex¬ ety that worships success: if you are pose itself to a repeated inquiry as and Social Council. poor, you have only yourself to blame. to the extent of equity within its Development is a matter of hard work own borders. Nor would a good and discipline. So if you are not de¬ many other Third World countries found as to seem wholly normal. veloping fast, it is not because the rules Delegations to international con¬ of the game are stacked against you or welcome a sustained comparison that structural changes are never easy between the liberties they provide ferences return from devastating to bring about, but because you are their own peoples with those which defeats proclaiming victory. In lazy and indisciplined. The general dis¬ are common and taken for granted truth, these have never been enchantment with economic aid flows in the United States. thought especially important. Tak¬ from this. It is difficult for Americans For the United States to go into ing seriously a Third World speech to understand why such substantial opposition in this manner not only about, say, the right of commodity flows of food and money have made so requires a recognition of the ideol¬ producers to market their products little impact. ogy of the Third World, but a re¬ in concert and to raise their prices Well, the time may have come versal of roles for American in the process, would have been the when it is necessary for Americans spokesmen as well. As if to com¬ mark of the quixotic or the failed. to say, “Yes, it is difficult to un¬ pensate for its aggressiveness To consider the intellectual an¬ derstand that.” Not least because about what might be termed Secur¬ tecedents of such propositions some Third World economies have ity Council affairs, the United would not have occurred to any¬ done so very well. For if Calcutta States has chosen at the UN to be one, for they were not thought to has the lowest urban standard of extraordinarily passive, even com¬ have any. living in the world, Singapore has pliant, about the endless goings-on And yet how interesting the re¬ in some ways the highest. It is time in the Commissions and Divisions sults might be. The results, say, of we asserted that inequalities in the and Centers and suchlike elusive observing the occasion of an Alge¬ world may be not so much a matter enterprises associated with the Ec¬ rian’s assuming the Presidency of of condition as of performance. onomic and Social Council. Men the General Assembly with an in¬ The Brazilians do well. The Is¬ and women were assigned to these formed tribute to the career of the raelis. The Nigerians. The Tai¬ missions, but have rarely been liberator Ben Bella, still pre¬ wanese. It is a good argument. given much support, or even much sumedly rotting in an Algerian Far better, surely, than the re¬ scrutiny. Rather, the scrutiny has prison cell. The results of a dis¬ peated plea of nolo contendere been of just the wrong kind, ever course on the disparities between which we have entered, standing alert to deviation from the formula the (1973) per capita GNP in Abu accused and abased before the platitudes of UN debate, and Dhabi of $43,000 and that of its Tribune of the People. hopelessly insensitive to the his¬ neighbor, the Democratic People's tory of political struggles of the Republic of Yemen, with one- CATALOGUING the economic fail¬ 20th century. thousandth that. Again, this need ings of other countries is something In Washington, three decades of not be a uniformly scornful exer¬ to be done out of necessity, not habit and incentive have created cise; anything but. The Third choice. But speaking for political patterns of appeasement so pro- World has more than its share of

FOREIGN SERVICE JOURNAL, July, 1975 23 attractive regimes, and some at¬ the former colonies will be, the wholly to live up to either of our tractive indeed—Costa Rica, United States included. protestations. Yet there exists the Gambia, Malaysia, to name but The Third World must feed it¬ strongest possibility of an accom¬ three. Half the people in the world self, for example, and this will not modating relationship at the level who live under a regime of civil be done by suggesting that Ameri¬ of principle—a possibility that does liberties live in India. The point is cans eat too much. It is one thing to not exist at all with the totalitarian to differentiate, and to turn their stress what is consumed in the powers as they are now consti¬ own standards against regimes for West, another to note what is pro¬ tuted. To contemplate an opposi¬ the moment too much preoccupied duced there. In 1973, 17.8 per cent tional role to the Soviet bloc, or the with causing difficulties for others, of the world’s population produced Chinese, in, say, the General As¬ mainly the United States. If this 64.3 per cent of its product—and sembly would be self-deceptive. has been in order for some time, not just from taking advantage of One may negotiate there as be¬ the oil price increase—devastating cheap raw materials. tween separate political com¬ to the development hopes of half- In the same way, the Third munities, but to participate as in a a-hundred Asian and African and World has almost everywhere a single community—even in oppo¬ Latin American countries—makes constitutional heritage of individual sition—would simply not be it urgent and opportune in a way it liberty, and it needs to be as jealous possible. We can, however, have has never been. of that heritage as of the heritage of such a relation with most Third national independence. It should World nations. And we can do so SUCH A REVERSAL of roles would be a source of renown that India, while speaking for and in the name be painful to American spokesmen, for one, has done that, and of in¬ of political and civil liberty. but it could be liberating also. It is famy that so many others have not. past time we ceased to apologize Not long ago, Alexander Sol¬ AND EQUALITY, what of it? Here for an imperfect democracy. Find zhenitsyn, speaking of the case of a an act of historical faith is required: its equal. It is time we grew out of Soviet dissident who had been de¬ what is the record? The record was our initial—not a little condescend¬ tained in a mental hospital, asked stated most succinctly by an Israeli ing—supersensitivity about the whether world opinion would ever socialist who told William F. feelings of new nations. It is time permit South Africa to detain a Buckley, Jr. that those nations we commenced to treat them as black African leader in this fashion. which have put liberty ahead of equals, a respect to which they are Answering his own question, he equality have ended up doing better entitled. said, “The storm of worldwide by equality than those with the re¬ The case is formidable that there rage would have long ago swept the verse priority. This is so, and being is nothing the Third World needs roof from that prison!” His point is so, it is something to be shouted to less—especially now that the very like the one Stephen Spender the heavens in the years now upon United States has so much came to in the course of the us. This is our case. We are of the withdrawn—than to lapse into a Spanish Civil War. Visiting Spain, liberty party, and it might surprise kind of cargo cult designed to bring he encountered atrocities of the us what energies might be released about our return through impre¬ Right, and atrocities of the Left. were we to unfurl those banners. cation and threat rather than the But only those of the Right were In the spring of 1973, in his first usual invocations. The Third being written about, and it came to address as director-designate of the World has achieved independence, him, as he later put it, that if one London School of Economics— and it needs to assert it in a genuine did not care about every murdered where Harold Laski once molded manner. The condition of the de¬ child indiscriminately, one did not the minds of so many future leaders veloping countries is in significant really care about children being of the “new majority”—Ralf measure an imported condition. In murdered at all. Very well. But Dahrendorf sounded this theme. the main a distinctive body of nothing we finally know about the The equality party, he said, has had European ideas has taken hold, not countries of the Third World (only its day. The liberty party’s time has everywhere in the same measure. in part the object of the Sol¬ come once more. It is a time to be Sri Lanka will be more cerebrate in zhenitsyn charge) warrants the shared with the new nations, and its socialism than will, say, Iraq, conclusion that they will be con¬ those not so new, shaped from the Brazil more given to actual eco¬ cerned only for wrongdoing that di¬ old European empires, and espe¬ nomic expansion than Syria or rectly affects them. Ethnic solidar¬ cially the British—and is the Egypt, Algeria considerably less ity is not the automatic enemy of United States not one such?— libertarian than Nigeria. Still, there civil liberties. It has been the foun¬ whose heritage this is also. To have is a recognizable pattern to the ec¬ dation of many. If there are any halted the great totalitarian ad¬ onomic and political postures of who can blow off the roof of any vance only to be undone by the these countries, of which the cen¬ such prison—then all credit to politics of resentment and the eco¬ tral reality is that their anti¬ them. If you can be against the nomics of envy would be a poor capitalist, anti-imperialist ideol¬ wrongful imprisonment of a person outcome to the promise of a world ogies are in fact themselves the last anywhere, then you can be against society. At the level of world af¬ stage of colonialism. These are im¬ wrongful imprisonment every¬ fairs we have learned to deal with ported ideas every bit as much as where. Communism. Our task is now to the capitalist and imperialist ideas It is in precisely such terms that learn to deal with socialism. It will to which they are opposed. The we can seek common cause with not be less difficult a task. It ought sooner they are succeeded by truly the new nations: granted that they, to be a profoundly more pleasant indigenous ideas, the better off all no more than we, are likely ever one. ■

24 FOREIGN SERVICE JOURNAL, July. 1975 COMMUNICATION RE: What realistic cause for confi¬ FSIO/FSR-3 level is very difficult; EXCESS BAGGAGE dence in “The Conceptual Insights grades I and 2 are normally re¬ from page 6 of Henry Kissinger," as actually served for generalists. as if some law from on high said applied in the Nixon-Ford (Kis¬ A new rationale for the that if a maid is available you must singer) era? What basis, in concrete downgrading of specialists was hire her and turn your young over evidence, of any substantial change provided in the "Board Statement to her care. unless and until there is installed an on Low Five Percent" received The funniest and at the same Executive Establishment which is last summer by an FSIO of our ac¬ time saddest thing in the whole devoted to principles of integrity, quaintance. It begins as follows: dismal article is the reference to justice, and reason, instead of de¬ “The Board has placed Mr. in talk about one's marriage—“ ‘Why ception, elitism, machismo, and ir¬ the low 5 percent ranking of his class. This position is far from indicative of did you get married?' How painful rational pride? the quality of his performance in his but how liberating to say. ‘Because I would suggest that the two pro¬ fessors are too intelligent and per¬ field of specialty ... As a matter of I was 26, broke and he wanted fact, his record, past as well as recent, to.' " Here is woman at her finest, ceptive by far not to have, antici¬ pated this obvious objection to amply demonstrates the high regard giving that pearl of great price, her¬ with which he is viewed by his their otherwise admirable article. It self. to some poor unsuspecting superiors, both as a person and profes¬ bloke who thinks he's getting a would be most interesting to read sionally." their comment on this point. wife. No wonder men regard How can an officer who has con¬ REUBEN R. THOMAS women with extreme wariness, sistently received good ratings end FSSO Retired when there are women who find up in the low 5 percent? Easy. Fayetteville such a self-regarding admission “Mr. 's evaluation suffers from ‘‘liberating." The Stepford Wives the unfortunate fact that neither the rat¬ I'm not anti-woman, but I begin ing officer nor the review officer can to be very tired of the liberated ■ Some women will not be able to provide a meaningful evaluation be¬ woman. The excess baggages who relate at all to the article “Excess cause of (. . .)* Instead, rating and re¬ wrote this article, like a lot of their Baggage" by the Superfluous view are confined to description of ac¬ tivities. As a result. Mr. appears sisters, w'ould have been better Spouses in the April JOURNAL or to employed taking lovers instead of "The Wasted Resource: Foreign to the Selection Board as a diligent, hard-working man. who by nature of Service Wives" in the May issue. crying on each other's shoulders. his professional experience and his At least there wouldn’t have been But many women will say when grade can be expected to do just that.” so much talk involved. they read these articles, “That’s *( nnfamitiarity with his specially.) what I have been saying (or feeling Words omitted to mask the rated officer's LETTERS TO FSJ but not saying) for years!” The ar¬ identity. ticles express well the concern of In other words, high evaluation many for the problems confronting by supervisors must be disregarded A Caveat the capable, intelligent, indepen¬ if these are unfamiliar with the of¬ dent woman who gets dragged ficer's specialty. Since most Thank you for publishing that ■ around the world as a hostess and specialists in USIA are rated or re¬ excellent, informed, generally in¬ charity volunteer. viewed by generalists, or by offi¬ sightful, article by professors If Foreign Service wives are to cers whose specialized competence Stupak and McLellan of Miami of be anything more than Stepford lies in some other field, how can Ohio (FSJ, April, page 23). Arti¬ wives abroad, the Foreign Service specialists avoid being selected cles like this one, telling it like it is itself must do some serious think¬ out? Or does USIA feel it really about contemporary US foreign ing about the problems raised in the has no need for specialists? Our policy-making and execution, are articles. There are still enough old- Board provides the answers: till too rare these days except in a line. traditional thinkers in the “The Selection Board recognizes the very few professional journals. Foreign Service (both men and agency's need for specialists, espe¬ If there is a single significant women) who would keep the old cially wrth Mr. s ability. It there¬ weakness in the argument (and I system going in more or less the fore recommends Mr. s retention believe there is), it is in the patent same fashion regardless of any new in the Service. The Selection Board over-optimism of the authors con¬ policies. But (thank God!) there are also recommends that Mr. s re¬ cerning reinstitution and revitaliza¬ some young, independent thinkers quest for a generalist assignment be heeded as soon as possible so that he tion of the role of the State De¬ who will insist that the Foreign partment as long as Ford-Kissinger can prove himself in the broader fields Service catch up with the 20th Cen¬ of USIA." stay in power. "The retrenchment tury. has been made" from Nixon Doc¬ This particular story has a happy JUDITH P. STUBBS ending. Despite being rated in the trine adventurism, they say in ef¬ Alexandria fect, despite overwhelming evi¬ low 5 percent last year, our dence to the contrary, especially USIA Specialists Jeopardized specialist friend has just been the continued power of the Penta¬ by Supervisor’s Ignorance promoted—and given a generalist gon expressed in that monstrous assignment. war budget, still unlikely to be re¬ ■ In our age of specialization, But. what if a specialist lacks a duced in any significant way by a specialists in USIA continue to be good fairy? still-hawkish, hyper-nationalistic, treated as second-class citizens. KENNETH P. ADLER congress. Promotion of specialists to the Research Specialist

FOREIGN SERVICE JOURNAL, Jtdy. 1975 25 domination; the Knights of Labor, progressive social change (forget¬ pgJBODKSHELF the National Grange, the Farmers' ting our own Revolution, the Civil Alliance, and the early American War, and more than a few bloody Social Architecture Federation of Labor could have riots), we can hardly expect such REVOLUTIONARY STRUGGLE 1947- supported his program of economic saintly forbearance on the part of 1958. Vol. I of Selected Works of Fidel and labor reform; William Jennings the downtrodden elsewhere. What Castro, edited by Rolando E. Bryan, Theodore Roosevelt and are the heavy-laden to do if they Bonachea and Nelson P. Valdes. MIT Woodrow Wilson would not have can see no peaceful means of eas¬ Press, $12.50. blanched at many of his political ing their weary burden? and social ideas; and Norman From the earliest days of his ac¬ THIS SELECTION of Fidel Castro's Thomas repeatedly campaigned on tivism, Castro dedicated himself to writings up to January 1, 1959 their like. Indeed, Castro can be freeing Cuba from foreign domina¬ shows Cuba’s Prime Minister to be fitted within the US Populist and tion and improving the lot of the a clear thinker, a skilful organizer, Progressive reformist mold. This poor. He has richly accomplished and the one leader able to weld the isn't strange, for intellectual cur¬ the second objective, but, with re¬ disparate elements of the Cuban rents in this country were usually spect to the first, Cuba seems Revolution together for common reflected in Cuba from 1762 on. as merely to have exchanged one action. There is no evidence here shown by the fact that Cuba's foreign patron for another. If that he had Communist ties or ac¬ major revolutions have tra¬ Cuban-US relations are ever cepted Marxist-Leninist doctrines, ditionally been incubated in this “normalized,” it will probably re¬ and we can remind ourselves that country. sult from Castro’s desire to find an Cuba's Communists sat on the Castro frankly advocated vio¬ alternative to Cuba’s unnatural de¬ sidelines until he had all but won lence as an essential means of right¬ pendence on the Soviet Union, and his struggle. ing Cuba’s social and political to gain freedom of action by play¬ Actually, Castro is not revealed wrongs—following an illustrious ing his country's present and pre¬ as an innovative thinker, or even a example, we may recall, in this vious “benefactors” off against very radical one. Samuel Adams bicentennial season. While we each other. and Patrick Henry could have comfort ourselves in the belief that The personal image of Castro endorsed his insistence on his our enlightened people repudiate that comes through these early country's freedom from foreign force as a means of bringing about writings is that of a smart, purpose¬ ful, resourceful and humane leader. That he also developed into a suc¬ cessful social architect is evident in the New Cuba he has built during the 16 years of his power. This useful record of Castro's thinking and actions shows him to TRAVELING TO THE be as Cuban as the rumba. But the entire hemisphere, if not all the Third World, vibrates to an appeal that reaches beyond Cuba’s bor¬ ders, for the charisma that powers his leadership now spans geograph¬ ical. generational, and ideological gaps. TOURSERVICE The lengthy biographical and his¬ can help you to plan your visit torical introduction provides a handy framework on which events and writings can be related to one AT SPECIAL DISCOUNT another. "VISIT U.S.A." RATES —JOHN P. HOOVER Humane Foreign Policy |Talk to the people who know the Western Hemisphere first hand | IN SEARCH OF AMERICAN FOREIGN An expert multi-lingual staff can give you suggestions .... POLICY, by Lincoln P. Bloomfield. Ox¬ arrange bookings for hotels; air. rail or bus transportation; ford University Press. or special tours to suit your schedule and your budget.

Travel Agents Fully Protected PROFESSOR LINCOLN P. BIOOM- MELD of MIT has written a long y. Write us directly A uior iidvcrhave yuiyour travel agent do it tor you and personal essay on American 475 FIFTH AVENUE foreign policy which describes his Tour§ervice^f/*Inc, own discomfort and even anguish NEW YORK, N.Y. 10017 Since 1949 in the '60s as he tried to respond to Tel: (212)686-7600 • Telex: 125747 127215 the radical views but compassion¬ Cables: TOURSERVIC NEW YORK ate feelings of students, his analysis of where we have gone wrong in

26 FOREIGN SERVICE JOURNAL. July. 1975 foreign policy (too militaristic, too The protagonist is a German-born much deceit, lying by the White Hungarian Countess, who returned House, bureaucratic resistance to to her native country at the end of new ideas), and his prescription for World War II in 1945, to find a the future in the form of a home for herself and her four chil¬ “decalogue” or ten assumptions dren. Her biographer-translator- that should guide policy. co-author, also German-born, is a Bloomfield’s prescriptions are former dancer, now a free-lance bland and general and unfortu¬ writer. The Best Way to Go... nately don't match his forthright Arriving in Nuremberg as the In¬ Let Guest Quarters help make analysis of our past mistakes. His ternational Military Tribunal was your stay in the nation's capital plea for a “humane” foreign policy getting under way in the trial of enjoyable. Reserve a room with is well intentioned but only of lim¬ Nazi high officials charged with us and we give you one oi two ited help in defining the national war crimes, the multilingual Coun¬ bedrooms, a living room, dining area, and even a fully equipped interest or in deciding how best to tess Kalnoky was a natural choice kitchen. On temporary duty or influence developments outside our to become the “hostess” of one of relocating your family, you will borders. Bloomfield's perspective the so-called “guest houses” re¬ appreciate the kind of “guest is both academic and governmental quisitioned from the private sector quarters" we provide. (he consults actively with various to accommodate the flow of trial agencies) and the result is almost witnesses of various nationalities too restrained and well-balanced to who were to testify, either for or Guest Quarters Reserve A Room We Give You A Suite have much effect on either thought against, the high-level former offi¬ or action. cials in the prisoners dock. Some of Washington South 100 S Reynolds Street — DAVID LINEBAUGH the witnesses were later to face Alexandria. Va. 22304 criminal charges on their own ac¬ (703) 370-9600 The Countess Keeps House From $18 per day count. THF. GUEST HOUSE: The Witnesses at The Countess was required to Washington Intown Nuremberg, A Memoir by Countess New Hampshire Ave. & H Street, N.W. serve the functions of hotel direc¬ Washington. D. C. 20037 Ingeborg Kalnoky, with Ilona Herisko. tor, smoother of ruffled feelings, (202) 785-2000 Bobbs-Merrill. Three blocks from State Department recreation coordinator, preventer From $30 per day of mayhem among political dissi¬ THIS BOOK has been prepared by a Other Guest Quarters in team of two perceptive women. dents, and, on occasion, jailer for Atlanta. Ga. and Greensboro, N.C. individual witnesses in a detention status. Among the more memora¬ Be Wise Shop Riverside ble of her “guests” were a survivor of the abortive attempt on Hitler’s life on 20 July 1944: the flirtatious founder of the dread Nazi secret of Washington, D.C Liquor police agency, the Gestapo; PROUD IN BEARING A TRADITION OF Hitler’s clownish personal photog¬ DISTINCTION IN SERVICE Discounts rapher and eternally faithful friend; TO THE WORLD’S TRAVELERS the wife of the Nazi High Com¬ —EXQUISITE— mand Chief of Staff, whose de¬ Exclusive Seventy-two suite construction ATTENTION: voted efforts to save her husband’s elegantly decorated and fully prepared to service one’s temporary resident needs. 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FOREIGN SERVICE JOURNAL. July, 1975 27 The Establishment’s laudatory of American policy, has Toward World Cooperation Asia accepted in almost all cases official

THREE AND A HALF POWERS: The explanations or official elisions of LOOKING FORWARD, by Livingston New Balance in Asia by Harold C. American policy or actions. One Hartley. Branden Press, $3.95. Hinton. Indiana University Press, exception is his willingness to $15.00, paper $3.95. criticize President Nixon, usually to point up that the actions IN “Looking Forward,” Living¬ H AROLD HINTON, once of FSI and criticized were Mr. Nixon’s not ston Hartley describes the difficult now of George Washington Uni¬ Mr. Kissinger’s; in fact p. 156 problems man confronts in popula¬ versity, has had two successful makes it appear that Mr. Nixon tion growth, pollution, and energy books on China, “Communist said “peace is at hand” back in Oc¬ shortages. Mr. Hartley proposes China in World Politics” and tober 1972. radical solutions. Stop population “China's Turbulent Quest.” He When one shakes an uneasy feel¬ growth by restricting families to now expands his view to include ing that he is being conned on US two children. Cut down on pollu¬ the two superpowers and Japan. roles, the analysis presented and tion by extensive regulation of in¬ He misses the mark this time. the predictions made seem proba¬ dustrial production. If this leads to The author claims to have no ble, if bland, save for some hairy extensive unemployment, set up a great “political emotions” about but not implausible scenarios about compulsory work corps. World the subject, and at the same time a Sino-Soviet war. cooperation will be needed in these not to be “uncritically laudatory” Events in lndo-China have taken fields and one consequence, almost about American policy. Truth is, the edge off Mr. Hinton’s book incidental to Mr. Hartley, is the the history and analysis are often (finished September 1974), but probable elimination of the threat slanted against Peking (four sepa¬ even without that dramatic de¬ of thermo-nuclear war. This is a rate references to the India-China nouement there would have been provocative book, but it makes it War manage to avoid the point of disappointment that he did not all too easy to get from here to Neville Maxwell’s “India’s China choose to take a cooler look at there. War” although that book appears Washington, a closer look at Tokyo —DAVID LINEBAUGH in the suggestions for further read¬ and a longer look at Peking (he was ing). But the main complaint is that refused a CPR visa in 1973). Mr. Hinton, if not uncritically —J.K. HOLLOWAY, JR. JOIN AFSA

28 FOREIGN SERVICE JOURNAL, July. 1975 STATEMENT OF THOMAS D. BOYATT • that the nature of international in¬ volvement has changed dramatically BEFORE THE since the end of the war and. while se¬ COMMISSION ON THE ORGANIZATION OF THE curity and international political con¬ GOVERNMENT FOR THE CONDUCT OF FOREIGN POLICY siderations continue to be the single APRIL 28, 1975 most important questions of American Mr. Chairman, the Association is mission and not restrict ourselves sole¬ foreign policy, some questions, particu¬ pleased to have an opportunity to ap¬ ly to matters related to the three larly trade and finance, have increased pear before this distinguished group Foreign Affairs Agencies. For the sake enormously in importance, while other and to present testimony on the basic of convenience. I would like to group questions such as energy, population, question before the Commission—how our major recommendations under the development, the environment, oceans best to organize the government for the following 9 headings: policy, information and cultural—to conduct of foreign policy? 1. The Imperative of Change name but a few—have become central As a life member of our Association. The current organizational structure questions of foreign relations. Mr. Chairman, what 1 am about to say of the government has evolved over the These changes have in turn caused will be “old hat” for you. but for the years through a series of ad hoc, often not only policy shifts but require new other members of the Commission a uncoordinated decisions, each of which means of dealing with international few words of introduction may be in might have been justified in the abstract problems and, in our opinion, new or¬ order. For fifty years the American but which, taken together, constitute ganizational approaches for the gov¬ Foreign Service Association has been an organizational structure of the gov¬ ernment in carrying out this country's the professional organization of the ernment for the conduct of foreign pol¬ foreign relations. In short, this Com¬ Foreign Service of the United States icy that could hardly be justified by mission with its broad mandate could and in that capacity has long been con¬ anyone. The mandate of this Commis¬ not have come at a more propitious cerned with the same issues which are sion is itself a recognition of the need to time. for. in the opinion of the Associa¬ before this Commission. Indeed, in step back and take a careful look at tion. a thorough overhaul based on a times past the Association took a very how this government guides its foreign careful review is already long overdue. active role in the enactment of the Act relations, and to see whether human in¬ 2. The Role of Congress and the of ’46, in the Herter and Wriston genuity cannot devise a better system Power of the President Commissions, and in the “task force" than the one under which we are The authors of the Constitution had a reforms in the late '60s and early "70s. presently forced to operate. firm grasp of the importance of foreign It is largely in this capacity as a profes¬ Moreover, it is clear that changes affairs and built an Executive/ sional association intimately concerned which have recently taken place in the Legislative balance of power in the with the organization of the govern¬ international environment have foreign affairs field into the Constitu¬ ment in the foreign affairs field that we brought about profound changes in the tion itself. The Constitutional require¬ are appearing before you today. In ad¬ nature of international relations and of ment that two-thirds of the Senate ap¬ dition, however, two years ago the As¬ America’s interaction with the other prove treaties, and that the Senate ad¬ sociation won contested elections to be nations of the world. vise and consent to the appointment of the exclusive employee representative We proceed from the assumptions ambassadors and ministers, as well as of the nearly 12,000 men and women of —demonstrable in today's world: the power of the legislature to declare the Foreign Service of the United • that post-World War II US foreign war and appropriate funds, were mea¬ States in the Department of State, the policy was based on public (Congres¬ sures meant to establish the balance of Agency for International Develop¬ sional) support for the application of power doctrine in the field of foreign ment, and the United States Informa¬ massive US resources to clearly de¬ affairs. Legitimate differences on the tion Agency. As an employee organiza¬ fined problems through established al¬ details of the Executive/Legislative tion, we are also concerned with those liances in a bipolar world; balance in the foreign policy process elements of the Commission's mandate • that today and in the future US are possible. There can. however, be which could involve changes in per¬ policy will be based on limited public no argument regarding the intent of the sonnel policies or procedures, or or¬ (Congressional) support for the appli¬ Constitution to give the Legislative ganizational changes affecting the cation of limited resources to complex Branch a substantial voice in foreign af¬ career of Foreign Service employees. problems against a background of shift¬ fairs. One of the real strengths of this ing alliances in a multipolar world; Throughout our history the relative Commission’s mandate is that it goes • that while the US remains the balance between the Executive and far beyond the mandate extended to single most important factor in world Legislative Branches has fluctuated. other investigatory commissions, and affairs, our relative power has declined During and since World War 11. how¬ thus avoids the narrow strait-jacket as a result of political, economic, and ever, the balance has swung dramat¬ placed on previous commissions to military changes; ically toward the Executive. Since 1941 concern themselves solely with reform • that while the present fluid inter¬ US foreign policy involvement has of the Foreign Affairs Agencies or of national environment presents dangers, been in the context of war—hot (1941- the State Department. In consideration it also presents opportunities for 45). or cold (1947-72). War. of course, of this broader mandate, the Associa¬ encouraging and broadening areas of even for a democracy requires a large tion will make recommendations on a interdependence with a view to estab¬ and capable military establishment and wide range of issues before the Com¬ lishing a more cooperative world; and concentration of power in a strong

FOREIGN SERVICE JOURNAL, July, 1975 29 President. Over the past 30 years we complex in the foreign policy area. Security Council coordinator of all have had both and the result has been a Paralleling the pervasive military in¬ intergovernmental activities in derogation of the Constitutional intent fluence in the foreign policy process— foreign affairs and requiring the for a strong legislative input in the and reinforcing the trend—has been the Secretary (or his Congressionally foreign policy process. centralization of power in the approved designee) to chair all Under these circumstances, it is not Residency itself. Recent Presidents, NSC subordinate bodies. surprising that in structural, bureau¬ dealing with wars, hot and cold, have • Recommend legislation which cratic and resource terms the American opted for the speed, efficiency, respon¬ would prohibit assistants to the military and intelligence establishments siveness, loyalty and security of a President from being interposed during and after World War 11 came to Presidential staff. Such persons are re¬ between the President and the dominate, and still dominate, the sponsible to the President only, and not heads of foreign affairs depart¬ foreign policy process. subject to advice and consent or Con¬ ments in the exercise of their With regard to leadership from Gen¬ gressional oversight. From 1960 until statutory functions. eral Marshall to Colonel Rusk, from Dr. Kissinger was named Secretary of • Recommend that through the ap¬ General Hershey to Lieutenant State, the primary departments of gov¬ propriations process, a severe McNamara, and not to mention Gen¬ ernment in the foreign affairs field— limit be placed on the size of the eral Eisenhower, military men or men Department of State, US1A and President’s foreign affairs staff with long military experience have AID—were divorced from the and that the regular staff (as op¬ played an extremely important role in policy-making process. Officials with posed to the President’s political the critical foreign policy decisions of long experience in foreign affairs in the advisers) be subject to the Hatch the country. This is a fact which does three Agencies were shunted aside be¬ Act. not detract from the.great contributions cause their contrary advice was not • Recommend that the Senate to our nation made by such men. 1 welcomed and their loyalty was Foreign Relations Committee be might say that the distinguished Chair¬ questioned. The result was rather dra¬ charged with oversight of the role man of the Commission, Ambassador matically described in a 1973 news¬ of the military in the foreign affairs Robert Murphy, entitled his autobiog¬ paper article which stated that the af¬ policy process, and that the raphy of a lifetime in diplomacy during fairs of the nation were conducted by Committee initiate an immediate this period, “Diplomat Among War¬ "battalions of faceless ministers who investigation of the current situa¬ riors.” 1 can think of no better descrip¬ now swarm through the corridors of the tion with a view to reporting any tion of the reality of the foreign policy White House, the Executive Office appropriate legislation. process during the '40s, '50s and '60s Building, and perhaps other structures 3. The Need for a “Macropolicy” than that title. Indeed, it is no exagger¬ whose existence has not yet been dis¬ Perspective ation to say that during the 1947-73 closed. These men are not advisers; In the period since the end of the period the US reversed von merely to listen to them for five min¬ war, as new tasks or challenges have Clausewitz’s dictum: diplomacy be¬ utes each would consume most of a arisen, the reaction of this government came war carried out by other means. Presidential term. They are an inde¬ has been consistently to deal with In resource terms, our military al¬ pendent bureaucracy whose authority questions on an ad hoc basis, which liances, and the bases and military as¬ extends to every function of govern¬ almost inevitably resulted in the crea¬ sistance groups involved therein, have ment. In a kind of Constitutional tion of new agencies or bureaucratic created a situation in which over 80 mockery, the Congress dutifully entities to deal with new problems. For percent of the official United States evaluates and confirms Presidential example, faced with the rising tide of personnel overseas are military, and in appointees, and its committees sternly street crime caused by the narcotics numerous countries the reality of the interrogate Cabinet members, while the epidemic, the government first created American presence is seen in the real government toils on in seclusion, the Bureau of Narcotics and Danger¬ enormous quantity of American arms its activities so extensive that even the ous Drugs, and subsequently the Drug present. President cannot keep informed of its Enforcement Administration. To deal In structural terms the Cabinet, myriad deeds.” with the international implications, composed of officers appointed by the The system described above still BNDD. and subsequently DEA. offi¬ President with the advice and consent exists. Were it not for the fact that Dr. cials in enormous numbers were as¬ of the Senate and subject to Congres¬ Kissinger is concurrently the Secretary signed overseas. Similarly, faced with a sional oversight, has been replaced by a of State and the President's NSC Ad¬ need to place more emphasis on disar¬ “national security’’ system. viser, the situation described would ob¬ mament considerations in American The National Security Act provided tain as it did under Kennedy-Bundy, foreign policy, an entirely new for a Cabinet-level body to advise the Johnson-Rostow, and Nixon-Kissin- Agency—the Arms Control and Dis¬ President on foreign affairs. What has ger. armament Agency—was established. happened in practice is that the 1 have outlined in very broad terms To cope with the increasingly complex Cabinet-rank National Security Coun¬ what AFSA believes to be some of the problems of the coordination of these cil has atrophied, and a system of fundamental problems in the foreign rapidly proliferating agencies in the “committees” and “groups” domi¬ policy process. Essentially, it is a mat¬ Foreign Affairs field ever more com¬ nated by Presidential advisers and mili¬ ter of reestablishing the legislative and plex and cumbersome coordination de¬ tary and intelligence officers—none professional inputs in foreign policy vices were attempted, most of which subject to advice and consent—have and limiting what has come to be the have proven to be unsuccessful. assumed decision-making authority— total power of the Presidency and the If the sole term of reference for an not subject to legislative oversight—in pervasiveness of military influence. No analysis of the organization of the gov¬ foreign policy formulation and im¬ amount of bureaucratic reorganization ernment to carry out its foreign affairs plementation processes. The American will have significant impact unless responsibilities is a problem-by¬ people were warned of the power of these basic problems are attacked. To problem. agency-by-agency evaluation, this group in connection with its impact achieve this AFSA recommends that it becomes difficult to quarrel with any on the economy by none other than the Commission: one of these decisions. Yet. the total President Eisenhower when he spoke • Recommend legislation revising effect has been to diffuse responsibility of the “military-industrial complex." It the National Security Act and for the conduct of foreign affairs to is time to focus on the power of the mandating the Secretary of State such a degree that no coordinating national security/military-intelligence concurrently serve as the National mechanism can hope to cope with the

30 FOREIGN SERVICE JOURNAL, July, 1975 enormity of the problem, or hope to foreign affairs should be made explicit. The Association has previously tes¬ place the US government in a situation Unlike the vast majority of other gov¬ tified at some length concerning the where it can speak to foreign govern¬ ernment agencies, the Department of recommendations of the Stanton Panel ments with one voice. The horror State operates without any basic en¬ before a Subcommittee of this Com¬ stories—of a CIA person in a given abling legislation. Within the limits of mission, and although we commend it country seeking to “destabilize” the his own Constitutional role, of course, to your attention, we will not repeat same government the ambassador was nothing should undercut the capacity of that testimony here. We do wish, how¬ seeking to strengthen; of BNDD the President to provide overall foreign ever, to emphasize strongly that in the agents making representations to policy guidance to all elements of the Association's view information and foreign governments totally at odds government, including the Secretary of cultural programs are and ought to re¬ with goals being pursued by local State. Nevertheless, in the absence of main an integral part of American di¬ American military commanders seek¬ explicit instructions from the President plomacy: that the current integration of ing to obtain support for American in¬ to the contrary, it should be made clear short-term informational, long-term in¬ stallations in the same countries—these that the Secretary of State has the prin¬ formational, and cultural programing and many others are undoubtedly well cipal responsibility for providing policy abroad under a Public Affairs Office known to this Commission. guidance to all other elements of the responsible to the ambassador should What is clearly called for here is the government with respect to foreign af¬ not be splintered along the lines rec¬ need not only to look at each con¬ fairs. In the present circumstance, we ommended by the Stanton Panel; that a stituent element of American foreign have seen such bizarre developments substantial reform of the Washington policy responsibilities and how best to as the Federal Aviation Administration organization in the informational and carry them out. but also the need for a making foreign policy arguments with cultural fields is overdue—either bring¬ careful overview. Such an overview, respect to landing rights of the Con¬ ing US IA and CU together within we are convinced, would argue for far corde in Washington and New York. State or establishing a modified version stronger centralization of policy and The Secretary might well have taken of US IA under closer direction of the authority in the Secretary of State in the same position, but it is absurd for Secretary; that administrative services Washington, and in the ambassador in an agency such as the FAA to be mak¬ be amalgamated (see below); and that a the field. With respect to this latter ing foreign policy determinations on its more independent structure for the question, the Congress of the United own. Voice be established. States has already taken an extremely 3)5. The Urgent NeedI To Do Something n a more basic sense, careful useful step by codifying in legislation consideration should be given to the About AID the authority of the ambassador which question of whether we need to have so For over twenty-five years this na¬ had previously been unilaterally de¬ many agencies involved in foreign af¬ tion has been administering “tempo¬ lineated by the Executive Branch. With fairs at all. A single foreign affairs rary” bilateral assistance programs the role of the Secretary, however, a budget and a central policy role for the utilizing “temporary" agencies to carry great deal remains to be done. In addi¬ Secretary would, of course, go a long out this task. In the Association's opin¬ tion to our recommendations with re¬ way toward resolving some of the ion, a further continuation of this situa¬ spect to the National Security Council, bureaucratic problems inherent in the tion is unacceptable on both profes¬ we would also recommend that serious present situation. But before relying sional and employee grounds. AFSA consideration be given to: solely on these approaches, the more recognizes, and many in AFSA would I) A singlefundamental foreign affairsquestion budget. should be ad¬ support, the view that excessive em¬ Some argue that budgetary control is dressed in the case of every agency phasis has been placed in times past on the ultimate control in government. Ul¬ having foreign programs or operations, bilateral assistance, that we have had timate authority in this process should, as to whether that agency has any busi¬ difficulties in justifying programs of course, rest with the appropriations ness being involved in the foreign pol¬ whose basis in many cases was primar¬ and authorization process in the Con¬ icy of the United States whatsoever. It ily to support short-term foreign policy gress. In the shorter run, however, a is our impression that such a review by objectives, and in other cases to sup¬ great deal could be done to improve the this Commission and the Congress port development or other largely budgetary process both by the Con¬ would almost inevitably result in a de¬ humanitarian goals on the grounds that gress and by the Executive Branch. In termination that some agencies could these were in the long range national particular, the Congress could insist be eliminated, others absorbed, and yet interest. We anticipate that support for that the Executive provide it with one others told to shed certain foreign large scale bilateral assistance pro¬ single budget for all foreign operations, affairs-related functions. Consideration grams will continue to decline, and that with the sole exception of the support should be given, for example, to trans¬ in future years there will be little or no for US military forces abroad. ferring the Bureau of International support for large scale bilateral infras¬ Moreover, the Executive Branch Commerce from Commerce to State, tructure or industrialization schemes. could vest in the Secretary final review similarly shifting the Bureau of Interna¬ Instead. American participation in this authority for that same single budget. tional Labor Affairs from Labor and form of development assistance will in¬ By doing so, the Executive Branch eliminating or drastically curtailing the creasingly be through multilateral could greatly improve its capacity to international offices of Treasury, agencies. Nevertheless, the Associa¬ assure the Congress that the allocation HEW, HUD, DOT, the Department tion believes it is a serious mistake to of resources to foreign policy goals was of Agriculture and the 50 plus other view bilateral assistance and humanita¬ in fact consonant with overall foreign agencies with an “overseas presence." rian aid as temporary and transient as¬ policy objectives and simultaneously What is being stressed here is the ur¬ pects of American foreign policy, and eliminate the disingenuous and even gent need to assure that the question of we reject the notion that multilaterali¬ mischievous role of OMB, which organization of the government for the zation of all foreign assistance is a via¬ presumes to “manage” the resource al¬ conduct of foreign policy not be looked ble alternative. locations in foreign affairs without at solely on a p.roblem-by-problem or In fact, it is highly probable that the foreign affairs experience and without an agency-by-agency perspective, but US will maintain a capability for bilat¬ itself being subject to legislative over¬ also be viewed from the larger “mac¬ eral assistance for immediate foreign sight. ro" perspective of how foreign policy policy reasons; because of non-shared 2) The authorityshould of thebe madeSecretary and implemented.of US interests in assistance targeted to State to provide policy direction to all 4. Changes in the Role of Public Di¬ key areas, e.g., population control; and elements of the government involved in plomacy because of the need for quick and effec-

FOREIGN SERVICE JOURNAL, July, 1975 3 1 tive humanitarian disaster relief, an officers with the same career status enormous problems—in particular the area in which the record of the multilat¬ presently accorded FSOs and FSIOs. fact that the system is not working at all eral agencies is spotty at best. At the same time a system, perhaps in AID—which we believe can be re¬ In any case, of primary importance is similar to a modified Foreign Service solved only through the establishment the need for the US to have a profes¬ Reserve Unlimited (FSRU) authority of a legislatively mandated employee- sional development structure which should be created to facilitate the ac¬ relations system for the Foreign Ser¬ can deal with both bilateral and mul¬ quisition of specific technical expertise vice. However, the existence of an tilateral AID issues and operations as when and as needed. Moreover, such a employee-relations system for the these impinge on US interests. Unfor¬ career system should do something Foreign Affairs agencies, and AFSA's tunately. the Association does not be¬ about AID’s huge Civil Service election to be the exclusive employee lieve that AID as presently structured bureaucracy, which has made AID in¬ representative of Foreign Service per¬ meets this basic need. Accordingly, we creasingly a Washington-focused sonnel make it possible for the employ¬ are convinced that the time has come to agency, dominated by individuals who ees to exert literally daily pressure for recognize that the developmental assis¬ know little or nothing about overseas improvements in the personnel systems tance function is a long-term feature of conditions. This aspect of the problem of the agencies. Frankly, with a few American diplomacy, and to structure could be resolved by either phasing out exceptions, we are in a position to bring the government to take this into ac¬ or converting to FSRU or FSDO all about changes almost as rapidly as we count. A number of concrete steps are Civil Service personnel except those in could recommend them to you. necessary: essential occupational specialties hav¬ In the personnel field, therefore, we 1. The Congress should officially ing no overseas equivalent positions will limit our remarks to those matters acknowledge that foreign development and who should therefore remain GS. requiring legislation and beyond the assistance has become a continuing A separate assignments and promotion scope of our negotiations. part of US foreign policy and that ap¬ system for all Foreign Service person¬ One area which urgently needs legis¬ propriate structural adjustments via nel in the new development structure is lative reform is the continued use by enabling legislation are therefore re¬ envisaged. the three agencies of the flexibilities in¬ quired. C. A systematic long-range career herent in the Foreign Service Act of 2. The leadership of the USG foreign development program should be 1946. and Public Law 90-494 for pur¬ development assistance program created with particular attention to (1) poses of political patronage, or per¬ should How directly from the Secretary disseminating the knowledge of and sonal favor, rather than keeping the of State. Under “ Department of State techniques for foreign development as¬ Foreign Service strictly an apolitical Delegation of Authority No. 104— sistance programs and (2) undertaking merit system as intended by the Con¬ Foreign Assistance Act of 1961 and research to learn more about the gress. The only solution to this problem Certain Related Acts” the Secretary of generic development process than we is for the Congress to close several State has delegated to the Adminis¬ now know. Since a great majority of major loopholes in the Foreign Service trator of AID most organizational, op¬ AID's research at present is sectoral Act. P.L. 90-494 and the Foreign As¬ erational and personnel matters. How¬ and unidisciplinary. our proposal sistance Act. We believe this can be ever. as is noted under Section 7(c) of would be of great value to the whole done in a manner consistent with other that Authority, the Secretary can exer¬ foreign development assistance com¬ widely-recognized merit principles cise executive control over AID if he munity. without undermining legitimate man¬ so desires. The Secretary's exercise of D. Under the new arrangement (1) agement needs for flexibility. The As¬ this existing authority would at least all US bilateral and multilateral sociation has researched this problem eliminate the country ever again being policies, programs and personnel area thoroughly, and is prepared to witness to the unseemly activities of should be integrated; (2) there should supply the Commission with concrete AID in pressing for one kind of AID be a more formal leadership and coor¬ legislative proposals designed to bill while the Secretary wanted dination role of all US official foreign strengthen the merit system in the another, and should eliminate the development assistance activities: and Foreign Affairs agencies. capacity of the Agency to flout openly (3) there should be a central and cataly¬ The other matter which greatly con¬ the orders of the Foreign Service tic role for the new AID structure cerns us and for which no remedy is Grievance Board and other adjudica¬ within the community of private, vol¬ apparently available outside of legisla¬ tory bodies under Executive Order untary, and university development re¬ tion is in the area of compensation for 11636. sources. Foreign Service people. Senior offi¬ The Association believes that the 6. Improving the Personnel System in cers. faced with a four year period in Secretary should exercise such control the Foreign Service which they have been totally unable to immediately by temporarily assigning Mr. Chairman, if this Commission obtain any_ form of pay increase, and the delegation to the Deputy Secretary were meeting even three years ago. we who have watched their real incomes of State pending the development of a would have come before you with a decline by as much as 43%, are finding program and enabling legislation out¬ long “shopping list” of recom¬ it increasingly difficult to justify re¬ lined as follows: mendations in the field of personnel maining in the Foreign Service, particu¬ A. An amalgamation of the adminis¬ problems in State, AID and US I A. We larly when they have families and col¬ trative support functions of State and do not intend to do so. with a few ex¬ lege educations to underwrite. While AID should be undertaken (see below) ceptions. here today. The reason for $36,000 per year is an amount greater in a phased manner. This we believe this is that a mechanism has finally than many of us in the Service have any will lead not only to greater efficiency been established which provides for a reason to aspire to in the near future, and lower costs but enhanced career beneficial employee input into person¬ the fact is that this situation is terribly opportunities. Such an amalgamation nel policies and procedures, and thus unfair, and completely contrary to the should lead in a step-by-step process to establishes an entity, the Association, national interest. The reason is that the the merger of offices concerned with committed to reform and which has best younger senior officers are being security, employee management rela¬ legal authority to have substantial in¬ given offers commensurate with those tions. travel and personnel support fluence on a day-to-day basis. This available to first rate executives in pri¬ functions, and payrolls. mechanism is the employee-manage¬ vate industry, while less capable offi¬ B. A career system should be estab¬ ment relations system for the three cers are more likely to remain in the lished around a core of development- foreign affairs agencies established by Service. Unless this process is quickly oriented Foreign Service Development Executive Order 11636. There are brought to a halt, it will greatly under-

32 FOREIGN SERVICE JOURNAL, July, 1975 mine the quality of the Senior ranks of tivities, giving speeches or holding changed, intelligence has gained in im¬ the Service. While we recognize that in seminars, rescuing distressed Ameri¬ portance. particularly with respect to this time of economic difficulties, the cans, meeting and briefing visiting dig¬ strategic warning, and with respect to Congress is unlikely to take action sole¬ nitaries, etc.). verification of arms control agree¬ ly on the basis of the unfairness of this These factors, in our opinion are rel¬ ments. situation, we hope that this Commis¬ evant to providing genuine pay com¬ This growing importance of in¬ sion will add its voice to those em¬ parability. but when we raised them telligence in strategic matters, how¬ phasizing the rapid, negative impact the with the Civil Service Commission, we ever, does not mean that there is not senior level freeze is having on the were told they are “interesting" but room for considerable improvement in capacity of the government to govern. “outside the scope" of their study. Yet the way this country carries out its in¬ A closely similar problem is that of a detailed study done by the Associa¬ telligence functions. The Association pay-comparability of our junior and tion indicated that Foreign Service of¬ would suggest the following changes: middle ranking personnel. Under ficers were being disadvantaged by as (1) Eliminate unnecessary duplica¬ present law. the pay of the Foreign much as a quarter of a million dollars tion. For years it has been argued that Service is linked to that of GS person¬ when compared to GS interns by the more than one source of intelligence, nel. and the Civil Service Commission time both reach age 50. and more than one center of assess¬ and OMB are required to make annual In short, the current law is rigged ment were in the national interest. With surveys of these "linkages." These against the Foreign Service, and needs respect to strategic intelligence involv¬ two agencies for over three years ig¬ to be changed so that Foreign Service ing potentially significant adversary nored this legal requirement. Finally people at all levels are paid an equiva¬ states, we believe the argument is a this past year they got around to living lent amount to that paid individuals of sound one. and that the duplication of up to their legal obligations and finally comparable quality, holding compara¬ functions between the CIA and the mil¬ conducted a survey. The results of that ble responsibilities, with comparably itary services, though costly, should be survey convinced the Association that demanding workloads. In that regard, a retained. When one moves from this the game is rigged. In particular, the useful first step could be taken by critical field of strategic intelligence to survey was based solely on what are providing Foreign Service personnel a other kinds of intelligence, however, it technically called "classification fac¬ premium, based on the hours typically does not follow that if two agencies are tors," by which levels of responsibility, worked, in lieu of any overtime pay. good, an unlimited number is even bet¬ number of Americans supervised, etc., This is already done for the FBI, which ter. We would strongly urge that in¬ are compared. Such a system severely had previously faced a somewhat simi¬ telligence gathering and assessment be disadvantages the Foreign Service, by lar problem. limited in the areas of political and eco¬ failing to take into account: 7. Organizational Reform in the De¬ nomic developments exclusively to the (1) The quality demanded of the per¬ partment of State Department of State for overtly obtain¬ sonnel to perform these tasks. The The Association’s study of structural able information and the CIA for the Foreign Service is enormously more and organizational problems in the covert area. DIA and all other military difficult to get into than even the most State Department indicated most of intelligence organizations should get competitive sectors of the Civil Service them are not of sufficient urgency to entirely out of the business of reporting system. Personnel of comparable qual¬ bring to the attention of this Commis¬ on political and economic develop¬ ity are paid far more in the rest of the sion. with one exception: ments. Their involvement is not only a government and in private industry Administrative amalgamation: The totally unnecessary and wasteful dupli¬ than in the Foreign Service. Moreover, Association will be testifying this cation of effort, but the level of profes¬ in addition to doing a job for which summer before the Brooks Committee sional competence in reporting on de¬ "classification factors" known to the on the need to eliminate the duplication velopments is markedly below that of CSC apply. Foreign Service officers of certain administrative and personnel regular diplomatic Foreign Service per¬ must do so in one. two or more lan¬ support functions in the three Foreign sonnel or of the CIA. guages under difficult circumstances Affairs agencies. Many of the functions Another kind of duplication occurs over a career. are already consolidated in Washing¬ when the CIA abroad obtains either (2) The slow rates of promotion in ton. and most are run jointly overseas. overtly or covertly and reports in its the Foreign Service. Outstanding per¬ The Association believes that some channels information readily available sonnel in the Civil Service system usu¬ further economies could be brought to regular Foreign Service personnel at ally come in through one of a number of about, employee rights strengthened, no cost. This can and should be con¬ established intern programs, are typi¬ and better and more even-handed ser¬ trolled by ambassadors abroad and by cally hired out of college at the GS-9 vices provided to Foreign Service per¬ CIA and State Department monitoring level, and are then promoted annually sonnel if the Security, Employee- in Washington. to GS-I3. at w hich time they would be management relations, and eventually (2) Curtail substantially the level of approximately 26 years old. In the the payrolling, shipping and travel sec¬ CIA and military intelligence personnel Foreign Service, on the other hand, 26 tions of the three agencies were com¬ overseas, particularly in “Third is the average age for entry at FSO-7 bined. World" countries. If. as we have (slightly below GS-9). and, according 8. Reforming the Role of Intelligence suggested, a strong case can be made to this year's statistics a Foreign Ser¬ We suspect that nearly everyone in that the changing nature of American vice officer can expect to wait an aver¬ the Foreign Service favors the current involvement in the rest of the world re¬ age of 11 years until age 37 to be pro¬ investigations into allegations of illegal quires greater reliance on intelligence moted to FSO-4 (GS-13 equivalent). domestic involvement by the CIA, on in strategic matters and with potential (3) Pay comparability linkages are the grounds that as citizens we share a adversary states, the same cannot be based on assessing comparable "40 concern for assuring that all agencies said of the role of intelligence in the rest hour weeks." Yet a 40 hour week in the operate within the rule of law. On the of the world. The US is no longer going Foreign Service is rare, particularly other hand, as professionals in the field to function as the world's omnipresent abroad, where officers typically spend of foreign affairs, we are convinced of policeman. Therefore, much of the in¬ 40-50 hours per week in the office, and the necessity of an effective in¬ formation previously collected is use¬ then spend from 10-20 hours in addi¬ telligence community for the conduct less, and its collection a waste of tional tasks outside the office which are of our foreign relations. Indeed, a good money. Do we need five military staf¬ a traditional part of representing this cttse can be made that as the role of the fers in Uruguay to obtain that country’s country abroad (mandatory social ac¬ United States in world affairs has order of battle? Do we need current

FOREIGN SERVICE JOURNAL, July, 1975 33 levels of CIA officers in various Em¬ about 4500 to under 3000. Further re¬ the organization of our government for bassy sections around the world to re¬ ductions are still underway in AID. the conduct of foreign affairs. Thank port on everything? No. we do not. The Association has taken violent ex¬ you for this opportunity for AFSA to Moreover, in third world countries, ception to the way those reductions are make its contribution. CIA operations and attache presence being carried out in AID. through an have been a source of embarrassment illegal RIF. which hits entirely AID'S International Affairs Award on a number of occasions, have Foreign Service personnel, while leav¬ The Rochester Association for exacerbated relations with govern¬ ing the huge, bloated GS bureaucracy the United Nations. Xerox Corpo¬ ments for no useful purpose, and have in Washington virtually untouched. In undermined the effectiveness of the any case, while we are not arguing for ration, and the University of Foreign Service, because, since we substantial increases in the number of Rochester have established the provide the CIA cover in our missions, Foreign Service personnel, we hope Joseph C. Wilson Award in inter¬ all Foreign Service personnel are sus¬ that this current decline has hit bottom, national affairs. The Award honors pect. and that the number of Foreign Service the late Mr. Wilson, who was a To correct this situation the Associa¬ personnel can now remain stable. founder of the RAUN, chairman tion believes Congressional action is The same cannot be said of other and chief executive officer of necessary since the Executive has agencies, which, by and large were Xerox, and longtime chairman of proved itself incapable of limiting the either able to escape the 1967-68 the University's Board of Trus¬ CIA and attache presence abroad. Two BALPA/OPRED reductions entirely, tees. The Award will recognize an actions are necessary: a legislatively or have quietly brought their overseas imposed limit on the number of CIA levels back up. What all these people individual for high achievement and military attache personnel serving are doing overseas remains something and potential in activities contribut¬ overseas: and the establishment of firm of a mystery. DOD alone has, accord¬ ing to the peaceful resolution of in¬ guidelines requiring them to concen¬ ing to the most recent published statis¬ ternational problems. The recipient trate largely on activities of and de¬ tics, some 23,000 American civilians will be chosen annually, after a velopments in potential adversary abroad. That is the equivalent of one nationwide canvass, by a panel of states, and leave the great bulk of polit¬ and a third combat divisions. While prominent citizens. ical and economic reporting to the many of these individuals perform use¬ T he winner will receive $10,000, Foreign Service, which does this task ful. and in some cases essential func¬ contributed by Xerox Corporation, most professionally, at less cost or risk, tions, their numbers are clearly exces¬ to provide some form of enriching and without the clientism that some¬ sive, and should be curtailed sharply. times develops between host country Other agencies have proliferated experience, training, or study that and US military and intelligence ser¬ abroad in an orgy of wasted effort. One might not otherwise be available or vices. A 25% reduction in CIA and at¬ survey indicated that at a typical to assist in the completion of a spe¬ tache presence abroad is a reasonable American embassy abroad, only 17% cial project of international signifi¬ target. of the personnel were Foreign Service cance. (3) Place far stronger limitations on personnel from State, and yet a smaller The winner will be announced covert operations. The issue of covert number from USIA and AID. While each United Nations Day begin¬ operations, of efforts to “destabilize" there is clearly a rationale for retaining ning October 24, 1975. other nations, manipulate other gov¬ in substantial numbers both CIA and Nominations for the 1975 Award ernments, etc., has been given consid¬ DOD personnel (but in reduced are to be made before July 31, 1975 erable public attention. While opinions strength), the only apparent rationale on this issue vary within the Service, for many agencies to have their own and should be addressed to: we believe there is a consensus that at personnel abroad is that having your Joseph C. Wilson Award best, covert operations are a highly own overseas operations has become a Box G overrated tool of international politics. badge or symbol of being a “real" Midtown Plaza The Association believes that the Con¬ agency. What the Bonneville Power gress should revise the National Secur¬ Administration is doing with personnel Rochester, New York 14604 ity Act to establish clear definitions of overseas escapes us entirely. Leaving the scope of CIA activities and that aside the three Foreign Affairs agen¬ ELIGIBILITY GUIDELINES: A then the Congress should supply far cies, DOD and CIA. the remainder— nominee must he u US civilian near greater oversight than at present. In some 1900 personnel from 19 govern¬ mid-career. Each nomination should addition, the CIA should be instructed ment departments and agencies—could he accompanied by a biography of the in no uncertain terms that its present be cut in half and no one would ever nominee, a supporting statement of practice of briefing ambassadors on op¬ know the difference. two to five pages, and the names of erations only in general terms without Mr. Chairman, ladies and gentlemen four other persons competent to ap¬ revealing agents and sources is a viola¬ of the Commission, the Governing praise the nominee s qualifications. tion of law (in particular the amend¬ Board of AFSA and numerous AFSA Additional details may he obtained by ment of the Foreign Service Act. con¬ committees have spent months in lively writing to the above address. tained in the 1974 State Department debate over the matters covered here Authorization Bill which makes clear today. Our indictments of some past Correction concerning taxes the preeminent role of the Ambassador and present foreign affairs structures abroad). and operations have been severe. This The March FSJ article on taxes 9. Scaling Down the Scope and does not imply any questioning of the was in error in the section concern¬ Number of Other Agencies Overseas motivations or capacities of any indi¬ ing Medical Expenses. Transporta¬ Since 1968, the size of the Foreign viduals or institutions involved, but tion in connection with medical Service has declined from 16,000 to rather reflects the importance of the is¬ treatment is deductible at the rate 12,000 with corresponding reductions sues and our responsibility to deal with in personnel overseas. Americans with them frankly and openly. The nation's of 7 cents per mile, not 15 cents. USIA overseas, for example, have past performance in foreign affairs and The 7 cent rate is also applicable to dropped from 1500 to just under 1000 in the fundamental changes occurring transportation in connection with the same time frame, and AID Foreign today in the international environment moving expenses and work for Service personnel have decreased from underline the critical need for change in charitable purposes.

34 FOREIGN SERVICE JOURNAL, July. 1975 THE OUTRAGE OF THE MONTH have expressed our alarm and tary Eagleburger constitutes an ad¬ chagrin at Colonel Soldow’s as¬ ditional element of control on the Terrible things happen in the signment to Athens, and our firmly FSR loophole, until the Congress Foreign Service. Sometimes they held view that his appointment as can pass more wide-reaching re¬ become known in the rumor mills an FSO or FSRU would be a seri¬ forms (see our testimony in last and the corridors, sometimes not. ous violation of the merit principle. month’s AFSA News). Beginning this month, the Associa¬ If that happens, it’s another AFSA Letter tion is launching a new feature, THE OUTRAGE—only worse. OUTRAGE OF THE MONTH, Which The Association has learned, on Insurance and You will name names and spell out de¬ good authority, that the Department is in the final stages of clearing for outside tails. Herewith, the first OUTRAGE: The Association considers the Lateral entry has been a conten¬ issue of foreign service insurance hire, two political associates of Ambas¬ sador Saxbe to accompany him to India tious problem in the Service for benefits and the functioning of the and perform unspecified tasks in a fully years. In theory an excellent con¬ American Foreign Service Protec¬ and competently staffed embassy. cept providing the service with tive Association (AFSPA) to be The individuals involved, irrespec¬ fresh blood and needed skills it has matters of critical importance to tive of their competence in past associ¬ been, in practice, abused almost as the membership. The Board has ation with Ambassador Saxbe have no often as used. Perhaps the worst recently taken two important ac¬ competence whatsoever in the field of form of abuse occurs when an indi¬ tions in this area. First, an AFSA foreign affairs, and presumably can be vidual lands a non-competitive sub-association has been estab¬ hired solely to serve in a confidential FSR appointment (often the result lished to provide an insurance capacity to the Ambassador. Both in¬ of personal or political influence), cover organization responsible to dividuals are to be hired at the FSR-1 the people of the Foreign Service in level, at a salary of $36,000 per annum. and then seeks to convert to career This raises a number of serious issues: status. In the meantime, job oppor¬ State, AID and USIA. Second, • Most ambassadors have no “spe¬ tunities and promotions are taken AFSA has asked John Krizay, cial assistants,” and none has two away from the career service by in¬ FSO-2, to head up a committee to officer-level personnel in a confidential dividuals who have never proven examine the problem. capacity. To permit Ambassador whether they were competitive, Krizay is former Research Di¬ Saxbe to bring two of his cronies to and who often got the appointment rector of the Twentieth Century New Delhi or to permit this situation to for the wrong reasons in the first Fund Study on Medical Cost occur anywhere in the world is a total place. Financing and is co-author of “The waste of the taxpayers' money. This is Consider the case of James J. Patient As Consumer” (D. C. double the case at the R-l level. Heath Co.) which won the Norman • Neither position to be filled is in Soldow, formerly of and receiving the “Plum Book,” containing a list of a pension from the military estab¬ Welch Award as the outstanding Schedule C positions. For the Depart¬ lishment as a retired Colonel. Mr. contribution to the literature of ment to hire these individuals for Soldow was assigned as Adminis¬ medical economics in 1974. He is Schedule C type positions is a violation trative officer to USNATO in currently a contributor to various of the Department’s own regulations, Brussels, as an FSR-2. The job medical and insurance journals. the Secretary’s recently enunciated probably should have gone to an John has prepared a report on his policy, and Civil Service Commission FSO, though at least the integrated preliminary findings on the current regulation and authority. State/Defense character of US¬ foreign service health insurance • No merit procedures were utilized plan which will appear in these col¬ in this case. These individuals were NATO would allow some to argue hand-picked by Ambassador Saxbe. that former military experience was umns next month. We urge all Their hiring is a clear violation of the desirable. Now Mr. Soldow is members to watch for this report letter and spirit of the President's Di¬ being assigned to the position of and to read it carefully. rective of September 20, 1974, against Counselor for Administration in More Progress on FSRs such actions. Athens, in spite of the fact that he • It will be extremely expensive to must leave the rolls as an FSR by We reported earlier on our suc¬ maintain two unneeded FSR-ls in New September 1976. It’s an outrage. cessful efforts to ensure that FSR Delhi. Their direct salary expenses The job should go to a senior FSO political appointees are identified alone over a two-year period will drain who is an administrative specialist; and required to depart 30 days after the Department's budget by $144,000, to say nothing of the costs of shipping indeed there is a long list of first the end of the administration or the and travel, allowances and housing, re¬ rate administrative officers already departure of the individual who tirement and insurance costs, etc. We in the career service who would provided their patronage. Recent¬ conservatively estimate the cost of give their eye teeth for that particu¬ ly, the practice of hiring FSRs as such an action to the taxpayers at a lar job. aides to non-career Ambassadors quarter of a million dollars. Meanwhile Colonel Soldow was getting out of hand. Ambas¬ • In turn, $250,000 is considerably wants to become a career officer. sador Saxbe took two FSR-ls to greater than the amounts which the He has already been turned down New Delhi, Ambassador Richard¬ Department has indicated to AFSA re¬ for conversion to FSO and now son sponsored three (count 'em. quire separate budgetary increases in wants to become an FSRU, which three) high level FSRs in London, order to bring about changes in the em¬ would be a clear violation of the ployee benefits field. The fact that the Ambassador Silberman arranged Department cannot locate $20,000 to differing purposes of the FSO and for an FSR-I Commercial Attache, put into effect low-cost improvements FSRU authorities. AFSA and etc. The following exchange of let¬ in employee benefits, but can suddently “Two Thousand Plus” (the associ¬ ters between AFSA President Tom discover the money necessary to hire ation of administrative personnel) Boyatt and Deputy Under Secre¬ on. two unneeded FSR-ls casts doubts

FOREIGN SERVICE JOURNAL, July, 1975 35 as to the necessity of the Department’s HERTER, HARRIMAN AND RIVKIN AWARDS—AN AFSA TRADITION incessant claiming of budgetary prob¬ lems in our employee benefit negotia¬ tions, and raises similar doubts as to It is again time for nominations rity and intellectual cour¬ the Department's good faith in bargain¬ for AFSA’s three awards honoring age. ing with us. Foreign Service people who "tell it Anyone with knowledge of a Foreign In summary, the Association is like it is" and who have the cour¬ Service colleague’s accomplishments shocked and appalled that at a time age and integrity to question the can nominate for these awards—in fact, when President Ford is calling for the idea is to emphasize peer nomina¬ system's conventional wisdom. tions, unlike most other awards in economy in government, when the The three awards, established in budget of the Foreign Service is under which nominations can only be made severe pressure, when the Senate has 1968, are one of AFSA's most im¬ by supervisors. The more nominations expressed itself in favor of a reduction portant professional activities. AFSA receives, the more certain we in overseas staffing, and when the De¬ The awards are sponsored each can be of having sought out and found partment claims it cannot scrape to¬ year by the families of three distin¬ the most deserving candidates. We gether a few dollars for the benefit of guished modern statesmen: retired hope that some person at each post single and junior personnel serving Ambassador W. Averell Harriman, meets the specifications for one of overseas, the Department would even the late Secretary of State Chris¬ these awards, and that each chapter contemplate spending one-quarter mil¬ tian A. Herter, and the late Am¬ will send in at least one nomination. We want to emphasize that the lion dollars to send two friends of Am¬ bassador William R. Rivkin. The bassador Saxbe to Delhi with him. As awards are open to any Foreign Service Foreign Service professionals con¬ awards, each carrying a $1000 tax employee, irrespective of Agency, rank cerned with preventing abuses of the exempt grant, are given to a senior, or pay plan. In previous years AFSA career principle, as employees desiring mid-career, and junior level officer has received a substantial number of elementary fair play, and as taxpayers, or staff personnel who are nomi¬ nominations from all three Agencies we call upon you to take immediate nated by their colleagues NOT for and at all ranks; however, we have not steps to prevent these two political out¬ all-around high performance or received the strong representation from side hires and to inform Ambassador super-efficiency, but rather for out¬ the Staff Corps that we think it de¬ Saxbe of this action. standing intellectual originality, serves. We urge the Staff Corps to par¬ courage, forthrightness, and con¬ ticipate more fully this year in the Department's Reply awards program. structive dissent. Although past re¬ This has been a momentous year for Your letter of March 10 raised the cipients have often been chosen on the country and for the Foreign Ser¬ issue of reserve appointees hired as the basis of their contributions to vice. As we look forward to the Bicen¬ aides to non-career ambassadors. Al¬ the debate on general foreign policy tennial observances, let’s nominate our though the Department has in the past issues, this is not the only field in best for these awards. followed a general rule of thumb on which these characteristics can be UNGRACEFUL LOSERS such requests, it is clear that we have displayed. not developed a consistent policy to The Herter Award honors FSO There are a variety of indepen¬ govern outside hires for overseas duty. dent, third-party adjudicatory We must continue to recognize that 1-2 and equivalents; the Rivkin Award goes to FSO 3-4 and equiva¬ bodies established under E.O. ambassadors appointed from outside 11636 to resolve differences be¬ the career system may require personal lents; the Harriman Award is for assistance at their embassies which FSO 5-8 and equivalents. tween the agencies and the exclu¬ could not. appropriately, be provided sive representative. State, AID NOMINATION PROCEDURES. and USIA must, like AFSA, by a Foreign Service officer or Foreign Nominations should be sent to: present their positions and take Service secretary. Accordingly, we AFSA Awards Committee have developed the following guide¬ 2101 E Street, N.W. their chances. Recently, faced with lines which will be applied in future Washington. D.C. 20037 in time to be a series of AFSA victories, the cases when a non-career ambassador received by September 15, 1975. Please administrative managers have requests the appointment of personal send two copies of each nomination, adopted a policy of trying anything aides: unbound on regular size paper, marking to avoid compliance with the deci¬ 1. An ambassador at a Class 1 post each page with the name of the sions which go against them. Thus, may have approved for outside hire not nominee. The format for nomination when the Grievance Board ordered more than one officer-level assistant should be as follows: and one personal secretary. AID to rehire an improperly PART I—Biographic Data: Name, RIFed officer, AID claimed Civil 2. An ambassador at a Class II mis¬ Birth date. Grade, Agency sion may have approved for outside PART II—Association with the Can¬ Service jurisdiction and appealed hire one officer-level assistant or one didate (Strictly limited to to the GAO; when Judge Chai- persona] secretary. 250 words) tovits found AID guilty of a mas¬ 3. The Department will consider a PART III—Justification for Nomina¬ sive unfair labor practice by not request for one personal secretary for tion (500-750 words) negotiating RIF procedures with an ambassador at a Class III or IV Summary of specific rea¬ AFSA, AID attempted to re-try post, but approval would be extended sons for nominations. The the case before the EMRC; when only in exceptional circumstances. narrative should discuss the Disputes Panel appeared to qualities of mind and support AFSA’s view on promo¬ spirit which qualify the tion safeguards, USIA appealed on nominee for the award a procedural gambit to the EMRC; JOIN AFSA AND specific examples of the candidate’s ac¬ and now that the EMRC has found (OR ENCOURAGE OTHERS TO JOIN) complishments, particu¬ State guilty of bargaining in bad larly evidence of out¬ faith and using coercive practices, DUES CHECKOFF MAKES IT EASIER standing initiative, integ¬ the Department has appealed the

36 FOREIGN SERVICE JOURNAL, July, 1975 decision where no appeals proce¬ American Foreign Service Associa¬ EMRC has ordered the Depart¬ dure exists. tion. ment to cease and desist and post a All of this whining in defeat WE WILL NOT in any other similar “Notice to All Employees’’ stat¬ would be ludicrous if it were not manner interfere with, restrain or ing: also destructive. In addition to coerce employees in the exercise of the The Commission has found that the being unattractive, graceless losing rights assured by Executive Order Department's representatives engaged by the agencies blocks the proper 11636. in a course of conduct which induced functioning of the Order. The man¬ WE WILL rescind and disestablish the the American Foreign Service Associa¬ reduction in force procedures, proce¬ tion to accept July I. 1975, as the effec¬ agements of State, AID and USIA tive date of an agreement on a schedule must learn that in an independent dures for assigning agency occupa¬ tional specialty codes (Manual Order of increased allowances for limited system they can—and will—lose 476.2 V. G.) and the procedures for shipment of household effects, by stat¬ cases. Here are some independent their implementation. ing that the Department otherwise judgments. would withhold funds for such in¬ WE WILL, upon request consult and In the AID RIF case Judge creases for the Fiscal Year 1976 budget confer in good faith with the American Chaitovits recommended that AID submission. The foregoing conduct Foreign Service Association'with re¬ constituted a refusal to consult with the post a “Notice to All Employees’’ spect to any proposed reduction in stating that: Association, in violation of Section 13 force procedures, procedures for as¬ (a) (6) and (1) of Executive Order "WE WILL NOT, during bargaining, signing agency occupational Specialty 11636. Upon request, the Department withhold, conceal and fail to furnish, Codes (Manual Order 476.2 V. G.)and will consult with the Association over the American Foreign Service Associa¬ the procedures for their implementa¬ the effective date of the schedule of in¬ tion, facts and other matters that are tion. informing the American Foreign creased weight allowances. The De¬ important, relevant and necessary for Service Association of the basic facts partment will not in any like or related the American Foreign Service Associa¬ necessary for it to bargain intelligently. manner interfere with the right of the tion to know in order to bargain in¬ WE WILL, should it develop, in the employees to consult collectively telligently and meaningfully. light of any new reduction in force pro¬ through representatives of their own WE WILL NOT unilaterally change cedures arrived at. that any employee choosing. our reduction in force procedures, pro¬ was incorrectly laid off, reinstate such Tax Tip cedures for assigning agency occupa¬ employee or employees and make them tional specialty codes (Manual Order whole for any loss of back pay oc¬ Preaching against communism is not 476.2 V. G.) and the implementation of casioned by the layoff." “church work” allowing the par¬ such procedures without consulting On the State unfair by coercive sonage allowance and conferring in good faith with the use of the budgetary process the Colbert, a director for the Chris-

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ASSOCIATION OF AMERICAN FOREIGN SERVICE WOMEN SHOP IN AN AMERICAN DRUG STORE BY MAIL! Box 8068, Washington, D. C. 20024 An ice cream soda is one of the few items we cannot mail. Drugs, cosmetics, sundries mailed to every country in the ■ Housing Assistance and Orientation world. We maintain permanent family prescription Room 1248, Department of State, Tei. 632-3573 records. SEND NO MONEY— ■ Educational Counseling Center pay only after satisfactory re¬ ■ Language and Writer s Groups ceipt of order. ■ Monthly Meetings ■ Newsletter ■ Book Fair ■ Welcome Home ■ Scholarships ■ Teenage Activities ■ Community Service ■ Career Workshops intern S’lm 'nnacy l/a JMcrtgan ~Ika’imacij

Those Foreign Service women eligible for membership are dependents, offi¬ C 3oot i? Sheet. 7/. !V cers. and staff of all government agencies serving or who have served over¬ seas. The annual dues are $ 10 which includes a subscription to the Newslet¬ Hlhslmglon, -77' . 20007 ter. Send dues to Membership Chairman at address above.

FOREIGN SERVICE JOURNAL, July, 1975 37 tian Anti-Communism Crusade, ON BOOKS AND BOOK FAIRS argued that his rental allowance BROWSING AND BUYING was taxfree. The Treasury consid¬ AND Oops! October’s Just Around the Corner! ered the rent taxable pay. The and the Abigail Adams Book Room minister was paid for making There was a time when second¬ hand books were rather grubby of the Department of State was speeches, in and out of church, on again in business. Five days each the dangers of communism, not for items in a musty corner of a Spring week of the year, volunteers sort, performing the ministerial func¬ Bazaar, when ancient recordings price, box, and store books which tions of his religion. The Tax Court were stacked in boxes on the rum¬ will reappear on the shelves in the agrees. That a man is ordained mage counter, and when serious Exhibit Hall for the October 6 pub¬ does not mean that he is actively savants could browse at leisure and practicing his ministry. The main buy at will. lic opening. As the books are sorted, an oc¬ thrust of Colbert's work was not Today, with a nudge, via the casional title of special interest, or teaching the tenets of his church media, by the likes of Sylvia Porter but educating people on the dan¬ and William Safire. plus an exploi¬ of unusual value, or a significant first edition, is turned over to gers of communism. tive shove from the dealers, Book Fairs have become Big Business. Mildred Bell for The Collector’s Your Income Tax, K2.05 Colbert, And one of the biggest is our own Corner. Foreign language books 61 T.C. No. 50, 1/15/74 AAFSW Book Fair, which, last are routed to Kathy Philpott for the year, handled some 100.000 books, Foreign Book Section. Betty Pot¬ HUSBANDS AND SONS WITH representing 20.000 titles, and ter supervises the volunteers, while STRONG BACKS which, come October 6, will be a they categorize and price books for PLEASE VOLUNTEER FOR strapping 15 years of age. the General Book Sales area. PICKUP AND DELIVERY OF Volunteers began work on Book While all this is going on, Mar¬ BOOKS AND BOOK Fair '75 as soon as Book Fair ’74 jorie Forbes is busy garnering CARTONS FOR THE BOOK closed its doors. Co-Chairmen stamps from overseas posts, and FAIR. FOR INFORMATION Judy Clark and Dorothy Wolfson Kyle Davila and Sue Mason, with WHEN AND WHERE CALL established a new Book Fair their Creative Art crew, are dili¬ Committee, collectors began pick¬ gently matting, framing, polishing, D.C.-Mrs. Koren: 333-5197 ing up donated books throughout cleaning, and otherwise rendering Md.-Mrs. Witt: 229-7693 the communities which make up attractive the contributions coming Va.-Mrs. Deremer: 941-5064 Greater Washington (and beyond), in for the Art Corner.

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FOREIGN SERVICE JOURNAL. July, 1975 With a goal of “at least as many Director Needed qualifications; it is largely in Egyp¬ salable books and collectibles as tian pounds with a small dollar last year," there is always a feeling The American Research Center component. The position requires that things are not coming in fast in Egypt invites candidates to apply ten months per year residence in enough: that the officer packing for for the position of Director of its Egypt. Bamako, where his or her books Cairo Center. The position will be¬ Applicants should state educa¬ will simply mildew, does not even come open some time between tion, experience, special interest in Egypt if any, as well as the names know about the Book Fair; and that January and June of 1976. the couple whose last offspring just The ARCE is a consortium of and addresses of three to five refer¬ married and who plan to run a ga¬ universities, museums and indi¬ ences. Applications should be sent rage sale are not aware of the side viduals which sponsors research in to Prof. Morroe Berger, President, benefits of contributing books to Egypt and on Egypt from ancient American Research Center in the AAFSW Book Fair—the times to the present. The Cairo Di¬ Egypt, 20 Nassau Street, Prince¬ knowledge of having helped a rector administers in Egypt the fel¬ ton, New Jersey 08540. worthy cause and the legitimate tax lowship program which provides ARCE invites applications from qualified women and members of deduction. for research by individual junior Proceeds from the annual Book and senior scholars on the history minority groups. Fair are used primarily for the and culture of medieval and AFSA Scholarship Fund and the modem Egypt, and the archaeolog¬ Breakfast Meeting Counseling Center, although the ical program of projects and expe¬ D.C. Boys' Club and other com¬ ditions to explore ancient and Political Scientists Interested in munity education projects also medieval Egypt and art history. Diplomacy will hold a breakfast benefit. The Director is the Center’s liaison meeting on Thursday, September Books, stamp collections, and with Egyptian government officials 4, at 7:30 A.M., at the San Fran¬ Ait Corner contributions may be and scholars. cisco Hilton Hotel. Retirees and arranged by calling Lois Hegin- The work schedule is designed to others interested are welcome to botham (493-9192). afford the director time for pursuit attend. Additional information of individual cultural interests. The from James S. Pacy, Department JOIN AFSA Center’s office hours are 8:30 to of Political Science, University of (OR ENCOURAGE OTHERS TO JOIN) 1:30 every day except Sunday. Sal¬ Vermont, Burlington, Vermont DUES CHECKOFF MAKES IT EASIER ary depends upon experience and 05401.

REAL ESTATE COMING or GOING You can count on Specialists In PERSONALIZED SERVICE TOWN HOUSES from AND CAPITOL HILL • GEORGETOWN W. CL A- INF. MILLER FOGGY BOTTOM • MT. PLEASANT DEVELOPMENT CTO. A Complete Real Estate Service Since 1912 202-546-2676 NEW HOUSE SALES • BROKERAGE SALES RENTALS • PROPERTY MANAGEMENT RHEA RADIN, Inc. 4701 Sangamore Road, Washington, D. C. 20016 MALTOX Phone 229-4000 Phone 229-4016 220 SEVENTH ST., S.E.

RETURNING TO WASHINGTON? The Xirest Small Hotel In Washington BEING TRANSFERRED ABROAD? Let me know your requirements and I will send you an up-to-date Francis Scott Key Hotel realty analysis without obligation. I believe my Departmental and 600 - 20th Street, N.W., Washington, D.C. 20006 • 628-5425 Foreign Service experience in administration has given me unique Mrs, I,. Warner, Manager qualifications to help you with your transition. Why Foreign Service Personnel Prefer the SALES—RENTALS—PROPERTY MANAGEMENT Francis Scott Key Hotel • It is only two blocks from the State Department ROBERT E. PECK • Offers family accommodations • One room, kitchen, dinette and bath representing • Completely furnished efficiency suites • Completely air-conditioned • Restaurant with excellent food at moderate prices Routh Robbins ROOMS Realtors One Person $15.00—Two Persons $18.00 Efficiency Suites—Double Bed or Twin Beds 1359 Chain Bridge Road, One Person $16.00 & Up—Two Persons $19.00 & Up McLean, Virginia 22101 Additional Persons $1.50 each Office: 703-356-7000 Home: 703-356-3864 I0r4 discount for w eekly occupancy

FOREIGN SERVICE JOURNAL, July, 1975 39 to being an accomplished violinist in of two employee management relations her own right. She is survived by her boards in the State Department where husband of 3217 Klingle Road. N.W.. he was respected and well-liked by Washington, D.C. and two sisters. both management and AFSA officials. Births Mrs. M. L. Lipton, of Baltimore, and Mr. Silverberg is survived by his wife, Preeg. A daughter, Terri Elizabeth, Mrs. R. L. Martin, of Galveston. June Rom. children Miriam and born to Sally and Ernie Preeg. proud Texas. Joseph, all of the home of 6914 Wilson parents at last, on April 23, in Ar¬ Carey. Reginald S. Carey, FSO- Lane. Bethesda;two sisters. Mrs. Max lington. Virginia. retired, died May 15 in Denver. Col¬ Danow, of Margate, Florida, and Mrs. Boyle. A son. John Matthew, born to orado. Mr. Carey entered the Service Seymour Brown, of Cape Coral, FSO and Mrs. John A. Boyle on in 1931 and served in Mexico, Argen¬ Florida, and a brother, Irving, of March 20, in Cambridge, Mass. tina and Brazil. He resigned as a Beaumont. Texas. Foreign Service officer in 1936 to ac¬ Deaths cept a position with the National Sugar Summers. Lionel M. Summers, FSO- Black. Elsa L. Black, wife of Myron L. Manufacturing Co., of which he be¬ retired, died on March 30. in Winter Black, FSO-retired. died May 31 at the came president. Surviving are a daugh¬ Park. Mr. Summers entered the De¬ Washington Hospital Center, in Wash¬ ter, Mrs. Elise Carey Goidl. of Man¬ partment of State in 1943 and served at ington, D.C. Mrs. Black traveled with zanillo. Mexico, and a son. James Rome. Tripoli. Benghazi, Yokohama her husband to posts in Copenhagen, Bayard Carey, of Port Richmond, and Tokyo before becoming dean of the Rome. Halifax and Ottawa in addition California. School of Foreign Affairs, ESI, in 1960. He retired in 1962 and became an Dery. Velma S. Dery. wife of FSO- Associate Political Science instructor retired Jean-M. Dery. died on May 7 in r~0 I SPECIAL at Rollins College. He authored "The Sarasota. Mrs. Dery accompanied her PQLJ SERVICES Law of Peace" in 1973. Mr. Summers husband on assignments to Rangoon is survived by his wife. Lucy Bailey and Benghazi before his retirement in Summers, c/o Mrs. William Brennen, Listings in this Special Services column are 40c 1969. In addition to her husband of 624 2101 Central Park Ave.. Evanston, 111., per word, less 2% for payment in advance, Waterside Way, Siesta’s Bayside, two daughters and eight grandchildren. minimum 10 words. Mail to Special Services, Sarasota, Florida, she is survived by a FSJ. 2101 E St.. N.W.. Washington. D.C. 20037 daughter. Mrs. Robert Jones of Wight. Alice Leonard Wight, wife of REAL ESTATE Lafayette Hill. Pa., her mother, three FSO-retired Royce A. Wight, died TOBAGO, Crusoe’s Only Isle (We can prove it). For sisters and four grandchildren. May 28 at her home in Alexandria. Rent: A charming new cottage directly on Cour- Foley. Francis L. Foley. FSO-3. died Mrs. Wight traveled throughout land Beach (Caribbean), fully furnished and May 24 in Virginia. Mr. Foley entered Europe and Asia with her husband, and equipped for four, 2 miles from championship the State Depaitment in 1950 and taught school while they lived in Tobago Golf Club. Write Bob Johnson, Box 194. served in Dhahran. Stuttgart. Munich. Korea. She is survived by her husband, Scarborough, Tobago, West Indies. Bonn. Vienna and with the Depart¬ of the home on Wakefield Drive, BEGG INTERNATIONAL. INC. is the sister company ments of Commerce and Defense. In Alexandria, Virginia; two sons. Alan and international real estate counterpart of 1973 he received the merit honor C. of El Toro. California, and Royce Begg. Inc.. Realtors, who have for so many years award. He is survived by his wife. A. Jr., of Alexandria and three grand¬ assisted FSO's to buy and sell their houses in the Elizabeth Zankl Foley of 9916 Lindel children. Washington area. Begg International specializes Lane. Vienna, Virginia 22180. in best quality real estate overseas. For your re¬ tirement or holiday home in Portugal. Spain, the Fry. Clara Coughlin Fry, mother of Caribbean, etc., consult: Begg International. FSIO Frances E. Coughlin, died on Inc.. Realtors. 1714 Connecticut Avenue. N.W.. April 27. in El Cajon, California. She Museum of African Art Washington. D.C. 20009. Tel: (202) 387-4805. accompanied her daughter on assign¬ Needs Docents ments to Buenos Aires. Rome, Flor¬ MOVING TO FLORIDA? We are specialists in The Education Department of Florida Sun Coast. Waterfront, inland and con¬ ence, Washington and Santiago. In ad¬ dominium properties for retirement purposes. dition to Frances, now with USIS at the Museum of African Art is cur¬ Dery Associates, Inc., Realtors, 624 Waterside Lima, she is survived by another rently seeking applicants for its do¬ Way, Sarasota, Florida 33581. Contact Jean-M. daughter. Mrs. Barbara E. Young of cent training program, scheduled to Dery, FSO-retired, phone (813) 349-6177. La Mesa. California and four grand¬ begin in September 1975. After the AN OZARK RETREAT. Estate Closing Forces Sale. children. 15-week orientation, docents will Gracious living at its best in Northwest Arkansas Lepperd. John R. Lepperd. FSlO-4, be required to volunteer 2!^ hours near championship golf, university, clear died in El Paso. Texas on March 12 per week at the Museum. streams, major lakes, abundant wildlife. Total while on home leave before assignment electric brick home located on 4 secluded acres. to Jakarta. Mr. Lepperd had been with Located on Capitol Hill in the Surrounded by oak trees and fresh air. Three bed¬ US1A since 1963 serving in New Del¬ first Washington residence of room suites, 3'/2 baths, mild year-round climate. hi. Calcutta, Kathmandu, Yokohama Frederick Douglass, the Museum Excellent tax structure. Furnished $150,000., and Nagoya. He is survived by his is the only major institution in the unfurnished $125,000. Brochure available. Con¬ tact Kent Candler, (executor), Gravette, Ark. wife. Katherine Hemlata Samuel; his United States dedicated exclu¬ 72736, Phone (501) 787-5103. mother, Mrs. Robert L. Lepperd of sively to the explication of African 41232 Crab Tree Court. Plymouth. art and culture. GIFTS Michigan 48170. and a sister, also of For further information, the Plymouth. Museum encourages all interested THE AAFSW OFFERS an assortment of ten infor¬ Silverberg. Louis Silverberg, FSO-re¬ persons to write Mrs. Georgetta mal notepapers with envelopes depicting five tired. died June 6 at George Washing¬ scenes from the Department of State Reception ton University Hospital in Washington, Bttker. Docent Training Program, Rooms. They may be obtained at the Housing D.C. Mr. Silverberg entered the Ser¬ Museum of African Art, 316-318 A Office. Room 1248, Department of State, for Street, N.E., Washington, D.C. $3.00, or by mail, AAFSW, Publications Sales vice in 1959 as a labor/political officer Committee, P.0. Box 8068, Washington, D.C. assigned to Tokyo where he served for 20002, or telephone 547-7424. 20024 for $3.25. All proceeds go into the Educa¬ ten years. He subsequently distin¬ The selection of applicants will tional Aid Fund. guished himself as executive secretary be completed by July 15. 1975.

40 FOREIGN SERVICE JOURNAL, July, 1975

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