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APRIL, 1971, Volume 48, No. 4 AMERICAN FOREIGN SERVICE ASSOCIATION THEODORE L. ELIOT, JR., President 17 Germany Between East and West JOHN E. REINHARDT, First Vice President C. WILLIAM KONTOS, Second Vice President James A. Ramsey

BOARD OF DIRECTORS 21 On Negotiating with Communist Powers WILLIAM HARROP, Chairman Fred Charles Ikle F. ALLEN HARRIS, Vice Chairman ERLAND HEGINBOTHAM, Secretary-Treasurer BARBARA GOOD, Assistant Secretary-Treasurer DONALD EASUM 26 On the Education of Diplomats: A Comment GEORGE B. LAMBRAKIS Paul Kattenburg PRINCETON LYMAN ROBERT NEVITT MICHAEL PISTOR THOMAS M. TRACY 35 Education in Diplomacy JAMES D. WILSON Peter F. Krogh

STAFF JAMES K. PALMER, Executive Director 39 When the Americans Came MARGARET S. TURKEL. Executive Secretary Nguyen Tan Bi CLARKE SLADE, Educational Considtant

JOURNAL EDITORIAL BOARD 42 Inspection and the CORDS Programs ARCHIE BOLSTER, Chairman James D. Phillips AMBLER MOSS, Vice Chairman CUNT E. SMITH M. TERESITA CURRIE 45 On Being Relevant and Effective JOHN F. LIPPMANN John D. Stempei JAMES D. PHILLIPS JOHN D. STEMPEI. MICHAEL P. CANNING

OTHER FEATURES: Middle East Perspective, by Parker T. Hart, JOURNAL page 4. SHIRLEY R. NEWHALL, Editor DONALD DRESDEN, Associate Editor MCIVER ART & PUBLICATIONS, INC., Art Direction

DEPARTMENTS ADVERTISING REPRESENTATIVES JAMES C. SASMOR, 295 Madison Ave., New York, 2 Editorials N.Y. 10017 (212) 532-6230 ALBERT D. SHONK CO., 681 Market St.. San Francisco. 29 AFSA News Calif. 94105 (415) 392-7144 JOSHUA B. POWERS, LTD., 5 Winsley Street. London 47 The Bookshelf W.l. 01-580 6594/8. International Representatives. 60 Letters to the Editor ©American Foreign Service Association, 1971. The Foreign Service Journal is published twelve times a year by the American Foreign Service Association, 2101 E Street. N.W., Washington, D. C. 20037. PHOTOGRAPHS AND ILLUSTRATIONS: Earl Wilson, “The Running Second-class postage paid at Washington, D. C of the Bulls,” cover; S. I. Nadler, “Life and Love in the Foreign Printed by Monumental Printing Co., Baltimore Service,” page 62.

THE FOREIGN SERVICE JOURNAL is the journal of professionals In foreign affairs, published twelve times a year by the American Foreign Service Association, a non-profit organization. Material appearing herein represents the opinions of the writers and is not intended to indicate the official views of the Department of State, the United States Information Agency, the Agency for International Development or the United States Government as a whole. Membership in the AMERICAN FOREIGN SERVICE ASSOCIATION is open to the professionals in foreign affairs serving overseas or in Washington, as well as to persons having an active interest in, or close association with, foreign affairs. Dues are $30 annually for members earning over $15,000; for those earning less, dues are $15.00. For subscription to the JOURNAL, one year (12 issues); $6.00; two years, $10.00, For subscriptions going abroad, except Canada, add $1.00 annually for overseas postage. EDITORIALS Open Letter to Secretary Macomber from the Chairman of AFSA’s Board As the Department advances further into the implementa¬ Career Alternatives tion stage of reform the AFSA Board believes it is increas¬ Outside the Government ingly important that the people affected continue to share in the process of modernization they themselves have set in motion. Advance publication in draft form of contemplated changes in the regulations should become standard practice. The participation of the Foreign Service as a whole in the reform process is the very essence of “Toward a Modem IIIM ANY of us in the Foreign Service were jolted by the Diplomacy” and “Diplomacy for the 70’s.” FSO attrition figures appearing in the articles by Malcolm This is indeed reform from within the system—the de¬ Churchill in the December 1970 FOREIGN SERVICE JOUR¬ mand of the men and women of the Foreign Service that NAL and by Samuel Lewis in the February Department their organization be modernized to help them take charge of State NEWSLETTER. Voluntary and involuntary FSO and carry out their mandate of leadership in American for¬ departures during the past decade, Department figures eign affairs. show, reached 2348. The Association, through its committee sessions, its regu¬ Many current developments suggest a growing degree lar conferences with management planners, its red border commentaries, its FOREIGN SERVICE JOURNAL forum, and its of career mobility in the broader foreign affairs profes¬ series of open meetings is working to support the widest de¬ sion. Several Reform Task Force reports discussed the bate and participation. I know that you agree with this ap¬ desirability of more in-and-outing in the professional proach; the way the Department has introduced an important ranks, of more openness in the movement of people as and controversial reform measure—the Foreign Affairs Spe¬ well as ideas. The concept of career thresholds at the cialist program—has been a good example of it. I must in FSO-5 and FSO-2 levels, at which some officers would frankness note that the institution of the centralized person¬ leave the service with honor, also underlines the signifi¬ nel system in a manner to emphasize assignments by grade cance of the availability of career alternatives. rather than by functional specialty was a quite different example. As you know, AFSA was not consulted in advance We live in a world of accelerating change and mobility, and believes that the stress upon horizontal rank rather than and the foreign affairs agencies cannot be insulated from vertical cone of specialization is inconsistent with the thrust this trend. In the case of USIA, for example, the rapidity of personnel reform and with the needs of the ’70s. of technological developments in communications and Various US agencies promulgate planned decisions and the fast evolution of media techniques suggests that more regulations in a tentative form to draw the reaction of those in-and-outing is of practical advantage to the Agency who will be affected. The Treasury Department, although and the nation as well as to individual professionals. The perhaps in a different context, frequently gives the public 60 massive reorganization of AID, which the President has days to review and comment upon proposed tax regulations. recommended to Congress, will inevitably create a period Such a process provides opportunity for unanticipated side of special career flux among AID officers. The unfortu¬ effects to be identified, for inadvertent oversights to be cor¬ rected and, most importantly, for the people affected to know nate absence of a real career system for AID profession¬ that they have been consulted and have had the chance to als over the past 25 years has led to considerable—per¬ state their views and to influence the final form of the deci¬ haps excessive—fluidity already. sion. The details of how a policy is implemented can deter¬ The Task Force did not spell out recommendations as mine whether it will be respected. to what should be done to assist officers in identifying Let me cite an example. CA-5901 very commendably pro¬ attractive career alternatives outside the government. vided that any recommendation that women or minority AFSA is disappointed that the foreign affairs agencies group representatives not be assigned to particular positions have done only rudimentary work in this field of such abroad for policy reasons must be submitted to a special review group. At an Open Forum Panel meeting on March great concern to individuals. 3, the Director of the Department’s Office of Equal Employ¬ AFSA urges the agencies to devote more attention to ment Opportunity indicated that no decision had been the subject. Meanwhile, the Association is itself preparing reached as to whether interested employees and groups could to assist its members with competent professional advice consult in advance on the regulations establishing the special about the availability of career alternatives in the private review group. AFSA believes that such advance consultation sector. A major American corporation, a pacesetter in should definitely be provided. the field, has agreed to assist AFSA in this initiative. We The AFSA Board urges the Department to issue as drafts will be making further announcements later in the spring. its Management Reform Bulletins and new regulations, specifically inviting reactions and suggestions from those af¬ The Association hopes to work in close collaboration fected. A period of 30 to 45 days should be provided for with the foreign affairs agencies. Clearly, we are not just comment before decisions are put into final implementing speaking of assisting officers who are voluntary or in¬ form. In some cases it may not be possible or necessary to voluntary “victims” of attrition. We believe that effective follow this procedure. But, assuming limited exceptions, we reform will be stimulated if State, AID and USIA feel believe that both the Department and its employees will bene¬ the breath of keener competition from other prospective fit from such an expression of confidence, cooperation and employers. The foreign affairs agencies must provide their enlightened self-interest. , In closing I wish to assure you of the continued firm sup¬ professionals with the sort of responsibility, authority port of the Board of Directors of the American Foreign and career scope which will retain ambitious, goal- Service Association for reform to improve the competence oriented men. If career satisfaction is not sufficient, offi¬ of the Foreign Service, to reinforce the effective leadership cers will want to move on and AFSA intends to assist of the Secretary of State and the Department which stands them to identify the career alternatives available. ■ behind him. ■

2 FOREIGN SERVICE JOURNAL, April, 1071 These mineral deposits make it important to find new ones.

It used to be that when an auto¬ aboard NASA's polar-orbiting company, able to afford and man¬ mobile hit the scrap heap, two Nimbus-E satellite at an altitude age the cycles of investment and things went with it. Years of service of about 600 miles. It will pinpoint research. Whether it's developing and large quantities of the earth's infrared radiation—rays emitted more nutritious food products for raw materials. with varying degrees of intensity— undernourished children. Or help¬ The years of service cannot be from basic and acidic mineral ing to find new deposits of raw salvaged. But much of the raw deposits within a 650-yard square. materials for your 1980 automobile. materials can. International Telephone and Even so, reclamation of scrap Satellite weather reporting Telegraph Corporation, 320 Park metal alone cannot meet today's Another of our space develop¬ Avenue, New York, N.Y. 10022. growing global needs. ments is aboard NASA's Nimbus IV We're helping in the discovery meteorological satellite. of new sources of raw materials. It's a daytime space camera system in polar orbit at a speed of Satellite mineral mapping 16,380 miles per hour. In a 24- ITTSERVING PEOPLE AND NATIONS EVERYWHERE One of our companies is at hour period, it collects and trans¬ work on an instrument that will mits images of worldwide weather provide a new method of mapping patterns for a complete cloud the earth's mineral formations. cover map of the earth. It will measure the heat radiated day and night from the earth's ITT and you surface. Developments like these come This instrument will be used about because we are a diversified

FOREIGN SERVICE JOURNAL, April, 1971 3 “We must regain control of the integrity of our Middle East Today thoughtful American ob¬ servers ask: How valid is a Soviet foreign policy, not leave it to the electioneering of threat in the Middle East as a pri¬ New York, California, Pennsylvania and Illinois.” mary basis for American political involvement? Is the age of Ameri¬ can diplomacy backed by muscle on the critical highways of sea power Middle East Perspective becoming a Soviet age through PARKER T. HART globally if a world power is to max¬ American default? Is America cut¬ Parker T. Hart is a retired Career imize its options and exercise them ting its military appropriations out Minister and now President of the at critical moments to reduce those of a conviction of a comfortable Middle East Institute in Washing¬ of its great adversary. It seems also margin of superiority or for domestic ton, an independent scholarly or¬ ganization founded 25 years ago. to have learned that there is no political reasons? Is our fleet becom¬ He was director of FSI, Assistant substitute to be found in delegating ing obsolete? Can 6th Fleet air¬ Secretary of State for Near East¬ power to overseas, non-contiguous craft carriers live in a Mediterrane¬ ern and South Asian Affairs, and and especially Arab clients, al¬ an shadowed by Soviet surface-to- Ambassador to Turkey and Kuwait. surface missile craft and submarines From an address delivered Octo¬ though its policy is to perpetuate ber 30, 1970 to the American For¬ Arab dependence on Soviet weapon¬ and Soviet land-based air power in eign Service Association. ry and political support. It learned Egypt? I am concerned that our this lesson when we landed in Leb¬ defense posture in the Mediterrane¬ anon in 1958, in the face of Nas¬ an has become a casualty of drift T HE Middle East Institute is a ser’s attempts to turn Lebanese rather than planning. For years we forum for ideas. We are not, by army guns against our troops and have disregarded Supreme Allied charter, purveyors of a point of view Khrushchev’s threats to make mol¬ Commander Europe (SACEUR) or a program of action. So what I ten coffins of the 6th Fleet; when we force goals as unrealistic, meaning say is strictly on my own and my demanded withdrawal of Soviet mis¬ rather that we had to rationalize the motivation is the long-term security siles from Cuba in 1962 and mobil¬ conclusion that it was impolitic to go interest of the United States. ized to land on the island; and when after the money to meet them at the The first perspective I would we sent an air unit to Faisal of expense of something else. At the mention is that the USSR seems to Saudi Arabia against a Soviet- same time we have observed a dra¬ have learned from us that a mighty supported Nasser in the Red Sea matic build-up of Soviet striking navy and air force must be deployed and Yemen in 1963. power on NATO’s southeast flank.

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FOREIGN SERVICE JOURNAL, April, 1971 The second perspective is that we supply heavy weapons to Israel be¬ later Israel wiped out most of that have now abandoned the last shreds cause we really believed the power equipment (with British and French of a fifteen-year policy (1950-1965) balance was threatened to Israel’s help) in the surprise strike at the that the United States not become a disadvantage, because we were in¬ end of October 1956. supplier of major weaponry to the tent on showing the USSR and The USSR then rebuilt the Egyp¬ immediate antagonists in the Arab- Egypt that we meant business or tian war machine for ten years and Israeli quarrel, i.e., Israel, Egypt, because for domestic reasons it was saw it smashed again along with Jordan, Syria and Lebanon. politic to accept the Israeli argu¬ Syria’s and Jordan’s by Israel alone, We cracked that policy in 1962 ment? Did we believe Israel’s securi¬ in 1967. Again the USSR rebuilt when we agreed to sell Hawk mis¬ ty was synonymous with our own or Egypt’s and Syria’s war machines. siles to Israel after a four-year cam¬ was a part of it? My concern is that Recently, it was announced the paign by Israel’s supporters which the mix in this cocktail contains a United States had decided to sell up many of us resisted just because decisive domestic political ingredi¬ to two hundred M-60 tanks to Israel missiles were missiles, as we see ent, rationalized by some partially and an unspecified number of addi¬ today. Then in 1965 when we si¬ valid strategic and tactical argu¬ tional Phantoms. In the press it was multaneously cut off arms to our ally ments, rather than that the strategic explained that the decision was an Pakistan and to its adversary and tactical arguments in their full answer to the Soviet-Egyptian refus¬ India, a neutral, we agreed to sell integrity actually prevail. I hope this al to rectify violations of the cease¬ Skyhawks to Israel, actually deliv¬ is not the case, but my experience in fire and remove new SAM-3’s from ered after the Six Day War of 1967. the Department obliges me to be¬ the proscribed Suez Canal area. Later, in President Johnson’s final lieve that it is. This was interpreted as our “rectifi¬ months in office he decided to sell Soviet arming of certain eastern cation,” opening the way for Phantom F-4’s to Israel on credit. Arab states is not new. It is not renewal of talks with Ambassador At that time all intelligence assess¬ generally realized that Nasser Jarring. We are now, therefore, the ments had been that Israel remained turned down a US grant arms offer major supplier to Israel of one of the for the medium term far stronger in late 1954 because he would not most potent items of conventional than all her Arab neighbors togeth¬ sign a standard non-political aid strike weaponry in our arsenal. Our er. In fact this had been our assess¬ agreement. The Soviet Union then answer to surface-to-air missiles is ment for many years. made its offer in March 1955 and not more surface-to-air missiles for The question is whether we took started its massive armament of Israel but the means to obliterate these and more recent decisions to Egypt in September 1955. A year them, and a good deal more, within

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FOREIGN SERVICE JOURNAL, April, 1971 7 Egypt itself. Israel is not an ally, nor Turkey which McNamara said could hard to do with conviction. After a Egypt an enemy of the United not be met. He offered $675 million year of persuasion Turkey reluctant¬ States, yet we are drawn by this for five years, or $134 million plus, ly accepted the lowered ceiling with game steadily into a polarization per year, a big decline from earlier some adjustments in the allocations that for over a decade we worked levels. to its services. Within one year hard to avoid. The Turkish navy and air force thereafter McNaughton was killed in The third perspective is that as were particularly short changed. The a plane crash and Congress cut all we make available these powerful Turkish standing army of 400,000 aid, economic and military, by one- weapons to Israel we are letting our men, with a considerable back-up in third. Turkey’s yearly allocations military assistance level to Turkey mobilizable reserves, is the rock of declined to less than $100 million slip far below agreed force goals. NATO’s southeast wing, the second total per year. The newest plane Turkey has is the standing ground force in SACEUR’s I really had to earn my pay, when F-5, the first squadron having been command. The Turkish air force having told Prime Minister Demirel delivered when I was there between and navy are small but very effi¬ that the McNaughton plan must be 1965 and 1968. It is an all-purpose cient and have been warmly friendly accepted, I now had to inform him aircraft of the kind that suits flexible to America. McNaughton assured that with McNaughton’s untimely defensive or ground support require¬ the Turks that these services could death the plan itself was a casualty. ments but it does not possess the remain small, because the United Not only could we not meet it, we speed and the long-range attack States and NATO could deploy ade¬ could not, in fact, even propose its capability of the Phantom. Tur¬ quate air and naval strength of its full restoration to Congress. We key’s Military Assistance Program own to Turkey’s defense on immedi¬ would do what we could, but could (MAP) cannot afford the Phantom, ate notice. The Turks, who know not equal the McNaughton figure. yet for deterrent power against the NATO’s resources, disbelieved this These were my instructions. USSR it should have it. and so did some of our chief Air Now anti-Americanism among In 1966, Assistant Secretary of Force officers in Europe. The argu¬ students and faculty of the universi¬ Defense, John McNaughton, ment went on for a year over the ties of Turkey exists and it is bother¬ brought to Turkey a proposal that size of our grant and the distribution some; but what is going to happen to was virtually take it or leave it. It proposed between the services. our relations with the Turkish army was a program of MAP levels set by It was my job to press the (the power behind all Ankara gov¬ Secretary of Defense McNamara, McNaughton plan because it was a ernments) and its air force and navy well below SACEUR force goals for final Washington position. It was when—as a Turkish friend tells me

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FOREIGN SERVICE JOURNAL, April, 1971 9 —a further extensive cut has now in a futile attempt to re-democratize European substitute for its deter¬ occurred because of our Cambodian it—or, perhaps more accurately, to mined manpower to defend the campaign. If we have made hun¬ pacify elements of our Congress. I southeast wing of NATO. Behind dreds of millions of easy military am glad we have now restored mili¬ the Turkish forces stands a great credit available for Israel, the ques¬ tary assistance. Our objections to it military tradition. tion has to be put whether we have were as irrelevant to NATO defense Prosperous Iran has no such mili¬ decided that Israel has a more im¬ as were our long-standing objections tary tradition, but its forces are portant role in western defense out¬ to Franco, with whom we have re¬ modernized and its officers have had side NATO than Turkey has within cently signed a necessary and very American advice and training for it. Or was the decision made on expensive base agreement. twenty-five years. All three countries grounds of domestic political expedi¬ Furthermore, while I hold no have a history of repeated aggres¬ ency, on the eve of an election? brief for dictatorships anywhere, I sion from the North. All three have How can Israel be a replacement for submit that modern Greece has sel¬ a very deep-rooted sense of nation¬ Turkey when its forces have to be dom been the model of democracy hood and a motivation to retain committed against Arabs with whom we expect of it by a misreading of American support. This was the de¬ we should have at least tolerable classical history; and had we not fense zone which the United States relations if NATO is not to be had a dictatorship of rather smart successfully built in the containment outflanked? military thinkers in November days of the 1950s and which the In the Middle East as a whole the 1967, Greece would not have been USSR has been trying to dissolve strongest region is the Northern able to agree to withdraw forces ever since. Unable to do so, it leap¬ Tier. Greece, Turkey and Iran are from Cyprus and thereby prevent a frogged over it. not only allied with us but are war with Turkey and the destruction We had also tried for a back-up western oriented. Greece, under a of the southeast wing of NATO. defense zone, the Arab hinterland to dictatorial anti-communist military Turkey in its single-minded loyal¬ the Northern Tier. For a while we government, has antagonized the ty to Ataturk has been struggling to succeeded, but the Arabs have no liberals here and in NATO by police “go West” for nearly fifty years and maturity of nationhood, only a state methods and has a bad name is entering the transition stage to strong feeling of reaction against as the result of propaganda by the Common Market membership. Western, not Soviet, encroachments. Greek left. Without benefit of much oil its We therefore ran into two contradic¬ Under pressure we long suspend¬ growth rate in real terms is 6 to 7 tions: 1) Arab anti-imperialism di¬ ed military assistance to that country per cent. There is no American or rected against western interference;

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FOREIGN SERVICE JOURNAL, April, 1971 n and 2) resentment over our support degree in polarizing this area of the additional buffer territories, prepar¬ for Israel in an Arab land over the Arab world against the United ing for some expansion, great or bitterest Arab objections. Not only States, a trend resisted successfully modest, at Arab expense. did the Arabs have no history of by Eisenhower and Kennedy but No Arab can negotiate a second aggression from Russia but cher¬ allowed since then to proceed. It has expansion of Israel and as the Meir ished a desire for its active help. been an irregular polarization, with Government knows this, thoughtful This dictated neutralism and an end ups and downs, but a definite one Israelis are today questioning the to bases in North Africa and the for those of us who lived the history validity and sincerity of the Meir Arab East. Helping neutralism was of this region. It is not in our inter¬ Government’s path toward peace. our Tripartite Declaration of 1950 est to let it proceed. No doubt all Israelis want peace, with Britain and France pledging Now all is not easy for the USSR, and almost to a man all reject the help against aggression and attempt¬ despite all its successes. It has no de-Zionization of Israel and other ing to restrict an arms race in the such strength nor political loyalty at demands for national hara-kiri by area of the Arab-Israeli conflict. In its side in the Middle East as we the Palestine Liberation Organiza¬ both respects it failed, and the have even today in Turkey, Greece tion. But increasingly these Israelis USSR broke the control by its 1955 and even Iran. Of these three states see a confusion in national motives arms agreement with Egypt. Soviet there never has been doubt that the as expressed at the top, a confusion leaders thus began a new relation¬ true rock is Turkey and that it must based on fear engendered by Israel’s ship with the Arab world and lost no be handled with special care, as time in initiating efforts to soften up vital to our strategic interest. small size and the consequences of the Northern Tier by offers of Now for a few thoughts on the taking on over one million Palestini¬ bilateral aid to Turkey and Iran. Arab-Israeli struggle. Looking at the an Arabs with a high birth rate. The dilemma is very discomfiting, for the Today we see a Soviet Union with area with as dispassionate an eye as bases or facilities on, and near, the we can, we could say that if indeed territory looks good but the demo¬ Suez Canal and at Aden. It is anx¬ Israel were at peace with its neigh¬ graphic problem does not. To drive ious to open the Canal to link up bors, its remarkable military ma¬ out these Arabs would be to im¬ with its new Indian Ocean fleet and chine could be a useful adjunct to measurably damage Israel’s image it behaves very much as did the NATO. But Israel’s strength is not and to antagonize those who, like us, United Kingdom of pre-1956 days, at our disposal. Its quarrel weakens want no further aggravation to a watching over a life-line of empire. our position and at the same time it long-standing, festering and expen¬ It has succeeded to a remarkable draws on our strength to hold on to sive refugee problem. Therefore, the Some things should be World wide kept in the family. erty has to be sold to raise the cash needed. all risks coverage Will this happen to your fami¬ ly? It won’t if you plan now— Like with Living Insurance from underwritten at Equitable. That way, you can help your estate. make sure your family will have the necessary cash to meet estate Lloyds of London obligations. And, they’ll receive the full value of your estate. To find out more about the ad¬ Unless you plan ahead, your fami¬ vantages of Equitable insurance in ly may get a lot less of your estate estate planning, mail the coupon. than you think. Or call The Man from Equitable. For example: an estate valued He has the training and experi¬ NO CLAIM BONUS TOO! at $300,000 can be reduced by as ence to work with your attorney much as $84,000 in taxes and ex¬ to protect your future—and your penses. And often, valuable prop- family’s. ! 1 | Richard C. Blalock For very many years U.S.O.I.B. Ltd., have I (Foreign Service Officer—Retired) insured members of the Foreign Service. Suite 404, 1660 L Street, N.W., Washington, D. C. 20036 First class service and claims settlements. Phone: 223-6350 Enquiries to: Name UNITED SERVICES OFFICERS’ I Address I INSURANCE BROKERS LTD. | City |

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Social Security Number economic and human existence. . ..” Address ... “‘This is one of the decisive errors committed by our Government. For here lies the key that would have (Continued on page 58) Paul Masson Vineyards, Saratoga, Calif. © 1970.

14 FOREIGN SERVICE JOURNAL, April, 1971

The Foreign Service of the United States once had a uniform that looked like this.

Instructions to Diplomatic Officers included:

The Department of State prescribes no fixed rule as to the offices for the transaction of business of a mission. The general custom is to set apart convenient rooms in the representative’s private residences, to be used wholly for the business of the mission and for its archives and property. . . . Considerateness should pre¬ vent the incumbent from entering into engagements in this respect which may be inconvenient to his successor. The text proper of all dispatches to the Department of State should begin upon the third page of the sheet and be written on every page thereafter until the signature is reached. When the dispatch is typewritten, however, it should be on alternate pages. The following is established, determined and made public as the maximum amount of time actually necessary to make the transit between each diplomatic post in the countries named and the city of Washington, going or coming: Argentine Republic (Buenos Ayres), forty-five days. Bolivia (La Paz), fifty days. Colombia (Bogota), thirty-five days. Greece (Athens), thirty-five days. Persia (Teheran), sixty-five days. No advance of salary or allowance in the nature of an outfit is made either for a diplomatic officer or for his family, nor is transportation furnished by the Government. Foreign newspapers, not exceeding three in number, are allowed to a mission and are a charge against its allowance for con¬ tingent expenses. No allowance will be made to diplomatic representatives for expenditures for the following objects: Repairs, carriage hire, foreign flags, telegrams, or for copying or translations.

Times have changed and the American Foreign Service Association and the Foreign Service JOURNAL have changed with them. The uniform has changed and so has the life-style of the Association and the format of the JOURNAL. The Association supports today’s Foreign Service in an effort to make the Service better in all ways—for all its members. Support your Association now. “The fate of Germany was thus to be split between East and West, exploited and caressed by each in its own way and denied the right to decide its own fate.” GERMANY Between EAST and WEST

WW W ITH the end of the Cold War JAMES A. RAMSEY has lain in the fact that they became in Europe in sight, the question of the James Ramsey, in the Foreign Serv¬ the subject of this experiment in role of Germany has again come to ice from 1949 to 1964, is now ac¬ ideological transformation. Their the fore. For the past twenty years tive in the East-West trade picture. position has been bearable in the this has been, despite the tensions He works together with firms inter¬ sense that each Germany could ested in development of the Eastern involved, a relatively simple matter. European market. A former mem¬ count on a sympathetic hearing from The country was conveniently di¬ ber of the Editorial Board, Mr. the senior partner in matters affect¬ vided, with each half having become Ramsey has been a frequent con¬ ing its economic well-being and sta¬ solidly anchored in a respective East tributor to the JOURNAL. His most bility. It has been less bearable in and West sphere of influence. Only recent article was "Report from Vienna.” that the senior partner established West Berlin, a leftover from the various rules of conduct and insisted brief days of four-power harmony, on their observance. The fate of has been the object of occasional Germany was thus to be split be¬ crises. Otherwise, each side has tween East and West, exploited and learned to live with a situation caressed by each in its own way and which was, to be sure, not entirely denied the right to decide its own satisfactory, but nevertheless had fate. generally clear contours. The new German Ostpolitik has divided, and each major Cold War THE period at the end of World now cast its shadow across this set¬ protagonist eventually had reason to War II was characterized by a lim¬ tled pattern of coexistence by con¬ be satisfied with the decision to con¬ ited Soviet-American collaboration frontation. Without changing the centrate on developing the material in respect to Germany which had contractual relationships between it had at hand. developed out of common wartime the parties, a new element has been interests. Soviet reconstruction needs added, a torrent which is now IN time, the United States came to were so great that it was in their threatening to overflow the dikes so regard the new order of things as an interests to have this collaboration laboriously erected to keep the river acceptable if not natural state of continue, and in some respects it did flowing in two separate channels. affairs. It organized its military and for a time. However, the aggressive The reasons for this development political presence in Europe on the behavior of the Russians and their are manifold. They have their roots assumption that there would be a economic demands, particularly for in the early post-War period when continuing “Communist menace,” participation in control of the Ruhr the German policies of both the that the most one could hope for industry and the $10 billion repara¬ Soviet and the West were basically would be provisional arrangements tions claim, which would have had empirical in nature, characterized by allowing an uneasy coexistence until to be largely an ultimate American a groping for the most effective the day when the rulers in the East financial responsibility, estranged means of utilizing to maximum ad¬ would finally see the light of day and alienated the US. vantage the millions of Germans and adjust their system to the reali¬ The American decision to recon¬ each had under its control. Very ties of life. stitute a German state in the West early in the process, the United The trouble with this theory was marked a milestone in the post-War States found the right combination. that the East had a similar one, only relationship with the Soviet Union. Its solution was so eminently suc¬ in reverse, insisting with Calvinist The Russians, who had suffered cessful that a similar example was obduracy on the inevitable perdition enormous casualties and had almost called for in the East. In this way, of its non-believing Western neigh¬ forfeited their national existence in the country came to be permanently bors. For the Germans the difficulty four bitter years of war with the

FOREIGN SERVIOE JOURNAL, April, 1971 17 Germans, viewed this development as posing a major threat to their security in the years to come. Their immediate reaction was to search for an opportunity to close the most serious breach in their front against US power in Europe, namely Berlin. They found a pretext for action in the 1948 currency reform which they utilized to attempt a take-over by severing the city’s ties to the West. While the Berlin Blockade was unsuccessful, the policy of self¬ isolation of Soviet-controlled Europe instituted by Stalin was perfected and continued until his death. In human and political terms it was a nightmare, but economically not un¬ successful since it provided a base for many of the subsequent industri¬ al achievements both in the USSR and Eastern Europe. At the same time, it laid the foundation for struc¬ tural deficiencies in the economies of these countries, which, as we shall see, were eventually to become of rather crucial importance in an East-West context. With the passing of Stalin, things began to change. There were first internal developments, including several amnesties and a diminution of police power in the society. These were followed by some accommodat¬ ing steps in the foreign policy field, chief among them the evacuation of the bases in Finland, the conclusion of the Austrian State Treaty, and the 1955 Geneva Heads of State Conference. The US response to these actions was a highly cautious one, i.e. it displayed its willingness to take part in negotiations and come to agreements while at the same time continuing to build its military ring around the USSR and developing sophisticated surveillance systems. By this time both West and East Germany had become full if not equal partners in the respective alliances and shared in the interna¬ tional decision-making process of each side. In retrospect, it appears that the German question might have reached a de facto settlement on this uneasy basis had it not been for Berlin. The refugee drain through the city was bringing about the economic ruin of a key link in the chain of satellite states the Russians had erected. At first Khrushchev tried to resolve the situation by

18 FOREIGN SERVICE JOURNAL, April, 1971 offering his free city proposal, and own social and political order. ers feel themselves free to ignore as when that failed to gain acceptance, Whatever the shortcomings of the the occasion may seem to require. It by having the Wall erected. This German Democratic Republic, the is true that the other side would in action led to a major international fact remains that it has been raised this case like to have one to legalize crisis in which Russians and Ameri¬ in less than twenty years time from the situation which has been cans faced one another with martial a Russian reparations zone to one of created, but it is also clear that the intent. the ten foremost industrial powers in Russians and Poles are fully The lesson of the 1961 Berlin the world. Aside from the ideologi¬ prepared to live without it as they crisis would appear to be that both cal hindrances, reuniting two states have for the past quarter century. sides learned where the limits of as different as West and East Ger¬ mutual provocation lie. If the Ger¬ many would constitute a problem of IF reunification and revision of the man problem could not be settled by major dimensions. It has been diffi¬ Eastern borders are dead issues, negotiations, neither could it be cult enough to integrate the econo¬ West Berlin is one that is still very resolved by force. Beyond a tacit mies of countries with similar sys¬ much alive. It is essentially Berlin recognition of this fact, however, tems in the Common Market. which both prevents the establish¬ each side has had a divergent con¬ While the division of Germany ment of a definitive relationship be¬ cept of what is allowed. The West, was primarily a Soviet responsibili¬ tween the two German states and being in a basically defensive posi¬ ty, it was condoned by the West, remains a bone of contention be¬ tion, has less opportunity for maneu¬ including the United States, which in tween the Russians and the West. ver than the East which has set itself general preferred to leave things the The weakness of West Berlin is as a minimal goal the neutralization way they were geographically, and, that it is a highly dependent orga¬ of West Berlin. by insisting on such unattainable nism. Although it has more people goals as free elections, actually fur¬ and far greater resources than many A s the Cold War began, the Ger¬ thered the split. It is also worthy of independent states of the world, it mans saw many advantages in a note that Adenauer himself was dis¬ relies for its security on three foreign partnership with the Americans. inclined to see any progress made in powers, for its economic viability on Most importantly, they were prom¬ the reunification issue. As de Gaulle heavy subsidization by Bonn, and ised material benefits and a reinte¬ has noted in his memoirs: “. . . with for its political stability on the for¬ gration into at least a part of the this Catholic Rhinelander, head of a bearance of the rulers in Pankow world community. Also, from a traditionally democratic party, I and Moscow. West Berlin is thus by characteristic misunderstanding of think I perceive an attitude that the any objective standards a highly vul¬ the Russians, they were prone to present-day Federal Republic could nerable creation of post-War Euro¬ conclude that the only way they possibly experience a certain dis¬ pean politics. That it has survived at could reunify their country and gain comfort were it to absorb without all is due as much to the determina¬ back some lost territory was by transition the Prussian, Protestant, tion of its citizenry as to the protec¬ amassing enough strength to force and Socialist complex of the severed tive support it receives from outside. the USSR to come to terms. territories.” The essential question is what the The reintegration, eventually in¬ Apart from the issue of reunifica¬ future of this political anomaly is to stitutionalized through NATO, the tion, post-War West German foreign be within the context of a European Common Market and other supra¬ policy has been burdened with other detente. The present attitudes of the national agencies, has worked well illusions which have been only slow¬ opposing sides are clear. The East from the Western point of view. It ly expiring. In part they have per¬ Germans, backed by the Russians, has eliminated a dangerous power sisted because of a natural human consider Berlin an administrative vacuum in Central Europe while reluctance to believe that the brutal and territorial structure under tem¬ tying Western Germany closely into changes wrought by World War II porary foreign control located within a community of states with rep¬ were permanent. In part also they the confines of their sovereign juris¬ resentative forms of government. have continued because others have diction. The West Germans consider The one thing that it has not done found it useful for their own pur¬ it a symbol of the unity of Germany and never could do was to bring the poses to encourage their cultivation. and a de facto member state of the Soviets to an accommodation. Here The seeds of this unhealthy bloom Federal Republic. From the point of the Germans have wasted much were sown in September 1946 in view of the Western Allies, the city valuable time by not realizing that Stuttgart when Secretary of State has become largely a prestige ques¬ only they themselves could achieve Byrnes announced in referring to the tion in their continuing confrontation the latter goal. Yalta Agreement that the extent of with the Russians. In the matter of reunification, the the area to be ceded by Germany in Each of these viewpoints has long delay in coming to grips with the East “must be determined when something to be said for it. As one the situation left by Hitler in the the final settlement is agreed upon.” of the successor states of the Third East has played into the hands of Aside from the reality of Russian Reich, the German Democratic Re¬ the Russians. Another German state and Polish possession of these lands, public can make a claim to territory has in the meantime been fully es¬ there is really no necessity to have a which has never been detached from tablished on the European scene. treaty to end a war which was begun it by treaty. Against this are the This state, like other former parts of without a declaration. A treaty is social and economic realities which the Reich such as Austria and Swit¬ basically an instrument of customary identify West Berlin closely with the zerland, has its own identity and its international law which major pow¬ Federal Republic. To preserve the

FOREIGN SERVICE JOURNAL, April, 1971 19 stability of their own position in Poland, Czechoslovakia, and the So¬ Federal Republic’s leading East- Germany and Europe, the Ameri¬ viet Union are for Western Germa¬ West trade figures, Otto Wolf von cans, British, and French cannot of ny a natural market which is all the Amerongen, in testimony before the course permit themselves to be de¬ more attractive in that it is not sub¬ Congressional Joint Economic Com¬ prived by unilateral action of their ject to the cyclical fluctuations com¬ mittee in December 1970. In fact, rights in the city. mon in the West. The recurrent some projects, such as the Kama Over the past twenty-five years, economic difficulties in the United truck plant which was the cause of Berlin’s role has been exaggerated States, as exemplified by the current Pentagon displeasure, are of such out of its historical importance. In recession, represent a potential dan¬ size and volume that they automati¬ actual fact, it was the capital of a ger of some magnitude for a country cally involve deliveries by a multi¬ united Germany for only the three- as export-oriented as the Federal national consortium of firms as well quarters of a century from 1871 Republic. as financing by credit institutions of to 1945. Nevertheless, during that Throughout almost the entire a number of countries. time it developed into a major Khrushchev period the Russians had The significance of the events sur¬ cultural and economic centre of the been trying to interest the United rounding the Ford visit and the sub¬ German-speaking part of Europe. It States in an economic collaboration. sequent German-Soviet agreement is this role which West Berlin has The official American response was lies in the fact that the Common sought to preserve throughout the either a negative or disinterested Market and West Germany, as its post-War period and which provides one, although many US firms gradu¬ strongest industrial member, now the key to its future. Its problems ally moved into the market through are in a position to capture the cannot be solved by mutual chal¬ their presence in Western Europe. major share of Western trade with lenges which pit one adversary The current Soviet leadership con¬ the East in the 1970s. American against another periodically in crisis tinued to manifest a similar interest firms will participate meaningfully in situations. Nor can a military um¬ which culminated in the visit of this commerce to the extent that brella held by outsiders permanently Henry Ford to Moscow in 1970. they have a presence in the Com¬ guarantee the viability of its econo¬ The subsequent rebuff of Ford by mon Market or in countries which my and society. If West Berlin is to the Pentagon would appear to mark are associated with it. survive, it must discard the lingering a turning point in Soviet economic malaise of its imperial past and be¬ relations with the West. Without ex¬ DESPITE the misgivings expressed come a meeting ground for East and aggerating the parallel with 1939, it in various circles, the new German West, a place where new concepts can be noted that in both cases there Ostpolitik is fundamentally sound, for intra-European relations can be were simultaneous negotiations as both in its concept and execution. It developed and applied. The city well as a compulsion to come to an both cleans up the past in a decisive must be taken out of the Cold War agreement. manner and opens perspectives for context and placed into a new one The economy of the Soviet Union the development of normal and which will give it Continental signifi¬ has long-term needs requiring ur¬ profitable relations between both cance. Only by becoming a bridge gent attention, largely as a result of halves of Europe in the last third of rather than a barrier can Berlin its autarchical orientation in the past the century. The United States, as a cease being the problem it has rep¬ and the failure to apply sound mar¬ quasi-European power, should wel¬ resented for so many years. keting criteria. The situation has come this long overdue German ini¬ reached the stage where the USSR tiative which can benefit all sides if THE current German-Soviet inter¬ cannot modernize, adapt, and pro¬ properly carried through. est in clearing up the legacy of the gress in the absence of greater cross¬ In the context of inter-state rela¬ past has a strong economic motiva¬ fertilization with the more advanced tionships, it is very difficult to tion. Parts of the East, especially countries of the West. The problem achieve concessions where the factu¬ is made more acute by the fact that al situation has already been de¬ the economies of most of the cided by history. In the absence of Eastern European states are in superior power and a willingness to much the same condition, as recent use it, a rectification of an existing events in Poland have demonstrat¬ and strongly-defended territorial or ed. In view of their own needs, the political arrangement by one side is Russians are hardly in a position to in fact an impossibility. As in so give these other states the help they many human quarrels, the solution require. lies in creating a different situation The situation points to extensive of fact, in this case one that will business opportunities in the 1970s, serve as a challenge for economic which the West Germans, having and political cooperation. It is time long been present on the scene have to take Germany out of the Cold been quick to see. German industri¬ War atmosphere in which it has alists are careful to point out that lived for the past quarter-century they wish to share these opportuni¬ and to place it in a new context ties with their Western partners, es¬ where the unique abilities of its peo¬ pecially US industry, a contention ple can be of service to both East which was reiterated by one of the and West. ■

20 FOREIGN SERVICE JOURNAL, AprU, 1971 .. not only flexibility but also perseverance, not only conciliation but also counter-offensives, not only understanding for the opponent’s fears, but also understanding of his bad sides.” On Negotiating with Communist Powers

ability of the United States FRED CHARLES 1KLE interpretation or analysis of the op¬ to negotiate with Communist gov¬ Fred Charles lkle is known main¬ ponent’s spoken and written word. ernments is obviously of great im¬ ly for his contributions to strate¬ As a target of our attention, the op¬ portance, even though new agree¬ gies for reducing the risk of war. ponent’s verbal output should be ments are likely to be few and far His work has covered analysis of contrasted with underlying forces between. The opportunities for what war destruction can do to that motivate his government (as cities, how nuclear war could come American diplomacy are circum¬ by accident and how nations nego¬ well as the forces that do motivate, scribed to a large extent by the tiate. He spent 1962 and ’63 at the or ought to motivate our own gov¬ depth of conflict and the restricted Harvard Center for International ernment). These more basic forces common interest between the United Affairs, where he wrote "How Na¬ include the domestic interaction and tions Negotiate” (Harper & Row, competition between officials and States and the principal Communist 1964). Later, he taught policy powers, as well as by the manner in analysis as Professor of Political their agencies, military estimates which Communist governments tend Science at MIT. A study he began and calculations that influence top to conduct their diplomacy. Yet, at MIT led to his book "Every decisionmakers, and economic pres¬ some leeway is left for American War Must End” (Columbia Uni¬ sures and incentives. By contrast, versity Press, 1971). In 1968, he the written and spoken word in ne¬ diplomacy to manage negotiations returned to Rand to head the more or less skillfully, even though Social Science Department. gotiations with Communist countries the objectives and tactics of our op¬ consists largely of repetitious rheto¬ ponents create enormous difficulties. ric. The manner in which we negoti¬ to bear on a subject, in terms of Two factors might explain why ate with Communist powers is con¬ man-hours the bureaucracy can de¬ the State Department and other ditioned by many factors, such as vote to an issue, and of course in agencies bestow so much tender care the training and style of American terms of budget dollars. Hence, any and scrutiny on all the written and officials, the way in which our gov¬ suggestion that our government spoken words that Communist coun¬ ernment is organized (permitting should do more of some particular tries tend to inject into negotiations. many agencies to operate like inde¬ activity ought to be coupled with the First, there is a widespread notion pendent fiefs), and the influence of realization that another activity will that Communist governments an¬ our news media (with their narrow have to be reduced. At least this is nounce important changes in their focus on today’s events and high true at a time when there are strong negotiating position through subtle tolerance for inaccuracy). None of pressures to curb the size of the modifications in rhetoric or through these internal factors can easily be federal budget and the number of slight nuances in the wording of changed at will, but some improve¬ government employees. According¬ their proposals. It is not clear why ment might result from a better un¬ ly, it may be more constructive first this notion has gained such curren¬ derstanding of how they influence to suggest possible savings before cy. A study would show that chang¬ and constrain our conduct of negoti¬ recommending new efforts. Savings es in Soviet negotiating positions, ations. in this context mean primarily time particularly important ones, were and energy expended by govern¬ announced to us almost always T HE resources of the United States ment officials. loudly and clearly and usually in Government are limited, in terms A type of activity that could stand quite short statements, while the un¬ of intellectual energy and atten¬ trimming in our conduct of negotia¬ dulations in wording and daily tion that senior officials can bring tions is the effort devoted to the rhetoric were misleading as often—

FOREIGN SERVICE JOURNAL,, April, 1971 21 or perhaps more often—than serv¬ nal State Department memoranda ing as harbingers of new Communist is likewise devoted to the verbal positions. output, particularly in negotiations For instance, in the Korean war, with Communist countries. when the Communists were ready to One would like to see the results begin armistice negotiations, Soviet of a time-study as to how the State Ambassador Jacob Malik clearly Department’s staff allocates its and simply said so in the United working horns. What percentage is Nations, and there were no precur¬ focused on words as such? (E.g., on sors to his announcement to be dis¬ such questions as: Does the recent covered between the lines of Soviet Soviet proposal show some flexibili¬ or North Korean propaganda state¬ ty? Did the Polish Foreign Minister ments. Indeed, prior to the Commu¬ by saying “cannot” instead of “will nist proposal for armistice talks, all not,” indicate that our proposal was the rhetoric and verbiage from Chi¬ unacceptable? Is last week’s editorial na and North Korea pointed in the in PEOPLE’S DAILY milder in tone?) opposite direction: the North Kore¬ By contrast, what percentage of ans and Chinese kept demanding working time is devoted to incen¬ the total withdrawal of UN forces tives and more basic forces (which from all of Korea and the ouster of may or may not be reflected in these the South Korean Government. Our words)? For instance: military pres¬ officials could learn nothing relevant sures (have the troops on the Sino- Soviet border increased?); internal to the armistice talks by reading conference illustrate how the con¬ motivations and conflicts within the Kim II Sung’s demands for “the centration on tactical detail can opponent’s bureaucracy (is the Pol¬ complete liberation of all territory of divert the United States Govern¬ ish Army facing a budget cut and our motherland” and the “complete ment from the main purpose of ne¬ putting pressure on the Foreign destruction of the American ag¬ gotiations.* gressors and the remainder of the Ministry?); and economic incentives Paradoxically, despite the fact Syngman Rhee puppet forces.” (is China stepping up its purchases from Western Europe?). that the State Department and other Again, after two years of these government agencies bestow so An important qualification must armistice talks at Panmunjom when much care on the vast verbal output be added here. The point about the Communist side in the Korean of Communist governments, we exaggerated attention to rhetoric war was finally ready to end the have been careless in adopting the does not apply to negotiations be¬ fighting, they said so unmistakably; language of our opponents and their tween Communist governments nor whereas most of their prior rhetoric definitions of conflict issues in many to discussions within Communist added little to our information about cases where this was clearly to governments. For these domains it the Communist position. Similarly, our disadvantage. Or perhaps this is does pay to look for slight changes when the Soviet Government was not so paradoxical. It might be pre¬ in language and to search out the willing to finalize and sign the Aus¬ cisely because our officials spend so hidden meaning of Aesopian expres¬ trian State Treaty, it communicated much time on the opponent’s rhetor¬ sions. Furthermore, the fact that this change in its position to the ic that they eventually use his paying attention to words shows rap¬ Western powers and to the world, words—-first in quotation marks, idly diminishing returns does not swiftly and clearly. later without. mean that one can afford entirely to A second reason why such dispro¬ Communists have always culti¬ portionate attention is being paid to ignore what Soviet or other Commu¬ nist diplomats have to say. vated the use of slogans, both for words and rhetoric may be the spe¬ domestic purposes and for the pur¬ cialization of the State Department, pose of what might be called a “se¬ which tends to emphasize the verbal RELATED to the excessive atten¬ mantic infiltration” of Western coun¬ aspect of foreign relations. It would, tion to ephemeral rhetoric is the tries. That is to say, they try to of course, be inaccurate to say all tendency to get lost in tactical de¬ make us use their labels of conflict that is left for the State Department tail. The way in which negotiations issues, so that their definition of is the government-to-government with Communist powers are man¬ right and wrong will eventually pre¬ traffic in words. The planning of aged within the American Govern¬ vail. One of Milovan Djilas’ revela¬ foreign policy is predominantly ment permits small tactical moves to tions about Stalin illustrates this (though not exclusively) the con¬ develop a life of their own. If this point. In 1947, when the Soviet cern of the State Department. It is a drift goes on unchecked, small tac¬ Union created the Cominform, Stalin fact, however, that the enormous tics will displace the very objective volume of cables to and from the of the agreement that is under nego¬ State Department deals largely with tiation. A great many capable *For specific examples, see the the verbal output of other govern¬ officials are then forced—or will full version of this article in the ments, on-the-record and off-the- force themselves—to labor inten¬ Committee Print, Subcommittee on record remarks in conferences, and sively on these details like pettifog¬ National Security and Internation¬ al Operations, Committee on Gov¬ reports on foreign news media. ging lawyers. ernment Operations, United States Moreover, a large fraction of inter- Several episodes in the test ban Senate, 91st Congress, 1970.

22 FOREIGN SERVICE JOURNAL, April, 1971 himself thought up the name for its leftists, to rally Socialist forces more than a year to settle if one official publication: For a Lasting against neo-Stalinist Communism. counts the time from the first US Peace—For a People’s Democracy. (3) It helps the neo-Stalinists to proposal. (The technical talks im¬ Stalin’s idea was that the Western pretend that their conflict with the plementing the hot-line, once the press would have to repeat this United States and other Western Soviets had agreed in principle, were slogan each time it quoted something countries is all about the choice be¬ smooth and swift.) Similarly, the from this journal. Although Stalin tween Socialism and Capitalism. negotiations with North Korea and had the right idea, his expectation in This makes it harder for libertarian Communist China to end the Kore¬ this case was disappointed, prob¬ forces in Eastern Europe and within an war lasted for nearly two years. ably simply because the name was the Soviet Union to work towards a During these protracted periods too long. more open and freer political order of bargaining, the positions on both While our senior officials and our without giving the appearance of sides changed—in many cases quite news media did not repeat “For a wanting to restore “Capitalism” (by substantially. After all, one of the Lasting Peace—For a People’s which the young generation in most essential aspects of negotiation Democracy” whenever they dis¬ Eastern Europe and Russia usually is the lack of a firm scale for meas¬ cussed some Cominform statement, envisage something out of Charles uring gains and losses. The dividing they now frequently use the label Dickens). line between a gain and a loss is not “wars of liberation” when referring (4) Worst of all, it seems to given by Nature, but is the result of to internal wars and campaigns of sanction the Brezhnev Doctrine, im¬ partly explicit and partly intuitive evaluations within government bu¬ terrorism aimed against non- plying that these countries under reaucracies. And these evaluations Communist governments (never for Moscow’s imperial control are all are themselves influenced by the internal wars against Communist distinguished by the one fact of bargaining process. (Changes of governments, mind you!). Since the being Socialist states and that any evaluations within a government early 1960s, several Presidents change in their status could mean only a “return to Capitalism.” should not be confused with the Secretaries of State, and other Where does this leave Yugoslavia, granting of a concession, although United States officials have used this for instance? In the official United for the opponent they might have expression. To be sure, always with¬ States Government vocabulary, is the same effect: If a government in quotation marks, but the news Yugoslavia one of the “Socialist grants a concession, it decides to media tend to dispense with that Countries”? Hence, does the United reduce its initial position in order to encumbrance. What is remarkable is States Government signal to Moscow render it more acceptable to the not this occasional usage, but that that it would tolerate a 1968-style opponent; but if a government un¬ nobody seems to ponder about it. invasion by Soviet divisions? Or is dergoes a reevaluation of alternative The issue here is not the merits or Yugoslavia not “Socialist”? outcomes in a negotiation, it changes mistakes of the current American Other forms of “semantic infiltra¬ its views as to what arrangements war effort in Vietnam. Except in the tion” could be cited, such as Pres¬ are good or bad and how the pluses eyes of a minute fringe in American ident Eisenhower’s unfortunate slip and minuses ought to be weighted in society, the reasons against this war of agreeing with Khrushchev that order to draw the balance.) are not that the United States is West Berlin’s situation was “abnor¬ All too frequently, the positions fighting against liberation. mal.” of Communist powers are viewed as Let us look at another and per¬ Our government, by spending less immutable. During the formulation haps even more insidious example time pursuing small technicalities of the United States negotiating of “semantic infiltration.” Some ten and analyzing the flow of words, position within the State Depart¬ years ago the State Department inex¬ might be able to devote more energy ment and in interagency groups in plicably decided to permit the use of to the essential aspects of negotia¬ Washington, it happens often that a the term “Socialist Countries” to tion. On many issues, a strong effort possible American proposal or a refer to the East European countries is required to modify the opponent’s Western demand is voted down as under the control of Moscow. Grad¬ position so as to reach an acceptable being “unacceptable” to the Com¬ ually, this expression began to filter agreement. This must be done not so munist side. But by classifying cer¬ tain proposals as “unacceptable” to into government language and the much through clever tactical tricks, the opponent, our negotiators and news media. The official and non¬ but through a sustained policy of policy-planners in fact make them official use of this expression has inducements and pressures. so. Since the positions of Communist several deleterious effects: Nearly all agreements between the United States and the Soviet governments, much as our own, tend (1) It is insulting to our Socialist Union were preceded by long nego¬ to change only gradually under the friends in Austria, West Germany, tiations: The Austrian State Treaty influence of negotiation, our abstain¬ England, Sweden, and elsewhere. was under negotiation for ten years, ing from “unacceptable” demands (2) It can be exploited by far- the nuclear test ban for five to eight denies us a possibility of modifying rightist opponents of our Socialist years depending on how one counts a Communist position. friends, to argue that Socialism and the beginning, the civil aviation The Austrian State Treaty is a Soviet-controlled Communism are agreement and the consular conven¬ good example. Here, the United all the same, and to undercut tion were the subject of intermittent States and its Western allies re¬ efforts, such as by the more liber¬ negotiation for ten years, and a sim¬ mained clearly committed to a free tarian-minded Italian and French ple matter like the hot-line took Austria and kept pressing the Soviet

FOREIGN SERVICE JOURNAL, April, 1971 23 Union with “unacceptable” propos¬ munist countries expand. Today, United States Government regarding als. Finally, in 1955 the Russians most American officials would view the above-mentioned issue of Aus¬ realized that it would also be to their non-strategic trade and genuinely tria’s neutrality. One has to consider advantage to end the partition and bilateral cultural exchanges as being the historical background against occupation of Austria. Similarly, a to our advantage. Similarly, limita¬ which the American position on partial test ban (i e., excluding un¬ tions on nuclear weapons, such as Austria had to evolve. The early derground tests) seemed unaccepta¬ the test ban and nuclear free zones, 1950s, we must remember, were ble to the Soviet Government became only gradually acceptable under the shadow of the Communist throughout most of the test ban ne¬ within the United States Govern¬ takeover of Czechoslovakia in 1948 gotiations. Therefore, our negotia¬ ment. Today, these limitations are and the North Korean attack on tors advanced the proposal for a largely viewed with favor, or at least South Korea in 1950. partial ban only from time to time not found to be harmful, in the Czechoslovakia had never been and almost with a feeling of hesita¬ Defense as well as in the State De¬ “signed over” to Soviet control by tion. But after the Cuban missile partment. the Western allies at the end of crisis, when the inspection arrange¬ It is essential, however, to distin¬ World War II, neither at Yalta, nor ments for underground tests still guish two types of shifts in our own in Churchill’s famous-infamous per¬ were deadlocked in disagreements, evaluations. On the one hand, there centage deal, nor at Potsdam. Khrushchev realized that a test ban are those reevaluations where we Czechoslovakia, as seen from Wash¬ confined to atmospheric and outer have come to see an issue in a ington and London, was meant to space tests would have advantages different light so that we can accom¬ remain “neutral” between the Soviet from the Soviet viewpoint as well. modate some of the Communist de¬ Union and the Western powers, or, Thus, one of the principal postwar mands without impairing our nation¬ as it was put in those days by the disarmament agreements was real¬ al interests or those of our allies. On Czech President Benes, it was to ized on the basis of what part of the other hand, American (and become a “bridge between East and American officialdom classified as a more generally Western) evalua¬ West.” American forces had liberat¬ proposal “unacceptable” to the Sovi¬ tions can erode in such a way that ed part of Czechoslovakia from et Government. Communist powers make long-term Nazi occupation—much like in Aus¬ Additional instances can be found gains while we delude ourselves that tria—and for two years a parlia¬ of Communist governments chang¬ nothing has changed. mentary and relatively independent ing their position only after pro¬ Since this distinction is so impor¬ government ruled in Prague, with longed negotiation. Yet, these cases tant, it seems worthwhile to analyze the Communists in a minority. might be more numerous had the a few cases from hindsight so as to Then on top of the Communist US Government pursued some good appraise whether they represent a takeover of Czechoslovakia came causes with greater perseverance useful reevaluation of US objectives Korea. Both Soviet and American and conviction. We will never know that facilitated agreement with a troops had been withdrawn from what agreements could have been Communist power, or whether they Korea, yet the full-scale aggression obtained had we tried harder. The represent an erosion of our evalua¬ occurred only one year after the last point here is not that we should tions that concealed a genuine de¬ American forces had left the coun¬ brusquely confront the Soviet and terioration in our position. The ex¬ try. Small wonder, therefore, that other Communist governments with amples of the test ban and the Aus¬ American officials were reluctant to all kinds of far-reaching demands. trian State Treaty serve to elucidate deny Austria the possibility of pro¬ What is needed is that on essential the former. tection through an alliance with the issues we pursue a sustained policy In the mid-1950s, senior US West. Anyone could see that, once of inducements and pressures to officials believed that arms control the Western forces were withdrawn, gradually change their position, even agreements restricting nuclear weap¬ Austria would be as encircled by if this seems quite unpromising initi¬ ons, such as the test ban, would Communist territory as Czecho¬ ally. reduce the deterrent inherent in slovakia was in 1948. Our own evaluations also change American nuclear superiority, per¬ Yet, with the benefit of hindsight under the impact of prolonged nego¬ haps by hobbling the future de¬ it can be said that our acceptance of tiation. In many cases, these revi¬ velopment of American nuclear Austria’s neutrality was a risk well sions did not simply lead to Commu¬ weapons technology while permit¬ worth taking. The critical difference nist gains but actually turned out to ting the Soviet Union to move between Czechoslovakia and Aus¬ be in the American interest, too. ahead, perhaps by leading to politi¬ tria lies precisely in the manner in During the prolonged negotiations cal pressures against American nu¬ which the Western powers permit¬ on the Austrian State Treaty, the clear weapons overseas. Today, ted their evaluations to shift. In United States Government was re¬ these fears do not appear to have Czechoslovakia, the Western powers luctant to have Austria committed to been well-founded. On the contrary, tolerated a continuing reduction in a permanently neutral status. Yet, had Khrushchev’s insistence not led their influence during 1946 and today this outcome seems to accord to the nuclear test ban, such limita¬ 1947 and did nothing to discourage fully with American and NATO in¬ tions on nuclear weapons might the Soviet Union from preparing a terests. Likewise, in the 1950s, the have become more, rather than less, takeover. In Austria, the Western United States Government was initi¬ widespread. powers insisted from the outset that ally reluctant to develop cultural ex¬ Another reevaluation of a nego¬ they wanted to have troops in Vien¬ changes and to let trade with Com- tiating position occurred within the na as long as the occupation lasted,

24 FOREIGN SERVICE JOURNAL, April, 1971 and in their diplomacy continually thereafter, American diplomacy fell present trends often takes the fol¬ kept the expectation alive that Aus¬ back into its defensive stance. lowing form: Some American offi¬ tria should become fully independ¬ Something happened to the evalua¬ cials, deeply (and justifiably) con¬ ent. When this effort was at last tion of colonialism and imperialism cerned about the problems in Viet¬ crowned with success in 1955, the within the United States Govern¬ nam, tend to equate American for¬ United States did not write off Aus¬ ment. The calibration by some of eign policy in what they call “our tria as Czechoslovakia was written our own officials of past and present sphere of interest,” on the one hand, off by the West after American and trends shifted, so that what our with Soviet (or Chinese) foreign Soviet forces had liberated that allies relinquished (partly with policy in areas that they allocate to country in 1945. American prodding) is not being the Soviet (or Chinese) “sphere of By contrast, let us consider the credited to the West, while what the interest,” on the other. The rules by transition from colonialism to the Soviets captured or recaptured by which these spheres are to be carved Brezhnev Doctrine. Since World using overwhelming force is being up are somewhat unclear: geograph¬ War II, the Western colonial powers assigned to them as if it was theirs ic contiguity seems to impress people have divested themselves of their through Natural Right. (nonetheless Iran and Turkey are colonies at a rapid pace. In the Thus, after we encouraged France usually not—or not yet— allocated 1950s and 1960s, this divestiture to give independence to Tunisia, to the Soviet sphere). All of Indo¬ was often a painful process, with the Morocco, Algeria, and her other Af¬ china is clearly assigned to the United States frequently getting rican colonies, after we supported North Vietnamese, Chinese, or So¬ caught in the sequel through its al¬ the British in granting full independ¬ viet sphere of interest, or all three. liances, as well as for other reasons. ence to their colonies in Africa According to these Americans, it At the same time, the Soviet Union (some of which became ruled by seems most natural, and in some posed as the champion of anti¬ Marxist governments), and after we sense “just,” that the Soviet Union colonialism with considerable suc¬ did not intervene in Libya despite should help North Vietnam in fight¬ cess. the coup that led to a pro-leftist ing the American effort to support In the 1950s, American policy¬ government we still feel embar¬ South Vietnam against North Viet¬ makers were looking forward to rassed that one of our allies, Portu¬ namese encroachments and attacks. the day when most Western colonies gal, is holding on to her African Not because an ally of one-half of a would be independent, expecting colonies. This is as if the Soviet country is always justified in help¬ that the pressures against the Soviet Union, having permitted Poland, ing his side to take over the other version of colonialism would then Czechoslovakia, East Germany, half—for that would mean that the mount, both internally and exter¬ Rumania, and Bulgaria all to choose United States would be justified in nally. Ten to fifteen years later, the their own road to independent forms helping South Vietnam to take over colonies of Western powers have in¬ of Socialism or Capitalism, still felt North Vietnam or in helping West deed shrunk to a few remnants; but embarrassed because it continued to Germany in trying to take over East Soviet colonialism and imperialism, exercise control over Outer Mongol¬ Germany. while subject to internal stresses, has ia. (For this comparison it is worth escaped sustained external criticism, Valid reasons against the Ameri¬ recalling that while the Russians ex¬ can effort to support the South Viet¬ let alone more serious pressure pelled Nazi Germany from Poland, from without. namese government might be that it Rumania, and parts of Czechoslo¬ is so terribly costly to us, destructive The Soviet invasion of Czecho¬ vakia, the British forces expelled and uncertain of success. But for slovakia made it clear to most Fascist Italy from Libya which until those Americans who want to blur nations, at least temporarily, where then had been an Italian colony.) the differences between Soviet and the world’s last big empire was More specifically, this distortion American foreign policy, these being ruled from. But very quickly and false reevaluation of past and weighty reasons are not enough. They argue, we should never have become involved in South Vietnam “because it is not in our sphere of interest.” They draw a parallel be¬ tween Khrushchev’s attempt to put missiles into Cuba and the Ameri¬ can effort to support South Vietnam, concluding that as Khrushchev was forced to pull his missiles out of “our sphere” so we should pull our forces out of “their sphere.” They argue that Latin America is “our part” of the world, exactly in the same way that Eastern Europe is Russia’s part of the world or Indochina is the North Vietnamese part of the world. Given that this view has gained considerable currency in the United (Continued on page 55)

FOREIGN SERVICE JOURNAL, April, 1971 25 “It should be the aim of all governments to develop a whole race of such men from whose ranks they may draw their diplomatic agents.” M. De Callieres On the Education of Diplomats—A Commentary ww WE can start by observing that PAUL M. KATTENBURG we surprisingly late when you con¬ attorneys become such upon com¬ Mr. Kattenburg, an FSO, is Deputy sider that nowhere more than in the pleting the study of law, doctors the Coordinator of Political Studies, relations of sovereign political units, study of medicine, architects ar¬ at FSI. Fie says that the views ex¬ involving questions (certainly to¬ chitecture and most performing mu¬ pressed in this piece, which were day) of the lives and deaths of written originally for a symposium sicians music. This is to name but a on instruction in diplomacy, are his perhaps millions, is the need of the few of the professions in which a and should not be interpreted as envoy’s holding the complete con¬ basis of acquired technical knowl¬ reflecting the views of the FSI or fidence of the prince of more su¬ edge combines with some necessary the official opinion or policy of the preme importance. It is understand¬ degree of innate talent (constituting Department of State. able that rulers would be willing, far the “artistry” or “craftsmanship” of shape slowly as being, in essence, earlier, to accede to the regulation the profession) to produce, pre¬ that of “representing and convey¬ and licensing of professions such as sumably, professional competence or ing,” of “interpreting,” or in more architecture and law. proficiency. But diplomats do not, as modern usage, that of “communica¬ Even today, no diplomatic service a general rule, prepare in “diploma¬ tions.” A natural concomitant of this in the world that I know of automat¬ cy.” Like politicians who rarely (but role, as desirable as it was inescapa¬ ically licenses the diplomat to prac¬ now perhaps less rarely) come to ble, became that of seeking areas of tice on the basis of examination and their seats of power without prepa¬ common interest and endeavor be¬ of knowledge alone. The sovereign ration in “political science,” diplo¬ tween the prince and rulers outside or his representatives carefully se¬ mats come to their calling from a the latter’s control. These were areas lect the qualified applicants in all variety of avenues and without the in which the prince’s or state’s inter¬ instances—not only for their techni¬ necessary license that other profes¬ ests could be advanced by means of cal knowledge but preeminently for sions require. Why so? And should agreeement (through methods of the other qualities required to in¬ it be so? persuasion) rather than means of spire his confidence. Much of the reason can probably constraint (through methods of be found in the traditional and his¬ force). E SHALL dwell only briefly on those torical development of the diplomat¬ With the development of complex qualities of a temperamental order ic “art, craft or profession.” Princes and partly codified relations be¬ which I nonetheless believe will re¬ for good cause traditionally selected tween sovereigns in the modern main requirements for the successful brothers, relatives, close friends or period, the character of diplomacy practitioner into the indefinite fu¬ associates—in any event men in as a professional activity began ture. Not that their enumeration is whom they could repose the utmost slowly to take shape. But we might, well-known or that there is wide¬ of confidence and trust—to rep¬ with some comfort, observe that the spread agreement as to what they resent them to other princes with serious study of medicine did not by are. Precisely the opposite is in fact whom they were either in competi¬ far antedate the 18th century, or the case; and I am about to make a tion or friendly cooperation. The that of engineering the 19th. The case for their more rigorous defini¬ diplomat in this sense represented study of law in any systematic mod¬ tion and measurement. the real alter ego or personality ex¬ em sense of the word did not come It is admittedly difficult, taking tension of the prince, and little did into existence until after the com¬ the world as a whole as it looks in his knowledge or professional com¬ plexity of codes in the modem peri¬ 1970, to define rather closely, not to petence matter provided he was able od began to make it well-nigh im¬ speak of seeking to inculcate into faithfully to interpret or represent possible for the dilettante, however the diplomat-in-preparation, those the prince’s state of mind to others imaginative, to practice it by the moral and temperamental qualities in his dealings. It fairly soon became seat of his pants. which the sovereign will require in apparent however that the envoy’s In diplomacy, we may be just a order to repose trust and confidence role was truly a two-fold one: ex¬ bit later than the rest in joining the in his envoy. They are, generally, tending the personality of the prince trend to professional competence speaking, intangible and highly de¬ abroad, and conversely conveying based on grounding of “technical pendent on relationships of a per¬ back to him the state of mind of his knowledge,” to supplement the qual¬ sonal and power (therefore politi¬ ally, his foe, his present or prospec¬ ities of artistry or craftsmanship cal) character. It is nonetheless pos¬ tive antagonist or friend. demonstrated over centuries by en¬ sible and necessary to make a stab Hence the role of the diplomat voys of the prince. We are, in any in this direction. from the era of city-states or tribu¬ event, and if it is of some comfort, We can perhaps agree that among tary empires to that of nations took in advance of the politicans. Nor are the principal temperamental quali-

26 FOEEIGN SERVICE JOCRNAE, April, 1971 ties sought in diplomats are some of lection, as well as the teaching off having absorbed torts and evidence, the following. Strength of both char¬ diplomats. After all, no one enters; now begins to demonstrate this acter and constitution—it is simply law school today without high marks> learning in interaction with clients, incredible what physical rigors the on the legal aptitude boards. Mustt authorities and the courts. average diplomat, envoy or sub¬ potential diplomats forever remain1 I suggest, therefore, that three envoy, faces: from the hours of his initially self-selected or picked att levels of learning and instruction are labors to his required intake of cul¬ random on a largely intuitive basis? involved in preparation for diploma- turally-differentiated liquids and sol¬ (It should be pointed out that the: cy. At the first level, basic elements ids. Integrity—provided always it is Foreign Service Entrance Examina¬ of knowledge are acquired. This defined in the culturally-conditioned tions, in the American case, the oralI period should normally last two terms of his own sovereign (yes in¬ portion of which measures tem¬ years, spent either in a “diploma¬ deed, he must not be beyond the ca¬ peramental qualities among other cy” major in college or in a special¬ pacity of dissimulating for his coun¬ attributes, are generally adminis¬ ized academy preparing for diplo¬ try!). Patience and equanimity— tered after and not before the appli¬ macy. The second level, lasting one the diplomat who “feels” too much cant has completed study of the: year, adds elements of greater tech- or too soon is invariably at a disad¬ technical-knowledge base withi nical specialization. It should be vantage over the smiling, unflappa¬ which he should presumably be spent in a program leading to M.A. ble optimist. Alertness—but, “sur- equipped, and very often the latter in Diplomacy, either in graduate tout, pas trop de zele.” (Some of the has been acquired rather haphaz¬ school or continuing the academy. most successful American diplomats ardly. ) (The latter could begin students in I could cite have certainly been the third year of college, leading among the laziest characters I have them through the fifth.) The impor¬ RtssiNG now to the technical known.) A predisposition to accept tant thing about the second level, or knowledge attributes that should be things and the world as they are, third year, is that it should be required of diplomats, let me state and not to believe in the instant or preceded by systematic testing for at the outset my belief that diploma¬ even distant perfectibility of human carefully spelled-out and rigorously cy today is a discipline, firmly based and social institutions—not to be defined temperamental qualities. on technical knowledge. It happens trapped by culturally-conditioned Only if this were passed successfully however that the heart of this disci¬ notions of what is, what is not “evil” would the candidate be allowed to or “good”; in other words, an intel¬ pline does not lie in the knowledge of something called “diplomacy,” proceed. lectual capacity to think relatively in After he obtained his license, or which can be transmitted to diplo- ethical terms, whatever the personal M.A., he would then be automati¬ normative or value-base the envoy mats-in-preparation in the same way cally qualified for selection by his that statutes and codes can be trans¬ carries in his own psyche. Finally, sovereign if he desired to engage in mitted to law students or design to and certainly among the most im¬ public diplomacy; or by the private students of architecture. portant, a capacity to “step into the sector if he desired a career in pri¬ But let us remember that lawyers other fellow’s shoes” if not into his vate transnational activities. The remain “in preparation” for at least brains. And many more. third level of instruction would begin some time after they have passed No real effort has been made to after entry into the career. During the bar, and that architects require be exhaustive or even very rigorous this probationary period of probably a minimum of three years after in adducing this purely illustrative three years in the case of public graduation before they can be li¬ catalogue of some of the required diplomacy, the integrative “in- censed. During these years, lawyers service” elements would be added, temperamental qualities. In fact, and architects acquire further what we may need most of all at this partly through practice in diplomatic knowledge, particularly of the inte¬ stage is a rather precise catalogue positions and partly through in- grative elements of their discipline—- service training. classification and description of such ”on the job” knowledge based on traits. Techniques of measurement experience. This compares with could then be developed, using the those in the foreign service today best we now know of psychology R ETURNING NOW to the constituent serving a probationary period during and personality analysis, which elements of knowledge in diploma¬ which practical experience trans¬ could at least help in assessing can¬ cy, what are they at the basic level? forms the disparate components of didates with a minimal degree of First and foremost a thorough, wide the knowledge acquired into an inte¬ accuracy. Perhaps, as a first step, a and deep grounding in history. Not grated whole. It is during the in- study of the “Temperamental Quali¬ simply diplomatic history, but history service probationary period that dip¬ ties of Diplomats and Techniques for of cultures, civilizations, religions lomats truly absorb through prac¬ their Measurement” could be com¬ and political systems. Nothing can tice the elements of knowledge they missioned. be more important for the diplomat have acquired and that they can than to know and be able to inter¬ Perhaps, by the time such study is demonstrate their learning thereof. pret what went before; not just in concluded, it will have been demon¬ This is when they begin to relate an the West but emphatically in other strated that a Diplomatic Academy— acquired body of technical knowl¬ cultures as well. I will not here or schools otherwise devoted fully to edge to the practice of foreign-policy belabor the point. the study of that profession—are as making and to the conduct and im¬ Second, economics. Here too, it necessary as, say, schools of ar¬ plementation of foreign relations. seems unnecessary to dwell on the chitecture or law for the proper se¬ Similarly the beginning attorney, obvious necessity for deep and full

FOREIGN SERVICE JOURNAL, April, 1971 27 understanding of the dismal science young man who knows not anarchist memoranda of conversations for an in all its recent ramifications of in¬ doctrine or history, Leninist theory official of former Vice President put/output models, systems analy¬ of Imperialism (or its precursors or Humphrey’s stature and personality sis, cost/benefits measurements and follow-on work such as the Theses while on an eight-day trip to some econometrics. on Colonialism), or Machiavelli’s dozen Asian countries is an experi¬ Third, anthropology, combined “The Prince.” ence from which I still have not with as much human geography, ba¬ If, in addition, he knows behavior¬ fully recovered!) sic sociology, and psychology as can al findings, decision-making theory, Third, a year’s course in diploma¬ be imparted in a two year program or political systems in a “political cy or in diplomatic practice as re¬ (and its previous two-year introduc¬ development” context, so much the vealed primarily through case studies tion). A wide and deep knowledge better. But a diplomat is not and and taught by personnel who have of the spread of human civilization, never will be a political scientist. To themselves been involved in the accompanied by a healthy apprecia¬ confuse the two, or endeavor, futile- process, would seem justified in the tion of the cultural relativity of ly, to make the one into the other, final year. This would include ele¬ norms and mores, morals and be¬ will only serve to frustrate both. The ments of the legal, political, psycho¬ havior. trained political scientist turned dip¬ logical and other aspects that go into Fourth, but only last, political lomat will be frustrated because of the making of technique in that sub¬ science. There is, in political science, his forlorn expectations as to what tle “craft” of negotiations. Much of much that is highly relevant, some his trade really practices. The politi¬ this instruction could, in my view, that is highly irrelevant, to the prac¬ cal scientist will be frustrated be¬ take the form of games and simula¬ tice of diplomacy. I certainly would cause of his failure to have impact tions of the actual diplomatic bar¬ not care a great deal, for example, quickly on decisions and courses of gaining process. whether my young associate in an states which often bear no greater For American diplomats, there embassy knew or did not know direct relationship to his investiga¬ should be a year’s study of Ameri¬ Game Theory or the aggregate sta¬ tions than those of the geneticist can foreign policy divided roughly tistical findings and methods of the studying cell behavior to the writing evenly between “Conduct and For¬ Dimension of Nations Project. Nor of common prescriptions by doctors mulation of US Foreign Policy” would I care much if he knew or did (yet neither the M.D. nor the genet¬ (many of the current upper-division not know the highly important icist appear to be frustrated by their undergraduate or lower-division findings of quantitative scholars in, lack of interrelationship)! graduate courses fit the bill) and a say, the area of conflict resolution or second semester on “Problems of the correlation of violence (however Decision-Making in National Secur¬ HE technical knowledge fields list¬ defined) with something termed T ity Policy.” Note that emphasis in ed above do not exhaust the neces¬ “democratic development” however this second half would center sharply coded and rated in the matrix. sary intellectual baggage of the dip- lomat-in-preparation. In his third and dynamically on problem situa¬ I would be even less concerned tions in both the diplomatic and the year (fifth year of college or univer¬ whether or not he was intimately security fields, and less statically on sity) the subject matter taught and conversant with Kaplan’s distin¬ the machinery for foreign policy learned should come closer to the guished work in systems theory or formation which would have been heart of international relations. In with Rosenau’s superb efforts to iso¬ covered in the first half. late and study multiple variables in my view, it should include five sub¬ Finally, a one-year course in the comparative foreign policy forma¬ jects in which thorough grounding theory of international relations tions. It would be preferable, of would universally benefit every dip¬ should be required in this final year course, if he knew these things, at lomat and which, in contradistinction (whether or not the student had least in a general way. But however to the broad constituent elements of earlier studied some international important these researches are for knowledge fisted above, form the politics as part of his basic-level political science, and for the effort narrow core of the discipline of di¬ training in political science.) The we can encourage of endeavoring to plomacy. subject need not be overly stressed build a more rigorous body of inter¬ The first of these is study of an or taught to pre-diplomats in depth; national political theory, they are area (and of a language proper to once more, we are not concerned not fundamental to the intellectual that area) carefully selected on the with forming political scientists. But baggage of the diplomat-in-prepara¬ basis of the student’s interests, his the basic elements of international tion, at least at the basic level. talents, and the results of his earlier politics could be covered in a first What is, on the other hand, fun¬ work. (It should be remembered semester, and the fundamental liter¬ damental to that baggage is his that the testing for temperamental ature of international relations theo¬ posssession of an extraordinarily de¬ qualities mentioned above would ry (again, stressing seminal thinkers tailed knowledge, additional to that have occurred before this final year like Wolfers, Aron, Morgenthau) in imparted in the historical dimension, of study.) a second. of the philosophical and theoretical Second, there should be advanced thought of seminal thinkers in pol¬ study of English writing and com¬ The intellectual baggage of diplo¬ itics. As well as of thinkers perhaps position. It is important that the mats in-preparation is still not com¬ not regarded so seminal, but whose practicing diplomat be able to ex¬ plete without the integrative training daily relevance to the themes and press himself lucidly and succinctly that would be obtained once ad¬ trends of human affairs in our age in all sorts of formats under all types mitted to his country’s professional seems to be increasing. Woe to the of trying circumstances. (Writing (Continued on page 53)

28 FOREIGN SERVICE JOURNAL, April, 1971 The Federal Labor Relations Coun¬ ring with the Federal Labor Rela¬ cil, under date of March 15, in¬ tions Council on the most appropri¬ formed Deputy Under Secretary Wil¬ ate separate program for Foreign liam B. Macomber, Jr. that the Pres¬ Service personnel. This alternative ident had determined that career relationship will presumably take the officers and employees in the For¬ seven-point argument as a basis and eign Service of the United States point of departure. AFSA will con¬ should be excluded from the provi¬ tinue to work vigorously on behalf sions of Executive Order 11491. This of members’ welfare, and the Board exclusion is contingent on develop¬ intends to build with management a relationship both cooperative and ment of a separate program for For¬ advisory. The Board is pleased by eign Service personnel which is ac¬ the President’s decision, and fully ceptable to the Council. The pro¬ satisfied that given the promise of posed program should be submitted comparable alternative rights this is not later than June 1, 1971. the preferable outcome for the For¬ The AFSA Board will be confer¬ eign Service. Retiree Benefits Win Support AFSA’s new member of the Board of Directors, James Donald Wilson, The Department will seek legisla¬ for wives or widows not presently Jr., was an ambassador at the age tion this year for three important re¬ covered by mandatory provisions. of 21. Mr. Wilson was selected as tiree benefits according to a letter Retirees will recall that H.R. 4170 Goodwill Community Ambassador to received by AFSA from Mr. Macom¬ passed the House in 1965 providing Norway by the Flint Junior Chamber ber, the Deputy Under Secretary for the minimum $2,400 annuity at a of Commerce, Flint, Michigan, in Administration. These are (1) exten¬ cost of only $300 a year, payable at 1957. He then participated in Oper¬ sion of “second spouse” provision to the rate of $25 per month, for the ations Crossroads Africa in 1960 and the Foreign Service (2) provision at period between October 1960 and traveled extensively in East Africa a reasonable cost of a minimum the date of annuity election. This “with the objective of gaining a bet¬ $2,400 annuity to widows not pre¬ was amended in the Senate to re¬ ter understanding of Africa and re¬ sently covered, and (3) recomputa¬ quire a retiree to pay a much larger cording my impressions photograph¬ tion of annuities of retirees based sum and passed as Public Law 89- ically.” on 40 rather than 35 years of 308. Mr. Wilson received his BA and service. It is probable that the Depart¬ MA from Howard University and A retiree had written to the De¬ ment's efforts to obtain an amend¬ studied French for a year at the partment asking its support for ment providing a reasonable pay¬ University of Montpellier. He joined these benefits and sent a copy to ment for an annuity would be AID as a Junior Officer Trainee in AFSA. The retiree’s letter was for¬ enhanced if active and retired mem¬ 1965 and had a split tour in Sierra warded to Mr. Macomber with the bers would write to their representa¬ Leone and Congo (K) 1966-68. After Association’s strong endorsement tives in Congress supporting the De¬ taking a year’s leave of absence to and a special request that he give it partment’s proposed amendment. work for his Ph.D. he returned to his personal attention. It is a pleas¬ The Department is not optimistic AID. He is Desk Officer for Central ure to report that Mr. Macomber did about the possibility of 40 year Africa and responsible for multi¬ so and that the retiree has a de¬ benefits for retirees, even though lateral projects in Central African tailed reply to his letter. the proposal would be related to Republic, Cameroon, Chad and Ga¬ It is probable that the “second granting credit for 40 years of serv¬ bon. spouse” provision approved for the ice to future retirees. Again, it is Mr. Wilson enjoys chess, swim¬ Civil Service will be extended to the probable that letters to Congression¬ ming, stamp collecting, acting in Foreign Service. al representatives would prove help¬ amateur stage productions and pho¬ However, it will be more difficult ful. tography. He worked as a free-lance to obtain an amendment to P.L. 89- AFSA will continue its efforts to photographer for various university 308 which would provide the mini¬ obtain the benefits present, and publications during his college mum annuity at a reasonable cost future, retirees should have. years. New Executive Director Named All By-Law Amendments Passed

The results of the referendum majority of the valid votes cast ballot on four proposed amendments minus abstentions is required for to the AFSA By-Laws appear in passage, tabular form below. A two-thirds

Total Valid Total Minus Votes Cast Approve Disapprove Abstain Abstentions

Amendment 1 617 524 77 16 601 Amendment 2 617 531 69 17 600 Amendment 3 617 519 75 23 594 Disapprove Total Minus Total Cast AFSA Board JFSOC Both Abstain Abstentions

Amendment 4 617 444 130 40 3 614

The first three amendments, pro¬ facilitate informed voting, the Elections The Board of Directors is pleased posed by the Junior Foreign Service Committee shall accept and distribute to announce the appointment of Mr. Club (JFSC) and supported by the platform statements from candidates to the membership at the beginning of the James K. Palmer as AFSA Executive AFSA Board of Directors, received campaign period. The Association shall Director effective March 15. He re¬ 87 percent or more of the total vote places Ambassador Thomas S. Estes bear the attendant cost of reproduction minus abstentions. On the last, con¬ of statements, which shall be of reason¬ who has moved on after 14 months tested, amendment the recommen¬ able length, the addressing of envel¬ of outstanding service to the As¬ dation of the Board of Directors was opes, and postage. To help defray elec¬ sociation. ratified by 72 percent of those vot¬ tion costs, each candidate shall make Mr. Palmer, a bachelor of 36, has ing and not abstaining, with the a nominal contribution, e.g. $10.00 to be a strong administrative background, JFSOC alternative polling 21 per¬ set by the Elections Committee. a knowledge of the problems of pro¬ cent and less than 7 percent oppos¬ 6. The official ballot bearing only the fessional associations, and experi¬ names of all qualified candidates shall ing both alternatives. The text of the ence in Washington. He received a be mailed to the Active membership no amended sections of the By-Laws Master’s Degree in Business Admin¬ later than November 15. The Elections follows (new additions in bold). istration from The George Washing¬ Committee shall instruct the Active ton University in 1961. This was Members to vote for not more than Amendment 1 eleven candidates as Members of the followed by Ph.D. and D.B.A. post¬ ARTICLE III Board of Directors. These eleven names graduate studies, during which time PURPOSES AND OBJECTIVES may be voted from among those ap¬ he was a faculty member at the pearing as individuals or as members 1. To further the interests and well University. Prior to his university of any slate. Slates may be voted as being of the members of the Association units, in which case each person on experience he spent two years as a and to work closely with the Depart¬ the slate will be recorded as having staff assistant to former Senator ment of State and other agencies to¬ received one vote. Votes may be cast William F. Knowland. Following his ward the goal of improving the foreign for write-in candidates, provided they university teaching, he was Director affairs community. fulfill the eligibility requirements on of Administrative Services for the Amendment 2 December 31 of the election year. Votes Navy Federal Credit Union. During must be received by the Elections Com¬ 1964-69 he was a Distributor and ARTICLE IV—Section C mittee no later than December 31 of Manufacturers’ Representative for a MEETINGS OF THE BOARD OF the election year. number of companies specializing in DIRECTORS filing systems and data processing 6. All regular meetings of the Board Amendment 4 accessories. Most recently, Mr. Pal¬ of Directors shall be open to all mem¬ ARTICLE IV—Section B mer has been Executive Vice Presi¬ bers. Accurate minutes of all meetings, including a record of any votes by the POWERS OF THE BOARD OF DIREC¬ dent of the American Association of TORS Industrial Management with head¬ Directors, shall be available to mem¬ bers. A summary of such minutes shall 3. Any 25 active members or any quarters in Philadelphia. be published on a timely basis in the overseas AFSA Chapter may at any The Board is confident that Jim Foreign Service Journal. time, and by written request, require Palmer will make an important con¬ the Board to discuss in a regular Board tribution to the Association, and Amendment 3 meeting an issue they deem important. that he will be an efficient, innova¬ The Board will report its conclusions to ARTICLE VI tive manager of our varied and in¬ those submitting the request and to the ELECTIONS membership at large. creasingly complex activities. Mem¬ 5. The Elections Committee shall an¬ bers are urged to drop by AFSA head¬ 4. It is incumbent upon the Board to nounce publicly the names of all candi¬ seek the advice of the active member¬ quarters to meet him. dates no later than October 15. The ship at large as frequently as prac¬ period October 15-November 15 shall be ticable on major issues before the As¬ About Our Cover designated the campaign period. The sociation. Therefore, whenever the Board Committee shall organize and publicize believes an issue to be of sufficient im¬ Earl Wilson’s work again graces at least three meetings at which the portance—and other considerations of the cover of the Journal this month. candidates can present their positions. time and subject matter permit—the Mr. Wilson, now on the faculty of the The meetings shall be well publicized advice of the active membership shall National War College, exhibited his and held at times and places calculat¬ be sought by written ballot, by commu¬ paintings in the Foreign Service ed to ensure the largest possible at¬ nication with Chapter heads or by other Club during the month of January. tendance by the members. In order to expeditious means. 1 meantime, employees who are inter¬ MEMBERS INTERESTS ested in ship travel should study the Overtime Pay Guaranteed FSR/FSIO-5 and the second step of regulations cited above and attempt to use excess currencies whenever The law and Department of State/ FSSO-3. they consider themselves eligible. AID/USIA regulations have long pro¬ Unused Home Leave vided that employees whose basic “Sesame Street” salary rate is at or below the maxi¬ A number of members have asked Some members have inquired mum step of GS-10 may choose to about accumulated home leave bal¬ about the possible distribution of receive overtime pay for authorized ances which have become so large “Sesame Street,” the successful overtime work. Implementation of as to be unlikely of ever being uti¬ television educational series for pre¬ this regulation by various Washing¬ lized. Questions have been raised as school children, to Foreign Service ton offices and overseas missions to the possibility of converting un¬ posts. Our initial inquiry indicated has been uneven, with compensatory used home leave to lump sum pay¬ that the Department’s educational time off—let alone overtime pay— ments or to retirement credit at the program cannot bear the cost of often not effectively available to em¬ end of a career. Legislative authori¬ such a project because educational ployees. ty would have to be obtained to im¬ expenditures are limited by law to Over the months AFSA representa¬ plement any such proposals, of first grade and higher. We will ex¬ tives have discussed this problem at course, and our reading of the situ¬ plore other possibilities and will re¬ many levels of the State Department ation is that it would be self-defeat¬ port again. on behalf of our Foreign Service ing to make the attempt. support membership. On February 8 Congress established home leave Naturalized Citizens an AFSA Chapter overseas submitted originally to “re-Americanize” For¬ Employees and spouses who are through AFSA a clearly documented eign Service personnel who serve naturalized citizens will be happy to case in which overtime pay had been long periods abroad, and not as a note that management has prom¬ refused in writing to a Foreign Serv¬ benefit to supplement annual leave. ised AFSA to change the regulations ice secretary. As a direct result of If we ask to convert unused home on assignments which have tended this AFSA Chapter initiative, Deputy leave into cash or retirement credit, to make such persons appear to be Under Secretary of State William B. we might risk reopening the whole second class citizens. Macomber, Jr. has released a clari¬ concept of home leave. With more Essentially, the concept that nat¬ fication of policy on overtime (CA- and more Foreign Service personnel uralized citizens (employees or 890, February 23, 1971), leaving no spending more time on assignments spouses) are automatically ineligible doubt as to the obligation of all of¬ in the United States, the previously to serve in the countries of their fices and posts to provide employees established need for special leave former nationalities will be elimi¬ with an effective choice between for “re-Americanization” might be nated, especially since it hasn’t compensatory time off and overtime challenged. been enforced in recent years any¬ pay. USIA has transmitted a similar We believe the only way to safe¬ way. Management will also make message. This is a landmark ad¬ guard home leave is to take it, and sure that former nationality can in vance for AFSA and for the Foreign not accumulate it. We realize that no way be brought to the attention Service. the system now encourages people of selection boards. Employees may Long hours of overtime have been to forgo or shorten home leave in therefore wish to monitor perform¬ traditional in our profession, and the order to promote overlaps and avoid ance ratings to make sure references dedication of Foreign Service of¬ vacancies in overseas positions. This to former nationality are not in¬ ficers and employees to the nation’s should be changed, with good man¬ cluded. agement defined as the ability to international concerns has done Complaints program activities with rotating va¬ great credit to our Service. How¬ From time to time a member will cancies so as to allow for home ever, we have developed poor prac¬ send in an unsigned complaint tices. Too much overtime is worked leave. AFSA will be presenting pro¬ posals to management designed to about some service, action or adver¬ at many posts out of bad habits, or tisement. The Association looks into bad management, or misguided am¬ discourage “requests” to employees every one of these, but in the ab¬ bition. AFSA very much hopes that to “voluntarily” shorten or forgo sence of a name, it cannot advise the new mandatory policy on com¬ home leave. pensation for overtime will result in Ship Travel by Foreign Flag Vessels the writer of the results of its inves¬ better planning and a sharp reduc¬ Although management has turned tigation. tion of unnecessary overtime. down AFSA’s request that employees A recent example: A member sent AFSA also believes that it is high be permitted to travel by ship at in an advertisement and complained time hard-working FSS secretarial least one way to or from posts of that an advertised item was not and clerical personnel were assured assignment even though the use of available, and signed “An AFSA of compensation for their hours of foreign flag vessels would be re¬ Member in Washington, D.C., extra duty. The Association has re¬ quired, there are still some travelers 7/14/70.” quested its chapters and representa¬ who are managing to go by ship, and If our member had given his tives at overseas posts to cooperate foreign ships at that. If you wish to name, he would have had a tele¬ in the implementation of CA-890, explore the possibility (although for phone call within 48 hours advising and to make sure it is properly car¬ most travelers it would not be feasi¬ him that a strike had interrupted ried out. The maximum scheduled ble), consult CA-3035 of June 2, production of that item, and that it rate of pay for GS-10—the cutoff 1970, which interprets 6 FAM 133 is now available. point for overtime pay—is $14,973. on the use of excess currency for Members are urged to give AFSA This means that not only support foreign flag ship travel. AFSA be¬ their names when they have a sug¬ personnel but many junior officers lieves the restrictions on such travel gestion, criticism or complaint, so are legally eligible for overtime pay, are much too rigid, and will con¬ we can tell them what we did about through the second step of FSO/ tinue fo seek more flexibility. In the it. Rockefeller Awards Rockefeller Public Service Awards will be given in five new categories this year. This reflects the feeling of the donor that a new approach to public service should be encour¬ aged. The awards are for excellent Chil¬ ian service in the Federal govern¬ ment. Candidates must have worked in government for at least 15 years and be less than 60 years old. The new fields for the awards are- adminstration; intergovernmental op¬ Evenings at the Club New Club Manager erations; human resource develop¬ By popular demand, the Foreign ment and protection; and profession¬ Service Club will be open for two al accomplishment and leadership. evenings in April and one in May. Princeton University’s Woodrow The success of these evening events Wilson School of Public and Inter¬ will determine future scheduling of national Affairs administers the similar and perhaps more frequent awards, considered the most prestig¬ evening affairs at the Club. Make a ious privately financed honor, on note of the dates, Friday, April 23, behalf of John D. Rockefeller 3rd. Thursday, April 29 and Wednesday, May 5. Reinhardt Fund Drinks will be served in the buf¬ Mrs. Peter Belin has announced fet lounge from 5:30 till closing the establishment of a fund for the time, with no reservation required. future education of the four child¬ Dinner will be served at 7:00 on a ren of Ambassador and Mrs. G. Fred¬ reservation only basis in the main erick Reinhardt. Ambassador Rein¬ dining room. hardt died on February 22 in Zurich. The April 29th dinner will be an His obituary appears elsewhere in Austrian Maifest, with a special The manager’s accent has changed, this issue. Contributions to the fund menu including Gefullter Prager- from Swiss to British, but the ac¬ for Frederick, Aurelia, Henry and schenken and Paprikahuhner and a cent at the Foreign Service Club Catherine Reinhardt will be held in choice selection of Austrian wines. will still be on good food, courteous trust by Mrs. Belin. They can be Suitable music will be piped in for service and pleasant surroundings. sent to her at 1623 28th Street, the occasion. The Maifest welcomes Duncan Lyon, who came to the N.W., Washington, D.C., 20007. the coming of spring and with it the Club with the first winds of March, first opening of the wines bottled A Foreign Service First? was born in 1944, in Whiston. the previous September. Lancashire and came to the States Readers of the March Playboy may AFSA members can still make in February of last year. He joined well have noted the publication of reservations for dinner in the eve¬ ARA just a year ago and worked at “From Russia, With Limericks,” by ning on other occasions. Dinner the Drake Hotel in Philadelphia. J. F. O’Connor, page 133, if you still must be for 12 or more, but the Club have your copy. Mr. O’Connor writes Manager, Duncan Lyon, will make His plans for the Club—inter¬ that these originated on the FSI’s every effort to combine parties to national weeks with menus from Eastern European Field Seminar in reach this figure. different countries, more menu vari¬ 1962 and added, “When I was going The Club is, of course, also avail¬ ety in general, extending the facili¬ through my personal papers last able for cocktail parties, receptions ties to AFSA members in the even¬ year prior to my retirement, I came and meetings on a reserved basis. ing with special functions. across copies, turned out some Just call Mr. Lyon at 338-5730 for His thoughts about the United others in the same vein, sent them information and/or reservations. States—surprise at the friendliness off to Playboy and now here we are. Daily lunches served from 12 till of the people, a wish for more in¬ I may well be the first FSO, active 3 are proving popular with AFSA formative highway signs. He and or retired, to have had anything pub¬ members and their guests. Members his wife Janet like Washington and lished in Playboy, which isn't the wishing to bring guests from the for¬ plan to cto a lot of sightseeing. usual outlet for FS literary activi¬ eign diplomatic corps are invited to ties.” reserve in advance and indicate if The Welcome Mat they would like the flag of the guest’s New Career The Foreign Service Club admits: country on the table. pantsuits, maxis, minis, midis, peas¬ Niles Bond, who retired two years ant dresses, false sideburns, real ago, is serving as Secretary to the Foreign Service Club Exhibitors Board of Governors and Assistant The Club has been open for ex¬ mustaches, full beards, Van Dykes, Secretary of the Trustees at the hibits by artists of the foreign serv¬ saber cuts, turtlenecks, capes, white Corcoran Gallery of Art. Mr. Bond’s ice community for a year now. During socks, 2" ties, 4" ties and bow ties. long career in the Foreign Service that time fourteen artists have ex¬ We admit just about everything, as included postings at Habana, Yoko¬ hibited. long as it’s worn by an AFSA mem¬ hama, Madrid, Berne, Tokyo, Rome, Foreign Service artists interested ber or his (her) guest. Rio de Janeiro and as consul gen¬ in having an exhibit should call So come as you are, to the eral at Sao Paulo. AFSA, 338-4045. Foreign Service Club. many at Versailles. He resumed the wife, the former Rhoda Arnason, a practice of law in the early twenties, daughter, Peri Alain, of 5315 Mac- and was a member of the faculty of Arthur Boulevard, and his parents, Columbia University Law School for Mr. and Mrs. Jay A. Neilson of Allen¬ CHmER NEWS many years. He was a law partner of town, Pennsylvania, survive. A me¬ Governor Franklin D. Roosevelt prior morial in Mr. Neilson’s name has to entering the Roosevelt “Brain been established with the American Trust” and cabinet, and served on The Kabul Chapter is firmly Foreign Service Scholarship Fund. many commissions, and as a lecturer launched after five months of oper¬ Contributions may be addressed in and writer on international affairs, in ation with over 60 members. There care of AFSA, 2101 E St., N.W., addition to his legal professional ac¬ is an effective steering committee Washington, D.C. 20037. tivities. chaired by John Patterson. The ap¬ Mr. Berle leaves his widow, the Reinhardt. G. Frederick Reinhardt, proach is informal—lunches, discus¬ former Beatrice Bend Bishop, 142 Career Ambassador ret’d, died Feb¬ sion groups, afternoon cocktails— East 19th St., a son, Peter A. A. ruary 22 of a heart attack near his built around issues of concern to Berle, of New York; two daughters, home in Zurich, Switzerland, where the Foreign Service in general and Mrs. Clan Crawford of Ann Arbor, he had been Director of Stanford AID Foreign Service officers and staff Michigan, and Mrs. Dean Myerson Research Institute since his retire¬ in particular. of Washington; two sisters and a ment from the Foreign Service in The Bangkok Chapter remains brother, and ten grandchildren. The 1968. Ambassador Reinhardt en¬ one of our most active. Its chairman, family requests that memorial con¬ tered the Foreign Service in 1937, Jim Wilkinson, holds the all-time tributions be made to Columbia Uni¬ following two years with the Inter¬ Chapter record for the number of versity School of Law. national Boundary Commission for individual cases on allowances and the US and Mexico. He served at other issues referred to the cele¬ Evans. Joseph Robert Evans, FSS- Vienna, Tallinn and Moscow, followed brated can-do will-do AFSA Mem¬ ret’d, died February 9, 1971 in Cali¬ by war-time posts with the Staff of bers’ Interests Committee team. The fornia. Mr. Evans entered the Depart¬ the US Advisory Council for Italy, Bangkok Chapter, like several others, ment in 1914 and joined the Foreign the Political Advisor for General now uses its own letterhead station¬ Service in 1920. In addition to exten¬ Eisenhower’s staff, Air Force Head¬ ery. sive travel throughout Europe and quarters Mediterranean, and with the Near East in the early '20s as The Vientiane Chapter holds the USPolad, SHAEF. He returned to an archives collator, he served in Moscow in December 1945 and went gold star for the 1970 membership London, Paris, Rome, Bogota, and to the NATO Defense College, Paris drive—Vientiane is an all-AFSA post Bern until his retirement from the with sixty (60) new members. Obvi¬ 1950, and in 1952 became special last-named post in 1953. At the assistant to the Supreme Allied Com¬ ously this was a team job, but spe¬ time of his death he resided with his cial congratulations are due Charlie mander Europe, General Matthew wife at 1031 Fiske Street, Pacific Ridgway in 1952. In 1955 he was Rushing and Frank Rhinehart for Palisades, California 90272. A named Ambassador to Vietnam, in helping us put across the plain truth daughter, Mrs. Robert M. Miller 1957 Counselor of the Department that AFSA represents and defends (wife of FSO Robert M. Miller) seven or State and in 1960 went to Cairo the interests of all the Foreign Serv¬ grandchildren and four great-grand¬ as Ambassador in addition to being ice of AID, USIA and State, and that children, also survive him. for AFSA the “Foreign Service Elite named Envoy to the Yemen. From 1961 to 1968 he served as the Am¬ Corps” of the 1970s includes every Lewis. Irving S. Lewis, USIA, died one of us—FSS, FSIO, FSR, FSO, February 14, 1971 at the Washing¬ bassador to Italy. Ambassador Rein¬ hardt was a Life Member of AFSA FSSO (and, before long, FSRU). We ton Hospital Center. He was 51. Mr. and had been President of the As¬ are 14,000 strong in this corps, and Lewis served in the US Army prior sociation from 1959-1960. In addi¬ about half belong to the Association; to joining USIA in 1950, and was the more who join AFSA the more assigned to public and cultural af¬ tion to his wife, the former Lillian AFSA can accomplish for us all. fairs posts in Bolivia, Guatemala, El Tootle, he leaves four children, Frederick, Aurelia, Henry and Cath¬ Send us news of Chapter activi¬ Salvador, Nicaragua and Uruguay erine, all of Zurich, and a brother, ties and let AFSA Washington know until his recent assignment to Wash¬ Dr. Paul Reinhardt of Palo Alto, Cal¬ how it can best serve you. ington. In addition to his wife, Pa¬ tricia, of 10100 Hereford Place, ifornia. Mail may be sent to the fam¬ Silver Spring 20901 and five chil¬ ily at Pelikan-Strasse 37, 8001 dren, Mr. Lewis leaves his mother, Zurich, Switzerland. Mrs. Viola Lewis and three brothers. Siscoe. Frank Gotch Siscoe, FSO- Neilson. N. Paul Neilson, FSIO, Pub¬ ret’d, died February 14, 1971 at Deaths lic Affairs Adviser for the Bureau of his home in Plainfield, N.J. He was Berle. Adolf August Berle, Jr., As¬ East Asian and Pacific Affairs, died 57. Mr. Siscoe came to the Depart¬ sistant Secretary of State for Latin of a heart attack at his home in ment in 1947 from the Department American Affairs and Ambassador to Washington on February 19. Mr. of Justice. He held assignments in Brazil from 1938 to 1946, and a con¬ Neilson had been a journalist and Prague, Moscow, Rome, Warsaw sultant to both Presidents Roosevelt news commentator prior to joining and Copenhagen, and was detailed and Kennedy on Latin American Af¬ USIA in 1950. He served in Batavia, to the Imperial Defense College in fairs, died in New York City on Feb¬ Djakarta, Tokyo, Rangoon, Geneva 1957. He retired from the Depart¬ ruary 17, 1971 at the age of 76. Mr. and Saigon until his detail to the ment in 1968 and returned to law Berle served a brief tour as an army Department in 1969. He received the practice and writing. He is survived lieutenant during World War I, and Meritorious Service Award in 1956. by his wife Anne, of 138 E. 7th St., was a member of the American Com¬ and the following year was detailed Plainfield, N.J. 07060, and a son mission to Negotiate Peace with Ger¬ to the Air War College. Mr. Neilson’s John, Palo Alto, California. the basic issues to be considered and meet with the Task Force; the Task Force would then “Sharpen” the issues, make specific recommendations, and return to the Board with them. JANUARY 26, 1971 The Board welcomed its new member, Mr. James D. Wilson, of AFR/AID. The Board also reluctantly accepted the resigna¬ tion of Ambassador Thomas S. Estes as Executive Director of the Association. Executive Order: Two hearings were held on AFGE’s chal¬ lenge of AFSA’s right to intervene in petitions for exclusive recognition filed by AFGE in five units of the Department of State and AID. The Hearing Examiner held that the purpose of the hearing was to determine AFSA’s status as a labor or¬ ganization. Counsel for AFSA affirmed AFSA’s right to be heard as a labor organization. Reform: The Board discussed devices to make open meet¬ ings such as the one held on January 25 to discuss reform DECEMBER 22 AND 29 implementation more productive. AID Reorganization: AFSA is concerned about the apparent The Board held informal discussions on Personnel Reform lack of planning in the Department of State to coordinate and the Executive Order in the absence of a quorum. within the Department and with the new organizational group¬ JANUARY 5, 1971 ings proposed by the Peterson Report. Mr. Kontos is preparing a paper on the subject of the new foreign assistance institu¬ The Julius C. Holmes Scholarship was established by a mo¬ tions and their implications for management and personnel tion of the Board. reform. E. 0. 11491: Mr. Jerome Ackerman of Covington & Burling, Club: The Executive Director reported a net profit of $1648 Counsel for the Association, outlined the issues which might from Club operations in December, 1970. arise at the hearing scheduled by the Department of Labor FEBRUARY 9 for January 18 to consider the challenge of AFGE as to AFSA’s right to intervene in petitions for exclusive recognition filed by Finances: On the Executive Director's recommendation, the AFGE in units of the State Department and AID. He suggested Board approved a resolution authorizing the Secretary-Treasurer that AFSA establish its right to be heard as representative of of the Association to obtain a loan from the Riggs National a number of personnel in the units where AFGE petitions have Bank, Washington, D.C. to alleviate a cash shortage problem. been filed, without addressing at this point the question of Openness: Mr. Heginbotham was authorized by the Board to AFSA’s validity as a labor organization under the terms of the work with Quest Productions and the Department of State on Executive Order unless confrontation on the latter question alternative ownership and rights on a film depicting the ex¬ was unavoidable. Mr. Harris will assemble material required periences of a young Foreign Service officer and the institution to refute allegations that AFSA is not a labor organization, within which he works. The film would be produced by Quest against this contingency. Productions, which has offered to try to raise the money for it and still give AFSA an “editorial veto.” JANUARY 12, 1971 AID Reorganization: A draft outline of a paper prepared by the AFSA Task Force on AID Reorganization was distributed for The Board accepted a proposal to appoint a Legislative Ac¬ study. The Chairman of the Task Force did not agree with the tion Committee to follow legislation pending in Congress affect¬ report’s recommendations regarding coordination. Mr. Kontos ing the foreign service agencies. and Mr. Heginbotham have prepared a paper urging effective Reform: The Department has introduced blue-edged Manage¬ coordination machinery at the Undersecretary level in the ment Reform Bulletins to report on the implementation of Task Department, and a meeting was scheduled to discuss this Force recommendations. The Association will comment through problem with the Undersecretary. An appointment was also red-edged AFSA Bulletins on Management Reform. scheduled with Mr. Frye of the Office of Management and Provident Fund: The AFSA Provident Fund financed by con¬ Budget. tributions and long-term loans from commissaries and other Grievance Procedures: Mr. Heginbotham reported that an AFSA employee organizations, can lend up to $100 for sixty days to member has requested the Association to support his request Foreign Service officers and Staff in emergency situations. for a fair hearing on a specific grievance problem under the JANUARY 19, 1971 provisions of 3 FAM 517.1, which he feels have been violated in his case. The Board passed a resolution authorizing the Reform: Officials in 0 have been invited to participate in an Chairman or his designee to cooperate with Mr. John J. Harter open meeting sponsored by the AFSA Committee on Reform on in support of his request for institution of an impartial griev¬ January 25. Messrs. Bray, Eliot and Harrop met with the Secre¬ ance panel. Mr. Harris was also requested to see what might tary on Thursday, January 14. After expressing their pleasure be done for members with legal problems. that the initiative for the Task Force reports had come from the E.O. 11491: The Association will request that the White House Department, the AFSA repreesntatives told the Secretary of delay decision on the recommendations made by the Federal their concern that no clear goals in personnel could be seen. Labor Relations Council until the AFSA membership has re¬ They also discussed the problems raised by the Executive sponded to a referendum on the Executive Order. (Note: refer¬ Order, and gave the Secretary a copy of the AFSA position on endum ballots must be received by March 31.) an alternative arrangement if the Foreign Service is excluded from coverage under the Executive Order. FEBRUARY 16 AID Reorganization: Mr. Howard Parsons, Chairman of the Board Positions: Mr. F. Allen Harris has been elected Vice AFSA Task Force on AID Reorganization, discussed with the Chairman of the Board, and Mr. Erland H. Heginbotham has board the Task Force’s paper on the Peterson Report. The been elected Secretary-Treasurer. Board felt that the paper oversimplified basic problems, such Meeting with Mr. Oliver: A meeting with Mr. Philip M. Oliver, as coordination, and the Board requested more specific docu¬ Director of the Job Evaluation and Pay Review Task Force of mentation, current reports from other Task Forces working on the Civil Service Commission was held February 11. AFSA rep¬ the question, and guidance on what AFSA’s role should be. resentatives at the meeting felt that while there was much Task Force members explained some of their problems in common sense in Mr. Oliver's ideas, designed primarily to pro¬ working on AID reorganization; the status of the reforms and duce equity in the various Federal personnel systems. Mr. of the various Task Forces concerned was confusing, and in a Oliver seemed almost emotionally resistant to the notion that fast-moving situation it was difficult to achieve consensus on employment in the Foreign Service requires a personnel sys¬ important issues. It was decided that Mr. Lyman would outline tem different from domestic service. “Just as perfect security is not possible, neither is perfect diplomacy possible.”

Education in Diplomacy

^EDUCATION for diplomacy is a PETER F. KROGH international conflicts of interests. It involves the protection and promo¬ definite need for an indefinite fu¬ Excerpted from a paper prepared ture. There is a deeply felt and for a conference on education in tion of special interests, influencing widely expressed need for tomor¬ diplomacy held by the American the decisions of foreign nationals, row’s diplomats to do better than Academy of Political and Social and reconciling opposing interests yesterday’s and today’s. Yet the fu¬ Sciences. Peter Krogh is the Dean through agreement or modus viven- of the School of Foreign Service, di. Diplomacy deals in its essence ture which diplomats will face is Georgetown University. He was a indefinite, open to unseen challenges White House Fellow assigned to with the realities of international and opportunities. The indefiniteness the Department of State in 1967- conflicts of interest and aims at their of the future does nothing to dimin¬ 68. He is on the Board of Direc¬ minimization. tors of the International Council Just as perfect security is not pos¬ ish the need for education in diplo¬ for Educational Development and macy; it does suggest that prescrip¬ is a Consultant to the American sible, neither is perfect diplomacy tions for education focus on the de¬ Foreign Service Association. possible. The risk of failure is high; velopment of knowledge and accom¬ successes are almost always hard plishments which are most likely to won. It is essential that both the be applicable to situations which are diplomat and his boss know that now unknown. batting averages are notably low, Education for diplomacy is a con¬ home runs infrequent, and sacrifice tinuing process and the task of all hits often required. This does not institutions engaged in the study or mean that the diplomat should be practice of international relations. A excused from calculating and con¬ great deal of learning is required to trolling the risks of failure; on the conduct complex international trans¬ contrary, that is one of his foremost actions in a world of diverse cul¬ responsibilities. It means that the tures, tense nation states, and in¬ mat different in discrete and defen¬ objectives of diplomacy should be definite futures. The basis for such sible ways from the education of cast in terms of “obtaining the best learning can be imparted in grade other operators? The majority who results that can be obtained under schools and colleges; it can be say no usually cite the successful the circumstances” rather than in refined and expanded in graduate diplomatic careers of men of diverse terms of absolutes or of bringing schools, but it must be built upon educational and professional back¬ home the coonskins. and enriched by institutions engaged grounds. But it may be that these The adverse conditions in which in the practice of diplomacy. These men precipitated from their varied diplomacy is normally conducted institutions must mature and focus pasts a common core of qualities need to be emphasized and appreci¬ the learning of their diplomats and and accomplishments which they ated. Normally they are conditions alter it to meet and anticipate chang¬ effectively applied to their missions. of great uncertainty, of lack of time, ing needs and circumstances. There is a need to find out if that is and of incomplete information. The so and to examine leading cases in diplomat deals with “events which are not reiterative.” Each situation is THERE is a question, which de¬ the conduct of diplomacy for clues serves the most serious consider¬ to a possible body of knowledge and unique and carries with it unpredic¬ table consequences. ation, of whether education for di¬ ability essential to the practice of plomacy is education for a profes¬ diplomacy. Diplomacy depends for success on sion. Is there a body of knowledge, the possession of skills which are the of doctrine, of techniques, and of DIPLOMACY is the advocacy of in¬ surface manifestation of deep ac¬ methods of thought which is essen¬ terests and the process, often highly complishments. Skills normally tial to the effective practice of diplo¬ political, which aims at the elimina¬ thought to be illustrative of the dip¬ macy? Is the education of a diplo- tion, reduction, or postponement of lomatic craft (for example, force

FOREIGN SERVICE JOURNAL, April, 1971 35 and clarity of verbal and written one of the essential attributes of a type of diplomat, is needed to put expression, tact and timing of argu¬ good diplomat. these modern objectives in context. mentation and representation, per¬ Those responsible for the conduct suasiveness and ability to win confi¬ of diplomacy are changing in char¬ "THERE are objectives of instruction dence) are not really skills but in diplomacy which do not change acter and number. The official di¬ rather the cutting edges of accom¬ but remain essential because they plomatist is increasingly assuming a plishments acquired through educa¬ reflect the irreducible core function minority position in his own profes¬ tion and cultivated and confirmed of diplomacy as the means by which sion. Greater numbers of private through experience. These accom¬ international conflicts of interest are diplomats are at work. plishments include an ability to dis¬ handled. The so-called new diplo¬ Official diplomacy, especially cover objective facts and to search macy does not alter the need for official bilateral diplomacy, rep¬ for truth, a capacity to identify and knowledge in fields of study which resents a shrinking piece of the ac¬ delimit issues and to articulate com¬ are at the core of the practice of all tion. mon interests, and qualities of char¬ international diplomacy. The follow¬ Private diplomats will take up the acter which inspire confidence and ing are general, enduring requisites: slack; they will be weaving more of respect. Looked at in this way, di¬ • Logic and objectivity in think¬ the skein of international activity. As plomacy is neither art nor science ing, including particularly the ability columnist Joseph Kraft wrote, there but knowledge painstakingly ac¬ to identify and delimit issues, to is now no corner of foreign rela¬ quired, harnessed to objectives, and detail alternative courses of action, tions. “not touched annually by applied with great sensitivity to situ¬ and to establish and act upon cri¬ American businessmen or tourists or ations. This is why learning to be a teria for making choices. students ... all American institu¬ diplomat is a “long arduous busi¬ • Clarity and accuracy in speak¬ tions have a deep commitment over¬ ness, not a gift.” ing and writing. seas. The most advanced companies . . . take a growing share of consoli¬ Good diplomacy depends upon • Competence in foreign lan¬ dated profits from foreign business several attributes not normally asso¬ guages and ability to communicate . . . most of the country’s non-profit ciated with diplomats. One is humil¬ effectively across cultural barriers. ity. The diplomat, public or private, • Awareness of past patterns and organizations have important oper¬ ations in foreign countries. Cultural must see himself as an instrument of events in international relations and exchange is unceasing. Every pro¬ policy whose influence is largely a the conduct of diplomacy. fessional group has connections with function of the power of the nation • Knowledge of the process of opposite numbers around the world. or institution he represents. He must policy making and implementation. And whether in narcotics or housing recognize that his leverage derives • Ability to project the future or transportation, agencies with principally from his status as the consequences of present decisions. purely internal responsiblities are representative of something bigger • Understanding of the interna¬ more and more looking to interna¬ and more impressive than himself tional system of states and organiza¬ tional means of solving internal and not mistake it for a product of tions: how it developed; how it problems.” his own ability and character, how¬ functions; the basic factors which The representatives of private in¬ ever remarkable and admirable they affect its functioning, and the way in terests and public domestic interests may be. Such humility is consistent which the system and the people who serve it behave. make up the proliferating partici¬ with a recognition and appreciation pants in international diplomacy. The international system and the that a diplomat through his “person¬ Their objectives and behavior will basic factors which affect its func¬ ality, character, learning, and gifts” greatly influence the nature of future tioning are dynamic. Over time can augment his government’s ca¬ diplomacy. pacity in world affairs. these factors multiply and change in specific weight. The factors tradi¬ Education in diplomacy will have Another essential quality is tionally emphasized have been to be extended to greater numbers creativity—an ability to invent im¬ economic, political, historical and le¬ of people preparing for a greater proved policies and new forms and gal; now increasing weight is given variety of occupations. And this structures of international relations to military, scientific, technological, education will have to take into ac¬ to meet, and even anticipate, emerg¬ social and cultural factors. Educa¬ count the changing importance and ing problems. The importance of tion for diplomacy should acquaint interrelationship of official and pri¬ this quality was underlined in 1962 the student with all factors and their vate diplomacy, the involvement of by the Herter Committee which interrelationships, while providing a officials formerly exclusively con¬ listed “zeal for creative accomplish¬ solid grounding in one or two of cerned with domestic problems, and ment” as the prime requisite for them. the growing circulation of diplomats foreign affairs personnel. Because To these basic objectives of edu¬ among public and private interna¬ diplomacy is becoming increasingly cation in diplomacy must be added tional careers. action oriented, the creative mind is new objectives which take account of The growing diversity of partici¬ needed more than ever. Unfortu¬ the changing nature of the world in pants in diplomacy is but one aspect nately it remains an elusive quality, which diplomacy is conducted. Some of the changing facts of internation¬ largely because it has not been tra¬ description of changing conditions, al life which need to be considered ditionally recognized or cultivated as including the emergence of a new in describing modern objectives of

36 FOREIGN SERVICE JOURNAL, April, 1971 instruction in diplomacy. Other and patterns of negotiation, the im¬ Contributions of behavioral science salient facts of future international plementation of technologies with may aid in subjecting these factors life which will bear heavily on the trans-national implications, an in¬ to rational analysis and relieve the nature of future diplomacy and edu¬ creasing depersonalization of the diplomat of exclusive reliance on cation for it, include the following: conduct of diplomacy, and height¬ intuition. —More issues will become inter¬ ened international animosities based In order to exert influence, in national; interests at odds on the more upon race and poverty than on order to put the other sides in a world scene will become more nu¬ ideology. negotiation a “yesable proposition,” merous, varied, subtle and complex. the diplomat must be able to reverse —International political and eco¬ IN THIS new world, special demands roles and to know how the other nomic relations will be increasing¬ will be placed upon diplomats, both sides view the problem and why ly shaped by the impact of technol¬ public and private. Preparation for they view it as they do. He should ogy; technologies will become more these demands determines specific be able to argue the positions of the global in their implementation and objectives of instruction in diploma¬ other sides and to see his own posi¬ implications. cy which must be added to the gen¬ tion as it appears to them. This —As technology pushes countries eral objectives traditionally regarded requires great cognitive sophistica¬ into interdependence and domestic as essential. Some of these modern tion developed through careful study problems increasingly transcend na¬ objectives are variations or refine¬ of pertinent behavioral sciences. tional boundaries, there will be a ments of traditional objectives and It is not suggested that the diplo¬ growing need to find solutions based involve new emphases rather than mat become a practicing behavioral on multinational agreements and wholly new approaches. scientist. What is suggested is that he undertakings. The “extraordinary Objective: Ability to utilize in¬ be acquainted with, and know how galaxy” of international organiza¬ sights of the behavioral sciences. to call upon, findings in social psy¬ tions will spin off new institutions. The diplomat’s work is done in chology, sociology, and cultural an¬ For the near-term, emphasis on contrasting cultures and societies thropology which help in the analy¬ regional cooperation will be espe¬ and within the context of interna¬ sis and anticipation of the conduct cially notable. tional communications. Work in of nations, institutions, and individu¬ —Technological advances in, for such a setting can be eased by als, and which give clues to ways to example, communication, transpor¬ knowledge of behavioral sciences influence their decisions. tation, and computation, will have which provide helpful tools of obser¬ Objective: Ability to utilize quan¬ profound effects on the conduct of vation and analysis. titative methods and models of an¬ diplomacy. Revolutions in communi¬ In the future, diplomats will be alysis. cation and transportation will hustle joining more players in an increas¬ For the future, the diplomat will people into contact multiplying the ingly discordant orchestra. In his need tools which enable him to take interaction of messages and of em- cacophonous world, the diplomat account of a greater number of vari¬ missaries. Advances in information will need to place greater reliance on ables and which assist him to isolate technology will tend to depersonal¬ behavioral sciences for insights into the main issues and keep his eye on ize diplomacy as cold conclusions the harmonization of conflicting and them. These tools must include at are precipitated from the analysis of often irrational voices. least a rudimentary literacy in math¬ large quantities of data. Similarly, faster and more perva¬ ematics and statistics and acquaint¬ —International trade, business sive communications will increase ance with systems and factor anal¬ and investments will push rapidly the importance in the conduct of ysis. Possession of knowledge in ahead creating new wealth but also diplomacy of such factors as public these subjects can facilitate the as¬ new tensions based on economic opinion, mass attitudes and assump¬ similation and correlation, and re¬ disparities and conflicts of interest. tions, and culturally determined pat¬ duction to manageable proportions, —International differences and terns of thought and perception. of large numbers of factors and vari¬ disputes, based upon color and so¬ ables; it can assist in a “rational cio/economic grievance more than arraying” of objectives, alternative upon ideology, will grow more in¬ courses of action, resources, risks tense and seemingly more intracta¬ and costs. ble. The diplomat does not need to —With the full reemergence of know how to build the models, oper¬ Japan, Germany, and China as ate the computers and carry out the great powers, the multipolarity of sophisticated analysis himself; but power will be a dominant feature of he must be comfortable with quanti¬ the international landscape requir¬ tative language and know the likely ing reorientation of international po¬ uses of quantitative methods of an¬ litical relationships. alysis. To summarize, the world in which Because so much of what the future diplomacy will be conducted diplomat faces is unpredictable, his will be characterized by a prolifer¬ actions “must inevitably be based, ation of actors and multipolarity of at least partially, on a measure of power, a new complexity of issues intuitive resolution of uncertainty.”

FOREIGN SERVICE JOURNAL, April, 1971 37 Nevertheless, any thing which is done more in demand and more essential cross currents generated outside his through quantitative methods to re¬ to successful diplomacy. orbit which he needs to be able to inforce the intuitive process by Objective: Ability to work in in¬ counter in order to keep his course. presenting relevant data in a more ternational cooperation. Especially important is awareness organized manner should be encour¬ The harmonization of prolifer¬ of the interaction and interdepend¬ aged. “If the intuitive judgments . . . ating international interests will re¬ ence of domestic and foreign af¬ can be aided by mathematical tools, quire increasing reliance upon the fairs. Recent events in this country the new diplomacy may be just that forums and techniques of multilater¬ have reconfirmed the importance of much more able to deal with the al settlement. For better or worse, reckoning with the home front and complex environment that it faces.” reliance on conference and parlia¬ of taking account of trade-offs be¬ (Quotations are from an article by mentary diplomacy will grow and tween domestic and foreign policies Fisher Howe in THE ANNALS, No¬ diplomats will have to know where in the conduct of foreign affairs. The vember 1968.) and how to conduct this diplomacy diplomat must be aware, and be¬ ware, of the domestic pressures Objective: Ability to use special¬ to best effect. They will need to be familiar with existing and emerging which can either undermine or un¬ ists and to get things done. multinational organizations, conven¬ dergird his mission. Knowledge of The education of a diplomat tions, and procedures. They will have conditions at home and the way they should prepare him to use special¬ to know about the determinants and can impinge on diplomacy will help ists. The diplomat will have one, at patterns of behaviour in multi¬ the diplomat to harness or head off best two, area or functional special¬ national situations in order to put domestic forces. This is not to say ties of his own. For the other spe¬ forward widely acceptable proposi¬ that diplomats should shift with the cialties that relate to the problems tions. popular tides or that they should be with which he is at grips, the diplo¬ called upon to represent policies to mat will need to call on help. To use Objective: Ability to observe and report accurately. the people; on the contrary, they the available help wisely he must be must demonstrate considerable con¬ generally familiar with the spectrum Technological progress in commu¬ stancy in their positions and purpose of specialties that could contribute to nications and transportation will re¬ and stand removed from the domes¬ the solution he seeks; he must see duce the role of the diplomat as tic politics of foreign affairs. They independent negotiator and shift the their interrelationships and beware must, however, be sufficiently sensi¬ of becoming the slave of any of emphasis of his role to one of repor¬ tive to domestic exigencies to avoid them. In working with specialists the ter and adviser to central policy being needlessly ambushed by them. diplomat’s role is primarily one of makers. A new premium will be leader and coordinator. To fulfill placed on reporting ability, on Objective: Knowledge of the this role the diplomat will have to gathering facts, on skimming vast sources, uses, and limitations of understand the language of many quantities of information with an power. specialists, know what they have to eye to the critical determinants of As a consequence of new technol¬ offer, tell them what is needed, and possible agreement, and on relaying ogies and multipolarity of power, the know when the best results are a concise, accurate report to home bases and applications of power in being achieved. base. international relations are shifting at In the future greater emphasis More than ever, education in di¬ an accelerated rate. In this context will be placed on the diplomat as plomacy must aim at the cultivation it is especially important for the expediter. As Professor Alexander of objectivity and balance so that diplomat to know the strategic and Kiefer has noted, diplomacy increas¬ reporting rests on reality rather than diplomatic effects of the new weap¬ onry. He must have a basis in ingly will involve the “development on images and predetermined per¬ knowledge for advising on the and conduct of cooperative efforts ceptions. Diplomats more than those nature and extent of his country’s in which mutuality of interest is the in any other profession must see the strategic interests and know what key ingredient.” More international world as it is and be equipped to tell it like it is. strategic posture is best designed to agreements (for example, those in support his diplomatic objectives. Objective: Awareness of external pollution and population control) Such knowledge must be derived factors which impinge upon diplo¬ will involve the parties in commit¬ chiefly from experience but a foun¬ macy. ments to definite courses of action. dation can be laid in the study The diplomat’s thinking will have to Diplomats must be made increas¬ of power and of security consider¬ be more entreprenurial, more action ingly aware of the galaxy of exter¬ ations in international relations. This oriented than in the past, and he nal factors which bear on the out¬ knowledge of power must be paral¬ must have the ability to supervise come of negotiations. These include leled by awareness of, and respect expeditious follow-through on agree¬ public and private opinions and for, national and international con¬ ments reached. Diplomats who their cultivation and expression in straints upon the use of force. the media; the impact of various know where the levers of power are, Objective: A blend of idealism official and unofficial channels of who know how to cut through red and realism. tape and get things done, who know influence and activities; and the in¬ Objectives of instruction in diplo¬ how to organize the efforts of others teraction of groups and interests in macy should reflect both world reali¬ in the fulfillment of commitments, one country with those in another. ties and world hopes. Which is to will be at a high premium. In this The diplomat, far from laboring respect, management abilities will be in a vacuum, is frequently caught in (Continued on page 52)

38 FOREIGN SERVICE JOURNAL, April, 1971 The countryside of the Mekong Delta begins at the come and go, duly noting their similarities and differences, Saigon city limits. There is no transition. Instead of leading seen the bridge across the river put up, washed away, and to suburbs, the city streets suddenly give way to the flat rice put up again, seen the countryside remain pretty much what fields, vegetable gardens, fruit groves, and regularly spaced it always was, that is to say, what foreigners would call lines of trees that form the landscape of the delta all the unpacified. way to the southernmost tip of South Vietnam. The delta Pity the poor writer who travels the road or, more likely represents a marvelous blending of the elements of land and these days, takes a helicopter to the hamlet. All he sees is water, and its roads and canals have been well traveled over the bustle of that day’s military operation, the girls in their the years by French and American soldiers pursuing the bright dresses. He is probably not aware that the girls are elusive prize of pacification. a recent intrusion on the hamlet’s life and profoundly upset The following story takes place in one of the little ham¬ its sense of justice; and although he may be told the story of lets a few miles south of Saigon that are but a short bus ride the sharp little clash in the Rung Sat, he certainly ignores from the neon lights and skyscrapers of the city and yet are the fact that the Rung Sat has served as a haven for bandits a world apart. Few Western writers ever have a chance to see of various sorts for centuries. He will view the incident of this other world. No—I should say they see it, but they can¬ the five Americans in soot camouflage as heroic, and the vil¬ not feel it, become a part of it. Only the villagers themselves lagers will view the same incident as quixotic. can do that, because they live there, and they and their Nguyen Tan Bi is a schoolteacher in the district town families have seen both the French and the Americans of Can Giuoc.

l/J/ijCV* tlj, ^ a/X*v>^e

ITHE small hamlet of Phu Le suddenly became very NGUYEN TAN BI lively. Everybody in the hamlet had the feeling that something strange had suddenly happened to their daily From “Between Two Fires: The Unheard Voices of Viet¬ nam,” edited by Ly Qui Chung. Copyright (C) 1970, Praeger life. It was not because a theatrical troupe was passing Publishers, Inc. Prefactory note to this chapter by Arthur through this rather gloomy hamlet. It was because of the Dommen. Reprinted by permission. arrival of the American troops. Some years ago, in the wake of the revolution of vehicles had stopped. They wanted to see what the November 1, 1963, (the coup d’etat in Saigon over¬ difference between the Americans and the French was, throwing President Ngo Dinh Diem, officially referred to but to them it was difficult to detect any difference at all. afterward as a “revolution”) American troops had sud¬ Like the French expeditionary force, the Americans denly landed on the coast of Central Vietnam, opening a were both black and white. All of them were tall and big. new phase in the Vietnam war. The convoy stopped before the hamlet school, which was At Phu Le hamlet, the inhabitants had learned of their closed for summer vacation. The Americans began carry¬ coming only by word of mouth or through the newspa¬ ing supplies and ammunition into the school. Coils of pers. They had felt the American presence by watching concertina barbed wire were spread around. numerous formations of helicopters flying in a certain The school was transformed into the military camp of direction where a military operation was being conduct¬ an American company. The quiet, dull life of Phu Le ed. They had seen American planes but never a citizen of suddenly became very lively and exciting. the USA. Each person talked of the Americans according to his IT could be said that Phu Le was the last portion of land own knowledge. In short, everyone was doing what is of Nha Be district. It bordered on the Long Phu Tay area called “buying a buffalo by photo.” of Long An Province. The Doi River was the natural One morning, however, a convoy of large GMC trucks border between Can Giuoc and Nha Be districts, which loaded with American soldiers arrived in the village along were linked by the Rach Doi bridge. The end of this the road from Tan Qui Dong. On the side of each truck bridge on the side of Phu Le was guarded by a regional was painted a white star over a line reading “U.S. force platoon and the one on the other side by a whole Army.” company. At times the bridge was put under the responsi¬ The convoy consisted of more than twenty vehicles, not bility of Long An Province, at others under that of Nha including jeeps. Most of the villagers were curious. They Be district. But now it had been put under Can Giuoc came out of their houses to look at the place where the district.

FOREISN SERVICE JOURNAL, April, 1971 39 The bridge was built long ago, when the French were come, and so they ran away without bothering to carry still here. The soil is alluvial, and since the piers of the off the bodies of their comrades or pick up the Ameri¬ bridge had no firm foundation it became weak. No heavy cans’ weapons. A black lieutenant said later: “VC num¬ vehicle could cross it. Even worse, many of the floor ber ten.” boards were broken. The public works officials had never Nobody knew what he meant. Were the VC cowards thought of repairing it. or very dangerous? The range of military activities of the American com¬ pany covered also the Long Phu Tay area. So the American captain who commanded the company had To know the characteristics of the Vietnamese people, new and thick planks of pine wood brought in to board a foreigner should come to the countryside. One of these over the bridge, so that jeeps and four-ton trucks could characteristics is the way the Vietnamese drink their pass. The newly planked bridge brought new life to the wine. The French drink Martell cognac or champagne, Long Phu Tay and Phu Le areas. the Americans drink Scotch whisky or bourbon, and the Repairing the bridge flooring was a temporary solution. Vietnamese, mostly peasants, have their rice wine. The Americans brought some technicians down to study There are two kinds of rice wine. One kind is distilled how to repair the piers of the bridge to make them by the Binh Tay distillery. This kind is produced and sold stronger. They also brought in a lot of bridge-building legally, but is not good. It is weak, and drinkers have said materials and stored them at the other end of the bridge. it can cause headache. The second kind is illegally But before the repair work could start, one night, after distilled by the peasants. It is produced with local fer¬ a heavy downpour, the strong current pulled the bridge ments and locally made facilities. It is very strong and is down with all its spans. From then on, both sides of the the favorite of connoisseurs. French and American drink¬ river were separated. However, the Americans seemed ers have to buy their liquor, while the Vietnamese determined to rebuild the bridge. Unfortunately, after the peasants can produce their own wine. If distilling rice Tet offensive, the Americans withdrew from Phu Le and wine were not forbidden by law, the peasants could did not return. All the materials that had been intended certainly contribute their part to the restoration of the for the repair work gradually and mysteriously disap¬ national economy. peared. Up until now, the public works officials, who After the Americans’ arrival, business became bustling. seem to have been very busy with important works for the Merchants bought great quantities of Coca-Cola to sell postwar reconstruction, have not had time to think of the back to the Americans, who drank Coke in the way the present need of the people. So the bridge has never been Vietnamese drink water. However, shopkeepers did not rebuilt. neglect to provision their shops with the popular rice wine. One day a number of black and white Americans came BEFORE the arrival of the Americans, life here seemed to and drank Coke at Mrs. Hai’s shop. They were accom¬ be suffocating. By nightfall, houses on the edge of the panied by a Vietnamese interpreter. At a table opposite hamlet had already closed their doors. Government sol¬ them was a Vietnamese in his fifties. He sat with one foot diers returned to outposts or lay in ambush somewhere. on the rung of the stool and the other on the ground. The The VC [Vietcong] had managed to sneak into the man, whom the shopkeeper called Uncle Nam, asked hamlet at least fifteen times every month. So far, Phu Le Mrs. Hai for a quarter-liter bottle of rice wine. He also and Nguyen Van Chan hamlet of Long Phu Tay had asked her whether she had anything to eat with his wine. been under the pressure of the VC’s Ba Vu sanctuary in Mrs. Hai said she had dried squids. He then ordered one the mangrove swamp of the Rung Sat, one kilometer and asked for a dish. away. The VC came by way of Hiep Phuoc and Long The man did not pay any attention to the Americans Due, which they used as footholds for launching subver¬ and they did not pay any attention to him, either. But sive activities in the neighboring areas, such as Can Giuoc when Mrs. Hai brought the squid and a dish to him, the and Nha Be. Furthermore, they had also taken the GIs began to stare at him in the way people watch a direction of Da Phuoc and Bung Xeo to infiltrate into magician. Saigon. The man impassively uncorked the bottle and poured But after the arrival of the Americans, no VC could wine into the dish. Then he struck a match and set fire to infiltrate the hamlet. To show that they did not hold the the dish of wine. The burning wine began to roast the VC in high regard, one evening five Americans with soot squid. He was as clever as a professional cook. After the smeared over their bodies burst into the Ba Vu sanctuary roasting was done, the dish of wine continued burning. in an outboard motorboat. Around midnight, the sound of He blew out the fire and poured the remaining wine back gunfire was heard from the direction of Ba Vu. People into a glass. Then he began sipping it while chewing also saw flares in the area. shreds of dried squid. The next morning, an old fisherman brought a wound¬ Overcome with amazement, one of the Americans ed American out on his boat. He was the only survivor. could not help asking the interpreter “What is he drink¬ An operation was launched immediately. An American ing? Alcohol?” unit rushed into the Ba Vu area and found the other The American had seen the white wine burn and Americans dead but, surprisingly, still in their boat with believed it was alcohol. He might have been thinking that their weapons. On the river bank here and there were if the man could drink alcohol he should be an extraordi¬ bodies of some VC. It was believed that the Communists nary drinker. The interpreter might have guessed what had been attacked by surprise. Although they succeeded the American was thinking, and so he told him “No, it’s in killing the attackers, they were afraid that more would not alcohol. It’s Vietnamese whisky.”

40 FOREIGN- SEKVIOE JOURNAL, April, 1971 “Vietnamese whisky!” the American exclaimed. sure to lose their belongings. “Yes, Vietnamese whisky,” the interpreter assured One such was the wife of a regional force trooper him. named Ba. When this happened, Ba was with his unit on the other side of the bridge and did not know about it. Mrs. Ba had a child. This was another reason she refused H Vietnamese adage says: “Where there is honey, to leave, shouting at the soldiers, “What are you doing? there are flies.” Only five days after the Americans Why do you want to search the people’s houses without arrived, public girls with their multicolor dresses were allowing the owners to stay inside?” seen around. These girls had the talent of clinging to the Meanwhile, the soldiers carried on their search of her GIs. house despite her protests. It was not clear what they took When the girls came, people who up to then had been from her house, but afterwards she was seen sitting with her infant in her hands, weeping. It seems her case was nobodies suddenly turned into heroes by giving them protection. In this small hamlet no one had an adequate brought to the attention of the local authorities, but at the knowledge of the law. So the law could be distorted time the woman was killed during the Tet offensive some easily. The girls had come to ease the GI’s nostalgia for weeks later, it was still unsettled. After that, it was home, but they suddenly turned this small hamlet into a forgotten forever. redlight district. How could the village officials ban prostitution? Not only this small hamlet but throughout the war-torn country, where there were Americans, there I HE American company was stationed at Phu Le for were prostitutes. These girls, who required no capital to nearly two months. During this period it had created set up their trade, made a lot of money. What did they do turmoil in the small hamlet. Every night the inhabitants with their easy earnings? They gambled. The laws of the heard the same explosions of mortar fire and saw flares land were ignored here. brightly lighting up this poor little corner of the sky. From Many GIs were also attracted to gambling, so certain time to time, they saw helicopters landing on the village areas were put “off limits” to them. road to pick up or unload US troops. This had excited the It was said that one day, after an operation during curious children of the hamlet. which some GIs were killed, the captain commanding the Some people had become prosperous from washing company became angry at the girls for no reason. He clothes for the Americans. In front of their houses they ordered his troops to round them all up and take them had nailed small signs on which they had written the away by helicopter. word “Laundry,” which they had learned from the inter¬ At first, people thought they had taken the girls back to preter. Saigon. But it turned out later that they had carried them Suddenly one morning, while the disturbance was going to remote hamlets and left them there. Some hamlets on, the people woke up and found to their surprise that were secured, some were unsecured. The girls had to hire the school area was deserted. All the Americans had gone the local people to transport them back. Anybody who away during the night. The news spread quickly from envied the prostitutes their easy way of making money mouth to mouth. should have changed his mind. The girls could not bear “The Americans have gone, all gone. . . this dishonor. They cried so piteously that even indiffer¬ “Will they come back again?” ent people felt sorry for them. After all, they were After their departure, some people began to worry. Vietnamese citizens. They asked the local troops whether the Americans would return, and when the latter answered that they did not know, they began packing their things and leaving the hamlet. They were the people who had done business I HE Americans were very rich. If someone did not with the Americans or washed their clothes. They feared agree with this, it meant that he did not know anything at that without the Americans around, the Viet Cong would all about the American expeditionary troops. In their come to the hamlet at night and threaten their lives. base they had more than enough radios, tape recorders, All of a sudden, life at the hamlet returned to its old cameras, record players, cigarettes, tinned foods, and so tempo. Many were content at the sudden departure of the on. So whenever the troops went out on an operation, Americans. “It will be better thus,” they said. Fathers some of their belongings were certain to be stolen. The who had not dared to allow their daughters to go out of culprits were always the children and reckless gamblers their houses felt relieved. who had lost all their money. One day after many things The Americans had arrived suddenly and departed the had been stolen, the Americans lost their heads. They same way. During their two months’ stay, they had had no hope of catching the thieves red-handed, so they provided the hamlet with security. On the other hand, organized a house-to-house search with the help of the they had upset the whole pattern of life at the hamlet to local soldiers. the point where the villagers despaired of bringing life Early that morning, they deployed around the hamlet. back to normalcy again. The Americans had handed out All the inhabitants were told to leave their houses and let Salem and Pall Mall cigarettes to the youngsters and their houses be searched. The searchers were both Viet¬ taught them how to smoke. They had given the young¬ namese and Americans, but the operation confirmed sters a chance to see what debauchery was and some of many of the villagers in their belief that foreigners had no the children had become thieves. respect for their right of privacy. The Americans had fought in this hamlet a purely Some refused to leave their houses, arguing that if they military war with weapons and munitions. They had did not remain present during the search they would be ignored psychological warfare. g

FOREIGN SERVICE JOURNAL, April, 1971 41 The verdict—throughout Vietnam, at all levels, the overwhelming majority of FSOs are turning in distinguished performances.

Inspection and the CORDS Program

IN July 1970 I was detailed, along JAMES D. PHILLIPS by those deeply immersed in day to day activities. From their vantage with another FSO-4, Charlie Hig- Our FSO-4 Inspector entered the ginson, to the Foreign Service In¬ Foreign Service in 1961. He has point, the inspectors can get a more spection Corps. We were part of a served in Paris, Lubumbashi, Kins¬ objective impression of personal re¬ six man team sent to inspect Em¬ hasa and the Department. He lations, the flow of information up claims to have written about his and down the chain of command, bassy Saigon and the participation experiences at the insistent urging of FSOs in the Civil Operations of friends and colleagues. “Many and individual and overall morale. and Rural Development Support people," he reports, “at dinner In these areas, I believe, the middle (CORDS) program. parties, football games and on two grade inspector has much to con¬ occasions during the floorshow at tribute. He or she will be positioned Since my return in mid-Septem¬ the Cellar Door, have said things ber I am often asked how I liked to me like, ‘Ah, look Dan, I gotta better to pick up the unalloyed com¬ inspecting. I liked it! To paraphrase run. Why don’t you, ah, you know, plaints and concerns of the younger a recent Simon and Garfunkle song write it up for the JOURNAL, or officers and members of the staff. something?’ ” which says “I’d rather be a hammer Insofar as complaints, problems than a nail,” I’d rather inspect than and suggestions from the Mission’s be inspected. I recommend the ex¬ “boiler room” stem from real rather perience to other FSO-4s, and for for a test run because of the large than imagined inequities and unpro¬ that matter, to officers of whatever number of young officers serving ductive procedures, the more em¬ grade. there in the Embassy and in phasis they are given in the course CORDS. Charlie and I had the look The notion that younger officers of the inspection, the more likely it of middle-grade officers about us have a novel contribution to make is they will be corrected. and were forthwith signed on. as inspectors has been around for The contribution of a middle some time; mainly championed, it grade inspector in preparing individ¬ must be admitted, by younger A N inspection team, we found, has ual efficiency reports is more diffi¬ officers. However, the Task Forces two responsibilities; to inspect the cult to assess. A senior inspector’s picked up the idea and included it in post and to interview and write re¬ judgment on an officer’s per¬ their recommendations to Mr. Ma- ports on all Foreign Service person¬ formance is likely to be superior to comber. The assumption was that nel stationed in the country. The that of a younger inspector who will younger inspectors could establish first job in some respects is easier have less basis for comparison. rapport with younger officers at than the second. Moreover, a senior inspector whose posts and give their views more For the post, an inspection is like experience over the years with prominence in the inspection report. a visit from your mother-in-law. changes in the Department’s per¬ Also, that an inspector of the same Once you know she’s coming, you sonnel policies permits him a plus approximate age and grade as those just naturally sweep out the base¬ ga change . . . attitude, may in fact inspected might be better able to ment, try to organize the children offer better career guidance than a advise on career prospects than a and in general pull up your socks. less seasoned colleague. On the senior officer somewhat removed So it is with an Embassy. An inspec¬ other hand, junior officers probably from the most current trends. No tor should not find the visa files are more open with “non-establish¬ one suggested, and to my knowledge in a mess; the political section’s bio¬ ment” inspectors whose reports no one believes, that senior officers graphic reporting out of date; or the therefore may be more comprehen¬ haven’t been doing these things communicators running a numbers sive. more than adequately for some game. The real effort occurs largely There is no reason why the ad¬ time. Rather, the thought was that before the inspectors arrive. vantages of both approaches can’t middle grade officers might add a Nonetheless, certain intangibles be realized through discussion and new dimension to inspecting. that can profoundly affect efficient review of the junior inspector’s re¬ The Inspection Corps endorsed operations are often difficult to per¬ ports by senior members of the the idea and Vietnam was chosen ceive, let alone correct if necessary, team. We followed this procedure in

42 FOREIGN SERVICE JOURNAL, April, 1671 Vietnam and I believe it should be gee resettlement, agricultural de¬ I arrived in Hoi Thung District by followed in all inspections in which velopment, public administration, helicopter at seven o’clock on a middle grade officers take part, giv¬ education, public works, village self¬ Wednesday morning and was met at en the importance of the inspector’s development, information propa¬ the landing pad by Jack Smith, a 26 efficiency reports to an officer’s ganda, and other fields. year old FSO-7 on his first Foreign career and to the service. While CORDS is the responsibili¬ Service assignment. Smith is District In summary, I believe the experi¬ ty of the United States Military Senior Advisor at Hoi Thung, where ment was successful and should be Advisory Command, Vietnam he had been for about three months. continued. A detail to the inspection (MACV), the deputy for CORDS He is in charge of a four-man corps of two months seemed about is a civilian with the rank of Am¬ American team which consists of right to me for these purposes, and, bassador. This integration of mili¬ himself, an Army lieutenant and two obviously, a large post with numer¬ tary and civilian personnel is carried enlisted men. We drove in an aging ous younger officers is best suited down the chain of command so that jeep to District Headquarters, a mile for inspection by a team such as if a district senior advisor is a civili¬ outside a village of some 5,000 peo¬ ours. an, his deputy will be a military ple. My experience leads me to dis¬ officer and vice versa, at every level. District headquarters is a com¬ miss as groundless the conjecture (There are four military regions, 44 pound dominated by a two-story that top officers at posts and senior provinces and some 244 districts in building with thick, yellowing, con¬ inspectors would find it difficult to South Vietnam). crete walls, built in the 19th Century accept lower ranking colleagues in a Foreign Service officers and staff French provincial/official style. It is sensitive process of criticizing and may serve at any of these levels, the Vietnamese District Chief’s suggesting improvements, which is including CORDS headquarters just office and home and provides space the guts of an inspection. Charlie outside of Saigon. When we were for all the district’s administrative and I were accepted as full inspec¬ there, FSOs occupied the top jobs in offices. tors and everyone in Saigon and in two regions and six provinces, but In back of the headquarters the inspection corps offered assist¬ the majority were class seven, six building are two long wooden bar¬ ance and encouragment. and five officers serving at the dis¬ racks, a small wood and tar paper trict level. While a few FSOs had hut with a corrugated metal roof ONE of the most interesting parts specialized jobs, for example, agri¬ and a few outbuildings, including a of the inspection for all of us, I cultural or refugee advisors at the pig sty, several outdoor privies and a believe, was interviewing the For¬ province level, most were general jerry-built shower (rain water is eign Service Personnel in CORDS. advisors, which means their jobs ingeniously supplied through perfor¬ An inspector visited each of the 60 consisted of working closely with a ations in a 50 gallon oil drum FSOs and FSSOs in the program at Vietnamese counterpart, a district mounted on a wooden platform). their places of assignment through¬ chief for example, responsible for The compound is enclosed by a out Vietnam. In this way we were the whole range of development and crumbling wall, sand bags and exposed in some depth to Foreign pacification programs. barbed wire. Rising out of the rice Service participation in CORDS and It is impossible to generalize paddies and surrounded by clusters to the program itself. about how FSOs in CORDS live and of peasant huts, it is as one imagines The CORDS program was estab¬ work. A junior officer’s experience a very primitive, fortified, medieval lished four years ago to coordinate will be quite different from a senior fiefdom might have looked. Life in US civilian and military pacification officer’s. Conditions vary widely the compound, I discovered, may and development efforts in Viet¬ throughout Vietnam; in some places not in reality be very different. nam. The organization and the pro¬ physical security presents no prob¬ In addition to the District chief, gram have their roots in the concept lem, in other places it is of para¬ most of the district functionaries and that development of viable economic mount concern. As far as jobs go, their families live in the compound. and administrative institutions must each officer must establish his own In all, some forty adults and chil¬ go hand in hand with securing the modus operandi with his Vietnam¬ dren occupy the two barracks, and country from terrorist attack, and ese counterpart and define his prior¬ Smith and company live in the small that the integration of military and ities accordingly. shack, or, as it is called, team house. civilian command is essential to An assortment of dogs, chickens, achieve this goal. CORDS, it should pigs and goats must be counted as be emphasized, is not a United THE following account of a day I part of the official family. States effort to pacify and rebuild spent with one young officer in the The team house is basically one the country for the Vietnamese or Mekong Delta, therefore, is not room divided by a plywood partition on their behalf. Rather, through meant to portray an average work into a sleeping area and a kitch- CORDS, scarce resources and ex¬ day in CORDS or to be representa¬ en/“parlor” area. Each man has a pertise are provided to bolster and tive of all district level jobs. It is, space about six by six feet square compliment South Vietnam’s own however, representative enough to for a bed and footlocker. There is a security and development efforts. To give the flavor of life and work in stove, icebox, dining table, a couch this end, CORDS officers work with Vietnam for a fair number of junior and one easy chair on the kitchen Vietnamese counterparts at the dis¬ officers in the program. The officer’s side of the partition. There are no trict, provincial, regional, urban and name and the name of the district other amenities such as air condi¬ national levels in public safety, refu¬ are fictitious. tioners, overhead fans, or bathroom

FOREIGN SERVICE JOURNAL. April, 1971 43 sinks. It is not representational namese official from the compound housing! negotiated a new site for the house Smith offered me instant coffee, with the peasant owner and the tinned milk and Spam by way of hamlet chief and arranged for the breakfast, which I ate with the other manpower to rebuild it. members of the team. Lunch con¬ When I left Hoi Thung that eve¬ sisted of essentially the same menu ning around five o’clock, Smith and supplemented by a few fresh vegeta¬ over the fortifications and discuss his deputy were getting ready to bles. The motor on the team’s Bos¬ security. These local para-military accompany the district chief on an ton Whaler was out of commission volunteeers confirmed in every case inspection of the military guard and no one had been able to go up that all was quiet on the military posts in the central part of the dis¬ the canal that week to the provincial front. trict. capital to replenish supplies. After At the temple, we were intro¬ In spite of the primitive living breakfast, I was introduced to the duced to a loft where the head conditions and separation from his district chief, an Army major. He bonze has a sort of reception- family, Smith’s morale was high. gave me a short briefing which meditation room and were given Like so many of his colleagues in Smith translated, relying on the Vi¬ more tea. The bonze was interested CORDS, he is in the tradition of the etnamese he learned at the training in Smith’s views on the forthcoming young Americans Who went to war center in Washington where he senate elections, in which the Bud¬ thirty years ago, with no love for studied for a year prior to his assign¬ dhists had fielded a slate. war or the military, but with the ment. He said he came to Vietnam He also suggested that the district common-sense, energy and “cool” to with an FSI-rated 2-f-, which must chief would be well advised to be highly effective in the jobs they be much improved by now, as he provide the temple with one of the were assigned to do. uses the language constantly. television sets he had heard the gov¬ Despite many frustrations, our Smith, a Vietnamese military ernment was placing in rural gather¬ young colleagues in CORDS for the officer on the district staff and I ing points, as his temple was a pop¬ most part feel they are making a then toured the district by jeep. ular meeting place for the outlying useful contribution to the well-being Only the officer carried a gun, and villagers. Smith promised to pass on of the Vietnamese people. They are that pro forma, because the district this information to the district chief. deeply involved in their jobs and for the most part has been pacified (Smith said that one of the more derive great satisfaction from the for over a year. There are no large dicey but fascinating aspects of individual “human victories” they unit United States forces in the dis¬ CORDS is acting as liaison between achieve, sometimes in a setting de¬ trict, although there is a US military various elements of Vietnamese so¬ void of cause for over-all optimism. helicopter center and some logistic ciety and government.) Not many will re-up for a second personnel at the provincial capital. Back at the team house after CORDS tour, but fewer still will Our first stop was a village about lunch, Smith reviewed with his team regret their first. fifteen miles from headquarters their activities of the day. He and As indicated earlier, Smith’s ex¬ where a large well had been built the lieutenant worked on a report on perience is representative only of with village self-development funds. security in the district which they life at the district level. In province We looked at the well, which was planned to discuss with the Viet¬ and region headquarters, living con¬ indeed pumping away, and were namese district chief the next day. ditions are better, in some cases very given tea by the village chief, an The report was based on their visits much better, and the accent in high¬ elected civilian- Smith took note of over the past month to each of the er ranking jobs is on management several projects the chief proposed villages and hamlets in the district rather than operations. In one prov¬ to undertake with self-development and would be sent to CORDS head¬ ince we visited, an FSO-3 directs funds if more became available quarters in the provincial capital. the activities of more than two hun¬ from the central government. He The father of a young man who dred Americans, including three promised to discuss them with ap¬ had stepped on a land mine came lieutenant colonels. His job is analo¬ propriate district officials. The chief around to ask Smith’s help in getting gous to an ambassadorship in a then gave him a run-down on local into the US military hospital in the medium-sized, very active embassy. security and political conditions. province capital where his son had (Most province teams are on this (Smith didn’t bother to translate, been taken for treatment. Smith got scale and fourteen FSOs presently respecting perhaps my keener inter¬ the CORDS province senior advisor serve as either Province Senior Ad¬ est in local customs at that moment on the radio and asked him to ar¬ visors or Deputy Province Senior finding expression in the activities of range access to the hospital for the Advisors. For them, CORDS is an a group of very attractive village father. experience in program management women washing clothes at the canal Later that afternoon we visited a par excellence.) bank.) school undergoing renovation as Throughout Vietnam, at all part of the joint United States/Gov¬ levels, the overwhelming majority of WH proceeded next to call on a ernment of Vietnam development FSOs are turning in distinguished prominent Buddhist leader at a tem¬ effort. Construction of a new wing performances. Their efforts, I be¬ ple fifteen miles down the dirt road. was being delayed because the ex¬ lieve, will be a source of pride and En route we stopped at several tension necessitated tearing down an strength to the service in the years to “people’s self-defense posts” to look adjacent house. Smith and a Viet¬ come. ■

44 FOREIGN SERVICE JOURNAL, April, 1971 “The horror of that moment,” the King went on, “I shall never, never forget!”

“You will, though,” the Queen said, “if you don’t make a memorandum of it.”—Lewis Carroll

On Being Relevant— and Effective

I^IAT bureau never gets anything JOHN D. STEMPEL ative estimate), then a seven-layer up on time, and when it does it’s Mr. Stempel served as Staff As¬ bureaucracy (such as State’s) will terrible!” sistant to Under Secretary Elliot spend at best 53 per cent of its “Those bastards upstairs don’t Richardson for 18 months and working time on tasks relevant to know what they want, and never helped manage the transition for the top echelon. give us enough lead time!” Under Secretary John N. Irwin II before assuming his present post The Department is no exception Such diverse attitudes, represent¬ as Ghana Country Officer. A mem¬ to this rough rule of thumb. In fact, ing top level and working level ber of two Macomber Task Forces conditions may be worse here, since views, are the principal daily (M anagement Evaluation and the bureaus, rather than the princi¬ manifestations of the difficulty in Training), Mr. Stempel also teaches pals, are the focus for so much improving working efficiency and a course in international politics at George Washington University. activity. If State’s role is to coordi¬ making the State Department “rele¬ nate foreign policy, and its princi¬ vant for the Diplomacy of the pal organs of action are regional ’70s.” Broader concerns and nar¬ bureaus with narrow focus, then we rower preoccupations do interact should not be surprised that we’re and affect day-to-day operations in less than 100 per cent effective on the foreign policy establishment. problems that cut across bureaus Begin with two curious facts: 1) and departments. This weakness in according to the Foreign Service our internal organization is doubt¬ Institute Executive Studies Section, less what led several of the Ma¬ FSOs are quite bright individually, differ radically from those of any comber Task Forces to recommend but neophytes organizationally. We bureau. In short, there is a percep¬ an expanded and reinforced Plan¬ write great position papers; unfor¬ tion gap which results in a great ning and Coordinating Staff in one tunately, we don’t work together as deal of wasted energy and in confu¬ form or another. well with our fellow men. Our “he¬ sion which causes delays. When “working” loyalties (as roes” are the bright reporters and Furthermore, the fault may lie as opposed to “ultimate” loyalties) are the penetrating analysts, not those much with the senior officials and to Assistant Secretaries rather than who excel in inducing people to their staffs as it does with the bu¬ to the principals, it is almost inevi¬ cooperate. reaus. table that the working levels will 2) Although public administra¬ see the Seventh Floor in one of two Structural Problems tion theory says the State Depart¬ ways: as interference with their ment works to serve the Secretary One student of bureaucracy has own operation (“we were doing and the President, the distinctive estimated that if each layer of a fine until the Secretary got into the views of Seventh Floor principal bureaucracy has to spend only ten act.”) or as “heavy artillery” to officers and their staffs about bu¬ per cent of its time on tasks related wheel into place to demolish some reau efficiency and paper output to the layer just above it (a conserv¬ other dissenting bureau or depart-

FOREIGN SERVICE JOURNAL, April, 1971 45 ment. (What? Defense won’t agree Secretary Samuels doesn’t have to in the way. Frequently top men to another extension? Well, dam¬ know the history of the gold stand¬ themselves say, “The State Depart¬ mit, we’ll just have Alex Johnson ard since 1901 to tell the Ruri¬ ment should not make recommen¬ call Dave Packard—that’ll fix that tanian Ambassador the United dations in terms of domestic pol¬ little snot over in Military Sales States cannot give his country di¬ itics.” Often this is mistakenly Records!”) rect budget support (Samuels may taken to mean that the Department Easing this inevitable circum¬ have even written a definitive work should show no political sophistica¬ stance is not simple—bureaucracies on the subject in his prior incarna¬ tion in planning a given action. have been wrestling with achieving tion) . Principals delude themselves if they Heavenly Harmony since the Ming Look again at that memo to the really think this. Most don’t— Dynasty. All large organizations Secretary written yesterday—does they’re only trying to say, “give us have these problems. The answer, it suit his (as opposed to your) the best you can on the merits of if there is one, is better understand¬ needs? Historical background is fun the case.” ing by both high and low echelons of and sometimes useful, but consider¬ There is no better way to destroy each other’s differing needs and pur¬ ing all the unpaid overtime worked organizational or personal credibili¬ poses. This appears to fly in the face around State anyway, it’s hardly ty than to recommend something in of conventional beliefs. The Secre¬ essential—and worst of all, proba¬ the foreign policy field which will tary directs, the bureaus do; (or, bly harmful. exacerbate the already gigantic ours is not to reason why . . .). Suc¬ On the other hand, country problem of an irate governor with¬ cessful managers and effective work¬ officers have a legitimate complaint out, at a minimum, explaining that ers, however, are those who know when they are asked to produce a problem exists. Hopefully, those what the real (as opposed to the complex statistical tables or long recommending the action will also formal) requirements of any job are. interpretive pieces on short notice. have thought of a way to neutralize or mitigate the difficulty. Contro¬ No smart country director will There may be reasons for the time order his staff to prepare a country pressure; many times they are versies over fishing rights and tariffs policy paper overnight; no smart nothing more than the whim of a are good examples of this type of desk officer would stall for days senior official. problem—each affects domestic pol¬ before supplying some simple facts Any officer in a supervisory posi¬ iticians directly. Others’ reactions in response to a request. Any Assist¬ tion does well to allow time for the are simple: If the State Depart¬ ant Secretary who plans to be out necessary work and writing, ac¬ ment is so stupid about a sensitive of the building most of the day had cording to the complexity of the domestic situation, what kind of dam well better authorize one of task. A simple request for the pop¬ major catastrophes are being ig¬ his deputies to sign off on routine ulation growth figure of Rwanda nored abroad? Perhaps an unfair, briefing papers and staff studies or may require minutes to find. An but not an unheard of, comment. risk his whole bureau coming to a analysis of trade trends between Drafting and approving officers screeching halt—to the accompani¬ Botswana and South Africa may also face the “pit and path” prob¬ ment of private denigrating snorts require a week or so of digging lem. How far should a proposal go from the principals (and perhaps (bearing in mind, of course, that in outlining rejected options and occasionally, the Oval Office!). the flow of leader grantees and the hidden problems? Should the prin¬ Robert Townsend’s “Up the Orga¬ demand for other papers has not cipal be shown all the pitfalls, or nization” is a lively, provocative ceased). Failure to make these simply be led down the chosen path place to start, if you are unfamiliar kinds of calculations both injures to a conclusion? Personal styles with executive sense and nonsense. the reputations of those who have differ—one individual prefers to erred and results in an inferior prod¬ see an agreed-on option for his Content and Presentation uct. signature; another wants to see “Why, these papers treat me as A badly-done memo, or one that several options and make the if T were Mortimer Snerd!” This is needlessly late, does even more choice himself. comment, by a former Vice Pres¬ pernicious harm: it puts off the Providing a thoroughly adequate ident, underlines the first basic principal officer, making him less paper is complicated by disagree¬ problem: hitting the proper level of receptive to work from the same ments between organizational units. generality and usefulness to the source. A succession of memos that Dozens of studies have complained person for whom you are writing. miss the mark—and suddenly X- that State Department papers fuzz If senior officials have a single Bureau, or Y-Department is no over disagreements. This is not complaint, louder than the rest and longer in the ball game. As one unique; it happens in every gov¬ shared wholeheartedly by their White House staffer, referring to the ernment department and most large staff men (who take the fanny- National Security Council, says, businesses and philanthropic or¬ chewing when things are not right), “Anytime State wants to have its ganizations. Most (and all the best) it is that memos are much too say, all you need to do is send over senior officials prefer a paper detailed. The Under Secretary a timely, first-class piece of work, which highlights gaps in informa¬ doesn’t need to know the entire tuned to the President’s needs.” tion, ignorance, and uncertainty on history of the Zambesi River claim (italics mine). the subject. Principals are busy dispute to mention it casually to the A corollary problem here, a men—the time pressures on them Foreign Minister. Deputy Under much quoted myth, sometimes gets (Continued on page 57)

46 FOREIGN SERVICE JOURNAL, April, 1971 Chadwin’s account of the campaign conceived and plotted at the Columbia Club in 1940 by a dozen men dedica¬ ted to changing America’s mind and ultimately to “educating” the Ameri¬ can people to the necessity of active participation in the war against Hitler. Chadwin’s book is fascinating for the details it gives of how a relatively the weapons and warriors met with small group in 1940 and 1941 coaxed MILITARY MEN, by Ward Just. Knopf, in Wells’ treatise are not those to be large segments of America from isola¬ $6.95. found in the sophisticated games tionism to interventionism. The book scenarios of our time. But though will also help a younger generation to THIS book is an up-to-the-minute these elaborate latter-day productions get a new dimension on the deep- journalistic (in the better sense of the are doubtless very suitable for the pur¬ seated appeal that preparedness holds adjective) study of the men who serve poses of the artful fellows who make for millions of Americans, with or in the United States Army. It is based a living out of putting on such shows, without brainwashing propaganda primarily on well executed interviews it is by no means clear that war gam¬ from the military-industrial complex. with many categories of Army person¬ ing practice has been greatly improved Foreign Service readers will find nel, from sergeants and West Point since 1913, when Wells wrote this particular interest in Chadwin’s des¬ cadets to senior generals. Despite its charming and light-hearted treatise of cription of the role—among the flaws, which include an unnecessary the games men play with lead soldiers twelve “conspirators” at the Columbia use of obscene language, a hasty edit¬ and toy cannons. Make a note, then, Club—of a Virginia gentleman and ing job and a reluctance to give Gen¬ of “Little Wars” as an ideal gradua¬ World Council of Churches activist, eral Westmoreland anything more tion gift for War College and Senior Francis Pickens Miller. Mr. Miller than token criticism for his uneven Seminar Students. For they are most later became a senior official in CU performance in Vietnam, the book is likely to be in need of such a reminder in the Department of State. It was Mr. to be recommended. The Foreign Serv¬ of the frivolous origins of so much of Miller who suggested the hawkish title ice audience can never learn too the military doctrine they have lately for Chadwin’s book. much about their military contem¬ been exposed to. —D.N. poraries and their ascending role in -—THOMAS A. DONOVAN the administration of foreign affairs. Atlanticism Primary emphasis of the book is The Way of War THE ATLANTIC FANTASY: The U.S., upon the training, promotion, assign¬ THE PENTAGON PROPAGANDA MACHINE, NATO, and Europe, by David Calleo. ment and development of career by Senator J. W. Fulbright. Liveright. Johns Hopkins Press, $2.95 in paper. officers and their varied reactions to a $4.95. changing professional environment. THE HAWKS OF WORLD WAR II, by Mark ACCORDING to Calleo, Atlanticism is a The relationship between State and Chadwin. University of North Carolina pernicious spell, misconceived and de¬ Defense is touched upon lightly. The Press. $7.95. ceptive. Were it not for this fantasy, book is a perceptive analysis of the which Hobbesian bureaucratic djinns career, moral and social dilemmas I F Senator Fulbright read the book or in Washington are still energetically faced by the contemporary profes¬ saw the movie version of Max Shul- sustaining, our European allies might sional soldier. The author is sensitive man’s “Rally Round the Flag,” did he no longer be “huddled together, rusti¬ to the aspirations of career military laugh? Well, that was in the days cated in the NATO fortress, while the men and is sympathetic to their need when the public thought military pub¬ absent commander has frequent and to resist alienation from civilian soci¬ lic relations was a delicious subject for lingering visits with the enemy.” ety. The work is the result of several humorous satire. Whoever those gray eminences in years of close relationship with the The laughter is gone and Senator Washington may be, they are said to Army as a reporter and contains Fulbright comes on now like a latter- prefer a US/USSR duopoly, with its many observations which would also day Jonathan Edwards in a new tract promise of condominium, to an auton¬ apply to the Foreign Service. I hope exposing the military’s “brainwashing” omous Europe. Not only is our bu¬ that Mr. Just might spend a few years of the American silent majority. reaucracy addicted to time-tested po¬ interviewing FSOs and produce a The Senator’s revelations of the litical placebos like NATO, Calleo ar¬ book of comparable perceptivity Army’s audacious program to sell the gues, but American financial over-ex¬ about that corps. Sentinel ABM program are compel¬ tension and deficits complement the —JOHN W. STEPHENS ling and disquieting. So are his cita¬ syndrome, as do European timidness tions of some of the more egregious A War Games Classic and a general American preference military transgressions into the field of for federative polity in international LITTLE WARS by H. G. Wells, with an political indoctrination. Yet one won¬ affairs. appendix on Kriegspiel. Macmillan. ders how far to go along with such Instead Calleo would have our Eu¬ comprehensive v i e w i n g-with-alarm ropean allies organize their own col¬ CONNOISSEURS of the fatuities of when we are invited to see something lective defense. Our fears of a Finland- war gaming as practiced in the De¬ sinister in the Army’s Home Town ized Europe, prone before the Soviet partment of Defense and in other News Center spending half a million colossus, are exaggerated. Calleo en¬ equally easily bamboozled agencies dollars a year telling Mom’s neigh¬ thusiastically catalogues France’s at¬ and departments of state will find this bors that her son is well and the Army tempts to rip away the veil before the facsimile reproduction of H. G. Wells’ is looking out for him. grand illusion of Atlanticism. classic foundation stone of war games There is a legitimate perspective to Whether or not we are as jealously literature an agreeable addition to be gained in reading “The Pentagon feudal in our attitudes toward NATO their libraries. In the nature of things, Propaganda Machine” alongside Mark Europe as Calleo contends, his book

FOREIGN SERVICE JOURNAL, April, 1971 47 does represent a provocative attempt question I had set myself. I had not the two nations (in terms of art, reli¬ to construct a priori alternatives to found the key to development.” Sur¬ gion, politics, economics, etc.) and some general lines of policy that the prise, surprise! Clearly this book is his projections for their future. US has steadfastly held to because must reading for any junior high In the case of the United States, the they have proven empirically right. school student who has an interest in influence of individualism is traced in NATO is in fact moving cautiously in India. the nature of the US political system, the direction Calleo suggests, as evi¬ Merillat, on the other hand, has the workings of criminal law, the con¬ denced by the independent action tak¬ produced a useful, dull work, re¬ duct of foreign policy, and the waging en by the European caucus last fall to warding to those who can stay awake of war; it is found in relations between begin sharing more of NATO’s finan¬ through its most pedestrian accumula¬ parents and children, the cult of youth cial burden with the US. tions. The author focuses well and and the fate of age, the concepts of Instead of such hesitant first steps, long on the land and the law, which success, and other areas of human in¬ however, Calleo boldly recommends a even fudge Bean, in his attempts to teraction. Individualism explains, Hsu US military withdrawal and the steal the Pecos region, would under¬ avers, why competition permeates creation of a European nuclear de¬ stand. As do the Indians. “Property! American life—the determination not fense force to supplement the Europe¬ At the mention of the word, according only to keep up with the loneses but ans’ already quite impressive conven¬ to an old Indian saying, even a corpse to surpass them. tional capabilities. In the absence of will sit up on its bier.” Merillat, more¬ A deep insecurity haunts Americans true European federalism, Germany over, tries hard to weave in the setting —an insecurity that stems from de¬ could be associated in Europe’s nu¬ of his legal analysis, realizing that pendence on self, or the nuclear fam¬ clear planning (as it now is in NATO’s such a problem is the focus of many ily. This anxiety expresses itself, too, Nuclear Planning Group) without forces. But where Nossiter finds the in the world arena, where Americans bearing nuclear arms. Under such cir¬ soft state and a depressing conclusion, strive to be first in everything: first in cumstances, he continues, the Rapacki Merillat gives us an encouraging pic¬ power, first in wealth, first in arma¬ Plan for a nuclear-free zone in the ture of a country groping through ments, and first on the moon. two halves of Germany, Poland, and legal contention and political strife for Is America a mistake? Unique in the Czechoslovakia might even become the balance between individual rights American national experience, millions acceptable to the West. and public needs. It is unfortunate of Americans today are troubled with But what would be the conse¬ that Nossiter coudn’t have written misgivings about their way of life and quences for Germany’s politics of con¬ with the more sustained insights of its future; much of mankind is anxious currently sterilizing it of nuclear Merillat or that the latter couldn’t with forebodings about US power, weapons and Americans? Would it not have had some of the Nossiter zip in and its uses. Hsu sees the core of our be effectively neutralized? Calleo does his prose. But then there are critics problems today as a “crisis of inter¬ not carry his analysis far enough in who wish the Bhagavad Gita had been personal relationships due to runaway this regard. more carefully edited. individualism.” He does not see the -—THEODORE S. WILKINSON —WILLIAM A. SOMMERS answer in our exchanging a “material¬ Two on India istic”’ orientation toward life for a A Superb Comparison SOFT STATE, A Newspaperman’s Chroni¬ “spiritual” one. It is not a choice be¬ cle of India, by Bernard D. Nossiter. AMERICANS AND CHINESE, by Francis L. tween a spiritual or a material empha¬ K. Hsu. Natural History Press, $12.50. Harper & Row, $5.95. sis but between “the central impor¬ LAND AND THE CONSTITUTION IN INDIA, THE eminent professor of cultural an¬ tance attached to human relationships by H. C. L. Merillat. Columbia Univer¬ in the one, resulting in the mutual de¬ sity Press, $10.00. thropology. Francis L. K. Hsu, was reared in China but has lived in Amer¬ pendence of men, and the attempt to escape them in the other.” As we must H ERE are two books on India as ica some twenty years. In his pano¬ contrasting and divergent as the coun¬ ramic magnum opus, “Americans and all live with other human beings, we try itself. Bernard Nossiter, the Wash¬ Chinese,” he focuses on the lives, need to relate to each other not in terms of how useful one is to the other, ington POST’S knowledgeable reporter, views, and activities of common men sees India as the soft state and his rather than men of distinction or au¬ but how much feeling one has for the quick, punchy style frames a discour¬ thority. A central theme is the root other. Loneliness and isolation, mis¬ aging conclusion: causes of numerous, sharp differences trust, hatred, violence, and separatism “Without a change in values and between the two peoples. are some bitter fruits of a society held attitudes, one that insists on the Chinese and American ways of life, together principally by the usefulness dignity of man and worth in life, he finds, may be reduced to two sets of of its members rather than by their it is difficult to see how the soft contrasts. First, in the American, em¬ feelings for each other. “Therefore, state will quicken, how social dis¬ phasis is on the individual’s predilec¬ when concerned Americans speak of cipline will evolve.” tions—in the Chinese, on the individ¬ improving the quality of the life of the But the well balanced, easily read ual’s appropriate place and behavior individual, they should be thinking of prose envelopes more than its share among his fellows. The second basic improving the quality of the interper¬ of self-serving realities, canards and dichotomy is the prominence of emo¬ sonal life for the individual instead.” thumpings of gone goblins. Must we tions in the American life style as com¬ It would be hard in these parlous adopt his assumption (why does he?) pared with the Chinese tendency to times to point to a more portentous that in talking to villagers “I think-— underplay feelings. and ominous, issue for Americans and perhaps naively—I did get through These differing fashions of life—the Chinese than their bad relations with more often than not, that I received individual-centered American and the each other. This tragedy reinforces the more or less accurate answers.” Yet situation-centered Chinese—are at the timely significance of this superb com¬ without this unconvincing certitude core of the problems which plague parative study of two great peoples, a the book could never have been writ¬ each society, such as racial intolerance work of magnificent scholarship and ten. Or, concluding in a stage whisper, in America and poverty and bureau¬ an effective contribution to Sino-Amer¬ Nossiter reveals that “I came away cratic oppression in China. This con¬ ican understanding. from India without an answer to the trast is the key to Hsu’s discussion of —ROBERT W. RINDEN

48 FOREIGN SERVICE JOURNAL, April, 1971 Moving the News his opponents. about. Thus “Bitter Lemons” is based THE INFORMATION MACHINES, Their Im¬ Despite the praise from the respec¬:- on a stay of several years, as a private pact on Men and the Media, by Ben H. table William Buckley in the book’s’s citizen and member of the British Bagdikian. Harper and Row, $8.95 introduction, one gets the feeling thatit information service, on Cyprus. “Pros¬ Mr. Coyne does his cause a great THE author, Assistant Managing Edi¬ it pero’s Cell” and “Reflections on a Ma- tor/National Affairs for the Washing¬ disservice. The tone of the book iss rine Venus” are the result of prolonged frequently arrogant, petty and carp¬ ton POST, has had a long and distin¬ i- and idyllic living on the Greek islands guished journalistic career, including ing The academic world and its pro¬i- of Corfu and Rhodes. “The Dark fessors are heavily discredited with stints on the Providence JOURNAL (as h Labyrinth,” an early novel, owes its a reporter, foreign and Washington the images of the stupid professorr marvelous descriptive passages to correspondent) and as a contributing pushing a shopping cart in the “out” Durrell’s stay with friends on Crete. door of a supermarket, and the dirty editor to the SATURDAY EVENING y It is no surprise, then, that Durrell POST. old professor lusting after his mini- agreed to co-operate with an old This is a thoughtful, detailed, two skirted students. Yet Coyne himselff friend and one of his earliest publish- year study sponsored by the Rand seems obsessed with the braless leftistt ers, Alan G. Thomas, who wanted to Corporation where Mr. Bagdikian ex¬ women and the fornicating and de¬ collect in one generous volume a se¬ amined the impact of present and fecating stray dogs on the campus. lection of letters, essays, poems, and future technology on the news. The There is also the frequent personal1 short pieces of fiction with the under¬ study included probing examinations depreciation of the campus protesters. lying theme being the importance of seven newspapers, an equally pene¬ Eldridge Cleaver is described as “anl which Durrell attaches to “the unmis- trating inspection of newscasts in a evil man, a rapist and a killer whose; takable signature” of a town, an is¬ typical American broadcasting mar¬ mind has managed to project its sick¬ land, or a country. ket, and gathering the opinions of ness into society.” One dissenter “wan¬ The result of Thomas’s careful re¬ computer experts, economists and so¬ ders forward menacingly (with) search is not only a windfall to Dur- cial scientists on the subject. thighs nibbing together inside too> rell devotees, but also an excellent Mr. Bagdikian is a felicitous writer tight pants.” introduction for new readers to the with an eye for the humorous, such as If a fair refutation of “The Straw¬ work of one of the finest living writers tracing the history of moving news. berry Statement” is to be written, it in the English language. The book is He remarked that pigeons “were fast¬ will have to await something more: “Spirit of Place,” a title evidently er than horses, but they were also tasty than a sour kumquat. chosen from the remark by Durrell in more succulent: the eighteenth- —PETER P. CECERE a leading essay (“Landscape and century pigeon is more convincing A Trip Worth the Effort Character,” p. 156) that “as you get than Marshall McLuhan that the SPIRIT OF PLACE, by Laurence Durrell. to know Europe slowly, tasting the medium can be the message.” E. P. Dutton, lllus. by 8 paintings by wines, cheeses and characters of the —DONALD DRESDEN the author. different countries you begin to realize that the importance of any culture is, LAWRENCE DURRELL achieved liter¬ Strawberries vs. Kumquats ary fame in 1958 with the publication after all—the spirit of place.” THE KUMQUAT STATEMENT: Anarchy in of “Justine,” the first volume of the In this book, Durrell has captured the Groves of Academe, by John R. the spirit of such places as Corfu, Coyne Jr. Cowles. Alexandria Quartet. The eminent crit¬ ic and author Richard Aldington Greece, Egypt, Rhodes, Yugoslavia, called the early volumes of the Quar¬ Cyprus, Delphi, the Rhone Valley, A s the title implies, “The Kumquat Avignon, Provence, Grenoble, and Statement” is the conservative an¬ tet “something pungent and original which will certainly endure.” Gascony. Going with Durrell is a trip swer to Janies Kunen’s “The Straw¬ well worth the effort. berry Statement.” The book deals Other British and Continental re¬ —CLINT SMITH with campus unrest at Berkeley— viewers had the highest praise for the kumquat trees grow there. Pointing Quartet, while in the United States the Another View of Hiroshima SATURDAY REVIEW called these novels out the unsavory aspects of contem¬ THE PRISONER AND THE BOMB, by Laur¬ porary US campus unrest is an easy “one of the major achievements of ens van der Post. Morrow, $5.00. task—radical students’ arrogance, dis¬ fiction in our time.” respect, violence and slovenliness are It is noteworthy that the evocative IF you were one of 400,000 captives no news and legitimate targets. But style and careful craftsmanship which of a fanatical Japanese Field Marshal were so highly praised in these works the author, a staffer on the NATION¬ who planned to massacre all of his are hallmarks of almost all of Dur- AL REVIEW, sets up his straw men and charges as soon as his Southeast Asia rell’s writing. When forced by person¬ situations and knocks them down. areas of command were invaded by the al circumstances to produce works of Allies, you might not consider totally Politics aside, there are many dis¬ a more popular nature, such as the turbing aspects about Coyne’s book. inhumane the use of the atomic bomb three humorous books on diplomatic one month before that planned in¬ The left’s approval of civil disobedi¬ life, “Esprit de Corps,” “Stiff Upper ence is somehow made to seem re¬ vasion took place. That is the theme Lip,” and “Sauve Qui Pent,” Durrell of Laurens van der Post’s slim vol¬ sponsible for political assassinations. has seemed constitutionally incapable Why the bloody Tate murders are ume, “The Prisoner and the Bomb.” of abandoning that splendid quality— Having watched his fellow prisoners mentioned at all is a good question. a style which successfully evokes the dying of malnutrition in a land of Coyne’s anti-intellectual bias is obvi¬ spirit of places and characters. plenty, while others were casually used ous; one wonders why he ever both¬ Nowhere is this more true than in for target practice or brutally tortured ered to stay in the distasteful world of his “travel books,” which, as an early or beheaded, Colonel van der Post academia for his three earned de¬ admirer, Henry Miller, pointed out, had no reason to doubt the smuggled grees. For a man who hates leftist should be called his “residence intelligence of a planned massacre. violence, he shows some similar tend¬ books,” since they are almost invaria¬ Remarkable is the fact that despite encies of his own—he figuratively bly based on a long and comfortable this harrowing experience in Java (we are to assume) wants to punch stay in the places Durrell has written prisons, van der Post can write as sym-

FOEEIQN SERVICE JOURNAL, April, 1071 49 pathetically about the Japanese as he misdated. The suggestion that the the first five years of Hitler’s period, did in his “Portrait of Japan” two “mediocrity” of the present Soviet Weinberg writes: “a jovial person, years ago. However, van der Post is leaders was connected in some way inclined to take his vacations more a remarkable man as well as a beauti¬ with their ability to survive or rise seriously than his official responsibili¬ ful writer. The latter beauty is found under Stalin is clearly debatable. ties, Neurath was no hindrance to Hit¬ even in such a harrowing tale as this Khrushchev, for whom Shub appears ler’s ambitions.” The former cham¬ one. He will, we hope, eventually bring to have considerable sympathy almost pagne salesman who succeeded him in us his promised “Mountain and the bordering on affection, also survived 1938, Ribbentrop, was described as Moon,” containing the totality of his and progressed in Stalin’s lifetime. “capable of great perseverance but long and varied experience with the Shub’s partisanship, which tends to little insight ... His view of diploma¬ J apanese. reduce his objectivity, is suggested in cy was as primitive as Hitler’s; the —AL STOFFEL such practices as when he compares suggestion that the way to make Win¬ Soviet consumer goods production to ston Churchill more friendly to Ger¬ The Ghost of Stalin a “mouse” and the output of heavy many was to give him a substantial AN EMPIRE LOSES HOPE: THE RETURN industry to an “elephant.” Such an¬ bribe reflects accurately the approach OF STALIN'S GHOST, by Anaiole Shub. alogies might be permitted to poets of both.” Norton, $10.00. but hardly to serious observers or A final note: The book is attrac¬ commentators. tively designed, the type face used for IN Eastern Europe, as elsewhere, the —VLADIMIR P. PROKOFIEFF chapter headings abstractly suggesting decade of the sixties witnessed a German posters of the 1930s. It is one sharpening of the struggle between Germany Under Hitler of a series of books on modern Euro¬ change and rigidity, relaxation and THE FOREIGN POLICY OF HITLER’S pean history of unusual quality pub¬ control, the individual and the state, GERMANY: Diplomatic Revolution in lished in recent years by the Universi¬ and the present with the past. How¬ Europe 1933-36, by Gerhard L. Wein¬ ty of Chicago Press. ever, the outcome of the struggle ap¬ berg. University of Chicago Press, —FREDERICK QUINN peared more uncertain there than in $12.75. other parts of our planet where flexi¬ An Asian Monarchy bility in organizing and directing | T is rare that the adjective “brilliant THE POLITICS OF NEPAL: Persistence and societies contrasted with the tight describes a volume in diplomatic his¬ Change in an Asian Monarchy, by Leo E. control generally characeristic of Com¬ tory, but the word aptly characterizes Rose and Margaret W. Fisher. Cornell munist-dominated states. Gerhard Weinberg’s recently pub¬ University Press. Anatole Shub addresses himself to lished study of the foreign policy of this struggle in his new book and, Hitler’s Germany. FEW countries are more inscrutable although the title would seem to ex¬ Weinberg, who is professor of his¬ to Americans than Nepal, a remote clude the possibility of development tory at the University of Michigan, mountain kingdom which has never along new lines, describes some of Ann Arbor, combines both long famil¬ been colonialized by Western powers the forces at work which should lead iarity with the source materials for his and is still relatively free of Western to an amelioration of the more re¬ study which include captured German influences. This book scrutinizes the pugnant features of Communist rule. foreign office documents, with a keen inscrutable, and succeeds in illuminat¬ The book, however, tends to under¬ ability to sort out the important from ing it without making it seem any the score the influences frustrating evolu¬ the trivial. In a remarkable chapter, less exotic and intriguing. The authors tion of the Eastern European states “The World Through Hitler’s Eyes,” provide a sprightly account not only into pluralistic societies. he discusses the origins of Hitler’s of Nepal’s politics but also of its A happy combination of data ob¬ ideas on foreign policy. History was a history, geography, ethnic composi¬ tained from both personal observa¬ struggle of races, and the Nordic races tion, culture and economy. Their main tions and experiences and the writings would defeat the weaker peoples, in focus is on the efforts of King Mahen- of others, the book is eminently read¬ particular France, which had har¬ dra to transform the society without able and informative. Still it is clearly bored Jews and had introduced blacks endangering the monarchy. It is not partisan and pessimistic in its estimate into Europe (and alarmingly into the an entirely happy story for democracy of the chances for change, which Rhineland) from its extensive colonial fans, but it is told well in this slender Shub frankly acknowledges and which Empire. The second ingredient of Hit¬ volume. he has previously expressed in other ler’s foreign policy was Germany’s —EDWARD M. COHEN writings. territorial needs, its search for agricul¬ As could be expected, Shub gives turally usable lands. In the quest for A New Literary and Political Classic greater attention to the Soviet Union these two goals Hitler used treaties as HOPE AGAINST HOPE: A MEMOIR, by and the more important of the East¬ “temporary instruments to be broken Nadezhda Mandelstam, translated from ern European states where he lived or as soon as they were no longer useful the Russian by Max Hayward, with an travelled as a correspondent or visiting in the struggle for space.” introduction by Clarence Brown. Athe- neum, $10.00. scholar. His efforts to link develop¬ The Hitler years were extremely ments in the Soviet Union with those difficult ones for the traditional Ger¬ HIS memoir by the window of a in Eastern Europe are commendable, man diplomatic service and its decline T particularly his conjectures about the into being little more than a steno¬ Russian poet who died in a Soviet attempts of competing Soviet leaders graphic bureau or pouching service is prison camp in 1938 is a book of quite to use policies and relationships in described by Weinberg with skill. The extraordinary interest. The account it that area in their struggle with rivals German Foreign Office faced com¬ gives of the author’s experiences is so at home. petition from the foreign policy rich in insights into the nature of the The book is not without factual branch of the National Socialist party, world around her, and indeed into the errors and questionable contentions. from Goebbels’ propagandists and nature of humankind generally, that For example, both the “Leningrad Ribbentrop’s opportunists, and from the work will surely win a place both case” and the detention and liberation any idea peddler who could bend Hit¬ as a classic of memoir literature and of Professor Barghoorn have been ler’s ear. Of the Foreign Minister for as an indispensable document on the

50 FOREIGN SERVICE JOURNAL, Aprit, 1971 history of the Soviet intelligentsia and in waters in and off every continent in doors and persons interested in ac¬ of Soviet society over the last half the world. These stories range from counts of foreign countries, will read century. Workers in the foreign affairs his childhood poaching in a fountain this book with special pleasure. Those field, who might suppose that an un¬ in Gramercy Park (the catch, a large who read with delight Ellis Briggs’ orthodox biographic work on the life goldfish, he toasted over a candle) to “Shots Heard Round the World” and of a little-known foreign poet could accounts of a 250-pound catfish and Sigurd Olson’s “Listening Point” and scarcely be of central importance to of a gigantic perch bigger than a his other books, will thoroughly enjoy their own understanding of the politics man—with a picture to prove it. In “Out of the Mainstream.” of the twentieth century, would be the first part of the book intermixed —TYLER THOMPSON much mistaken. For Mme. Mandel¬ with these stories are details concern¬ “Our Revolutionary Age” stam’s book is a profoundly enlighten¬ ing various fishing clubs, their mem¬ THE COUNTER-REVOLUTION by Thomas ing guide to the understanding of bers and their guides which will inter¬ Mohiar. Funk & Wagnalls, $8.95. modem bureaucratic society—and so, est those who already have some knowledge of these clubs. Often he T HOMAS MOLNAR discusses a ne¬ ultimately, to the understanding of glected aspect of our revolutionary forces at work in our own society. lists the birds and animals he has seen at the spots where he fished. age—the theory and context of coun¬ —THOMAS A. DONOVAN ter-revolution. The book’s principal Some of the most exciting incidents weakness is its almost exclusive focus Fishing Reminiscences are about the author’s battles with on the French revolution and its after- Around the World salmon. He loses as many as he wins. math. The book’s strength is the man¬ Also interesting are the bits of in¬ ner in which Molnar places counter¬ OUT OF THE MAINSTREAM, by Philip formation he gives throughout the Kingsland Crowe. Scribners, $7.95. revolutionary thought in its historical book concerning salmon, their life cy¬ context. Particularly sobering for any cle, their habits and their idiosyn- REELING IN, I found that I had citizen is his discussion of the prob¬ caught a handsome little fish about cracies. The concluding chapter gives lems of political and cultural terror in seven inches long. . . . The teeth, a grim picture of what tomorrow’s a counter-revolutionary context. How¬ razor-sharp and wedge-shaped, closed salmon fishing will be like unless ever, his identification of the United so hard on the steel hooks that one of sensible measures are agreed upon by States and the Anglo-Saxon political them bent and other snapped off.” the salmon fishing nations. He points a tradition with the counter-revolution¬ The fish was a small piranha. particularly critical finger at Den¬ aries in the post-1945 period is really Ambassador Crowe’s book has mark. stretching the point. many fascinating stories of his fishing Fishermen, lovers of the out-of¬ —JOHN D. STEMPEL

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FOREIGN SERVICE JOURNAL, April, 1971 51 EDUCATION IN DIPLOMACY only evolve from greater knowledge R EASONABLE men will differ— continued from page 38 of the practice of diplomacy and of possibly quite widely—on objectives the context in which diplomacy is of instruction in diplomacy. But I say that we must educate students conducted. Responsibility for impart¬ venture there is general agreement for the kind of world they will face ing such knowledge should be as¬ on the basic qualities of character while at the same time preparing sumed by all colleges and universities and intellect which ought to be fos¬ them to transform the world they and developed as an integral com¬ tered by education in diplomacy. face into the kind of place they ponent of liberal arts curricula. The These would include qualities which would like it to be. objectives of such curricula, which motivate and guide a person in the can be variously designed, should be search for objective facts; which THERE is evidence that our prob¬ to give the liberal arts students a open a person’s mind to reason and lems in world affairs are not only in taste of what the professional diplo¬ honest argument; which reinforce our diplomats but in ourselves. mat needs to know and do to be complete integrity and commitment There always has been estrange¬ effective. Hence, in relation to the to principle as the basis for mutual ment and misunderstanding between professional educational objectives confidence and trust; and which lead the public and its diplomats. The outlined above, the liberal arts stu¬ to words and actions adapted to the extent of the estrangement and dent should be required to: sensibilities of the other side. misunderstanding is accentuated in 1. Be exposed to cross-cultural Successful diplomacy ultimately times of international stress. When experiences or problems; depends on qualities of character the country has its back against the 2. Be familiar with illustrative which can only be taught in the wall—as it now has in a growing historical cases in the conduct of most general way and then chiefly number of countries—the public can diplomacy; by the personal example of the always blame the diplomat. It is a 3. Understand the organization teacher. If teachers exhibit in their distressing fact that diplomats are of diplomatic policy-making and im¬ scholarship, teaching, and personal frequently blamed most when they plementation; relations qualities of integrity, bal¬ most need support. 4. Be aware of major determi¬ anced judgment, high principle, and Intelligent popular support of nants of the relations of states and human warmth, these same qualities international diplomacy is required of realistic threats to the peace and will be absorbed by the student of to achieve an effective international opportunities for progress in the diplomacy and reflected in his work order. Such informed support can world. in the world. ■

52 FOREIGN SERVICE JOURNAL, April, 1971 EDUCATION OF DIPLOMATS solving exercises in areas such as But, contrary to the graduate continued from page 28 political writing and reporting, ob¬ M.A. product of this educational servation and analysis, biographic program, it would not automatically service, to an international organiza¬ collection and reporting, writing of qualify him for membership in the tion, or to his firm or institution if in memoranda of conversation, proto¬ pool of professionally-licensed “dip- the private sector. col and ceremonial, and on prob¬ lomats-in-preparation” from which The American Foreign Service to¬ lems, behavior and deportment in the public diplomatic service would day is recruiting entering oficers for the service (including the question predominantly recruit its members four “tracks” (referred to in the of dissent). There is no good reason —by its own selection methods of service as “cones”) of professional why such training practices could course. Such a scheme, in fact, endeavor: political, economic, con¬ not also be extended to institutions would allow the American Foreign sular and administrative. Officers in the private sector or to interna¬ Service if it so wished to drop its. will be expected to follow one of tional organizations. But the frame written entrance examination entire¬ these through most of their careers of reference for this commentary ly and to focus purely on the less; and previous to selection as senior hardly extends to in-service training tangible traits of “confidence” it Foreign Service executives (those in detail. would seek to discern during the not so selected after 15-20 years in customary, oral examination it gives the service will remain in their re¬ IN sum, then, I am proposing a applicants. The successful student’s. spective professional tracks). Spe¬ three-year program of education in M.A. in Diplomacy would be, to all cific training for these tracks will be Diplomacy, following upon the ini¬ extent and purposes, the union-card obtained on recurrent occasions in tial two years of college, interrupted needed for entrance into the diplo¬ an officer’s career, along with the after the second year (or after four matic profession. But it would not— in-service type briefings he will re¬ years of college) by systematic test¬ and for probably quite sometime ceive on the style and peculiarities ing for rigorously defined tem¬ still, could not—be the only gateway (or “in-house operations”) of the peramental qualities. The test fail¬ to selection. American service and along with ure would receive a simple A.B. in on-the-job training. Diplomacy, had this been his major. IF the proposed course of action, Entering junior officers in the TTis failure would not disbar him drawn up here in only the roughest American service today are already from seeking employment in the and most tentative way, were being given simulation and problem¬ field of international affairs. adopted it is possible that several

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FOREIGN SERVICE JOURNAL, April, 1971 53. simultaneously worthwhile blows whether trained in diplomacy or sovereign, if selected by him; for might be struck. not. international entities and regional or¬ 1. We would2. Wehave would recognized have recognized ganizations if his proclivities and the the late coming of age of diplomacy and accepted the necessary tem¬ needs of these institutions combined as a fully sanctified profession peramental element of the profes¬ to bring him there; or for private alongside such respectable and sional diplomat’s baggage. We sector activities of all kinds in the properly-licensed careers as law, ar¬ would have certified it by prestudied transnational field. In my view, nei¬ chitecture, medicine and others. Ad¬ classifications of categories and by ther the temperamental qualities nor mittedly, there have been great mu¬ testing procedures made as scientific the technical knowledge baggage sicians (performers, teachers or as our present knowledge of diplo¬ differ substantially, if at all, in trans¬ composers) who never saw the halls macy on the one hand, and of psy¬ national activities from those re¬ of Juilliard and great military leaders chology and related arts of personal¬ quired for the practice of public who missed out on Annapolis or ity measurement on the other, now diplomacy. West Point. permits. These are not revolutionary or But think of the very many who 3. We would have identified and even very novel goals or ideas. They did study and graduate in these in¬ hopefully agreed on the basic ele¬ address themselves more to method stitutions and of the enviable records ments of technical knowledge with¬ and salability than to the outright they have built. Diplomacy in the out which no diplomat today can substance of diplomacy: how to put age of the pragmatic-bureaucratic function, whether under the “new” the discipline, if it is in fact one, on state (Kissinger 1969) has become or the “old” diplomacy, whether as the map as a career for professionals professionalized, systematized and coordinator of executive programs, rather than for amateurs or dilettan¬ is—in a small way a big business, negotiator of treaties, administrator tes. There would be no schools of too big to leave to dilettantes and of embassy residences, consul pro¬ medicine today if most people amateurs. By the same token, it is tecting American interests, bureau¬ thought anyone could just get up probably too serious a matter to cratic infighter in Washington, or and practice it. There will be no leave only to diplomats. But then ceremonial representative at home schools of, or majors in, diplomacy what is proposed here neither dimin¬ or abroad. tomorrow unless we put across ishes the sovereign’s right to accept 4. We would have contributed to firmly the notion that a discipline— or reject his envoys nor precludes making available a corps of general¬ a body of identified temperamental him from filling key assignments ly uniformly-trained personnel who attributes and knowledge qualifica¬ with any person of his choice, could practice diplomacy for their tions—exists in this field also. ■

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54 FOREIGN SERVICE JOURNAL, April, 1971 NEGOTIATIONS WITH COMMUNISTS common problem, concern for out with a vengeance. And applied continued from page 25 all socialist states. to South Vietnam, where “internal and external forces hostile to Capi¬ A translation of this official States, it may be useful to make talism seek to divert the develop¬ guideline for Soviet foreign policy plain what it would in fact mean if ment of a non-Communist country into what would be a mirror image Latin America were in the United toward the restoration (or in this of the rules for American policy in States’ part of the world in the same case, rather, “installation”) of the “our part of the world,” reads as way that Eastern Europe is in the Communist order” this rule would, follows: Soviet part of the world, and if the of course, support American inter¬ outcome of the Cuban missile crisis . . . when the internal and vention. were applied—with “spheres of in¬ external forces hostile to Capi¬ A Pravda article (September 26, terest” reversed—to South Viet¬ talism (or parliamentary gov¬ 1968) shortly after the invasion of nam. ernment) seek to divert the de¬ Czechoslovakia argued: Leonid Brezhnev, in his speech velopment of any non-Com- on November 12, 1968, regarding munist country toward the . . . the antisocialist forces in the Soviet role in Czechoslovakia, installation of the Communist Czechoslovakia through their explained the rules for Soviet for¬ order, when a threat to the talk about the right of nations eign policy as follows: cause of Capitalism (or parlia¬ to self-determination, in es¬ mentary government) in that sence were camouflaging the . . . when the internal and country, a threat to the security demands for so-called neutral¬ external forces hostile to social¬ of the non-Communist commu¬ ism seek to revert the develop¬ ity and for the Czechoslovak nity as a whole, emerges, this is ment of any socialist country Socialist Republic’s withdrawal no longer only a problem of the toward the restoration of the from the socialist community. people of that country but also capitalist order, when a threat a common problem, concern Translated into the spheres of inter¬ to the cause of socialism in that for all non-Communist states. est language and applied to Cuba, country, a threat to the security this would read: of the socialist community as a Applied to Cuba, this would mean, whole, emerges, this is no long¬ not the widely praised outcome of . . . the Communist forces in er only a problem of the peo¬ the missile crisis, but the widely Cuba, through their talk about ple of that country but also a attacked Bay of Pigs policy carried the right of nations to self-

FOREIGN SERVICE JOURNAL, April, 1971 55 determination, in essence were not the outcome agreed to between Southeast Asia would be prepared to camouflaging the demands for Khrushchev and President Kennedy do likewise.” so-called neutrality and for Cu¬ in settling the Cuban missile crisis. Fudging these fundamental differ¬ ba’s withdrawal from the non- On the contrary, President Ken¬ ences will not help international Communist community. nedy, in replying to Khrushchev’s reconciliation in the long run, it will famous letter of October 26, 1962, merely reduce the pressures toward The Pravda article then explains the offered “to give assurances against greater independence among Com¬ correct policy to be taken in this an invasion of Cuba,” adding “I am munist countries and make Soviet case: confident that other nations of the imperialism seem legitimate and ac¬ Western Hemisphere would be pre¬ cepted. Many American officials The fraternal Communist par¬ pared to do likewise.” ably expound the urgency of discov¬ ties of the Socialist countries ering and cultivating common inter¬ took measures over a long peri¬ In the spheres of interests imagery of some American spokes¬ ests in negotiations with Communist od with the maximum restraint powers and of healing the fissures of and patience in order to help men, a transposition of the Cuban missile crisis and its settlement onto conflict. This is all to the good. Yet, the Czechoslovak people to successful long-term bargaining re¬ suppress the offensive of anti- Vietnam would look as follows: The United States puts nuclear missiles quires not only flexibility but also Socialist forces in Czechoslo¬ perseverance, not only conciliation vakia by a political means. into South Vietnam. An acute crisis but also counter-offensives, not And it was only after they had ensues between the United States and the Soviet Union and China. only understanding for the op¬ exhausted all these measures The crisis is settled by the American ponent’s fears but also understand¬ that they began the entry of President withdrawing the nuclear ing of his bad sides. American nego¬ the armed forces. missiles from South Vietnam in ex¬ tiators are great conciliators in Again applied to Cuba, this would change for which the Soviet Union working with allies (far better than mean after the United States had and China agree “to give assurances Communist negotiators), but they “exhausted all these measures” that against an invasion of South Viet¬ sometimes lack perseverance in pur¬ it “began the entry of the armed nam,” adding the implied promise of suing their cause against a hostile en¬ forces.” curbing their allies from invading vironment. The world is not so kind However, some Americans should South Vietnam by stating that they to us that we are likely to succeed be old enough to recall that this was are “confident that other nations of where we lack the will to win. ■

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56 FOREIGN SERVICE JOURNAL, April, 1971 RELEVANT—AND EFFECTIVE rectorates spend more time check¬ is State’s most important resource, continued from page 46 ing on their end product and how it yet we pay less attention to internal was received than ineffective ones. exchanges (feedback) than we are fantastic—-but they all want to Unfortunately, senior officials often should or can. know what the heart of the prob¬ do not generate the feedback that Before the Department can ease lem is. Papers which obscure or they should to pressure individuals the dislocation represented by the hide the conundrums are recog¬ and units to perform satisfactorily. attitudes expressed at the very be¬ nized as ineffective or useless, fre¬ Many lower level officers do not ginning, principals, their staffs, and quently provoking anger or quiet spend enough time getting the high working level officers must change contempt. A series of such efforts level feel for the problem that they two other reactions: can crucify the units that produce need to have if a paper is to be “God, that’s SO bad; I’d like to them. Such bureaucratic self- persuasive. send it back but they’d just screw it immolation occurs all too frequent¬ Developing feedback—reactions up again.” ly in official Washington. to papers, ideas, etc.—is probably “They don’t know what they What is at issue is bureaucratic the most important single task that need up there to handle X! I just style—good style is to lay out a all levels in the Department should hope the Secretary gets his tail shot problem, frankly discussing uncer¬ be undertaking. Many “errors” in off tomorrow.” tainties and decisions. Bad style drafting could be eliminated. A Natural reactions—perhaps. (bad because it is ineffective and tendency toward too much detail Emotionally comfortable—maybe. reputation-destroying) is to sweep can frequently be resisted by sim¬ Nevertheless, such feelings and the something under the rug. Bureau¬ ply asking a staff assistant how attendant unwillingness to discuss cratic tattletales always spoil the much his principal knows about a common problems cut deeply into masquerade, and principal officials subject. Executive Secretariat line the efficiency of the Department as do not generally rise to supervisory officers (S/S-S) often can provide an institution. The results of such positions by being insensitive to in¬ a country desk with constructive attitudes contribute greatly to such competence which affects their own criticism of its product. Yet it’s organizational ineffectiveness as we performance. appalling how seldom feedback oc¬ do have, but worse, help foster curs spontaneously from the top myths of incapacity which reduce The Two-Way Street and is sought from below. the Department’s future effec¬ Statistically, effective country di¬ Aside from people, information tiveness. ■

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FOREIGN SERVICE JOURNAL, April, 1971 57 MIDDLE EAST PERSPECTIVES gram of the Palestine Liberation Or¬ ested contacts with both sides. I am continued from page 14 ganization that promises only war¬ speaking of Turkey and Iran. Both fare with no prospects of success, have shown a sophistication of atti¬ opened a chance for a settlement. stretching into an indefinite future? tude toward their Arab neighbors which I would not have deemed This is the way that leads to peace. Yet such West Bank residents will possible five years ago. For those who look for a path to the need bolstering, for Palestinian ex¬ tremists will go all out to intimidate hearts of the Palestinian people, We have spent too much time in them. They must be helped by Arab that path runs through the solution Big Four discussions, the four being opinion which must isolate the ex¬ of the refugee problem.” Sinha Flu- unable to act without enormous tremist, because it is to its advantage pan. publicity and the aura of pressure to do so. I think this is possible. which, in these days of a United The preceding quotes are from I believe Palestinian Arab moder¬ Nations of 126 states, large powers “To Make War or Make Peace in ates will win the tacit or active help exert with futility on the small. We the Middle East,” selections from an of those Egyptians who want back live in a period of the tyranny of the International Symposium, published their Sinai and Suez Canal and not weak. Let us de-formalize this ma¬ by NEW OUTLOOK, Tel Aviv, 1969. war with Israel for twenty or thirty chinery and not pretend that we In the interest of following de¬ more years. I believe Nasser at the Americans alone can solve this veloping trends and promoting those end was one of these and trust that problem or that we are acceptable which appear constructive, I have the attitude carries on. But no Egyp¬ as mediators. Clearly we have lost been trying to give a wide hearing to tian leader can overlook the need our credibility with almost all Arabs such bridge-building Israeli opinion for Palestinian self-determination, and of course the USSR has none and to encourage its contacts with for an end to the refugee problem; whatever with Israel. Let us see if moderate Arabs whenever I can find nor can he overlook Jerusalem or area friends cannot take a quiet, them and wherever both feel free to even the Golan Heights. active role in support of Jarring with meet. They have been meeting for As for Jordan, it is about half our full backing. some time in any case, in Europe Palestinianized already. I suspect And that backing, when progress and in the United States, but the that some day, at a later stage, it is made, we must be domestically effort needs a boost. will be the major geographical part prepared to give. It will involve sac¬ Meanwhile, among the older of a Palestine Arab State stretching rifices by Israelis as well as by the moderates what seems needed by from the West Bank and Gaza (with Arabs. We must regain control of Israelis is faith that the other side an easement of access across Israel) the integrity of our Middle East will settle for co-existence and by to Iraq. As for Lebanon, it dearly foreign policy, not leave it to the Arabs the courage to stand for co¬ wants the war to go away. A recent electioneering of New York, Califor¬ existence against threats of assas¬ change in Syria, apparently resistant nia, Pennsylvania and Illinois. Let sination. to the abortive Syrian invasion of us decide to support a Middle East How could such a side-by-side Jordan and to fedayeen control of solution based on Arab-Israeli co¬ co-existence be negotiated, when the Syria’s policies, may be a hopeful existence and reconciliation without Palestine Arab state does not exist? sign. However, in the light of Syria’s annexations and also without terror, Perhaps the delegation of King chronic instability, we can count no blockage of sea traffic or fear of sud¬ Hussein that negotiates recovery of chickens in advance. den attack. It is a task not beyond the the West Bank can include West One last suggestion: that we means of wise men and wisdom is Bank residents and at the same time bring into the search for peace those no monopoly of Americans, Rus¬ a West Bank Government can be Middle Eastern friends of ours who sians and Western Europeans. The started. In fact, it should be starting are closest to the problem and who people and governments of the area now. Why should West Bank res¬ share the cultural heritage of the grope for peace. Let us help them idents accept the all-or-nothing pro¬ region, while maintaining disinter¬ find it, through their own efforts. ■

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FOREIGN SERVICE JOURNAL, April, 1971 59 Reducing the Bulge Part of this reluctance is inherent in the nature of the Senior Inspectors. w HILE everyone is applauding and Frequently, these officers are either endorsing the Task Force recom¬ former chiefs of mission themselves mendations, it seems to me one pro¬ and, therefore, imbued with the old posal is quietly being shoved under boy ethic; or they are aspirants to the carpet—20-year retirement prior ambassadorial or other high positions to age 50. and perceive that Sam Rayburn’s rule It is an essential element of the re¬ —“to get along, go along”—applies to forms not only for long-term goals, the Foreign Service as well as to the but also for the immediate problem of Congress. In addition, Inspection the “bulge at the top” that the 20-year Corps rules seem to preclude any real retirement be instituted as soon as judgment being passed on the per¬ possible. Both the Task Forces and formance of a chief of mission even A Doctrine for the Foreign Service the Department’s endorsement, as should the inspectors be inclined to do issued in the December NEWSLETTER, so. Thus, many inspections become nothing more than whitewashes. H AVINO recently completed a tour of put off to some undetermined date duty in Saigon as the Ambassador’s and for reasons ungiven, support for Yet, we all know that the entire Special Assistant for Press Affairs and authorizing legislation. The Service tone of an embassy is set by the top as Barry Zorthian’s successor in Sai¬ is bulging now at the top and such two men. The efficiency and effective¬ gon, it was with more than normal in¬ legislation is vital for early retire¬ ness of the operation are mirror im¬ terest that I read his article on a press ment. Why not push for such legisla¬ ages of the personalities and com¬ doctrine for the Foreign Service. tion now? Let us not return to the era petence of the leaders. By reviewing As a career officer who suddenly of our predecessors when every excuse the work of individual sections, in¬ found himself thrust into the press re¬ was found not to seek new legislative spectors can see whether the ambassa¬ lations business without any previous authority and additional funds. I dor and DCMs are doing their jobs, experience but who has now run the know that there is support on the Hill but at present when they find all is not gauntlet, I wholeheartedly endorse the for this piece of legislation, and at well, they are largely limited to com¬ menting on the symptoms (individual article to all my colleagues in the For¬ least the Foreign Service Association eign Service for it contains a wealth should be aggressive in pushing it, performance of subordinates) rather of wisdom and sound advice. To the with both the Hill and the Depart¬ than the real illness. A badly run ad¬ management of the Department of ment. ministrative section is a prima facie State and the Foreign Service, I sug¬ MICHAEL P. E. HOYT indication of a poor DCM, if no gest the article be circulated to all Counselor of Embassy action has been taken by the DCM to posts and be made required reading Bujumbura correct the situation. In today’s large missions, with only for all officers. Abolish the Inspectors Finally, I strongly support Mr. Zor¬ a small percentage of State Depart¬ ment personnel in the total US thian’s unorthodox suggestion of mak¬ M Y experience with the Foreign ing greater use of FSOs in press rela¬ presence, the inspection process Service Inspection Corps is so dis¬ should be mainly a management tool tions work. Two years later with the heartening that I have reluctantly Saigon experience behind me, I appre¬ —i.e. it should evaluate for Washing¬ concluded that the organization as ton how well the entire US effort in a ciate in a way I never did before the currently constituted should be abol¬ meaning of Barry’s words, “the key to particular country is being implement¬ ished. The typical two-man inspection ed. By Presidential directive the am¬ public support is effective communica¬ team (usually having one person with tion-—not communication by special¬ bassador is responsible for this. The a political background and the other inspection, therefore, should concen¬ ists , . . but communication by those with administrative experience) can who formulate and carry out policy.” trate on the responsible person and be faulted on its ability to judge his principal deputy, and it should Barry Zorthian has given us a sound effectively the many specialized func¬ doctrine. Now it’s up to the Foreign look to the whole range of US activi¬ tions which our embassies now per¬ ties, not just at those in which the Service to apply it in a positive and form. The inspection system can also meaningful manner. State Department is usually involved. be questioned on the grounds of The assessment of staff performance GEORGE S. NEWMAN whether even highly competent men should be left to immediate super¬ Bangkok can be expected to make valid in- visors and Washington end-users. depth judgments about the overall And Ten Commandments operation of a post and prepare the For the reasons previously cited, it many individual efficiency reports re¬ is doubtful that State Department per¬ sonnel can perform the kind of in¬ HIP. hip, hurray to Barry Zorthian quired in the 4-6 weeks allotted to in¬ (Feb. ’71, FSJ) on his outstanding spect a medium-size embassy. The spections which would be really use¬ piece on the need for improved com¬ above criticisms, while not insignifi¬ ful. Furthermore, the implementation municators in the Foreign Service. cant, can be remedied within the exist¬ of inspection recommendations con¬ As one who shares Mr. Zorthian’s ing framework. I believe, however, cerning over-all US operations within a concern for the sometimes disappoint¬ that the present inspection procedure given country would cut across de¬ ing press relations displayed by our has a basic flaw which makes the partmental lines in Washington. I foreign service, I’m hopeful that his whole exercise meaningless at best. suggest, therefore, that consideration Ten Commandments will be widely Stated briefly, Foreign Service Inspec¬ be given to creating an Office of the circulated. tors are not prepared by-and-large to Inspector of Foreign Operations with Now let’s get on with the job of make really critical judgments about an appropriate staff in the White revamping the USIA. the people who most influence an em¬ House. Inspectors could be drawn from within and outside government, RON AARON EISENBERG bassy’s effectiveness—the Ambassador Washington and the DCM. with a stipulation that an inspector

60 FOREIGN SERVICE JOURNAL, April, 1971 The AMERICAN FOREIGN SERVICE PROTECTIVE ASSOCIATION Annual Report for the Insurance Year Ended February 28, 1971

I. Operations As of March 1 1970 1971 Members carrying Group Life 3052 3017 Group Life in Force $73,302,425 $81,586,525 (inclusive of Reversionary) Enrolled in Foreign Service Benefit Plan 9122 9115 Claims paid during year: Group Life, Number 22 35 Amount $346,000 $421,625 Family Coverage, Number 17 12 Amount $34,000 $26,000 Accidental Death, Number 1 2 Amount $27,500 $45,000 Foreign Service Benefit Plan $1,771,483 $1,797,594

II. New Benefits Added During Year 1. We have increased the Reversionary bonus to a huge 50% for the year March 1, 1971 to February 29, 1972 without any increase in premium. This Reversionary does not apply to AD&D, additional insurance or Family Coverage but for this year the basic $17,500 policy will pay benefits at $26,250 and the $5, 000 over 65 coverage at $7,500 (others in proportion).

2. The Family Coverage for all officers, active or retired, has been increased from $2,000 to $3,000 for the spouse and up to $3,000 for dependent children. Again, without any increase in premium.

3. Provision has been made for the assignment of group life policies under certain specified conditions with the hope that this will assist some members in estate planning.

4. Additional benefits have been added to the Foreign Service Benefit Plan to include coverage for the routine circumcision of newborn children not to exceed $25 and to extend the period of coverage of dental work necessitated by accidental injury to the jaw or natural sound teeth if the accident occurred while covered by the Plan from six months to one year.

The Board of Directors: David D. Newsom, President Frederic L. Chapin, Sec.-Treasurer Herbert P. Fales, Vice President Fraser Wilkins, Director John M. Steeves, Director ♦ ♦ ♦ Address applications and inquiries to: The American Foreign Service Protective Association c/o Department of State, Washington, D. C. 20520 or 1750 Pennsylvania Ave., N.W., Suite 1305, Washington, D. C. 20006 Telephone: 298-7570

FOEEIGN SEHVICE JOUBNAL, April, 1971 61 Cannot hold an official position over¬ ment about the difficulties and tech¬ sadness and sense of loss. Frequently seas for a specified time (say three niques of extracting money from alum¬ they go on the assumption that so years) after he has left the Inspection ni and friends of the college. To get a many letters will be sent that one Corps. The latter proviso would dis¬ substantial bequest in a will is much more need not be written, and in courage any temptation inspectors easier than to get even a modest consequence perhaps what should might have to torpedo an ambassador contribution from current income. have been said in testimony to a de¬ in hopes that he would be named to There are people (dynastically- parted friend goes unspoken. I feel it take his place. , minded, or whatever) who want their an obligation of friendship, therefore, The tradition of Foreign Service money to go to relatives—any rela¬ to give you these few words of appre¬ self-inspection is near-sacred and the tives, no matter how distant or unde¬ ciation of Fred Reinhardt. above proposal smacks of iconoclasm. serving. Au contraire and rather The careers of Ambassador Rein¬ It is not. Rather, it is an attempt to amusingly, there are people who have hardt and my own were fortuitously suggest ways in which a needed func¬ a strong desire (conscious or uncon¬ intertwined over a period of almost a tion can be performed, and I urge scious) that their relatives should not generation. As young officers we went the AFSA and the Secretary to look profit from their demise. This stems out together at the beginning of in depth at this matter. from the belief that the relatives have World War II, Fred to Tallinn where TOM SAWYER failed to show sufficient, or any, affec¬ he studied Russian and I to Helsinki, tion, solicitude, et cetera, for the lega¬ soon to be bombed by the Russians. Poli Sci Lives! tor and that they should accordingly, Thereafter we were neighbors in a if not be penalized, at least, not be number of posts: Fred was Ambassa¬ benefited. There are people, too, with dor in South Vietnam when I occu¬ HURRAH for James Ford Cooper and a broad, humanitarian viewpoint who, pied the same position in Cambodia; professional political analysis! It is in making their wills, are concerned and later when he was Ambassador to high time the Foreign Service became primarily to promote the causes that Cairo and I in Beirut. I subsequently acquainted with the revolution that have engaged their interest in life. inspected Fred and his Embassy in has recently taken place in academic From these last two classes of lega¬ Rome. political science. It was a dead disci¬ tors, the AFSA might expect a good In all these many years, therefore, I pline twenty years ago, but it is now response to requests for legacies. had come to know with ever deepen¬ very much alive and has a great deal There are many Foreign Service peo¬ ing appreciation and affection Fred to say that the Foreign Service would ple who, though no longer en fonc- Reinhardt as a man and as an out¬ find useful. tion, are very much concerned for the standing American diplomatist. His KINGDON W. SWAYNE prestige and advancement of the Ser¬ deep culture, his natural facility with FSO-Retired and vice; they would surely be happy to languages, his unfailing courtesy, and Professor of Political remember the AFSA in their wills. his deftness in diplomacy marked him Science, Bucks County ROBERT W. RINDEN as one of the outstanding practitioners Community College FSO-Retired of our profession. Newtown, Pa. Denver It would therefore be trite and in¬ sufficient to say that I feel a sense of The Iconoclast Writes A Tribute to Ambassador Reinhardt loss. It is more to the point that in the demise of Fred Reinhardt the foreign I KNOW there are some icons so vener¬ I REALIZE that when an outstanding service—all of it—is bereft of one of able as to be antiquities worth preserv¬ member of the Foreign Service dies, its outstanding officers. ing for their own sake, but I for one many of his friends would like to ROBERT MCCLINTOCK am increasingly bored by Ambassador write to the journal to express their Caracas Ellis Briggs. If the JOURNAL wishes to have a serious discussion of the reform of the Department of State, let it at Life and L^ve in the Foreign Service by S. 1. Nadler least carry on that discussion in the present tense. CHARLES W. BRAY III Washington

A Testament

As the sun sinks ever lower in the increasingly golden west, for many retired Foreign Service people the re¬ alization deepens that “you can’t take it with you”—the question of what to do with it grows in urgency. Martin Herz’s suggestion that the AFSA should actively seek bequests is an excellent, practical proposal that would surely bring results from a number of Foreign Service people with intimations of mortality. As alumni representative for some years of my alma mater, I’ve had many discussions with the college president and the director of develop- "When Leon gives a cultural-type reception, everybody has a good time. Or else.”

62 FOREION SERVICE JOURNAL, April, 1971 The peace-of-mind approach to overseas auto insurance auto-paK

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