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2 FOREIGN SERVICE JOURNAL/FEBRUARY 1999 CONTENTS

February 1999 Vol. 76, No. 2

COVER COLUMNS

Focus ON DIPLOMACY’S FUTURE PRESIDENT’S VIEWS / 5 Back to the Future? 20 / REINVENTING DIPLOMACY, AGAIN By Dan Geisler Two heavyweight task forces strategize on how to defend American interests in the coming SPEAKING OUT /15 century, but they miss some key points. At Your Own Risk By Peter Galbraith By Eugene M. Propper POSTCARD FROM ABROAD / 56 FEATURES Last Tango in Buenos Aires By Wesley Ann Godard 30 / ARE IRAQI SANCTIONS IMMORAL? Civilians are dying by the thousands, Foe vs and Saddam remains entrenched. What’s wrong with this picture? By Stephen Zunes

36 / GERMANY TAKES THE THIRD WAY With a red-green coalition in charge, Americas trusted ally is going through serious changes. Page 20 By George M. Frederick DEPARTMENTS

40 / WATCHING BOSNIA VOTE LETTERS/7 No guns in the polling station, please! CLIPPINGS / 14 Tales of an election observer in BOOKS / 45 post-ethnic-cleansing Bosnia. How Chechnya Became Russia’s Tombstone By Charles Stuart Kennedy (A Book Review Essay) By Benjamin Tua

IN MEMORY / 49

INDEX TO ADVERTISERS / 55

Cover illustration by Lina Chesak

THE MAGAZINE FOR FOREIGN AFFAIRS PROFESSIONALS FOREIGNQERVICE Foreign Service Journal (ISSN 0146-3543), 2101 E Street, N.W., Washington, D.C. _1_J O H R N A L 20037-2990 is published monthly by the American Foreign Service Association, a private, Editor Editorial Board non-profit organization. Material appearing herein represents the opinions of the writers BOB GULDIN EDWARD MARKS, Chairman and does not necessarily represent the views of the Journal, the Editorial Board or Managing Editor ELIZABETH SPIRO CLARK THE FOREIGN SERVICE AFSA. Writer queries are invited. Journal subscription: AFSA Members - $9.50 included KATHLEEN CURRIE MITCHELL A. COHN OF THE UNITED STATES in annual dues; others - $40. For foreign surface mail, add $18 per year; foreign airmail, THEODORE CRAIG $36 per year. Periodical postage paid at Manchester, N.H., and at additional mailing offices. Postmaster: Send Assistant Editor AURELIUS FERNANDEZ address changes to Foreign Service Journal, 2101 E Street N.W, Washington, D.C. 20037-2990. Indexed by MAUREEN A. HERMAN KATHERINE INEZ LEE Public Affairs Information Service (PAIS). The Journal is not responsible for unsolicited manuscripts, photos or Ail & Circulation Manager MARY LEWELLEN illustrations. Advertising inquiries are invited. The appearance of advertisements herein does not imply the ED MILTENBERGER ROBERTA MAHONEY endorsement of the services or goods offered. FAX: (202) 338-8244 or (202) 338-6820. E-MAIL: [email protected]. MARK MATTHEWS WEB: www.afsa.org. TELEPHONE: (202) 338-4045. © American Foreign Service Association, 1999. Printed AFSA NEWS Editor CAROLINE MEIRS in the U.S.A. Send address changes to AFSA Membership, 2101 E Street N.W, Washington, D.C. 20037- WESLEY ANN GODARD ARNOLD SCHIFFERDECKER 2990. A Standard A enclosure is being mailed under permit 1926 at Manchester, N.H. 03103.

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The lead article in this issue of the in coordination with the rest of the Foreign Service Journal contains a Only if the executive branch. Some of their ideas comparison of two recent studies on secretary is have resurfaced in diese studies. In the future of American diplomacy fact, many of these same problems conducted by two influential Washing¬ perceived as were identified even earlier, in a 600- ton think tanks using advisory panels page report written by in-house of eminent persons with impressive committed to committees of active duty Foreign diplomatic credentials. Both panels change will Service personnel and published by make a number of the same recom¬ State under die title Diplomacy for mendations for strengthening the it happen. the 1970s. The study described United States’ ability to conduct the complexity of coordinating the foreign affairs in the new millennium. interests of numerous government Both studies criticize the State agencies overseas and decried States Departments deplorable information insularity. The authors considered technology system, an issue about Both studies conclude that the consolidating State, USAID and which AFSA has complained to any¬ State Department should do more USIA, but rejected the latter sugges¬ one who will listen and many who to provide diplomatic services to U.S. tion until such time as State could will not. One study calls on Congress business. This is true, but it’s not news. demonstrate that it could match 7 to create a $400 million Capital Fund Ten years ago Larry Eagleburger, foreign policy priorities with resource for Information Technology to bring then-deputy secretary of state, ad¬ allocation, an achievement that con¬ State closer to modem standards. It vanced die “Business Bill of Rights” to tinues to elude State managers. also calls for a government-wide sell American companies on what eco¬ The worth of these two new information system and for State nomic and commercial FSOs could studies will be determined by how to consolidate its various information do to help them export goods and much energy their publishers put networks, two sound ideas. services. Aldiough our government’s behind them. AFSA strongly sup¬ The studies also deplore the State traditional role has been to regulate ports the fundamental principle Departments lack of workforce plan¬ business, not collude with it, there is underlying both studies: America ning. State should be able to predict now strong bipartisan consensus drat needs an active, vigorous foreign future needs in order to hire and train American diplomats should advance policy. We also support many of the Foreign Service officers. Granted, the American business abroad. State has studies’ recommendations, and will Foreign Service system of assignment made progress in this area, with work to advance them. In that rotation creates specific management many U.S. ambassadors now actively regard, experience has taught us challenges. Still, the Air Force, which engaged in commercial diplomacy. that die secretary of State must be faces similar challenges, is able to Also addressed in the studies is the personally committed, and perceived predict how many fighter pilots it will need to improve Washingtons policy as being personally committed, if need in the future. Why can’t State process — an enormous challenge. change is to happen. Otherwise, make similar personnel predictions? Former Secretary of State Warren expect to see some of these same Christopher’s Strategic Management recommendations resurface yet again Dan Geisler is president of the Initiative staff took a crack at re¬ thirty years from now in a report American Foreign Service Association. inventing how State makes decisions entitled Cha nge for the 2030s. ■

FEBRUAR y 1999/FOREIGN SERVICE JOURNAL 5

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Visa deja vu had, theoretically, a grand total of 4.8 impossible. Forgeries abounded, I read the Robert Olsen saga minutes per applicant. In the real passports were manipulated, photo¬ (FSJ, November 1998) with more world, however, dungs do not go so graphs and biographies were substi¬ than a touch of deja vu. In 1967, I smoothly and with paperwork and tuted and all a vice consul had was assigned to San Jose to replace other processing requirements, three to work with then and now was an officer who was being selected minutes was a lot. To keep from judgment. Interestingly, despite a out of the Foreign Service because very high rate of rejection, a rate he had deliberately used race as a always getting us into hot water basis for refusal of both immigrant politically, at least a tiiird of all those and non-immigrant visas. The offi¬ who did get visas never came back. cer in question freely admitted to his Part of our paperwork overload was bias, basing it on his religious views. from responding to INS inquiries on His superiors, in both San Jose and overstayers and adjustment seekers. Washington, rightly appalled, sought There is a simple reality. The and got a curtailment of his tour. United States was, is and I pray will Upon his return to Washington, he continue to be, the promised land. was selected out for cause. Millions of people, all over the My next assignment, to Manila, world, are prepared to do whatever was as chief of the NIV unit. The it takes, including forgery and longest line in town is the one in perjury, to get a visa. As the son of front of the embassy building where an immigrant, I have great personal the consular section is housed. My sympathy for them and in their “unit” consisted of me and two even drowning, we profiled. Simply put, place might well do the same. more junior officers charged with if it walked like a duck, talked like Nevertheless, we take an oath interviewing and evaluating upwards a duck and looked like a duck, we which requires us to uphold the law of .300 applicants a day. There were presumed it to be a duck. That is to and we may not choose which laws more, but that’s all we could shoe¬ say, a young, un- or under-employed we like and which we dislike. If we horn into the building. In an eight- applicant, particularly one recently cannot, in good faith, execute said hour workday, interviewing an graduated from college (the Philip¬ laws, then the honorable thing to do average of 100 persons each, we pines is notorious for diploma mills) is resign and fight to change the law. with little or no money was an almost Robert H. Stem The Foreign Service Journal welcomes automatic rejection under 214(b). FSO, Retired your signed letters to the editor. Please We also put cryptic notations on the Chantilly, Va. mail letters to the Journal, 2101 E St., forms so that when the inevitable NW, Washington, D.C., 20037; fax to request for reconsideradon came up, (202) 338-8244; or send via e-mail to the reviewing officer would know Overstays Overstated [email protected]. Letters, which are what the initial interviewer had We commend Steven Honley for subject to editing, should include fidl based his/her judgment on; none of his balanced and informative piece on name, title and post, address and day¬ these notations were flattering. the Robert Olsen case. We would, time telephone number. Reliance on documents was almost however, like to correct a factual error.

FEBRUARY 1999/FOREIGN SERVICE JOURNAL 7 LET TERS The

CSIS Press Citing INS as his source, adjudicating officers marching to Honley states that 41 percent of all different drumbeats? visitors to the U.S. overstay their We can assume that visa law visas. In fact, what INS reported was will continue to be complicated, and that an estimated 41 percent of illegal full of areas wherein sophisticated aliens living in the U.S. originally judgment is demanded. We can entered legally as non-immigrants also confidently assume that most and overstayed, with the remainder visa issuance errors are unlikely to having entered illegally. be caught at the port of entry, and Because the U.S. does not cur¬ that once in the United States, a rently have reliable or universal exit person, whatever his or her status, controls, an accurate figure for the has an excellent chance of remaining overall visa overstay rate is not indefinitely. Thus, there is a need to available. INS estimates that about take all reasonable steps to issue REINVENTING 2.1 million non-immigrant over¬ visas only to those qualified for them. stayers live illegally in the U.S. This We can, and should, be sensitive DIPLOMACY IN THE population is made up of aliens who to public perceptions, and must INFORMATION AGE entered the U.S. over many years. rein in the “vice consuls from hell” A Report of the CSIS Advisory- When one considers that the U.S. whenever they appear. Consular Panel on Diplomacy in the issued roughly 30 million non¬ managers should insure that the Information Age immigrant visas in the past five years written (and oral) guidance provid¬ alone, and that some overstayers ed newcomers on local adjudicatory Richard Burt and Olin Robison, presumably entered without a visa wisdom is accurate and current. project cochairs; Barry Fulton, project under the Visa Waiver Pilot Program, The wording of our guidelines director it is clear that the actual visa overstay should not be insensitive, but neither rate is far less than 41 percent. must it be politically correct to the “The culture of diplomacy must be We note that Honley cited the point of unreality. overhauled to make it more accessible 41 percent figure as evidence that Officers need guidelines that are and participatory; obsolete technol¬ illegal immigration is a serious more than mush. Having widely ogy must be discarded and replaced to problem and that consular officers differing refusal rates among adjudi¬ make diplomacy more efficient and need to be vigilant in screening cating officers dealing with essential¬ relevant; and a larger community of out non-bonafide visa applications. ly the same population profile great¬ international and domestic actors While tile particular statistic may ly aggravates the situation. Beyond must be included in deliberations and have been incorrect, we certainly the sometimes impossible task of implementation. These changes will agree with the general proposition getting all adjudicating officers to use require bold and sustained leadership it was intended to support. close to the same standards (the as well as a better-trained, more Nancy H. Sambaiew value of tlie written guidance, con¬ effective diplomatic service.” Deputy Assistant Secretary stant training and monitoring), the —from the Introduction for Visa Services greatest enemy we face is staffing. December 1998 Washington, D.C. Unless the Foreign Service is able ISBN 0-89206-346-7 to provide sufficient qualified officers $24.95 to adjudicate all visa applications Needed: More Visa Staff with more dian a cursory look and Center for Strategic & International Your November articles on Robert allow visa officers a workday tiiat Studies, 1800 K Street, N.W, Olsens battle over visas touch on a avoids the risk of burnout, we will Washington, D.C. 20006 number of painful tensions in the continue to receive criticism from our Tel (202) 775-3119 visa world, including the seemingly public and ourselves. Sad to say, the Fax (202) 775-3199 eternal questions: How are posts to procedural shortcuts which are E-mail: [email protected] adequately dispose of the avalanche adopted widi die laudable intent of Visit our Website at of visa applications many face, and efficientiy — and fairly — processing http://www.csis.org how should managers deal with the never-ending lines of visa seek-

8 FOREIGN SERVICE JOURNAL/FEBRUARY 1999 SEVEN MINUTES TO STATE DEPARTMENT

ers leads to the unfair perceptions spawned by situations such as this. Worst, we sour new officers on a vital COLUMBIA PLAZA function, while we go to bed each APARTMENTS night knowing our performance has Capital Living been less than it might have been. With Comfort and Convenience Bruce A. Beardsley Diplomat in Residence Heatdiful, M-pacianA- &j!fficieeici&i, 1 and- 2 dednoamd UCLA SHORT TERM FURNISHED APARTMENTS AVAILABLE Los Angeles, Calif. Utilities Included 24 Hour Front Desk Complimentary Voice Mail Garage Parking Available The Limits of “Profiles” Courtyard Style Plaza Shopping on Site Polished Hardwood Floors Cardkey Entry/Access In responding to the Olsen case Private Balconies River Views and broader questions of U.S. visa Huge Walk-In Closets Minutes to Fine Dining policy, Deputy Assistant Secretary Nancy Sambaiew concluded with Walk to the Kennedy Center and Georgetown this important point: “Every applica¬ Minutes to Foggy Bottom Metro tion is examined on an individual (202) 293-2000 case-by-case basis.” 2400 Virginia Ave., N.W. That is the policy, but it is not Washington, D.C., 20037 always the practice in the field. Managed kq. i'ALtuyPJt., Shannon & Jhtcni Go-. Faced with ambassadorial, congres¬ sional and/or GAO (as Steven Honleys article mentioned) pres¬ sures to reduce visa waiting lines and the large increase in visa fraud, MARTENS VOLVO overworked visa officers have been forced to come up with applicant Dedicated to Diplomacy profiles to assist them in the visa adjudication process. Such a devel¬ Worldwide Delivery to Diplomats opment is understandable, although and Members of International Organizations the personally derogatory comments apparently made on the application forms by some offices in Sao Paulo would seem to go too far. The real problem arises when these visa pro¬ files or characterizations become in effect the sole basis for adjudicating the visa application, thereby denying the applicant a genuine case-by-case hearing. Let me illustrate this with a case that was brought to my attention while I was principal officer at a European post a few years ago. Contact: Dana Martens, Diplomatic Sales Director Here is the profile of the applicant, who wanted to visit relatives in VOLVO MARTENS 202-537-3000 the United States: domestic worker CARS OF WASHINGTON, INC. Fax 202-537-1826 (huge market for illegal domestics 4800 WISCONSIN AVE. WASH., DC 20016 in the United States) from the Philip- U.S.A.’s Largest Diplomatic Dealer

FEBRUARY 1999/FOREIGN SERVICE JOURNAL 9 LETTERS

pines (a high fraud rate country), was fired because he would not go department to act on several fronts. applying outside of the country of along with the practice of adjudicat¬ First, the department needs to make nationality (absence of ties), visiting ing visas according to post profiles. a strong case within the administra¬ close family in the United States Apparently, Judge Stanley Sporldn tion’s budget process and with the (added incentive to stay). This case reached the same conclusion. The Congress for sufficient consular seemed a no-brainer: “Refused; next Journal’s coverage does not contain resources to handle the ever growing applicant, please.” There were two much information about how wisely and increasingly demanding work¬ pieces of information, however, that Olsen applied the case-by-case load, particularly regarding visa ser¬ the officer did not consider. First, method except his own statement vices. Dealing with the workload the applicant had a residence permit that a survey of his visa issuances may well mean asking for more FSO for the European country, and “that was neither random nor accu¬ positions, expanding the family second and most importantly, had rate” was used to show that 22 member employment program, and worked for the same prominent percent of his visa issuances were to perhaps even reestablishing some¬ family for 13 years. I urged that the illegal immigrants. Olsen was a first thing akin to the old Foreign Service case be reconsidered. The visa was tour officer. If his use of the case-by- Staff Corps. issued, the applicant went to the case approach led to poor judgments, Second, more time needs to United States, and returned to the he needed to be counseled by his be spent in the consular course on European country after the visit. superiors and assisted in improving. instructing officers how to imple¬ This brings me to the case of He may well have been, but we do ment the departments case-by-case Robert Olsen. From his account, not know from the record in the visa policy in practice. he was only trying to follow the Journal. Third, supervisory officers need to departments policy of treating each The unfortunate case of Robert work closely with junior officers applicant on a case-by-case basis and Olsen, in my view, requires the throughout die rating period and not, You'll Find 100 V\foys To Spend 30 Days At Georgetown Suites. Coming to Washington for an extended stay? Our oversized, luxurious suites put you close to the business district and historic sights, world-class dining and eclectic shops that make Georgetown so exceptional.

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10 FOREIGN SERVICE JOURNAL/FEBRUARY 1999 LETTERS

as is too often the case, only at EER Olsen: The View from Brasilia did not comply without further time. Periodic performance reviews Robert Olsen is incorrect in his investigation. My recollection is should be substantive and frankly allegation that “a consul general that the ambassador was distressed discuss areas for improvement so secretly lobbied the U.S. ambassa¬ when the request was first made that an officer has a chance to dor to Brazil to urge the director to remove Olsen from Sao Paulo. In remedy shortcomings. general of the Foreign Service to fact, the ambassador directed that Finally, the 1994 amendment quietly remove me from Brazil for every effort be made to work with to the 1980 Foreign Service Act, reasons of efficiency and morale. Olsen to keep him in Sao Paulo which makes FSOs responsible for The ambassador complied without in die visa unit, and followed up mistakes made while serving in further investigation.” Having work¬ on his orders. their professional capacity, makes ed in the front office in Brasilia dur¬ Claudia Romeo officers particularly wary in visa ing the time Olsen was a consular Office Management work. 1 believe that the department officer in Sao Paulo, I know some¬ Specialist should work to clarify whether or not thing about that situation. U.S. Embassy Rabat FSOs can be held personally liable in Number one: Did Olsen want court for their actions. Given the the consul general to lobby openly current uncertainty, many consular for his removal from Brazil? Olsen Milking the System officers have felt the need to take The decision to remove Olsen from Robert Olsens “Speaking Out” out personal professional liability Brazil was done with discretion. column is an excellent example of insurance. Surely Olsen did not want everyone why lawyers and legalistic arguments Clarke N. Ellis in the consulate general and the make bad policy. Consul General, Retired embassy discussing his case. Olsen seems to feel that anything Kensington, Md. Number two: The ambassador less than total capitulation by the WORLDWIDE INSURANCE FOR FOREIGN SERVICE PERSONNEL

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12 FOREIGN SERVICE JO URNAL/FEB R VA RY 1999 LETTERS

other side is unacceptable. There tions in China are turning up is much I do not know about his useful tools for the Sinoliterate: case. Still, what I read prevents Chinese language search engines and me from accepting automatically newspaper Web sites with tens that he is totally in the right, even of thousands of searchable articles. though the actions of his supervisors For example, a Nov. 30, 1998 search Mercedes-Benz seem to have been arbitrary and of the People’s Daily database unjustified. Nevertheless, when brought up over 1,200 articles since given full reinstatement and an August 1 or about 10 articles per day excellent assignment, he refuses to mentioning the United States. accept victory unless given full pay You’ll find information in the Diplomacy during a time when he was making environment, science and technology more money as an attorney than area in that section of the Embassy he would have in the service. Even Beijing Web page at http://www. has its if we believe that his original stand¬ usembassy-china.gov. The net has point was a principled and correct indeed become a cool resource for one, his present situation appears intemet[ional] relations. rewards. to be simply that of a lawyer trying David Cowhig to milk the system for everything Environtnent, Science and At American Service Center, your he can get. Technology Section diplomatic or official passport* C. David Noziglia U.S. Embassy Beijing ■ will allow you to purchase a new Desk Officer, USIA Washington, D.C Mercedes-Benz at dramatic CORRECTION: The article Intemet[ional] Affairs in the November FSJ stated savings. Contact Erik Granholm, incorrectly that the American Diplomacy our Diplomat and Tourist Sales Intemet[ional] Relations website (www.unc.edu/depts/diplomat) Manager. A native of Munich, Thank you for the fine article is run by the University of North Germany, Erik has been “Internetjional] Relations” which Carolina’s Diplomacy Department. In appeared in the November issue fact, it is maintained by American Diplo¬ with ASC for 32 years. of the Journal. Our Internet explora¬ macy Publishers, a non-profit corporation. *Applies only while on official business or diplomatic assignment. Have a Bone to Pick? /iLmencan Why not write a "Speaking Out" for Service Center the Foreign Service Journal? Mercedes. Just Mercedes. "Speaking Out" is the FSJ's op-ed section, the place where writers can express opinions on issues specific to the Foreign Service, its 585 N. Glebe Road, employees and its work. Writers are encouraged to take strong stands, but all claims must be supported and documented. Arlington, VA 22203 Length of submitted articles should be from 1,500 to 2,000 words. 703.525.2100

All submissions go to the Journal’s Editorial Board for discussion. Telefax: 703.284.2482 If an article is accepted, writers will be expected to meet the magazine's editorial and style requirements. Mobile: 703.405.4018 Please make submissions via e-mail to [email protected], www.americanservicectr.com by fax to (202) 338-8244, or by mail.

FEBRUARY 1999/FOREIGN SERVICE JOURNAL 13 CLIPPINGS

RUSSIA AND BELARUS: clashed with police in late December. The Yeltsin-Lukashenka accord, Goble UNITY THAT DIVIDES writes, “highlights the continuing in¬ Moves by Russia and its neighbor fluence in Moscow of those interested in Belarus to reunify are creating shock- reversing the 1991 dissolution of the waves in both the East and the West, writes Soviet Union and calls into question Paul Goble, an expert on post-Soviet Yeltsins past commitments to oppose nationalities, in the December 28 Radio any such revision.” The bombing of Free Europe bulletin. our embassies The proposed merger of the two “represents a direct challenge to NATO,” STATE, AID LAG IN in Kenya and Goble writes. Poland, scheduled to join NATO later this year, adjoins Belarus. FIXING Y2K BUG Tanzania Russian President Boris Yeltsin and his The State Department and the Agency reminds us of Belarusian counterpart Alyaksandr Luka- for International Development are both shenka signed an agreement on Christmas behind schedule in meeting the Y2K the risks faced day which they say may lead to unification challenge, according to a December 8 every day by of the two states by mid-1999. report from the Office of Management While there is widespread skepticism and Budget. In fact, OMB listed AID those who regarding this new marriage of old as the federal agency with the lowest represent partners, the two former Soviet republics percentage of systems that are year have already agreed to convert to a single 2000 compliant, reported the January 11 America to currency and a common tax system early Federal Times. the world. this year, reports Goble. Of AIDs seven “mission-critical systems,” Russian communists and nationalists only 14 percent (or one of the seven) Let s give them applaud the accord as a restoration of are Y2K compliant. State is doing better, our support, the past and a challenge to NATO and with 46 percent of its 59 mission-critical the West, but they fear the unity will systems considered ready for the millen¬ the safest place a tremendous financial burden on nium. Even so, OMB listed State along possible work¬ Moscow. with AID as two of the six federal Some reformers have objected to a agencies “not making sufficient progress” places, and the shotgun wedding which appears to be in meeting the challenge of preparing resources they taking place without public discussion computer systems so that they function or plebiscites. According to Goble, “they properly when the date changes to 2000. need so America view it as a threat to democracy and free Overall, said OMB, of 6,696 mission- can continue market economics, with many fearful critical systems in the U.S. government, that such a reunification would transform 61 percent were considered Y2K compli¬ to lead. the authoritarian Belarusian president ant. By far the largest burden falls PRESIDENT WILLIAM into a major player on the Russian politi¬ on the Department of Defense, which JEFFERSON CLINTON, cal scene.” operates 2,581 critical systems, with 53 STATE OF THE UNION The Belarusian Popular Front has percent in compliance. ADDRESS, criticized Lukashenkas willingness “to But pensioners can breathe easy, JANUARY 19,1999 eliminate Belarusian statehood,” and dem¬ it seems: Among the best prepared federal ocratic activists opposed to the merger units is the Social Security Administration,

14 FOREIGN SERVICE J OU RN AL/FEB RU ARY 1 999 CLIPPINGS

CLIPPINGS

considered 99 percent Y2K compliant. do that, but it is more difficult if you have The goal of the President’s Council on to change or remake yourself every year Year 2000 was to have all federal systems as your parents move to a new country.” ready for testing on March 31, 1999. Canadas Foreign Affairs Department But Jack Gribben, spokesman for the has started running seminars for returning council, admitted, “It is likely many teens to reassure them that what they agencies will not reach the March 1999 are feeling is normal, and that in time they milestone for certain systems.” will again feel a part of their peer group. YEARS AGO For smaller children, the fears can be more basic. Seven-year-old Jonathan Francoeur, coming “home” to Ottawa FS KIDS: “CHILDREN ‘'Mr. [George] Mar¬ after living his entire life in Chile and ■ WITHOUT A COUNTRY?” Jamaica, was afraid living in a normal house shall is the first Being a child of Foreign Service without special security. Secretary of State in personnel can create serious adjustment “We used to have a big dog and bars on modem times who problems, whether you’re Canadian or the windows and a 24-hour alarm system had working level American. That’s the message conveyed and security guards,” the boy said. “Now experience with the anybody could just come into our house in an article headlined “Children Without Foreign Service in a Country,” in the November 16, 1998 and rob us.” Ottawa Citizen. the field prior to be¬ Though the life of a diplomatic brat coming Secretary in might appear privileged, correspon¬ A FOREIGN POLK A 1947. After a stren¬ dent Mike Trickey writes, “The reality uous life of service frequently turns out to be quite different, GLASS CEILING? to his country in the Women in foreign affairs careers must with the children of globe-trotting parents Army and desiring suffering psychological problems, aca¬ be exceptional to succeed, according to a demic struggles and feeling that they new study conducted by the Women’s above all else rest don’t fit in, either abroad or at home.” Foreign Policy Group, a Washington, D.C.- and retirement, his Adjustment can be especially tough based professional association. Ninety-five reply, when the Presi¬ for teens. Said one Canadian FSO, “I re¬ percent of the 516 women leaders in inter¬ dent phoned him at member my 15-year-old daughter telling national affairs who responded to the survey his home in Leesburg, us she was going to kill herself if we made said they had to consistently exceed perfor¬ her move one more time.” mance expectations in their careers. In Va., and asked him While that level of stress is unusual, addition, 74 percent said they had to con¬ to go to China, was frequent moves can make it hard for teens sciously work to make their male colleagues simply, Yes, Sir. to get the peer group acceptance they need. comfortable with them in the workplace. One young woman who grew up at The women also reported that they four different foreign postings by age 13 have paid a high price for their career FROM AN FSJ EDITORIAL said, “As a lad, I always thought of myself success. More than one-half said they COMMENTING ON GEORGE as a social chameleon even before I knew had sacrificed time with their families MA RSHA LL’s RESJGNA TION what those words meant. I remember to meet professional demands. A majority, AS SECRETARY. even at age nine or 10 consciously examin¬ 68 percent, said they were unhappy with FEBRUARY 1949 ing what the new crowd was doing and the balance between their professional then trying to mimic that. A lot of kids and personal lives.

FEBRUARY 1999/FOREIGN SERVICE JOURNAL 15 CLIPPINGS

IN RUSSIA, CHARITY tion it needs to function legally. The Moscow committee that considers STOPS AT HOME applicants for the “charity passport” needed Battle — a Though many Russians badly need help by nonprofits to operate meets only twice a method of this winter, foreign charities are in despair month. Small charities with little political over bureaucratic obstacles that keep clout have almost no chance of registering untying with them from helping. In fact, according to successfully, the Moscow Times reports. the teeth a an article by Ben Arts in tire December 11 Customs is also a major problem. The Moscow Times, many international non¬ Salvation Army says it has more than 3,000 political knot profit organizations have left the country, sleeping bags that have been stuck on the that would defeated by city administrations, the tax border for more than a year “while they try police and the customs service. to meet a Kafkaesque set of regulations.” not yield to With limited resources, a number of The Red Cross reports that in 1997 customs organizations have moved to places where agents “burned a consignment of toys from the tongue. they can function. According to the British Sweden destined for Siberia, because Charities Aid Foundation, there are more ‘toys’ doesn’t appear on the list of goods AMBROSE international non-profits in tiny Georgia designated as aid.” than in all of Russia. In die meantime, the Salvation Army BIERCE, In Moscow, for example, some criminal and Medecins Sans Frontieres report that THE DEVIL’S organizations in previous years registered increasing numbers of Russians are visiting as charities in order to get tax concessions. their soup kitchens and free clinics — not DICTIONARY Consequently, it has become very difficult just tire homeless and elderly but employed for a legitimate charity to get the registra¬ people who haven’t been paid in months. ■

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16 FOREIGN SERVICE JO URNAL/FER R VARY 1999 SPEAKING OUT Sometimes Silence is Safer

BY EUGENE M. PROPPER

Not long ago, an investigator from conduct investigative interviews with States Office of the Inspector Lying to an agent Foreign Service employees, they are General approached a senior Foreign likely to find cooperative people who Service officer and told him that he can cany penalties won’t ask for a lawyer to be present. was conducting an investigation into FSOs are inclined to believe in the events in which several persons, of up to five years fundamental fairness of law enforce¬ including the FSO, were involved. in prison and fines ment agencies; they find it hard to The FSO freely answered the investi¬ believe they could be investigative gators questions and also signed a of up to $5,000 targets. That makes them vulnera¬ written statement based on the inter¬ ble. If an FSOs conduct is being views. It was not until he finally hired for each false investigated for possible criminal an attorney that the FSO discovered statement. prosecution, he should not answer that he was the principal target of the questions without private or AFSA investigation and that, as a result of counsel present. his statements, he was being charged An agent may give the employee with lying to the inspector general. good faith assurances that his state¬ If the FSO had retained a lawyer hours, and even diough he was never ments won’t be used against the em¬ before giving an interview, he would charged with a crime, his security ployee in a criminal case. However, have had an advocate present during clearances were suspended. the agent’s assurances do not bind a questioning, been able to obtain a After the USAID FSO hired a prosecutor or protect the employee. copy of the agents report of the inter¬ lawyer, he obtained a copy of the The only assured protection for an view and had a chance to review all agents interview report. He discov¬ employee is a written declination of tire relevant records. His subsequent ered that his statements had been prosecution from a prosecutor. problems could have been avoided. misconstrued, and, worse, that the In another case, a USAID FSO agent had bed about what was said. Better Safe Than Sorry was approached by an FBI agent and Not only did the FSO still have the Like all Americans, Foreign Ser¬ advised that another person had been burden of denying wrongdoing in the vice employees have tire right in a arrested and that the FSO might be first charge, he also then had potentially criminal case to have a implicated in that persons case. The a larger problem of accusing the FBI lawyer present before answering agent said the only way the FSO of issuing a false statement. If he had agents’ questions and even the right could clear himself was to speak to hired an attorney, the attorney could to refuse to answer agents’ questions. the agent immediately, before the have prepared him for the interview, This protection is derived from arrest was revealed in the press. The made sure the agent didn’t ask the Fifth Amendment to the U.S. FSO spoke alone to the agent for ambiguous questions and could have Constitution, which gives citizens the prevented the FSO from being right to remain silent in the face of Eugene M. Propper, a former U.S, pushed into saying something that government questioning if answering attorney, works in the Washington could later hurt him. He would also might incriminate them. In addition, law firm of Holland 6- Knight. Leslie have had copies of his notes to as government employees, FSOs are McAdoo assisted with this article. refute the agents report. protected from threats of being fired Note: For ease in reading the author When agents from States Office if they refuse to answer questions that has used only mascidine pronouns. of the Inspector General or the FBI they think may be used against them

FEBRUARV 1999/FOREIGN SERVICE JOURNAL 17 SPEAKING OUT

in a criminal prosecution. v. New Jersey, in which it ruled that accurately. The agent will rely on his If an agent really has no intention statements coerced from government notes, and he will have complete dis¬ of conducting a criminal investigation, employees after they have been cretion about what is reported. he can obtain a letter to that effect threatened with termination can not Widiout an impartial observer, an from the appropriate United States be used in a criminal prosecution. FSO may later have to contradict the Attorneys office. This so-called Although Garrity rights are only agent’s report, or worse, risk adminis¬ “declination of prosecution” gives an applicable when an employee faces a trative or criminal prosecution for FSO immunity from having his words penalty if he refuses to speak, they statements diat he can not prove used against him in a criminal case, may apply if an FSO has a reasonable were inaccurate or fabricated. but not in cases involving civil or belief that refusing to speak to an administrative sanction or for an agent will mean a penalty. An FSOs Speak At Your Own Risk administrative or criminal charge of general fear that he will be consider¬ If an FSO decides to consider making a false statement to an agent. ed uncooperative does not give him answering questions without prepar¬ Whether or not he has counsel Garrity protection, however, and, in ing and -without hiring an attorney, present, an FSO can decline to most cases, any statements can be he should at least follow some basic answer questions unless he receives a used against him. procedures. declination of prosecution. If an Even if an FSO assumes that since Ask for the identification of every agent refuses to obtain a declination, he has done nothing wrong and so person present, making sure to find there is good reason to believe that a risks nothing in talking to an agent out which agency each works for. If possible criminal investigation or without a lawyer present, he should an FBI agent is present, presume prosecution is involved, and the be wary. Many investigations are the matter vrill involve potential FSO should retain counsel to discuss conducted into events years in the violation of criminal laws. his rights. past. Answering questions about Ask what the investigation is about these matters is best done after all and whedier or not you are personal¬ Garrity Rights records have been reviewed and ly under investigation. If you are Because FSOs work for the events have been reconstructed. not, ask why you are being inter¬ federal government in positions of Typically, an agent comes to the viewed. Remember, you still don’t responsibility and authority and have interview well prepared, and, as a have any protection if the agent, his to maintain complicated security result, has more complete informa¬ superior, or a prosecutor decides clearances, most find it uncomfort¬ tion than the FSO. If the FSO feels later to charge you with a crime. If able, if not untenable, to refuse to pressured, he or she might easily the agent tells you that you are talk with law enforcement agents. make misleading or incorrect state¬ under investigation, even if he says Many believe that if they refuse to ments, which could lead to adminis¬ it does not involve criminal charges, immediately answer questions posed trative charges of lying to an agent or refuse to answer questions until you by agents, drey will lose their jobs. other criminal charges, even if die have consulted an attorney, either Law enforcement agents often tty to investigation reveals no underlying private or provided by AFSA. intimidate FSOs with pressure tactics civil or criminal violation. If the agent answers your ques¬ and intimidating statements such as, Even if a statement isn’t given tions specifically, says you are not “you don’t want to make trouble for under oath, and even if the “interview” the investigative target and lets you yourself’ or, “it would be better if you is an informal exchange, lying to an look at relevant documents, you can just cooperated and answered our agent can cany penalties of up to feel safer if you decide to answer questions.” Falling for this pressure five years in prison and fines of up to questions widiout an attorney present. may be more detrimental to an FSOs $5,000 for each false statement. Still, when FSOs speak to agents career than exercising caution. On top of these legal issues, there without enough time to prepare and In recognition of this dilemma, the are also practical considerations. without the advice of legal counsel, Supreme Court has developed pro¬ Since the investigating agent will not diey later all too often face unneces¬ tection for government employees. have a court reporter, stenographer sary, serious legal problems. Investi¬ This protection, sometimes referred or tape recorder available during the gating agents have a great deal to as “Garrity Rights,” is derived from interview, there is a high probability of power. Speak to diem without an the Court’s 1967 decision in Garrity diat statements will not be reported attorney only at your own risk. ■

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FEBRUARY 1999/FOREIGN SERVICE JOURNAL 19 Focus ON DIPLOMACY's FUTURE

REINVENTING DIPLOMACY, AGAIN

STUDIES BY CSIS AND STIMSON CRITICIZE FOREIGN SERVICE WAYS, BUT MISS SOME KEY QUESTIONS.

BY PETER GALBRAITH

ot long ago, Senator Phil Gramm (R-Texas) justified slashing the State Department’s budget by portraying America’s diplomats as elitists enjoying the good life at the expense of the American taxpayer. Katherina Frasure replied with a blistering letter to The Washington Post, describing the hard¬ ships her family went through when they moved abruptly to newly independent Estonia, where her husband Bob served as our first ambassador. A few months before Mrs. Erasure’s riposte to the senator, I stood on the tarmac of Croatia’s Split airport as the remains of Bob Frasure, Joe Kruzel and Nelson Drew were transferred from a helicopter to the military plane that

20 FOREIGN SERVICE J O V RN AL/F E B RU ARY 1999 Focus

would take them home. The three Technology secretaries of State. The timing of diplomats died when dieir armored these reports seems to me to be personnel carrier rolled off the gives us a way singularly unpropitious. Mount Igman Road that provided With consolidation of the foreign besieged Sarajevo’s only link to the to talk, but it affairs agencies, the Congress has just outside world. Nine months later, I enacted the most substantial changes in stood on the tarmac of another doesn’t tell us the institutions of American diplomacy Croatian airport as the remains of in 50 years. The prospects for another Secretary of Commerce Ron Brown what to say. dose of change just now seem slim. and 34 accompanying travelers made I must confess bias. I like our their somber final trip home. Ron Foreign Service and consider that I Browns plane had flown into the Mountain of Saint was extremely well served by the career diplomats who John the Baptist near Dubrovnik on an Easter trade worked for me during my tenure as U.S. ambassador to mission aimed at making tangible the benefits of the Croatia through years of war and tenuous peace. I peace for which Frasure, Nelson, and Kruzel died. found little from the CSIS report that related to my These deaths in civilian missions far exceed U.S. mil¬ experience of the Foreign Service as an ambassador or itary losses, all in accidents, during the three years of as senior staffer with the Senate Foreign Relations the Bosnia deployment. Along with the other names on Committee, with 10 years experience handling the State the marble plaques in the State Department lobby, the Department s authorization legislation. crashes on Mount Igman and Mount Saint John under¬ score the extraordinary human toll paid by American A Hierarchical Cable Culture? diplomats. Yet while Congress adds billions to the The CSIS report paints a grim picture of American Defense and intelligence budgets, Foreign Service offi¬ diplomacy: “The conduct of American diplomacy faces cers are lampooned and minimal funding for such items unacceptable performance gaps between its outdated as U.N. dues is not forthcoming. practices and the requirements of the new age of infor¬ mation.” These gaps include diplomatic priorities, pro¬ A Somber Anniversary fessional standards, leadership, relations with NGOs, On this, the 75th anniversary of the Rogers Act that media and business, as well as resource-driven matters created the Foreign Service, it is well to ask what has of infrastructure, computers, and telecommunications. gone wrong with it. Why is it held in such low esteem at American diplomats, says the report, are caught in a home, and in particular on Capitol Hill? What can be “hierarchical cable culture that defines American diplo¬ done to reform or improve the service? macy today” and which “has changed little in the last Two new studies purport to answer these questions century.” As the cable culture yields inevitably to the at least in part: one by the Center for Strategic and digital culture, the State department must accelerate International Studies (CSIS), entitled “Reinventing changes in information processing or else “American Diplomacy in the Information Age,” reflects the views diplomacy risks being rendered irrelevant.” of a 63-person advisory panel drawn from business, the Yet, beyond an accounting of the undeniable media, NGOs, and academia, but heavily laden with shortcomings of the departments computer system, former ranking government officials. “Equipped for the there is little documentation of performance gaps I Future” from the Washington-based Stimson Center is as ambassador never saw. Similarly, many of the re¬ endorsed by 14 former senior officials including three ports recommendations are stated in generalities, with maddeningly little concrete justification: Diplomats Peter Galbraith, U.S. ambassador to Croatia from 1993 should end tire culture of secrecy and exclusivity to to 1998, teaches at the National War College. He was develop collaborative relations with the public, the secre¬ a senior staffer for the Senate Foreign Relations tary of State should be a change leader, the priorities Committee from 1979 to 1993. of diplomacy should be reordered, diplomats should

FEBRUARY 1999/FOREIGN SERVICE JOURNAL 21 Focus

network better, foreign public opinion should be better ders of Alta Vista and Lycos search engines, computers used, and security should be balanced with openness. that recognize voice commands, new-generation fiber The new paradigm of American diplomacy should optic cables, and World Wide Web news sites. In their recognize the distinctive roles of the National Security enthusiasm, the authors seem to lose sight of the fact Council, the newly reorganized State Department, that technology is a tool, not a substitute for substance. Congress, NGOs and the media. State should have a In 1995, I was conducting shuttle negotiations business plan that recognizes the equities of stakeholders between Zagreb and rebel Serbs in Eastern Slavonia. and constituents. It should also have a vision statement. Tbe war had cut phone lines between the region and the Diplomacy does not lend itself to tire planning that rest of Croatia, and while there, I was effectively in¬ characterizes the military or business. It is inevitably communicado. General Wesley Clark, then Holbrooke’s driven by crises — foreigners keep doing inconvenient military adviser and now Supreme Allied Commander, and unpredictable things — and therefore demands Europe, assigned a four-man Army team to accompany me with the latest in secure mobile communications. Outside the small yellow villa where we negotiated, DIPLOMATIC DISCONNECTS the soldiers deployed an array of satellite dishes and com¬ "America's foreign policy establishment, with its reliance munication gear. I was impressed and so were the Serbs. on traditional methods of Classic Diplomacy, is deficient in But the gear was never used. All U.S. government exper¬ certain crucial elements in its policy making apparatus: tise on Eastern Slavonia was in tire room with me, and • effective interagency organization; no one in Washington knew enough of the issues to offer • 'right-sized' embassies adaptable to their local circumstances; guidance (even though we reported daily). Technology • modern information technology; gave us a way to talk, but didn’t help with what to say. • sufficient private sector interaction; and Clarity is an essential virtue in the information age. • adequate and consistent budgetary resources. The CSIS report lacks it. Following its survey of tech- These 'disconnects' hamper America's ability to pursue its nology, the report moves on to cover globalization in an national interests and have profound implications at several enthusiastic but uncoordinated manner. The narrative levels for the future conduct of U.S. foreign affairs." jumps from American attitudes toward public engage¬ ment to data on rising IQ scores to unanswered ques¬

— From the Stimson Center's "Equipped for the Future" tions about the future of representative government. Normally, metaphors should illuminate. Here, they run versatility and creativity. A military operation requires amok, moving from quantum analysis to Newtonian intricate planning to get all units in place in the proper- physics to Japanese pagoda architecture. The prose sequence. Diplomats must have goals — peace in the makes this ex-diplomat nostalgic for the writing in the Balkans based on the integrity of the successor states — Foreign Affairs Manual. but getting there requires an ability to think on ones feet. The great practitioners, such as Richard A Foreign Service Reserve Holbrooke, operate instinctuaUy rather tiian according to More simply written, less dramatic in its assertion of a specified plan. A business plan and a statement of crisis, and more specific in its recommendations is the vision and values would be additional paper exercises, Stimson Center’s “Equipped for the Future.” Its recom¬ rather like an embassy’s Mission Program Plan, that mendations fall into four categories: Remodeling the for¬ consumed too much of my senior staffs time without eign affairs machinery, improving embassy operations, providing any guidance that we didn’t already have. better information technology, and closer connections between diplomacy and business. Some recommendations The Wonders of Technology overlap with CSIS’s, notably in endorsing major capital The CSIS report swoons over the wonders of modem expenditures on a state-of-tiie-art computer system and technology with paragraph after paragraph on the won¬ reform of the personnel system to encourage greater

22 FOREIGN SERVICE 10 U RNAL/F E B R U A RY 1999 Focus

functional expertise and more invest¬ Stajfing patterns be the most effective way to reach a ment in professional development. foreign decision maker. Both reports recommend recreating have consequences. In Croatia, my speeches and pub¬ a Foreign Service reserve officer lic remarks were extensively covered system under which foreign policy A system that cannot and certainly affected Croatian public professionals who are not FSOs serve and governmental perceptions of tours in the State Department or distinguish U.S. interests U.S. policy. Nonetheless, I had a embassies. This idea has merit as it hard time persuading the very talent¬ can provide the department expertise in Zagreb from those ed young officers in my political sec¬ not always available in the Foreign tion diat this was a game they should Service. This reserve service can be in Minsk is a disgrace. not only be willing, but eager, to play. particularly valuable as the depart¬ Hopefully, consolidation of State and ment addresses the increasingly critical global issues of USIA will help change this mindset. Consolidating the the environment, international crime, and new threats cones will also help. from weapons of mass destruction. For a reserve system to work, its officers cannot Cookie Cutter Embassies be second-class citizens relative to the career Foreign The Stimson report recommends that the State Service. This means that top jobs would have to Department develop a surge capacity to handle crises. be open to its members. I would also urge particular I applaud the recommendation, but only wish the consideration of reserve appointments for congressional secretaries of State making it hadn’t waited until they committee staff, many of whom are both entrepreneur¬ were out of office to say so. ial and expert on substance. The departments greatest operational shortcoming in the Balkans during the recent war was its inability to Down with Cones staff its embassies in the region or its offices in the The CSIS report recommends consolidating the department to cope with the crisis. With the Belgrade present cone system into two career tracks of policy embassy cut off by a visa war and the Sarajevo embassy officers (presently the political, economic, and public barely functioning, Zagreb, Croatia, became the princi¬ affairs functions) and management (consular and pal locus of U.S. government activity in the former administrative). This is one of the reports few concrete Yugoslavia. In addition to responsibilities for Croatia proposals and it makes lots of sense. It will enable the issues and the Croatia peace negotiations, our embassy department to recruit administrative and consular was the primary liaison to the United Nations mission officers direcdy rather than staffing these functions with for the former Yugoslavia. We ran the humanitarian disappointed aspirants for the political cone. The assistance programs for Bosnia, Croatia, and Kosovo, current system can produce individuals with neither the and handled the refugee and consular workload for skills nor the frame of mind to do the very important both Bosnia and Croatia. We also did much of the work to which they are assigned. diplomatic reporting on Bosnia and interacted with The policy officer slot should help eliminate die rigid Bosnian officials as they transited Zagreb. Yet, in spite divisions that enable some political and economic offi¬ of the attention being paid to the war, the department cers to see their jobs as reporting and negotiation while staffed Zagreb in 1993 hardly differently from any of thinking of public affairs as an alien and less meaningful the other 20 new posts that had been opened in the activity. For many embassies, public affairs — explaining previous two years. and promoting U.S. foreign policy — is our single most The department was no more capable in its important diplomatic activity. Further, just as a Washington staffing. In 1991 Yugoslavia was in the Washington Post story usually has a greater impact on Office for Eastern Europe with six other countries. policy makers than a well-reasoned cable, the media can Thanks to the breakup of Yugoslavia and Czecho-

FEBRUARY 1999/FOREIGN SERVICE JOURNAL 23 Focus

Slovakia and Baltic independence, the It is an idiotic approach mittee in each chamber. Currendy, office handled 15 countries in 1993, four House subcommittees handle many of which screamed for attention. to national security to pieces of this account and quite often These staffing patterns had conse¬ foreign affairs spending is raided for quences. A management system that have a superb domestic demands within the same cannot distinguish U.S. interests in subcommittee. The recommendation Zagreb from those in Minsk is a dis¬ military, first-rate is bold (rarely do blue ribbon foreign grace. I spent much of my first year affairs panels propose that Congress lobbying for resources and cannibaliz¬ intelligence, and under¬ change its structure), sensible, and ing otiier parts of the embassy to sup¬ won’t happen. Subcommittee chair¬ port our negotiations. Only when funded diplomacy. men do not give up jurisdiction, as Richard Holbrooke took the reins at diat is the essence of dieir power. the European Bureau was there someone who under¬ The odier proposal, which has been kicking around stood that resources affect policy, and at last we got the for some time, would have State open up a liaison office positions we needed. It then took far too long to fill on the Hill, much as die armed services have in the them with the right people. basements of die House and Senate office buildings. Holbrooke abolished the Office of Eastern The idea is that an attractive face cheerfully resolving a European Affairs, creating three offices in its stead. member’s passport or constituent visa problems would The conflict states of the former Yugoslavia got their not only build goodwill but serve to remind the own office, which vastly improved policy coordination Congress that diplomats are real Americans too. This is and implementation. a marginally useful suggestion, as is one that would notify members of constituents who are selected into Preemptive Capitulation in Congress the Foreign Service. The State Department does stunningly poorly on These ideas are designed to counter the old saw that Capitol Hill, especially compared to its fellow national the State department has no constituency. This may be security agencies. Compare States relationship with its true — but the department’s problems on the Hill are appropriating and authorizing committees to that of the structural, and far more serious. Defense Department and the CIA. This year the Pent¬ When the secretary of defense and the CIA director agon has ended up with $7 billion more than requested. interact with the Congress, the basic issue on their agenda The Intelligence Oversight Committees, set up to check is money. When die secretary of State goes to Congress, abuses at die CIA, have been fully “recruited” by the her primary concern is usually policy. More often tiian agency. Not only do these committees generously fund not, the secretary’s posture is defensive. Can she block the the CIA — $1 billion over request this year — but they unilateral lifting of the U.N. anus embargo on Bosnia? also carry die agency’s water in its intramural batdes. How will she counter criticism of the Iraq policy? By contrast, the State Department has been This structural problem is compounded by the role repeatedly unable to win funding for something as basic of the assistant secretary of State for legislative affairs. as U.S. dues to the United Nations. States budgets are (The bureau she heads is known as “H,” as in Hill). Her routinely cut below request by its committees and the power in the bureaucracy depends on a belief propa¬ department finds itself negotiating about its core gated by all incumbents that she is of a priestirood structure for the sake of getting nominations approved. uniquely the master of the mysterious ways of Capitol The Stimson panel addresses the problem, but its Hill. (In recent years the assistant secretaries have all proposed solutions are either unobtainable or too little. come from the Hill; my comments deal generically with Boldly and sensibly, the panel recommends that the how drey conduct themselves and are not directed Congress reorganize the appropriations subcommittees specifically at the very capable incumbent.) Other so that die 150 account is handled by a single subcom¬ bureaus are firmly instructed to work drrough “H,” lest

24 FOREIGN SERVICE ] O U RN AL/FE B RU ARY 1999 Focus

it be discovered that diere is no mystery to congres¬ sional relations. Within the departments senior circle, INFORMATION RISK MANAGEMENT there is a tendency to defer to the assistant secretary both out of awe for the priesthood and because of a "If the State Department is to lead the bureaucratic tendency to respect a colleague s turf. U.S. government on this global technology Of course, assistant secretaries that lose too many undertaking, it needs to replace its current battles will not maintain their privileged position. policy of risk avoidance with risk manage¬ Therefore, they tend to engage in a strategy of pre¬ ment. The atmosphere at State has to emptive capitulation. “Madame Secretary, that nomina¬ change from information policing to infor¬ tion will be controversial with X’s office” translates mation providing. The State Department into a decision not to expend capital on someone. must accept the fact that in an information¬ Compromise is almost always recommended on intensive environment, not having access to resource issues and coming back with half a loaf is then information can be riskier than losing con¬ portrayed as a great victory for the legislative affairs trol over a particular piece of information." strategy. The priesthood s mastery is thus confirmed.

Members of Congress, and their staffs, understand — From the Stimson Center's this system veiy well. A single senator, or well connect¬ "Equipped for the Future" ed staffer, indicates opposition to a nominee. H advises against a fight and so a career diplomat is tagged with war-ending strategies. The military, in which we invest¬ being unconfirmable. A career goes into a tailspin. ed close to $3 trillion in die decade preceding Desert Storm, performed brilliantly. In the immediate after- How to Win in Congress math of the war, American diplomacy sat on its hands as The most important single element in an effective Shi ites and Kurds staged an uprising against Saddam foreign affairs strategy for the next century is adequate Hussein. No one in the administration knew much funding. Botii reports mention this but neither gives about the rebels (although the uprising was endrely pre¬ it the emphasis it deserves. It is an idiotic approach to dictable, it caught the administration unaware) and let national security to have a superb military, first-rate pass an opportunity to oust the Iraqi regime for which intelligence, and underfunded diplomacy. we are still paying today. An American diplomacy not Diplomacy is our nations force multiplier. When so thin on expertise on Iraq might have helped chart a successful, it avoids military commitments. When our course that consolidated our military's victory rather armed forces are used in peacekeeping (as they are like¬ than squander its sacrifices. ly to be used increasingly in the next century), diplo¬ The president and the secretary of State need a mats frame the terms of the deployment, negotiate its legislative strategy to insure adequate funding for diplo¬ goals, and hopefully provide for the exit strategy. The macy. First, die case must be made more effectively that masterfully negotiated Dayton annexes on military diplomacy is an essential component of our national deployment are one reason that no American troops security strategy. Second, that case must be made by the have died in hostilities in die three years of the Bosnia secretary of defense, the service chiefs, the director deployment. Richard Holbrooke has argued that inade¬ of central intelligence as well as the secretary of State. quate resources devoted to the civilian side of the equa¬ Finally, the secretary of State must be prepared to tion is one reason those troops are still there. fight resource battles to win. It is true diat die scorecard Diplomacy is an essential adjunct to our armed won’t look as good as it does under die strategy of forces should we ever get into conflict. Secretary of preemptive surrender, but the department will at State James Baker and his department skillfully lined up least have a chance for more money. allies to participate in Desert Shield while getting other Two important areas for the 21st century are only countries to pay for the war. Diplomacy is also key to all tangentially discussed in the two studies — intelligence

FEBRUARY 1999/FOREIGN SERVICE JOURNAL 25 Focus

and broadcasting. The omissions are significant as both the ruling party’s campaign rhetoric, as well as diplo¬ consume major resources and raise serious performance matic contacts with its top leadership going back long questions. before the party took power, the embassy in New Delhi should have sent some warning about the possibility of Spying on Diplomats testing. Deferring to assessments made significantly on The United States spends 50 percent more on the basis of clandestine sources can be the hard way of intelligence activities than it does on foreign affairs finding answers that are much more readily and reliably (including foreign assistance). The CIA budget is larger available. than the State Departments. For all this expenditure, Neither report addresses die tricky issue of relations there are serious questions about how well intelligence between the State Department and die intelligence supports American diplomacy and how well the intelli¬ community both in Washington and the field. Aside gence community relates to American diplomats. from the well publicized case in which die CIA couldn’t As U.S. ambassador to Croatia, I found the intelli¬ figure out diat it was the President’s policy not to object gence support on diplomatic and war-related issues of to arms flows to the Bosnians (even after its director was limited value. Rarely did intelligence products provide told), I observed several odier instances in which the warning of significant pending developments in the war, agency seemed to have a tin ear for U.S. policy. and their value was small as compared to the intelli¬ Correcting problems, even when there were very sub¬ gence from overt collector's such as our diplomats in the stantial State Department equities at stake, produced region or the defense attaches. Ambassadors dealing resentment against supposedly unwarranted interfer¬ with other complex military/political crises have made ence in intelligence matters. similar observations. (The intelligence community per¬ For example, in 1996 the State Department sought forms important work in odier areas, such as combating CIA agreement that its stations would not send official terrorism, for which I personally was very appreciative.) cables reporting on die activities of American diplomats. The Stimson report appears to share die convention¬ (An investigation had turned up CIA cables reporting, al view that recent intelligence failures, such as not among odier things, overheard conversations between detecting die Indian nuclear test, stem from inadequate American officials, accounts of country team meetings, resources, particularly in the area of human intelli¬ and comments on a diplomat’s personal life.) The CIA gence. I question whether we can recruit in many refused, even turning down a department request to places the land of assets that would enable us to know review cables to determine the extent of such reporting. the closely held planning of an Indian prime minister (it The CIA and the State Department are completely would have required someone in his innermost circle, a intertwined. The department is the major consumer of daunting challenge) and worry that delegating responsi¬ the agency’s product and embassies are essential plat¬ bility for anticipating tiiese developments to the intelli¬ forms for intelligence collection. While some tension is gence community lets diplomats off the hook. Based on inevitable given the very different cultures of the two

FEWER AMERICANS ABROAD "The Department of State should also carry out a comprehensive reassessment of the requirements for official presence abroad with a view to increasing the repre¬ sentation of country and area specialists and reducing the presence of those whose support can be more efficiently provided by e-mail, teleconferencing, and inter¬ national travel. A forward-looking analysis, conducted in close consultation with American ambassadors, should result in fewer resident Americans to protect as well as stronger official representation where it matters most."

— From CSIS's "Reinventing Diplomacy in the Information Age"

26 FOREIGN SERVICE ] O URN AL / F EB RU ARY 1999 Focus

institutions, there is no reason for tire As I read these reports, works, spending vast sums with reck¬ lack of coordination, and mistrust, less disregard for whether there are that I observed. The current secre¬ with their image of viewers. In the 1980s, the Reagan tary has a particularly close working administration initiated a government relationship with Director of Central diplomats as untimely version of CNN international, which Intelligence George Tenet. This rep¬ it called Worldnet. Suspicious of resents an opportunity to address some reporters, I wondered claims of millions of viewers in of these issues from the top down. Europe, the Congress commissioned They could begin with a systematic who some of these a Nielsen-type rating survey. It critique of CIA products by practition¬ revealed an occasional audience of ers, but should also better delineate former high officials 20,000 viewers, mostly elderly pen¬ the responsibility of diplomats for sioners widi little else to do. In anticipating events. Not every failure thought had carried France die survey could not find a to predict the future is an intelligence single viewer. The program was failure, and not all intelligence failures out their decisions. slashed one year only to be revived should be laid at the CIA’s doorstep. without any proof the new program¬ ming would produce audiences. Broadcasting to No One For waste, however, nothing rivals Television Marti, Although ostensibly about diplomacy in the infor¬ die surrogate TV station broadcasting to Cuba. Castro mation age, the CSIS report barely touches on U.S. easily and cheaply jams its signal. So far the taxpayers government broadcasting, even though it is the most have spent more than $100 million to transmit extensive and expensive (consuming 40 percent of programming no one in Cuba has ever seen. USIA’s budget) means the government uses to inform America pioneered and dominates global television, foreign publics. The Voice of America and the surro¬ thanks to private broadcast companies. When our top gate radios (Radio Free Europe, Radio Liberty, and officials speak to the world they do so on CNN, not Radio Free Asia) broadcast in more than 40 languages. Worldnet. There is no need for boring and inferior This does not mean our broadcasts are heard in all government television that is not watched. these languages. The VOA’s Croatian service has a Where we can reach an audience, the investment in superb professional staff that produces several hours of broadcasting makes sense. In the late 1980s and early engaging programming a day. It broadcasts on short 1990s, the Congress created VOA services in Tibetan wave, which Croatians don’t listen to, and is carried on and Kurdish. These VOA broadcasts, along with the several unlicensed FM stations with a few miles newly created Radio Free Iraq, are acts of solidarity broadcast radius. None of these stations are in Zagreb, with oppressed peoples who have few other sources of where a quarter of the population lives, including the information. They actually have audiences, as do some politically active people we would most like to influence. of the surrogate services and VOA broadcasts in major In my four and one half years as ambassador, I met world languages. just one Croatian who said she listened to the VOA, and she was the wife of the Swedish ambassador. Diplomats: More than Reporters Many U.S. government radio broadcasts are short At the height of the war between Muslims and Croats wave, a great way to get information with those large in Bosnia, I asked Tom Mittnacht, my economics officer, receivers now mostly seen in World War II films but to visit a Croatian helicopter base near Mostar where obsolete in a broadcast band packed with FM and AM we believed Bosnian Muslims were being detained. stations. The programming may be great, but is it a Defying the camp commandant’s orders and ignoring wise use of resources if no one listens? nearby snipers, Tom entered a hangar to discover hun¬ The U.S. government also operates television net¬ dreds of malnourished Bosnians.

FEBRUARY 1999/FOREIGN SERVICE JOURNAL 27 Focus

of crisis that is based on the false premise diat the U.S. No FUTUROLOGISTS HERE Foreign Service today exists primarily to inform policy "DOD's resident visionary, Andy Marshall, makers. The programmatic and operational service that says it is 'striking how little people at State the reports advocate already exists, and not just in a war look into the future,' but, he adds, 'there is zone. From Moscow to Bratislava, and in large parts of no reason it can't catch up.'" Africa and South America, American diplomats are working to promote democracy, facilitate the transition — From CSIS's "Reinventing Diplomacy to free markets, tamp down ethnic conflict, and promote in the Information Age" human rights. Virtually eveiywhere embassies help American business navigate die local economy while His report made a great cable. But more important¬ aggressively pushing American products. As I read the ly, I used his information with the Croatian foreign min¬ reports, widi their image of diplomats as untimely ister to secure the immediate release of 5,000 Bosnian reporters, I wondered who some of these former high POWs and the eventual removal of die warlord respon¬ officials thought had carried out their decisions. sible for their detention. The warlords removal paved If the history of previous blue ribbon panels is any the way to a more responsible Croat leadership in guide, these will gather more dust than action. While Bosnia that in turn made it possible to negotiate an end each report has some meritorious suggestions, this wall to the Muslim-Croat war. not be all bad. What American diplomacy needs is not Tom Mittnacht wasn’t the only U.S. diplomat who reform but resources. Being equipped for the future made a difference on the ground. In 1995, I was costs money. ■ charged with negotiating die return of Serb-occupied Eastern Slavonia to Croatia, an essential precondition to ll.S. TAX TIME IS HERE! LIVING ABROAD? a Bosnia settlement. Jeff Hovenier, of the political sec¬ tion, helped me negotiate and write die peace agree¬ ment. After the agreement was concluded, my PAO, Douglas Davidson, organized a series of town meetings jba so that I could bypass obstructionist leaders and explain die accords provisions direcdy to the affected popula¬ tions. Chuck Aanenson, the AID mission director, chan¬ James neled his resources into projects that had Serbs and Burgess Croats working together to restore tiieir war torn Associates. Ltd- region. Three years later, Eastern Slavonia is the one Certified Public Accountants place in the former Yugoslavia where wartime ethnic cleansing has actually been reversed with both Serbs Need help with U.S. taxes from an and Croats now living in the region. on-line tax preparer with 30 years In Croatia, we saw as our mission mitigating die con¬ experience? Check out our web sequences of war and achieving a durable peace. We page for free interview software. certainly worked to inform policy makers, and some of Give us a call or send us an e-mail. our cables helped shape key decisions. Much more importantly, we sought to use all available tools -—- from Tel: (703) 237-9200 E-Mail: jimb@ jbaltd.com jawboning die government to press conferences to AID Fax: (703) 534-9320 URL: www.jbaltd.com expenditures — to implement U.S. foreign policy. While some embassies are in places where the U.S. has 6105-A Arlington Blvd. primarily a watching brief, many operate like ours. Falls Church, VA 22044-2708 The CSIS and Stimson Center reports convey a sense

28 FOREIGN SERVICE ] O U RN Ah! F E B RU A RY 1999 American Foreign Serv a t i o n

Grievance Results: Some Progress and Some Setbacks

by Sharon Papp, General Counsel and Suzanne Brennan, Labor Management Attorney

Governing Board FSA's Labor Management Office has place a copy of the award in the grievant's President: Daniel F. Geisler W Lw reported the results of two recent ariev- file. The board went on to find, however, that State Vice President: vacant USAID Vice President: Frank Miller ance cases of interest to our members: the employee was unlikely to have been pro- USIA Vice President: J. Riley Sever FSGB Decision on 1996 MSI Recipients moted in 1 997 even if the omission had not CS Vice President: Charles Kesfenbaum FAS Vice President: Maggie Dowling State Department FSOs and specialists occurred, since the employee was ranked too Retiree Vice President: Edward Dillery who received Meritorious Service Increases far away from the promotion cut-off line in the Secretary: Aurelius Fernandez Treasurer: Thomas Boyatt (MSIs) from the 1996 Promotion Boards may competition group. State Representatives: Natalie Brown, be affected by this case. Beginning in late While it may have been clear that the Marilyn Bruno, Michael Corbett, Christopher Sandrolini, Greg Stanton 1997, AFSA assisted an employee in present- grievant in this case would not have been pro- USAID Representative: James Dempsey ing a grievance which alleged that the depart- moted in 1997 even with the notice of the USIA Representative: Susan Crais Hovanec ment failed to include in the employee's Retiree Representatives: Garber Davidson, 1 996 MSI in the file, it is not clear to AFSA Willard DePree, William Harrop, Clyde Taylor Official Performance File (OPF) a notice that that the same can be said of the other 255 FAS Representative: Evans Browne the employee had been awarded a CS Representative: vacant employees whose notice of 1 996 MSIs were Staff Meritorious Service Increase in 1996. The not placed in their performance files. Executive Director: Susan Reardon Business Department department denied the decision on the basis In light of the recent board decision, AFSA Controller: David McEvoy that the employee was not disadvantaged by and management agreed to the following Accounting Assistant: Jenifer O'Neal Labor Management the absence since none of the 1 996 MSI remedy for some individuals who may have General Counsel: Sharon Papp recipients received a notice in their OPF. been harmed by the omission of the 1 996 Staff Attorney: Colleen Fallon On appeal, the Foreign Service Grievance Coordinator: Richard C. Scissors MSI record in their OPF: Specialist: James Yorke Board recently found in favor of the employ- Of the 255 employees who received a USIA/USAID Labor Relations Specialists: ee. The FSGB determined that the agency mis- Carol Lutz, Jack Mossop MSI in the top five percent in 1 996, 13 were Labor Management Attorney: interpreted its 1 996 selection board precepts recommended but not reached for promotion Suzanne Brennan when it failed to place a record of the griev- Grievance Attorneys: Henry Sizer, by the 1997 Selection Board. After careful Zlatana Badrich ant's 1996 MSI in the personnel file. The consideration of the number of slots away Law Clerks: Melody Fowler-Green, FSGB thereby ordered the department to Margaret G. Perl continued on page 2 Office Managers: Karen Batchelder, Naida Harrington Member Services Director: Janet Hedrick * AFSA Dateline • Representative: vacant •The AFSA Scholarship Program is look¬ Administrative Assistant: are not in the Foreign Servce). It is spon¬ Thomasina Johnson ing for judges for the 1999 AFSA/AAFSW sored by the Una Chapman Cox Retiree Liaison: Ward Thompson Academic and Art Merit Competition. Professional Programs Foundation. The time commitment is approxi¬ Professional Issues Coordinator: Judges will spend six to eight hours in late mately five hours in late March. Interested Richard S. Thompson March to score Foreign Service high school Congressional Affairs Director: Ken Nakamura individuals should contact Perri Green, the Communications Coordinator. Kristina Kreamer senior applications. Contact Lori Dec at essay contest coordinator, at 703-761-3126 Scholarship Administrator: Lori Dec 202-944-5504 or [email protected] for Corporate Relations: Mark Lore or [email protected]. Internet Addresses: more information. [email protected] (Association) •AFSA welcomes Margaret G. Perl, a [email protected] (President) [email protected] (FSJ) •Volunteers are also needed to judge law clerk in the Labor Management Office. AFSA Headquarters: (202) 33&4045 essays from the 75th Anniversary of the Margaret graduated magna cum laude in FAX: (202) 3386820 Foreign Service National High School Essay State Department Oifice:(202} 647-8160 history and Russian from Arizona State FAX: (202) 6474)265 Contest. One of the activities of the 75th University and is presently a second-year USAID Office: (202) 712-1941 FAX: (202) 2163710 Anniversary Gala Celebration, the essay law student at Georgetown University Law USIA Office: (202)4016405 contest promotes the Foreign Service to high Center. FAX: (202)4016410 AFSA News Editor: Wesley Ann Godard school students nationwide (whose parents continued on page 14

AFSA NEWS • FEBRUARY 1999 I Grievance Results 1 ===== RETIREE ■ continued from page 1 • If 11 ■ ■«7ink w.jrr w?i . from the promotion cut-off line, and mind¬ ful of the FSGB's recent decision, AFSA and management agreed that of the 1 3 • BY ED DILLERY • recommended for promotion, six employ¬ ees who were six or fewer slots away Membership Communication is a from the cut-off line will receive a reconsti¬ tuted 1997 Selection Board. Two-way Activity As for the remaining seven who were he office of the Retiree Vice Many of you have also inquired recommended, but not reached for pro¬ President is a clear example of about the state of AFSA's outreach motion; based on FSGB precedent, they how AFSA's membership commu¬ programs, especially the speakers are probably situated too far away from nication is a two-way activity. For bureau. I am glad to report that Dan the cut-off line to necessitate a reconstitut¬ many retirees, especially the majority Geisler and the Governing Board ed panel. If, however, you are not one of living outside of Washington, this have asked me and your retiree rep¬ the six receiving a reconstituted board office is the natural channel for their resentatives to explore actively how and believe that a reconstituted panel comments, complaints or requests for we can reenergize this important should consider you, then you may file AFSA's help. Similarly, to the great activity. I will welcome your help on an individual grievance with PER/G. extent the association relies on us this one. AFSA is pleased to report that in retirees for assistance in supporting As you know, a number of retired October 1998, Personnel placed a important outreach programs, my colleagues engage in speaking about record of the receipt of a 1996 MSI in office is the one charged the Foreign Service to all 255 OPFs in question. Therefore, with getting out the "I would be public groups. Some do future Selection Boards will be aware of appeal. this on their own, some an employee's 1 996 MSI. Many of you got in grateful for any through the limited oppor¬ For a copy of grievance guidelines, touch with me in 1 998 ideas on how tunities of the speakers contact AFSA at (202) 647-8160. concerning problems in bureau, some in conjunc¬ Questions regarding this agreement dealing with the depart¬ we could do tion with our successful should be directed to Suzanne Brennan ment on retirement issues. outreach better." Elderhostel programs. at the same number. In response to your con¬ What we hope to do is Update on FISA Grievances: FSGB Rules cerns, we had AFSA coordinate these activities in Favor of Department President Dan Geisler in a way that each will On October 14, 1998 the Foreign write a letter to the Director General, reinforce the other; at the same time Service Grievance Board issued its long- Skip Gnehm. I want to share with making greater use of the nascent awaited decision in a series of grievances you the gist of Ambassador Gnehm's Diplomats Online project and other regarding Fair Labor Standards Act (FLSA) year-end reply: computer-age assets. overtime pay for Diplomatic Security offi¬ "Our Office of Retirement is commit¬ I will be writing more about this cers. Three hundred DS officers had griev¬ ted to improving customer service to undertaking. For now, I will welcome ed the denial of their overtime pay, annuitants. In the last few years, the information from you about public because they were deemed exempt from Office of Retirement has implemented a speaking you have undertaken inde¬ overtime provisions of the Fair Labor new computer system for calculating pendent of AFSA, college teaching you Standards Act. FLSA mandates overtime annuity benefits; streamlined proce¬ may be doing, or local organizations compensation at the rate one and one-half dures for payment of survivor benefits; you are aware of which have shown times the employee's hourly rate of pay, produced an annual personalized interest in having a speaker on the without any maximum limit, for those quali¬ statement of benefits for department Foreign Service. We hope to achieve a fying employees assigned to the United employees; automated many services better understanding of existing activities, States. The officers argued that they were for annuitants with the Annuitant Direct in order to direct our outreach programs entitled to uncapped overtime under the system; and developed benefits state¬ effectively. Specifically, I would be grate¬ FLSA rather than the overtime payable ments and customized software for ful for any ideas you have on how we under title 5, which is subject to limitations. informing employees about the retire¬ could do outreach better — please con¬ These group grievances followed a ment open seasons. Despite these tact us at: 1 994 grievance by a DS special agent improvements, we recognize that there 2101 E Street, NW, assigned to the secretary of State's detail have been some interruptions in provid¬ Washington, D.C. 20037-2990, who contested the Department s classifi¬ ing routine services to employees and tel. 1-800-704-2372, or cation of his position as FLSA exempt. annuitants. The Office of Retirement is e-mail: [email protected] AFSA provided extensive legal research working to correct these problems." with your suggestions. in support of the grievant's position and Needless to say, I will continue to You are our principal resource. the department quickly settled the case, monitor this situation closely. AFSA will appreciate your help. conceding that non-supervisory agents assigned to the secretary's detail are

2 AFSA NEWS • FEBRUARY 1999 entitled to overtime under the FLSA. Letters The specific questions addressed in the Grievance Board's Oct. 14 decision A Farewell to Prabhi were: whether the DS officers, who were nonsupervisory DS agents serving various At 10:30 a.m. on August 7, 1998, my The knee-jerk obsession with the notion offices and divisions of the Bureau of world turned upside down. I lost my Prabhi of universality and the attendant need to Diplomatic Security, fall within the admin¬ in the bombing of the U.S. embassy in maintain a diplomatic presence in every istrative exemption of the FLSA; and Nairobi, Kenya. Prabhi was my wife of corner of the world obscenely blinded the whether DS agents exempt from FLSA over¬ 16 years and my steadfast friend and department to its threshold responsibility time provisions are entitled to FLSA over¬ inspiration for 20. 1 did not have the overseas — to wit, to protect you and your time pay when they are temporarily opportunity to say one final farewell: colleagues who work so assiduously and detailed to FLSA nonexempt positions (e.g., I thank you, Prabhi, for serendipitously loyally to safeguard our nation's interests. the secretary's detail) for a week or more. saving my life, albeit I find it difficult to If it was the department's policy to staff AFSA regrets to advise employees ascribe any meaning to it in your absence. missions throughout the world, often times that the board ruled in the department's By reminding me to see someone in the in countries where our interests are minimal favor in all of the cases, in effect, finding front part of the embassy, I am here today. at best, it should have made the well¬ that DS agents are unique from other law Your murderers, and the murderers of being of you and your colleagues the enforcement officers who are entitled to your devoted Kenyan colleagues, are sine qua non of this policy. Security at our pay under the FLSA. The attorney repre¬ truly perfidious souls. They delude them¬ embassies abroad should be more than senting the agents, Gregory K. selves into thinking that they are followers senior officials rolling the dice of the risk McGillivary, maintains that in reaching of Islam, a religion of love and tolerance. management game. Security for our this decision, the board has disregarded They desecrated the religion in whose diplomats is not a crap shoot. the analysis of virtually every court that name they profess to have acted. Many Unfortunately, only now (250 lives later) has considered the issue of whether law of their victims were in fact Muslims. A is that message beginning to sink in. enforcement employees who perform more apt appellation than heretic or infi¬ Prabhi, you might also be interested in investigations and security work are enti¬ del cannot be given to these cowards. Do knowing that Secretary Albright has tled to FLSA overtime compensation. not worry, justice will be served. appointed Admiral William Crowe to McGillivary has advised that he will Prabhi, on October 23, The New York lead the statutorily-mandated appeal the board's decision to Federal Times ran a front page article by Raymond Accountability Review Board to oversee District Court. Those who do not wish to Bonner and James Risen reporting that an the investigation into the East African participate in the appeal must advise him Egyptian arrested in Tanzania in conjunc¬ bombings. I fear that history will repeat that they wish to opt out of the lawsuit. tion with the attack on our chancery in Dar itself. I hope that I am proven wrong. It is AFSA will keep members informed of es Salaam had apparently ventured into my understanding that no State the status of the District Court appeal. our embassy in Nairobi last fall to warn our Department-convened board has ever people that a plot to bomb the mission was found anyone accountable for dropping The Graduate Foreign Affairs in the offing. They, unfortunately, did not the ball in conjunction with a terrorist- Fellowship Program take the requisite measures to address this related incident at a United States mission wake-up call. I became very angry when overseas. I certainly hope that The Graduate Foreign Affairs one of our brave colleagues, hiding behind Ambassador Prudence Bushnell, whose Fellowship Program offers grants for grad¬ the mantle of a "Clinton administration offi¬ prescient and clarion plea for enhanced uate education in areas pertinent to the cial," was quoted by Bonner and Risen as security was met with deadening and Foreign Service. The goal of this program saying that their revelation was "embarrass¬ unimaginative silence, is not made the is to attract students from all ethnic and ing." You and the others deserved more scapegoat for this avoidable tragedy. social backgrounds to seek a career in than flippancy from a feckless bureaucrat. Life would be so much different today the U.S. Department of State Foreign The powers that be had a responsibility had you stayed home and fully recovered Service. Women, minorities and students to provide you a safe working environment from the cold which you were nursing on with financial needs who are U.S. citizens that met the Inman standards of the 1980s August 6. But that wasn't you. Believing that are encouraged to apply. for embassy security. These same powers you had to pitch in to clear up backlogs in The award includes tuition, a stipend will blithely plead poverty. The niggardli¬ your overburdened office, you returned to for room and board, fees, books and one ness of the Hill is a lame excuse for passivi¬ work even though you felt ill. You were round-trip travel between home and ty. The dollars and cents argument is truly always committed to turning in first-class per¬ school for both years of the graduate an amoral abdication by those lacking the formances — whether you were on the study, plus other benefits. courage to do the right thing. The department's crucial Mexican desk or in our The deadline to apply is February 22. Department of State, which you loved and administrative section in Manila. For more information about require¬ for which you ultimately gave your life, let I am, however, uplifted by 20 years of ments and benefits, contact Dr. Richard you down. It had an obligation to find the wonderful memories. How proud I was Hope, Director, Graduate Foreign Affairs funds either to make the mission safe or when you became an American citizen. I Fellowship Program, The Woodrow secure a replacement building in which you was equally proud of you when you joined Wilson Foundation, P.O. Box 2437, would not be in harm's way. If that was not the ranks of the Foreign Service, having Princeton, NJ. 08543-2437 or click on possible, the department was duty bound to passed the rigorous written and oral assess- http://www.woodrow.org close our mission. conf/nued on page 4

AFSA NEWS • FEBRUARY 1999 3 Letters continued from page 3

ments. My proudest moments, however, were on July 25, 1988 and April 20, 1993, when Tara and Maya were born. BY M A G G DOWLING I derive a great deal of solace knowing that your unmatched beauty, wit, charm, tenacity, and intelligence live on in our New Year — New Contract radiant daughters. When they ask me why anyone would kill their mommy, I have no hat better way to begin the ship, nomination or awards committee or ready answer to offer. No one does. I tell new year than with a new the AFSA board, all of us benefit when them that they should never forget that their AFSA FAS collective bargain¬ we strengthen the union. We all take spe¬ mother, while born and raised in India, ing unit agreement (CBA). This contract cial pride in promoting our Foreign died serving her adopted country, a coun¬ represents a significant milepost in our Service profession and the ideals it seeks try which she embraced and loved with a efforts to achieve a more personally and to advance. The celebration of the passion. Prabhi, like you they will reach for professionally rewarding workplace. All Foreign Service's 75th anniversary this the stars. Like you, they will triumph. major policies impacting our careers are year reminds us all of the uniqueness of Howard Kavaler now clearly and readily available. our profession and the privilege to be FSO, Department of State Though the policies may not always be part of such a rich legacy. Washington, D.C. exactly what we would have wished That legacy is as rich and as respect¬ Note from the editor: Kavaler has estab¬ them to be, they will, at least, be equi¬ ed as it is because of the hundreds of lished a perpetual scholarship in Prabhi tably and consistently individuals contributing their Kavaler's name to help defray college applied to all FSOs and time and energies to AFSA, costs for needy F.S. students. Anyone when they had no time. wishing to make donations should con¬ executive assistants. Equity "You can be and transparency always Service is a privilege and I tact AFSA Scholarship Administrator Lori were our top priorities. part of the will work hard to ensure that Dec at 1 -800-704-2372 ext. 504 or Many long-sought-after action or you all FAS AFSA members have [email protected]. goals finally achieved with the opportunity to continue this contract would not can watch." that tradition of sharing time Selling Ambassadorships have been possible without and talents. With tours in The selling of ambassadorships is the expert assistance from Washington becoming short¬ unethical and arguably illegal. When the AFSA legal staff, the support of the er, service while in the United States is campaign contributions are a factor in AFSA administrative staff and the encour¬ increasingly important. AFSA involve¬ the appointment of a chief of mission, agement and advice of the AFSA board ment keeps you apprised of the chal¬ America's image abroad, and at home, is and, especially, AFSA President Dan lenges to our profession and opportuni¬ tarnished. When unqualified individuals Geisler. All these critical components to ties to meet them. are placed in positions of responsibility, our success were there for us, thanks to Your union provides an unequalled America's interests can be damaged. our dues-paying members and those who access to become an agent of change, to The problem is an old one. contribute their time and energies work¬ participate more fully in your worklife. Ambassador DePree made some sugges¬ ing in AFSA committees. AFSA/FAS's experience during the nego¬ tions on how to overcome it in the In the future, when the realities of the tiations underscored the power and October 1998 Foreign Service Journal. straight line budget settle in, continuing import of individual members utilizing that Here are some other thoughts. advances likely will prove even more access. The 1999 goals for FAS challenging. The expertise and support Partnership Council forwarded recently 1. Argue the law. available to us during these negotiations by AFSA are further evidence of the •The Foreign Service act of 1 980 will become even more necessary. Your potential of members exercising those explicitly requires that "contributions to continuing financial support will always opportunities. These goals include more political campaigns should not be a fac¬ be important but equally, if not more overseas training, ensuring a job at tor in the appointment of an individual as important, will be each member's person¬ grade in Washington and abroad, a chief of mission." The fact that no other al commitment and involvement in AFSA greater opportunities for senior manage¬ activity is singled out in this manner and AFSA/FAS. ment training, meeting changing needs demonstrates the seriousness with which Our personal and professional goals for technical skills, reviewing the agency's the Congress views the matter. Such an are increasingly tied to AFSA; each of us recruitment profile, and enhancing EEO appointment would thus be contrary to has an interest and responsibility to activities and diversity initiatives. Our fore¬ the spirit and the letter of the law, and enhance its stature and effectiveness. most goal is to make the FAS PC a strong subject to a court challenge. Whether contributing to the Foreign vehicle for participatory management. • The act states that "positions as chief Service Journal, being available for When AFSA calls, remember you can be of mission should normally be accorded to Journal interviews, serving on the scholar- part of the action, or you can watch. career members of the Service, though cir¬ cumstances will warrant appointment from

4 AFSA NEWS • FEBRUARY 1999 time to time of qualified individuals who are not career members of the Service." ^==^= U S I A "Normal" and "from time to time" are not further defined. Standard usage would suggest that from time to time is some¬ where between rare and normal. The • BY RILEY SEVER* exact point is somewhat subjective and would depend on context, but I believe it would fall somewhere between five and 20 percent. All Over But the Shouting? •The concept of "qualified" is defined. The act urges that "to the maximum extent he battles have been fought, the nership program in place. They are will¬ possible" a chief of mission should speak T strategies played out, the compro¬ ing to involve the union when the law the language of the country of assignment mises have been negotiated, the mandates it, but if they can legally and be familiar with its history, culture, eco¬ decisions made and the agreements ignore union concerns, they will. nomic and political institutions, and the signed. A few careers have, perhaps, Nevertheless, both AFSA and AFGE interests of that country and its people. been stalled and a few careers made. have the legal right to be involved at If this part of the law was fully hon¬ According to the final reorganization this point, when the reorganization is ored, the selection of non-career FSO plan, USIA will cease to exist on being implemented, and management is chiefs of mission would be drawn large¬ October 1, 1 999. As of that date, a required to listen. The unions have the ly from the non-career professional for¬ new State Department will emerge responsibility to negotiate with manage¬ eign affairs community (including mem¬ with a fifth cone for public diplomacy. ment over the impact and implementa¬ bers of Congress) which has supplied Many people seem to believe that it's tion of the reorganization on our bar¬ many excellent chiefs of mission. all over but the shouting. gaining unit. This is called If nominees do not meet these qualifi¬ There were a few sur¬ "I and I" bargaining; and it cations, a court challenge based on the prises in the final plan that gives AFSA considerable act should be considered. "There were a Secretary Albright sent for¬ input, not always regarding ward to the president. The few surprises what is done, but certainly 2. Drop the suggestion that members of anticipated three bureaus with respect to how it is the Foreign Service should provide AFSA in the for Information, Exchanges done and how manage¬ with examples of ambassadorial misbe¬ and Public Affairs were final plan." ment's decisions will affect havior that damaged American interests. collapsed into two: Public AFSA's bargaining unit, • This approach would create the Diplomacy and Public which includes all Foreign impression, and perhaps, bring into Affairs. There will be no separate Service officers and specialists. being the reality, that the Foreign budget allocation for public diploma¬ Among the issues of highest concern Service has a snoop and tell culture. It cy, but program funds will be allocat¬ to AFSA, is the need to monitor the would not sit well with the Congress. ed to the posts overseas and fenced grades assigned to public diplomacy • It would poison the relationship off. Smith-Mundt/Zorinsky, the con¬ positions under the reorganization. between political appointees and embassy gressional legislation banning domes¬ Despite reassurances from manage¬ career staff and undermine teamwork. tic activities by USIA, will apply to ment, we fear that many public diplo¬ programs and not people. FSNs who macy Senior Foreign Service and 0-1 3. Develop some easily understood are primarily responsible for program¬ positions may be downgraded as they points that resonate with the public and ming will be paid from the post pro¬ are brought into comparability with simi¬ the Congress. gram funds. lar State positions. Logically, that is one • For example, ambassadors earn up Although AFSA was an active par¬ of the effects of positions transferred to $ 125,900 per year and usually serve ticipant in the initial task force meet¬ from an independent agency to a very three-year tours. A $300,000 campaign ings in the summer of 1 997, we were small part of a large organization. contribution to the winning party could not involved in the final discussions or Another key issue for AFSA will be thus be more than recouped courtesy of decision-making on the reorganization our continued concern and involvement the American taxpayer. plan. As many of us suspected, once with the harmonization of personnel the president signed the Omnibus Bill practices between USIA and State 4. Make suggestions for specific authorizing the reorganization, the including TIC/TIS, the six-year window, changes in the act. rush to finalize the plan to submit to promotion and tenuring precepts, and • Propose that from "time to time" be the secretary of State did not allow for many others. defined as 15 percent. Urge that the 15 the niceties of partnership. Neither For those people who may have percent be spread equally among the AFSA nor AFGE felt that our concerns thought that "it was all over but the geographic regions. were considered by State manage¬ shouting," I would say, "It ain't over • Propose that campaign contributions ment, which was clearly running the till the fat lady sings." And with 1 1,000 above, say, $ 100,000 over a period of show. It became obvious to me why members, AFSA has no problem carry¬ 24 months preceding the nomination to a State does not have a successful part¬ ing a tune. continued on page 14

AFSA NEWS • FEBRUARY 1999 5 AFSA 1998

FEDERAL AND STATE TAX PROVISIONS FOR THE FOREIGN SERVICE

Personal Exemption Medical expenses (including health FEDERAL TAX insurance) are subject to a floor equaling PROVISIONS For each taxpayer, spouse, and 7.5 percent of AGI. This means that any dependent the personal exemption deductible medical cost would have to Under the Tax Acts of 1997 and has been increased to $2,700. exceed $2,250 for a taxpayer with a 1998, there are several tax relief There is, however, a personal exemp¬ $30,000 AGI. There is also an addition¬ segments that may apply to Foreign tion phaseout of two percent for each al three percent reduction of itemized Service employees and their families. $2,500 of adjusted gross income deductions (excluding medical, casualty, Foreign Service employees most frequent¬ (AGI) over $124,500 (singles), theft, and investment interest) if the AGI ly ask AFSA about home ownership, tax $155,650 (head of household), exceeds $ 1 21,200. This three percent is liability upon sale of a residence, and $1 86,800(joint) and $93,400 (mar¬ applied to the AGI over $ 121,200 and state of domicile and we have devoted ried, filing separately). For those tax¬ not to the total of itemized deductions on special sections to these issues. payers in the last category, the two Schedule A. The maximum loss of deduc¬ AFSA's Tax Guide is designed as an percent is taken from each $ 1,250 tions is capped at 80 percent. informational and reference tool. It does exemption. State and local income taxes and real not presume to be any more than that. estate and personal property taxes Although we try to be accurate, many of Standard Deduction remain fully deductible for itemizers, as the new provisions of the tax code and are charitable contributions (to American implementing IRS regulations have not The standard deduction is given to charities only) for most taxpayers. been fully tested. Therefore, use caution non-itemizers. It has been steadily Donations to the AFSA scholarship fund and consult with a tax adviser as soon as increasing since 1 987. For couples it are fully deductible as charitable contri¬ possible if you have specific questions or is $7,100; for singles the deduction is butions. Donations to AFSA via the an unusual or complex situation. $4,250. Married couples filing separate¬ Combined Federal Campaign are also For 1998, the five basic tax rates for ly get a standard deduction of $3,550 fully deductible. Individuals may also dis¬ individuals remain applicable: 15, 28, and head-of-household filers receive a pose of any profit from the sale of person¬ 31 and 36 percent, and a top rate of $6,250 deduction. An additional amount al property abroad in this manner. 39.6 percent. The 15 percent rate is for is allowed for taxpayers over age 65 or For 1998 tax returns, any interest taxable income up to $42,350 for mar¬ blind. paid on auto or personal loans, credit ried couples, $25,350 for singles. The Most unreimbursed employee busi¬ cards, department stores and other per¬ 28 percent rate is for income up to ness expenses must be reported as mis¬ sonal interest will not be allowed as an $102,300 for married couples, $61,400 cellaneous itemized deductions which itemized deduction. Interest on educa¬ for singles. The 31 percent rate is for are subject to a floor of two percent of tional loans will again be allowed as a income up to $ 155,950 for married cou¬ adjusted gross income (AGI). This deduction, starting in 1998. If the ples and income up to $ 128,100 for sin¬ includes professional dues and publica¬ above debts are consolidated, however, gles. The 36 percent rate is for income up tions, employment and educational and paid with a home equity loan, inter¬ to $278,450 for married couples and expenses, home office, legal, account¬ est on the home equity loan is allow¬ singles. In addition, there is a 10 percent ing, custodial and tax preparation fees, able. Mortgage interest is, for the most surtax for certain high-income taxpayers. home leave, representational and other part, still fully deductible. Interest on It is computed by applying the 39.6 per¬ employee business expenses, and con¬ loans intended to finance investments is cent rate to taxable income over tributions to AFSA's Legislative Action deductible up to the amount of net $278,450 for singles and married cou¬ Fund. Unreimbursed moving expenses income from investments. Interest for ples and for married couples filing sepa¬ are no longer an itemized deduction. loans intended to finance a business is rately whose income is over $ 142,000. As of Jan. 1, 1994, moving expenses 100 percent deductible. Passive-invest¬ Long-term capital gains are taxed at a are an adjustment to income, which ment interest on loans in which the tax¬ maximum rate of 20 percent and are means that you get to deduct them payer is an inactive participant, i.e. a reported on Schedule D. This rate is effec¬ even if you are taking the standard limited partnership, can be deducted tive for all sales in 1998 unless you fall deduction. However, the deduction has only from the income produced by other within the 15 percent bracket, when the been narrowed to include only the "passive income." Interest on loans that rate becomes 10 percent. Long-term capi¬ unreimbursed costs of moving your pos¬ do not fall into the above categories, tal gains is defined for property held for sessions and yourself and your family such as borrowing money to buy tax- 12 months for sales in 1998. to your new location. exempt securities, is not deductible.

6 AFSA NEWS • FEBRUARY 1999 TAX GUIDE

Home Leave Expenses Home Ownership their age. Previously, qualified individuals who were age 55 or older were allowed Employee business expenses, such as For 1998, employees may deduct inter¬ a one-time capital gains exclusion of home leave and representation, may be est on up to $ 1 million of acquisition $1 25,000. Also, under previous law, if deducted as a miscellaneous itemized debt for loans secured by a first and/or you had a gain when you sold your deduction. In addition to the two percent second home. This also includes loans taken home, you could defer all or part of the floor, only 50 percent for meals and enter¬ out for major home improvements. On gain if you purchased or built another tainment may be claimed (100 percent for home equity loans, interest is deductible on home (of equal or higher value) within unreimbursed travel and lodging). Only the up to $ 100,000, no matter how much the two years before or after the sale. employee's (not family members') home home cost or what the loan is used for. The The new tax laws allow an exclusion leave expenses are deductible. Maintaining $ 100,000 ceiling applies to the total of all of up to $500,000 for couples filing joint¬ a travel log and retaining a copy of home home equity loans you may have. The same ly and up to $250,000 for single taxpay¬ leave orders will be helpful, should the IRS generally applies to refinancing a mort¬ ers on the gain from the sale of their prin¬ ever question claimed expenses. It is impor¬ gage. Points paid to obtain a refinanced cipal residence. All depreciation taken tant to save receipts: without receipts for loan cannot fully be deducted the same after May 7,1997 will, however, be food, a taxpayer may deduct only $30 to year, but must be deducted over the life of recaptured (added to income) at the time- $42 a day (depending upon the per diem the loan. It is advisable to save the settle¬ of sale. rate at the home leave address), no matter ment sheet (HUD-1 Form) for documentation The only qualification for this new capi¬ how large the grocery or restaurant bill. in the event your tax return is selected by tal-gains exclusion is that the house sold Lodging is deductible, as long as it is not the IRS for examination. must have been the taxpayer's principal with friends, relatives, or in one's own home. Qualified residences are defined as residence for at least two of the last five The IRS will disallow use of per diem rates the taxpayer's principal residence and years prior to the date of the sale. This and any expenses claimed for family mem¬ one other residence. The second home exclusion is not limited to a once-in-a-life- bers. If a hotel bill indicates double rates, can be a house, condo, co-op, mobile time sale, but may be taken once every the single room rate should be claimed, home, or boat, as long as the structure two years. and, if possible, the hotel's rate sheet should includes basic living accommodations, When a principal residence is sold, be saved for IRS scrutiny. Car rental, including sleeping, bathroom, and cook¬ capital gains realized above the exclu¬ mileage, and other unreimbursed travel ing facilities. If the second home is a vaca¬ sion amounts are subject to taxation. This expenses, including parking fees and tolls, tion property that you rent out for fewer new exclusion replaces the earlier tax-law may be deducted. The rate for business than 15 days during the year, the income provision that allowed both the deferral of miles driven is 32.5 cents. Those who use need not be reported. Rental expenses can¬ gain and a one-time exclusion of a princi¬ this optional mileage method need not keep not be claimed either, but all property taxes pal residence sale. detailed records of actual vehicle expenses. and mortgage interest may be deducted. Many Foreign Service employees are The only thing necessary will be a detailed hurt by the "two out of five years" resi¬ odometer log to justify the business use of Rental of Home dence provision. Despite repeated the vehicle and percentage of business use. attempts, AFSA has so far been unsuc¬ From 1998, this optional mileage method Taxpayers who are overseas and rent¬ cessful in persuading Congress to grant will also apply to leased vehicles. ed their homes in 1998 can continue an exemption for Foreign Service person¬ to deduct mortgage interest as a nel who cannot meet this requirement due Official Residence Expenses rental expense. Also deductible are prop¬ to prolonged overseas service. (ORE) erty management fees, condo fees, depre¬ Temporary rental of the home does not ciation costs, taxes, and all other rental necessarily disqualify one from claiming Since Oct. 1, 1990, employees who expenses. Losses up to $25,000 may be the exclusion. The new tax law requires receive ORE have not been allowed to offset against other income, as long as the only that you have occupied the house as reduce their reportable income by five AGI does not exceed $100,000 and the your principal residence for the required percent. The IRS ruling regarding ORE taxpayer is actively managing the proper¬ period (two years out of five). states that "usual expenses," defined as five ty. Retaining a property manager does Under Internal Revenue Code 1031, a percent of salary, are not deductible. not mean losing this benefit. Foreign Service employee whose U.S. Therefore the only expenses that are home may no longer qualify for the cus¬ deductible are those above the five percent Sale of a Principal Residence tomary residence replacement rule may that are paid out of pocket. Employees be eligible to replace the property should save receipts for any out-of-pocket There is a new capital-gains exclusion through a "tax-free exchange" (the so- expenses associated with their representa¬ on the sale of a principal residence called Starker exchange). In essence, one tional duties. These expenses can be deduct¬ on or after May 7, 1997, that property being rented out may be ed as miscellaneous business expenses. applies to all homeowners, regardless of exchanged for another, as long as that

AFSA NEWS • FEBRUARY 1999 7 AFSA TAX GUIDE FOR 1998

also is rented. In exchanging the proper¬ State Tax Foreign Service personnel must contin¬ ties, capital gains tax may be deferred. ue to pay taxes to the state of domicile Technically, a simultaneous trade of Provisions (or to the District of Columbia) while resid¬ investments occurs. Actually, owners first ing outside of the state, including during sell their property, place the equity pro¬ assignments abroad, unless the state of ceeds in escrow, identify in writing within Every active Foreign Service employee residence does not require it. 45 days the property they intend to serving abroad must maintain a state A non-resident, according to most acquire, and settle on the new property of domicile in the United States, and states' definitions, is an individual who within l 80 days, using the money held in the tax liability that the employee faces earns income or interest in the specific escrow as part of the payment. varies greatly from state to state. In addi¬ state but does not live there or is living It is important to emphasize that the tion, there are numerous regulations con¬ there for only part of the year (usually, exchange is from one investment property cerning the taxability of Foreign Service less than six months). Individuals are gen¬ to another investment property — the key pensions and annuities, as each state has erally considered residents and are thus factor in the IRS evaluation of an different rules about the conditions under fully liable for taxes, if they are domiciled exchange transaction is the intent of the which individuals are liable for taxes on in the state or if they are living in the state investor at the time the exchange was such income. (usually at least six months of the year) consummated. The IRS rules for the This state guide briefly reviews the but are not domiciled there. exchanges are complex and specific, with laws regarding income tax and tax on Foreign Service employees residing in a number of pitfalls that can nullify the annuities and pensions as they affect the metropolitan Washington area are transaction. An exchange should never Foreign Service personnel. Please note required to pay income tax to the District, be attempted without assistance from a that while AFSA makes every attempt to Maryland or Virginia in addition to pay¬ tax lawyer specializing in this field. provide the most up-to-date information, ing tax to the state of their domicile. readers with specific questions should However, most states allow a credit, so Calculating Your consult a tax expert in the state in ques¬ that the taxpayer pays the higher tax rate Adjusted Basis tion at the addresses given. Information is of the two states, with each state receiving also available on the states' websites list¬ a share. Many Foreign Service employees ask ed below. There are currently seven states with what items can be added to the cost basis Most Foreign Service employees have no state income tax: Alaska, Florida, of their homes when they are ready to questions about their liability to pay state Nevada, South Dakota, Texas, sell. Money spent on "fixing up" the income taxes during periods posted over¬ Washington, and Wyoming. In addition, home for sale may be deducted from the seas or assigned to Washington. It is a New Hampshire and Tennessee have no sales price. To qualify as legitimate "fix¬ fundamental rule of law that all U.S. citi¬ tax on personal income but do tax profits ing-up costs", the following conditions zens, because they have the right to vote, from the sale of bonds and property. must be met: 1) the expenses must be for retain a state of domicile even if residing There are also six states which, under work performed during the 90-day period abroad. There are many criteria used in certain conditions, do not tax income ending on the day on which the contract determining which state is a citizen's earned outside of the state: Connecticut, to sell the old residence was made; 2) the domicile. One of the strongest determi¬ Missouri, New Jersey, New York, expenses must be paid on or before the nants is prolonged physical presence, a Pennsylvania and West Virginia. The 30th day after sale of the house, and 3) standard that Foreign Service personnel requirements are that the individual not the expenses must not be capital expendi¬ frequently cannot meet, due to overseas have a permanent "place of abode" in the tures for permanent improvements or service. state, have a permanent "place of abode" replacements (these can be added to the In such cases, the states will make a outside the state, and not spend more than basis of the property, original purchase determination of the individual's income tax 30 days in the state during the tax year. price, thereby reducing the amount of status based on other factors, including Also, please note that these six states profit). A new roof and kitchen counters where the individual has family ties, where require the filing of non-resident returns for are not "fix-up" items. But painting the he or she is registered to vote or has a dri¬ all income earned from in-state sources. house, cleaning up the garden, and mak¬ ver's license, where he or she owns proper¬ Pennsylvania holds that "quarters pro¬ ing minor repairs qualify as "fixing-up ty, or where the person has bank accounts vided by the government at no cost to costs." or other financial holdings. In the case of Petitioner cannot be considered as main¬ Foreign Service employees, the domicile taining a permanent place of abode." might be the state from which the person Thus members of the Foreign Service joined the service, where his or her home domiciled in Pennsylvania who occupy CLICK ON leave address is, or where he or she government housing overseas must pay AFSANET intends to return upon separation. For pur¬ income tax to Pennsylvania. If they rent poses of this article, the term domicile refers their own home overseas, however, they http:// www.afsa.org to legal residence; some states also define will be exempt from these taxes. AFSA it as permanent residence. Residence refers has not heard of a similar ruling in any of to physical presence in the state. the other five states but Foreign Service

8 AFSA NEWS • FEBRUARY 1999 AFSA TAX GUIDE FOR 1998

employees should be aware that states out of the state on an employment con¬ Florida: No state income tax. could challenge the status of government tract for more than 546 days. This applies housing in the future. to FS employees and their spouses. Non¬ Georgia: Individuals domiciled in The following list gives a state-by-state residents use Form 540NR. Write: State Georgia are considered residents and overview of the latest information avail¬ of California, Franchise Tax Board, are subject to tax on their entire income able on tax liability, with addresses pro¬ Taxpayer Services, P.O. Box 942840, regardless of their physical presence in vided to write for further information or Sacramento, CA 94280-0040. the state. Georgia's tax rate ranges from tax forms. Tax rates are provided where Website: http://www.ftb.ca.gov 1 to 6 percent depending on income and possible. For further information please filing status. Write: Georgia Income Tax contact AFSA's Labor/Management Colorado: Individuals domiciled in Forms, P.O. Box 740389, Atlanta, GA Office or the individual state tax authori¬ Colorado are considered residents and 30374-0389. Website: ties. As always, members are advised to are subject to tax on their entire income http://www.state.ga.us/departments/dor double-check with states' tax authorities. regardless of their physical presence in the state. Colorado's tax rate is a flat 5 Hawaii: Individuals domiciled in Hawaii Alabama: Individuals domiciled in percent. Write: Department of Revenue, are considered residents and are subject Alabama are considered residents and Taxpayer Service Division, State Capitol to tax on their entire income regardless of are subject to tax on their entire income Annex, 1375 Sherman St., Denver, CO their physical presence in the state. regardless of their physical presence in 80261. Hawaii's tax rate ranges from 2 to 10 the state. Alabama's tax rate ranges from Website: http://www.state.co.us percent depending on income and filing 2 to 5 percent. Write: Alabama status. Write: Oahu District Office, Department of Revenue, Income Tax Connecticut: Individuals who are domiciled Taxpayer Services Branch, P.O. Box Forms, P.O. Box 327470, Montgomery, in another state but who have a permanent 3559, Honolulu, HI, 96811-3559. AL 36132-7470. place of abode in Connecticut and spend Website: Website: http://www.ador.state.al.us more than 1 83 days in Connecticut in the http://www.state.hi.us/tax/tax.html taxable year are considered residents and Alaska: No state income tax. are taxed on all income, regardless of Idaho: Individuals domiciled in Idaho for where it is earned. The tax rate ranges an entire tax year are considered resi¬ Arizona: Individuals domiciled in Arizona from 3 to 4.5 percent depending on dents and are subject to tax on their are considered residents and are subject income and filing status. Write: entire income. Idaho provides a safe har¬ to tax on their entire income regardless of Department of Revenue Services, 25 bor provision where a resident individual their physical presence in the state. Sigourney Street, Hartford, CT 06106. who is outside Idaho for a qualifying peri¬ Arizona's tax rate ranges from 3 to 5.6 Website: http://www.state.ct.us/drs od of time will not be considered a resi¬ percent depending on income and filing dent. If an individual qualifies for the safe status. Write: Arizona Department of Delaware: Individuals domiciled in harbor, he would report as a nonresident Revenue, Attention: Forms, 1600 West Delaware are considered residents and and be taxed only on income from Idaho Monroe, Phoenix, AZ 85007-2650. are subject to tax on their entire income sources. A nonresident must file an Idaho Website: http://www.state.az.us/revenue regardless of their physical presence in income tax return if his gross income from the state. Delaware's tax rate ranges from Idaho sources is $2,500 or more. Idaho's Arkansas: Individuals domiciled in 3.1 to 6.9 percent depending on income tax rate is between 2 and 8.2 percent Arkansas are considered residents and and filing status. The first $2000 of depending on income and filing status. To are subject to tax on their entire income income is exempt. Write: Division of request forms write: Idaho State Tax regardless of their physical presence in Revenue, Taxpayers Assistance Section, Commission, P.O. Box 36, Boise, ID the state. Arkansas's tax rate ranges from State Office Building, 820 N. French St., 83722. Website: 1 to 7 percent depending on income and Wilmington, DE 19801. http://www2.state.id.us/tax/index.html filing status. Write: Department of Finance Website: http://www.state.de.us/revenue and Administration, Income Tax Forms Illinois: Individuals domiciled in Illinois are Division, P.O. Box 3628, Little Rock, AR District of Columbia: Individuals domiciled considered residents and are subject to 72203. Website: in the District of Columbia are considered tax on their entire income regardless of http://www.state.ar.us/dfa/taxes/index.html residents and are subject to tax on their their physical presence in the state. entire income regardless of their physical Illinois's tax rate is a 3 percent flat rate. California: Foreign Service employees are presence there. The District's tax rate Write: Illinois Department of Revenue, considered non-residents and do not have ranges from 6 to 9.5 percent. From Forms Division, 101 West Jefferson St., a tax liability on out-of-state income. AFSA 1 988, the D.C. tax exclusion ceased to Springfield, IL 62794-9044. would like to hear from any member who apply to Foreign Service employees.Write: Website: http://www.revenue.state.il.us has had difficulty with the Franchise Tax Office of Tax and Revenue, 441 Fourth Board concerning their tax liability. St, NW, Suite 550, Washington, D.C. Indiana: Individuals domiciled in Indiana California has an additional exemption 20001. are considered residents and are subject for anyone who is domiciled in-state but is Website: http://www.dccfo.com to tax on their entire income regardless of

AFSA NEWS • FEBRUARY 1999 9 AFSA TAX GUIDE FOR 1998

their physical presence in the state. Maine: Individuals domiciled in Maine the state. Minnesota's tax rate ranges However, a credit is granted for any are considered residents and are subject from 6 to 8.5 percent depending on taxes paid to the state where the income to tax on their entire income regardless of income and filing status. Write: was earned. Indiana's tax rate remains their physical presence in the state. Department of Revenue, Forms Division, 3.4 percent. Write: Department of Maine's tax rate ranges from 2 to 8.5 Mail Station 5510, Saint Paul, MN Revenue, 100 N. Senate Ave., percent depending on income and filing 55146-2220. Indianapolis, IN 46204. status. Write: Bureau of Taxation, Forms Website: http://www.taxes.state.mn.us Website: http://www.ai.org/dor Division, State Office Building, Augusta, ME 04333. Mississippi: Individuals domiciled in Iowa: Individuals domiciled in Iowa are Website: http://janus.state.me.us/revenue Mississippi are considered residents and considered residents and are subject to are subject to tax on their entire income tax on their entire income to the extent Maryland: Individuals domiciled in regardless of their physical presence in that income is taxable on the person's Maryland are considered residents and the state. Mississippi's tax rate is 5 per¬ federal income tax returns. Iowa's tax are subject to tax on their entire income cent on taxable income over $ 10,000. rate ranges from 0.4 to 8.98 percent regardless of their physical presence in Write: State Tax Commission, Forms depending on income and filing status. the state. Maryland's tax rate is a gradu¬ Division, P.O Box 1033, Jackson, MS Write: Department of Revenue and ated tax up to a maximum of 4.785 per¬ 39215. Website: http://mstc.state.ms.us Finance, Forms Division, Hoover State cent depending on income and county of Office Building, Des Moines, IA 503 1 9. residence. An individual is also subject to Missouri: No tax liability for out-of-state Website: http://www.state.ia.us/tax a county income tax rate which is a per¬ income if the individual has no permanent centage of the state income tax liability. residence in Missouri, has a permanent Kansas: Individuals domiciled in Kansas For the 1998 tax year, Worcester County residence elsewhere, and is not physically are considered residents and are subject charges 20 percent, Baltimore, Carroll present in the state for more than 30 days to tax on their entire income regardless of and Queen Anne - 55 percent, Allegheny during the tax year. The tax rate ranges their physical presence in the state. and St. Mary's - 58 percent, Prince from 1.5 to 6 percent depending on Kansas' tax rate ranges from 3.5 to 7.75 George's, Caroline, Montgomery, income and filing status. File a return year¬ percent depending on income and filing Somerset, and Wicomico - 60 percent. All ly with an attached "Statement of Non- status. Write: Kansas Taxpayer Assistance other counties charge 50 percent. Write: Residency"(Form 374). File also on Form Bureau, 915 SW Harrison, 3rd Floor, Revenue Administration, Income Tax 40, Schedule NRI, for income of more Topeka, KS 66612-1588. Division, Annapolis, MD 21411 or call than $600 from Missouri sources. Write: Website: http://www.ink.org/public/kdor (410) 260-7980. Tax Administration Bureau, Forms Website: http://www.marylandtaxes.com Division, PO Box 220, Jefferson City, MO Kentucky: Individuals domiciled in 65105-2200. Kentucky are considered residents and Massachusetts: Individuals domiciled in Website: http://dor.state.mo.us are subject to tax on their entire income Massachusetts are considered residents regardless of their physical presence in and are subject to tax on their entire Montana: Individuals domiciled in Montana the state. Kentucky's tax rate ranges from income regardless of their physical pres¬ are considered residents and are subject to 2 to 6 percent depending on income and ence in the state. Salaries and most divi¬ tax on their entire income regardless of their filing status. Write: Revenue Cabinet, PO dends are taxed at 5.95 percent. Write: physical presence in the state. Montana's Box 181, Station 56, Frankfort, KY 40602. Massachusetts Department of Revenue, tax rate ranges from 2 to 1 1 percent Website: http://www.state.ky. us/ Supply Forms Section, 1 00 Cambridge depending on income and filing status. agencies/revenue/revhome.htm Street, Boston, MA 02204-7033. Write: Montana Department of Revenue, Website: http://www.state.ma.us/dor Income Tax Division, PO Box 5805, Louisiana: Individuals domiciled in Helena, MT 59604. Website: Louisiana are considered residents and Michigan: Individuals domiciled in http://www.state.mt.us/revenue/index.htm are subject to tax on their entire income Michigan are considered residents and regardless of their physical presence in are subject to tax on their entire income Nebraska: Individuals domiciled in the state. Resident individuals are entitled regardless of their physical presence in Nebraska are considered residents and to a tax credit for income tax paid to the state. Michigan's tax rate is 4.4 per¬ are subject to tax on their entire income another state on the amount of income cent. Write: Department of Treasury, regardless of their physical presence in earned in the other state and included in Forms Division, Treasury Building, Lansing, the state with credit allowed for tax paid the state's taxable income. Louisiana's tax Ml 48922. to other states. Nebraska's tax rate rate ranges from 2 to 6 percent depend¬ Website: http://www.treas.state.mi.us ranges from 2.51 to 6.68 percent ing on income and filing status. Write: depending on income and filing status. Department of Revenue and Taxation, Minnesota: Individuals domiciled in Write: Department of Revenue, Forms Forms Division, P.O. Box 201, Baton Minnesota are considered residents and Division, 301 Centennial Mall South, P.O. Rouge, LA 70821-0201. are subject to tax on their entire income Box 9481 8, Lincoln, NB 68509-481 8. Website: http://www.rev.state.la.us regardless of their physical presence in Website: http://www.nol.org/revenue

10 AFSA NEWS • FEBRUARY 1999 AFSA TAX GUIDE FOR 1998

Nevada: No state income tax. ence in the state. North Carolina's tax permanent residence in the state, has a rate ranges from 6 to 7.75 percent permanent residence elsewhere, and New Hampshire: No personal income depending on income and filing status. spends no more than 30 days in the tax. No capital gains tax on sale of princi¬ Write: Department of Revenue, PO Box state during the tax year. Filing a return pal residence, 7 percent on sale of rental 25000, Raleigh, NC 27640. is not required, but it is recommended to property, 5 percent on profits from in-state Website: http://www.dor.state.nc.us/DOR preserve domicile status. File on form sources, including the sale of property PA40-NR for all income derived from and bonds. Write: Taxpayer Assistance North Dakota: Individuals domiciled in Pennsylvania sources. Pennsylvania Office, 61 So. Spring St., P.O. Box 2072, North Dakota are considered residents does not consider government quarters Concord, NH 03302-2072. Website: http: and are subject to tax on their entire overseas to be a "permanent place of //www.state.nh.us/revenue/revenue.htm income regardless of their physical pres¬ abode elsewhere," so Foreign Service ence in the state. Tax rates vary accord¬ PA residents abroad in government New Jersey: No tax liability for out-of- ing to income and whether a short or long quarters must continue to pay income state income if the individual has no per¬ tax form is used. Write: Office of State tax. Pennsylvania's tax rate is a flat 2.8 manent residence in New Jersey, has a Tax Commissioner, State Capitol, 600 E. percent. Write: Commonwealth of permanent residence elsewhere, and is Boulevard Avenue, Bismarck, ND 58505- Pennsylvania, Department of Revenue, not physically in the state for more than 0599. Taxpayer Services Department, 30 days during the tax year. Filing a Website: http://www.state.nd.us/taxdpt Harrisburg, PA 17128-1061. return is not required, but is recommended E-mail: [email protected] in order to preserve domicile status. Filing Ohio: Individuals domiciled in Ohio are Website: http://www.revenue.state.pa.us is required on Form 1040 NR for revenue considered residents (including part year) derived from in-state sources. Forms may and are subject to tax on their entire Rhode Island: Individuals domiciled in be requested by writing to: Department of income. Ohio residents are given a tax Rhode Island are considered residents the Treasury, Division of Taxation, PO Box credit to reduce the Ohio income tax due and are subject to tax on their entire 266, Trenton, NJ 08625-0266. Website: on income taxed by other states or the income regardless of their physical pres¬ http://www.state.nj.us/treasury/taxation District of Columbia while an Ohio resi¬ ence in the state. Rhode Island's tax rate dent. Ohio's tax rate ranges from 0.743 for the 1998 tax year is 27 percent of the New Mexico: Individuals domiciled in to 7.5 percent depending on income and Federal Income Tax liability. Write: Rhode New Mexico are considered residents filing status. Write: Ohio Department of Island Division of Taxation, Taxpayer and are subject to tax on their entire Taxation, Taxpayers Services, P.O. Box Services Division, 289 Promenade St., income regardless of their physical pres¬ 2476, Columbus, OH 43266-0076. Providence, Rl 02908-5801. ence in the state. New Mexico's tax rate Website: http://www.state.oh.us/tax Website: http://www.tax.state.ri.us is based upon income and filing status. Write: New Mexico Taxation and Oklahoma: Individuals domiciled in South Carolina: Individuals domiciled in Revenue Department, Taxpayer Services, Oklahoma are considered residents and South Carolina are considered residents PO Box 630, Santa Fe, NM 87504- are subject to tax on their entire income and are subject to tax on their entire 0630. regardless of their physical presence in income regardless of their physical pres¬ Website: http://www.state.nm.us/tax/ the state. Oklahoma's tax rate is based ence in the state. South Carolina's tax upon income and various exemptions. rate ranges from 2.5 to 7 percent, New York: No tax liability for out-of-state Write: Oklahoma Tax Commission, depending on income. Write: South income if the individual has no permanent Taxpayer Services Division, 2501 Carolina Tax Commission, Forms Division, residence in New York, has a permanent Lincoln Blvd., Oklahoma City, OK 301 Gervais Street, P.O. Box 1 25, residence elsewhere, and is not present in 73 1 94-0009. Columbia, SC 29214. the state more than 30 days during the tax Website: http://www.oktax.state.ok.us Website: http://www.dor.state.sc.us year. Filing a return is not required, but it is recommended to preserve domicile status. Oregon: Individuals domiciled in Oregon South Dakota: No state income tax. Filing is required on Form IT-203-1 for rev¬ are considered residents and are subject enue derived from New York sources. to tax on their entire income regardless of Tennessee: No personal income tax. Write: Department of Taxation and their physical presence in the state. Tennessee does impose a 6 percent tax Finance, Technical Services Bureau, W.A. Oregon's tax rates range from 5 to 9 per¬ on dividends and certain types of interest Harriman Campus, Albany, NY 12227. cent of taxable income. Write: Department income received by Tennessee residents. Website: http://www.tax.state.ny.us of Revenue, 955 Center Street N.E., Write: Department of Revenue, Andrew Salem, OR 97310. Jackson State Office Building, Nashville, North Carolina: Individuals domiciled in Website: http://www.dor.state.or.us TN 37242 North Carolina are considered residents Website: http://www.state.tn.us/revenue and are subject to tax on their entire Pennsylvania: No tax liability for out-of- income regardless of their physical pres¬ state income if the individual has no Texas: No state income tax.

AFSA NEWS • FEBRUARY 1999 II AFSA TAX GUIDE FOR 1998

Utah: Individuals domiciled in Utah are regardless of where the income is earned. Arkansas: Up to $6,000 exempt. considered residents and are subject to Wisconsin's current tax rate ranges from Utah state tax and the state requires that 4.77 to 6.77 percent depending on California: Fully taxable. all federal adjusted gross income report¬ income and filing status. Write: ed on the federal return be reported on Department of Revenue, Taxpayer Colorado: Up to $20,000 exempt if over the state return regardless of their physical Services Division, 125 South Webster age 55. presence in the state. Utah's highest tax Street, P.O. Box 8933, Madison, Wl rate is 7 percent. Write: Utah State Tax 53708. Connecticut: Fully taxable. Commission, Taxpayer Services Division, Website: http://www.dor.state.wi.us 210 North 1950 West, Salt Lake City, Delaware: Two exclusions: (1) Up to UT 84134. Wyoming: No state income tax. $2,000 exempt if earned income is less Website: http://www.tax.ex.state.ut.us than $2,500 and Adjusted Gross Income State Pension is less than $ 10,000; if married and filing Vermont: Individuals domiciled in jointly, up to $4,000 exempt if earned Vermont are considered residents and & Annuity Tax income is less than $5,000 and AGI is are subject to tax on their entire income The laws regarding the taxation of under $20,000. This is applicable if 60 regardless of their physical presence in Foreign Service annuities vary greatly years or older or totally disabled. (2) the state. Vermont's tax rate for 1 997 is from state to state. In addition to Amounts received as pension exempted 25 percent of the individual's Federal those states that have no income tax or up to $2,000 if under 60 and up to tax. Write: Vermont Department of no tax on personal income, there are sev¬ $3,000 if over 60. Taxes, Taxpayer Services Division, eral states that do not tax income derived Pavilion Office Building, Montpelier, VT from pensions and annuities. Idaho taxes District of Columbia: Up to $3,000 05609-1401. Foreign Service annuities while exempting exempt, only if 62 years or older. Website: http://www.state.vt.us/tax certain portions of those of the Civil Service. Florida: No personal income tax, but Virginia: Individuals domiciled in Virginia In response to the U.S. Supreme Florida has an "Intangibles Tax." are considered residents and are subject Court's decision in Davis v. Michigan to tax on their entire income regardless of Department of the Treasury, annuitants in Georgia: Up to $ 1 2,000 exempt for their physical presence in the state. a number of states challenged unequal those 62 years or older and permanently Virginia's tax rate ranges from 2 to 5.75 taxation of state versus federal annuities. or totally disabled. percent depending on income and filing In this precedent-setting decision, the status. Write: Virginia Department of court ruled that the policy of the state of Hawaii: Full exemption, government pen¬ Taxation, Taxpayer Services Division, Michigan to exempt from taxation the sions are not taxed. P.O. Box 1317, Richmond, VA 23210. annuities of retired state of Michigan Website: and local government employees while Idaho: Foreign Service retirees whose http://www.state.va.us/tax/taxforms.html taxing the annuities of retired federal annuities are paid from the FSPS are fully employees residing in Michigan discrimi¬ taxed on their pensions. Those persons Washington: No state income tax. nates against federal annuitants and is retired under the Civil Service Retirement therefore unconstitutional. Because many act are exempt up to $ 16,104 for a sin¬ West Virginia: No tax liability for out-of- states have similar practices regarding gle return and up to $24,150 if filing state income if the individual has no per¬ the treatment of annuitant income, indi¬ jointly. Up to $ 1 6,104 is exempt for manent residence in West Virginia, has a viduals and groups are still involved in unmarried survivor of annuitant. Must be permanent residence elsewhere, and litigation in order to compel their states 65 years or older, or 62 years or older spends no more than 30 days of the tax of residence to refund the taxes they and disabled. Amount reduced dollar for year in West Virginia. Filing a return is not paid on their annuities during the period dollar by social security benefits. required, but it is recommended to pre¬ immediately before the states changed serve domicile status. Filing is required on their tax laws to comply with Davis v. Illinois: Full exemption, government pen¬ form IT-140-NR for all income derived Michigan. All other states tax Foreign sions are not taxed. from West Virginia sources. Write: The and Civil Service annuities and pensions Department of Tax and Revenue, to varying degrees. Indiana: Up to $2,000 exemption for Taxpayer Services Division, P.O. Box most 65 or older, reduced dollar for dol¬ 3784, Charleston, WV 25337. Alabama: Full exemption. Federal pen¬ lar by social security benefits. Website: http://www.state.wv.us/taxdiv sions are not taxable. Iowa: Fully taxable. However, there is a Wisconsin: Individuals domiciled in Alaska: No personal income tax. partial retirement income exclusion of up to Wisconsin are considered residents and $5,000 for individual and up to $ 10,000 are subject to tax on their entire income Arizona: Up to $2,500 exempt. for married taxpayers filing a joint return

2 AFSA NEWS • AFSA TAX GUIDE FOR 1998 and for individuals who are disabled or Montana: Up to $3,600 exemption if the Pennsylvania: Full exemption for govern¬ are 55 years of age or older, or are a pension income is less than $32,000. ment pensions and social security. surviving spouse or other survivor of the annuitant. The same income tax rates Nebraska: Fully taxable. Rhode Island: Fully taxable. apply to annuities as other incomes. Nevada: No personal income tax. South Carolina: On retirement income: Kansas: Full exemption, government pen¬ under age 65 a $3,000 exemption may sions are not taxed. New Hampshire: No personal income tax. be taken; over 65 years of age a $10,000 exemption may be taken. If Kentucky: Government pensions attribut¬ New Jersey: Pensions and annuities are you are over 65, a further $1 1,500 able to service before 1/1/98 are not subject to state income tax with the fol¬ exemption may be taken on income taxed. In future, the portion of annuity lowing exemptions for those who are regardless of source. income attributable to service after age 62 or older, or totally and perma¬ 1 2/31/97 will be taxed at the appropri¬ nently disabled, as follows: singles can South Dakota: No personal income tax. ate rate. There is an exemption for 1998 exclude up to $7,500; married filing of up to $35,000 which will be indexed jointly up to $ 10,000; married filing sep¬ Tennessee: Full exemption, government in future years. arately up to $5,000 each. pensions are not taxed.

Louisiana: Up to $6,000 exempt if 65 New Mexico: All pensions and annuities Texas: No personal income tax. years or older. ($ 1 2,000 if both filers are fully taxed. over 65). Utah: Under age 65 a $4,800 exemption New York: Full exemption, government may be taken. However, the deduction is Maine: Fully taxable. pensions are not taxed. reduced $.50 for every $ 1.00 that the Federal Adjusted Gross Income exceeds Maryland: For individuals 65 years or North Carolina: Up to $4,000 exempt. $32,000 (married filing joint) or older or permanently disabled, federal $25,000 (single). Over 65 years of age pensions and annuities, including Social North Dakota: All pensions and annuities a $7,500 exemption may be taken for Security, are excluded up to $ 15,900. are fully taxed, except first $5000 is each individual. However, the exemption Eligibility determination required. For other exempt less any Social Security payments, is reduced $.50 for every $ 1.00 that the annuitants, the total amount is taxable. but only if the individual chooses to use Federal Adjusted Gross Income exceeds Form 37 (long form). Individuals are cau¬ $32,000 (married filing joint) or Massachusetts: Full exemption, govern¬ tioned to check both Form 37-S and Form $25,000 (single). ment pensions are not taxed. 37 to ascertain which one yields the low¬ est tax for the year. Qualifying for the Vermont: Fully taxable. Michigan: Full exemption for Civil exclusion does not mean that Form 37 is Service annuities. See above for discus¬ the better form to choose. Virginia: Deductions of up to $1 2,000 if sion of U.S. Supreme Court decision in over age 65 and up to $6000 if over Davis v. Michigan. Foreign Service annu¬ Ohio: Gives a tax credit based on the age 62. ities may exclude $7,500 when filing sin¬ amount of the retirement annuity. If the gle and $10,000 when filing jointly if annuity is below $500 then there is no Washington: No personal income tax. 65 or older. credit. Annuity of $500 to $1,499 merits a $25 credit; $ 1,500 to $2,999 merits West Virginia: Up to $8,000 exempt, Minnesota: Certain persons over 65 with $50 credit; $3,000 to $4,999 merits only if 65 years or older. incomes under $42,000 may be eligible $80 credit; $5000 to $7,999 merits for a subtraction. The maximum subtrac¬ $ 1 30 credit; and any annuity over Wisconsin: Pensions and annuities are fully tion is $12,000 married joint and $8,000 merits a credit of $200. The taxable. However, anyone who started $6,000 single, which is reduced dollar maximum credit per return is $200. paying into any federal retirement system for dollar by untaxed social security ben¬ before 1 2/31/63 is exempt from tax on efits, and by one dollar for each two dol¬ Oklahoma: Up to $5,500 exempt on all income received from that system. lars of income over $ 1 8,000 for married federal pensions. and $ 14,500 for single. Wyoming: No personal income tax. Oregon: Generally, all retirement income Mississippi: Full exemption, government is subject to Oregon tax when received pensions are not taxed. by an Oregon resident. This includes James Yorke, who compiled the tax non-Oregon source retirement income. guide, would like to express thanks to Missouri: Up to $6000 exempt if the Retirement income received by nonresi¬ M. Bruce Hirsttorn, Foreign Service Tax pension income is less than $32,000 on dents on or after January 1, 1996 is no Counsel, for his help in preparing this a jointly filed return. longer subject to taxation by Oregon. article.

AFSA NEWS • FEBRUARY 1999 13 Letters gressperson is one of the president's most ardent and outspoken supporters. continued from page 5 There may be other such cases. This type Inside chief of mission position, by the nominee of sale is probably more harmful than the THE FOREIGN SERVICE COMMUNITY or his/her spouse, shall be considered reward for past services type. prima facie evidence that such a contri¬ I hope AFSA and the American bution was a factor in the nomination of Academy of Diplomacy will oppose and •William H. Luers, former ambas¬ that individual. call attention to such sales. sador to Venezuela and Czechoslovakia, Ambassador Maynard W. Glitman J. Edgar Williams is retiring as president of the New York FSO, Retired FSO, Retired Metropolitan Museum of Art. After bring¬ Jeffersonville, Vt.. Carrboro, N.C. ing his considerable skills as a profession¬ al diplomat to the Met for the last 1 2 Payment for Ongoing Services years, Luers is moving on to become On reading Ambassador Laingen's Dateline chairman and president of the United letter (December Journal) on the selling continued from page 1 Nations Association of the U.S.A. of ambassadorships, I read the article in •John L Patterson, retired FSO, has won the October FSJ which I had overlooked. •Two new spring interns are on his second term to the Rhode Island state It contains some excellent ideas for board and working hard. Harry Kruglik Senate. Patterson, a Republican in a heavily diminishing the abuse of selling ambas¬ joins the AFSA staff as the Legislative Democratic state, won by 45 votes in a sadorships. It focuses mainly on nomi¬ Affairs Intern. Originally from Chicago, campaign that stuck to issues and the can¬ nees who have been large campaign Harry is a National Merit finalist and a didates qualifications. contributors, or who have rendered sophomore at Claremont McKenna •The Foreign Agricultural Service is some outstanding service to a political College in California. He is majoring in losing its popular administrator, Lon party or to a president in the past. both international relations and history. Hatamiya. He has been tapped by It does not address the case of pay¬ Paetra-Kie Hauck is assisting Harry Governor Gray Davis to be secretary of ment for ongoing services. There is one Blaney, director of the Coalition for commerce and trade for California. egregious case that I am aware of, in American Leadership Abroad. She is a which the unqualified spouse of a con- native of Illinois and is majoring in politi¬ Do you have news about an AFSA member or of gressperson was ambassador to a small cal science at the University of Southern an event of interest to the FS Community? country for over five years. This con- Mississippi. Fox it to (202) 338-8244.

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I4 AFSA NEWS • FEBRUARY I999 TAX PREPARATION FS GRIEVANCES & FOCUSED ON QUALITY TAX CONSULTANT - FORMER IRS DISCRIMINATION WJD MANAGEMENT is competitively AGENT with 28 years experience as an inter¬ ATTORNEY PRACTICING IN areas of FS priced, of course. However, if you are consid¬ national tax specialist: Experience with tax grievances at State and Commerce Depts. ering hiring a property management firm, don’t issues affecting FSOs and civil servants both ans AID, or USIA; MSPB cases; Employment forget the old saying “You get what you pay overseas and domestic, including legitimate Discrimination; actions under Title VII and the for.” Property management is essentially an avoidance of state income tax of FSOs on for¬ Rehabilitation Act. Will write and file your information management business. There is eign assignment. RICHARD L. LEONARD; claims, appeals and complaints, represent definitely a proper and an improper way to 6302 Capella Ave.; Burke, VA 22015; Tel. you at hearings, and counsel you in challeng¬ manage this information. Without the right staff, (703) 912-3786; Fax (703) 912-7709; e-mail: ing adverse employment decisions. Offices in the right software, and in particular the right [email protected] VA (N. Fairfax Drive, Arlington, VA) and DC attitude, the management of your home can www.io.com/~renn/rleonard (601 indiana Ave.. NW Ste 504 WAsh., DC easily become problematic for everyone 20004). Call George Elfter at (202) 637-1325 involved. All of us at WJD have worked for FINANCIAL/ESTATE PLANNING: Maxi¬ Fax (703) 354-8734. other property management firms in the past, mized your tax - deferred savings? Minimized PROPERTY MANAGEMENT and we have learned what to do and more your income and estate taxes? Can you pay MANOR SERVICES: FORMER federal importantly what not to do from our experi¬ for college? Is your will up to date? If Not, call law enforcement officer, offers BEST tenant ences at these companies. We invite you to Clement Dinsmore with The Acacia Group, screening. Frequent inspections. Mortgages explore our web site at www.wjdpm.com for Bethesda, MD (301) 571 -4302 X 261. paid. Repairs. Close PERSONAL attention. more information, or call us at (703) 684-0800. We’re small, but VERY effective. FS and Mil. ATTORNEY refs. Our rates are lower than anyone on this EXTENSIVE EXPERIENCE BEFORE For¬ J.P. PROPERTIES, LTD.: Complete pro¬ page. And our SERVICE is better, too. Com¬ eign Service Grievance Board, MSPB, and fessional dedication to the management of pare -- you’ll see. We don’t sell, we do residential property in Northern Virginia. Our EEOC. Specializing in Federal employee “HANDS-ON” management only. TERSH grievances concerning performance evalua- professionals will provide personal attention to j NORTON Box 42429, Washington, D.C. | tions, disciplinary actions, involuntary your home, careful tenant screening, and 20015 Tel. (202) 363-2990, Fax (202)363- removal, sexual harassment and discrimina- video inspections of your property. We are 4736 E-mail: [email protected] ) tion based on handicap (including alcohol and equipped to handle all of your property man¬ drub addiction). Sam Horn, Tel/Fax (301) agement needs. We work 7 days a week! 933-9723, E-mail: [email protected] Over 19 years real estate experience and For¬ eign Service overseas living experience. FORMER FOREIGN SERVICE OFFICER JOANN PIEKNEY, 301 Maple Ave. W., 4-C, NOW PRACTICING LAW IN DC/MD. General Vienna, VA 22180. Tel. (703) 938-0909 Fax practice; estate planning: wills, trusts, living (703) 281-9782. E-mail: [email protected] [ wills, powers of attorney; probate administra- | tion; domestic relations; FS grievances. Grego- DIPLOMAT PROPERTIES, INC. Were | ry V. Powell; Furey, Doolan & Abell, LLP; 8401 proud to provide excellence in property man¬ | Conn. Ave., #1100, Chevy Chase, MD 20815 agement during your assignment abroad. (301) 652-6880 fax (301) 652-8972. Serving No. Va. only. (Owned and operated GRIEVANCES: MANDATORY by a former Foreign Service family). We offer the following: highly experienced manage¬ RETIREMENT OR PEAKE MANAGEMENT - Go with the ment, quality tenants, superior maintenance, best! Lindsey Peake was 1995’s #1 Top Pro¬ SEPARATION? DEFECTIVE EER? strong communication, effective advertising at ducer for Property Management and a 1996 no extra cost, 24 hour emergency service. Get winner of the Leasing award. ATTORNEY WITH 19 years successful to know us, a company that cares. For man¬ Since 1982, this FS family has had very [ experience SPECIALIZING IN FS GRIEV¬ agement services information, contact: Robin satisfied clients due to our active marketing ANCES will represent you to protect vital inter¬ Gomez, Tel. (703) 522-5900, Fax (703) 525- program, superior tenant screening, special¬ ests in these or other career matters including 4713. E-mail: [email protected] 3900 N. ization in property management, thorough non-promotion, selection out, non-tenuring, Fairfax Drive, Suite 204, Arlington, VA 22203. inspections, monthlt statements, E-mail, reli¬ disciplinary actions at State, AID, USIA, and able vendors and a great deal of caring. Give Commerce. Call Bridget R. Mugane at (202) me a call to talk about how we can best help 387-4383 (Farragut Square), or (301) 596- TILTON, BERNSTEIN MANAGEMENT, you while you’re overseas. My experienced, 0175. Free initial consultation. INC., Property Management exclusively in detail-oriented staff make the transition very Washington, DC. We have provided full ser¬ WILL/ESTATE PLANNING by attorney smooth. vice management for 20 years. You will find | who is a former FSO. Have your will reviewed Ask your friends about us. We’d love to our fee very competitive. We offer thorough and updated, or new one prepared: No charge work with you, too. Lindsey Peake. Tel. (703) prospective tenant checks, property inspec¬ for initial consultation. M. Bruce Hirshorn, 448-0212, Fax (703) 448-9652, E-mail: post¬ tions, mortgage/condo payments, monthly Boring & Pilger, 307 Maple Ave. W, Suite D, master® peake.com 6842 Elm Street, statements and year end reports. For more Vienna, VA 22180 (703) 281 -2161, Fax (703) McLean, VA 22101. Look forward to hearing information please call (202) 232-5247. 1 281-9464 E-mail: [email protected] from you today! (888) 245-5242 or EO-mail [email protected]

AFSA NEWS • FEBRUARY I 999 I5 PROPERTY MANAGEMENT FLORIDA CORSICA VACATION RENTAL Beautiful villa in Corsica, France. Spectacular view, FAHEY & ASSOCIATES: Do you want NO STATE INCOME tax enhances gra¬ next to beach. 3 BR, 3 Bath. Lower rates for professional and caring property management cious living in Florida. Former FSO Paul longer stays. E-mail: for your select Northern Virginia property? Byrnes specializes in home, villa, and condo monicagianni @ dwt.com Expertise and personal attention to detail are sales in Sarasota, but also helps anywhere in the state. Ask for Paul thru Toll Free (877) 110-220 VOLT STORE the hallmarks of our established firm. Call MULTI-SYSTEM ELECTRONICS Gerry Romberg for exceptional service. 6842 924-9001, use E-mail: [email protected] PAL-SECAM-NTSC TVs, VCRs, AUDIO, Elm Street, Suite 303, McLean, VA 22101 or write him at Arvida Realty Services, 100 N. CAMCORDER, ADAPTOR, TRANSFORM¬ (703) 691-2006, Fax (703) 448-9652, E-mail: Tamiami Tr. Sarasota, FL 34236. ERS, KITCHEN APPLIANCES [email protected] FLORIDA EXPORTS ELECTRONICS, INC. LONGBOAT KEY / SARASOTA. Beauti¬ 1719 Connecticut Ave. N.W. Washington, TEMPORARY HOUSING ful homes, villas, condos for now and the D.C. 20009, near Dupont Circle. Between R & WASHINGTON DC or NFATC TOUR? future. Area will exceed expectations. For full S Streets. Tel. (202) 232-2244 Fax (202)265- EXECUTIVE HOUSING CONSULTANTS service real estate services contact: 2435 lnternet:http://www.erols.com/aval offers Metropolitan Washington D.C.’s finest SHARON OPER, Wedebrock Real Estate Co. E-mail: [email protected] portfolio of short-term, fully-furnished and Tel/Fax (941) 387-7199; E-mail: Price quotations for PVOs, NGOs, USG, equipped apartments, townhomes and single [email protected] FS Discounts for Diplomats. family residences in Maryland, D.C. and Vir¬ BOOKS ginia. FLORIDA ANY U.S. BOOK in print. Send check In Virginia: “River Place’s Finest” is steps VACATION RENTAL - SOUTH Florida when books arrive. Salmagundi Books 66 to Rosslyn Metro and Georgetown and 15 Gulf Coast - Marco Island. Anglers Cove Main St, Cold Spring, NY 10516. E-mail: minutes on Metro bus or State Department Resort on Marco Bay, 16 miles south of SALBOOKS @ HIGHLANDS.COM shuttle to NFATC. For more info, please call Naples, 50 minutes from Fort Myers. Water¬ BOOKS, BOOKS, BOOKS. We~have us at (301) 951- 4111 or visit our website: front 2 bedroom condo overlooking Marco thousands in stock, do special orders daily, www.executivehousing.com Bay, 2 pools, tennis, 5 minutes to beaches, 3 search for out-of-print books, large selection TVs, HBO, VCR, screened balcony. Weekly of CD's and cassettes; Jazz a specialty. Visa rentals. Contact for brochures (703) 922- SHORT - TERM RENTALS or Mastercard. THE VERMONT BOOK SHOP 5846, E-mail: [email protected] 38 Main Street, Middlebury, VT 05753. FULLY FURNISHED, BEAUTIFUL 2 BR, FOREIGN SERVICE ASSOCIATES can EMPLOYMENT OPPORTUNITY provide fully furnished apartments at River 2 bathroom, house in quiet Cleveland Park DIPLOMATIC SALES FOR Ford, Place just 5 minutes from the new NFATC neighborhood one block from Conn. Ave. NW. Chrysler and General Motors is seeking facility and one block from SA-15. We have 2 blocks from Van Ness Metro and shopping. overseas Business Development personnel to efficiencies, 1 bedrooms, and some 2 bed¬ All modern utilities and conveniences for short represent exclusive Diplomatic Automobile rooms, usually within your per diem. Apts, are term rentals at $125/night. Rates negotiable Sales Program within your local community. fully furnished kitchens, cable TV, telephone, for long term lease. Call or Fax (202) 237- Responsibilities: public relation activities, pro¬ linens, and all utilities included. Write: 8058. gram presentations, marketing, networking FOREIGN SERVICE ASSOCIATES, P.O. GARDEN CONDO FOR SALE program to generate and forward interested Box 12855, Arlington, VA 22209 or call: (800) FALLS CHURCH. BEAUTIFUL lake parties to manufacturers Global Service Cen¬ 993-6997, or (703) 527-0279, E-mail: view, clubhouse. Great location to schools, tre in USA. Applicant should have minimum FSAssocI @aol.com Metro, shopping. Assumable mortgage. 2 BR, 12 months remaining in present location. No 2 BA, FP, deck. Tel/Fax (334) 887 - 2375. experience necessary - ideal for accompany¬ REAL ESTATE ing spouse. Full training/support provided. HOUSE FOR SALE IN BLUE RIDGE Contact Zen Zawislak. Phone: (44) 1480 A WIN-WIN SITUATION! Low interest MOUNTAINS WEST VIRGINIA located 17 460410, Fax (44) 1480 460055, E-mail: rates and stable home prices provide an miles west of Leesburg. 4 BR/2 baths top [email protected] opportune time to buy. DO YOU WANT TO floor. LR/DR/den/kitchen/iaundry main floor, KNOW HOW MUCH HOUSE YOU CAN double garage below. Double lot with large BUSINESS OPPORTUNITY BUY...AND WOULD YOU LIKE TO BE LIV¬ evergreens, just off Chestnut Hill Rd. Com¬ DISCOVER THE FORTUNE THAT LIES ING THERE IN 30 DAYS? mute by train from Harpers Ferry, or lease as HIDDEN IN 7-10 HOURS/WEEK! Established Having provided exclusive representation an INVESTMENT. You may qualify for company expanding into overseas markets. as a buyer agent to Foreign Service personnel exemption from state income taxes if over¬ Take this ground-floor opportunity to build a over the past ten years, we can focus quickly seas. $110,000. Call (703) 256-5755 or (703) business and income that travel with you. The and efficiently on your special housing 875-6876. whole family-moms, dads, kids-can do this requirements. Discover How Much You Can GREAT FSO HOME/ INVESTMENT one! Cindy Olson (703) 768-6179, (888) 249- Buy... And How To Get It Now. Contact Mari¬ Bethesda - sunny 6 BR overlooks golf course. 2650 voicemail, E-mail: [email protected] lyn Cantrell, CRS, GRI, Assoc. Broker, at Whitman, Pyle, International schools. For j APT./HOUSE SITTER AVAILABLE McEnearney Assoc.iates, 1320 Old Chain D.C. metro area opportunities please contact: | GOVERNMENT ATTORNEY WILLING to Bridge Rd, McLean, VA (703) 790-9090 Fax: Stuart Blue & Evelyn Mattar at Begg/Long & house sit for 6 mos-year, starting in May, (703) 734-9460 E-mail: Foster Realtors. Tel. (202) 944-8400 Fax: 1999. Modest Rent/Services Available. [email protected] (202) 944-8424, E-mail: [email protected] Please call Tim at (202) 395-6745.

I6 AFSA NEWS • FEBRUARY I999 I DON’T FINANCIAL ASSOCIATES SELL TAX SERVICES, INC, ANYTHING Federal and State Tax Preparation (except good advice) Tax Planning Fee-Onlv Financial Planning • Investments • Insurance Analysis FINANCIAL ASSOCIATES Michael Hirsh, M.B.A. Former Foreign Service Officer • Retirement and Estate Planning Registered Investment Adviser A Registered Investment Advisor • Account Management Investment Analysis I work as your advocate to ensure that you Budgeting understand your needs and your options Retirement Planning Lirst Hour of Consultation ANNE UNO I Certified Financial Planner I Enrolled Agent FREE I simply mention this ad Tel: 703-522-3111; Fax: 703-522-3815 J E-inail: [email protected] 933 N. Kenmore Street, Suite 217 Financial Consulting International Arlington, Virginia 22201 9747 Business Park Ave. Suite 213 Securities Offered through Mutual Service Corp. San Diego, CA 92131-1642, U.S.A. Phone: (619) 689-0790 FAX: (619) 689-0796 Member, NASD and S1PC e-mail: [email protected]

/gag* MCG MONEY CONCEPTS INTERNATIONAL FINANCIAL PLANNING NETWORK \1 ///\\ir//\\T/// VVTT/7 FINANCIAL uu/ vfl/7 \Sm PLANNING

EVCRARD S. TAYLOR, CFP GEORGE A. GRIEVE, CFP RETIRED FOREION SERVICE OFFICER RETIRED CIVIL. SERVICE OFFICER Former State Department Employee Stationed Overseas Understands Unique

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FEBRUARY 1999/FOREIGN SERVICE JOURNAL 29 ARE IRAQI SANCTIONS IMMORAL?

WITH THOUSANDS OF CIVILIANS DYING, AND

SADDAM STILL ENTRENCHED, CAN SANCTIONS

STILL BE JUSTIFIED?

BY STEPHEN ZUNES

he question of whether and led to die imposition of sanctions and perhaps T under what circumstances the even lead to the overthrow of the offending United States should impose regime. Sanctions, then, while not painless, are economic sanctions on foreign often seen as a nonviolent alternative to military countries has long been a intervention as a means of applying pressure to source of controversy. Critics recalcitrant regimes. In the case of Iraq, however, on bodr the left and the right have advocated and ongoing United Nations sanctions — most vigor¬ condemned the use of sanctions, often based in ously supported by the United States — may have part on tire ideological orientation of the regime actually been more destructive than war, in tenns in question. Some conservatives of a libertarian of tire number of fives lost as a result. While persuasion oppose sanctions on principle since there is virtually no opposition to the United they interfere with tire rights of investors. Indeed, Nations’ strict weapons embargo against Iraq, the with the creation of the World Trade Organization, embargo against civilian trade has created great it has become more difficult to legally justify controversy due to its humanitarian consequences sanctions on non-economic issues at all. In addi¬ and questionable political effectiveness. Though tion, recent efforts by die United States to enforce overshadowed here in the United States in recent its unilateral sanctions against Cuba and Iran on months by renewed military confrontations foreign companies have led to heated diplomatic between the United States and Iraq, the sanctions exchanges with our Canadian and European allies. regime has become the major concern for Iraq One of the biggest criticisms of the use of and much of the Middle East. Indeed, it was the economic sanctions, however, has not been in die perceived lack of prospects for lifting the sanctions legal or political realm, but with regard to ethical which prompted Iraq’s defiance of United Nations questions over their impact on the civilian pop¬ inspectors, prompting tire recent military con¬ ulation. Most people recognize that civilians will, frontations. The Iraqis have seemed resigned to in the short term, inevitably suffer to some degree heavy air strikes, with many expressing the sense from economic sanctions. However, it is hoped that they had very little left to lose. that this suffering will thereby spur the population to challenge the policies of the government which Sanctions That Bite Sanctions were originally imposed by the Stephen Zunes is an assistant professor of politics and chair of the Peace and Justice Studies Program United Nations in August 1990, immediately at the University of San Francisco. following Iraq’s invasion, occupation and annexa-

30 FOREIGN SERVICE J O U RN AL/F E B RU ARY 1999 Focus

tion of Kuwait. There was little con¬ In the face of Furthermore, the simultaneous troversy within the international preparation for an armed assault community or in the United States armed assaults, caused many Iraqis who might about such a course of action. otherwise have challenged the Indeed, many believe that had the many Iraqis have regime over the country’s deterior¬ U.N. imposed sanctions following ating economic situation to rally Saddam Husseins 1980 invasion of rallied around around the flag in the face of an Iran or his use of chemical weapons imminent attack. Others, however, against Iraqi Kurds, he would not their flag. are convinced that Saddam Hussein have been emboldened to invade would not have pulled out in any Kuwait in the first place. case and that sanctions alone were When finally imposed in August of 1990, the sanc¬ insufficient to force the Iraqi withdrawal. tions were the most rigorously enforced in history. The The war had a devastating impact on Iraq’s civilian CIA estimated in a report that autumn that U.N. sanc¬ infrastructure, as the countiy experienced the heaviest tions were blocking 90 percent of Iraqi imports and 97 bombing in world history. Unlike some other countries percent of Iraqi exports. (Since the Iraqi defeat in subjected to heavy air strikes, such as largely rural soci¬ 1991, sanctions have been less effective.) Sanctions eties like Vietnam and Afghanistan, the heavily urban¬ alone were insufficient to pressure the Iraqis to with¬ ized Iraqis were severely impacted by the sudden draw their forces, however. Some argue that the Bush absence of clean drinking water, normal distribution administration’s insistence that sanctions would contin¬ systems for basic commodities and — in part due to the ue even if Saddam Hussein withdrew his forces from fact that they are a largely arid country dependent on Kuwait gave the Iraqis little incentive to comply. irrigation systems severely damaged by tire bombing — - f -

#11M ... AP PHOTO/JASSIM MOHAMMED Iraqi and Arab workers chant anti-American slogans during a demonstration in front of the U.N. Development Program building in Baghdad on Sunday, Jan. 10, 1999.

FEBRUARY 1999/FOREIGN SERVICE JOURNAL 31 severe food shortages. and the already-high risks of were in 1990. Yet it is Iraq’s poor, Sanctions have remained in effect challenging Saddam’s rule have particularly the children, who have for the eight years since the war become too great for many. Critics suffered the most. Estimates of as a result of Iraq’s less-than-full of the current sanctions regime the total number of Iraqis killed as compliance with several provisions argue that the lifting of non-military a result of malnutrition and pre¬ of United Nations Security Council sanctions would allow the countiy ventable diseases as a direct conse¬ Resolution 687 imposed at the end to be deluged with business people quence of the sanctions have ranged of the war. This has not only led and other foreigners, creating an from a quarter million to over one to enormous human suffering, but environment far more likely to result million, the majority of whom have many argue that it has been counter¬ in a political opening than the been children. UNICEF estimates productive to the broader U.S. goal current sanctions regime which that at least 4,500 Iraqi children of bringing down the Iraqi dictator. places the country in impoverished are dying every month as a result It was precisely out of Iraq’s isolation under Saddam’s grip. of the sanctions. Indeed, perhaps middle class that forces might have there has been no other occasion emerged capable of success¬ Public Health Devastation during peacetime when so many fully challenging Saddam’s regime. There has been some limited people have been condemned to Having been reduced to penury, media coverage in the United States starvation and death from prevent¬ and struggling to survive, the middle of the hardships the sanctions have able diseases due to political decisions class cannot be a base for political inflicted on the once-prosperous made overseas. opposition. Thousands have emi¬ Iraqi middle class, such as professors While the repressive nature of grated. Indeed, as more and more selling their valuable books, families Baathist rule under Saddam Hussein families become dependent on gov¬ selling their pets and women selling in the 1980s is well documented, ernment rations for their very their family jewelry in order to the Iraqi regime — like a number of survival, they are forced to cooper¬ buy basic necessities, as food prices fascist governments historically — ate even more with the government, are now 12,000 times what they maintained a comprehensive and

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32 FOREIGN SERVICE ] O V RN AL! F EB RU ARY 1999 generous welfare state, generally children in Iraq have stunted these facilities since the embargo doing a respectable job of meeting growth, approximately twice the prohibits the importation of spare the nutritional, housing and health percentage before the war. Alarm¬ parts, there has been a dramatic care needs of its population; indeed, ing food shortages are causing increase in typhoid, cholera and Iraq had the highest per capita irreparable damage to an entire other illnesses which had largely caloric intake in the Middle East. generation of children.” The FAO been eliminated in Iraq prior to the Most of the population had direct further estimates that there has been 1991 Gulf War. Ambulances and access to safe water and modern a 72 percent rise in childhood other emergency vehicles, and even sanitation facilities; there was a wide malnourishment, affecting 32 per¬ their spare parts, are among the network of well-functioning and cent of children under five. The items banned. Hospitals are unable well-supplied hospitals and health World Health Organization (WHO) to acquire spare parts for incubators, care centers. The overall economy estimates that “there has been a six¬ kidney dialysis machines and other was strong, with Iraq considered a fold increase in the mortality rate for equipment. Even materials such as "middle income” country, importing children under five and the majority food and medicines not covered by large numbers of foreign guest of the country s population has been the ban have become difficult to workers to fill empty spots in its on a semi-starvation diet.” purchase due to the lack of capital. growing economy. Now, it ranks Electricity is irregular and conditions as one of the most impoverished Does Saddam Care? at hospitals are becoming increas¬ countries in the world. These deaths are a result of in¬ ingly unsanitary. With tap water no According to a 1997 report by adequate medical supplies, impure longer safe, a gallon of bottled water the U.N. Food and Agricultural water and nutritional deficiencies. now costs as much as 500 times more Organization (FAO), “Four million With water purification and sew¬ than a gallon of gasoline. people, one-fifth of the population, age systems heavily damaged by Iraq’s primary source for foreign are currently starving to death in American bombing raids in 1991, exchange, oil exports, is of course Iraq. Twenty-three percent of all and with the Iraqis unable to repair subject to the embargo, with the

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FEBRUARY 1999/FOREIGN SERVICE JOURNAL 33 exception of a limited amount of the apartheid regime. petroleum which may be sold for Next to North Surprisingly, there is little debate food under strict U.N. monitoring. in the U.S. Congress regarding the Until recently, Iraq was allowed to Korea, Iraq lifting of sanctions. Rather, some sell only $2 billion in oil every six politicians would make diem tougher. months to purchase food. About has the most Senate Foreign Relations Committee one-third of that was allocated to Chairman Jesse Helms (R-N.C.) has Kuwait for reparations and to the totalitarian regime called for a total blockade, including U.N. for administrative costs. Though food. Some members of Congress, the FAO and the WHO have given on the planet. such as Senator Diane Feinstein Iraq high marks for their distribution (D-Calif.), have begun to publicly of food and medicine, the U.N. esti¬ question its effectiveness. mates that about $4 billion is the about his people.” Most knowledge¬ Much of the organized opposition minimum needed to meet basic able observers of Iraq recognize that has been among some churches, needs for food and medicines. Over no such test is necessary; Saddam’s humanitarian organizations and peace initial U.S. objections, the U.N. primary concern has always been his groups, which have sent delegations raised the permitted amount to $5.2 own power. Indeed, Saddam Hussein to Iraq to bring medical supplies, billion (of which $3.5 billion actually is ultimately responsible for his often in direct defiance of the could go to Iraq) last spring, though people’s suffering from the sanctions. sanctions. Such acts of civil disobedi¬ the lack of spare parts for its oil But since it has long become appar¬ ence and die stories participants have industry has made it difficult for Iraq ent that such suffering is not altering brought back home to their congre¬ to produce that much oil. Iraqi policy, one must also therefore gations, civic groups and local media A full quarter of Iraq’s school-aged raise the question of moral culpability have begun to induence public population is no longer in school, in on the part of the United States. opinion, though some individuals and a country which previously had near- organizations have compromised universal primary education. For Iraq’s Totalitarian Regime their credibility by citing exaggerated those who can attend school, books Part of the ineffectiveness of the statistics and engaging in apologetics and other educational resources are sanctions comes from the nature of for die Iraqi regime. in extremely short supply. Saddam Hussein’s regime. It is more As word of die appalling condi¬ The U.S. has blamed the suffering than simply another authoritarian tions in Iraq has spread within the on the Iraqi regime for its failure Middle Eastern government; indeed, United States and other countries, to more fully cooperate with the next to North Korea, it is the most pressure has grown for a change in United Nations. Said Secretary of totalitarian regime on the planet. policy. Though the humanitarian State Madeleine Albright at the Therefore, the ability of the popula¬ imperative has failed to resonate National Press Club on May 12, tion to organize effectively against witii die Clinton administration or 1998, “Saddam Hussein is the one the regime or its policies, particularly Congress, the fact tiiat the sanctions who has the fate of his country in under dire economic conditions have had absolutely no tangible his hands, and he is the one who created by the sanctions, is severely benefit in altering Iraqi policy may be is responsible for starving children, limited. Indeed, this is why virtually enough to persuade U.S. policy mak¬ not the United States of America.” every recognized Iraqi opposition ers to liberalize die sanctions regime Furthermore, there has been some group has come out against the in order to ease the human suffering. outcry at the Iraqi government’s sanctions regime. The potential decision to use scarce resources for political effectiveness of sanctions — A Sanctions Quid Pro Quo? the construction of opulent mosques as well as their morality — can be Part of the problem is that the and additional palaces for Saddam judged in part by the willingness of the United States has given Iraq little Hussein, his family and associates, opposition to have its people endure motivation to cooperate with its though the Iraqis claim diat these the hardships imposed. A counter¬ international obligations. For exam¬ use indigenous materials and are example would be the case of Soudi ple, Madeleine Albright declared paid for in Iraqi dinars. Albright has Africa, where the black majority had in March 1997 that the U.S. would justified the sanctions in part as a long lobbied for a tough stance by veto any U.N. Security Council test to prove if Saddam “really cares (lie international community against efforts to lift sanctions, even if Iraq

34 FOREIGN SERVICE JO URNAL/FEB R UA RY 1999 finally came into full compliance Minutes” regarding the devastating with U.N. Security Council resolu¬ U.S. policy impact sanctions were having on the tions; only if Saddam Hussein no children of Iraq, Albright declared longer ruled Iraq would the U.S. gives Iraq that “we think the price is worth it.” allow the sanctions regime to end. Yet the apparent failui'e of the President Clinton reiterated this little incentive sanctions to move Iraq’s level of com¬ position in November 1997. This pliance with the international com¬ stand not only goes far beyond the to comply with munity forward raises serious doubts. original U.N. mandate — it also gives Former U.N. Secretary General the Iraqi government no incentive to its obligations. Boutros Boutros-Ghali challenged cooperate: Saddam might be willing the international community to to make further compromises on confront “the ethical question of issues of weapons production and Council resolution stands in stark whether suffering inflicted on vul¬ inspector access if that would result contrast to the U.S. position blocking nerable groups in the target country in lifting sanctions, but not if sanc¬ sanctions against governments allied is a legitimate means to exerting tions would remain intact anyway. with the United States — such as In¬ pressure on political leaders whose Indeed, Saddams harassment of U.N. donesia, Israel, Morocco and Turkey behavior is unlikely to be affected by inspections was based largely on the — for their ongoing violations of U. N. die plight of their subjects.” Indeed, realization that he has nothing to Security Council resolutions. This there is little indication that Saddam lose as long as the U.S. maintains its perception of a double standard has Hussein, his inner circle and key uncompromising position. led the Iraqis, rightly or wrongly, to elements of the military leadership It has long been recognized that determine that the sanctions are are suffering any shoitages of food, for sanctions to work, one needs a punitive and politically motivated. drinking water and medical supplies. carrot as well as a stick, something Whereas sanctions against Iraq dur¬ The suffering of the civ ilian popula¬ which the U.S. has largely failed to ing the occupation of Kuwait were tion has become an effective propa¬ recognize. Indeed, there has been a widely seen by ordinary Iraqis as the ganda tool to stir up anti-American historic tendency for governments fault of dreir own government, the sentiment, but does not seem to have to ignore the huge body of evidence post-war sanctions are almost uni¬ had an impact in altering Iraqi policy that punishment doesn’t change versally blamed on the United States in ways consistent with U.S. interests. behavior of other governments as and the West. The humanitarian This raises the question as to effectively as does reward. It would crisis has also led to widespread whether the morality and the political be far more effective for die United resentment in the Arab world, even efficacy of the ongoing sanctions States, in consultation with other by those very much opposed to regime can be separated. Like the air members of the Security Council, Saddam Hussein. Such resentment strikes of recent months, the motiva¬ to offer to lift certain non-military can spill over to anti-American tion appears to be more on an sanctions in return for compliance violence. Indeed, along with U.S. emotional level than a rationally with inspections and other outstand¬ support for Israel and the Saudi calculated strategy. Indeed, tire worst ing issues of U.N. Security Council royal family, the continued sanctions mistakes of recent years in foreign Resolution 687, and to be specific against Iraq were among the main policy have tended to come from as to what positive responses could grievances expressed by terrorist reactive decisions bom out of frustra¬ be expected in return for certain leader Osama Bin Laden. tion at impudent regimes which improvements in behavior. Former have challenged basic international U.N. Special Commission chief Morality and Consequences standards and U.S. policy interests. Rolf Ekeus has proposed just such The morality of a particular for¬ Diplomatic historians of the future a scenario, though the current eign policy is tempered by its results. will likely raise serious questions re¬ UNSCOM leader, Richard Butler, If human suffering from economic garding the morality of the sanctions has taken a more hard-line approach. sanctions can advance a policy goal regime against Iraq. They may also The vigor with which the United that would lead to less suffering in come to see it as one of the key errors States has pursued strict sanctions the long tenn, one could make the in U.S. policy which eventually did against Iraq over its failure to case that it was morally justified. serious harm to American interests comply with sections of one Security Indeed, in an interview on “60 in the Middle East. ■

FEBRUARY 1999/FOREIGN SERVICE JOURNAL 35 GERMANY s NEW DIRECTION

THE NEW SOCIAL DEMOCRATIC-GREEN

GOVERNMENT MEANS THAT EUROPE’S POWERHOUSE

WILL NO LONGER BE TAKEN FOR GRANTED

BY GEORGE M. FREDERICK

^ ermany’s Gerhard Schroeder SPD won almost 41 percent of the vote, while will not be taken for granted. Helmut Kohl’s CDU/CSU carried a disappointing In the new German govem- 35 percent. The largest single voting bloc in the M ment, led by Schroeder s Social elections was men and women between 21 and 45. Democrats (SPD), tlie U.S. has The election in effect carried out a generational a demanding and somewhat change, with die 55-year-old Schroeder and Fischer, skeptical partner. After four days of talks, Schroeder 49, replacing die long-serving, 68-year-old Kohl. accepted Joschka Fischer, the working class leader of the Green Part)', as his foreign minister, making This Is the New Germany Fischer the most successful Green politician in For these Germans, America at war conjures Europe to date. With the arrival of the new German up images of Saigon and Baghdad rather than team, the old U.S. diplomacy based on a Cold War Normandy. Joschka Fischer, as leader of the German-American friendship is no longer relevant. Greens, has been directing a 12-year crusade to Misleadingly labeled an environmental party, harness these voters. The measure of his success the Greens are much more than a one-issue group. is the 47 legislative seats won by the party in The party’s leadership includes activists from many October, clinching the coalition deal with the SPD. causes, including communist and social democrat¬ The Greens, known also as the Alternative List, ic traditions. The Greens have a broad internation¬ offer an intelligent choice for politically moderate al social agenda, and more importandy, they are Germans who find die two established parties do not hi the least in awe of the United States. Nor not represent their concerns. Fischer will now do they see the U.S. as the world leader. offer up alternative politics on die international On election day, 85 percent of Germany’s 65 stage as chief diplomat of Europe’s powerhouse. million eligible voters turned out to give Gerhard The agreement that created the Social Schroeder and his party the authority to lead. The Democratic-Green coalition government describes the U.S.-German friendship as key to German George M. Frederick, a career FSO, has lived and policy considerations. But in a Europe with 11 worked extensively in Germany. From 1994 to 1997 administrations led by the political left, including he served as consul in the U.S. consulate general in those of Britain, France and Italy, ideological and Hamburg. The views expressed in this article are physical distances may strain die trans-Atlantic the author’s, and do not reflect official U.S. policy friendship. As Fischer made the rounds after or the views of the Department of State. his nomination, die foreign minister has made

36 FOREIGN SERVICE j OV RN Ah! F EBRU ARY 1999 Focus

reassuring statements in Paris, London and Washing¬ The German coalition government might well answer ton, promising continuity in German foreign policy. that Germany has already met this challenge. And the Certainly, Fischer and his associates see the United way it has done it has far-reaching international conse¬ States as an important partner, but not a senior partner. quences. That sentiment is echoed, if only softly, in SPD foreign policy debates. What American politicians The Third Way at Home unquestioningly call U.S. leadership appears to many Internal policies reveal the philosophical differences German centrists as willful unilateral action. We are between Germans and Americans. Even conservative likely to find our German partners more willing to Germans were skeptical of the 1997 federal welfare question U.S. motives and judgment than was the case reform legislation and the accompanying local welfare mider Helmut Kohl. The SPD and Greens will want reform in the United States. The Social Democrats and reassurances that the U.S. can be counted on to allow Greens openly expressed dismay. Ideological tradi¬ Germany, and by extension Europe, to go its own tions of European social policy supported by both European way. Greens and Social Democrats include the principle Perhaps this concern prompted President Clinton to of the welfare state. Gerhard Schroeder, as head of challenge publicly all “progressive leaders of the world” state government in Lower Saxony, showed a willing¬ to find a third way. The notion of a “third way,” as intro¬ ness to intervene in the marketplace, notably in the duced by British Prime Minister Tony Blair and aircraft and auto industries, to save precious jobs in his endorsed by Clinton, originated in the 1980s in British state, even when his party advised against such action. Labour Party circles. The third way (as opposed to lais- Green politicians too have ideas about an activist sez faire capitalism or intrusive state socialism) consists third way. Proposals for environmental programs and of an ill-defined policy of “activist government” inter¬ taxes on energy and industiy made it into the governing vening to make life better for the citizens of the world. coalition agreement, only slightly muted by SPD objec-

Gerrnan Chancellor Gerhard Schroeder (right) and his Foreign Minister Joschka Fischer at the European Union Summit last Dec. 12

FEBRUARY 1999/FOREIGN SERVICE JOURNAL 37 tions. The Greens also supported ers Schroeder and Fischer have roots. For the United States this punitive taxes on polluters, with the both fought to win German participa¬ split, and the Greens’ potential to resulting revenue directed toward tion in military operations in the delay decision-making in German support for the unemployed. The former Yugoslavia, but the strong foreign policy, are new factors in Green Party has always taken an un¬ undercurrent of German suspicion our bilateral relationship. Kosovo, conventional approach to governing. of military might remains. This ideo¬ NATO expansion, economic policy The Greens are given to long and logical approach to diplomacy has toward Russia and other key Euro¬ arduous internal debates on the not won the new government support pean issues have already inspired direction of the party, which has long in the German foreign affairs bureau¬ controversy within the Greens. It is revealed a division between “funda¬ cracy. Just weeks after the new gov¬ still uncertain where the Greens’ mentalists,” who wish to remain true to ernment was formed, rumors cir¬ doctrinal arrows will be pointed once tlie party’s pacifist/environmentalist culated in diplomatic circles that they stop spinning. German hesitance roots, and “realists,” who want to senior German diplomats were con¬ could delay or block the deployment achieve power through compromise sidering leaving the service rather of European-based U.S. troops to with the Social Democrats. The than serve a diplomacy transfigured future trouble spots. Greens’ apparently endless intro¬ by Fischers view of the world. Closing out the “American century,” spection in 1994 caused Schroeder, In die past 10 years influential the United States finds its role then-chief executive of Lower Saxony, movements within the Green Party in European security defined by a to question the Greens’ ability to have called for withdrawal of Germany new breed of leaders. In the next succeed in national government. from NATO and the disbanding of the four years we will call on Germany German armed forces. Fischer’s prag¬ for tough decisions and support. This Anti-militarism Abroad matist faction of the Greens won the new Germany, for which the The doctrine of both the Greens day on these issues at tire last party Marshall Plan is just a fading history and the SPD provides a strong anti¬ congress, but the internal debate lesson, must be re-won with careful militarist moral compass. Party lead¬ continues to haunt the Green grass¬ and activist diplomacy. ■

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FEBRUARY 1999/FOREIGN SERVICE JOURNAL 39 AN EYE ON BOSNIA

THIRTY YEARS AFTER SERVING IN YUGOSLAVIA,

A RETIRED FSO RETURNS TO OBSERVE ELECTIONS

MANDATED BY THE DAYTON PEACE ACCORDS

BY CHARLES STUART KENNEDY

ike most Americans, I watched contingent had dominated the parliament, but L in horror as civil war raged in when Plavsic was named president in 1996 the Yugoslavia from 1991 to 1995. I two factions fell out and she was forced to dismiss had fond memories of a tour as the parliament in mid-1997. chief of the consular section in We were warned to prepare for snowy, moun¬ Belgrade from 1962 to 1967. tain conditions, so when our contingent of 50 When an uneasy peace came to that unfortunate, American, Dutch, French, Italian, British and new country, I volunteered to be a monitor for Irish retirees and graduate students landed in elections mandated by the Dayton Peace Accords. bright sun amid the swaying palm trees of Split, New elections were called for November on the Adriatic coast, I felt silly with my long 1997 for the Serb Republic. After the Dayton underwear and heavy coat. From Nov. 14 to Nov. Peace Accords, Bosnia-Herzegovina was divided 26 we would be in the hands of the Organization into the Serb Republic and the Muslim-Croat for Security and Cooperation in Europe, which was Federation, with three members of a collective in charge of the elections. For the next three days, national presidency representing the Serbian, we received a short, intensive course on how to Muslim and Croatian populations. A new govern¬ set up polling stations, identify legitimate voters, ment was needed after the two power centers keep from being manipulated and supervise and in the republic, one in Banja Luka in the north¬ record ballot counting. Only registered voters west, and the other in Pale in the northeast, had were to be allowed to vote. If we found question¬ split. The Pale faction, lead by Radovan Karadzic, able voters, we were to put their ballots in separate who is wanted by the International War Crimes envelopes with relevant data written on them Tribunal in The Hague, was made up of Serbian and send them to Sarajevo, where they would nationalist hardliners. The Banja Luka faction, be evaluated before being opened. If the voter led by former Karadzic protegee Biljana Plavsic, proved to be legitimate, the vote would count. were pragmatists who wanted to recharge the economy of the Serb Republic and remove the Avoiding Landmines countiy’s international pariah status. The Pale We were also given a lecture on how to avoid landmines by a sergeant and a corporal from Charles Stuart Kennedy, a retired FSO, served as Britain’s Royal Corps of Engineers in rapid, chief of the consular section in Belgrade from heavily accented English. Though I only under¬ 1962 to 1967. stood every third word, their message came

40 FOREIGN SERVICE ] O U RN AL/F E B RU ARY 1999 through: Stay on country roads and On the first day of trained and badly divided. Muslim watch where the local people go. police wore green uniforms, while Later, a woman trainer in Tuzla voting we arrived Croatians wore blue and Serbs were would give us even more important decked out in gray. landmine advice: “If you are traveling early to put up signs An American military police and have to pee, just stay on the road¬ captain serving with SFOR, the side and do your business,” she said. banning smoking NATO military arm, told us that “Don’t go into the woods for privacy!” American troops were often cast In addition to OSCE election and guns. as the “heavies.” Though they were monitors, there would be observers well received, he said, they exercised from political parties and other caution on patrol. They wore helmets international groups. Our groups trainer was an Irish and flak jackets, carried weapons at all times and trav¬ election official who had been working in Bosnia for eled in convoys of at least three humvees with machine a year. Often, we felt the OSCE trainers treated the guns mounted on most of them. They were an outfit volunteers like children, but despite this tension, we no bully would want to mess with, which was the idea. would later regard the three days in Split as an idyllic Those of us assigned to monitor Tuzla would be interlude. dealing with absentee voters, most of whom were On Nov. 18, we left on a bus for Tuzla. We drove Muslims who had been forced from their homes and through Mostar, a town I remembered for its world- who were now living in the Muslim-Croat Federation famous arched, Turkish bridge over a river that and were unwilling or unable to vote in their former bisected the town. The bridge was gone. Muslims lived homes in person. According to the Dayton Accords, in the bullet-pocked, bumt-out houses on one side of absentee voters could vote in the locality in which they the river, while Croats lived in the same destruction on had lived before the war, or they could vote absentee in the other side. Near Sarajevo we saw our first NATO designated polling stations. The absentee voters were patrols when we spotted armored cars flying the expected to vote against both the Pale and Banja Luka Ukrainian flag. All troops were buttoned up with factions, but no one was sure what their votes would machine guns at the ready. Under the U.N. command, mean to the elections. it had been easy for Serb militia to stop and loot Our role as OSCE observers also remained vague. convoys, but that temptation was, diankfully, gone. Each Bosnian voting district had a team of from five to In Tuzla, a major Muslim area and center for six poll workers plus a chairman to operate each American troops, we stayed at the Dom Pensionera, station. The OSCE paid the Bosnians, and their chair¬ the House of Pensioners, a type of old-folks home. man had the final word on operation of the polling There, I had a chance to use my 30-year-old Serbian station. OSCE observers were to countersign reports with the retirees, who were delighted to speak to an with the chairman. In addition, there was a polling American, even one using bad grammar and speaking book in which anyone could make comments about the with a heavy accent. We spent two days receiving process. Thankfully, there was little conflict between more briefings on Bosnian politics and U.N. peace¬ the OSCE observers and the Bosnian chairmen. keeping, as well as instruction on using maps and My assignment was Kladanj, a mountain town 40 radios. We learned that an international police adviso¬ miles south of Tuzla, where many Muslim refugees ry team was there to help make the Bosnian police from Srebrenica, site of one of the worst massacres force more professional — and also to make sure that of the war, had moved. On Friday, Nov. 21, the day they did not become enforcers for ethnic factions. A before polling began, I went to the Kladanj town hall Russian lieutenant colonel and a captain from the to meet the head of the election committee, a judge. German border police — a team that would have been The building was just like hundreds of town halls unthinkable only a few years before — told us that the I had visited while posted in Yugoslavia in the 1960s: Bosnian police were too heavily armed, not well dark, cold, poorly maintained, with cavernous corridors.

FEBRUARY 1999/FOREIGN SERVICE JOURNAL 41 Word processors on desks were the only modem On the first day of voting, Saturday, Nov. 22, we touches. I delivered a short speech in which I said I arrived early to put up signs banning smoking and guns. was part of tire international contingent there to help After that, the entire polling staff, with the exception Bosnia hold fair elections in its time of troubles. of me, lit up. They continued smoking all day, along After that, I went to my assigned polling station, with many voters. To the best of my knowledge, no an elementary school on the outskirts of Kladanj. The guns were carried into the polling area. polling station was a large, cold classroom. The polling We opened the doors at 8 a.m. to a crowd of 40 staff consisted of the chairman, an energetic man in his people. One of the first voters was a young man early 40s, and five staff. One, a young man in his 20s whose hand showed traces under the ultraviolet light. whose feet had been He was an auto mechanic, he said, and regularly blown off by a land mine handled chemicals from engines and batteries. The and who walked with a chairman and I decided that since it was five minutes We had been rolling gait because of after the start of official voting and the nearest other warned not his artificial limbs, was re¬ polling station was five miles away, we would let sponsible for keeping the him vote. to be upset voting queue in order and Most other voters were older, displaced persons. using an ultraviolet light Most young men who had not been killed during the if a husband to check voters’ hands war had left to find work elsewhere, along with many to see if they had already young women. We had been warned not to be upset and wife chose voted. The others were if a husband and wife chose to fill out their ballots women in their 30s and together. One or both were probably illiterate and they to fill out 40s. One checked voters’ were accustomed to helping each other fill out official identifications against a documents. Some women observers were uncomfort¬ their ballots register, one gave out bal¬ able with joint voting because it implied that the men together. lots to voters and another were telling the women how to vote, but they were not squirted voters’ index fin¬ familiar with die customs of Balkan peasants. We gers with a mist that would allowed husbands and wives to vote together, and show up under ultraviolet sometimes younger members of the family also pitched light. This was to prevent people from voting twice. in. The ballot was complicated, witii some 50 choices After that, she directed them to the screened table of parties or individuals. Half the names were in Latin where ballots were marked. The final member of the script, preferred by the Federation, and the other half team stood by the sealed cardboard ballot box to make were in Cyrillic, choice of Serbian nationalists. Voters sure that each voter deposited only one ballot. The knew for whom they wanted to vote, but they needed committee had conducted elections before, so they help putting their marks in the right places. quickly put everything in order. I didn’t have to exercise The OSCE had given us strict instructions not to my newly acquired knowledge about polling stations. let anyone not on the carefully crafted voting fist cast a ballot. Still, a few people not on the list claimed No Cigarettes or Guns Allowed they had voted in Kladanj in previous elections. These I sat at a table with a sign reading “international would-be voters often arrived with husbands or wives observer.” In two days of voting our little polling who were on the list. I felt that they didn’t have a station was also observed by officials from Finland, nefarious purpose in mind, and, after conferring Indonesia, Nepal, India and Germany, among other with the chairman, asked them to check back with us countries, and visited by numerous representatives of the next day. We heard from OSCE headquarters international agencies, including a Kenyan represent¬ in Sarajevo that there were indeed problems with ing the U.N. High Commissioner for Refugees. the voting rolls, but that they “were trying to resolve it.”

42 FOREIGN SERVICE J OU RN AL/FEB RU ARY 1999 In the end, we let these people vote, then sent the United States. Since ballots had to be sorted out in ballots to the OSCE for evaluation. Sarajevo, it was mid-January before I learned that When we closed on the first day at 7 p.m., 365 neither the Banja Luka nor Pale faction had received of the 879 eligible voters in the district had cast a majority of the votes. Expelled Muslims and Croats ballots, a lower turnout than expected. I was in charge had voted in large enough numbers to ensure that they of the ballot box overnight. It was sealed with would control crucial swing votes in the parliament. numbered tape and both the chairman and I wrote The Muslim vote had also been decisive in electing our names across the seal. Then, I took the box and Milorad Dodik, a moderate, who as prime minister all unused ballots and locked them in my hotel room. might bring positive change. The next morning polling station workers and While the Bosnians had observers, including those from political parties, staged free, fair, informed examined the box to make sure that it had not been elections, and while they were I assumed tampered with, and the balloting resumed. not fighting, Serbs, Croats and One political observer, a refugee, told me about Muslims still had little will to that simple his bitterness over the earlier role of U.N. troops, cooperate. who had done little to stop Serb atrocities. He also peasants complained about the U.S. embargo of military Round Two weapons, which meant that at the wars beginning Eleven months later, in wouldn’t be Serbs had inherited the Yugoslavian weapons stockpile September 1998, I was back and Croats had imported arms from neighboring in Bosnia-Herzegovina, this able to decipher countries, but Muslims were defenseless, easy prey. time as an observer for the The Sunday turnout was smaller than on Sat¬ countrywide elections. For the ballots, urday, but by the time the polls closed, 71 percent training, I was assigned to but 1 was of registered voters had cast ballots in two days of Banja Kulasha, a rehabilita¬ voting, a better showing than in the United States, tion center in the Serb wrong. where 49 percent of registered voters cast ballots Republic famous for its cura¬ in the last presidential election. As expected, about tive baths. Many young men 85 percent had voted for a coalition of Muslim missing legs were there for groups, with the rest voting for a specific Muslim treatment, a reminder of the war we were trying party. After counting the ballots, the chairman and to prevent from erupting again. I filled out and signed detailed elections forms, Our polling area was a section around Derventa, then took them to the town hall, where an OSCE a town close to the Sava River and the Croatian border representative was waiting with an armed American which had been badly damaged during the war. Prior escort. The representative took the documents to to hostilities, the town had been equally divided Tuzla, where they were gathered with other between Croats and Serbs, but Croatian houses had ballots for shipment to the OSCE headquarters in been blown up and their inhabitants had fled across Sarajevo. the river. On the bus back to Split on a different route After training in the rehabilitation center, we through the Serb Republic we passed good grazing moved to the Blind Childrens Center in Derventa, and agricultural land that had been abandoned. In where we shared quarters with children suffering the fields were paths marked with white tape, a sign from war wounds in a facility built by the Italian Red that the area had been mined. After a night in Split, Cross. My polling station was in the heart of Serbian we rose at 4 a.m., ate a hurried breakfast and drove territory, in Mala Sochanitsa, a place not found on to a small airport crammed with election observers most maps. The station was in a combination school- returning to homes in Europe, Canada and the house and postal and telegraph office in the middle

FEBRUARY 1999/FOREIGN SERVICE JOURNAL 43 of a fanning area. Students from 34 states and 15 countries The local staff knew what to do, meet at Shattuck-St. Mary’s School so I only had to keep a genial eye for an outstanding academic experience on things. Most political party in a secure, midwest campus community. observers spent their time preparing The student-faculty ratio is 7-1 and cooking a pig that had been and all teachers live on campus. slaughtered as voting started and Other features include: which we ate at the end of the day. ♦ Grades 6-12 ♦Coed My interpreter was a young ♦ Boarding and Day dentistry student from the University ♦ Separate Middle School and of Banja Luka who was bitter because Upper School programs her father, a Serb, had been killed in ♦ Outstanding coaching in drama, music and athletics a Croatian prison camp. Like most ♦ 45 minutes from young people with whom I spoke, Minneapolis/St. Paul airport she had no thirst for war. She only wanted to get on with her life. Call 507-332-5618 Voting in Mala Sochanitsa pro¬ Fax 507-332-5661 duced an 87 percent turnout, 450 E-mail: [email protected] voters over two days. Most were farm folk who arrived in trucks, tractors and beat-up cars, as well as on foot. The ballot was compli¬ cated, with four different elections SHATTUCK-ST MARYS SCHOOL being held at the same time. Since FARIBAULT, MINNESOTA, U.S.A. most of them were simple peasants, I assumed they wouldn’t be able to decipher the ballots, but I was dead wrong. Perfect Location, Starting at Voters elected Serbian nationalist Zivko Radisic of the multi-party Perfect Comfort, Serbian coalition (SLOGA) to the $58 Serbian presidency. Radisic also Based on a 30 day Perfect Price. minimum stay became first chair of the national presidency. He will rotate with die Not only are we just minutes from Muslim and Croatian presidents. National Airport, the National Foreign Affairs Training Center, Except for diehards, most Serbs most government buildings, and wanted moderation. They had no Metro-we'll surprise you with just desire to fill the rehabilitation center how much you get for so little. in Banja Kulasha and the Blind 4 Spacious suites with Children’s Center in Derventa wffh full kitchens more victims. For its part, the OSCE ♦ Pool, sundeck, saunas and had once again shown Bosnians exercise facilities that it was possible to produce a fair ♦ Free Cable TV with HBO election. Although I diink that it 4- Free on-site parking will be impossible to restore refugees 4 Free local phone calls to dieir fonner homes, maybe this 4 Complimentary Continental Arlington, VA 22209 new, canton system of government Breakfast on weekdays 800-275-2866 will work in the war-tom area. 4 Free shuttle to NFATC In any event, it will be up to a weekdays at 7:30am, returning at 4:30pm www.virginiansuites.com new generation to find a solution and make it work. ■

44 FOREIGN SERVICE J O U RN A L/F E B RU ARY 1999 BOOK REVIEW ESSAY Is There Independence in Chechnya s Future?

BY BENJAMIN TUA

Carlotta Gall and Thomas de who are ethnically related to the Chechnya: Calamity Waal’s Chechnya: Calamity in the Chechens, in sealed boxcars to in the Caucasus Caucasus and Anatol Lieven’s Kazakstan, where more than 100,000 Carlotta Gall and Thomas de Chechnya: Tombstone of Russian of them perished within two years Waal, New York University Power add enormously to our under¬ from sickness and hunger. Press, 1998, $26.95, standing of the complex dynamics The modem day Chechen inde¬ hardcover, 416 pages. of the area. The authors, veteran pendence movement began in 1990, newspaper correspondents with as the Soviet Union was crumbling. Chechnya: Tombstone firsthand knowledge of the region, Dzhokar Dudayev, a former Soviet of Russian Power do a superb job of recounting how general who was an early supporter Anatol Lieven, Yale University a small group of historically ignorant, of Russian President Boris Yeltsin, Press, 1998, $35.00, culturally insensitive and racially was elected Chechnya’s first presi¬ hardcover, 436 pages. arrogant men in Moscow made hasty dent in November 1991. When political and military decisions that Dudayev turned against Yeltsin, led to a debacle. one of the last chances for a nego¬ When Russia launched its Calamity in the Caucasus is tiated settlement between the two ill-fated war against the written in a brisk, easy-to-digest style countries was lost. separatist northern Cau¬ by Gall, a former journalist for the An erratic figure, Dudayev had casus Republic of Chechnya in Moscow Tones, and de Waal, who alienated most Chechens by 1994. December 1994, few Americans had has reported for The Times of Before that, however, Chechnya had heard of the republic of one million London, the Economist and the entered a twilight zone, neither inhabitants on the western coast of Moscow Times. It starts with the fully in nor totally out of Russia. the Caspian Sea. brutal, indiscriminate bombard¬ Chechens still used the mble and That changed when Russia’s con¬ ment and ground attack by Russia traveled using Russian documents, duct of the unplanned, disastrous con¬ on Grozny, Chechnya’s capital, on but continued to declare their flict and dramatic incursions by New Year’s Eve 1994. The assault republic’s independence. Chechnya Chechen fighters into Russia proper ended several days later with the became a Shakespearean kingdom, quickly made Chechnya front-page destruction of an entire Russian a center for criminals and home news in the West. With the end of brigade by Chechen fighters, the to an active arms trade. If they fighting in August 1996, Chechnya first of a series of humiliating fail¬ had been left alone, the Chechens slipped out of the media and ures suffered by the Russians. might well have removed Dudayev. disappeared from public interest. Instead, in July 1994 Kremlin hard¬ Two-and-a-half years after the end Roots of the Calamity liners looking for a small, victorious of tlie fighting, however, Chechnya’s Gall and de Waal cover the history war to boost Yeltsin’s popularity, political status is still in question. of the area, including the role seized on hijackings perpetrated by Continued support for Chechen of Islam in Chechen society and Chechens against Russian citizens independence, high levels of violent Russian-Chechen relations from the outside Chechnya to launch an crime, unresolved disputes between early 18th to the mid-19th century. attack. otiier groups in the region and postwar They also devote a chapter to Stalin’s At a Russian Security Council divisions among the Chechens them¬ vicious 1944 deportation of half- meeting on November 29 Yeltsin selves keep the situation precarious. a-million Chechens and Ingush, insisted on — and got — a unani-

FEBRUARY 1999/FOREIGN SERVICE JOURNAL 45 BOOKS

mous vote in support of invading Chechnya since 1997. In particular, passage, girlfriends and camp follow¬ Chechnya. According to Gall and they conclude that it was almost ers of a military group lead by Ruslan de Waal, this was a calculated, certainly die military wing of the Labazanov, a convicted murderer ruthless decision by a politician who Chechen security service that arrest¬ with ties to Dudayev, teeter on high always made up his own mind. ed and executed American aid heels, trudging through the Chechen Andrei Kozerev, at the time Yelt¬ worker Fred Cuny and his Russian mud in a scene out of a Mad sin’s pro-Western foreign minister, colleagues in March 1995. In con¬ Max movie. Lieven wonders how favored the operation. Yevgeniy trast, Anatol Lieven’s treatment Chechen traditions, which cele¬ Primakov, head of Russia’s Foreign of this sensitive subject in Tombstone brate kindness, hospitality and reli¬ Intelligence Service who later suc¬ of Russian Power is more cautious. He gion, can accommodate such people. ceeded Kozerev as foreign minister notes tiiat Cuny is believed to have He concludes that tensions between and who is now Russia’s prime been killed near the small town of tiiese two worlds — one ruled by minister, opposed it. Deputy com¬ Ramut in the foothills of eastern honesty and the other by criminality mander of Russian ground forces Chechnya — in circumstances that — will play a role in defining Gen. Eduard Vorobyov refused the remain very obscure. Chechnya’s direction. command and resigned from die Lieven neatly captures current army. Other top generals who Lieven’s Cautious Approach Chechen president Aslan Maskhadov opposed the invasion were dis¬ Lieven’s more cautious approach and the younger and more contro¬ missed or sidelined. is not the only caveat to reading his versial senior member of his cabinet, book. Tombstone of Russian Power, Shamil Basayev. During the war Fortunes of War which covers both the Russian- Maskhadov remained the classic When Chechen military fortunes Chechen struggle and developments Soviet officer, while Basayev looked were at their lowest in mid-1995, a in post-Soviet Russia, is an ambitious “more and more the Mujahid,” grad¬ Chechen raid into soutiiern Russia and complicated work. While it is ually taking on the haggard look led to the first negotiation efforts. full of insight and analysis, it suffers of the wounded war commander, Renewed fighting followed several from a disjointed narrative and slip¬ his eyes sinking deeper into his cease-fires, until the Russians stop¬ shod editing. Lieven, who draws on head, his beard longer and bushier. ped the war before the 1996 presi¬ rich experience as a correspondent Lieven is scathing in his depiction dential elections. After Yeltsin’s for The Times in Afghanistan and of Dzhokar Dudayev, whom he victory at the polls, the Russians other post-Soviet hot spots, digress¬ blames for closing off opportunities resumed full-scale fighting. When es too much. Fortunately, he also for a negotiated settlement with a force of 1,300 Chechens retook includes fascinating first-hand expe¬ Russia. He is equally unsparing of the center of Grozny in August 1996, riences and demonstrates a com¬ Boris Yeltsin, whom he excoriates for Russian Gen. Alexander Lebed mand of scholarly literature about his “melancholy pattern of inconsis¬ quickly negotiated a cease-fire with Chechnya and Russia. tency, evasion of responsibility and Chechen commander Aslan Mask- Lieven’s portrait of the Chechen moral cowardice.” Gall and de Waal hadov. The Chechen counter-offen¬ people goes beyond one-dimension¬ at least give Yeltsin credit for his sive had broken die Russians’ will to al stereotypes. At times his charac¬ eventual turnabout on Chechnya. fight, and they withdrew at the end terization is rhapsodic, but he Lieven’s passion occasionally in¬ of the year. doesn’t ignore their dark side. They terferes with his analysis. A case in Calamity in the Caucasus ends can be terrifying, he reports, and point is his portrayal of Ruslan pessimistically, with the autiiors high¬ their arrogance, along with their Khasbulatov, the ethnic Chechen lighting Chechnya’s bleak prospects “deep and generally unconcealed” who, as speaker of tire Russian Duma, for resolving its tangled economic, contempt for their neighbors, have clashed with Yeltsin and wound up political and social problems, and been partly responsible for lack in jail. Lieven dismisses Khasbu- concluding that Chechnya is now less of support for their independence latov’s subsequent efforts to reinsert independent dian before the war. struggle. Lieven’s descriptions of himself into Chechen politics as Gall and de Waal also express Chechen crooks, gangsters and purely opportunistic, but Khasbu- concern over die spate of kidnap¬ assorted opportunists are entertain¬ latov’s motives in seeking a leader¬ pings of foreigners for ransom in ing, yet serious. In one memorable ship role in Chechnya were no more

46 FOREIGN SERVICE JO URN AL/FEBR VARY 1999 BOOKS

sordid than those of other, less criticism is leveled against the “new ative to sympadietic, particularly as a qualified individuals. Russian” bankers, businessmen and result of Russia’s latest economic woes. In contrast, Lieven is too kind corrupt officials who have taken to Zelimkhan Yanderbiyev, who advantage of the collapse of state Why Russia Failed succeeded Dudayev as president audiority to enrich themselves through There were multiple reasons for when the latter was killed by a the Russian privatization program. die Russian military failure in Che¬ Russian rocket. While Yanderbiyev Lieven, who was a visiting fellow at chnya. Chechens easily neutralized held meetings with Yeltsin that led the Institute of Peace in Washing¬ Russia’s greater firepower and more to a cease-fire within weeks of ton, D.C. from 1996 to 1997, also advanced technology with rocket- assuming the presidency, he later faults American military analysts of propelled grenades fired from build¬ pursued an inflammatory line Russia for deficiencies that lead to ings in Grozny and Chechnya’s toward Moscow. In addition, shortly distortions “with potentially serious mountains. Even when Russians before leaving office in February consequences for Western policy.” controlled Chechen towns, they were 1997, Yanderbiyev crudely expelled His sharpest criticism, however, is not really in charge because they Tim Guldimann, head of the Organi¬ reserved for negative Western schools never conquered the people, a zation for Security and Cooperation of diought about Russia. lesson the Russian military should in Europe’s Assistance Group to Lieven is guilty of the type of have learned in Afghanistan. The Chechnya. Another mark against over-simplification drat he charges Russians’ poor preparation and him is Iris role in die attempted coup odrers of committing. His assessment planning, anarchic decision-making last July by Islamic paramilitary of American analysis on Russia is out¬ and corruption at all levels demoral¬ groups against President Maskhadov. dated. Academic and popular attitudes ized Russian troops and destroyed Some of Lieven’s most sustained about Russia have shifted from neg¬ military discipline. This led to un-

FEBRUARY 1999/FOREIGN SERVICE JOURNAL 47 ROOK S

usually widespread looting, vandal¬ aid workers. In December 1996 six anti-kidnapping unit was assassi¬ ism and random violence by Russian Red Cross volunteers were executed nated. Although there are strong troops during the battle for Grozny in their beds. Chechens say Russians traditions against Chechens fighting from January to February 1995. who wanted to alienate foreign aid Chechens, Maskhadov has finally Lieven notes that in the areas organizations were responsible for stepped up the use of security forces they controlled, Russians harassed the killings. Some Russian observers to find suspected kidnappers and civilians, and maltreated and tortured say that Chechens interested in make arrests. prisoners, at times with no purpose. embarrassing the current Chechen He estimates that the Russians killed government committed the murders. Win the War, Lose the Peace several hundred young Chechen men A dozen Westerners were kidnap¬ Still, having won the war with who were picked up on the streets. ped in Chechnya, Ingushetia and Russia, Chechnya could lose the In contrast, Chechen fighters treated Dagestan in 1997, and another 10 — peace. No one will recognize their prisoners more humanely. including an American teacher in Chechnya’s independence without a Ultimately, despite being outnum¬ Dagestan — were grabbed in 1998. green light from Russia. So while bered 10 to one, the Chechens won Most have been released, typically Chechnya may be de facto indepen¬ because of their steadfast determi¬ upon payment of ransom. However, dent, it has still to reach a realistic nation to defend their land. four technicians from England and agreement with Moscow about its de Both Gall and de Waal and New Zealand who had been rebuild¬ jure political status. According to Lieven offer estimates of Chechen ing Chechnya’s telephone system provisions of the Lebed-Maskhadov war casualties — the majority of whom were abducted in October and exe¬ accords, it must do so by 2001. In were civilians — significantly lower cuted by beheading in December. addition, radical elements, overly than the most frequently cited figure In addition, in September a member impressed with Chechnya’s stunning of from 60,000 to 70,000. Gall and of the Russian diplomatic mission in war victory and their own power, de Waal report that about 27,000 Grozny was kidnapped and executed, may try to overthrow the government. civilians had been killed by the apparently to embarrass President The important oil pipeline, which time Russians completely occupied Maskhadov and exacerbate Russian- passes through the region, could Grozny in March 1995. Lieven Chechen relations. No one knows become an economic development estimates diat no more than 5,000 for sure who is responsible for this tool for Chechnya. First, however, civilians had been killed by the end wave of kidnappings. All foreign aid the Chechens must learn to be good of January 1995 and that no more organizations have removed their neighbors to and good negotiators than 20,000 had been killed by the staffs from these Caucasian areas with the Russians, who control the end of the war. and almost no foreigners remain pipeline outside the Chechen in Chechnya. Republic. Natural bonds with Post-War Prospects In addition, despite most Che¬ Russia, such as a common language, Lieven is more pessimistic than chens’ secular orientation, Islamic could help, if the Chechens will Gall and de Waal about the prospects fundamentalist groups are becoming tackle the task of building their for post-war stability in Chechnya. He increasingly politically active, often nation with the same determination believes that the Chechens’ egalitar¬ with violent results. As a result, with which they fought the war. It is ian spirit and unwillingness to submit President Maskhadov imposed a imperative that Chechnya work out to audiority compound their prob¬ state of emergency in June. In July, a relationship with Russia that gives lems, and he doubts that they will be Chechen government forces and it the autonomy it desires and that able to govern themselves effectively. armed rebels clashed in Gudermes, will help facilitate the aid it needs to Moreover, he is concerned that post¬ Chechnya’s second largest town, and recover from the devastation of the war kidnappings of Russian citizens there was an assassination attempt war. Only then will it flourish. ■ and Westerners, in addition to bomb¬ on Maskhadov. Subsequently, a ings by independent armed groups group of Chechen military field Benjamin Tua, a retired FSO, was and bandits, are gravely endangering commanders, including Shamil a member of the Organization for Chechen hopes for stability. Basayev and Salman Raduyev, Security and Cooperation in Europe’s Particularly disturbing is violence called for the Presidents resignation. Assistance Group to Chechnya in against and kidnapping of Western In October, the head of Chechnya’s 1997.

48 FOREIGN SERVICE ]OURNAL/FEBRUARY 1999 IN MEMORY

Richard B. Finn, 80, a retired an imperial decoration in 1987. A 1932 graduate of Princeton FSO, died Aug. 17 at Sibley Mem¬ Drawing on his experiences in Japan University, Mr. Kocher earned an orial Hospital in Washington, D.C., after World War II, he wrote MBA from Harvard Business School after suffering a stroke. Winners in Peace: MacArthur, in 1934. He worked for several Bom in Niagara, N.Y., in 1917, Yoshida and Postwar Japan, which government agencies in Washington Mr. Finn graduated with a law was published in 1992. during the New Deal era before degree from Harvard University in Survivors include his wife, Dallas leaving in 1939 to study playwriting 1942. He served in the U.S. Navy Rumsey Finn, of Bethesda, Md.; two at Yale University. He was drafted from 1942 to 1946. daughters, Allison Finn of Talla¬ into the Army at the start of World After joining the Foreign Service, hassee, Fla., and Vaughan Finn of War II as a private and rose to the Mr. Finn was posted to Tokyo in Hartford, Conn.; and four grandsons. rank of major. From 1945 to 1946 1947. Other overseas posts included he was director of three displaced Yokohama, Tokyo again, Paris and persons camps in Austria run by the Manila where he was deputy chief Michael Joseph Gould, 70, a United Nations Relief and Rehabili¬ of mission. In the department, he retired FSO, died Nov. 28 at his tation Administration and his efforts held several positions, including home in Whispering Pines, N.C. helped reunite families separated Foreign Service inspector and Japan Before entering government during the war. country desk officer. He partici¬ service, Mr. Gould worked in Mr. Kocher joined the Foreign pated in negotiations in the ’70s for advertising with General Electric, Service and served as labor attache returning Okinawa to Japan. Harris T. McKinney and Fortune in Belgium, consul general in Mr. Finn was instrumental in the Magazine. In 1969 he was appoint¬ Malaysia and Singapore, deputy early ‘70s in changing AFSA from ed country director of the Peace chief of mission in Jordan and a purely professional association Corps in Liberia where he served director of South East Asian Affairs to one that also acted as a union until 1973. He joined the U.S. at the State Department. He retired engaging in labor management Information Agency in 1976 and was after serving as diplomat-in-residence negotiations. He was chair of the posted abroad to Ethiopia, Turkey, at die University of Texas at Austin. legal committee and participated Tanzania and New Zealand. After He then spent nine years as asso¬ in the representation elections in retirement in 1993, he was a ciate dean of Columbia University’s the foreign affairs agencies which member of the Foreign Service School of International Affairs. His established AFSA as the exclusive Grievance Board for two years. published works include: Foreign representative of the employees of Survivors include his wife, Jenny Intrigue: the Making and Unmaking State, USAID and USIA. Walton Gould, of Whispering Pines; of a Foreign Service Officer and Upon retirement from the a daughter; two sons; two grandsons; International Jobs — Where They Foreign Service in 1979, Mr. Finn and a sister. Are, How to Find Them. His 1957 was an adjunct professor at award for best original play from the American University. He also served American Theater Wing was a source as the administrative director of Eric Kocher, 86, a retired FSO, of pride and led to his establishing an Harvard’s U.S.-Japan Program. The died of heart failure Jan. 2 at his annual prize at die Eugene O’Neill Japanese government awarded him home in Long Island, N.Y. Theater Center in Connecticut for

FEBRUARY 1999/FOREIGN SERVICE JOURNAL 49 IN ME M O R Y

the most original play. After retirement in 1980, Mr. Donald “Mike” Robinson, 91, Survivors include his wife, Margaret Kryza served as executive vice- a retired FSO, died at his home in Helbum Kocher; four children, Eric president of the American Foreign Hanover, Vt., in Februaiy 1998. Glenn, Terry, Christopher, and Debra; Service Protective Association until Mr. Robinson was bom in 1906 in seven grandchildren; and a sister, 1986. He later became the man¬ Brooklyn, N.Y., and attended Prince¬ Mildred Kocher Crowley of Illinois. ager for international development ton University. After graduation in with Blue Cross/Blue Shield of 1930, he joined the Foreign Service Northern Virginia. and served overseas assignments in He is survived by his wife, Alice Canada, the Far East, the West E. Gregory Kryza, 76, a retired Larue Henry Kryza, of Falls Church; Indies and Europe. During World FSO, died of a cerebral hemorrhage two sons, Frank T. Kryza II, of Dallas, War II, he was the first program Nov. 22 in Arlington Hospital in Tex. and Christopher D. Kryza, of director for Armed Services Network. Arlington, Va. Burke, Va.; two grandchildren; and In addition to his Foreign Service Mr. Kryza was bom in 1922 in five sisters. career, Mr. Robinson was also a play¬ Detroit, Mich., where he graduated wright, short story writer and novelist. from Sacred Heart Seminary in 1939. Survivors include his wife, During World War II, he enlisted in Margaret Hohmann Robinson, of the U.S. Naval Air Corps and was Walter L. Rice, 95, a former Hanover; three daughters, Kirby sent to Oberlin College and the ambassador to Australia, died on Robinson, of Bethesda, Md., Leslie University of Virginia. Upon gradu¬ Dec. 14 in Richmond, Va. Robinson, of Portsmouth, N.H., and ation, he was commissioned as an Born in 1903 in Minneapolis. Kim Robinson, of Whidbey Island, officer aboard the USS Shenandoah. Mr. Rice graduated from the Wash.; a son, Patrick Robinson, of After the war, he served in the Naval University of Minnesota. After Boston; and seven grandchildren. attaches office in Tangier and Santo receiving his law degree from Domingo and returned to active Harvard in 1928, he worked as a duty briefly during the Korean War. prosecutor in the U.S. District Court In 1952 Mr. Kryza joined the of New York. He subsequently Margaret Whiting Swank, 75, Foreign Service and was sent as a became an assistant to the U.S. wife of retired FSO Emory C. Swank, vice consul to Willemstad, Curayao. attorney general in Washington, died of pancreatic cancer on Nov. 15 Subsequent overseas posts included D.C. where he worked on several in Kendal at Oberlin, a retirement Brussels, Belgrade, Nairobi (both at landmark anti-trust cases and helped community in Oberlin, Ohio. the consulate general and the new draft the Federal Anti-Racketeering Mrs. Swank graduated from embassy after independence in Act of 1934 for Congress. In 1941 Macalester College and joined the 1963), Kinshasa, and Rio de Janeiro Mr. Rice joined Reynolds Metal Co. Foreign Service in 1947. She met (where he helped move to the new as general counsel. He later served her husband in Shanghai and they embassy in Brasilia). In the States, as vice president, director, and were married in Tsingtao, China he worked in a series of assignments president of Reynolds Mining Corp. in 1949 just before Chinas port in the Bureau of Near Eastern and President Nixon appointed Mr. cities fell to the communists. She South Asian Affairs in Washington, Rice as ambassador to Australia in accompanied her husband to attended the U.S. Air Force War 1969 where he served until 1973. assignments in Jakarta, Moscow, College in Montgomery, Ala., served Survivors include his wife, Inger, Bucharest, Vientiane, and Phnom as a Foreign Service inspector, and of Richmond; a daughter, Lisa Penh (where he served as ambas¬ in 1974 was appointed executive Kellner, of Woodmere, N.Y.; two sador from 1970 to 1973). After her director of the Bureau of African sons, John, of Glenwood Springs, husbands retirement, they moved to Affairs. From 1977 to 1980 he was Colo., and Don, of Huntington Cleveland. ambassador to Mauritania during a Beach, Calif.; and six grandchildren. She is survived by her husband, time of brutal regional conflicts which Emory C. Swank, of Oberlin, Ohio; saw five violent coups in Nouakchott. a brother; and a sister. ■

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FEBRUARY 1999/FOREIGN SERVICE JOURNAL 55 POSTCARD FROM ARROAD Last Tango in Argentina

BY WESLEY ANN GODARD

Before my husband and I were that women aspiring to become assigned to Buenos Aires, The couple professional dancers came here most of my knowledge of the to learn the tango from the old tango had been confined to glimpses glided across masters. Attire ranged from jeans in movies like Scent of a Woman. and t-shirts to flowing chiffon dress¬ In B.A., I learned that the tango is the floor each es and dapper suits. much more than a dance. dancer intent One tiny, older gentleman with Bom in seedy, immigrant dock- a large melon-shaped, bald head side neighborhoods at the turn of on the music wearing a suit slightly too big for him, the century, the tango grew from had trouble finding a partner. the pathos of leaving one’s native and perhaps I heard a woman sigh and agree land for life in an unknown country. reluctantly to dance with him. “Only Its lyrics tell of unrequited love, some faded once,” she warned. He also asked poverty, betrayal and longing; dream. each woman at our table to dance, its steps are a complex, tantalizing even though we were obviously ballet portraying a relationship escorted. We, too, turned him down, from resistance to seduction, then classic tango singer, who though giggling like silly school girls. After unhappiness. Even the traditional not slim and debonair as in his early we had rebuffed a second man, instmment of the tango, the bando- photos, still crooned classic songs I realized that we were probably neon, a hand accordion invented and played the bandoneon. After the breaking tango etiquette. Why would in Europe to copy organs in poor lights came up, I noticed the dingi¬ we be there, if not to dance? parishes, is an immigrant instrument. ness of the place and imagined those Protocol was as formal as for Any number of barn-like dinner first dockside tango joints, where a cotillion ball. A gentleman theaters in B.A. offer cabaret-style owners of almacenes, small stores, approached a lady by bowing slightly tango performances, but we were not had added a few tables so their home¬ and requesting the next dance with interested in tourist attractions. Our sick male patrons — there were few a word or an arched brow. The first tango evening was at the immigrant women — could sing their woman nodded assent, then was led invitation of Cacho, a first generation sad songs and dance the tango. onto the floor. The couple assumed Italian-Argentine and ardent tango Older friends told us that tango a cheek to cheek embrace and glided aficionado. After dinner at 10 p.m. parlors were once common, but that across the floor, each intent on the in an old neighborhood, we strolled tango is not the preferred dance of music and perhaps some faded past houses no longer in their prime, younger Argentines. Cacho intro¬ dream. When the music ended, the but still splendid with ornate duced us to one of the few remaining man escorted the woman back to her wrought iron, to Homeros, a small, tango emporiums, which was like seat, they exchanged thank yous, and smoke-filled bar. Customers had stepping into a large 1940s ball¬ he retreated to his own table. With come to listen to Ruben Juarez, a room. The dance floor in the middle the next dance, the ritual started was encircled by rows of chairs again with a different partner. There Wesley Ann Godard was assigned behind tiny tables. There were was little flirting, little pairing off. with her FSO husband to Buenos several couples and a smattering What was important was the dance. Aires from 1993 to 1997. The stamp of young people, but most of the When we left that night, I knew is courtesy of the AAFSW Book middle-class, middle-aged patrons I had found the tango I had Fair “Stamp Comer. ” were single. Cacho explained been seeking. ■

56 FORE 1C X SERVICE ] O U RN AL/F E B RU ARY 1999 Rampaging monsters; War, expropriation, nuclear reaction;

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In some cases, breakage of fragile articles.

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There is no surcharge for hazardous posts. (In fact, for the Personal

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1974: 75<£ per $100 of coverage.)

Come to think of it, rampaging For more information and an application, return this form via mail or fax, or call our AFSA desk directly for immediate answers to your questions. monsters aren’t specifically excluded, AFSA DESK • THE HIRSHORN COMPANY 14 EAST HIGHLAND AVENUE • PHILADELPHIA, PA 19118 PHONE: 2i5.242.82OO // 800.242.822i // D.C. AREA: 202.457.O25O • FAX: 215.247.6366 so we’d probably cover any damage caused by one of them, as well. The AFSA Personal Insurance Plan Privilege: a right, advantage, favor, or immunity specially granted to one.

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