Public Relations Executive YOU MOST LIKELY KNOW. . .

about our Foreign Service Benefit (Health Insurance) Plan. Indeed most Foreign Service Personnel are enrolled in it because they recognize that

—It is the only Federal Employee Health Benefit Plan designed specifically to meet the needs of the Foreign Service and that

—By limiting enrollment to the Foreign Service community which is made up of well informed, health conscious people who have frequent medical examinations, the Plan affords better protection at lower cost.

BUT DO YOU ALSO KNOW. . .

that we offer excellent Group Life Insurance and Accidental Death and Dismemberment (AD&D) Insurance at rates that in most instances are lower than FEGLI. For example, you and/or your spouse can have $200,000 WORTH OF TERM LIFE INSURANCE FOR:

$ 136.00 a year at age 21 $ 140.00 a year at age 24 $ 160.00 a year at age 29 $220.00 a year at age 39

Women get an added bonus. We subtract 3 years from their age to determine their premium.

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Write to us (or phone) for more details and application forms.

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Phone If you are using this form to place an order, please attach the information you wish engraved. Please type or print clearly. Thank you! CONTENTS

Spouse Employment: Overview 21 A Spouse-Less Service 22 Nancy J. Piet-Pelon The problems working spouses face must be addressed soon, or the Service will no longer be a family affair. Associates of the Service 24 These working spouses of Foreign Service employees Susan Low are (clockwise from left) public relations executive Patricia Q. Barkis, attorney Barbara Finamore, A new proposal would place working spouses in support congressional press aide Ben Zuhl, educator Mattie or community jobs—and pay them for their efforts. Sims, and nutritionist Sushtna Palmer. For an overview of our three articles on the problems of Spouses in Other Services 27 finding employment for working spouses and com¬ pensating those who do community or embassy- support tasks, turn to page 21. Pig in a Poke 28 Barton J. Bernstein Why did Kennedy buy the Bay of Pigs invasion plan when his advisers had serious doubts about its success? Thinning the Soup 34 Ronald I. Spiers The Foreign Service has too few resources, too many senior officers, and too little internal communication. Journal: Fame and the Foreign Service 38 Fred Godsey Fame and diplomacy don’t necessarily mix, but this vice consul tries to make his name well-known. Association Views ... 3 Clippings 18 Editor: STEPHEN R. DUJACK Letters 10-25-30 Associate Editor: FRANCES G. BUR WELL 5 19 Editorial Assistant: NANCY L. BARTELS Books: Essay .... 10 Questionnaire 20 Books: Reviews .... 13 People 42 Editorial Board Diplomacy ....16 Association News 45

Chair: CAROLINE MEIRS OSTERLING Vice Chairman: W. HAVEN NORTH Members: GILBERT DONAHUE STEPHEN E. EISENBRAUN “The Independent Voice of the Foreign Service”

GEORGE GEDDA The FOREIGN SERVICE JOURNAL is the magazine for and at additional post office. POSTMASTER: Send ad¬

TERESA CHIN JONES professionals in foreign affairs, published monthly dress changes to FOREIGN SERVICE JOURNAL, 2101 E

TAIRA ST. JOHN except August by the American Foreign Service As¬ Street NW, Washington, D.C. 20037. sociation, a private non-profit organization. Material Microfilm copies: University Microfilm Library LANGE SCHF.RMERHORN appearing herein represents the opinions of the writ¬ Services, Ann Arbor, Michigan 48106 (October A. STEPHEN TELKINS ers and does not necessarily represent the official 1967 to present). views of the foreign affairs agencies, the U.S. govern¬ The JOURNAL welcomes manuscripts of 1500- Advertising Representatives ment, or AFSA. The Editorial Board is responsible 4000 words for consideration by the Editorial Board. for general content, but statements concerning the Author queries are strongly urged, stamped envelope JAMES C. SASMOR ASSOCIATES policy and administration of AFSA as employee rep¬ required for return. All authors are paid on publica- 521 Fifth Ave., Suite 1700 resentative under the Foreign Service Act of 1980 in New York, N.Y. 10017. the ASSCX.IATION NEWS and the ASSOCIATION VIEWS, (212) 683-3421 and all communications relating to these, are the © American Foreign Service Association, 1985. responsibility of the AFSA Governing Board. 2101 E Street NW, Washington, D.C. 20037. JOSHUA B. POWERS, LTD. JOURNAL subscriptions: One year (11 issues), $15. Phone (202) 338-4045. 46 Keyes House, Dolphin Square, Overseas subscriptions (except Canada), add $3 per London SW1. 01-834-8023/9. year. March 1985. Volume 62, number 3. ISSN International Representatives Second-class postage paid at Washington, D.C., 0015-7279.

2 FOREIGN SERVICE JOURNAL

ASSOCIATION VIEWS aF5a

AMERICAN FOREIGN Isolating Iran SERVICE ASSOCIATION Governing Board

President: DENNIS K. HAYS -Lt is now clear that Iran does not intend to extra¬ Vice President: ANTHEA S. DE ROUVILI.E Second Vice President: CHARLOTTE CROMER dite or meaningfully punish the men who mur¬ Secretary: IRVING A. WILLIAMSON Treasurer: WARREN GARDNER dered our two colleagues in the Kuwaiti Airlines AID Representatives: WILLIAM ACKERMAN

ROY A. HARRELL

hijacking of last December. It is therefore time to State Representatives: JAMES A. DERRICK press for immediate and vigorous action to bring THOMAS J. MILLER JAMES SPAIN Iran to account. JAMES WILLIAMSON USIA Representative: RICHARD ARNDT In recent weeks, several leading newspapers, Retired Representatives: WILLIAM CALDERHEAD ROGER PROVENCHER including and the Washington JOHN THOMAS Post, have joined AFSA in calling for the cessation Staff Executive Director: LYNNE IGLITZIN of all flights to and from Iran until such time as the General Counsel: SUSAN Z. HOLIK Members' Interest & Iranian government fully complies with interna¬ Grievance Counselor: SABINE SISK tional agreements on hijacking. Nothing less will Members' Interest & Grievance Representative: BARBARA WILSON convince that regime that there is a price to pay for Comptroller: ALICIA BREHM Membership Coordinator: LEE MIDTHUN supporting terrorism. Admin. Assistant: WANDA DYKHUIS Legal Assistant: GREGORY A. LEWIS This will require the United States to insist Law Clerk: FRANCINE MCNULTY Executive Secretary: DEMETRA PAPASTRAT upon full compliance with the terms of the Bonn Secretary: SUPAJEE LAPCHAROEN

Declaration of 1978. Of the seven signatories of Congressional Liaison that Declaration, five—the United Kingdom, ROBERT M. BEERS Scholarship Programs

Germany, France, Italy and Japan—permit Iran DAWN CUTHELL Air flights to land within their borders or have flag Face-to-Face Program RONALD A. DWIGHT carriers which service Teheran on a scheduled ba¬ The American Foreign Service Association, founded in 1924, is the professional association of the Foreign sis. This is an outrage. Business as usual leads to Service and the official employee representative of all Foreign Service employees in the Department of State terrorism as usual. and the Agency for International Development under the terms of the Foreign Service Act of 1980. Active AFSA has written directly to the airlines in¬ membership in AFSA is open to all current or retired professionals in foreign affairs overseas or in the Unit¬ ed States. Associate membership is open to persons volved and asked that they cease all service to Iran. having an active interest in or close association with foreign affairs who are not employees or retirees of the If this does not bring results, we are prepared to foreign affairs agencies. Annual dues: Active Mem¬ bers—$52-117; Retired Active Members—$40 for work with other groups concerned about terrorism members with incomes over $20,000, $25 for under; Associate Members—$35. All dues include $7.50 al¬ to develop strategies to bring pressure to bear on location for JOURNAL and ASSOCIATION NEWS sub¬ scription under AFSA Bylaws. All AFSA members are the airlines. We are not willing to let this matter members of the Foreign Service Club, owned and op¬ fade from the public’s eye. erated by AFSA. AMERICAN FOREIGN SERVICE ASSOCIATION DENNIS K. HAYS 2101 E Street NW, Washington, D.C. 20037 Membership inquiries, comptroller, President scholarship programs, insurance programs. JOURNAL offices; (202) 338-4045

Governing Board, general counsel, labor-management relations: (202) 632-8160 members’ interests, grievances: (202) 632-2548 Foreign Service Club; (202) 338-5730

MARCH 1985 3 Wforld leader/ World beater.

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Episodic Protection OPTIONS Every American remembers the awful mo¬ ments when a gang of Iranian "students” If you’re looking 3TC 2IS Bachelor’s or invaded the U.S. embassy in Teheran in for a profes- j • Master’s 1979. For 444 days, these agents of hate sional environ- diverse as degree or a held the United States hostage by incarcer¬ ment that • . . PhD, be a ating 52 of our overseas representatives. will expand U.S. citizen This occupation encouraged other willful your interests acts against U.S. diplomats and represen¬ your options, (both self tatives throughout the world. Americans not limit them, you and spouse), and suc- overseas live a much more perilous life be¬ should consider a career cessfully meet our strict cause of those who seek revenge or wish to with the Central Intelli¬ medical and security make some point against the United States gence Agency. requirements. by wantonly brutalizing government rep¬ We seek enthusiastic resentatives. The CIA offers highly Our best protection in such cases is the liberal arts majors who competitive compensa¬ fabric of international custom, law, and are interested in interna¬ tion, liberal benefits, and agreement which traditionally has en¬ tional affairs as well as the consistent chal¬ forced the extraterritorial nature of U.S. the interplay of politics, official offices overseas and enjoins the lenges inherent in a history and economics in United States scrupulously to protect for¬ diverse environment. In eign missions, legations, and offices on the affairs of mankind and addition, our location just U.S. territory. In our decentralized sys¬ nations . .. individuals outside the Washington, tem, we generally invest the enforcement who will make the most D.C. area provides you of these laws in state and local government of their talents in a wide officials. Most often, these public servants with an abundance of understand the centrality and reciprocal variety of challenging CIA positions. leisure-time options nature of international customs and cov¬ such as cultural events, enants and are careful to enforce them with An entire spectrum of fairness and dispatch. They realize that the athletic bouts, and his¬ cost of slack or selective enforcement is opportunities is yours to toric attractions. likely to be acts of retribution, sooner or explore . . . opportuni¬ later, in countries where bilateral relations ties as diverse as your To explore your options are most tense. own interests, as exciting with the CIA, send your But recently, Inez Reid, corporation as your curiosity. And all resume to: counsel in the District of Columbia, re¬ our career options come fused enforcement of the law prohibiting Recruitment Activity demonstrations within 500 feet of a for¬ with the intellectual stim¬ ulation and excellent Officer (E08) eign mission. In doing so, Ms. Reid re¬ Dept. S, Rm. 4N20 versed the position she had taken as recent¬ growth potential you ly as 1984, when she is quoted as having need for a rewarding P.O. Box 1925 said, “If the United States is prevented professional life. Washington, D.C. from discharging this obligation, our for¬ 20013 eign relations will deteriorate.” Ms. Reid’s To qualify for a position was that foreign missions must be CIA career, you sacrosanct because of the perception by for¬ must have a eign countries of demonstrations in an open country such as the United States and because the “seamless garment” protecting foreign representatives could unravel with anything less than rigorous, non-prejudi¬ Central Intelligence Agency cial enforcement. The CIA is an Equal Opportunity Employer The only apparent difference between

MARCH 1985 5 Ms. Reid’s position as expressed in 1984 and her new position and comments is the identity of the country targeted for pro¬ test. Ms. Reid felt justified then in up¬ holding international law and custom for the protection of the embassy of the What do U.S.S.R., but has evidently reversed her position in the matter of protecting the embassy of the Republic of South Africa. Ms. Reid’s views regarding the South African embassy protests are resoundingly ike, JFK clear. She is quoted as saying, “.. .it would be untenable for the office of corporation counsel to prosecute these five individuals who demonstrated peaceably to call atten¬ tion to the gross injustices which result & Nixon from the South African policy of apart¬ heid.” We could readily get into a discussion of the relative repressions extant in the Soviet Union and South Africa. But this is not have in _ the issue at all. The issue is whether the United States, indeed the District of Co¬ lumbia’s officials, will impartially enforce international law and custom which has common? the result of protecting U.S. personnel and property throughout the world. At a minimum, Ms. Reid should per¬ haps publish a list of countries where em¬ They were moved by bassy security will be strictly enforced and a second list of countries where, her values being offended, episodic protection will be practiced. It is indeed fortunate that Ms. FIDELITY STORAGE Reid does not have to face these challenges every day. We must lament this bizarre behavior, outside of the Beltway, with From presidents to which imperils U.S. personnel and all oth¬ plenipotentiaries, super-secure vault storage for er foreign representatives, and hope our Washingtonians choose Fidelity your silver and other valuables. local officials act in an appropriate manner Storage, the company with We are the only State to assure that we are not once again faced more than 75 years of Department contractor with with foreign governments making the case experience. Fidelity is one of both a quality control program that Iranian hostage-taking, for example, the area’s largest moving and and fulltime inspector to is not inconsistent with selective enforce¬ storage companies, with six ensure the highest standards. ment of protection of international person¬ locations throughout the metro nel within U.S. borders. area—from the District to We have moved Patton, HENRY J. HYDE Virginia to Maryland. MacArthur and Doolittle. U.S. Representative (R. -Illinois) Fidelity’s warehouses are the From generals to general Washington, D.C. largest and most advanced service olFicers, join a moving containerized facilities inside or crowd. Pondering the Pyramid

It was somewhat dispiriting to find—once again—articles on the subject of “shape of the pyramid” in the December edition of the JOURNAL. The debate is artificial, as Gerald Lamberty clearly points out. Per¬ haps we could end the fruitless argument over the appropriate number of senior offi¬ cers by using a more appropriate analogy to the Foreign Service than the Army or the Ford Motor Company. I suggest that a Inbound or Outbound, Storage or Air Freight, call Fidelity Storage better organizational comparison would be (703) 971-5300 • PO Box 10257, Alexandria, Va. 22310 law firms where the ratio of “senior offi¬ cers” to junior staff is surely as large as in

6 FOREIGN SERVICE JOURNAL the Foreign Service, and for the same rea¬ son. In both cases, the organization’s fun¬ damental activities concern substantive and Finding .... conceptual questions, not resource man¬ the agement. We have become bemused, if not brow¬ RIGHT HOME beaten, by critics using irrelevant criteria at the and even more irrelevant management RIGHT PRICE concepts. We may well have too many sen¬ in the ior officers, but that judgment should be based on what the Foreign Service should RIGHT PLACE be doing as an organization, not by refer¬ and obtaining the ence to others tilling different fields. RIGHT FINANCING EDWARD J. RANKIN FSO - RETIRED EDWARD MARKS Foreign Service Officer Washington, D.C. is what the real estate business is all about. Korean Contrast Charles S. Whitehouse’s article [”Of My associates and I will provide the personal, professional Hearts and Minds,” October] seems to suggest that the Foreign Service role in service you need in purchasing or selling your home in the Korea during the war was, as in World Washington, D.C. metropolitan area. War II, “the maintaining of diplomatic contact.. .and representing U.S. interests and reporting developments." A few of us who were in Korea in 195 1 SHANNON & LUCHS might feel that Mr. Whitehouse’s general¬ THE FULL SERVICE REALTORS® ization deserves at least a footnote. If Shannon & Luchs has its own Mortage Company, Closing and memory serves, there were six U.S. For¬ eign Service officers (all USIS) living and Escrow Division, and Property Management Offices. working outside Pusan at that time, in contrast with 25 FSOs in the III Corps area “Nice People To Do Business With" in Vietnam in 1969. Since there were probably no diplomats in their areas, those SHANNON• LUCH! USIS center directors probably did not feel 1 REALTORS* • Established 1906 that their role was “the maintaining of dip¬ lomatic contact.” There were guerrillas in all the USIS center areas in Korea in 1951. There was no simple answer as to their hearts and Please send information on purchasing a home in: minds, but we thought their hard core was Virginia Maryland D.C. composed of North Korean troops who did □ □ □ not get out during the North Korean re¬ Please send information on: selling my home □ treat. In time, there was enough trouble in renting my home □ the province to draw in something like three Republic of Korea divisions. Name Mr. Whitehouse’s article also gives the impression that the six Foreign Service of¬ Address ficers in the field in Korea may have been City isolated from the Pusan embassy (both State Zip mentally and physically) more than the Phone FSOs in the pacification effort in Vietnam Present Post were isolated from the Saigon embassy. Arriving Washington This may have been true, since I don’t (approx, date) remember visiting Pusan during my first six months in Chonju and I only saw two embassy officials in Chonju. In addition, I SHANNON & LUCHS don’t recall meeting anyone in Pusan, 313 W. Maple Avenue when I came in from Chonju, who had had Vienna, VA 22180 any field experience. Vietnam seems to Attn: Ed Rankin have been different, as Mr. Whitehouse mentions. Bus. (703) 938-6070 Res. (703) 938-4787 Another difference relates to the great

MARCH 1985 7 amount of training the pacification people his reluctance to begin an evacuation, in¬ many of these Vietnamese as he could find in Vietnam seem to have had before they cluding that of Vietnamese nationals. from their designated safe houses to a worked there. I would not want to say that In fact, there was a disguised evacuation barge on the Saigon River. He did not the six USIS center directors in Korea in of nationals going on for several weeks be¬ return until late on the afternoon of April 1951 had no training but, to put it mild¬ fore the final fall of Saigon. Although it 29, after the evacuation had been under¬ ly, they had comparatively little. The cen¬ was supposedly an airlift only for close way for many hours. AID Officer Joe Get- ter directors gave themselves most of their U.S. dependents, many Vietnamese were tier was on that barge and did not evacuate training on the spur of the moment and on able to use this escape route. As we all by air at all. He received the State Depart¬ the job. In contrast to Washington, the knew, the minute a formal U.S. evacua¬ ment’s Medal of Valor for riding shotgun officers in Korea knew the facts, and I was tion was declared, the entire structure of down the Saigon River to the South China lucky to work with them. the society would collapse and there would Sea. Consul General Terry McNamara, his no longer be the possibility of an orderly deputy, Hank Cushing, and the officers of ROBERT G. FLERSHEM evacuation. The one that took place was the consulate general in Can Tho rejected Foreign Service Officer, retired messy, haphazard, and the luck of the evacuation by air and rode two river boats Kanazawa City, Japan draw. What evacuation isn’t? Literally down the Bassac and Mekong Rivers to the tens of thousands of Vietnamese owe their South China Sea with Vietnamese employ¬ Saigon Evacuation freedom today to Martin's dilatory tactics. ees of the consulate general and other close Many Foreign Service officers distin¬ contacts. These are only a few examples. In his book essay, “Vietnam Redux” [No¬ guished themselves in these last days. We were swamped with messages from vember], Robert Hathaway quotes with Consul General A1 Francis and members of Foreign Service officers all over the world approval Stuart Herrington’s book, Peace his staff risked their lives repeatedly by with special concerns for Vietnamese with Honor, to the effect that the evacua¬ insisting on evacuating Vietnamese em¬ friends. Some, like Lionel Rosenblatt and tion of U.S. personnel and several thou¬ ployees and others with a special relation¬ Craig Johnstone, left safe departmental as¬ sand of their Vietnamese employees took ship to the U.S. government, from Da signments to fly back at their own expense place in the face of foot-dragging resis¬ Nang by barge, in the face of a situation of to attempt to help “their Vietnamese.” tance even from the U.S. embassy, and total panic in the city. During the final It was a very painful time for all of us suggests that the U.S. military was almost days of Saigon, many of my colleagues who had to leave friends behind. But the alone in its concern for the evacuation of worked night and day to effect the evacua¬ department and the Service need have no the Vietnamese. In other critiques of the tion of Vietnamese, especially family doubt about the depth of the concern of evacuation of Saigon, Ambassador Graham members of Americans. their colleagues on the spot for our Viet¬ Martin has also been severely criticized for Political Officer Lacy Wright ferried as namese friends nor the fact that the embas- World-wide BUY Prescription SELL Serv ce Bring or mail a prescription from your Elegant INVEST doctor or a State Department order to this store for delivery any place in the social engagements. USA or overseas. Beautiful weddings. • Orders are filled immediately and Successful career moves. Ed Joyce mailed the same day. Retired FSIO • Pay Peoples low prices plus postage Prestigious honors. and packing after receipt. The best ones LICENSED IN D.C. • Your doctor stateside can order a have begun with Brewood. and VIRGINIA refill by phone. There is attention to detail • Complete line of National Brand and Peoples Brand health and beauty in each invitation, business aids, sundries, and cosmetics is also announcement and available. special certificate. AMOUNT 79 years of reliable service to the Discuss your specific needs WERiyON diplomatic community. with our experienced *7 m ) consultants. CREALTY A PEOPLESDRUG V-|MC- " 6257 Old Dominion Dr. *rWcvC«KO>l> McLean, Va. 22101 Fine Engraving and Printing since 1892 Off: 821-8300 2125 E Street, N.W. 1147 Twentieth Street, N.W. Res: 821-2109 Washington, D.C. 20007 Washington, D.C. (202) 223-2300 (202) 338-6337

8 FOREIGN SERVICE JOURNAL sy did the best it could in a tragic situa¬ the attitudes of my male colleagues— cember] complains bitterly that he dis¬ tion. problems of the type described by Bird. pensed information to a man he thought From my experience serving abroad, I was a student researcher and who turned SHEP LOWMAN support Bird’s view that female officers out to be a journalist. Charge d’Affairs frequently have an advantage over men in Does the modern-day press officer hand Tegucigalpa, Honduras precisely the kind of society where many out a certain stack of information releases American men believe the opposite to be to students and another stack to journal¬ Outdated Attitudes the case. Women have access to the half of ists? In my day, we handed out informa¬ the society off limits to male officers and tion to all comers—the same information— Reading Jarine Bird’s “Seeing Beyond the thus have an opportunity to gain insights the truth, or as close as we could come to it. Veil" (January], in which she criticizes and knowledge denied to their male col¬ male Foreign Service officers for their con¬ leagues. The persistence of outdated and RICHARD P. WILSON tinuing belief that female officers cannot erroneous attitudes in the Foreign Service Foreign Service Officer, retired operate effectively in societies like Saudi toward its female officers not only contin¬ Mobile, Alabama Arabia, makes me wonder whether there ues to enshrine discrimination in the Ser¬ have been significant changes in the For¬ vice and curtail or destroy women’s ca¬ Correction eign Service in the last quarter-century. reers, but also continues to deny to the In I960, when I changed from the Civil U.S. government valuable sources of infor¬ I appreciate the JOURNAL’S presentation of to the Foreign Service, I recall that one of mation which, given our difficulties in un¬ my article on “The Personnel Pear” [De¬ the questions asked by a member of my derstanding the more esoteric cultures of cember]. Unfortunately, the editing proc¬ panel was whether I thought that I would the world, we can ill afford. ess, which was generally helpful and to the have any difficulties serving in Latin point, left a significant error at the top of America, my area of specialization, given DOROTHY DILLON the second column. The first sentence Latin attitudes toward women. I answered Foreign Service Officer, retired there should read, "The first is to offer that I had never encountered any problems Washington, D.C. retirement after 20 years at half-pay (in¬ of that kind when I lived or traveled in stead of 40 percent)”—not 20 percent as Latin America as a university professor, Times Are Changin’ appeared in the JOURNAL. and hence did not expect that I would as an official representative of the United States. How times have changed since I was an RUSSELL O. PRICKETT I added that the only problems that I ex¬ information officer! Manila Information Economic Counselor pected I might encounter would stem from Officer Allan B. Croghan [LETTERS, De¬ Belgrade, Yugoslavia FOREIGN SERVICE PERSONNEL WORLDWIDE PERSONAL PROPERTY INSURANCE FLOATER

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MARCH 1985 9 Kennedy’s description of him as one of the THE ONLY PUBLICATIONS OF THEIR KINDI few in the State Department “who could COMPREHENSIVE! UP-TO-DATEI get things done.” Clearly, he believes in CRITICALLY-ACCLAIMED) action, and judged himself and others by THE WORLD OF INFORMATION From Tho World Almanac® — what they actually accomplished. While Four specialized business and financial backstopping the Korean armistice negoti¬ guides to 150 countries: BOOKS ations, for example, he discovered that 1. Middle East 2. Asia & the Pacific 3. Africa 4. Latin America & the sending instructions to someone in the Caribbean field via telegram “stood a much greater Each volume provides authoritative, chance of influencing the decisions of my easy-to-use information on banking and finance, current affairs, government, superiors than the most beautifully crafted construction and development, industry, and thoughtfully reasoned think-piece trade and commerce, travel and tourism The Limits of Diplomacy — at your fingertips! Designed to alert memo.” In another instance, Johnson re¬ you to business opportunities and criti¬ calls that when setting up the consulate in cal needs. At bookstores or use the By RICHARD B. FINN coupon below today! Yokohama right after the war, “the de¬ Mail This No-Risk Coupon Nowl The Right Hand of Power: The Memoirs partment gave me a green light to develop of an American Diplomat. By U. Alexis John¬ whatever criteria and procedures I thought WORLD ALMANAC PUBLICATIONS Dept. WOI. P.O. Box 984 son withJef McAllister. Prentice Hall. 1984- best, which is the way I like to work.” It is Cincinnati, OH 45201 an experience very few consular officers Please send: $24.95. ( ) sets of The World of Information (4 vols) have enjoyed. Johnson adds that “the key at $100.00, postage paid. OR U. (for Ural—his mother liked unusual to running a good consulate...lay in in¬ Circle the « of the volumes you wish: 1. Middle East 2. Asia & the Pacific names) Alexis Johnson began a diplomatic stinctively wanting to say ‘yes’ instead of 3. Africa 4. Latin America & the Caribbean at $24.95 each, postage paid. career of almost a half century in 1935 as a ‘no’.” The consulate at Yokohama was well Satisfaction guaranteed. Japanese language officer, and subsequent¬ run and efficient, but even Johnson found Enclosed is $ check/money order. ly served in Korea, China, Brazil, Czecho¬ it was not easy to say yes to nisei citizenship Please bill (institution only): PO# slovakia, Thailand, twice in Japan, and applications when the redoubtable Ruth three times in the State Department. His Shipley in the department was saying no.

Name important positions and achievements, Johnson was undeniably a successful of¬

Address along with the versatility of his service, ficer. He hit promotion lists regularly, was a consul general before he was 40 and an City State Zip place him in the ranks of this country's Please allow 4-6 weeks for delivery. Key No. leading postwar diplomats. In his own ambassador at 45, an early age in the old words, he “coped with floods, faced starv¬ days. But even he had a rocky road or two. ing mobs in China, was imprisoned by the At one of his first posts—a small consulate Japanese army, argued with presidents, in Japanese-occupied Korea in the authorized covert intelligence operations, 1930s—he ran into a difficult senior offi¬ negotiated nuclear arms limitation, and cer and even exchanged blows with him. dealt with kings, dictators, prime minis¬ Johnson stood up to the old boy and sur¬ ters, and generals all over the world.” He vived. No wonder he would later tell served under seven presidents and ten sec¬ young officers worried about their assign¬ & Sib MERCEDES “ retaries of state and got to know most of ment: “Take what comes and make the them. He took either a leading part or best of it." S Ik MERCEDES major supporting role in at least three ma¬ The best parts of the book, however, are FREE! NEW CAR CATALOG jor negotiations. more the result of Johnson’s ringside seat BUY DIRECT Johnson cautions that he has written a during major foreign policy events chan The comprehensive NAI Master Catalog contains 32 pages, over 150 illustrations. DIPLOMATIC and FACTORY memoir and not a political science essay. his experience as a successful Foreign Serv¬ tax-free prices, equipment, options, colors, and all the de¬ tails on how to order your car at these special savings. As in many memoirs, the role of the writer ice officer. He first made his name in the The Nemet Organization has been meeting the needs of Korean armistice talks, which he handled Americans throughout the world since 1916 You will have is writ large while that of his associates is your car. waiting where you want it. STATESIDE OR IN from 1950-53. With the change of ad¬ EUROPE—when you want it. all serviced and ready to go at more obscure. For example, his appraisal special factory prices of General Douglas MacArthur as U.S. ministrations in early 1953, he became the Buy your new car from Nemet because we’ll be here when you get home. proconsul in Japan during the occupation man who knew the whole story. He merit¬ gives the “American Caesar” little credit. ed much credit for the eventual success of The book sometimes has the flavor of oral the stormy negotiations and was rewarded Please send me a FREE copy of your FSJ-1281 with the embassy in Prague. There he also 32 page Master Catalog. history, being easy reading unencumbered I am Interested in: □ Stateside Delivery by footnotes or corroborating sources. acted as coordinator of the U.S. delegation □ European Delivery to the Geneva conference charged with set¬ AUDI MG RENAULT However, the editors have allowed a sur¬ BMW MERCEDES TRIUMPH tling issues left over from the Korean ar¬ 1 DATSUN PEUGEOT VOLKSWAGEN prising number of misspellings and print¬ FIAT PORSCHE VOLVO mistice and establishing the future status JAGUAR ing errors to sneak in. The name of Wolf Name _ Rank _ Ladejinsky, the great land reformer of of the three Indochinese states. While Social Security No postwar Asia, is spelled two different backing up a reluctant Secretary Dulles, Address ways, both wrong. There are others. Johnson met with some of the great men of Date of Rotation Johnson is justly proud of President the time: Pierre Mendes-France, Anthony Nemet Auto International Eden, Chou En-Iai, and Pham Van Dong. World's Largest Distributor of Tax-Free Cars Richard B. Finn, a retired FS0. is the admin¬ After Geneva, Johnson served as ambas¬ 153-03 Hillside Avenue, Jamaica. New York 11432 sador to Thailand for three years. He HEMET •) Telephone (212) 523-5858/Cable: NEMETAUTO istrative director of Harvard University's Pro¬ Toll Free: 800-221-0177 gram on U.S.-Japanese Relations. pulled a demoralized embassy back to-

10 FOREIGN SERVICE JOURNAL gether, established a good relationship with the Thai strong man, General Sarit, and got a grounding in the intricacies of Southeast Asian politics before returning to Washington. In some ways, his four years as deputy COLLEGE FIND under secretary for political affairs in the A Division of Diversified Academic Services, Incorporated Kennedy and Johnson administrations were as important as anything else he did. The Complete Nationwide College Selection Service He admired JFK and served under Dean Rusk, who placed great confidence in him and gave him full rein on all kinds of is¬ sues. He got on well with the under secre¬ Is the student in your family taries, first the hapless Chester Bowles and looking for colleges stateside? then George Ball. It was during this period that Johnson persuaded the department to set up the operations center as a command post for emergencies. He presided over State’s sci¬ COLLEGE FIND can give you a Top-Ten Selection ence activities, had an unsuccessful go at of colleges individually suited to the personal needs and interests trying to straighten things out in Laos, of your son or daughter. Our service is comprehensive, inexpen¬ and then became thoroughly involved in sive, accurately up-dated, and simple to use. You give us your the Kennedy obsession with counter-in¬ preferences and our computers do all the work for you, selecting surgency, Green Berets and all. True to his from over 2,000 colleges in the U.S. activist outlook, Johnson became a leading proponent, even becoming involved with the covert action committee that had over¬ Write or call COLLEGE FIND sight responsibilities for schemes to get rid for full information P.O. Boy 4116, Chapel Hill, NC 27515 of Castro. Dodging Bobby Kennedy, who and an application 1-800-334-2082/NC 1-800-722-5955 was a loose cannonball in the counter-in¬ surgency community, is one of the better tales of this book. Johnson never had qualms about these operations because he thought Castro was a real threat, but then, speaking of one of the proposed schemes, he “never thought much about the oper¬ ation either." As is often the case in foreign policy, the desirable ends are clear, but the means of getting there are devilishly diffi¬ cult. There’s a New State Johnson also worked out deals for ex¬ changing officers between State and De¬ in Washington fense, supervised the development of a U.S. position on space that later became part of a 1967 agreement banning nuclear weapons there, and served on the National And, we’re located right where Should you require a meeting/ Security Council’s executive committee you want to be . . . the State conference/entertainment during the Cuban missile crisis, “the finest Department, George Washington room, we have several to meet example of complete politico-military University, the Kennedy Center your needs, seating 10 to 7 5 cooperation and integration I have ever and most government agencies. associates. Catering is also avail¬ seen." Our guests stay in spacious suites, able. For your dining pleasure with fully equipped kitchens, we recommend our Cafe, His three biggest challenges occupy for less than the price of most featuring a wide range of much of the last part of the book. The first rooms in Washington. Our appetite-pleasing entrees. was his service as deputy ambassador in rates for weekends, and Come by and visit Vietnam, serving under Maxwell Taylor longer stays, are our new state for one year in 1964-65. Their job was to equally attractive. in Washington. help the Vietnamese government gain support and stability after the assassina¬ tion of Ngo Dinh Diem. But when Taylor and Johnson left, stability had not been achieved. In 14 months, six coups or seri¬ FORMERLY SHERRY TOWERS HOTEL ous coup attempts took place. Yet the (202) 861-8200 2117 E St. NW, Washington DC 20037 (800) 424-2859 Vietnamese army was bigger and some economic measures seemed to be working. Johnson steadfastly believed that “our

MARCH 1985 purposes in Vietnam were basically Japan was Johnson’s country of area spe¬ TRANSFERRED FROM sound." And he cites the widely held view cialization and he stayed involved with it WASHINGTON? that “if Vietnam's survival is vital to our throughout his career. His early tribula¬ I will lease your home interests, and they cannot do it them¬ tions there at the hands of the militarists • no fees selves, then we must do it for them.” did not dim his respect for the people or • no vacancy risk Reading that makes one pause. We faced his belief that Japan was essential to a via¬ • no worries that dilemma in Vietnam in the 1970s and ble U.S. East Asia policy. Johnson’s role experienced property manager found we could not “do it” for them, and there both as ambassador and immediately references available later we discovered Vietnam was not really afterwards as under secretary for political vital to our interests after all. The author affairs in the Nixon administration served Call: Brent Yeates does not reflect on the ironies of the situa¬ to solidify good relations with Japan, nota¬ Realty Investment Associates tion: our massive intervention did not save bly through the return of Okinawa to Japa¬ the Indochinese peninsula from commu¬ nese control in 1972. Despite economic nist control, but the communists them¬ warfare with Japan on a wide front today, (703)281-2180 (703)938-1782 selves soon were divided and engaged in the U.S.-Japan tie is as important as any bloody internecine struggle. we have, and Johnson helped mightily to bring this about. In the first Nixon term, Johnson occu¬ pied the highest position open to a career diplomat, that of under secretary for po¬ litical affairs. It was not a pleasant experi¬ ence. Nixon had been particularly eager to have him, but Johnson did not enjoy the —State tensions engendered by Henry Kissinger or the humiliation of the secretary of state by the president. He was, therefore, just as happy to get a new assignment in 1973, as negotiator in the SALT talks. The post as arms negotiator .

12 FOREIGN SERVICE JOURNAL of it was completed while he was the stra¬ gress, what political and administrative tegic arms negotiator. Although his satis¬ dynamics are used to create and introduce faction on this score was somewhat new technology, and how Soviet techno¬ dimmed by the failure of the Senate to logical strategy—the choice between do¬ approve the treaty, both the Soviet and mestic and imported technology—has U.S. governments have thus far observed evolved from the days of the first five-year its terms. plan to the Brezhnev era. The result is a The Right Hand of Power is also intrigu¬ volume sure to become a standard refer¬ ing for the many quick snapshots of people ence on the U.S.S.R. Dexter‘s Inn & Tennis Club and events. Truman had a "crisp decisive¬ The book's central theme is that one can A small country inn resort situated on a 200-acre estate ness," Ike showed “little evident aptitude discern the direction of Soviet foreign poli¬ high above Lake Sunapee in the mountains of southern for actually running the government,” cy from official statements that reflect an N.H. Relaxing club-like atmosphere with fine food, ser¬ vice, three all-weather courts, pro, pool and hiking. Kennedy had “good judgment and steady on-going conflict between "traditionalist” Choose from other area activities including golf and nerves,” LBJ “radiated energy and force. and "nontraditionaiist” attitudes. The tra¬ theater, or spend a peaceful afternoon in our hammocks. He dominated any group he was in.” Dean ditionalists view the West as intensely Featured in “Country Inns & Back Roads," AAA, Mobil Guides Box F, Sunapee, N.H. 03782 • (603) 763-5571. Acheson had a precise mind, strong mem¬ hostile, give Soviet military technology ory, and skill in weaving an eloquent pre¬ sentation out of complicated facts. John Foster Dulles was a loner, brusque, with People Moving Abroad Ask “confidence, even arrogance, in the power of his own reasoning." Dean Rusk played DISTRICT MOVING & STORAGE his cards very close to his chest, was not a tough infighter, but, in dealing with irate allies during the Korean war, “had a great How Do I Prepare Valuables For My Move Abroad? facility for soothing people, skirting diffi¬ Dear District Moving & Storage: facilities from those that you cult points, glossing over the prickliest When moving this time, we want to take. Arrange for a safe nettles of substance with such skill and plan to take along our heirloom deposit box or vault for the sophistication that no one realized he was silver, but leave behind my leave-behinds. sidestepping exactly what they were an¬ grandmother’s china. We want 2. Be present when packers griest about.” to make sure the silver arrives are preparing other vauable Johnson ends his book with a chapter safely.. .and that the china is articles—such as your entitled "What Can We Do?” He lists stored properly. Do you have any silverware—for shipping or some of the things he thinks do not work tips on how we should prepare storage. Note carefully the well in the United States, like our election our valuables for this move? packer’s inventory number system, the role of the Joint Chiefs, and placed on the carton. counterinsurgency operations. He sug¬ Signed gests some remedies: more resources for Concerned in Washington More than 60 tips can be found international economic development, in our FREE “New Assignments more “zest and elan” at home to bolster Dear CIW: Abroad Checklist”. To get your foreign policies, a single chief of staff, and copy just call (301) 420-3300 or Yes, we have some tips on how send in the coupon below. better organization for counterinsurgency. to prepare valuables—all of These are all pretty tall orders. which can be found in our “New Roland Kates Johnson spent many years at the leading Assignment Abroad Checklist.” Vice Presiden t edge of U.S. foreign policy. That edge cut Here’s just a few: through to success in many areas, like the 1. Before the packers arrive, Korean armistice talks and in various ne¬ segregate material and identify gotiations with Japan. It did not cut according to ultimate through in Vietnam or SALT II. In this disposition. Separate heirlooms '■DISTRICT sense, his career probed the limits of what MOVING &> STORAGE , INC. and other valuables not to be our foreign policy was able to do in that 3850 Perm Belt Place taken to post and not to be era. The Right Hand of Power does not mor¬ Forestville, Maryland 20747 alize on points like this, but reading it stored in regular storage 301 *420 * 3300 tells us a great deal about the impressive If you’re interested in receiving District Moving & achievements of one of the outstanding Storage’s FREE “New Assignment. Abroad Check¬ Foreign Service practitioners of our list”. Please call (301) 420-3300 or fill out this coupon time. 3850 Penn Belt Place Forestville. MD 20747 We’re right on the beltway! Reviews Yes. please send me the free “Checklist” de¬ scribed above. I will be moving soon, and am anxious to make my next move as easy as Politics and Technology in the Soviet possible.

Union. By Bruce Panott. The MIT Press, Send me labels I can use to assist me in my move. 1983. I am interested in more information about District Moving & Storage. Please have your Parrott sets out to analyze how official So¬ representative call me at the number below. viet thinking reacts to technological pro¬

MARCH 1985 13 the highest priority, have great confidence surge of American defense spending” will portant effect on relations with the in the Soviet Union’s ability to overtake strengthen the convictions of the tradi¬ U.S.S.R.” the West, and have a low regard for west¬ tionalists. One of the most striking features of this ern contacts (including technology im¬ “More than is usually recognized,” Par¬ book is the care taken to make it a valuable ports). Nontraditionalist attitudes favor rott notes, "specific Soviet decisions about reference tool. Nearly 1600 footnotes, detente, see military expenditures as a military competition with the West have carefully cross-referenced to the text (and drag on the civilian economy, are less opti¬ been influenced by the level of western often interesting reading themselves), are mistic about near-term supremacy, and economic performance at the time. . . . supplemented by two bibliographies and a place a high value on western technology The healthier the western economies in the comprehensive index. If the book has a to solve the U.S.S.R.'s economic prob¬ coming years, the less inclined the Soviet fault, it is that Soviet policy debates are lems. Parrott believes that in the 1980s, elite will be to engage in an all-out arms sometimes so carefully documented that the “diminishing economic and techno¬ race.” This is an important finding for they emerge as a virtual blow-by-blow ac¬ logical vitality” of the Soviet system will U.S. policymakers, since “. . .in addition count of Kommunut editorials, Politburo provide “strong ammunition” for the non¬ to western military power and diploma¬ speeches, and Pravda articles. When that traditionalists. On the other hand, “a cy,” western economic health “has an im¬ occurs, the main thrust of Soviet policy is obscured rather than highlighted. —ANTON F. MALISH

Haiti: Today and Tomorrow. Edited by Charles R. Foster and Albert Valdmart. Uni¬ versity Press of A merica, 1984-

This book, subtitled “An Interdisciplinary Study," consists of some two dozen articles about Haiti—it lacks any other unifying theme or outlook. The authors, most of whom are recognized specialists, agree that most Haitians are abysmally poor but remain hopeful that additional attention to their own specialty will someday allevi¬ ate that country's regrettable political and economic situation. In his introduction, Ernest H. Preeg, our ambassador in Haiti from 1981-83, gives a moderate and objective overview of recent Haitian history, with understanda¬ ble emphasis on the republic’s current rela¬ tions with the United States. He also dis¬ cusses the increasing importance of international financial institutions, such as the International Monetary Fund or the World Bank, as the enforcers of fiscal re¬ sponsibility. From a historical point of view, Haiti continues to be a fascinating study in fail¬ ure. Mats Lundahl, in his article, casts some light on the reasons for this, noting that despite the phenomenal and unguided growth of Port-au-Prince, the vast major¬ ity of the population are still peasants who, having achieved land ownership after Hai¬ ti's revolution, seem to have no further specific objective. As an up-to-date look, this book con¬ tains much of interest. A number of the traits that make Haiti unique are dis¬ cussed, not the least of them being its ambiguous cultural heritage (Leon-Fran- <;ois Hoffmann’s article is eloquent in this regard). Also interesting are signs of revi¬ sionism in the treatment of the elder Du- valier’s reign and the lack of any consistent point of view about the U.S. occupation, except in Patrick Bellegarde-Smith’s es-

14 FOREIGN SERVICE JOURNAL say, which is entirely critical. The book is of trade, military cooperation, and shared policymakers—to examine the role of pri¬ flawed by a number of typographical errors interests in the Pacific and southeast Asian vate banks in the international debt crisis. but includes a useful and comprehensive region. But future military cooperation is They recommend a battery of reforms, in¬ bibliography. —ALF E. BERGESEN likely to be limited by Australian and New cluding greater regulation of banks, more Zealand sensitivity to ASEAN reaction and emphasis on country-risk analysis, and ef¬ their desire to pursue a more independent forts by international institutions to soften Jumpmaster. By Howard R. Simpson. policy. the effects of international economic cy¬ Doubleday & Co., 1984. $11.95 cles. Uncertain Future: Commercial Banks and In this virile tale, the author, a former the Third World. Edited by Richard E. Note: We have been informed that Martin Foreign Service officer who served a tour as Feinberg and Valeriana Kallab. U.S.- Herz’s Understanding Austria, published by U.S. consul general in Marseilles, has cap¬ Third World Policy Perspectives #2, Overseas Wolfgang Neugebauer Verlag, [BOOKS, tured that city’s special flavor, even the Development Council, 1984. 124pp. This February] is available from the Institute patois of the quais and bistros. Donald monograph brings together a variety of for the Study of Diplomacy at Georgetown McCallister, a former British intelligence contributors—bankers, academics, and University for $40. officer, is the jumpmaster of the title. Some 38 years after World War II, he has * SINCE 1976 We feature products come to Marseilles to commemorate the 1 from the New irn/ 4D Chrysler ^ Allied landings of 1944 with what is left of v II inivnn, Corporation the resistance fighters he trained and com¬ SRENTAL SYSTEM manded in parachute jumping. Some of OFFICIAL the French partisans had seen him run un¬ if der fire, thought him a coward, and hated GSA CONTRACTOR him. As he stands in the mid-August sun UNLIMITED WASHINGTON BOUND? in the Resistance Cemetery at Roucas, a MILEAGE Daily — Weekly — Monthly Rates high-velocity bullet from a distant ridge We Rent All Makes and Models hits the mark. SERVING THE MAJOR AIRPORTS IN THE AREA The rest of the story belongs to the Mar¬ seilles police inspector and his tough-as- NATIONAL - DULLES - ANDREWS AFB - BWI nails Corsican assistant. Terrorism and CALL TOLL FREE 1-800-336-7400 politics come into play, with both com¬ IN VIRGINIA CALL 800-533-6100 munists and the far right having reasons to J neutralize the Englishman. Simpson writes vividly and well. If he were as successful in handling the plot as AMERICAN PAPERBACKS he is in fleshing out his characters, this Enjoy Our Unique Book Mailing Service would be a good novel. The author is now • Monthly newsletter lists 300 new releases a consultant on international terrorism, • Featuring mass-market and trade paperbacks living in Europe. • Categorized by subject with brief reviews • Order your selections for immediate shipment —DOROTHY AMES MARKS • Special requests for any book honored • This is not a book club — no purchases required From the Think Tanks Subscribe today — enclose check or money order for $10.00 APO-FPO ($18.00 foreign) for one full year to: Greek Politics at the Crossroads: What THE COMPLETE PAPERBACK SHOPPER Kind of Socialism? By Roy C. Macridis. Hoo¬ P.O. Box 233, Kenilworth IL 60043 ver International Studies, Hoover Institution, Name 1984- 66pp. $9.95. PASOK, the current Address governing party of Greece, claims to be Est. 1974 committed to pluralistic socialism, but authoritarianism is very much part of the country’s political tradition. The increas¬ AFSA Provides: ingly dominant position of PASOK’S leader Join AFSA •The Foreign Service Journal indicates that the country may well move The Voice of the •Employee-Management Relations toward authoritarian socialism, especially Foreign Service •Membership in the Foreign Service if an incident in the Aegean or over Cyprus Club should unite the country in a nationalist •Scholarships fervor behind the party. •Insurance Geared for Foreign Service Needs ^Includes War Risk The ANZUS Partners. By Dora Alves. Sig¬ nificant Issue Series, Vol. 6, #8. Center for Write or call: Strategic and International Studies, George¬ Membership Coordinator, AFSA town University, 1984. 54pp. This mono¬ 2101 E St., N.W. graph, intended to inform U.S. readers Washington, DC 20037 about their antipodean allies, covers the AFSA Represents You (202) 338-4045 history of the alliance and the binding ties

MARCH 1985 15 disagreeable power, and the process took an inordinate amount of time. Our coun¬ try suffered as a result. During that period, many serious people said that it would have been better for the United States if the hostages had been killed in a rescue DIPLOMACY attempt. The rescue of the Mayaguez and the invasion of Grenada represent the way this country likes to solve problems. We are also bothered because other countries do not seem to play by our rules. An Unpopular Act We appear constantly surprised that others may have a different concept of truth or By DAVID D. NEWSOM may deliberately dissemble and mislead The Foreign Service is little understood during negotiations. The truth is, howev¬ and appreciated by many in the American er, that many countries, both communist public not only because it lacks a constitu¬ and non-communist, have different objec¬ ency. This situation is also due in part to tives than we do in diplomatic negotia¬ the nature of the Service’s mission—to tions. We tend to convince ourselves that conduct diplomacy. Diplomacy means ne¬ negotiations are designed to resolve a gotiation and often compromise. Both are problem or bring peace. Others have no basically unpopular in our society. such intention. They may be seeking to Ours is a nation steeped in the concept win a political point, to influence world of resolving problems—and particularly opinion, to test the resolve of the other international challenges—by the quick ap¬ side. plication of overwhelming power. In our Americans have a deep desire to believe sports-centered society, the goal is a de¬ that others will react as we do—or, at monstrable victory. A prominent Texan least, as we think we do. But a study of once said to me, only half facetiously, that history or a close look at current regimes in his part of the world, diplomatic negoti¬ will suggest a different reality. The devi¬ ations were viewed in the same way as a ousness and brusqueness of Soviet negotia¬ Dallas Cowboys game: There had to be a tors are probably not markedly different winner and a loser. from tactics employed by pre-revolution¬ Negotiating is also unpopular because ary Russians. Latin American revolution¬ we have a basic distrust of foreigners. aries or Middle Easterners with a strong SHOP IN AN AMERICAN Their involvement in such talks arouses a sense of their own peril are not likely to DRUG STORE BY MAIL! host of attitudes and emotions, not all of react exactly as we do in a negotiation. We An ice cream soda is one of the them helpful to the conclusion of an agree¬ should not expect it. We should not be surprised at their bald tactics and disre¬ few items we cannot mail. Drugs, ment. Indeed, these attitudes often reflect gard for the truth as we see it. We should cosmetics, sundries back on those who must deal directly with the foreigners—the negotiators them¬ deal with such behavior as part of the chal¬ mailed to every coun¬ selves. Frequently we end up distrusting lenge of negotiations—not as an excuse to try in the world. We the diplomats, as those involved in the avoid them. maintain permanent SALT or Panama Canal negotiations know It is, in a sense, strange that such atti¬ family prescription only too well. tudes toward international negotiations records. SEND NO As a nation, we sometimes recoil from should be so prevalent in our country. MONEY — pay only after satis¬ what we may consider to be excessive pride Ours is the nation of poker and the tradi¬ factory receipt of order. or attachment to honor in others. Yet we tion of hard-bargaining in the market tolerate—even expect—these qualities in place. Both of these rituals, however, are ourselves. If the American public discerns played out under certain accepted rules. a lack of resolution by its government, Such agreement does not exist in the inter¬ particularly when the issue involves a national arena. weaker power, the result is often a sense of Furthermore, the fact that our political humiliation and failure. Those involved in system is one of compromise—indeed, it the process take the blame. could not work otherwise—would seem to The negotiation of the Iranian hostage suggest a favorable attitude toward negoti¬ release was highly unpopular among the ations. But in our system, the compro¬ public. We were dealing with a weak and mises are among groups of our own people; national pride and honor are not involved. David D. Newsom is associate dean and direc¬ The procedure behind U.S. participa¬ Wuteut PkaAmacy, Itie. tor of the Institute for the Study of Diplomacy at tion in diplomatic negotiations is often tla Morgan Pharmacy Georgetown University. He is a former under complex and little understood. On any 3001 P Street, N.W. secretary for political affairs. This article was critical issue there are frequently deep di¬ Washington, D.C. 20007 adapted from a column in the Christian Sci¬ visions not only within the nation as a ence Monitor. whole, but also within the administration

16 FOREIGN SERVICE JOURNAL and the bureaucracy charged with con¬ ducting the negotiation. As in arms con¬ trol and Central American issues today, the divisions may even include the basic question of whether there should be nego¬ tiations at all. Usually enough voices are Insure household goods opposed to talks to cast a pall on the proc¬ ess from the start—even if it goes forward. with Security Matters of turf also complicate the process, as major political figures and departments battle for pre-eminence and leadership. and move overseas All of this is done on the public stage in the full glare of the media. with peace of mind These divisions often continue into the negotiating arena. Many of those who may As a Foreign Service Officer, you'll benefit from special have lost out in the earlier fight stand low rates and invaluable reassurance. You can in¬ ready to discredit the process if it moves sure all household goods and personal effects, includ¬ too far from their position. As a result, our ing automobiles, anywhere outside the U S. Security's diplomats must negotiate under a tight Government Service Policy covers goods in-transit and rein, except in those rare instances when a at your overseas residence, Call or write Paul Wood, solid consensus exists in the administra¬ the Manager of our Insurance tion and Congress or when a president has Division, ^er' You can also sufficient power to impose a position. Ne¬ store the valuables you want gotiators from the United States, possibly to leave home with Security- even more than their totalitarian counter¬ the world's most experienced parts, must look up and down the table at moving and storage company. each move to be sure that their colleagues from other agencies are in accord. Throughout the process, theU.S. nego¬ Call (202)797-5625 tiator must also, if he or she be honest, I 701 Florida Avenue, NW Washington, DC 20009 remind the other side that what the nego¬ tiators might recommend may not, at the end of the process, be accepted by the Con¬ gress or the administration. No fully satis¬ factory way has yet been devised to bring the Senate or the House into the process FREE SQUASH* effectively (with the exception of some trade negotiations) so that the U.S. nego¬ tiating team has some indication of the MEMBERSHIPS FOR agreement’s ultimate fate. The final irony is that, particularly in AFSA MEMBERS the period since World War II, U.S. di¬ plomacy has achieved much through nego¬ tiations: the North Atlantic treaty, the Austrian State treaty, the Trieste accord, and the Berlin accords, to name only a few. This record is impressive even without in¬ cluding those agreements that have turned out to be politically controversial, such as the arms control agreements with the Sovi¬ ets, the Panama Canal treaties, and the Camp David accords. AFSA members can now play squash at the Capitol Hill Diplomacy is the most difficult game in town. It brings together, to discover and Squash Club without paying any membership or initiation refine their common interests, two often fee. By simply showing your AFSA membership card, you will very different political systems. The U.S. pay only the court fees at Capitol Hill's most luxurious fitness Foreign Service has demonstrated the ca¬ facility. Located only a block from the Capitol South Metro pacity to do this. It deserves a greater pub¬ stop, the Club also offers free use of changing rooms, showers, lic tolerance for the complexities of the negotiating process, the barriers to suc¬ and saunas before and after playing squash. *There is a $20 cess, and the basic differences on the other annual processing fee; some restrictions apply. side. Finally, it deserves a stronger public confidence in the skills of its diplomats Capitol Hill Squash & Nautilus Club and its fundamental appreciation of the 214 D Street, S.E. • (202) 547-2255 interests of this nation.

MARCH 1985 17 ganite, ‘I’d bet that 60 percent—minimal¬ Lodge that he was being replaced. The ly—of the Foreign Service voted for Wal¬ news broke just as the huge U.S. delega¬ ter Mondale last November. They are in tions and press corps arrived in Geneva for the main liberal Democrats who believe the arms talks.” that negotiation is better than confronta¬ Wall Street Journal, January 11 CLIPPINGS tion in all circumstances.’ John McLaughlin in the National Review. Kennan’s Choice February 8 “Had [George] Kennan not left the For¬ “That's a heck of a story. If they got con¬ eign Service when he did, had he never trol of Foggy Bottom, they could force embarked on a second career as a historian The ‘Purge’ at State diplomatic solutions to military problems. and critic, he would be remembered as a Does the president know what’s going former diplomat who coined a trouble- "Secretary of State George Shultz is mov¬ on?...It could lead to another detente or, somely ambiguous phrase rather than as ing decisively to replace ideologues and worse still, a nuclear freeze.” one of the major voices of our society.” political appointees within the State De¬ Art Buchwald in the Los Angeles Times. Ronald Steel in Esquire. January partment with Foreign Service profession¬ January 3 als. All who value the reassuring stability Today’s Hostages that professionalism brings to the execu¬ Sexism at State tion of U.S. foreign policy should cheer “A man identified as a U.S. diplomat kid¬ Mr. Shultz America’s foreign policy is “[Outgoing U.N. Ambassador Jeane napped in Beirut last year was shown on too important to be left to ideologues and Kirkpatrick] noted the reported comments film yesterday asking the U.S. govern¬ amateurs." of unnamed White House critics who had ment to work for his release and that of The Miami Herald. December 23 contended that she was 'too temperamen¬ other Americans held in Lebanon. ‘Today, tal to occupy a higher office.’ That, she the 22nd of January, 1985, I am well and “The long-standing and deplorable tradi¬ argued, was a ‘classical sexist charge.’ She my friends Benjamin Weir and Jeremy Le¬ tion in U.S. diplomacy of giving ambassa¬ complained that she has been described as vin are also well. We ask that our govern¬ dorships to a president’s political support¬ ‘schoolmarmish’ and 'confrontation¬ ment take action for our release quickly,’ ers has been carried to an extreme in the al.’...She called foreign policy a ‘particu¬ said the man identified as William Buck- Reagan administration Now it appears larly male bastion’ and claimed that ‘there ley, a political officer at the U.S. embassy that something might be done about this are lots of resistances still to young women in Beirut who was kidnapped in March tendency to station foreign policy ama¬ in our diplomatic service.’ ” 1984.” teurs in situations where the United States Time, December 31 United Press International, Januaryi 29 could use all of the professional expertise it can muster.” Service Morality "The Reagan administration’s policy has The Berkshire (Massachusetts) Eagle. been quite different from mine. Basically, December 21 “The president of the United States should it’s to ignore any American hostages that be reminded that he is responsible for the have been taken and to conceal the fact “You complain [in an editorial] that Presi¬ survival of the great American civilization, that they are being held.” dent Reagan has appointed 40 percent of according to the Constitution of the Unit¬ Jimmy Carter in the Federal Times, ambassadors as ‘political appointees’ com¬ ed States, and not the bureaucrats of the January 7 pared with 27 percent under President State Department, who are usually called Carter, and you seem to imply that it is at the Central Committee of the Soviet Downgrading the U.N. much better to have 'career ambassadors.’ Communist Party ‘collaborators of the So¬ Not so. viet Union.’ “Irked by Jeane Kirkpatrick’s power and “The worst diplomatic disasters the Igor S. Glagolev in , influence during her tenure as U.S. ambas¬ United States has suffered in the last 50 January 9 sador to the United Nations, Secretary of years have occurred under so-called career State George Shultz wants President Rea¬ ambassadors during the Carter administra¬ "Foreign Service officers who have left Ar¬ gan to downgrade the post of U. N. ambas¬ tion, i.e., Afghanistan, Soviet expansion lington for duty overseas are the most con¬ sador from its current cabinet rank. Such a in Cuba, [the] Middle East, Iran, Central scientious about paying overdue [county move, Shultz believes, would prevent America, Cuba, and Libya, to name but a personal property tax] bills, the taxbusters Kirkpatrick’s successor from a similar un¬ few. Career ambassadors have had little or said. Some have called repeatedly from dercutting of his position as the adminis¬ no experience in the real world. Well¬ outposts in Belgium and West Germany tration’s chief foreign policy voice. Shultz born, well-educated, 'elitist WASPS,’ they to assure the taxbusters that the check is in is also arguing that the change would con¬ are long on theory and perpetually believe the mail.” vey to the world at large Reagan’s dissatis¬ that you can placate the implacable ” Nancy Scannell in . faction with what he perceives to be ram¬ Carl Shipley in the New York Times. January 13 pant anti-Americanism within the United January 6 Nations.” Diplomatic Change Newsweek. January 28 "Clearly, many of the changes at State are justified. But the elemental fact remains: “When word leaked out that Reagan aide CUPPINGS records statements in the media on the Precious few conservatives inhabit Foggy Faith Whittlesey would be named ambas¬ conduct of diplomacy and the foreign affairs Bottom. ‘If you were to take a secret poll sador to Switzerland, nobody had in¬ agencies. Readers are invited to send in contri¬ over there,’ says a State Department Rea- formed current ambassador John Davis butions.

18 FOREIGN SERVICE JOURNAL Foreign Service Day AUTHORIZED EXPORTER Friday, May 3, 1985 GENERAL ELECTRIC

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10-25-50 records JOURNAL excerpts from pre¬ vious issues.

MARCH 1985 19 OUESTIONNAIRESECURITY

What follows is the first in a series of questionnaires on topics of concern to our Foreign Service readers. It is not intended as an official survey but as an informal sampling of opinion. All replies will be confidential. The results will be tabulated and presented in a future issue of the JOURNAL. Please complete this page and send it to FSJ Questionnaire, 2101 E St., NW, Washington, DC 20037. Thanks!

1. Where are you currently serving (please check)? □ In Washington D Abroad, at a non-differential, non-danger-pay post □ Abroad, at a danger-pay post □ Retired Foreign Service □ Abroad, at a hardship-differential, but non-danger-pay post D Other 2. Have you ever served at a post that experienced threats to the physical security of the mission or its personnel while you were there (please check)? EH Yes EH No 3. If you are currently stationed abroad, do you have living with you (please check as many as applicable)? □ no dependents EH adult dependents EH minor dependents 4. If you are currently stationed abroad, is your housing guarded to protect against threats to your security that may arise from your diplomatic status (please check)? EH Yes EH No

5. How long have you been in the Foreign Service (please check)? □ 1-5 years □ 6-10 years □ 11-20 years □ more than 20 years 6. Are you an AFSA member (please check)? □ Yes □ No 7. Are you □ male or EH female (please check)? 8. Please indicate the level of your agreement or disagreement with the following statements (please circle the appropriate number. 1: agree strongly, 2: agree, 3: undecided, 4: disagree, 5: strongly disagree). Being an FSO will become more dangerous during the next 10 years. 1 2 3 4 5 FSOs anywhere in the world are likely targets of terrorist attack. 1 2 3 4 5 Embassies must maintain some degree of openness despite the risks. 1 2 3 4 5 The foreign affairs agencies have done all they can over the last few years to safeguard their employees against terrorists. 1 2 3 4 5 The security precautions taken in Washington are adequate. 1 2 3 4 5 Given our earlier experiences, the most recent bombing in Beirut could have been prevented by reasonable security precautions. 1 2 3 4 5 9. Which of the approaches listed below should be given priority in attempting to lessen security threats facing diplomats (please number in order of importance, with 1 being most important and 5 least important). increasing physical security of embassies and other buildings decreasing the number of personnel and missions in dangerous areas improving of intelligence capabilities to detect threats retaliating against those responsible for terrorist actions other (please specify)

Please feel free to comment further:

20 FOREIGN SERVICE JOURNAL WORKING SPOUSES

The Foreign Service has faced many challenges in its history: Terror¬ FSNs performing the same tasks may be compensated different¬ ism, politicization, and budgetary restraints have all taken their ly. Spouses also work under contract on particular projects and in toll. For the most part, however, the Service has simply assumed “part-time, intermittent, and temporary" (PIT) positions. Occa¬ these burdens and soldiered on. But the collision between the sionally they receive functional training in such areas as adminis¬ mobile Foreign Service and the modern two-career family threatens tration, computers, and finance. However, training is only given to have a much more personal and widespread effect. on a space-available basis, and, even then, it is no guarantee of a Foreign Service employees are now taking leave without pay position. and limiting their mobility to accommodate their spouses’ ca¬ Many spouses, of course, seek work outside the mission. FLO reers, and no one knows how many excellent people have left the can supply information on educational opportunities and possi¬ Service or not even applied because it was incompatible with ble employers—local members of the U.S. Chamber of Com¬ their partner’s goals. As one of our authors, Nancy J. Piet-Pilon merce, schools, international organizations, etc.—in each coun¬ (“A Spouse-less Service,” page 22), points out, if the current try. There are now 14 bilateral agreements—with Australia, trend continues posts may soon be filled with single professionals Bolivia, Botswana, Canada, Colombia, Denmark, El Salvador, or those whose spouses stayed in Washington. Her concerns are Britain, Jamaica, Liberia, New Zealand, Norway, the Philip¬ shared by Under Secretary for Management Ronald Spiers pines, and Sweden—that allow foreign diplomatic spouses to (“Thinning the Soup,” page 34), who comments, “I do not know work in the United States and American spouses to work there. how one deals with [the situation] when more and more spouses Similar, but informal, arrangements exist with some sixty other have professional careers that cannot very well be pursued countries. And, as Susan Low explains (“Associates of the Ser¬ abroad. Perhaps there is no answer and no way the Foreign vice,” page 24), the Association of American Foreign Service Service can preserve its traditional identity in the face of cultural Women and State Department management are working on a sea changes.” new program that would open up more opportunities for The Service has long recognized the importance of families, spouses. not only for morale, but for adding a human side to foreign Despite the efforts of FLO and others, however, many spouses relations. Consequently, the Family Liaison Office has devoted still face overwhelming difficulties in trying to transport their increased time and resources to helping spouses cope with the careers overseas. The foreign affairs agencies could undoubtedly difficulties of finding employment overseas. Those who visit the make a greater effort to train spouses for available positions office will find country files with semi-annual reports from al¬ instead of hiring new personnel. But at the same time, one cannot most every post, describing the spouse-employment pattern and deny that certain careers are more portable than others, and not the regulations governing work in each country. everyone chooses a profession with mobility in mind. FLO will also provide assistance to those seeking positions within For those Foreign Service couples who attempt to the mission itself. Several job categories are already available to balance the requirements of worldwide avail¬ spouses, although only one—the American Family Member posi¬ ability with those of a non-portable career, tion—is designed specifically for them. Nor has that the future will continue been without controversy: the jobs have been allo¬ bring hard cated from those formerly held by Foreign Ser¬ choices. vice Nationals and U.S. pay scales have been applied, so that spouses and A SPOUSE-LESS SERVICE

The implications of the difficulties surrounding dependent employment overseas have been underestimated and must be better addressed

NANCY J. PIET-PILON

HERE WAS ONE glaring omission by those swers. Indeed, there are those who feel strongly that T “You knewr what you were getting into when you who pondered the future of the Foreign Ser¬ vice in the JOURNAL'S recent 60th anniver¬ married him, so stick it out.” Really? When the 22- sary issue. Although some mentioned the year-old coed agrees to marry her undergraduate love issue of spouses—their role in and relationship to the who studies law, he usually has a variety of career Foreign Service—no one made clear how grave the options. He could join the Foreign Service. He could problem actually is. From the viewpoint of a depend¬ also become a hometown lawyer in a family practice or ent spouse overseas, however, the so-called “spouse work with the urban poor out of a store front. The problem” is more than a chink in the armor of the couple would then travel abroad on very occasional, Service. It is a rift that is rapidly becoming unbreach- romantic holidays. Not everyone has the single-mind¬ able, and it has the potential to destroy the Service as ed determination of my spouse, who was born and it has traditionally been known. A few years from reared in India. He was going back, no question, and now, posts may be filled with single professionals or he made it clear on the first date, asking, “Do you with ones that have separated as spouses choose to stay want to live in India? That’s where I’m going." As it at home. This is not an alarmist prediction; not a few turned out, I was one of the few to stick around for the spouses have already put conditions on their willing¬ second date! ness to serve overseas. Many of us have already Even if the coed realizes that under her new hus¬ heard—or said—such things as: band’s wedding tuxedo lurks a future Foreign Service employee, she is likely to be saying “yes” to a life she —One tour and then back to my own career; knows nothing about (unless she is one of the few —Out there when the children are little, back whose parents walked the same path). How can any¬ home when they need education; one who has not gone through the experience know —Have a nice trip, see you for Christmas—no way what separation from family and culture will mean? am 1 going; How can a woman understand how the pecking order —If there is work for me, let me know. 1 may join of many overseas missions will affect her? How can the you; sense of loss of professional life and personal identity —You go now and that's it for us; be measured? How could a young woman know what —Shall we be a tandem couple? it will be like to start over every two years? Or appre¬ ciate the pain caused by constantly severing relation¬ None of these options or conditions is perfect, and ships because she and her friends are always moving? some are not even reasonable if the couple wants to This knowledge comes only with experience. And for maintain a family relationship. But it is a rare Foreign many, experience does not bring tolerance. Instead, Service family that has not had these words thrown each move becomes harder on the emotions, even around the family council as they consider the next though the mechanics of packing and getting there post and what it means for each of them. No longer are may be well-honed skills. assignments evaluated solely in terms of their impact Of course, there is much that is positive about on the Foreign Service employee’s career, as in the Foreign Service life. This is why many of us don’t just past. Many divorces and extended family separations stick it out but honestly enjoy it. Being a Foreign are the result of unresolvable dilemmas created by the Service dependent gives one an opportunity to experi¬ Service’s mobile lifestyle. ence the plus side of overseas life. Travel is one reward There are many facets to the problems facing of Foreign Service life, as are the friends who keep spouses, which is why there have been no easy an- turning up in unexpected places and the chance to become acquainted with other cultures and lan¬ Nancy J. Piet-Pilon has been a spouse overseas for the past guages. 14 years. She is a consultant to the Indonesian National Yet the issue of professional involvement and ad¬ Family Planning Coordinating Board and a senior staff justment by spouses will not go away. And some of associate at the Center for Population and Family Flealth at the solutions for solving the issues are as complex and Columbia University in New York. She is the author, with knotty as the issues themselves. The Association of Barbara Hornby, of In Another Dimension: A Guide American Foreign Service Women’s newsletter of last for Women Who Live Overseas. November describes a proposal that attempts to ad-

22 FOREIGN SERVICE JOURNAL dress the problem by allowing spouses to become trative officers. If this proposal is adopted, each mis¬ Foreign Service Associates [see related article]. Under sion would be running two personnel systems, one for the proposal, spouses could participate in a program regular employees and one for the spouses. There is no managed by each post that would seek to match the way that the present personnel officers could handle spouse's skills with the post's needs. Employment the additional load, nor should they be expected to do would be possible in four areas: community building, so. Even now, those missions that do a good job with outreach to the host country, catering and manage¬ dependent employment under the present system find ment, and use of professional skills to assist the host it severely taxes their resources. country. Becoming a tandem couple is often touted as a The idea of trying to employ spouses through the means of dealing with this problem, but it is not a State Department has some merit, but there are sever¬ workable solution in many cases. Even if both are al concerns. Take the last category, use of professional hired, it is still difficult to get positions together. A skills. There are many spouses who already make their mission is rarely eager about the tandem couple's own professional careers overseas with no help (and no arrival. All too often, it wanted one and so found a desire for any) from the Foreign Service. I fall into this spot for the other as well. If both happen to work in group, as do many of my acquaintances. If we had the same field, the search for positions can take on wanted to be professionally associated with the For¬ nightmarish proportions, and couples often have to eign Service, we would have tried to join ourselves, compromise and take assignments in different coun¬ becoming a tandem couple. Even though we are re¬ tries. ferred to as dependents, we have sought independ¬ There are other options, however, that could be ence by finding our own worlds outside that of the taken quickly and would be more effective: Service. • Spouses should have career counseling that will Furthermore, most of us who are already working help families stay together. Certain fields of work do overseas are aware that volunteerism is not appropri¬ travel well: teaching, social work (especially counsel¬ ate in many countries. Our services are not highly ors specializing in family, marriage, and alcohol and valued when free. Perhaps more important, volun¬ drug abuse, and in adjustment to overseas living teers from western countries may even be perceived as problems), anthropology, and creative writing and art a threat by local professionals. These attitudes could are all useful and challenging careers. Other profes¬ be a severe drawback to a system that encourages sions are less mobile. Before spouses embark for for¬ professionals to volunteer their time to a local agency eign shores, they should know more about portable while being paid by the State Department. careers. • Information on the complex regulations sur¬ rounding spouse employment at a particular post NOR ARE THE PROPOSALS three other should be provided to all interested couples before they categories of employment safe from are assigned. The Family Liaison Office does maintain complications. No doubt those who such material, but the posts themselves are often un¬ have been doing representational enter¬ aware of the difficulties involved, so one needs to ask tainment for years and who like it, will have a hard questions before arriving. A list of possible employ¬ time continuing when someone else is being paid for ment opportunities, including names of spouses who the same job. And although there is room for more are already employed at post, should also be avail¬ involvement and skills in building a community able. within the mission, many women have been doing • Tours of duty overseas should be lengthened. this for years and will continue to do so, whether paid The debate on the ideal length for a tour goes on or not. Furthermore, the young women now becom¬ endlessly, with convincing arguments on both sides. ing Foreign Service dependents are not usually will¬ From the perspective of the spouse seeking employ¬ ing to take on these tasks, either for lack of training ment, however, longer tours have merit. It is practi¬ and experience or reasons born of the women's move¬ cally impossible for a spouse to have a career of any ment. Situations in which some are paid for the same kind—other than teaching in the American school— work that others perform for mere satisfaction can if she faces constant uprooting. Two years hardly pro¬ easily lead to morale problems for all. vide time to settle in, learn the language, and become The entire Foreign Service Associates proposal familiar with a new city. Finding a satisfying career looks cumbersome to manage and, as it is written niche usually takes much longer. now, nearly impossible to administer fairly. Much is • More reciprocal agreements specifically for the left, as it often is now, to the whims of Foreign Service spouses of the official community (not just the diplo¬ personnel at a particular post. Some are very sensitive mats) should be established. This has been done for to the needs of the mission and spouses, but many are some countries, but from my overseas view progress not. Yet it is post management that will decide on the appears to be very slow. value of professional skills and establish priorities. The issues of spouse adjustment and employment How does a consultant to a national family-planning overseas must remain in the forefront of creative program rate against a volunteer English teacher in a thinking and action by all branches of the Foreign local school or the manager of an orphanage? All are Service. If it does not, the Service will find it ever professional and useful. Who wants to be the Solomon harder to recruit the first-rate employees it needs to who will make these choices? meet U.S. diplomatic and development concerns Managing the Associates program would also re¬ worldwide. The time to show a serious, action-orient¬ quire a major adjustment for personnel and adminis¬ ed commitment to solving these issues is now. □

MARCH 1985 23 ASSOCIATES OF THE SERVICE

A new proposal widens employment options for spouses by providing a framework in which careers can be developed and U.S. interests furthered

SUSAN LOW

A YOUNG FEMALE ATTORNEY works in the en- These are legitimate concerns, and it is important /\ vironmental field in Washington. Some that they be addressed if the Foreign Service is to time ago, her husband, a Foreign Service retain the allegiance and the participation of its em¬ JL JL. officer, received his first overseas assign¬ ployees’ families. Many spouses have chafed at the ment; this summer he will move to Moscow. Ever inequities of the system, but have gone overseas any¬ since the day they first learned of the assignment, she way. Others have chosen to stay in the United States has been exploring the possibilities of finding work to pursue their careers. Some families have left the there in which her experience and training would be Service for these reasons. The situation continues to relevant. Like many other Foreign Service spouses, deteriorate and there is no sign of offsetting factors to she has come face-to-face with the “frustrations of bring it back into balance or dispel the unrest. attempting to mesh my professional goals as an attor¬ After widespread discussion of these problems, a ney with his career": new proposal has emerged for overcoming the limita¬ tions imposed by the mobile lifestyle of the Foreign To my dismay, 1 have discovered there is no exist¬ Service. Last fall the proposal for a Foreign Service ing framework within which to search for employ¬ Associates program was approved by the board of the ment either in the embassy or in the international Association of American Foreign Service Women and community there. My own efforts to find some presented to the State Department management meaningful employment at post have thus far team. The program incorporates the elements of ca¬ turned up nothing. 1 am faced with the wrenching reers, recognition, and compensation, but it is more choice of setting all career goals aside for a two- than the sum of these parts. It is also much more than year period or remaining at my current job in an updating and dignifying of traditional functions. Washington during my husband’s tour. The intent of the FSA program is twofold: first, to provide a participatory framework in which all One male spouse, who resigned from the National spouses at posts can opt to contribute their skills and Park Service to accompany his wife abroad when she experience to mission activities; and second, to create joined the Foreign Service, has spent a great deal of new job options that will advance U.S. interests while time as a volunteer, assisting government and private enabling spouses to build solid careers during the conservation efforts in two Third World countries. years they are linked to the Service. Free-lance writing has brought in far less than his The program would not be a panacea. For the high¬ earlier professional salary. Now, he is seriously re¬ ly trained professional, it would make possible the thinking whether he can afford to stay overseas. pursuit of a coherent, long-term career. But there Such are the dilemmas that Foreign Service life would be trade-offs. A career developed while accom¬ poses for its younger members, and for more of its panying a Foreign Service employee will be different senior members than many of us realize. The possibil¬ than one pursued in the United States. It would, ity—and, for many, the need—for spouses to be able however, open up possibilities that would not other¬ to build and maintain professional careers within the wise be available. For the less-specialized spouse too, context of the Foreign Service lifestyle has become a it would permit the development of a meaningful central issue for Service families. This, along with the career. For both, the Associates path should make it desire for recognition (as a contributor to mission possible to reconcile the two worlds—remaining in a efforts) and compensation (including retirement Foreign Service family and creating a satisfying and benefits in one’s own right) is causing increasing dis¬ far from prosaic career. satisfaction and disaffection. Tensions are building The Associates program would encompass a wide not only between families and the Service, but within range of activities, determined by each post under families as well. guidelines from Washington with the purpose of fur¬ thering U.S. interests. Spouses of all Foreign Service Susan Low has been a Foreign Service spouse for 29 years employees (hopefully of all U.S. employees at post) and has lived at a number of posts in Africa and Latin would be eligible. A voluntary agreement would be America. During Washington tours she has worked at the established between the individual spouse and the Atomic Energy Commission and the Overseas Development mission, designating specific functions that the asso¬ Council. Recently she served as AAFSW Forum chairman. ciate would undertake for an agreed number of hours

24 FOREIGN SERVICE JOURNAL per week at a fixed rate of pay. Performance would be monitored and evaluated regularly. Four major areas of activity are included within the program; • Community-building within the mission. This ±he need for spouses to would include all the functions that go into building morale within the official U.S. community at post. It maintain professional careers would support and augment the activities of the com¬ munity liaison offices. within the context of the • Catering to fill the mission’s representational needs. The services of those associates who manage Foreign Service lifestyle has representational events would be available to all with¬ in the mission who have such responsibilities. (A become a central issue reassessment of what constitutes “representation” and how it is delegated would need to be undertaken at the same time that this service is put into place.) An associate’s pay would be based on a common • Outreach to the host country through communi¬ rate. Increases would be awarded after a certain num¬ ty interaction. This would take many forms, involv¬ ber of hours in active status—even if those hours had ing exchanges with community groups in varied sec¬ been interrupted by periods of inactivity in the pro¬ tors of the host society. gram. Having a standard rate of pay underlines the • Seconding of professional skills to the host gov¬ service orientation of the program. It would also make ernment. Associates' skills would be matched with it less onerous for those who cannot find an opening in the needs of the host country and would be used in their preferred field to take a job that ranks lower in local projects. their priorities. Standard pay also makes it less cum¬ The last two in particular have the potential to bersome for an associate to put together a package of make a substantial contribution to U.S. understand¬ functions, such as 20 hours as an urban planner and ing of the local scene. All four areas together would 10 as a caterer. Perhaps most important for post mo¬ constitute a significant addition to the effectiveness of rale, it avoids invidious comparisons of the value of U.S. representation abroad. Furthermore, the Associ¬ different functions, sidestepping the delicate question ates program would use skills possessed by those al¬ ot which are more valuable at post. Who can say, for ready at post and would encourage spouses to go instance, that a lawyer is more useful than a caterer in abroad by incorporating them into the system in a Ougadougou? meaningful way. Some of those who have reviewed the Associates The exact nature of the program’s activities would program have objected that a professional—such as a be determined by the needs of the specific post at any lawyer—should be compensated in terms of salary for given time. The esprit of the program is to do what the high cost of education and training. But the pur¬ needs doing, and to seek out new projects and oppor¬ pose of this program is different: it is designed to tunities that could benefit the mission. It is unlikely make possible the use of professional skills so that the that there will be too few jobs for those who want associate can accompany the Foreign Service employee them; instead, once the program is in full swing, abroad. If this is the primary objective of the spouse, there will probably be more jobs than available peo¬ the pay scale ceases to be of overriding importance in ple. most cases. If, however, the individual has different Adoption of this program will not spell the end of priorities, such as receiving a salary based on probable other job opportunities for spouses. Other routes to wages in Washington, this program may not be suit¬ employment would remain open and doubtless be able. expanded: more “part-time, intermittent, and tem¬ To equip associates to perform professionally over¬ porary” (PIT) positions will probably be created, and seas in the fields in which they are working, training efforts to negotiate work agreements with other gov¬ should be considered an integral part of the program. ernments will continue. An associate would remain Ideally, the associate should be paid during training. free to take the best option available at the particular If this is not feasible in the initial stage of the pro¬ post. In fact, an associate could opt for active or gram, however, the time spent in training should be inactive status for any particular tour depending on credited toward future increases in pay. personal circumstances and job conditions at post. An Training should include: language and area prep¬ associate who has young children or other personal aration; updates on a v'ide range of happenings in the reasons might thus choose inactive status. Many United States (cultural, political, economic, socio¬ might find that a 20- or 30-hour week would fit best logical); and instruction in specific skills (such as with other commitments. Some spouses might choose catering management or community relations) related not to join at all. During the initial phase, while the to the function the associate will perform at post. The mechanics are being smoothed out, a fairly small pro¬ aim of such training should be to ensure that these portion of spouses may choose to be active members of functions are carried out at a professional level. This is the program, but participation would probably be¬ clearly in the interests of the mission and the United come widespread after a few years. A rough estimate States. Why, for example, should the Service expect a of total employment in the introductory years of the spouse, however good a cook, to handle with aplomb program might be the full-time equivalent of 1000 the planning and execution of a sit-down dinner for associates. 100 guests? How can a person, even with years of

MARCH 1985 25 experience in inter-cultural skills, function effectively country. Experience has shown this to be true. without speaking the language of the host country? Proposal was met with enthusiasm and popular The Associates proposal raises a host of admin¬ support at this mission, but with the knowledge istrative questions: Who will run the program? Who that successful implementation.. .will require will write the job descriptions and choose among command emphasis and depend upon mounting a applicants? How will performance be evaluated? Who strong mechanism for its management. will monitor the spouses of senior officials? What happens if an associate is not performing adequately? From an Eastern European capital: The State Department, which is giving serious con¬ sideration to the proposal, now has these and other There are many problems in creating such a pro¬ questions under study. All posts have been queried gram, but we feel the FSA program is worth pur¬ and their responses are being assessed to help shape suing. It does not answer the needs of all spouses, the program. but it is a start, providing personal recognition as well as financial rewards.

A NYONE WHO MIGHT play down the value of From a Western European capital where “every re¬ f\ spouse contributions to mission efforts, or sponse showed an enthusiastic reaction and strong who doubts the scope for career develop- support”: JL JL. ment in that role, would do well to note the perspective of a Foreign Service officer who is on For the program to succeed, everyone needs to take leave without pay to accompany her FSO husband to a it seriously. It will take time for the Foreign Ser¬ post where he is principal officer. Her account of the vice community to accept the idea that these peo¬ unaccustomed role of dependent spouse shows a new ple are being paid fair wages for work that deserves awareness of that role’s importance in the functioning remuneration. For that to happen, the evaluation of the post. She cites wide-ranging use of managerial of individuals’ work has to be reasonably vigorous and interpersonal skills to support morale both within and fair These are serious jobs and it should be the mission and the larger American community. She clear to everyone that they will be treated, paid, notes the range of tasks required to prepare and ex¬ and evaluated seriously. ecute official entertaining. And she effectively points out the intercultural skills that a spouse can bring to The two spouses whose predicaments opened this bear in a wide variety of representational activities if article epitomize what the Associates program is she is aware of the broader picture in the host country. about and why it is important. The lawyer supports In brief, she has found the role of spouse to be “a job the program as addressing the concerns of two-career with enormous scope and responsibilities.” families by offering “the vital framework now con¬ Some spouses have objected that the proposal tri¬ spicuously absent for negotiating job opportunities.” vializes their current activities by suggesting that a She urges that it be put into effect rapidly, confident monetary value can be attached to them. But those that it “could create job opportunities that would who support the program tend to see it the other way otherwise not be available and significantly reduce the around—being paid is a good indication that the uncertainty which presently confronts the spouse in¬ activity is valued. Critics from the other direction terested in working at post.” The conservationist con¬ object to paying for services that have traditionally cludes that the program would make it possible for been performed without charge, some of them adding him to use his professional background in an effective that the government cannot afford the expense. In all way and give him a sense of being part of the embassy fairness, however, the government should expect to community. He believes that the program would do pay for such services. In fact, its failure to put these much to strengthen Foreign Service morale and would services on a businesslike basis has had two effects: it both attract and retain people in the Service. has put an increasing burden on those spouses who do The Foreign Service Associates proposal is not yet volunteer, a group that is growing smaller; and it has in final form. It is now being studied within the State induced a cutback in the provision of these important Department and shaped into a viable program. It will services. As a result, post morale, the adequacy of then be submitted to Congress for authorization and entertaining efforts, and contacts with the host soci¬ funding. The costs involved are not large in compari¬ ety beyond the official realm have all suffered. With son with the benefits to U.S. objectives. Current an increasing proportion of Foreign Service employees management of the department has demonstrated going abroad as singles or without spouses, the Ser¬ both its willingness to seek and its ability to get the vice needs to look elsewhere than to volunteers to resources needed to represent this country abroad maintain these vital functions. most effectively. A clear majority of early responses from posts to the It is clear from the responses of posts and of spouses department’s request for evaluation of the proposal that adoption of the program would go far toward have shown positive endorsement of its objectives and improving morale overseas and enhancing mission thoughtful consideration of the means of implementa¬ contact with the host community. With support from tion. From a Third World mission: Foreign Service families and the department, the pro¬ gram stands a good chance of becoming a reality and Consensus is that proposal is enormous step for¬ contributing an important dimension to the future ward. Proposal assumes that spouses at post have shape of the Foreign Service. It is an idea whose time skills to fill existing needs of both mission and host has come. d

FOREIGN SERVICE JOURNAL SPOUSES IN OTHER FOREIGN SERVICES

Although the debate is probably most heated within the U.S. Foreign Service, employment and compensation for spouses of Foreign Service employees is a universal problem. Various methods are used to deal with it, from reciprocal employment agreements, to direct compensation, to embassy hiring programs. Below, a sampling compiled from information supplied by Washington embassies. The Finnish government compensates spouses of diplomatic officials at a percentage of the cost-of-living adjustment designated for the The question of spouse employment and com¬ particular post that depends on the officer’s pensation has increasingly become an issue in rank. Twenty percent is the minimum any the Thai Foreign Service during the past 10 FINLAND spouse can receive. All foreign service spouses years. Thai women are better educated now posted abroad receive this compensation, and it than they were a decade ago, and many are no is tax-free. In addition, Finland holds reciprocal agreements with THAILAND longer content to stay at home while their hus¬ some governments, allowing Finnish spouses to work in the host bands work. The spouses of diplomats are no country. different, and the difficulty in finding work at posts has created some discontent. Some spouses have found a solution by under¬ going training while abroad, furthering their careers when they Spouse employment and compensation is not return. But training possibilities depend on the country in which really a problem for the Brazilian foreign ser¬ one is stationed, and less-developed countries offer few. vice, an official of the Brazilian embassy told The spouses of Thai embassy officials are expected to perform us. Although spouses do perform representa¬ representational duties, such as charity work and hosting social tional duties, they are not compensated. There functions. In recognition of the importance of such duties, the BRAZIL are no reciprocal agreements for employment Thai government compensates spouses at 30 percent of the offi¬ between Brazil and other countries and spouses cer's pay. If spouses do find work in the host country—a rare are not allowed to work in the embassies. Some spouses have occurrence—they forfeit this compensation. found jobs as teachers, professors, etc., but most realize they will not be able to work when they go overseas.

Compensation and employment for spouses has not yet become a widespread problem in the West German foreign service, but, according An official of the Australian embassy says the to an official at the embassy in Washington, spouse issue is becoming a real problem within expectations are rising that real difficulties may its diplomatic service. The government offers W. GERMANY emerge in the future. With local laws and un¬ no compensation to spouses, but on rare occa¬ employment making it impossible for West sions, some have been able to obtain jobs with¬ German spouses to work in some countries, adequate employ¬ AUSTRALIA in the embassy. ment opportunities are scarce. On some occasions, the embassy Australia has just signed a reciprocal agree¬ will hire spouses of officers, but only if a position is open and the ment with the United States allowing spouses of each country's spouse meets the requirements. diplomatic officials to work in the other country. Australia has Increasingly, officers are accepting only those assignments similar arrangements with several other countries. where their spouses can be guaranteed employment. Very few families have separated, with the spouse staying in West Ger¬ many to work, but the official we spoke to says this is likely to ~| The Malagasy government assigns couples who become a more frequent scenario. * are in the civil or diplomatic service to the same HjHHB post. Spouses who are not government employ- WBHMHB ees may apply for work authorization and must "H There is no problem with spouse employment report any job activities to the embassy. Recip- <*> in the Egyptian diplomatic corps, insisted an MADAGASCAR rocal agreements exist with the United States official of the Egyptian embassy. He said that and France. I although many women in Egypt have careers, The government does not pay spouses on a percentage basis, no discontent has been voiced when they leave but embassies may hire them for some low-level positions. These EGYPT them to go abroad on assignments. If the state¬ are paid for through monies allocated for local services, and ment that most Egyptian officers have their spouses filling them do not qualify as permanent civil ser¬ families with them at posts is true, spouses do not seem to be vants. staying in Egypt to avoid interrupting their careers. —Nancy Bartels

MARCH 1985 27 PIG IN A POKE

Why did Kennedy buy the Bay of Pigs invasion plan when his advisers—as well as State, Defense, and the CIA—had serious doubts about its success?

BARTON J. BERNSTEIN

VICTORY HAS A hundred fathers and defeat The planning to depose Cuba's communist leader is an orphan,” a chastened John F. Kenne¬ began early in I960. Bisseli and Dulles, as well as dy, then 90 days in the White House, others in the Eisenhower administration, thought ruefully said after the debacle at the Bay of Castro a menace who might inspire or assist revolu¬ Pigs in April 1961. Nearly 1300 Cuban emigres had tions and thwart U.S. investments in Latin America. been captured or killed and Ambassador Adlai Ste¬ In March, probably at the urging of Vice President venson had been caught deceiving the United Na¬ Nixon, Eisenhower authorized the CIA to prepare for tions. Many Republicans were castigating the presi¬ a modest venture: the recruiting and training of about dent for not committing U.S. troops to the battle and 300 Cuban emigres, who w'ould be sent in small some liberals were condemning the U.S. role as im¬ groups to help organize a counter-revolution. During moral. the summer and fall, this modest project began to The battle by accusation began. "My God, the grow and change. Bisseli added a small air force and bunch of advisers we inherited,” Kennedy com¬ an infantry of 500-600, with heavy firepower ade¬ plained. He blamed the CIA, especially the project’s quate for an invasion. He halted the guerrilla training planner, Richard Bisseli, and Director Allen W. Dul¬ and stressed preparation for an amphibious assault. les. The CIA had devised a poor plan, oversold it, His new plan presumed that the invasion would pro¬ mishandled its implementation, never acknowledged voke a revolution. “The objective would be to seize, its weaknesses, and misled the president, Kennedy hold a limited area in Cuba, maintain a visible pres¬ said. He also faulted the Joint Chiefs of Staff, especial¬ ence, and then to draw dissident elements to the ly Chairman Lyman Lemnitzer. The Joint Chiefs, he landing force, which hopefully would trigger a gener¬ said, never let on about their private misgivings and al uprising." had used language that turned their doubts into an Why this new plan? As a recently declassified re¬ endorsement. port by the Taylor commission, created by Kennedy The CIA and Joint Chiefs blamed the president. to study the Bay of Pigs failure, explains: “The air He had let international politics shape military poli¬ drops [of guerrillas] were not proving effective. There cy. He had reduced the invasion force, shifted its were increasingly heavy shipments of communist striking point to the Bay of Pigs, limited a prelimi¬ arms to Cuba, accompanied by evidence of increasing¬ nary air strike designed to destroy Castro’s air force, ly effective control of the civilian population by Cas¬ canceled a second air strike, and refused to commit tro. [There was] declining confidence in the effective¬ U.S. troops. In short, he had been chicken. The lead¬ ness of guerrilla efforts alone to overthrow Castro.” ers of the Cuban emigres, too, lashed out at the presi¬ Put bluntly, the modest project was proving unwork¬ dent, charging him with betrayal. They also blamed able, and time seemed to be running out on toppling the CIA. The agency had bullied and lied, promising Castro without U.S. troops. U.S. troops. It had failed to inform them of the date Eisenhower did not seem to take much interest in of the invasion, preventing their call for revolution. the project, probably because he was in his last year The CIA had inadequately trained the brigade, given and major crises—including the U-2 affair and dis¬ it faulty equipment, mishandled logistics, and relied putes over Berlin—occupied his time. In September, unduly upon supporters of Castro’s deposed predeces¬ he did authorize $13 million, still emphasizing that sor, Batista. he was not approving a major action. He decreed, in Twenty-four years later, how can we explain the the words of a later study, that “no United States failure of the Bay of Pigs invasion? Why did Kennedy military personnel were to be used in combat status." endorse such a risky scheme? Why didn’t he recognize Eisenhower bequeathed to Kennedy the plan and the its liabilities? Why didn't the CIA, Joint Chiefs, and emigre force, which was under CIA training in Gua¬ his aides warn him of its many weaknesses? Which temala. At a meeting with Kennedy the day before changes in the plan may have led to its failure? Why the inauguration, Eisenhower loosely sketched the didn’t he commit U.S. forces when the emigres were plan. He declared it "the policy of this government facing defeat? Finally, was success in fact possible? [to help the exiles] to the utmost,” and recommended continuation of the effort. “We cannot let the present Barton J. Bernstein, long-time contributor to the JOURNAL, government there go on,” he said. Outgoing Treasury is professor of history at Stanford University. Secretary Robert Anderson explained that U.S. cap-

FOREIGN SERVICE JOURNAL ital investment plans in Latin America were “waiting In line with Bundy’s suggestions, Kennedy soon to see whether or not the United States can cope with authorized the necessary actions: more publicity for the Cuban situation.” For Kennedy, both domestic the U.S.-shaped emigre coalition, possibly preparing pressures and personal inclinations coalesced to make it to become a government-in-exile; a white paper on the project attractive. It promised to rid the hemi¬ Cuba accusing Castro of betraying the revolution and sphere of Castro, establish democracy in Cuba, and thus justifying an emigre attack and a new revolution; warn other left-wing movements of the likelihood of and an effort to win the support of the Organization of U.S. intervention. It also might bring revolution in American States to isolate Castro diplomatically and Latin America to a halt. economically. Kennedy also took precautions to determine the military soundness of the CIA plan. He did not fully OTHER FACTORS further predisposed Kenne- trust the agency, despite its success in Guatemala in i dy to the plan. During the recent cam- 1954 and Dulles's promise of an even better chance in ' paign, he had castigated Eisenhower for Cuba. (The president did not know that the CIA had permitting the triumph of communism deemed Guatemala a very high-risk venture.) Kenne¬ in the hemisphere. Kennedy had even implied that he dy wanted the independent counsel of other experts— might act to overthrow the Cuban. Now in office, the Joint Chiefs of Staff. The Joint Chiefs had report¬ could he cancel the project and risk the outrage of the ed early in February that the CIA plan had “a fair CIA and the emigres? No, for charges of “lack of chance of ultimate success," which meant, in their courage" would allow the Republicans to skewer him unusual iexicon, a 70-percent chance of failure. Pre¬ and thus imperil his other programs. And, if he did dictably, neither Secretary of Defense Robert McNa¬ not sanction the venture, what would he do with the mara nor the president understood this peculiar Cubans? They were, as Dulles emphasized, “a dispos¬ meaning of "fair chance." The Joint Chiefs’ report al problem.” seemed to be a ringing endorsement. Only if the project seemed likely to produce disas¬ Why had the Joint Chiefs used such misleading Kennedy receiving ter would Kennedy have been inclined to cancel it. language? Was it just inept drafting? No. They prob¬ brigade flag from Perhaps the CIA would dangerously bungle the logis¬ ably did not want to risk a confrontation in the new Cuban emigre force tics or the predicted revolution would not develop. Or administration by clashing with the CIA, but they leaders a year after maybe he would face a choice between committing did want to preserve the option of pointing to their the Bay of Pigs de¬ U.S. troops and accepting defeat. Yet none of these reservations if the project failed. Elsewhere in the feat. After the bat¬ possibilities seemed likely to the new president or his report, they hinted at their doubts. “It is obvious,” tle, the emigres had top aides. they warned, “that ultimate success will depend upon charged Kennedy Among the various agencies involved, there was no political factors, i.e., a sizeable popular uprising or with betrayal and had blamed the CIA consensus on whether—or how—to proceed with the substantial follow-on forces.” Their veiled implica¬ for promising U.S. plan. In early February, McGeorge Bundy, the na¬ tion, tucked away in bureaucratic prose, was that troops. tional security adviser, reported to Kennedy that both U.S. forces might be necessary. Defense and the CIA “now feel quite optimistic about They went on to stress the need for an evaluation of the invasion—at worst they think the invaders would the “combat effectiveness of the invasion force [and of get into the mountains, and at best they think they the] highly complex...logistic aspect of the plan." might get a full-fledged civil war in which we could Accordingly, a special Joint Chiefs group visited the then back the anti-Castro forces openly.” The State emigre base in Guatemala in late February and sub¬ Department, in contrast, worried about possible dip¬ mitted what should have been an unsettling report. lomatic repercussions—a position reaffirmed by Because of the “visibility” of training groups in Gua¬ Bundy himself and Richard Goodwin, a presidential temala and , the special group said, “the aide. State, Bundy, and Goodwin were not opposing odds against surprise being achieved was [sic] 85 to the project, but they counseled caution and advised 15." And without this surprise, “the attack would consultation with Latin American nations and diplo¬ fail.” Put bluntly, the special group was saying that matic efforts to isolate Cuba “before any drastic action the chances for success were remote. is taken.” But the Joint Chiefs themselves were not so pessi¬ Later that month, Bundy informed the president mistic. They did not believe that Castro was likely to more fully of the disputes among advisers—with Bis- anticipate the landing area. For them, the loss of sell and Thomas Mann, assistant secretary of state for general secrecy—the fact that the press had reported inter-American affairs, being “the real antagonists." the training bases—did not impair the specific secret Bissell argued that Castro’s internal strength was of the landing site. Their conclusion: “The plan could growing and thus there was a need for speedy action. be expected to have initial success” [emphasis added]. Mann insisted that public opinion, both domestic and The invasion would succeed. For the chiefs, the ques¬ foreign, was not ready for the invasion. Bundy's pro¬ tion of ultimate success depended on political—not posal, based partly on Mann’s recommendation, was military—issues: Would the invasion serve “as a cata¬ to create a government-in-exile, impose a full trade lyst for further action [by] anti-Castro elements”? embargo, and “sorrowfully read [Castro] out of the New problems arose. The president insisted that liberal family.” The United States would delay the the scheme must remain covert, yet the plan—with attack for about three months and even build up the its air strikes and landings—would surely be recog¬ emigre forces. “And when [they] did go in [in mid- nized as U.S.-sponsored. To conceal the United May], the color of civil war would be quite a lot States’ role, the State Department pushed for substan¬ stronger,” Bundy argued. tial modifications. Since the press had already picked

MARCH 1985 29 up stories of U.S. support for the training camps, why the Taylor report, “that none of the alternative con¬ did Kennedy and his advisers, including Mann and cepts [was] considered as feasible and likely to accom¬ others at State, believe that the operation could re¬ plish the objective." They considered the new plan on main covert? How could denials succeed? Kennedy at least four occasions, and they attended some of the and Secretary of State Dean Rusk nonetheless clung to high-level planning sessions with the president, but their hope of keeping the operation under wraps, and they nonetheless did not raise objections. This acqui¬ most others shared that hope, were subtly intimidat¬ escence “gave others the impression of approval,” the ed from puncturing it, or were kept uninformed. Taylor report concluded. But another factor was the Because Kennedy and Rusk demanded that U.S. close secrecy, keeping out people at State, Defense, sponsorship be concealed, Bissell was compelled to the CIA, even at the White House and on the Joint revise his plan. He had to devise a new one: a reduced Chiefs’ staff who might have noticed the loss of the invasion, probably at night, using a Cuban airfield safety valve. “to which any tactical air operations could be attribut¬ There was also the inadequately examined issue of ed." That way, the emigre air force—with U.S. B-26s how and when the predicted revolution would erupt. disguised as Cuban-government planes, and with The hope, at least at times, was not for an immediate U.S.-trained Cuban pilots flying from Nicaragua— toppling of the Castro regime; instead planners envis¬ could be passed off as defectors. As for the deployment aged a large beachhead, a growing revolution, defec¬ of the ground troops, Kennedy insisted that the new tors joining the emigres, a crumbling militia and scheme should provide, in the words of the Taylor army, the establishment of an emigre government at report, “for a ‘quiet’ landing...without having the the beachhead, American diplomatic recognition, appearance of a World War Il-type amphibious as¬ and more aid—but not U.S. troops. sault.” In fact, there was some opposition to the invasion. Some of it never reached the president, probably be¬ cause intermediaries knew he would be unsympathet¬ A LESS PERSUASIVE or less committed man than ic. Chester Bowles, Rusk’s deputy, had learned of the Bissell might have junked the scheme at plan in late March when he substituted for the secre¬ this point. It was being whittled away— tary at a cabinet meeting. Bowles did not express his L dangerously, he would later charge. But opposition there but soon complained to Bundy and he and Dulles were both committed. Perhaps they did to Roswell Gilpatric, deputy secretary of defense. not realize how much the risk of failure was increasing When Rusk returned to Washington, Bowles sent with the revisions. Had Bissell been more cautious, him a lengthy memorandum, arguing that the inva¬ he might have pointed out the increased difficulties, sion was illegal, immoral, politically dangerous, like¬ explained that the dangers were very great, and force¬ ly to offend allies, and militarily risky. “The chances fully confronted Kennedy with a difficult choice—a of success," he said he had been told, “are not greater large, possibly overt operation, or a very risky covert than one out of three.” So failure was likely unless one. Bissell was not inclined to such caution. He U.S. forces were committed. Why not, he suggested, probably sensed that Kennedy wanted action, not “cancel the invasion and limit ourselves to small and cautious agonizing like State, which the president scattered operations. We should not proceed with the was already lampooning as a “bowl of jelly.” It took venture because we are wound up and cannot stop.” months, Kennedy knew, to get answers from State. Bowles was prepared, if necessary, to plead his case Bissell could meet new standards within days. with the president directly, but Rusk informed him Bissell’s earlier plan—the one the Joint Chiefs on April 4, after a top-level White House meeting, judged as having a 30-percent chance of success—had that the plan “had been greatly modified and that he been targeted near the Escambray mountains, where did not feel it was necessary for me to see Kennedy," the CIA promised that the invaders could “melt” if Bowles later wrote. the revolution did not erupt or other difficulties Had Rusk so misunderstood the new plan? Possi¬ emerged. For Kennedy, this escape valve was un¬ bly. More likely, he did not wish to sanction a bu¬ doubtedly one of the plan's attractions. As long as the reaucratic end-run, for he was jealous of his position invaders reached the shore safely, they were not likely and feared that Bowles, though he annoyed the presi¬ to be captured or killed. The plan might not succeed, dent with his New Deal moralizing, might be closer but it could not fully fail. But this site lacked the to Kennedy. Hence, when Bowles asked Rusk wheth¬ nearby airfield necessary for the cover story. When er the new operation “would make the front page of Bissell came up with alternative landings, he failed to the New York Times," the secretary, in Bowles’s inform Kennedy that the new areas were distant from words, “doubted it.” Bowles’s basic objections prob¬ the mountains. The site ultimately selected, the Bay ably would not have moved Kennedy anyway, for the of Pigs, was over 50 miles away. under secretary’s moralism and self-righteousness did Why didn’t Bissell or the Joint Chiefs tell Kenne¬ not command the president’s respect. And within a dy? The evidence is murky. The most charitable ex¬ few days, at most, the president disposed of Senator planation is the most unlikely: that Bissell, Dulles, William Fulbright's similar objections. Fulbright, and the chiefs all believed that Kennedy understood chairman of the Foreign Relations Committee, plead¬ the liability of this new choice. The most likely is that ed his case at the White House meeting but found no Bissell did not want to provide information that support from Rusk, Bundy, Mann, McNamara, or might kill the project. The role of the Joint Chiefs is the Joint Chiefs. What would Kennedy have done if less clear. In mid-March, they had vaguely covered Bowles’s memo had reached him with the news that themselves by informing McNamara, in the words of the likelihood of success was only one-third?

30 FOREIGN SERVICE JOURNAL Opposition also came from one of Kennedy's aides, A few days before the invasion. Colonel Jack Haw¬ Arthur M. Schlesinger Jr., who voiced modest objec¬ kins, a CIA operative long involved in the project, tions after the meeting with Fulbright and wrote two flew to Guatemala for a final appraisal of the brigade. subsequent memorandums to the president. Schle- He sent back a glowing report predicting victory: on singer’s arguments were not moral but tactical. He defeat of Castro’s forces, his soldiers “will melt away” warned that “a swift, surgical strike” would not suf¬ and the people will flock to the emigre group. “It is a fice “since the Castro regime is presumably too strong Cuban tradition to join a winner." Hawkins exuber¬ to be toppled by a single landing.” The operation antly continued: "My observations have increased my “will turn into a protracted civil conflict,” he predict¬ confidence in the ability of this force to accomplish ed. The United States would get sucked in, its spon¬ not only initial combat missions but also the ultimate sorship would be revealed, and Kennedy might have objective, the overthrow of Castro.” He praised the to commit U.S. troops. The warnings did not convert brigade (“well organized and more heavily armed" the president, though they may have contributed to than many U.S. units and with more “intensive train¬ Cuban plane in his continued pressure for air strikes. And Kennedy ing in the use of...weapons”), their officers (“vigor¬ flames after U.S.- did not accept Fulbright’s fear that the exile force was ous, intelligent, motivated”), and the brigade’s air sponsored airstrike inadequate or Schlesinger's that the revolution would force (“equal to the best U.S. Air Force squadron”). before the invasion. not occur. He reassured Washington that he had delivered the The strike failed to By April 8, according to Schlesinger, President eliminate Castro’s president’s message that “under no conditions will the airforce, and Ken¬ Kennedy had probably reached a decision. That week, U.S. intervene with any U.S. forces.” The brigade nedy canceled a Schlesinger tried to organize some bureaucratic forces officers, he informed Washington, “do not expect follow-up attack to move Kennedy against the invasion, but Richard help from U.S. armed forces. They ask only for con¬ after unfavorable Goodwin, the junior aide who shared Schlesinger’s tinued delivery of supplies [after landing].’’ This ar¬ publicity in the doubts, was not a sufficiently powerful ally to turn the dently enthusiastic cable, which Bissell sent to the United Nations. tide. Their combined efforts to enlist Rusk accom¬ president, undoubtedly ratified the president’s belief plished little. “Maybe we've been oversold on the fact that the operation was militarily sound. that we can’t say no to this," Rusk admitted to Good¬ The issue for Kennedy, then, was not the capability win. In talking to Schlesinger, the secretary returned of the exiles, nor the logistics, but trying to maintain to his earlier suggestion that had appalled the Joint a covert operation. A week before the invasion, the Chiefs: Maybe the operation should start from Guan¬ plan had boiled down to an early air strike designed to tanamo, offering a safe retreat. “It is interesting to wipe out Castro’s air force, followed by an air-sup¬ observe the Pentagon people,” Rusk remarked. “They ported amphibious assault at the Bay of Pigs, where are perfectly willing to put the president’s head on the the force would gain a beachhead and sew the seeds of block, but they recoil from the idea of doing anything the counter-revolution. But, still fearful of attracting which might risk Guantanamo." too much attention, on April 14, only hours before the first bombing and three days before the invasion, Kennedy reduced the preliminary air strike. Bissell THAT SATURDAY, when Schlesinger jour¬ could not oppose the president on this without risk¬ neyed to New York to brief Adlai Stevenson ing cancellation of the invasion itself. Moreover, he on the invasion, he did not try to enlist the had never been eager for the early attack, dictated ambassador, Kennedy’s former political ri¬ partly by the cover story of defectors from Cuba and val, in the effort to halt the project. Stevenson, ac¬ partly by the unwillingness simply to endorse a mas¬ cording to one member of the briefing group, “was sive strike on the invasion day. The Joint Chiefs had very much against the operation. Right from the be¬ also raised serious military doubts about the prelimi¬ ginning.” Schlesinger noted that Stevenson “wholly nary air attack because it would alert Castro to a disapproves of the project [and] believes it will cause possible invasion. infinite trouble. However, he is substantially a good In any case, it was not very effective. The lumber¬ soldier.. .and prepared to try and make the best possi¬ ing B-26s, flying from Nicaragua, had little time ble U.S. case {in the United Nations].” On April 11, over their targets before running low on fuel, and they the day after Schlesinger’s second memo to the presi¬ managed to destroy only five of Castro’s approximate¬ dent, Attorney General Robert Kennedy ordered the ly 30 planes. The emigre pilots were more optimistic. | aide to halt the criticism. “You may be right or you They claimed great success, contending that they had may be wrong,” the younger Kennedy told the Har¬ destroyed half the aircraft at one field, three-quarters vard historian, “but the president has made up his at a second, and five at a third. Until the later photo¬ mind. Now is the time for everyone to help him all graphic assessment, it appeared that the attack might they can.” provide emigre air control in the forthcoming battle. Probably the arguments of Schlesinger and Fui- The bombings unleashed a fusillade of criticism at bright would have had greater impact in January or the United Nations, where the United States was early February, when the project was still new, the accused of launching the attacks. Various cover stories president felt less committed, and Bundy and Mann speedily unraveled, and Stevenson—perhaps un¬ were raising some doubts. By the early spring, how¬ knowingly—deceived the United Nations. Two days ever, the momentum was too great for the president later, he fired off a complaint to the State Depart¬ to turn back: He would surrender a tasty opportunity ment. “If Cuba now proves any of the planes and to topple Castro, face the hostility of hardliners in the pilots came from outside...no one will believe that I bureaucracy and the GOP, imperil other programs, bombing attacks.. .could have been organized with¬ I appear weak, and still face the “disposal" problem. out our complicity.”

31 Trying to save his administration from internation¬ crush them. At best, air control might have allowed al embarrassment and knowing that Stevenson was the emigre force to escape by sea. That would have embattled in New York, Kennedy decided to cancel reduced the severity of the failure. It would not have the second air strike, scheduled for the day of the avoided defeat. invasion. Further air strikes “should not be launched The predicted revolution and the mass defections until they could {or would appear to] be conducted from Castro’s military never materialized. The mili¬ from a strip within the beachhead,” and thus the tary and the population remained generally loyal, and claims of an attack planned by exiles and flown by Castro had rounded up any dissidents. The CIA was defectors would be credible. Kennedy was allowing profoundly wrong in its analysis that "the disenchant¬ international politics to shape military tactics, but he ment of the masses has spread through all the provin¬ had little reason to suspect that he was seriously weak¬ ces.... The Cuban army has been successfully pene¬ ening the invasion. trated by opposition groups and...will not fight in the event of a showdown.” One CIA official later lamented, “All intelligence reports coming from al¬ ON SUNDAY EVENING, both Bissell and Gen- lied sources indicated quite clearly that [Castro] was k eral C.P. Cabell, deputy director of the thoroughly in command of Cuba and was supported f CIA, pleaded with Rusk, who was left in by most of the people who remained on the island.” charge, to reverse this order. They Before the invasion, the CIA had been markedly dif¬ stressed that there might otherwise be a large loss of ferent in its analysis. Undoubtedly, it was more in¬ supplies because of bombed ships, as well as attacks clined to trust the reports of Cubans who had defected by Castro’s air force. They did not argue that this to the United States. The CIA’s higher officials pre¬ second air strike was essential, however, perhaps be¬ ferred to receive reports of weakness, and thus the cause they did not want to risk having Kennedy cancel agency interpreters felt subtle pressures to provide the invasion. It was, they said to Rusk, "important such assessments. [but] not vital.” When Rusk refused to restore the air Within the administration, few had any inclina¬ strike, they rejected his invitation to let them plead tion to question the CIA's optimistic conclusions. their case directly to Kennedy. Why go through the When Schlesinger informed Kennedy in late March useless ritual of also losing to higher authority and that journalists who had recently visited Cuba found possibly inviting the president to cancel the invasion? Castro quite popular, the president briefly discussed About eight hours later, in the early morning of the the matter and evidently chose not to believe this 17th, as the invasion started, Cabell did appeal to informal evidence. It ran contrary to the experts’ anal¬ Kennedy. The deputy director first called Rusk at ysis as well as to what he wished to believe. The 4:30 a.m., “reiterated the need to protect the ship¬ president and most of his associates comfortably clung ping," and then telephoned the president. “The re¬ to their ideological conviction that a successful revo¬ quest for air cover was disapproved," but Kennedy lution was likely. By their analysis, the United States allowed the CIA to deploy some destroyers nearby, was liberating Cuba. Castro was an oppressor, the Cu¬ presumably as implicit threats against Castro’s forces. bans hated communism, and the country was ripe for Because Cuba maintained control of the air, the 1500 upheaval. That set of beliefs, so rooted in liberal invaders undoubtedly faced a formidable task. Cas¬ ideology, ratified the administration’s hostility to tro’s planes sank a key supply ship carrying 10 days of Castro, encouraged Kennedy to minimize or ignore ammunition, attacked some landing craft, and strafed criticisms, and seemed to justify the plan to over¬ the men on the beach. But the second air strike, throw the Cuban. contrary to later claims, would not have made much There is a lingering, seldom-considered question: difference because Castro had dispersed his planes Why didn’t Kennedy commit U.S. troops to the bat¬ after the first air attack. tle to avert defeat and even achieve victory? On the Nor did major logistical blunders make the critical 18th, when the invasion forces were clearly imper¬ difference; The decision by a small decoy landing iled, the president rejected requests by Bissell and party to turn around; the ignorance about dangerous Admiral Arleigh Burke, chief of naval operations, for coral reefs (misinterpreted in photos as seaweed) on a naval air strike. But Kennedy did authorize navy which some landing craft ran aground; the wetting of ships to move closer to shore, presumably to intimi¬ portable radio equipment so that some units could not date the Cubans, and he deployed six unmarked U.S. maintain contact; or the motor trouble that barred planes “to defend the [Cuban Expeditionary Force] one battalion from going ashore. These blunders only against air attack [but not] to seek air combat [or to] hastened the inevitable defeat, which was further attack ground targets.” These were uneasy, half-way speeded when the brigade, often firing indiscrimi¬ measures. nately, ran out of ammunition after only two days and When Rusk complained that the United States was surrendered. becoming more deeply committed, “Kennedy,” ac¬ The basic problem was that a 1500-man invasion cording to Walt Rostow, “raised his hand just below force, roughly the size of the Harvard freshman class, his nose and said: ‘We’re already in it up to here.”’ deployed on a 35-mile beach, could not have long Kennedy could not completely disengage himself, sit held on without U.S. troops or a Cuban upheaval. on the side lines, and await the likely defeat. He was Control of the air would not have changed the tide of moving beyond the earlier standards of restraint that battle. It might have allowed the invaders to establish he had imposed. But he was still unwilling to place a beachhead for a few days, until Castro’s substantial Americans in battle. ground forces, with their greater fire power, began to Nixon privately offered Kennedy support for U.S.

32 FOREIGN SERVICE JOURNAL armed intervention and urged him to find a pretext to not be, under any circumstances, any intervention in act. The president might have been able to secure Cuba by United States armed forces.” It was not a bipartisan support, but he never tried. Had he wished promise he wished to abandon, and the public embar¬ to intervene, he might well have called congressional rassment would have been painful. To get sucked into leaders into a top-secret conference and allowed Bis- this minor war would be a mistake, he believed. sell to plead his case for U.S. forces. Admiral Burke “Defeat,” Schlesinger recalled Kennedy saying on was also leaning in the direction of intervention, and April 19, in the aide’s paraphrase, “would be an inci¬ the Joint Chiefs would probably have endorsed the dent, not a disaster.” The United States might suffer a action. Admittedly, there would have been logistical blow to its prestige. “What is prestige?” Kennedy problems. Castro’s forces probably would not have asked. “Is it the shadow of power or the substance?” crumbled right away. The United States would have After the debacle at the Bay of Pigs, Americans had to organize an expedition, and that might have rallied around their president. Kennedy’s popularity taken time. But the limited evidence does not suggest in the polls actually jumped. Much as Eisenhower had that Kennedy allowed such logistical difficulties to benefited briefly from the U-2 crisis the year before, deter him. Had they been the main, or even the Kennedy also gained brief advantages. But, as the substantial, impediments, he could have privately new president well understood, the glow of patrio¬ urged intervention and then backed off when the tism could quickly fade, leaving him vulnerable to chiefs announced that they could not promptly supply charges of weakness. the forces. Had Kennedy followed this strategy, he General Douglas MacArthur, hostile to Eisenhow¬ could have blamed the failure on the Pentagon and the er, told the new president privately, "The chickens Eisenhower administration. are coming home to roost" and that Kennedy now lived in the chicken coop. Both men agreed that Eisenhower should have done something sooner to KENNEDY DID NOT seem troubled by con¬ remove Castro. Eisenhower drew a different lesson, stitutional issues of undeclared war. Tru¬ deploring Kennedy’s “mismanagement, indecision, man’s intervention in Korea, as well as and timidity” in the emigre attack and eagerly await¬ Members of Castro’s the frequent postwar use of clandestine ed the “terrible [public] outcry and .. .a virtual repu¬ militia stand guard CIA operations, had comfortably established a prece¬ diation of the present administration.” Acidly recall¬ in Havana against possible emigre- dent. The evidence suggests that Kennedy probably ing Kennedy's promises about bold leadership and his inspired attack. De¬ allowed international politics to constrain him. In authorship of Profiles in Courage, Eisenhower penned spite CIA reports, Latin America and Europe, and even in much of the in his diary, “this story could be called a ‘Profile in the dictator’s forces United States, an open American attack would have Timidity and Indecision.’” remained loyal and appeared as naked aggression and provoked left-wing Eisenhower said privately that he had never ap¬ the predicted protests in the southern hemisphere. Moreover, the proved an invasion plan for Cuba—a point on which counter-revolution Soviet Union could have retaliated by moving against Dulles agreed. Eisenhower recalled that he had told never occurred. Berlin. Both Walter Lippmann, the respected colum¬ Kennedy in January “that he would have to decide nist, and Charles Bohlen, the former ambassador to what to do—you can eliminate the whole thing [of] Moscow, had told Kennedy that week, as Nixon later planning training [of emigres, or you could] disband wrote, “that Khrushchev is in a very cocky mood. ” “If them in 10 minutes.” Eisenhower’s implication was their appraisal is correct,” Kennedy told Nixon, “if that Kennedy had pushed the project because he we move on Cuba, Khrushchev will move on Berlin. 1 wanted to overthrow Castro and yet had unwisely just don't think we can take the risk.” undercut the necessary military support. As a military Robert Kennedy briefly drew the opposite conclu¬ tactician, Eisenhower was appalled by Kennedy’s ap¬ sion. On the 19th, as Rostow recalled, the younger parent confusion about ends and means, about goals Kennedy “spoke in anguish. He said we would have to and tactics. Characteristically, Eisenhower left un¬ act or be judged paper tigers by Moscow. He could clear whether he would have avoided the venture or not sit and take it. ” Rostow calmed down the attorney better supported it. general by pointing out that Cuba was not the proper Dulles complained to Eisenhower that Kennedy test: “We would have ample opportunity to prove we had been “surrounded by pessimists and kept water¬ were not paper tigers in Berlin, Southeast Asia, and ing down the plan." Dulles also knew that, over the [ elsewhere.” years, other covert CIA activities, initially restricted Perhaps the president also found it easier not to by presidential decree, had been expanded when escalate because he viewed himself as the inheritor, greater American involvement was essential to rescue not the father, of the operation. And he may also have victory from the jaws of defeat. Probably Dulles had realized that he could pin much of the blame on the also expected that if the invasion force encountered CIA and the Joint Chiefs. Since their assessments and trouble, the president would have removed his prohi¬ counsel had already plunged him into trouble, he was bition. also wary of following their new recommendations by Kennedy himself was appalled by the failure. He committing forces in this ill-fated venture. had practiced restraint by not committing American Kennedy had plainly lost his taste for this enter¬ troops to the Cuban venture when the emigres faced prise. What had once seemed safe, promising, and certain defeat. He soon abandoned this tactic of cau¬ | attractive had turned sour and ugly. Like Eisenhower, tion elsewhere as he committed American forces and Kennedy had been unwilling from the beginning to prestige to a larger venture in Southeast Asia. And he commit troops. Unlike Eisenhower, Kennedy had continued to seek to topple Castro, shifting to less made a public pledge—on April 12—that “there will dramatic means but still relying on the CIA. Q

MARCH 1985 33 THINNING THE SOUP

The Foreign Service has too few resources, too many senior officers, and too little internal communication and organization

RONALD I. SPIERS

THE FOREIGN SERVICE faces some very real and defense communities in terms of the effort we problems in the years ahead. In the time make in the scramble for resources. While director of that I have been under secretary for manage¬ INR, I commissioned an analysis of the sources of ment, we have begun to address these mat¬ intelligence items important enough to be included ters and have established a mechanism for consulta¬ in the President’s Daily Briefing, National Intelli¬ tions at the senior levels, but we have not found any gence Daily, or Morning Summary. We found that easy answers—nor do we expect to. more than 70 percent originated in Foreign Service Secretary Shultz asked me to take this job after a reporting. Nevertheless, during the last decade we chance discussion in Islamabad, in the course of which have seen an 18-percent reduction in the number of I was outspokenly critical of much of the department’s people devoted to economic and political reporting management practices. At the same time, he appoint¬ and analysis—the heart of the department’s responsi¬ ed Roy Atherton as director general, Bill Harrop as bilities—as we had to meet increases in consular inspector general, and Bob Lamb as assistant secretary workloads and provide administrative support for for administration. We joined Comptroller Roger other agencies. Restoration of the department’s re¬ Feldman, Foreign Service Institute Director Steve source base will be a long, hard struggle and will Low, and Director of Management Operations Bill De require persistent effort. We have no big, expensive Pree to round out a new senior management team. programs—no B-l’s or satellite systems—into which The essential responsibility of this group is to mobi¬ we can cut. What we have done, year after year, is lize, plan, allocate, and justify the resources—both thin the soup. personnel and financial—required to conduct the for¬ Soon after my return to Washington, I read a cable eign relations of the United States. from one of our more prominent political ambassadors As I began to think through my priorities, I found on this subject. “I cannot help noticing how piddling myself dividing them into four categories: resources; is the State Department's budget when one considers structural problems of the personnel system; internal that it has the primary responsibility for maintaining communications and services; and departmental peace in the world,” he said. “For example, I was organization. amazed to find that the State Department is subject The most important category is that of resources. automatically to government-wide anti-spending The department is a principal national security arm of measures without regard to the effect of the budget the government, comparable with our military and cuts on our foreign policy and does not have the same intelligence services. Indeed, it is the most important ’exempt agency status' enjoyed by other intelligence of the three, because war only starts when diplomacy community agencies." Time after time, political fails. Diplomats are on the front lines, worldwide, 24 chiefs of mission have made this same point to me hours a day. Yet the department has been treated as passionately, contrasting the resources available to the orphan among these three during the annual dis¬ some other agencies overseas, particularly defense and tribution of resources. Worse, it has tended to treat intelligence. itself as somehow the least deserving. Too often it has This is a view that the secretary of state shares, and been reticent and timid—-almost apologetic—about he has started to turn the situation around. Last year, speaking up for the resources it needs. through the secretary's efforts with the Budget Re¬ The department's operating budget this year is view Board, we were able to overturn a personnel S1.85 billion. Our total personnel worldwide—Civil ceiling imposed by the Office of Management and and Foreign Service, including nationals—amounts Budget and obtain additional positions for reporting to about 25,000 people at 262 posts. State Depart¬ and analysis. More recently, we secured a big supple¬ ment employees constitute 30 percent of the staff at mental appropriation for security. But despite efforts most embassies. Our operating budget, however, is in the past, the department has never received the just a fraction of what the government spends on president’s formal certification as a national security intelligence, and only .7 percent of the Defense De¬ agency. Obtaining this certification must remain our partment’s. My experience as director of politico-military af¬ Ronald I. Spiers is under secretary for management. This fairs and of intelligence and research taught me that article is adapted from a speech he gave in late January as we compare very unfavorably with the intelligence part of the AFSA VIEWPOINT program.

34 FOREIGN SERVICE JOURNAL highest priority. Without it, we are treated on a par with every domestic agency when government-wide cuts are imposed. For instance, as part of the effort to cut the 1986 deficit, we have suffered a cut of over $200 million from our carefully considered request. We raised our national security status and were grant¬ ed some relief from an even larger cut originally im¬ is a principal national security posed by OMB, but I suspect that when the final results are in, we will still fare poorly when compared arm of our government, comparable with defense and intelligence. We will have $31 mil¬ lion less to spend in 1986 than in 1985, and will still with the military and intelligence; yet have to absorb a $ 14-million pay raise and further increases in the consular workload. The soup gets it has been treated as an orphan thinner. And Congress may water it down even fur¬ ther. during the distribution of resources

THE SECOND GENERAL AREA of concern lies in our personnel system. How do we re¬ cruit, train, evaluate, assign, and promote mid-level officers in stretch assignments also provides our 25,000 employees? Here I want to con¬ fuel to our critics. If these jobs can be filled by mid¬ centrate on some of the principal problems relating to level officers, why are they graded at the senior level? the Foreign Service element of our establishment. Let Our goal is to reduce stretch assignments to about 10 me confess that I have long had doubts about major percent of all assignments. It is beginning to be rec¬ aspects of the recent Foreign Service Act, many of ognized in the Service that stretch assignments are a which are far from dispelled. However, it is the law of mixed blessing, since they also reduce promotion op¬ the land and so my responsibility is to implement it. portunities. There has never been a systematic look at w'hat is We have too many senior officers who cannot be really needed to staff our Foreign Service. We have placed in jobs appropriate to their rank; currently, 40 now embarked on such a project, and one of our senior officers are overcomplement. There is some¬ principle concerns has been the role of the Senior thing to be said for the way most other foreign serv¬ Foreign Service. Most outside observers think the ices avoid this problem. For example, the British have Senior Foreign Service is too large. Frankly, I believe about 125 senior positions out of a total of 2,500 we do not have the basis to rebut these critics com¬ diplomats. They do not promote into the senior ser¬ pletely. The Senior Foreign Service consists of about vice until there is a job to be filled. This year we 17 percent of the Foreign Service officer corps of gen¬ promoted 39 against a requirement of minus two. eralists—707 out of about 4,100. Our critics com¬ Of course, we have a difficulty that most other pare this to the Senior Executive Service, which is less services don't have: an uncertainty about the number than 1 percent of the Civil Service officers of GS-9 and of political appointees with whom we have to compete above, or with the flag rank of the military, which is for senior positions. Since January 1981, 23 jobs at something under .5 percent of the military officer the ambassadorial or assistant secretary level or above corps. However, some of our SFS members are paid at have moved from career to non-career occupants. This the level of military officers below flag rank, and some has a major impact on the assignment process. Right 16 percent of all military officers are paid at senior now seven career ministers are over complement or on levels because of loss of spouse income, unpaid over¬ special assignments. time, lack of job location choice, danger and family We have started to review the classification of posi¬ separations, etc., all of which are familiar to Foreign tions now graded at the counselor level and up. The Service employees. results are expected this fall and should give us a basis These analogies are not fully relevant, as there are for determining just what size Senior Foreign Service obvious differences in missions and needs. However, we need and can justify. In the meantime we are we have never related the number of people in the holding promotion numbers and limited career exten¬ Senior Foreign Service to the jobs that should be sions to a low level to avoid exacerbating the problems graded at that level. Grading senior-level jobs, par¬ and pain we might otherwise have to face in the ticularly in Washington, has too frequently been future. done haphazardly and for the wrong reasons. In many If the expectation is correct that a large number of cases, job content and comparative responsibility are employees who have had three years at high salary not being used as guidelines when upgrading posi¬ levels will retire this December, we will be able to tions to the level of office chief or deputy country loosen up somewhat on promotions and LCEs. But as director. Far too many bureaus upgrade positions to long as we have career ministers with experience and the senior level only so they can entice more junior excellent records who have been without proper as¬ bidders, who believe their chances for promotion will signments for three years, I will continue to have be enhanced by serving in such a job. We must em¬ doubts about the rightness of our course. It is demor¬ bark on a course wherein sound “position manage¬ alizing and wasteful. ment” dictates departmental structure. The fact that I do not know what the right size of the Senior we have 16 percent of our senior positions filled by Foreign Service is. I know it is not 1 or .5 percent,

MARCH 1985 35 but, frankly, I doubt it is 17 percent. The concept of ings at the same mission, they will exacerbate assign¬ the 1980 Act was that most FSOs would retire honor¬ ment problems. Already 582 Foreign Service employ¬ ably at the FS-1 level, and that the Senior Foreign ees are part of tandems. The department has been Service would be sized according to our needs for the working hard on developing ways to accommodate most senior and responsible assignments: ambassa¬ the problems posed by the modern family. In my dors, deputy chiefs of mission at large embassies, view, our efforts to deal with the two-income fam¬ deputy assistant secretaries and above, certain major ily—and we are far from a consensus on what those office directorships, and a few senior specialists. efforts should be—only nibble at the edges. There are numerous other structural problems we The second part of this dilemma involves recogni¬ are also trying to deal with: tion of spouses and compensation for services rendered -—a recruiting system that seems to short change us on behalf of our missions abroad. We are not alone in on highly competitive minority entrants; having to face up to our responsibilities on this ac¬ —a hiring system that takes too long to bring count. We have explored various approaches with people on board and thus costs us some of the most other foreign services, all of whom—including those promising candidates, who can’t afford to wait out the of the communist countries—regard this issue as the time it takes to get to their names on the register; major one they face. For example, the Japanese pay a —an evaluation system that is burdensome for su¬ 40 percent salary supplement when spouses accompa¬ pervisors, often leads to hyperinflated or meaningless ny an officer overseas and perform official representa¬ appraisals, and risks giving only a one-dimensional tion functions. But I do not know how one deals with picture of the employee; this when more and more spouses have professional —a training system that is meager and unstruc¬ careers that cannot very well be pursued abroad. Per¬ tured compared with, for example, the military’s; haps there is no answer and no way the Foreign Service —an examination system that provides capable can preserve its traditional identity in the face of economic and administrative officers more by acci¬ cultural sea changes. dent than by design; —executive development procedures that are hap¬ hazard, unsystematic, and have generally favored po¬ THE THIRD PRIORITY is the problem of in¬ litical officers, thereby confusing analytic brilliance ternal communications and services. Per¬ with managerial effectiveness; sonally, I have long resented what I felt was —an assignment system that too often operates as a a paternalistic—if not authoritarian—and disincentive to accepting broadening assignments, insensitive system for managing many of the difficul¬ that depends more on whom you know than whether ties of Foreign Service life. The Foreign Service is a you are the best for the job or the job is best for you, family of mature people, and my experience is that that tends to penalize those officers in training or in candor and openness should be the norm in our deal¬ functional bureau assignments or who are less visible ings with each other. Therefore, we have tried to draw to the decision-makers in Washington, and that fails as many of our colleagues as possible into the process to ensure equitable sharing of hardship assignments; of identifying our problems, understanding our di¬ and lemmas, and coming up with ways of coping with —a resource allocation system that has permitted them. One of the reasons we have developed the short- political and economic jobs at the junior level to tour assignment is to bring some of our best and most erode, with the result that too many officers in these experienced minds to bear on these problems. cones have approached tenure with inadequate or no Last April, I wrote to all chiefs of mission and asked experience in the areas in which they will presumably each to identify the three or four things that most spend most of their careers. seemed to grate on our personnel or make life difficult At the heart of many of these problems is a loss of for them. We received an avalanche of thoughtful Service discipline that, in my view, arises from a sense replies. They have all been collated, and we are work¬ that the system is not operating equitably. I see little ing on solutions to as many of these complaints as chance of restoring esprit de corps and a sense of possible. There were 145 different items, ranging service until we find ways to restore trust in the sys¬ from the time it takes to process travel vouchers to the tem and overcome a feeling that nice guys finish last. inflexibility of Fly America, from sloppy storage and We are attempting to resolve all of these problems, transportation of effects to an unfair assignment sys¬ and 1 am reasonably optimistic about the prospects of tem, and from irrational limitations on R & R to a success if we are persistent enough. One of the main general lack of Washington responsiveness across the problems in management has been too much turnover board. and lack of follow-through. 1 hope to resist the Siren- Some of these issues will require, legislation, but song of other assignments for a while and carry out most can be handled by administrative changes. In reforms in these areas. my view, all personnel should be able to fly business All these problems are amenable to improvement, class, particularly on longer trips. I think we should but there is one that, frankly, has so far stymied us, lift the pay cap on differentials. We should be devot¬ and yet it probably represents the biggest threat the ing more resources to ensuring better storage, trans¬ Foreign Service will face in the coming decade. How portation, and pouch services. The new Financial do we maintain the kind of Foreign Service we have Management and Consolidated American Payroll known in an era of societal change in which the two- Processing systems should do away with many of the income family is becoming more and more the norm? complaints about foul-ups on pay and allowances dur¬ As tandem couples increase in number and seek post¬ ing transfers. I would like to achieve a consolidated

36 FOREIGN SERVICE JOURNAL allowance system which amalgamates hardship, dan¬ ger, and special incentive differentials. Another change we have introduced is a monthly management-issues cable that aims to keep our col¬ leagues abreast of what we are doing. These problems affect us all and we want input from everyone. Man¬ agement certainly has no monopoly on wisdom or M ost outside observers think the insight, and I have always found distasteful a system that produced changes behind closed doors and im¬ Senior Foreign Service is too large; we posed them without explanation. As in all areas of policy, there are few easy answers or pat solutions. do not have the basis to rebut this, Dilemmas abound, but we will have a healthier sys¬ tem if these are discussed openly and the views of and too many senior officers cannot those affected are solicited and listened to. I have visited many posts around the world and met with be placed in appropriate jobs hundreds of our Foreign Service colleagues—com¬ municators, secretaries, and ambassadors—for this purpose.

political affairs and transfer the problem of reconcil¬ THE FINAL PRIORITY is departmental or¬ ing conflicts and overlaps between the two under ganization. It is the most difficult to deal secretaries to the deputy secretary. Nevertheless, it is with and the subject on which progress is clear from my own experience in arms control, politi¬ least likely. Since I am essentially a political co-military affairs, and intelligence that the under officer whose abiding interest is in the formulation secretary for political affairs cannot give the sustained and execution of foreign policy, 1 have long felt that attention to these issues that they deserve. The re¬ the State Department is badly organized to do this. sponsibilities of the under secretary for economic af¬ There are too many quasi-independent organizational fairs should also be broadened, perhaps by giving units. Congress has given us new bureau after new general oversight of not just the Bureau of Economic bureau, often without regard to organizational ration¬ and Business Affairs, but perhaps the bureaus of ality. Many think we have too many ambassadors-at- Oceans and International Environmental and Scienti¬ iarge and too many assistant secretaries and their fic Affairs, of International Narcotic Matters, and of equivalents. Refugee Programs, as well as telecommunications I have attended secretariat staff meetings longer policy. than any of my colleagues still on active duty. Gut 1 am not one who believes that organizational issues of foreign policy are seldom discussed. They structure is all-determining, but it does affect the concentrate too often on the tactical and ephemeral, flow of business, and I am convinced that the depart¬ rather than on strategic alternatives. Years ago I sug¬ ment could use some radical restructuring. As a prac¬ gested the need for a top policy council made up of the tical matter, this can probably only occur when a new principal substantive officers of the department. Such administration appears, before interests become vest¬ a council would be staffed by Policy Planning and ed in the status quo. All in all, however, I continue to meet periodically with the secretary for critical re¬ be bothered by how little discussion and thought is views and discussions of broad policy options, rather given to this issue and how random and isolated than drowning in daily operational details. This is an changes are made. innovation we have introduced in the management A professional, trained, and disciplined Foreign area. The six assistant secretary-level principals and I Service will continue to be necessary for the advance¬ meet weekly and discuss broad management issues. I ment and protection of U.S. interests for the foresee¬ believe it has been a very successful step. Each mem¬ able future. However, the existence of an inde¬ ber of the council sees himself not simply as responsi¬ pendent, largely self-governing Foreign Service is the ble for a discrete area, such as personnel, finance, object of much criticism today. There are many who administration, or training, but as a senior counselor would like to put the Foreign Service under OEM’s who is able to put his particular responsibility into a protective wing and to apply the Civil Service proce¬ broader context. The effect is synergistic and reduces dures of rank-in-job, retirement, and so on. To them, parochialism and turf competition. the idea of a largely self-assigning, self-promoting, Another change 1 advocate is a rebalancing of re¬ self-evaluating system, with something of a convic¬ sponsibilities among the seventh-floor principals. For tion about its own identity that borders on elitism, is a long time, I have favored the gradual development anathema. They view it with much suspicion and of an under secretary for international security affairs. resentment. He or she would focus on the department’s interaction However, like a military service that is prepared to with the defense, intelligence, and arms-control com¬ go where it is sent, to carry out loyally the direction of munities, while the under secretary for political af¬ the political leadership, to provide the best advice it fairs would focus on bilateral and more traditional can from a background of well-grounded professional¬ diplomatic issues. ism and integrity, and with the resources it needs to One can argue with some validity that this would do its job, a career Foreign Service will continue to be diminish the responsibilities of the under secretary for a necessity for the country. Q

MARCH 1985 37 Fame and the

Fame is elusive secretary to call me and inquire whether had just arrived from Budapest. I was I was running for office. certain that he would want to question for this FSO, In expectation of future renown, I me about the political and economic sit¬ cheerfully performed all the lowly tasks uation in Hungary. His only questions but perseverance assigned to me. I dressed conservatively. were, “What does a vice consul do?” and I buttered up my superiors. In short, I "How do you like living over there considered myself an exemplary Foreign among all those Yugoslavs?” My doubts finally wins out Service employee whose coming fame multiplied, but at least he poured a good was assured. bourbon. Sometime during my second or third In desperation, I considered the histo¬ FRED GODSEY year in the Service, 1 began to pay atten¬ ry of the Foreign Service, making a list tion to any news reports relating to em¬ of famous people, beginning with Ben bassy or consular personnel. I noticed Franklin, who, at some point in their IET ME BE quite frank about this. I that these articles almost never men¬ lives, had been in the Service. I eliminat¬ joined the Foreign Service to tioned an officer by name, unless he or ed those who achieved stardom after leav¬ seek fame and fortune. I decid- she got killed, kidnapped, or suffered ing the Service. I also struck off those » ed to forget fortune after my some other horrendous fate. Instead, appointed by the president to high posts first paycheck arrived. I hoped that they would say “the U.S. ambassador” at after they had made their marks on the fame, like virtue, would have its own re¬ such-and-such place, “a U.S. official,” world stage. My remaining list was wards. “an employee of the U.S. consulate,” or alarmingly small. For a vice consul, fame is hard to “a U.S. consul” (more often than not There were many officers, however, find—I mean real world-wide fame—but spelled “council”). The one time that I who had achieved fame of a sort within I was young and I could see the head¬ was mentioned was in a news service re¬ the Service, even if their exploits had not lines a few years down the road: “Ambas¬ port originating in Budapest. It con¬ made them world famous. One had sador Godsey Settles International Dis¬ cerned the arrest of a U.S. legation secre¬ risked his life to snatch an arrested U.S. pute" or "Special Envoy Godsey Saves tary by the communist political police. citizen from the clutches of the commu¬ America from Brink of War." Or maybe The papers reported that "Vice Consul nist political police in Hungary. One someday something would be named Goosey stated that there is no question had ridden in a tank under fire to effect a after me: Say, a treaty; a new city in Af¬ that the woman is a citizen of the United truce between opposing factions in Mexi¬ rica; an imposing international building; States.” co. Another had taken charge and orga¬ or perhaps a few streets in some world 1 began to have some doubts. Could it nized life in a Japanese prison camp for capitals. My imaginative horizons were be that the individual in the Foreign Ser¬ Americans in the Philippines. The list broad indeed. vice remains an anonymous entity? Does was very impressive, and stories about Those first years in the Service, I real¬ celebrity really exist in the Service? these people are still recounted with awe ly worked hard. I bombarded the State Would fame pass me by? around Foreign Service campfires. Department with voluminous reports on A few weeks ot home leave only served I wondered if perhaps I could get my anything that moved in my consular dis¬ to intensify my uncertainty. My first name on this list. I realized that, given trict, including one superb document on stop was at a bank in New York to cadge my low rank, the odds were very much the value of the uribu buzzard as a sani¬ a loan to buy a second-hand car. The against it. A new idea came to me when tation adjunct in northern Brazil. I ob¬ sixth assistant vice president examined I read a piece about Joel Poinsett, a For¬ served diplomatic protocol religiously, my beautifully engraved card carefully. eign Service officer for whom the beauti¬ but 1 did have some difficulty remember¬ The card proclaimed that I was a vice ful poinsettia flowers and plants are ing which corner of my calling card 1 consul of the United States of America. named. 1 would have to search for some¬ was supposed to bend and how many to “Hmmm.,,1 see,” he said. “Well, of thing which could be named after me— leave when making courtesy calls. For course since you’re with the vice squad, I something which future generations and example, when 1 arrived at the U.S. em¬ don’t think there will be any problem Webster's Dictionary would record as being bassy in Rome to leave cards, as protocol with your loan.” named for Godsey of the U.S. Foreign demanded, I took no chances. I bent all After innumerable instances of being Service. four corners and left a rather large stack so identified, I tried a new tack: When My knowledge of plants, especially of cards, prompting Ambassador Luce’s asked what I did for a living, I would flowers, being very limited, I consulted say, “I work for the State Department." an agricultural attache and asked him for Fred Godsey, a retired Foreign Service officer, Usually the reply was, “What state?” a list of exotic plants for which science is a frequent contributor to this section. Read¬ Even a courtesy call on a U.S. senator, at had not yet found common names. His ers are invited to submit manuscripts of not the behest of the State Department, was friendly advice was to lay off the booze. more than 1500 words for consideration. discouraging. I told the senator that I But I was undaunted.

38 FOREIGN SERVICE JOURNAL Foreign Service

ONE EVENING, I sat in a hotel bottle of every type of liquor that I could mixed or not. He even saved me the | bar in Vienna sipping a dry find in Vienna. This cost two months’ trouble of disposing of the contents of all ' martini before dinner. As 1 salary. Even the tough, worldly-wise ser¬ the excess bottles not needed in the ex¬ stirred the little pickled on- geant in charge of the PX raised his eye¬ periments. iorf with a toothpick, I suddenly realized brows when he saw my purchases. My I didn't bother to consult the French¬ that 1 was drinking a Gibson martini—a apartment was soon filled with bottles. man again. The cocktail was perfect, and cocktail bearing the name of a U.S. For¬ Since there was no more space in the I took samples to several of the leading eign Service officer. Aha! That was it! I kitchen for my housekeeper to do her bars in Vienna. I also eventually took a would concoct a drink, bearing my name cooking, she left. But I no longer had few small bottles to some of the well- of course, which would become known time to eat anyway. known drinking places in London and all over the world. My name would hang Most great discoveries involve many New York. These trained barmen all said behind magnificent bars from Paris to trials and hardships. Everybody knows that it was a good drink. Well, they London to Singapore and all points be¬ that. Each time I thought I had the per¬ didn’t exactly put it that way. What tween. I didn’t bother to eat dinner, but fect formula, 1 would invite a few friends they said was, “Sure, if somebody comes rushed to my apartment to begin my ex¬ over in the evening to sample the new in and asks for this mess, we'll make it. periments. drink. They would invariably say that Just leave the recipe.” 1 had at home only the usual beverage they liked it. The next evening I would I’m not stupid enough to give the for¬ supply: A few bottles of scotch, a bottle take a small sample to the barman at the mula on these pages and have some am¬ each of gin, vodka, and vermouth, and French hotel. He would—also invari¬ bassador make the drink popular at an some liqueur. 1 decided that the Godsey ably—say, “Monsieur, c’est merde!" I embassy party, put his name to it, and cocktail should be as simple as possible, didn’t give up, though, even after my achieve fame overnight. I resigned from so that anyone could make it and think friends eventually stopped accepting my the Foreign Service some time ago to de¬ ot my name as they did so. Thus 1 would invitations—some of them were ill. vote my time solely to promoting the first try a variation of the Gibson marti¬ It took me the greater part of a year to cocktail, and I will release the recipe as ni. 1 would substitute a small bulb of finally create the Godsey cocktail in its soon as my name is a household word. garlic, or maybe pickled garlic, for the absolute, definitive form. Truth to tell, I The search for fame and fortune in any onion. 1 wonder if Gibson ever tried had no more friends to try it on, and the profession is not easy. The Godsey cock¬ that? 1 suppose he might have, since I Frenchman still said the same thing tail is not yet as popular as the Harvey didn't feel too well once I had sipped about it. But it had the stamp of approv¬ Wallbanger, and there may be those who from the first batch and eaten the un¬ al of a professional drinker—Private Ben¬ suspect that my quest for fame has been pickled garlic. And the next day at the jamin Riley of the British Army. Such fruitless. Not so! Something else has consulate the secretaries wouldn’t come was Private Riley’s renown that he had been named for me. Mr. Alex Kvassay of near me. But never mind. I pickled some been imported from London by the Brit¬ Wichita, Kansas, writes, “We now have of the garlic and tried again—with the ish legation solely for the purpose of a new dog. We have named him Freddy, same results. drinking with the Russians in Austria. after you.” I wonder what kind of dog it I realized that I would have to start He liked the Godsey cocktail. In fact, he is—maybe I could try to develop a new from scratch. I began assembling one liked all of the ingredients, whether breed—the Godsey poodle?

MARCH 1985 39 Idella Murray Knows Real Estate Leigh & Schwab, Inc. f Tambien habla Espanol

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MARCH 1985 41 He joined the Service in 1951 as an Mr. and Mrs. Theodore H. Morris, of Vil- intelligence research specialist. His assign¬ lanova, Pennsylvania, and another sister- ments included posts in Pakistan, Indone¬ in-law, Mrs. Robert C. Downes, of Alex¬ sia, the Philippines, and Thailand. He re¬ andria, Virginia. tired in 1968 and became editor of the PEOPLE Development Digest of the National Plan¬ AGNES SPAULDING, a former consular clerk ning Association. and translator, and a Foreign Service He was a member of the National spouse and daughter, died December 23 in Economist Club and the Society for Inter¬ California. She was 98. national Development, and was vice presi¬ Ms. Spaulding traveled with her father, dent and secretary of the National Com¬ Edwin Johnson, to posts including Bonn Deaths mittee on Public Employee Pension and Kiel. She was married to Henry Tabor Systems. Wilcox, a Foreign Service officer, who LAVONNE CORRELL, wife of retired Foreign He is survived by his wife, Soenarsi S., died while serving as consul in Vigo, Service Officer John Correll, died Novem¬ of McLean, Virginia, and a sister, Char¬ Spain, in 1925. Upon his death, she was ber 6 at Venice Hospital, Venice, Florida. lotte D. Ferner, of Oslo, Norway. appointed a consular clerk and translator, Ms. Correll attended Ashland College serving 22 years in Ottawa, Niagara Falls, and was a public school teacher. She ELLEN DOWNES MORRIS, wife of Brewster and Washington. After her retirement in moved to Venice in 1964 after her hus¬ H. Morris, ambassador, retired, died Jan¬ 1950, she was married a second time. band’s retirement. uary 16. She was 72. There are no immediate survivors. In addition to her husband, survivors Ms. Morris was graduated from Smith include five nieces and one nephew. College in 1934. She worked as a secretary BARBARA M. WHITE, a former Foreign Ser¬ in the U.S. embassy in Tokyo, the Depart¬ vice officer, died December 30 of cancer at GORDON DONALD JR., a retired Foreign ment of the Interior, and the Department Duxbury, Massachusetts. Service officer, died of cancer November of State, until her marriage in 1948. She Ms. White earned a bachelor’s degree 28 at Georgetown University Hospital. accompanied her husband on assignments from Mount Holyoke College and a mas¬ He was 67. to Berlin, Moscow, Frankfurt, Bonn, Lon¬ ter’s from Harvard University. She worked Dr. Donald was graduated from Princ- don, and Berlin. She had been living in as the League of Women Voters’ program ton University and earned a doctorate at Tiburon, California, since his retirement. secretary for international affairs for four the University of Chicago. He served in In addition to her husband, survivors years before joining the Foreign Service. the Navy during World War II. include a brother-in-law and sister-in-law, For over 25 years, she served in overseas

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FOREIGN SERVICE JOURNA ASSOCIATION NEWS Drive pushes membership level up 10 percent to record 8400

AFSA's membership campaign bers, and 38 in Commerce and conducted last fall pushed the 14 in Agriculture. The rest of the Association's roll up by 10 per¬ members are honorary. The cent to a record 8400 strong— largest percentage increase the largest representation per¬ was in USIA, up 48 percent. centage of any major federal One of the factors of the employee union. The surge in drive's success was the active members continued the rapid in¬ participation of AFSA's overseas crease that began in 1980, with chapters, according to Member¬ membership up 42 percent in ship Coordinator Lee Midthun. less than five years. More than 60 percent of new ac¬ After the drive, the Associ¬ tive-duty members were recruit¬ ation had 3770 members in ed at overseas posts. Efforts by State, 1234 in AID, and 226 in the various AFSA standing com¬ USIA. There are 2615 retired mittees in each agency also members, 508 associate mem- contributed to the record.

1984 banner tal of 1272, In-Hospital Income gained 142 for a total of 318, and year for AFSA Personal Insurance (covering personal effects while overseas) insurance grew by 82 for a total of 438. This raised the number of AFSA poli¬ AFSA's group insurance pro¬ cies in force for all three pro¬ grams had a record breaking grams to 2028. Particularly note¬ year in 1984, with the total num¬ worthy was the Increase in the ber of policies growing by 427, recently improved hospital in¬ an increase of 27 percent. The come plan, which grew by more increase was due in part to the than 80 percent. 1980 1981 1982 1983 1984 one-time "open enrollment” last The total coverage for the Ac¬ summer for two of the plans, but cidental Death and Dismember¬ An Informal update of the chart showing membership trends over all three showed increases. ment program alone is more the last few years that we published In our annual report last Sep¬ tember. Membership went through the roof since then, going up Accidental Death and Dis¬ than $180 million, and coverage more than 10 percent to a record of 8400, an Increase of 42 percent memberment registered 203 under the Personal Insurance from the 5900 members we had In June 1980. new policies in the year for a to- plan exceeds $13 million. Some very large claims have been paid in the last few years on the Massive outpouring from posts propriate use and in some in¬ AD&D coverage, principally as stances provide less rather than the result of terrorist bombings helps win no-fee passports more protection.” in Beirut and Namibia. For the Specifically, tourist passports year ending September 1, 1983, Bolstered by appeals from near¬ with management, the Bureau of could increase the difficulty in the Federal Insurance Company ly 70 posts worldwide, AFSA has Consular Affairs, and the Office obtaining diplomatic and official paid a total of $125,000 in bene¬ been able to get management of Security. "Based on the infor¬ visas; the traveler might have fits, and for the following year, concurrence for a plan to issue mation we have obtained from subsidiary government identifi¬ $165,000. no-cost tourist passports on an these discussions and after con¬ cation that could be discovered The figures above are from individual basis to all Foreign siderable internal review, we in a search; employees would the annual report of the Hirshorn Service employees who need now believe that this issue is lose diplomatic protection; and Company, administrator of the them. The plan was proposed best approached on an individ¬ terrorists will no doubt learn of programs, to AFSA's Insurance after the recent killing of two AID ual and post-by-post level rather the plan. Board of Trustees. One of the officers whose identities as than through a worldwide pro¬ Under the plan, any individual most positive aspects of these American diplomats became gram," said AFSA President who desires a tourist passport programs, according to com¬ known to terrorists who hijacked Dennis K. Hays. “We base this will be reimbursed. Payment up ments received by both Hirshorn their airliner to Iran, on our belief that the circum¬ front eliminates the need to and the board, is the rapid and AFSA asked for post com¬ stances that dictate the use of stamp "No Fee," a tip-off that efficient handling of claims by ment, and the cables began to nonofficial passports vary so concerned many of the posts. Federal, a member of the pro¬ pour in. After reviewing the ca¬ widely that a blanket program All family members are eligible gram's underwriter, the Chubb bles, Association officers met would inevitably result in inap- for the plan. Group of Companies.

MARCH 1985 45 Public diplomacy growing more ropean countries seemed to ad¬ Back pay due here to the Soviet point of view. difficult, Marks tells USIA When the vote was finally taken, employees who however, it was overwhelmingly were on detail "In the last several months, there against the Soviet position has been a remarkable display It is not, however, just jam¬ of antagonism toward our public ming of radio transmissions and Foreign Service employees may diplomacy by the Soviet Union." restrictions on importing publi¬ be entitled to a considerable said former USIA director Leon¬ cations that prevent the free flow amount of back pay if they have ard Marks in the fourth of AFSA's of information, said Marks. There served on detail to certain orga¬ 'Dialogs on Public Diplomacy," are many other reasons why our nizations or agencies. sponsored by the USIA Stand¬ message is not being heard. Under the Foreign Service Act ing Committee That means that The technological develop¬ of 1980 and its predecessor, America's public diplomacy ef¬ ments that should make commu¬ employees assigned to certain forts must be working, he con¬ nication with other countries organizations are entitled to the cluded The event, held in late possible will not be useful unless salary of the detail position if that January at the Capitol Hill Holi¬ they are widespread. For exam¬ salary is higher than their For¬ day Inn, drew a crowd of more ple. 80 percent of the tele¬ eign Service pay. The act spe¬ than 100. phones in the world are in 11 cifically identifies qualifying po¬ The Soviets have expressed countries. sitions. which include jobs in the disdain for our methods, since All these restrictions on the Senior Executive Service, do¬ they historically have practiced free flow of information mean mestic or international trade, la¬ private diplomacy, yet now they that "USIA's job is harder than bor. or science organizations are beginning to convey their split like this," with two different ever before," said Marks. He (public and private), state and messages publicly. Foreign phone systems “that can't talk to praised the agency and Director local governments, and Con¬ Minister Andrei Gromyko held a each other." Marks commented Charles Z Wick for creating the gress press conference following the The most recent attempt by Worldnet global television sys¬ Despite the clear and recent arms talks in Geneva, for the Soviet Union to prevent the tem but. in the final analysis unambiguous language of the example. In addition. Radio free flow of information was a public diplomacy is conducted legislation and the fact that the Moscow has changed its format proposal it put before the U N. person to person ' It is there¬ State Department receives sala¬ and style to compete with for¬ Commission on Peaceful Uses fore up to the individual officer to ry reimbursements from these eign communications. of Outer Space. The U.S.S.R. use imagination, friendship, and organizations, Foreign Service Despite its entry into public di¬ asked that there be no transmis¬ persuasion to get the U S. mes¬ personnel filling such positions plomacy. the Soviet Union con¬ sion across boundaries without sage across. "The phrase pub¬ were routinely told they could tinues to prevent the free flow of permission The debate lasted lic diplomacy' will just be a cli¬ not receive the higher salaries information into its territory. for years, and Marks expressed che unless you carry it out." since the Service is a rank-in¬ Voice of America transmissions surprise that many Western Eu- —Nancy Bartels person organization. are jammed by Eastern bloc The director general has countries, even though the so- agreed that equalization pay¬ called Basket Three section of ments are legal, but reimburse¬ the Helsinki accords provides Ackerman ments are apparently to be limit¬ for the free flow of information named AID ed to those members who regardless of frontiers. This pro¬ occupied NATO positions, and vision. said Marks, is just a re¬ representative only as far back as the 1977 fis¬ statement of the U.N. Declara¬ cal year AFSA disagrees with tion of Human Rights. But, said William Ackerman, a desk officer both limitations and will assist af¬ Marks, '[the Eastern European for the South Pacific in AID, has fected employees. Members countries] have completely ig¬ been named an AID representa¬ who believe they are affected nored it." tive to the Governing Board. He should contact us with details of While the West has worked to replaces Juanita Nofflet, who re¬ their cases. open up communications. signed earlier this year. Marks continued, the Soviets Ackerman has been active in have repeatedly tried to block it. Association affairs for more than Annual AFSA Awards Ceremony They do not allow publications to 15 years. He became a member be freely shipped into their of AFSA's recently reconstituted scheduled for May 17 in State country, nor do they allow the AID Standing Committee and free transmission of international has concentrated his time on The Annual AFSA Awards Cere¬ cost. and Secretary Shultz calls. They did send observers addressing the pressing and mony is scheduled for May 17 at spoke the previous year. to the initiation of Intelsat, the critical issue of the proposed re¬ 11 a.m in the Loy Henderson The five award categories are: global satellite phone system forms of the retirement system. Conference Room in the Depart¬ the Harriman Award, for junior However, when Marks urged During his tenure with AID. ment of State. Winners of the five officers; the Herter Award, for them to join the program, argu¬ Ackerman has served in Viet¬ AFSA awards will be presented mid-level officers; the Rivkin ing that "communication is non- nam. Thailand, and Indonesia with certificates, and there will Award, for senior officers; the political. the instruments are and has held several positions in be a keynote speech by an im¬ Bohlen Award, for Foreign Ser¬ neutral," the Soviet Union and Washington, including assign¬ portant figure in foreign affairs, vice spouses; and the Sinclaire six other communist countries ments in the Vietnam Bureau to be announced later. Last Language Awards, for achieve¬ established Intersputnik in¬ and the Indochinese Refugee year’s address was by Under¬ ment in the study of a hard lan¬ stead. "The world shouldn't be Task Force. secretary of State Michael Arma- guage.

46 FOREIGN SERVICE JOURNAL feated. Odds favor its rejection, Legislative Alert since Congress will probably What To Do About the Cuts in the New Budget find the pay freeze and other changes a sufficient reduction in net income. By Bill Ackerman, AID Representative At a congressional hearing in early February, Budget Director David Stockman shocked the A pay freeze or a five-percent accounts. The important thing to eign Service. Secretary of State members by calling the military cut, a longer wait between step remember in figuring the odds, Shultz has already written the pension system “scandalous." increases, a cap on cost-of- says Beers, is that these propos¬ president requesting that the The danger here is that similar living salary adjustments, a als are budget oriented; the ad¬ Foreign Service be exempted attacks may be made on other change in the government con¬ ministration will be looking for from the changes. Once that government retirement plans. tribution to health costs to a less measures that have an immedi¬ outcome is known, the focus will Let us point out here that, unlike favorable flat rate These are ate impact. Let's take the ones move to the two foreign affairs the Foreign Service and Civil some of the proposals now cir¬ that affect only current employ¬ commitees, where AFSA would Service systems, the military culating on Capitol Hill that ees first: make the case for retaining the pension system is different be¬ could affect federal workers. RIF Five-percent pay cut. Unlike¬ present retirement eligibility pro¬ cause soldiers do not pay into rumors are already beginning, at ly At almost the same time the visions that apply to the Foreign their system. least in AID, though agency cut was suggested, the Hay Service because of the profes¬ What can you do to help AFSA management has assured AFSA Group, a prestigious consulting sion's unique nature. AFSA will fight these proposed changes? on several occasions of its wish firm that specializes in pay and help attack the entire package Here are some suggestions: to avoid reductions. compensation, published a of proposed retirement changes —Write to your congressman Then there are the proposed study commissioned by Con¬ through its membership in FAIR. and senators or members of the retirement changes, which first gress that concluded that feder¬ How is Congress likely to foreign affairs committees. Tell appeared two years ago and al workers are compensated 7.2 react to these retirement pro¬ them why the Foreign Service is provoked a rash of reaction from percent less than their private posals? different than the rest of the gov¬ employees to legislators, from sector counterparts. The Office Increase in the minimum re¬ ernment. Tell them about the Foreign Service nationals to am¬ of Personnel Management tirement age. This appears to be sacrifices we make for our coun¬ bassadors (some of whom were countered with its own investiga¬ unpopular and, even If passed, try every day. Check with the political appointees and were tion, but Senator William Roth might well exempt the Foreign AFSA office or your local chap¬ thus personally unaffected). A (R.-Delaware), chairman of the Service as well as the CIA, the ter for talking points and a sam¬ coalition of federal employee or¬ Governmental Affairs Commit¬ FBI, and other special personnel ple letter. ganizations that AFSA helped tee and influential with key GOP categories. At worst, possibly a —When members of Con¬ found several years ago to lobby senators, was quick to register lower increase than that now gress visit your post, use the op¬ Congress on personnel matters, his opposition to the cut. He was proposed, and phased in. As portunity to explain why the Ser¬ the Fund to Assure an Inde¬ followed by Representatives with all issues, grandfathering vice should be exempted from pendent Retirement—FAIR—was Steny Hoyer (D.-Maryland) and then becomes a crucial issue. the proposed cuts. able to derail the retirement pro¬ Vic Fazio (D.-California), who Change in annuity-computa¬ —Let AFSA know if you have posals last time through intense challenged OPM’s reasoning as tion base. The high-five is likely congressional contacts that may lobbying and a media cam¬ well. The nearly unanimous feel¬ to be passed. The main question help us These personal links paign. But after the recent elec¬ ing is the cut vyill be cut. in this area will be the extent of are often crucial. tion, and with deficit pressures Pay freeze. This one is more grandfathering —Last, give to the Legislative growing, they have found their likely, especially as a compro¬ Revision of the COLA formula. Action Fund. We collected more way into the budget again. The mise to a cut. It might be pack¬ Also likely. Well just have to fight than $32,000 for the fight two proposals this time are almost aged with the COLA cap, the for the best terms we can get. years ago, with one in ten of you identical: change in health benefits, the Increase in contributions from contributing. This battle will be a —Impose a five-percent per- elimination of the sick-leave 7 percent to 9. This proposal, lot tougher. Tax-deductible con¬ year penalty for early retirement; credit, and the longer wait for made two years ago but not part tributions may be sent to the LAF —Increase the minimum re¬ step increases, but exact formu¬ of the present package, could at 2101 E Street NW, Washing¬ tirement age; las on these are still open to be revived if the salary cut is de¬ ton, D.C. 20037. —Revise the COLA formula so speculation. This alternative is increases are smaller and less probably more palatable to Con¬ frequent; gress. AFSA’s Insurance Board —Change the annuity-com¬ Changing government subsi¬ putation base from the high- dy of health plans and eliminat¬ three years to the high-five; and ing the sick-leave credit. Hard to —Eliminate unused sick leave speculate on this one, but a as a credit toward retirement. guess would place the former in These retirement measures the more likely category, the lat¬ would affect both active employ¬ ter less likely. ees and retirees—current and The retirement packages now future. being prepared by congression¬ Here is a general rundown on al committees address them¬ the chances of both sets of pro¬ selves to the Civil Service retire¬ posals, based on information ment system. Specific executive The Insurance Board recently met for lunch at an area restaurant. from AFSA Congressional Liai¬ orders or amendments to the They are: Manlio DeAngells, Mary Muller, Chairman Hugh Wolff, War¬ son Robert Beers, other con¬ Foreign Service Act will be nec¬ ren Gardner, Roy Harrell, and Hirshorn Company’s Ralph Hlrshom. gressional sources, and media essary to extend them to the For¬ (Not pictured: Herman Cohen and Joanne Jenkins.)

MARCH 1985 47 Richard F. Dienelt Annual brunch Donations start to pour in as James A. Elliott Michael Galli for retirees to new LAF drive gets underway David Garms Thomas L. Geiger be held May 4 Donations for the new Legisla¬ mous. Checks should be made Harold W. Geisel Barbara Jo Harrick tive Action Fund drive started to payable to Legislative Action Herbert G, Ihrig The annual AFSA buffet brunch arrive even before a letter from Fund and mailed to AFSA at Edward Kloth for retirees the day after Foreign the president soliciting funds 2101 E Street NW, Washington, Henry G. Krausse Service Day will be held on Sat¬ was mailed to the membership D.C 20037. Frederick H. Lowell Donald Mackenzie urday, May 4, at the Foreign Ser¬ last month. Donations to the Below is a list of those whose Brian McNamara vice Club. AFSA Governing fund are tax deductible and help donations were received from J McNaughton Board members and Congres¬ support AFSA's lobbying efforts January 8 to February 11: D. Kathleen Menke sional Liaison Robert Beers will on Capitol Hill to fight the pro¬ Stephen C. Allen Thomas J Miller Lester C. Anderson David Piet bring the members up to date on posed cuts in the Foreign Ser¬ William Anstill Elisabeth Sanphy possible revisions in the federal vice system of benefits and Clark Billings Gerald W. Scott retirement system. allowances, including retire¬ Louis C. Boochever Pamela Slutz The cash bar opens at 10 ment. Jennie M Calahan Robert Smail Frederick R. Carson Jim Spain a.m., and the brunch will be Persons who donate to the Michael Considine Altarie Steward served at 10:45. Send in your fund are listed in this space un¬ Leslie A. Dean Robert C. Strong check or enclose your member¬ less they wish to remain anony¬ Jim Derrick Frances W. Swigart ship number for billing.

Disconnect your car’s catalytic Last chance to see photographs converter before going overseas on canvas that resemble oils

Foreign Service employees who by the employee. The exhibition of color photo¬ pressionist and pointillist styles, are shipping their cars overseas If it is disconnected before graphs taken round the world by some actually printed on can¬ from the United States to coun¬ shipping, the cost of reinstal¬ Liz and Bob Allen will conclude vas, the framed photographs tries where unleaded gasoline is lation—not repair or replace¬ its showing in the Foreign Ser¬ may be purchased by members unavailable are advised to have ment—upon return is reim¬ vice Club's main dining room at at special prices during the run the catalytic converter discon¬ bursable as a miscellaneous the end of April. A Foreign Ser¬ of the show. nected. Leaded gasoline will expense of the Home Service vice family for 25 years before AFSA is searching for other contaminate the converter, ne¬ Transfer Allowance. For more they retired to turn to careers in members who would like to ex¬ cessitating its repair or replace¬ information on the State Depart¬ photography, the Allens have hibit their works at the Club. ment if the car is eventually ment's catalytic control pro¬ developed a new method of They can be in any medium, but shipped back to the United gram, employees should con¬ printing color photographs in a they must be framed and ready States. The cost, usually several tact the chief of transportation at manner that resembles oil paint¬ for hanging. Contact Barbara hundred dollars, must be borne (202) 632-2987. ing techniques. Rendered in im¬ Hughes at (202) 338-5730.

Life & Love in the Foreign Service Winners of the monthly LIFE & Mail entries to: LOVE contest receive a certificate LIFE & LOVE #20 for a free lunch for two at the For¬ AFSA 2101 E Street NW eign Service Club. Honorable Washington. D.C. 20037 mentions receive a free carafe of wine. Entry deadline is April 15

Competition #20

"As ambassador, I’ve stated my views on this matter quite clearly. Does anyone disagree with me?” James F. O’Connor

Honorable mentions: “Oh my god! Two Roger Channels and a TS, and I left the damn thing open!” Harold E. Vickers

“Yes, Senator, I believe my resemblance to a St. Bernard will be a definite asset at Bern.” John M. Hotchner

48 FOREIGN SERVICE JOURNAL Recognizing the limits of the Claims Act, the government recommends private insurance too.

Claims Act AFSA Plan 1. The government will be responsible for only 1. You may purchase as much insurance as $15,000 of proven property loss. you need. 2. Loss recovery limitations exist on most 2. Valuable articles can be scheduled without categories of possessions such as jewelry, limitation on a “valued at” basis. furs, cameras, fine arts, antiques. 3. Claims process requires government 3. Swift claims settlement begins with a simple investigation and documentation. telephone call or letter. 4. Loss must be incident to service. 4. Coverage is worldwide whether on business or pleasure. 5. Comprehensive Personal Liability insurance 5. Comprehensive Personal Liability insurance is not available. is available. 6. Loss evaluation is complicated and includes 6. Loss settlement on unscheduled items is depreciation. based on replacement cost with no depreciation. Settlement on scheduled articles is based on the agreed amount. 7. Theft loss requires proof that due care was7. No such requirement. exercised to prevent the occurrence.

AFSA Desk, The Hirshorn Company 385 14 East Highland Avenue Philadelphia, Pa. 19118 (215) CH2-8200.*

Send me your free brochure (with built-in application form) that answers my questions about overseas insurance.

Name Address

These are only a few of the differences. City/State/Zip Please refer to Foreign Affairs Manual (6 FAM 300). 'If calling from the Washington, D.C. area: (202) 457-0250

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