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AMERICAN FOREIGN SERVICE ASSOCIATION OCTOBER, 1970, VOLUME 47, No. 10 THEODORE L. ELIOT, JR., President JOHN E. REINHARDT, First Vice President C. WILLIAM KONTOS, Second Vice President 19 Plans and Prejudices Charles Frankel BOARD OF DIRECTORS CHARLES W. BRAY, III, Chairman 25 How We Do Our Thing: Innovation RICHARD T. DAVIES, Vice Chairman WILLIAM G. BRADFORD, Secretary-Treasurer John W. Bowling BARBARA GOOD, Assistant Secretary-Treasurer DONALD EASUM 28 Research Revisited WILLIAM HARROP ERLAND HEGINBOTHAM Anthony C. E. Ouainton GEORGE B. LAMBRAKIS PRINCETON LYMAN ROBERT NEVITT 39 Before Perry MICHAEL PISTOR Edgar E. Noel

STAFF 44 Black Students and the Foreign Service THOMAS S. ESTES, Executive Director Frederick Ouinn MARGARET S. TURKEL, Executive Secretary CLARKE SLADE, Educational Consultant LOUISE H. FEISSNER, Personal Purchases 47 Poems William A. Sommers JOURNAL EDITORIAL BOARD DAVID T. SCHNEIDER, Chairman ARCHIE BOLSTER, Vice Chairman AMBLER MOSS OTHER FEATURES: The Pathway to Peace, by Senator Charles CLINT E. SMITH McC. Mathias, page 4; Communication Re: Exorcising that M. TERESITA CURRIE Hobgoblin, by Sanford S. Marlowe, page 8; Tea Trading on the JAMES D. CONLEY China Coast, by Enid S. Candlin, page 12; What This Country JOHN F. LIPPMANN Needs is a Good Five Dollar Concierge, by Robert J. Misch, page 53. JOURNAL SHIRLEY R. NEWHALL, Editor DONALD DRESDEN, Editorial Consultant DEPARTMENT MCIVER ART & PUBLICATIONS. INC., Art Direction 29 AFSA News ADVERTISING REPRESENTATIVES SASMOR AND GUCK, 295 Madison Ave., New York 48 The Bookshelf N.Y. 10017 (212) 532-6230 ALBERT D. SHONK CO., 681 Market St., San Francisco, Calif. 94105 (415) 392-7144 52 Editorials: JOSHUA B. POWERS, LTD., 5 Winsley Street, London Right on, Women! W.l. 01-580 6594/8. International Representatives. 60 Letters to the Editor ©American Foreign Service Association, 1970. The Foreign Service Journal is published twelve times a year by the American Foreign Service Association, PHOTOGRAPHS AND ILLUSTRATIONS: Ruth S. Prengel, ‘'Copen¬ 2101 E Street, N.W., Washington, D. C. 20037. hagen Canal,” Howard R. Simpson, cartoon, page 16; Marie Second-class postage paid at Washington, D. C. Skora, sketch, page 49; S. I. Nadler, “Life and Love in the Printed by Monumental Printing Co., Baltimore. Foreign Service,” page 62.

I HE FOREIGN SERVICE JOURNAL is the journal of professionals in foreign affairs, published twelve times a year by the American Foreign Service Association, a non-profit organization. Material appearing herein represents the opinions of the writers and is not intended to indicate the official views of the Department of State, the United States Information Agency, the Agency for International Development or the United States Government as a whole. Membership in the AMERICAN FOREIGN SERVICE ASSOCIATION is open to the professionals in foreign affairs serving overseas or in Washington, as well as to persons having an active interest in, or close association with, foreign affairs. Dues are $30 annually for members earning over $15,000; for those earning less, dues are $15.00. For subscription to the JOURNAL, one year (12 issues); $6.00; two years, $10.00, For subscriptions going abroad, except Canada, add $1.00 annually for over¬ seas postage. We must overcome the notion that Congressional military authority consists only of the crude instruments of declaration of war.

Peace and War: a Joint Responsibility

SINCE April 30 there has been an influx of mail addressed to the Congress in unprecedented volumes, originating from public concern over the deployment of United .States combat SENATOR CHARLES McC. MATHIAS JR. troops in Cambodia. The mail was so heavy at the peak volume that there was (Adapted front a speech delivered by Senator Mathias to a backlog of five to ten days’ unsorted letters in the the American Foreign Service Association, at the State basement of the Senate Office Building, waiting to be Department, Washington, May 27, 1970.) distributed to individual Senators’ offices. It has been truly a unique expression of opinion on a national issue. More than 50,000 letters, telephone calls, telegrams and other communications have been received from Marylanders at my office alone. The mail, of course, reflects varied viewpoints. One constituent wrote: Let me urge you to support the President on his decision and effort in Southeast Asia . . . The effort to limit his room for action by cutting off funds is nothing short of reprehensible. Talk of the President usurping In 1801, in a Supreme Court Case involving the seizure of Senate functions and causing a constitutional crisis is a ship, Chief Justice John Marshall concluded that the utter nonsense. “whole powers of war” were “vested in Congress.” Another letter, postmarked the same date and in the same Jefferson, in the midst of a dispute with Spain in 1805,' community, took a different view: wrote in a message to Congress: “Considering that Congress Our forefathers pondered and agonized over the best alone is constitutionally invested with the power of changing method of providing the balance of power, mainly to our condition from peace to war, I have thought it my duty avoid disasters they saw elsewhere. Has anyone found a to await their authority for using force in any degree which saner system than theirs: That Congress must declare could be avoided.” war and raise armies and then the President may direct At the end of the Mexican War, Congress was congratula¬ them? If the President feels free to go into Cambodia ting General Zachary Taylor on his meritorious service, but (only to wipe out pockets of resistance), what's to the House amended the resolution to refer to the recently prevent him from entering other countries for the same concluded conflict as “a war unnecessarily and unconstitu¬ purpose? Congress must reassert its proper power to tionally begun by the President of the United States.” Among make the decision and to be responsible to the elector¬ the members of the House who supported that amendment ate. were a former president, John Quincy Adams, and a future We must look closely at the background essential to an president, Abraham Lincoln. informed decision, and return to the bedrock of our system Lincoln apparently had a difference with his law partner, of government, the Constitution, which allocated the power Herndon, over this issue, and Lincoln wrote him: to commit American troops to battle between the President Let me first state what I understood to be your and Congress. The Constitution entrusts the President with position. It is that if it shall become necessary to repel the executive power and makes him commander-in-chief of invasion, the President may, without violation of the the armed forces, basically to insure that the final military Constitution, cross the line and invade the territory of command would be in civilian hands. another country, and that whether such necessity exists The Constitutional Convention of 1787 debated the ques¬ in any given case the President is the sole judge . . . tion of war power at some length. The intent of the Allow the President to invade a neighboring nation founding fathers was to reserve the power to initiate whenever he shall deem it necessary to repel an hostilities to the Congress, with the President participating invasion, and you allow him to do so whenever he may insofar as his signature was a necessary final act to complete choose to say he deems it necessary for such a purpose, the enactment of the Congress. and you allow him to make war at his pleasure. Study

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FOREIGN SERVICE JOURNAL, October, 1070 to see if you can fix any limit to his power in this the form of insurgencies, the preservation of meaningful respect, after having given him so much power as you congressional power requires that it be applied to this kind propose. of conflict. And we must overcome the notion that congres¬ The provision of the Constitution giving the war¬ sional military authority consists only of the crude instru¬ making power to Congress was dictated, as I under¬ ments of declaration of war and the use of the purse-strings stand it, by the following reasons: Kings had always which may be applicable only after the military commitment been involving and impoverishing their people in wars, has gone amuck. pretending generally, if not always, that the good of the Our experience with the new conditions of the nuclear people was the object. This our convention understood age—big wars, small wars, secret wars, and non-wars— to be the most oppressive of all kingly oppressions, and affirms rather than impugns the durability of the insights of they resolved to so frame the Constitution that no man the Founding Fathers. Their reservation to the President of should hold the power of bringing oppression on us. But the right to repel attack remains valid in terms of deterrence your view destroys the whole matter, and places our strategy. Their reservation to the Congress of the power to President where kings have always stood. ratify treaties, declare war, raise and regulate our military But as recently as the 1950s, faced with grave crises in the forces, and define and punish piracies and other violations of Middle East and the Formosa Straits, President Dwight D. international law—in other words, the vesting of compre¬ Eisenhower asked for—and received—Congressional au¬ hensive war powers in the Congress—remains eminently thority before committing US forces. desirable. The alternative, which the framers of the Consti¬ There seem to be two current theories which hold that the tution feared, is to grant dictatorial powers to the Executive Congress has no role in deciding when we go to war, One is in this realm. the big war theory. In the nuclear age, when there obviously Whether a member of Congress is for or against a war, could be wars too big, too fast breaking and too cataclysmic whether a member of Congress favors escalation or with¬ to allow for any congressional role, I would be the first to drawal, each member of the House and Senate has admit that during such a nuclear war the role of Congress a responsibility as a member of one of the three coordinate would be very problematic. The other theory is the reverse branches of Government to preserve the integrity of that of the big war theory. That is, that in the modern age wars branch of Government. tend to be too small, too secret, too intricate to allow a It is argued that if Congress does act at this time that it congressional role. will provoke a Constitutional crisis. I do not think that is It is this small war theory that increasing numbers of true. For a Constitutional crisis already exists. It is a crisis in congressmen are rejecting. If it is accepted, it means that which the Congress cannot possibly avoid a response. In this Congress cannot intervene in the war-making process until it kind of situation, to do nothing is in itself a response. has gotten out of hand and we are into a war as a fait Inaction, just as surely as action, will define the boundaries accompli. Just because in the nuclear age wars often take of the Constitutional power in the years ahead. ■ Worldwide All-Risk Insurance Coverage For Government Employees Special rates for American Foreign Service Association members

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FOREIGN SERVICE JOURNAL, October, 1970 7 At home or at your post COMMUNICATION bank at RE: Exorcising that Hobgoblin

SANFORD S. MARLOWE

IT is rather surprising, on several counts, that "Exorcising the Hobgoblin of Conformity” (in the JOURNAL of July, 1970) was written by an officer with ten years service. For one, Mr. Caterini certainly knows by now that fore'gn service officers don’t formulate policy—they make recom¬ Diplomatic Lobby, U.S. State Department mendations. And every officer who has access to writing implements (or, these days, to a tape recorder) and either to the pouch or to stamps, can put forward his recommenda¬ tions. In fact, every officer has a responsibility to do this, if, in connection with a particular policy or situation, he believes that he has some special insight or information. But it does seem obvious that not every such communica¬ tion can be given equal weight. I am sure that Robert American Security’s State Department Office is a Murphy’s views on the Berlin blockade were more likely to bank designed with you in mind. Its services are be considered than would have been those of any number of adapted for the diverse requirements of the Foreign younger and less experienced officers. This is but right and Service. American Security will transfer monies any¬ proper. For given his experience and knowledge, the chances where in the world . . . pay any regularly recurring are very great that Mr. Murphy’s views would be much more payment from your account . . . systematically useful in helping the President decide how best to deal with that situation. Certainly, no one can seriously believe that transfer funds monthly from your checking account the views of even a substantial proportion of the officers in to your savings account. . . purchase and sell foreign the foreign service (let alone all of them) can be considered currency . . . provide travelers cheques . . . purchase in connection with any one issue. To attempt to do so would or sell securities for customers or work in conjunc¬ create chaos and assure that no decisions at all were made. tion with your broker. And we offer the many services In this, as in most matters, selectivity is essential. of our Trust Department such as investment manage¬ But none of this, surely, is news to Mr. Caterini. Frankly, ment accounts . . . custodian accounts . . . trustee one suspects him of being disingenuous. Could it be that his under agreement . . . executor and trustee under complaint is not that he and other officers lack adequate your will. Bank at American Security’s State Depart¬ opportunity to present their recommendations, but that the ment Office-the bank designed with you in mind. policies they favor haven’t been adopted? And certainly Mr. Caterini, as an experienced USIA officer, doesn’t beiieve that there is any important distinction between foreign service personnel speaking publicly abroad (with a single voice on “implementation”) or in the United States (where “conformity is inexcusable”). Such distinc¬ tions may have been meaningful prior to the spread world¬ wide of telegraphic cables and, more recently, radio telegra¬ phy. But in 1970 we can take for granted that anything said publicly in the United States (and much said privately) will, AMERICAN if it is deemed newsworthy, be flashed instantaneously, if not around the world at least to interested news media wherever SECURITY they may be. We can also take for granted that public AND TRUST COMPANY disagreements with Administration policy by members of the foreign service would be deemed newsworthy. Main Office: 15th St. and Pennsylvania Avenue, N.W. Very much at issue in Mr. Caterini’s theses, are some of Washington, D. C. 20013 Tel. 783-6000 the foundation stones on which the American career serv¬ Member: Federal Deposit Insurance Corporation ices, domestic as well as foreign, have been built. These are that every Administration has the right to expect from

FOREIGN SERVICE JOURNAL, October, 1970 ANNOUNCING AN IMPORTANT NEW PERIODICAL Can the United States avoid catastrophe? Only if there is new thinking on foreign affairs, beginning right now. FOREIGN POLICY the first new authori¬ tative journal on U.S. foreign relations in 50 years, is based on that premise. FOREIGN FOREIGN POLICY is a journal of confrontation of foreign policy viewpoints—and arguments. It POLICY proposes to stimulate thinking, to provide an outlook and a NUMBER 1, FALL 1970, $2.50 forum, to lead in exploring the new dimensions of the U.S. role in world affairs. S What is FOREIGN POLICY? FOREIGN POLICY challenges the conventional wisdom of hawks 5 Security or Confrontation: and doves, of globalists and isolationists. It is post-bird and The Case for a Defense Policy anti-sacred cow. Paul C. Wamke and Will you agree with everything Leslie H. Gelb to be found in its pages? Of course not. But FOREIGN POLICY will 25 Plain Lessons of a Bad Decade make you feel that you simply must read each vital quarterly John Kenneth Galbraith issue. Editors: Samuel P. Huntington 43 How to Decommit Warren Demian Manshel Without Withdrawal Managing Editor: Symptoms John Franklin Campbell Paul Seabury and Editorial Board: Alvin Drischler W. Michael Blumenthal Zbigniew Brzezinski Richard N. Cooper 63 The Machine that Fails Richard A. Falk Richard Holbrooke David Halberstam Morton H. Halperin 75 The Military Establishment Stanley Hoffmann Joseph S. Nye, Jr. (or How Political Problems James C.Thomson, Jr. Become Military Problems) Richard H. Ullman Adam Yarmolinsky

95 What We Should Learn from Vietnam Richard A. Falk

111 The Coming Trade Wars m Harold B. Malrngren

136 Cool It: The Foreign Policy of Young America Graham Allison

155 Foreign Ad For What and For Whom Samuel P. Huntington

FOREIGN SERVICE JOURNAL, October, 1070 9 members of the career services: (1) their complete loyalty; (2) their best advice; and (3) their wholehearted assistance in carrying out the policies which are adopted. There is no ♦ room in the career service concept for public disagreement in either the formulation or the execution of Administration policy. Conformity, of course, is an extremely pejorative word SPECTACULAR these days; nonetheless, no President will, or can afford to, put up with public dissension (private dissension is bad enough) by members of the career services. It is very unlikely that the late President Kennedy would have tolerat¬ PROMOTIONS ed any such public spectacle. Had he been minded to, however, Attorney General Kennedy would probably have quickly brought his influence to bear on the side of adminis¬ trative discipline. In return for loyalty to the Administra¬ U. S. A. tions they serve, members of the career services get security, continuity of service and the opportunity to develop a professional approach to the subject matter they deal with. Career officials can, after all, always resign, as Ambassador STERLING FLATWARE Murphy implied, if their consciences are outraged. The “Spoils System” was not invented merely to pay off political debts. It was also a means of assuring loyalty to the SAVINGS OF UP TO 45% new Chief Executive and to his Administration. Presidents need to control the policy mechanisms and other key points in their Administrations. If they cannot be sure of the GORHAM—INTERNATIONAL—TOWLE loyalty of members of the foreign service (or of other career ONEIDA—LUNT—REED & BARTON services), they have little choice but to appoint persons they can trust from outside the services to fill positions concerned WALLACE with policy-making and implementation. It is indeed very hard to believe that any President (or his major subordi¬ SILVERPLATED FLATWARE by INTERNATIONAL nates) would allow career foreign service officials to dis¬ and REED & BARTON agree publicly with Administration policies, or even to make public their recommendations. It is also somewhat surprising to find a USIA officer 25% DISOUNT on LENOX CHINA & equating the United States Government’s speaking with one CRYSTAL-ROYAL DOULTON-FOSTORIA voice with the monolithic nature of Communist society. The china Government of the United States, as well as that of other the whole year round. countries, must speak with one voice. Few things are more likely to increase confusion in the world and to make PROMOTIONS EXPIRE DECEMBER 31, 1970 problem-solving more difficult than a babble of voices claim¬ ing to speak for each government. One could never be sure Please ask for detailed special folders sent to you gratis. which is authentic, which a trial balloon, which an author¬ ized disagreement and which just plain static. We offer the largest selection of SILVERWARE from the Our society, however, does, and should, present an endless leading American Silversmiths GORHAM—INTERNATIONAL- variety of voices, viewpoints and ideas. This often is confus¬ REED & BARTON—WALLACE—ALVIN—TOWLE—LUNT—KIRK ing to people abroad, especially to those living in societies and LENOX CHINA at considerable discounts. Also SILVER¬ the rulers of which do not permit non-governmental ideas to WARE—CHINA—CRYSTAL from the leading manufacturers be publicized. These people find it very difficult to believe in Europe. what our government does. This, however, is a problem we very gladly live with because its genesis is in the blood and bones of our political and social nature. 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10 FOREIGN SERVICE JOURNAL, October, 1970 We’re helping put certain friendly corner druggists out of business. costs will be less than those for conventional building. To help minority-group Americans lead productive lives, we have recruiting and training programs that enable us to employ a signifi¬ cantly higher percentage of minority-group Americans than the reported national minority employment rate. We are sponsoring a Minority Enterprise Small Business Investment Corporation (MESBIC), in cooperation with the Commerce Department's Office of Minority Business Enterprise, to provide venture capital and modern management acumen to qualified minority businessmen. ITT and you We don't pretend we can do it all. But we are helping. We don't mean legitimate addicts. These seminars are aimed Migratory workers in Florida are pharmacists. at prevention: determining the being trained for assembly line We mean pushers selling drugs extent of the problem, how to work. We support the national and to our kids-to teenagers and analyze community conditions that the New York Urban Coalitions. We even younger. contribute to addiction, how are studying malnutrition problems The spreading use of drugs by to identify symptoms of addiction, in poverty areas. We are our kids must be stopped. To do how to prevent addiction's conducting research in air and water this nationwide, communities must further growth. pollution control. understand the problem so they But the seminars are only a As Business Week magazine can take meaningful action. beginning. To completely eliminate pointed out in a December 6 the drug threat requires the coop¬ editorial last year: ''The great A series of drug seminars eration of government, educational American corporation is perhaps We're helping by funding a series institutions, industry and communi- the most effective device ever of drug seminars in selected com¬ ties-and, most of all, parents and invented for getting things done in munities, to be conducted by the their children. a free society. When there are jobs Institute for the Advancement of to be done, the American people Criminal Justice. Helping with other problems turn instinctively to the corpora¬ These seminars, designed to tell To help ease the critical housing tions to do them." entire communities how to cope shortage, our Levitt subsidiary And when the corporations with the drug threat, feature a has broken ground for a pilot respond, that's good for you and panel of psychologists, sociologists factory that will produce people everywhere. and medical experts, each a sectionalized houses. Drug pushers excepted. recognized drug-control authority. (The concept was extensively tested International Telephone and Most drug-control programs are in a Levitt townhouse project.) Telegraph Corporation, 320 Park concerned with treatment of Quality will be maintained while Avenue, New York, N.Y. 10022.

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FOREIGN SERVICE JOURNAL, October, 1970 11 Road in Shanghai seemed always to harbor a feeling of romance and sur¬ prise. The rooms had huge north win¬ TEA TRADING dows, boarded up like funnels, so that only the purest light would fall upon ON THE the long counters where samples of the fragrant new tea crop were laid CHINA COAST out in the spring, and the color, shape and texture of the leaves could be clearly seen. The light here was as important as that for an artist. There were large revolving tables, set out with scores of tiny porcelain bowls into which were measured exact | T was well understood by those in tea ENID S. CANDLIN that their calling was unique: superior quantities of tea; a boy went round to, and of quite another dimension Mrs. Candlin is the wife of A. H. with an immense kettle of boiling than, other walks of life. They looked Stanton Candlin, a frequent con¬ water filling the bowls. Then the tea tributor to military publications. taster worked round them, pushing with a pitying eye upon the follies of She has written two books, a his¬ away the cups from which he had ordinary men, who fit themselves for tory of Chinese paintings and a sipped, always having a fresh place. their careers by studying the classics, volume on Oriental religions and Long afterwards I came to work in a mathematics, science. The important philosophies. tea firm myself for six months, mak¬ thing was to be able to taste tea with ing them a cable code, and even I was precision and insight, to know what expected to experiment with tasting. year it was grown, in exactly what flowery garden, in what county of "Tell me which one of those shines out like a star,” the owner would Fukien. They were like Jowett in Bel¬ And what is all there is to know? loc’s verse: say, and I would sip from one after Tea, of course. the other seeking this elusive image. This is Balliol, I am Jowett, My father being a tea merchant, I Sometimes I even found it. AH there is to know, I know it; grew up accepting these truths implic¬ How strange that this white- l am the Master of this College; itly. flowered little bush should have be¬ What I don’t know isn’t knowl¬ The old tea hongs [warehouses or come the focus of so much interest, edge. trading stations] down on Peking legend, and finance. For hundreds of

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FOREIGN SERVICE JOURNAL, October, 1970 13 years it has excited the imagination to neat and smiling youth taking them had to be powdered, but even so . . . an extraordinary degree. something hot to drink out on the The basket waving lightly in the air is As long ago as the eighth century terrace. Tea included special attend¬ a type of stimulant which aids inven¬ its literature was well under way: the ants, either youths or graceful maid¬ tion, and Meissen began to produce leaves had to have “creases like the ens—it was more agreeable to de¬ some very fine porcelain, as did, in the leathern boot of Tatar horsemen,” scribe the way the water should boil course of time, Nymphenburg, Sevres, and “unfold like mist rising out of a (the “fish eyes,” “the crab froth,” the Delft, and the rest. ravine, gleam like a lake touched by a “billowing waves”) than to mind the So here we have people sitting zephyr.” stove oneself. about in salons in Europe drinking tea It was easy to grow, for the Chinese The fashion for drinking tea in (prepared by unseen hands, certain¬ in the south, and inexpensive. For a Europe coincided with the new pas¬ ly), and nursing delusions about China long time people grew their own sion for porcelain. The expense and and Confucius and the science of plants at home. Finally the whole tea difficulty of obtaining enough Ming numbers. And what was back of that thing ran riot, and swept over the china then made life extremely awk¬ asks the tea man? You needn't an¬ world. ward for the alchemists, who were swer—we know. The Japanese made a real cult of it; jogging on as usual doing their endless The time came when the Europeans the Chinese took it more easily and research for the philosopher’s stone, who had neglected all the rules about gently. They came to associate it with trying to transmute everything into when and how to drink tea (who had quiet harmony, and friendship, and gold. They were suddenly told to drop in fact never heard of them), and who produced endless epigrams about the everything and make porcelain instead, were basically ignorant as to the great times when it should be enjoyed—“in and quickly, else someone’s head Myth of Tea, actually began to think a painted boat near a small wooden would most certainly be accom¬ of growing it themselves, to save mon¬ bridge,” “during a day of light show¬ modated in a basket. ey, of all reasons the most barbarous. ers,” in the silence that follows a song, The alchemists at Meissen (the Robert Fortune, a man of parts, went on a terrace, watching the moon rise. forerunners of M.I.T., and very simi¬ out to Fukien, slipped away up coun¬ To drink it when busy, or in a noisy lar to the latter in many respects) had try disguised as a Chinese, and came setting, when children were crying or the common prejudices about having out with some plants. From these servants quarrelling, was impossible their own heads on their own shoul¬ emerged the vast plantations of As¬ In these beguiling phrases a whole ders. A head may be a bore and an sam, Darjeeling and Ceylon, which fantasy was sustained. Naturally expense—the face is not perhaps the were brewed under all sorts of crass enough, in such situations one tends to one we would have chosen if asked— conditions, and finally adulterated be happy and calm, and it is pleasant but then we are not asked. It may be with milk and sugar. A horrible, horri¬ for high-minded scholars to have a a poor thing, but it is our own. Wigs ble thing; one shudders and hastens

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Plans and Prejudices

l N the spring of 1965, having com¬ CHARLES FRANKEL more debatable than they do now. pleted a study of American educa¬ The author has for many years There had not yet been troubles at tional and cultural policy abroad been a member of the Philosophy Columbia, Harvard and the Sor- which I had undertaken at the re¬ Department at Columbia where he bonne; Russia’s difficulties with its quest of learned societies and the has specialized in political philos¬ intellectuals had not become fully State Department, I submitted my ophy and has also taught in the evident; events in Madrid, Tokyo, School of Social Work and the conclusions, in which I said that the School of International Affairs. Rome, Belgrade and Prague had premises of official policy were Between 1965 and the end of not yet indicated that something largely wrong and the government’s 1967 he was the Assistant Secre¬ like an international culture of dis¬ mode of operation outlandish. tary of State for Educational and content might emerge in the univer¬ Shortly thereafter, I was asked Cultural Affairs. sity world. The preoccupations of From the book, “High on Fog¬ whether I would accept the office gy Bottom: An Outside View of American foreign policy in the first of Assistant Secretary of State for the Government,” copyright © part of this decade were with proj¬ Educational and Cultural Affairs. 1968, 1969 by Charles Frankel. ects like establishing a Multi- What were the ideas that I Reprinted by permission of Harper Lateral Force in Western Europe. & Row, Publishers, Inc. thought should be tried? Their ba¬ In circles where such projects sic premise was that students and seemed realistic and urgent, discus¬ professors, writers and artists, sion of the importance of educa¬ scientists and intellectuals, are im¬ and to which growing influence has tional and cultural diplomacy was a portant social groups, and impor¬ come. More than ever before, ideas little like discussion of the common tant politically. It didn’t occur to and moral and social attitudes have cold at a meeting of doctors study¬ me then, and it doesn’t occur to me emanated from the places where ing diseases of outer space. now, that the people who compose these people live and work that Yet it seemed to me that the these groups are made of a superior deeply affect both domestic and time was overdue for a change. In metal. They aren’t more responsi¬ world politics. The relations be¬ the sixteenth century the Spaniards ble, more humane or necessarily tween societies, and the prospects ruined themselves by basing their more intelligent than people in oth¬ of any major government’s foreign overseas policies on the premise er walks of life, and the way in policies, depend, to an extent that that gold was wealth. They over¬ which they govern their own insti¬ has not been adequately under¬ looked, as the British didn’t, the tutions gives no reason to suppose stood by those who make foreign significance of commercial power. that the world would be substan¬ policy, on the activities and atti¬ Similarly, it was a mistake, in this tially better governed if they took tudes of the intellectual communi¬ century, I believed, to ignore or over. I do not think that “intellec¬ ty. To push this fact to the fore¬ misunderstand the role of scientific tuals”—the term itself is a nest of ground, to give it the recognition it and intellectual groups. They were ambiguities—have special rights in deserves, and to develop programs pivotal people, on whose attitudes public affairs. But they have the that might give intellectual workers power they have, and that power a more active and useful part to and actions the success of much in has implications, whatever the val¬ play in international affairs was the domestic policy and in foreign poli¬ ue judgment we pass upon it. central purpose to which I wanted cy turns. The lines going out from Over the last twenty or thirty to give my attention when I entered the arts, sciences and education years particularly, men of knowl¬ the government. have become the life lines for most edge, professional writers and crit¬ In the summer of 1965, when I societies. The arts, in an era of ics, scholars and artists, have suggested that these ideas should be expanding education and rapid emerged as a social category to applied in a systematic way to for¬ communication, have a radiating which increasing deference is paid eign policy, they seemed odder and influence on men’s perception of

FOREIGN SERVICE JOURNAL, October, 1970 19 the nature of their environment and mark remains an exaggeration in feat the conditions making for the of themselves; the sciences are the ours. Les honnetes gens qui pensent gradual evolution of an internation¬ sources not only of revolutionary are not always honest, they do not al political community. The United technological changes but of views always think, and national and ideo¬ States government, the richest and of the world that have put inherited logical divisions among them are most powerful of all, had a pecu¬ outlooks on the defensive, and have severe. And yet there are common liarly good chance to lead the way, generated, for better or worse, new problems and standards of workman¬ it seemed to me, and a special assessments of the institutions by ship that tie chemists, musicians or self-interest in doing so. which men govern their affairs; in economists together, whatever their Arrayed against this approach all societies, rich or poor, revolu¬ national origins or ideological affin¬ there existed certain habits of tionary or conservative, the school ities. In their cooperative pursuits mind, which had taken root inside bears an increasingly heavy social they form international communities, the government, and which I hoped role, attempting to fill the gap left in seed or in full fruition. to loosen a bit. Basically, three by the weakening of the family, the points of view prevailed within the Foreign policy must meet new churches and local communities. government, and had prevailed for requirements, I felt, when it is con¬ And all these areas of activity— twenty years or more, with regard ducted within a civilization whose the arts, the sciences, education— to educational and cultural affairs. intellectual and educational lead¬ have particular importance for the The first was the approach of the ers, on both sides of most political segment of the population in con¬ hard-nosed psychological warrior. boundaries, have come to look temporary societies which is It conceives of educational and cul¬ upon such boundaries as increasing¬ growing most dramatically in num¬ tural activities essentially as forms ly artificial and inconvenient. A bers and influence—the youth. A of propaganda. The purpose of ed¬ government, to be sure, could set politics, foreign or domestic, which ucational and cultural policy, from its face against such attitudes and neglects their attitudes or their spe¬ this point of view, is simply to even try to control or redirect cial institutions has, I was con¬ reach people who have an impor¬ them. If it was a free government vinced, a shaky future. The univer¬ tant role in forming public opinion in a free society, however, its sities, in particular, are crucial in¬ and to warm them up, whether chances of making this policy work stitutions. They are more than with a good lecture or a song and were minimal. It would merely sources of expertise, reservoirs of dance. Then they will work with us technical talent needed by a techni¬ alienate its intellectual and educa¬ and not against us, and their com¬ cal society. They house, in a secu¬ tional leaders if it tried. On the patriots will come to see things as lar age, the new priests, the tutors other hand, it could make a bet on we do in international affairs. This, of the public conscience. It is in the another posssibility. It could try to essentially, was the position of the universities, more than anywhere facilitate and encourage the further people in charge of the United else, that modern societies develop development of the network of in¬ States Information Agency, the their consciousness of themselves tellectual and cultural partnerships agency responsible for official and their moral estimate of their across the borders, and thus use its American information and public performance. power to strengthen rather than de¬ relations activities overseas. Ex- The practical reforms that I hoped to bring about were based on the conviction, therefore, that some of the fundamental conditions of power, national and internation¬ al, had been changed. Internally, each nation’s strength and cohe¬ siveness depended as never before on the capacity of its educational system to serve as a center of social authority, unification and regener¬ ation. Externally, the relative pow¬ er of nations was affected more than ever by their ability to win the tolerance and sympathy of the in¬ tellectual classes, abroad as well as at home. Most important of all, the new role of the intellectual classes had made the old game of national rivalry suspect. “Les honnetes gens qui pensent, whatever their nationality,” said Voltaire in the eighteenth century, “share the same principles and con¬ stitute a single republic.” He exag¬ gerated in his own day and the re-

20 FOREIGN SERVICE JOURNAL. October. 1970 changes of students and teachers, but I also thought it a limited point Scholarships strengthened good the establishment and maintenance of view. relations between Great Britain and of American libraries abroad, inter¬ Terms like “technology” and “in¬ the United States, a broader pro¬ national meetings of learned socie¬ dustrialization” stand for more than gram might strengthen our relations ties or writers’ groups, visits of art¬ machinery, special know-how and with other nations. Senator Ful- ists and scientists, a0 these, from the accumulation of capital. They bright, who has had as much to do this point of view, are activities in stand for habits of mind and for with the development of a cultural which the government of the attitudes toward what is proper as a policy for the United States as any¬ United States is interested only be¬ style of life. The purely technical one, held this view. It was shared cause they serve the purpose of approach to modernization ignores by many of his colleagues on the winning friends and influencing the cultural context which is need¬ Senate Committee on Foreign people. ed to sustain economic develop¬ Relations, and by a number of the This point of view seemed to me ment. Moreover, it tends to force- most sophisticated and experienced more than crass. It struck me as fit educational planning, which is a people in the Department of State. naive. When, in the course of my long-range affair, to the Procrus¬ I thought it a civilized view, and study, I called on one of the princi¬ tean bed of short-range economic a realistic one. All that made it pal officials of the Information plans aiming at more immediate, unrealistic was that the Congress Agency, he said to me, “The dramatic results. While educational and the executive branch had never American taxpayer isn’t spending plans cannot be made without re¬ been persuaded to support it on the money to advance the arts and gard to the economic resources and proper scale. Under the pressure of sciences or to promote anything so prospects of a society, the approach the cold war and of preoccupation intangible as international under¬ of those concerned with specific with economic assistance to the poor standing. He wants good hard re¬ projects for economic improvement countries, this point of view had al¬ sults. He wants the national interest too often tends to ignore the gener¬ ways been submerged. to be served.” But it seemed to me al catalytic effects of educational But I had also come to think; as that “the national interest”— progress on an entire economy. Ed¬ a consequence of my study, that elusive phrase—might include the ucation, it seemed to me, had al¬ the phrase “mutual understanding” advancement of the arts and ways been unduly submerged in gives only a small indication of the sciences and the promotion of in¬ AID’s programs of economic assist¬ nature of the problems posed by ternational understanding. It also ance. educational and cultural policy. seemed to me—in fact, I went And there was another point of These problems are similar to oth¬ home and looked it up, and found I equal importance. The purely tech¬ ers in international affairs. They was right—-that laws passed by nical approach to foreign assistance have to do with the rectification of Congress explicitly said that inter¬ pays too little attention to the fact imbalances of intellectual power; national understanding was a goal that the export of American know¬ with the removal of hindrances to of cultural policy. But my disagree¬ how can be easily viewed in other communication and negotiation; ment with this view also stemmed countries either as a tactless in¬ with the control of cultural aggres¬ from a basic practical consider¬ trusion or as a conscious moral sion, witting or unwitting; with the ation. Simple realism suggested that aggression. It tends to ignore the creation of institutions and enter¬ the terms of a workable modus requirement that Americans, if they prises in which there is an interna¬ vivendi with the intellectual com¬ are to work usefully with other tional stake, so that the edge is munity needed to be understood. people, must develop a capacity to taken off international hostilities That community plays the major tune in on assumptions and values and the reasons for keeping peace role in cultural exchanges, and few not their own. Although many of are multiplied. The phrase “mutual of its members are going to go the top officials in AID recognized understanding” only begins to sug¬ along willingly with a public- these facts, a narrower doctrine gest the importance, complexity relations counselor’s view of their dominated most of our actual pro¬ and fascinations of cultural foreign function. grams in developing countries. Pro¬ policy, rightly conceived. The second point of view toward grams of cultural exchange, pro¬ Educational and cultural diplo¬ international educational and cul¬ grams aimed at making Americans macy is not simply an exercise in tural activities was the technician’s. and their foreign counterparts more the spreading of good will. It has, It prevailed in the Agency for In¬ sensitive to the nuances of interna¬ or should have, quite specific pur¬ ternational Development, which tional cooperation, seemed to me a poses. A first purpose should be to has primary responsibility for the necessary precondition and comple¬ develop arrangements, technical government’s foreign assistance ment of economic assistance. and human, that will lead to a programs. This approach held that The third point of view toward more equitable distribution in the educational and cultural activities educational and cultural exchange world of ideas and information. are primarily instruments for pro¬ was the view of those seeking “mu¬ There ought to be facilities for the ducing the trained manpower that tual understanding” between na¬ regularized, efficient dissemination other countries need and thus pro¬ tions. They believed that the pur¬ of knowledge that would insure moting their economic progress. I pose of educational and cultural that the necessary kind of knowl¬ thought it closer to the truth than relations is to give people more edge goes to the people who need the view that cultural diplomacy is perspective, on themselves as much it, and would allow them to tap into a form of psychological warfare, as on others. lust as the Rhodes the immense reserves of knowledge

FOREIGN SERVICE JOURNAL, October. 1970 21 that have been built up in a few rope—would not by itself eliminate be treated in its own proper terms, central places in the world, most the technological gap, but it would rather than in terms of propaganda particularly in the United States. help, and it would alleviate the or narrow technical assistance, it What was needed, I thought (and suspicion that the United States is might help other countries develop what is still needed, I think), is indifferent to this gap and perhaps their own training grounds for lead¬ what might be called an interna¬ even favors its existence. ership. tional knowledge-bank. And to this Equally important in rectifying This brings me to a third purpose the United States could make a the imbalance of intellectual re¬ that I had in mind for a reformed major contribution. sources is the promotion of greater American cultural diplomacy—the The United States could act to equality of educational opportunity development, in schools and in the prevent a kind of tragedy which is around the world. This is a second intellectual circles that have long- today a daily occurrence. There are purpose of cultural foreign policy. range influence over the formation people suffering in one part of the Economic assistance fails to grap¬ of people’s opinions and attitudes, world because they do not have the ple with one aspect of the problem of the habit of international cooper¬ answer to problems, in plant hus¬ of inequality. It may give people ation. Could arrangements be made bandry, human medicine or dozens more food, more health, more hope, so that two, three or four universi¬ of other areas, which people in but it also often exacerbates their ties in different countries shared another part of the world, and feelings of inequality by increasing common faculties? Could the sometimes just across the moun¬ their country’s dependence on its United Nations Educational, Scien¬ tains, have successfully solved. foreign nations and its vulnerability tific and Cultural Organization per¬ Much of the time this kind of trag¬ to their economic and cultural pow¬ haps create an international edy is avoidable. Through better er. A necessary supplement to eco¬ teaching corps, to which each na¬ provision for the distribution of nomic assistance, therefore, and, in tion would contribute, and which books, through libraries, informa¬ some cases, a substitute for it, is as¬ would rotate its members through tion-retrieval systems and com¬ sistance through educational and the schools of different nations? puterized networks for the commu¬ cultural exchange. Could scholars and teachers from nication of knowledge, through the Programs devoted to the promo¬ several countries be brought togeth¬ development of arrangements tion of educational and cultural er to look at the textbooks used in across the borders that would bring relations provide a context in which their different national school sys¬ together educational, technical, ag¬ Americans can meet others as stu¬ tems, and eliminate at least the ricultural or medical organizations dents and not only as teachers, as grosser forms of misinformation to make a concerted attack on beneficiaries and not only as bene¬ and prejudice in them? common problems, a basic imbal¬ factors. Such programs reduce the I did not imagine that any of this ance in the world—the different tutelary relationship that mars our would be easy. But the internation¬ positions of different nations in contacts with foreign countries. al atmosphere would be brisker and relation to their access to what is More than this, they might help more hopeful if serious effort were known—can be partially rectified. reduce one of the basic causes of made to try some of these ideas. A Efforts such as this might well con¬ the inequality of nations—namely, major commitment by the United tribute as much to the economic the migration of educated people States government to international development of the poorer coun¬ from the poor countries to the rich¬ education could be just the spark tries as straightforward dosages of er ones. Properly replanned, the that was needed, it seemed to me, money and machinery, and would classic techniques of international to ignite such an effort at interna¬ do more to encourage a sense of cultural diplomacy — regularized tional intellectual disarmament. national independence and accom¬ exchanges of teachers and students, But there was one final problem. plishment. partnerships between universities in Little of this could work, I was Nor need such efforts to correct different countries, international inclined to think, unless there was a imbalances in the distribution of meetings-—can be used to make change of orientation in the Ameri¬ knowledge be directed only toward opportunities for education and in¬ can government’s approach to edu¬ the poorer countries. In our rela¬ tellectual nourishment in the poorer cational and cultural relations. The tions with Great Britain, for exam¬ countries more like those available emphasis was usually on what we ple, the so-called “technological to people in richer countries. were doing to others, or to them. gap” has been a troublesome issue. I thought the experiment, in any We were assisting them, enlighten¬ Yet most of the technological case, was worth trying. The answer ing them, correcting their erroneous knowledge we develop is available, to the so-called “brain drain” views of us, helping them to learn in theory, to the British. What is should be sought not in prohibitions to like us. This was the way the needed to make it more easily against migration, which limit the Congressional Appropriations Com¬ available in practice is a sophisti¬ fundamental right of individuals to mittees usually viewed cultural cated system for channeling it to live where they desire, but in an relations, and many people in the the people who need it. Cooper¬ affirmative effort to encourage an executive branch, including a good ation in the development of such a international circulation of brains. portion of those actually involved system between the United States If the United States government in the day-to-day work of superin¬ and Great Britain—and, more were prepared to approach educa¬ tending cultural relations, ap¬ broadly, between the United States tional cooperation with other coun¬ proached them in the same spirit. and the countries of Western Eu¬ tries as an educational problem to It is natural, it need hardly be said,

22 FOREIGN SERVICE JOURNAL, October, 1970 that this should be so. Americans proposal will not be rejected for students and teachers. It seemed to are competitive, and the cold war lack of a hearing. It tries to insure me, when I was reflecting on has encouraged them in this atti¬ that every explanation has been whether I should enter the govern¬ tude. And it is not unusual, after given, every medium of communi¬ ment, that American cultural diplo¬ all, for people to look with pride on cation employed, every willing ear macy could be a means to the their own culture, and to feel that it reached. American officials do this, internationalizing of that experi¬ does no harm to teach others about so far as I can see, for the simplest ence, and to the broadening of it. The British, the French, the of reasons. They want to be able to American perspectives. We could Germans, the Russians, all use cul¬ say to themselves, and to report to not escape our position in the tural diplomacy to enhance the rep¬ Washington, that they have really world: we would have to educate utation and prestige of their coun¬ done their best to put a message ourselves up to it. tries. But the United States govern¬ across. But while this builds up Programs in international educa¬ ment, it seemed to me, did not self-esteem, I am not sure it per¬ tion and cultural exchange seemed need to be quite so assertive in this suades others. Particularly in the to me, in this way, to be programs respect as it usually was. area of cultural relations, I felt, for the improvement of American Our government, I thought, what was needed was less bureauc¬ education. “The most happy of might understand that even a whis¬ racy and less hustle, a less conspic¬ mortals should I think myself,” per from America can sound like a uous government presence and a wrote Montesquieu in his preface shout elsewhere, and that, in any less conspicuous American pres¬ to “The Spirit of Laws,” “could I case, America didn’t usually whis¬ ence. contribute to make mankind recov¬ per. The United States is large, Not that this is easy to bring er from their prejudices. By preju¬ powerful and industrially ad¬ about. Even if Americans could dices I here mean, not that which vanced. Even when the drive learn the virtues of a less obtrusive renders men ignorant of some par¬ toward industrialization in other diplomacy, the world often con¬ ticular things, but whatever renders countries has no American impetus spires against it. One of the distin¬ men ignorant of themselves.” behind it, the changes that take guished career officers in the The elementary function of in¬ place in them in consequence of United States Foreign Service, a ternational education, in the United industrialization have an “Ameri¬ man who has served as ambassador States or any other country, is to can” quality to them. The divisions in an important post, has felt for render men less ignorant of them¬ that arise within societies going years that, in our diplomacy, we do selves. I thought I would like to see through this painful process, the things clumsily: we make too much what could be done to put into hard choices that are forced upon noise; we are too eager for results; practice the idea that a better for¬ them, the doubts they feel as they we act as though there were no eign policy for the future might see cherished values disappear, can tomorrow. He thinks it would be start in the American classroom. be laid at the door of the aggressive better if we took it easier, letting But all this takes me to more American colossus. This may or history work its slow ways and per¬ mundane matters—specifically, to may not be fair, it is a fact of life, haps giving events a tactful nudge bureaucracy. In coming into the and in such circumstances much from time to time. The Ambassa¬ government, I had had more than depends on the tone or style of dor, in fact, finally got around to abstract ideas in mind. I hoped to American diplomacy. The United writing an essay on the subject, produce a practical change in the States, I believed, needed a diplo¬ which he called “Quiet Diploma¬ way that educational and cultural macy less brash and impatient. cy.” He had just completed it when affairs were administered. The the¬ “Quiet diplomacy” was the style a mob came along and stormed his ory and style of the hard sell were and the mood to which my ideas embassy, forcing him to burn the firmly installed in the government; belonged. Was it a possible style, a essay, along with the other papers. they had squatters’ rights in the possible mood, for the United As his story suggests, the facts of extraordinary system—really a States of America? Our culture has international life aren’t always nonsystem—by which the govern¬ its charms, but tranquillity and self- compatible with quiet diplomacy. ment conducted educational and effacement are not among them. In Nevertheless, on the assumption cultural relations. To change that Rome the American Embassy dom¬ that Aristotle is right, and that men system was going to be the hardest inates the main street. In London it strike a golden mean by leaning practical problem I would face. takes over a main square of its over backward away from then- To explain this problem, I must own. In Paris it backs up against natural vices, quiet diplomacy describe the peculiar history of ed¬ the residence of the President of seems to me, on the whole, the ucational and cultural affairs in the the Republic. Given the condition right style for the United States. United States government. It is a of the world, we would be front But the prospects for such a zigzag and confusing history, and and center even if we didn’t try; style, rest, in the end, on a change its details may not interest the but we try. Even though we’re in what American schools, colleges reader who has been lured this far Number One, we keep trying and universities do—a change in by the promise that he would sim¬ harder. what they do not simply in pro¬ ply be told what an experience When our government has a pro¬ grams concerned directly with in¬ inside the government is like. Such posal to make to other govern¬ ternational affairs, but in their gen¬ a reader can skip this section of my ments, it makes sure, as probably eral curricula, and in the day-to- story without missing anything es¬ no other government does, that its day experience they provide their sential. Nevertheless, it is possible

FOREIGN SERVICE JOURNAL, October, 1970 23 that the history I am about to educational programs or informa¬ This is the situation that still exists. recount will prove instructive. For tion programs, it would have made The State Department, and not the it does illustrate what I am half- more sense to have retained the Information Agency, pays the sal¬ inclined to think may be a funda¬ information programs. aries of these officers, but it neither mental Law of Government. It is But the reverse took place. Al¬ hires nor fires nor assigns them. this: Whatever happens in govern¬ though the argument is surely more Thus did bureaucracy “solve” ment could have happened differ¬ persuasive that information pro¬ the problem. The Senate had ently, and it usually would have grams should be responsive to the wanted cultural affairs sharply sep¬ been better if it had. And to this day-to-day tactical demands of for¬ arated from propaganda activities. law there is also a corollary: Once eign policy, these were placed in a The bureaucracy came up with a things have happened, no matter separate agency. In contrast, cul¬ solution that put cultural affairs how accidentally, they will be re¬ tural programs, which benefit not overseas in the hands of people garded as manifestations of an at all from seeming to be under whose primary mission, as mem¬ unchangeable Higher Reason. For the authority of the same people bers of the Information Agency, every argument inside government who have to decide about military was propaganda. The Senate had that some jerry-built bureaucratic alliances or votes in the UN, were wanted the State Department to be arrangement should be changed, made the business of the State De¬ responsible for cultural policy. But there are usually twenty arguments partment. (Happily, the State De¬ the Assistant Secretary for Cultural to show that it rests on God’s own partment has usually accorded con¬ Affairs, given the rules that prevail Logic, and that tampering with it siderable autonomy to these pro¬ in bureaucracies, cannot communi¬ will bring down the heavens. grams. Nevertheless, their con¬ cate directly with Cultural Affairs This law and its corollary are nection with the State Department Officers who are presumably carry¬ exemplified in the creation and invites misinterpretations of their ing out his policies, nor can they do continued existence of the mecha¬ function, administrative confusion so with him. The man who sits in nisms that govern the operation of and occasional ham-handed efforts between is the chief of the In¬ educational and cultural programs to bend them to short-range politi¬ formation Service in the embassy as a regular part of American for¬ cal purposes.) (the Public Affairs Officer, so eign policy. Until the end of 1952 On the whole, however, the deci¬ called). This officer, whose back¬ these programs were the responsi¬ sion to keep educational and cul¬ ground is usually in the mass media bility of an Assistant Secretary of tural programs within the Depart¬ or public relations, directly super¬ State who was also responsible for ment of State was a workable one, vises the Cultural Affairs Officer, the United States information pro¬ so far as it went. Its shortcoming evaluates his performance, and gram overseas. In 1953 John Fos¬ was that it was only a half- makes the fundamental decisions ter Dulles, no doubt stimulated in completed decision. The Senate that affect his advancement in the part by the fact that Senator Joe had said that cultural programs Information Service. I suspect there McCarthy had the information ac¬ should be separated from informa¬ are few more frustrating jobs in the tivities of the State Department in tion programs, but it had not said United States government than that his gunsights, decided that the De¬ what should be done about the of Cultural Affairs Officer. Fortu¬ partment should get rid of these people who had worked on both nately, the work is intrinsically in¬ responsibilities. Mr. Dulles pro¬ these kinds of program in the State teresting, but, even so, recruiting posed to create a new agency out¬ Department, and who now had to good people for the position isn’t side the Department of State, and be divided between two organiza¬ easy. Its built-in confusions and to give it the duty of conducting tions. The bureaucracy got to work conflicts are too great. both information programs and cul¬ on this knotty problem. After six Nor do the complications stop tural programs. months of negotiation, in order to here. What is culture, and what is However, at this point the Senate reach a compromise, it adopted a information? It may interest the intervened. Led by Senators simple rule-of-thumb: all the peo¬ reader to learn that “culture,” in Bourke Hickenlooper and William ple involved were neatly divided the foreign policy circles of the Fulbright, it passed a resolution into two classes, those who were United States government, refers to which asserted that the objectives abroad and those who were in what people communicate, while of educational and cultural pro¬ Washington. Those abroad were as¬ “information” refers to what things grams were different from those of signed to the new Information communicate. For purposes of bu¬ information programs, and that the Agency, and those in Washington reaucratic convenience, the rule two should therefore be adminis¬ were kept in the Department of was established that the cultural tered separately. In consequence, State. In consequence, the cultural division of the State Department the Department of State took the section of the State Department would deal with students, teachers, educational and cultural programs was deprived of representatives of researchers, athletes, performing back under its wing. Thus an initial its own overseas. To find such rep¬ artists, while the Information Serv¬ oddity in the administration of cul¬ resentatives it had no place to turn ice would have jurisdiction over tural affairs was produced. In terms but to the Information Agency. books, libraries, films, television of the efficient administration of Cultural Affairs Officers, employ¬ and the visual arts. One would foreign policy, if the Department of ees of the Information Agency, be¬ imagine that the latter were also State were faced with a choice of came the administrators abroad of necessary and useful parts of a retaining direct control of either the American cultural program. (Continued on page 58)

24 FOREIGN SERVICE JOURNAL., October, 1970 In most cases one can expect that the US Government will have either no effect on the environment, an infinitesimally small effect, or an effect different from the one intended by its designers

HOW WE DO OUR THING: INNOVATION

THE first article in the How We JOHN W. BOWLING bureaucratic friction increases with Do Our Thing trilogy (Foreign Serv¬ Mr. Bowling, Coordinator, Politi¬ time, and as the crisis manager ice JOURNAL, January 1970) de¬ cal Studies, School of Professional concerned turns his whole attention scribed the national security bu¬ Studies, FSI, continues the series onto another crisis. reaucracy as engaged in advocacies which started in January with pol¬ The second reason should also geared to foreign areas, foreign icy formulation and continued in be obvious: most innovations of May with crisis management. states, international organizations, this type won’t work at all as they and United States operations abroad. were envisaged. Usually, they are, At the conclusion of that article, in plain language, pretty damned the bureaucratic structure and proc¬ awful in concept. They may pos¬ ess was described as incapable of sibly spring from the mind of the handling quick-moving crises or of crisis manager himself, in which really innovating. In the May 1970 case they have almost certainly not JOURNAL, a crisis management sys¬ been thought out very deeply, and tem was described, overlapping will probably succumb to simple only slightly with the advocate- elements of the international envi¬ judge bureaucracy. This last article ronment that might not have been in the series tries to describe how sues just pulled out of the air as critically important if the innova¬ the other missing element, innova¬ examples. Until such advocacies tion had been staffed and modified tion, is produced and controlled are created, however, the policy appropriately. They are, in a word, within the real as opposed to the alternatives generated by them will ripped untimely from the womb. formal national security bureauc¬ simply not be presented, defended, Most of these innovations of crisis racy. and fought for against other causes management origin, however, are The standard bureaucracy is an in the eternal struggle for the allo¬ bad to the point of being laugha¬ unmatched vehicle for formulating cation of high-level attention and ble. These are the ones that origi¬ alternatives and insuring that they resources. nated not in the mind of the crisis are well, resourcefully, and persis¬ Innovation in the national secu¬ manager under pressure, but in the rity field that does not result in the press, in academia, in private en¬ tently argued. But these alterna¬ creation of an institutionalized ad¬ terprise, and among various groups tives can be only those reflecting vocacy occurs from time to time, of Americans. These are the ones existing advocacies and combina¬ usually originating in a crisis man¬ that often arouse passionate public tions of them. We can confidently ager seized of a particular problem interest and are quite unworkable— expect that arguments for and and capable of persuading his col¬ the ones that sometimes cause great against arms control agreements, leagues that the situation is so des¬ damage before they can be quietly aid to Israel, and the withdrawal of perate that something genuinely strangled by the bureaucracy. US forces from Europe, for exam¬ new can be tried. To be successful in application to ple, will be brought up for consid¬ Such ad hoc innovation is usually the immensely complicated and eration by decision makers within non-productive for national security constantly changing international the standard bureaucracy and for two reasons. The first is that environment, a new policy must, even, albeit haphazardly, for the without its own guardians, any new usually, have been modelled, modi¬ consideration of the crisis manag¬ course of action will sink without a fied, and tested in the laboratory ers. There are established advocacies trace amid the billows of persistent of the bureaucracy. within the bureaucracies for the six advocacies, once the impetus given Contrary to the layman’s view, sides represented by the three is- to it by its originator dies out, as the chances for spectacularly suc-

FOREIGN SERVICE JOURNAL, October, 1970 25 cessful new departures in national advocate-judge-bargainer role ges- have rarely done, the bureaucracy security policy over any period of tate new ideas and perfect them does not formally wait for such calls time shorter than a decade in any within itself for application to the before attempting new departures. country are slim. Sovereign states world. Nor can the crisis manager As crisis managers move from have been tending to their security be expected to polish and perfect a crisis to crisis, they become aware for several centuries, and most of new idea so that it can work in the of recurrent circumstances that lim¬ the obvious plays and ploys have bureaucratic and international en¬ it their freedom of action more than been made. Changes in science, in vironment. The answer should be other circumstances. These circum¬ technology, and in simple order of found in the mechanism by which stances become more and more an¬ magnitude don’t make that much the crisis managers, including the noying if they represent elements difference. Even for as central a President, create advocacies within other than those that the crisis man¬ country as the United States or the the bureaucracies. The key factor is ager expects to find as historic, USSR, it is not likely that more the way in which the crisis manag¬ “normal” limitations on his freedom than two or three genuine new poli¬ ers and the standard bureaucracy of action. cies in one decade can have much interact. How are one system with¬ As these factors rise above the chance of paying off heavily, even out originality and another system horizon of the crisis managers, they if all remotely conceivable alterna¬ without sustained interest and atten¬ begin to knock their elbows and tives were being scrutinized, tion to be combined? bark their shins more and more on staffed, and brought to the atten¬ As in so many other aspects of them. They are annoyed; and they tion of top decision makers by national security policy formulation complain. At first these complaints some heaven-born bureaucracy of the actual process and its rules are evoke no response, except that unimaginable skill. almost entirely informal; it does not standard existing advocacies may An innovation requires the crea¬ have a formal, institutional image be dressed up as potential solutions tion of a bureaucratic base of ad¬ even in the minds of its practition¬ to the annoyances that the crisis vocacy, even and especially if the ers. Even if the crisis managers for¬ managers are beginning to call new idea is worthwhile. The bu¬ mally call on the bureaucracy for problems. This ploy, however, is reaucracy cannot by virtue of its innovative policy proposals, as they usually quickly exposed within the bureaucracy and to the crisis man¬ agers by a competing bureaucratic advocacy. At a certain point, it becomes quite obvious within large reaches of the standard bureaucra¬ cy that the crisis managers would greet with glad cries, approbation, and kudos something which can be sold to them as a device which can eliminate the annoying factors. This call from the heights does not evoke a response from most bureaucrats, tied up as they are in struggles for minute advantages for their particular operational constit¬ uencies against vigilant and power¬ ful competitors. Those who respond are a peculiar breed. They are sel¬ dom mere political appointees, dilettantes who are in the game for fun or who naively believe that they are pursuing the national in¬ terest in pushing a particular advo¬ cacy. And they are equally seldom the workers of the bureaucracy, who know that if they take their minds off the pursuit of their as¬ signed advocacy for a moment someone will pry their fingers away from the highest rung they have reached on the career ladder. Those who respond are a breed apart. They are the young comers. They have chosen a career in the upper bureaucracy, but they have determined to settle for nothingness than the top ranks, and are willing

26 FOREIGN SERVICE JOURNAL, October, 1970 to take all kinds of long chances to tempt here to discuss this process in (c) the advocacy of some sub¬ get there—they usually have limit¬ detail, but it should be noted that national element aiming at the less personal ambitions. They are there is a gauntlet of existing advo¬ break-up of existing states. In every completely unconcerned with the cacies, of other proposed ways to case the argument is that some national interest and find it very solve the same problem, and of the factor in the international environ¬ difficult to comprehend the motives barriers which grow up in the chan¬ ment that the crisis managers feel of anyone who is. nels of the bureaucracy for any as threatening to their freedom of There are only a few of them in presentations and proposals other action can be drastically reduced or the career military or diplomatic than those wearing the colors of eliminated. Therefore, since the services. Most of them have a rec¬ standard advocacies. United States is basically a status ord of agency-hopping, jumping Usually a blessing from the crisis quo power in traditional diplomatic from one national security agency managers can be obtained only by terms, new advocacies for areas to another with an upward boost in presenting the innovation during an embodying innovations will likely rank with every jump. They also appropriate crisis as a partial or fall into class (a) or (b) above hop in and out of the executive total solution to the crisis. This rather than (c). branch, to and from Congressional blessing is sometimes informal, and Most innovations, however, re¬ staffs, universities, think tanks, and sometimes takes the form of a sult in new operational advocacies foundations. While they are clever National Security Council docu¬ rather than new area advocacies. and efficient advocate-judges in the ment. Sometimes it comes direct¬ These can be as small as a little bureaucratic routine, their standard ly to the daring young man and program to influence some element bureaucrat colleagues find them to sometimes to a crisis manager or in foreign populations. They can be be somehow uncomfortable team¬ one of the top men in the standard as large as the Marshall Plan. They mates. One gets the impression that bureaucracy who has recognized a may require major new organiza¬ they would sell out the assigned good thing and is either sponsoring tions. They may require new offices holy cause of the moment if they the proposal or trying to steal it. in old organizations. These innova¬ could get a price. When the blessing has been giv¬ tions are presented to the crisis These are the men who attempt en, necessary funds and other managers as being capable of elim¬ the creation of new advocacies. resources are found at once to put inating or greatly reducing some Most attempts fail, some because of it into operation. If necessary, these hostile factor in the environment. the ineptitude or bad luck of their resources come out of the hides of Now the nature of the interna¬ formulators in pushing them up the existing advocacies (which is one tional environment and the possible decision level, some because there good reason why existing advoca¬ effect on that environment of are competing innovative schemes cies are naturally hostile to propos¬ United States government oper¬ that crowd their scheme out, some als for new advocacies). ations and allocations of funds because they are premature, and, Quite often, since great and ear¬ (really a question of relative magni¬ in the absence of a “need” among ly results are expected from the tude) is such that in most cases one the crisis managers, die a natural advocacy, there are groups and can confidently expect that the death in the bureaucracy. mechanisms set up for periodic re¬ United States Government will Others may be only shams, porting on progress toward the new have either no effect on the envi¬ words meaning nothing or dressed- objectives. As the innovation, large ronment, an infinitesimally small up sub-advocacies. Most such die— or small, goes into operation, it effect, or an effect different from the crisis managers are anything seems to have an enviable priority the one intended by its designers. but stupid. It is a daring young in terms of resource allocation, at¬ Remember that innovations in this man who casts the die and launches tention of top people, and all the sense are not designed to manipu¬ a new advocacy. If he wins, howev¬ other things which the advocate- late the environment but to change er, he has taken a giant step for¬ judge bureaucrats fight over. There¬ it. The crisis managers feel them¬ ward in his career and is practically fore, clever but discontented bu¬ selves quite capable of manipulat¬ assured of personal recognition by reaucrats will tend to jump to the ing the international environment. the crisis managers. Luckiest of all new operation from other bureaus Why, then, do the crisis manag¬ are those “innovators” whose vision and agencies. ers agree to the innovations? They requires the creation of a good- The innovation can by definition do not have real staffs worthy of sized bureaucracy, complete with be nothing more or less than a new the name, and are accustomed to reports and plans, to carry out the advocacy or sub-advocacy, proper¬ operating without genuine staff purpose of the innovation. The in¬ ly institutionalized with its own hi¬ work; therefore there is no place novator has a good chance of get¬ erarchical bureaucracy. All advoca¬ where a cold-blooded study of the ting at least the number two job in cies are defined by area or oper¬ proposed cure can or will be done. the new bureaucracy. Or he is just ation. A new advocacy for an area Furthermore, crisis managers are as likely to leap gracefully to an¬ might be (a) the advocacy of some essentially doers, not thinkers. other agency in the full flush and sovereign or near-sovereign state They are typically American in glory of successful innovation. which has been hitherto ignored by that they are reluctant to admit The task of obtaining a full hear¬ the United States Government, (b) that some annoying problems in the ing on the new innovation among the advocacy of some regional su¬ international environment cannot the crisis managers is difficult and pra-national grouping of states or be solved (alternatively, according complicated. There will be no at¬ some international organization, or (Continued on page 55)

FOBBION SERVICE JOURNAL, October, 1070 27 The lack of interest in research is the product of the Department’s smug self-confidence in its own talents and the growing estrangement of the academic and bureaucratic communities

Research Revisited IN-HOUSE TALENT ON THE OUTSIDE

PENN ESS is the watchword of ANTHONY C. E. QUA1NT0N consultants, and research. All have the Foreign Service today. The played a useful if limited part in This article is the outgrowth of a Foreign Service Association has its special study conducted in Decem¬ the Department’s dialogue with the openness committee; the Depart¬ ber 1969 broadly reviewing the external foreign affairs community. ment has its Open Forum Panels. Department’s use of external re¬ None, however, has possessed an The traditional exclusiveness of the search and consultants. Mr. Quain- elan vital sufficient to transform it ton is currently Senior Political into an integral component of the foreign affairs establishment, grow¬ Officer for India. He has served in ing out of elite recruitment, rigorous Australia, Pakistan and India. He foreign policy process. Lacking vig¬ promotion and selection-out, and took his B.A. from Princeton and orous support from the top, afflict¬ reliance on the Department’s unique a B. Litt. from Oxford. ed with cynicism from below and and voluminous resources of classi¬ hamstrung by financial limitations, fied information, is under siege both all have failed to live up to the high from within and without the Service. expectations which their progeni¬ This closed system is an increasingly tors had anticipated and desired. inadequate basis from which to meet Of these three systems the advi¬ the complexities of the international sors have already fallen almost to¬ environment in which we live. tally into desuetude. Begun under The customary progression in the cialized functional and area skills. the Eisenhower Administration and Foreign Service, culminating in the Old generalists cannot overnight resurrected in the Johnson era, apotheosis of the Foreign Service be transformed into new specialists; panels of advisors were set up in officer as the Ambassador plenipo¬ and in the transitional period, late 1966, composed of senior aca¬ tentiary, has been lost in the mists which may well last throughout the demics, retired civil servants, law¬ of bureaucratic history. In its place ’70s, the Department will have an yers and business executives. The we have a world where specializa¬ increasing need to supplement exist¬ panels met increasingly sporadically tion reigns supreme. To be sure, ing resources with outside talent. throughout 1967 and 1968, only to the Foreign Service is not yet the The Department will not only have be abandoned completely at the world of interrelated yet distinct to recruit specialists directly but change of Administration. specializations which the manage¬ will also have to use outside experts The use of institutions provides ment strategy for the ’70s would systematically for limited policy- some measure of their perceived have us accept. Most serving oriented tasks, whether individual utility. The panels were never inte¬ officers are still to some degree or short-term consultation or sustained grated into the policy process and other generalists in the traditional periods of research. rapidly atrophied. They were usu¬ sense, having had experience in a The Department’s experience ally well wined and dined by the variety of what are to be the new with the use of outside talent in the appropriate Assistant Secretaries. specializations. Clearly if officers past has not been an altogether They occasionally reviewed policy are to convert themselves into bona happy one. In recent years three papers prepared in the bureaus and fide functional specialists, they will different systems have operated as offered their comments thereon. have to rely less than at present on channels for bringing to bear on Rarely did they initiate ideas, nor generalized knowledge of the inter¬ policy issues the specialized knowl¬ was it easy for them to do so since national scene and experience in a edge and understanding of the they were not involved at an early variety of substantive positions and academic and business communi¬ stage in any policy discussion, nor more on new technologies and spe- ties: panels of advisors, individual (Continued on page 37)

28 FOREIGN SERVICE JOURNAL, October, 1970 OCTOBER, 1970 LATELY WHAT HAS AFSA DONE? FOR YOU? As the September 4 Bulletin re¬ lition of the ban on shipment of encouraging economy class travel by corded, after ten years of a badly foreign vehicles, a recommendation air, but feels there are special cir¬ checkered existence, the prohibition which was in accord with that of cumstances which warrant a first on the shipment of employee-owned Task Force V and the acceptance of class option for at least some em¬ foreign cars is about to be rescind¬ which by Mr. Macomber is heartily ployees in addition to the Ambassa¬ ed. Deputy Under Secretary Macom- welcomed. dorial exception. Therefore, we have ber made this decision in response We recommended that existing au¬ sent Mr. Macomber a reclama asking to AFSA’s recommendation. The proc¬ thority under the Overseas Differen¬ special consideration for families ess that led to this welcome change tials and Allowances Act be imple¬ with very young children. Changing is part of AFSA’s policy of keeping mented immediately to pay an diapers and feeding formula in bread and butter issues on the front across-the-board $200 allowance to cramped economy class seats can burner. every employee transferring to or be real misery for helpless fellow In early June, AFSA’s Members from an overseas post, without prej¬ passengers as well as parents. So Interest Committee began consulta¬ udice to the eventual payment of many of us have had this unhappy tions with management on the pros¬ the more realistic allowance con¬ experience (as singles or parents) pect for reform in employee per¬ tained in the Macomber package that it is difficult to understand why quisites. We found that management cited above. This recommendation anyone could object to providing re¬ had already begun to move along was turned down on the basis of lief for everyone concerned. What constructive lines to make some im¬ budgetary constraints which will not about travel breaks during daylight portant changes. The first Macomber allow for the extra expenditure of hours in places where there are rea¬ legislative package that has since the $197,000 it is estimated it would sonably adequate accommodations been developed and sent on its way cost in FY-71. Nevertheless, we are for infants, small children and dis¬ to Congress includes (a) a transfer happy that Mr. Macomber agreed to traught, sleepless parents? allowance of between $200 and $838 go on record as favoring the full Finally, AFSA recommended that for every transfer, overseas or do¬ transfer allowance by FY-72, and employees be given the right to mestic, (b) a kindergarten education possibly the payment of an interim travel by sea in at least one direc¬ allowance, (c) the continuation of $200 allowance sometime this year, tion to or from a post of assign¬ allowances (mainly temporary hous¬ budget permitting. This long¬ ment, including travel by foreign flag ing) for employees returning to the standing out-of-pocket expenditure, ship when American ships are not United States without prospects for which has almost become some¬ plying specific routes. This is a privi¬ returning abroad at a later date, (d) thing of a negative status symbol lege the Foreign Service had enjoyed the continuation of allowances among employees in the foreign for many years until the last Ameri¬ abroad for families of deceased em¬ affairs community, is doomed. Those can passenger ship abandoned the ployees, and (e) annual round trip serving abroad should enjoy the North Atlantic service in 1969. Mr. travel between school and post for benefits of the legislation now ap¬ Macomber agreed with the value of college students in the United plied only to those in the home ship travel as a means of relaxing States. services which enable them to be employees who are traveling be¬ reimbursed for the host of transfer tween busy assignments at posts At the same time, however, the expenses that we now pay as a per¬ and hectic periods of consultation Committee determined that there sonal expense. and home leave. Nevertheless, he was little chance of any improve¬ We also recommended that for air said that important balance of pay¬ ment in employee perquisites in the travel of more than 14 hours, em¬ ment considerations preclude posi¬ current fiscal year in view of the ployees be given the option of first tive action on AFSA’s recommenda¬ slow movement of such legislative class travel as an alternate to the tion at this time. This is one issue proposals as the one described present option of breaking an econo¬ AFSA will be raising again and above. To maintain the momentum my class flight in midpoint for a 24 again, because ship travel is a for¬ of reform we communicated with the hour rest stop. Mr. Macomber was eign service tradition which should Deputy Under Secretary recommend¬ not sympathetic with this recom¬ not be lost. Employees who work ing measures that could be taken mendation on the ground that it is abroad should not be penalized for immediately to implement some long- now government-wide policy to en¬ the economic problems of the Amer- awaited and badly needed changes. courage only economy travel by air. ian passenger ship industry. And The first was the immediate abo¬ AFSA agrees with the basic policy of travel by American freighters with passenger accommodations does STAFF CORPS SUGGESTIONS UNDER STUDY not provide a complete solution. As important as the specific is¬ “Morale is sagging in the Foreign edging that provisions for overtime sues themselves is the fact that Service Staff Corps and I know that payment are authorized by existing AFSA has opened a substantive and you share AFSA’s concern that this regulations, there are far too many constructive dialogue with adminis¬ should be the fact.” In a recent occasions of payment not being trative management. AFSA is letter to Deputy Under Secretary for made, particularly in the field. AFSA pleased that this is so. We hope to Administration, Mr. William B. Ma- requested Mr. Macomber to issue a continue and institutionalize this di¬ comber, Jr., this and several other clear statement of policy on this alogue so that foreign affairs com¬ points were discussed by Board subject which would reduce the munity employees will have a per¬ Chairman Charles W. Bray III. amount of unnecessary overtime. manent voice in the definition and Mr Bray explained that this is The supervisor-subordinate rela¬ implementation of change in mat¬ attributable in part to the fact that: tionship also came under review, ters affecting their careers and work¬ “The Staff Corps was considered with the suggestion that there be ing conditions as thousands of their only indirectly by the various Task more emphasis in the FSI officer colleagues in the home services Forces," “Many Foreign Service orientation classes concerning treat¬ have. Staff Officers feel threatened by the ment of subordinates by an officer. proposed integration." “The Staff The Association feels that an early Corps does not always receive an exposure of FSOs to this basic man¬ New Editorial Board Member equitable share in benefits or ade¬ agement principle would go a long quate recognition of their services,” way toward reducing the lack of “The attitude toward the Staff Corps consideration for Staff Corps mem¬ in the Department and among FSOs bers so often experienced. in the field, particularly junior FSOs, The rather startling and discour¬ is not one of reciprocal professional aging fact that the Staff Corps has respect.” received only 5 per cent of the De¬ The Association feels the Depart¬ partment’s training budget was also ment and its sister Agencies could reported in Mr. Bray’s letter. The take immediate steps to alleviate Association feels that “the Depart¬ abuse in the payment for overtime. ment has been particularly remiss in Mr. Bray’s letter stressed that “pay¬ not providing language training to ment for overtime performed by For¬ all employees proceeding to post ” eign Service Staff Corps employees More language training for Staff below FSS-5 should be mandatory at Corps employees, and a new idea of home and abroad.” While acknowl¬ granting meritorious in-grade promo-

Left to right: Mrs. Margaret Wiedemnayer, Mrs. Rella Warner, Mrs. Betty Potter, members of the Pricing and Sorting Committee for the 1970 Book Fair—working in the pricing and sorting room located in the Department of State. John F. Lippmann is the new member of the JOURNAL’S Editorial Mr. Lippmann served in the Army during World War II and later re¬ ceived both his AB and MA from Co¬ lumbia University. He began his gov¬ ernment service as a member of the U.S. Mission to the UN in 1949. Since then Mr. Lippmann has served with State’s Office of Intelligence; as Assistant on the National Security Council Planning Board; on the staff of Harold Stassen, Special Assistant to the President on Disarmament; and with the AID mission in Para¬ guay. In addition he was Desk Officer for the Dominican Republic and was FSO in charge of Political Research and Analysis for the US Arms Con¬ trol and Disarmament Agency. Mr. Lippmann rejoined AID in 1969 where he is now Assistant Director for Policy Planning and Evaluation for the Office of International Train¬ ing. John's wife, Froma, is an elemen¬ tary school teacher for Arlington County, and they have two children —Ellen, a junior at Boston Univer¬ sity, and Charles, a high school stu¬ dent. tions to any Staff Corps employee sy vehicles for personal needs, with New to Editorial Board who achieves the S-3, R-3 level in a payment of an equitable rental fee language were recommended to Mr. and purchase of insurance the re¬ Macomber. sponsibility of the employee. Second Mr. Bray voiced AFSA support for was the suggestion that “windfall the new concept of a "Corps of profits under FAMC-281 could be Executive Secretaries,” including paid into a special fund to pay im¬ courses on supervisory training, port duties on vehicles belonging to management, languages, etc., as rec¬ individuals not authorized duty-free ommended in the Task Force I re¬ entry.” port. Mr. Bray also mentioned “the As¬ sociation believes the Director Gen¬ Duty-free entry, that long-time nem¬ eral should ask all Chiefs of Mission esis of the Staff Corps, also came and Principal Officers to make a in for a share of re-exposure in Mr. special, continuing effort to assist Bray’s letter. Included were two sug¬ Foreign Service Staff Corps employ¬ gestions. First, that consideration be ees arriving at post.” And at the given to providing vehicles and conclusion of the letter he stated, “I household appliances as part of the will be writing all Principal Officers recreational and commissary services. to suggest that there is much that This plan would allow use of Embas- posts can do on their own to im¬ James D. Conley has recently prove the conditions in which For¬ been named to the Editorial Board eign Service Staff Corps employees of the JOURNAL. Born in 1928 in New Withholding serve.” Chicago, III., Mr. Conley attended Later this month federal annui¬ On August 26, Deputy Under three colleges, brokered insurance, tants will receive W-4P forms sent Secretary Macomber replied to Mr. coached a high school football team, out by the Civil Service Commission Bray’s letter as follows: and served a hitch in the Army be¬ as part of the new law giving gov¬ “Thank you for your letter of Au¬ fore taking an A.B. in political sci¬ ernment retirees the opportunity gust 19, containing a number of sug¬ ence from the University of Notre to have federal income taxes on gestions concerning the Foreign Serv¬ Dame in 1955. He entered govern¬ their annuities deducted from their ice Staff Corps. These questions are ment service the same year and annuities deducted from their cover now under study, and I will keep joined USIA as a Junior Officer checks each month starting next you informed of our progress.” Trainee in 1957. He has served in January. If employees take advan¬ Rio de Janeiro, Zagreb, Belgrade tage of this new law, they will not FS Corps and Brussels. Returning to USIA in have to file a declaration of esti¬ The Senate subcommittee on edu¬ 1968, he worked in the Office of the mated tax each year and make large cation, writes the Federal Times, Assistant Director (Europe) as Desk quarterly payments since their taxes has approved “legislation designed Officer for Canada, the United King¬ will be deducted each month. The to create a Foreign Service Corps dom and Yugoslavia, Now Special new withholding law, which does not that would train government person¬ Assistant to USIA’s Deputy Director cover Social Security and Veterans nel in the field of foreign relations. (Policy and Plans), he recently Administration pensions, makes the The bill now goes before the Senate served on Macomber Task Force monthly form of payment entirely Committee on Labor and Public Wel¬ VII (Stimulation of Creativity). voluntary, with the actual amount to fare.” AFSA has opposed this and be deducted determined by the re¬ previous suggestions along the same Secretary Thanks AFSA tiree. lines. The AFSA Board of Directors re¬ State and D.C. Income Tax Liability—Domicile vs. Residence ceived a letter from Secretary of We have recently learned of two In each case, the amount of tax State William P. Rogers, dated Au¬ FSOs stationed abroad who have at stake probably would not be worth gust 7, which thanked the Board for been notified of continuing income the cost of litigation to an individual “perceptive comments ... on the tax liabilities in Maryland and the to make a test case. (Perhaps the draft reports of the task forces on District of Columbia, their former tax authorities are well aware of management reform. I consider this residences. this.) Unless other FSOs and pos¬ reform program as one of the most In both instances the question re¬ sibly AFSA were willing to contrib¬ important items of business before volves about the matter of domicile ute to the cost of a “test case,” it the Department today, and I was vs. residence. In general, a non-resi¬ probably would not be to an indi¬ heartened by the statement that the dent should not have to pay income vidual’s advantage to make such a AFSA Board can wholeheartedly sup¬ tax on non-Maryland income—i.e., test. port the bulk of the program. salary—unless he is domiciled in In this area each case turns large¬ "I am pleased that the AFSA Maryland. The same generality ap¬ ly on its facts, but nonetheless statement was made available to the plies to the District of Columbia, in precedents in favor of some FSOs Board of the Foreign Service in antic¬ may be useful to others. If there are addition to which there are special ipation of its meeting on July 30. a sufficient number in the foreign considerations applicable to Presi¬ The Department relies heavily on affairs community who might benefit dential appointees who reside tem¬ from a test case—presumably in the advice of the Board in the field porarily in the District. Domicile is, each of the three jurisdictions in of personnel policy. I will look to it however, often difficult to determine. the greater metropolitan area—who to play the active role envisaged by The matter is of particular interest will so inform AFSA, it will endeavor Ambassador Tibbetts and AFSA's to personnel who have no permanent to arrange for equitable contribu¬ Career Principles Committee in the home anywhere. tions for appropriate test cases. implementation of the reports.” Marriages LOREN. Odin G. Loren, FSO-retired, HILLENBRAND-QUINET. Ruth Marie died August 31 in Sarasota, Florida. Hillenbrand, daughter of Assistant Mr. Loren joined the Foreign Service Secretary of State and Mrs. Martin in 1928 and served at Antofagasta, Hillenbrand, was married to Victor Buenos Aires, Rio de Janeiro, Nuevo Kane Quinet on September 5 in Laredo, Maracaibo, and San Luis Chevy Chase, Maryland. Potosf. He is survived by his wife of #25, 3751 S. School Avenue, Sara¬ MALONEY-GORDON. Mrs. Rose Gen¬ sota, Florida. evieve Maloney was married to Bart¬ ley Patrick Gordon, FSO-retired, on MAYNARD. Elizabeth D. Maynard, August 4 in Silver Spring, Maryland. wife of Dr. David M. Maynard, FSO- retired, died on July 28th in Los SKORA-BOHANNON. Mary Camille Altos, California. They were married Skora, daughter of FSO-retired and in Berlin, in 1952, while Dr. May¬ Mrs. George W. (Marie) Skora, was nard was serving with HICOG. Dr. married to James E. Bohannon on Maynard lives at 12594 Knoll Drive, September 26 in Silver Spring, Mary¬ Los Altos, California. land. MINTER. John R. Minter, FSO- The price of iustis is eternal WOLLEBAEK-BURROWS. Inger-Lise retired, died July 16 in Marion, Mas¬ publicity* Wollebaek of Oslo, Norway, was mar- sachusetts. During his 28 years in AFSA’s new (well, relatively) ac¬ rid to Consul General Hugh Watson the Foreign Service, Mr. Minter countant, with plans for automating Burrows on September 5 in Cape served in Johannesburg, Cape Town, the Association, is Edward Justis. A Town, South Africa. Breslau, and Belem. Following his 1964 graduate of Onancock High retirement, he served as chief of the School, Accomac, Virginia, Ed re¬ Deaths UN technical division and head of UNICEF in the Southwest Pacific ceived an associate degree in Ac¬ DABELL. Mrs. Frances M. Dabell, counting and Business Administra¬ area. Mr Minter is survived by his FSSO-retired, died July 24 in Lis¬ wife, three daughters, and six grand¬ tion from Northern Virginia Commu¬ bon, Portugal. From 1915 forward, nity College in 1966. He was in the children. she served as a staff officer in Ger¬ Army for two years, serving as a non¬ many, Belgium, Egypt, Mexico, Ire¬ PROFFITT. Virgil M. Proffitt, AID-re- commissioned officer in Vietnam land, Italy, and Portugal. In addi- from 1967-68. tired, died August 16 in St. Louis. ice Institute. At the time of her re¬ For 16 of his 33 years in the govern¬ Prior to joining the AFSA staff in ice Institute. At the ime of her re¬ March, Ed worked as a junior ac¬ ment, Mr. Proffitt served with AID tirement in 1960 Mrs. Dabell was in the Philippines, Thailand and in countant at Melpar, was employed US Vice Consul in Genoa, Italy. She by State’s Recreation Association, Washington, D.C. Prior to that he is survived by two daughters, four had worked for the Veterans Admin¬ and most recently was Chief Ac¬ grandchildren, and a sister, Helen istration and the Farmers Home Ad¬ countant for Potomac Industries, Nufer Winckel, 200 Glenwood Circle, Inc. Here at AFSA, Ed plans to in¬ ministration. He is survived by his #333, Monterey, California. Mrs. wife, Mary, of St. Louis. crease efficiency by using all the Dabell’s late brother, Albert F. modern data processing and com¬ Nufer, was the Ambassador to El puter techniques—saving time and Salvador, Argentina and the Philip¬ VANCE. Helen Baird Vance, mother money, and providing better service pines. of FSO Sheldon B. Vance, died Au¬ for members. gust 25 in Austin, Minnesota. She is In addition to all this, Ed is study¬ FERGUSON. John H. Ferguson, Am¬ survived by her son who is Ambassa¬ ing advanced accounting at nights. bassador-retired, died August 24 in dor to the Democratic Republic of the His wife, Frances, teaches school, Avignon, France. A graduate of Yale Congo, and his family, including his and they have a 1-year-old son, Eddy. and of Harvard Law School, Ambas¬ wife, Jean, and sons, Robert and *Enoch Arnold Bennett (1923) sador Ferguson alternated govern¬ Stephen. ment work with private law practice Trainees Need Accommodations! until his death. He began his gov¬ WAILES. Cornelia Lyon Wailes, wid¬ Officer and Staff Corps trainees ernment service as a lawyer for the ow of the late Ambassador Edward face a real problem in finding rea¬ Treasury Department, and later was Thompson Wailes, died August 25 in sonably-priced accommodations in special assistant to Dean Acheson at Washington, D.C. A graduate of areas where public transportation the State Department. In addition, Sweet Briar College, Mrs. Wailes will enable them to catch the shuttle he was assistant to the president of married Ambassador Wailes in 1933 bus from the Department or get them the International Bank for Recon¬ and accompanied him to posts in to FSI in reasonable time to attend struction and Development, and was Hungary, Czechoslovakia, South Afri¬ classes. deputy director of State's policy ca, and Iran. Ambassador Wailes If you have a spare room, a base¬ planning staff. In 1962 President died in June, 1969. Contributions to ment apartment (all the kids away at Kennedy appointed Mr. Ferguson the Special Cancer Research Fund, college—or married?), why not bring Ambassador to Morocco, a post he c/o Bruce Shnider, M.D., George¬ young voices into your home again held until 1965. He then resumed town University Medical School, and do a good turn for the next For¬ his private law practice. Ambassador Washington, D.C. 20007, or to the eign Service generation? Ferguson is survived by his wife, Edward Thompson Wailes Professor¬ Call the AAFSW Housing Office, Elizabeth, and two children, all of ship in International Affairs, Sweet 632-3573, and list that spare room 1650 30th Street, N.W., Washington, Briar College, Sweet Briar, Virginia for a youngster—or a young couple. D.C. 24595, are welcome. DEPARTMENT’S FIRST OPEN MEETING ON STATUS OF WOMEN Change of Address—$$$—Renewals The thoughtfulness of members who send in changes of address is Does the Foreign Service exist in a Difficulties which women officers deeply appreciated—especially by “male-controlled environment?" Why experience in assignments to politi¬ AFSA’s Accountant, who struggles do women constitute less than 5 cal and economic cones, and in as¬ hard to keep the budget in balance. percent of all FSOs—and only 7 per¬ signment to middle grade and senior Mail, Bulletins, and Journals which cent of all new officers taken into positions in Muslim and Latin coun¬ are returned to us can cost up to the Service? Why aren’t more women tries were pointed out, as was the $0.22 each in extra postage. Multiply serving on Inspection and Selection fact that only one woman officer that by 400 to 500 “returns” a Boards and Staff Review Panels? (FSR-3) was assigned to substantive month and there goes too much Why are women officers promoted work in any of the three countries membership money for postage! more slowly than men and few ever which now have women Prime Min¬ Yet we keep sending material even promoted beyond the 0-3, R-3 level? isters. though a member has not renewed, Are such delays in promotion ac¬ Where members of the Ad Hoc hoping that some mail will reach tionable, since they affect the Committee asked for “an immediate him, especailly the Bulletins, which amount of retirement benefits? increase” in the number of women contain important announcements. in the Foreign Service ranks, one Flard-hitting questions like these The "season to be moving” is over; speaker from the floor, a man, sug¬ came sharply from the floor when a please tell us where you are if you’ve gested the Department study the Department-wide meeting—the first transferred: tell us again if you’re ever held on the status of women in possibility—and possible effects—of not sure you sent in a change of ad¬ the foreign affairs agencies—took a substantial—say 25 percent- dress. place on September 2 in the Main complement of women in the Serv¬ And if you’re not sure you re¬ International Conference Room. ice, and for a mass survey in the newed, use the renewal form in the The Department-wide session re¬ Department of male attitudes toward women as co-workers. front—send it, your check and your sulted from a meeting on August 26 new address! between Under Secretary Macomber Should the numbers of women in and the Ad Floe Committee to Im¬ the Service markedly increase, he Embassy Niamey 100% AFSA! prove the Status of Women in the suggested, tongue in cheek, that the Foreign Affairs Agencies, a voluntary Department employ an industrial The AFSA Membership Committee group formed by women concerned psychologist to counsel any males is happy to report that Embassy that the Task Force reports released “distraught” by such a situation. Niamey is the first Embassy to in July had apparently failed to con¬ Other issues brought up included achieve 100 per cent AFSA member¬ sider the special problems and more adequate shipping allowances ship. A lucky 13 FSOs, FSSOs, and needs of women employees. When and assurance of individual quarters FSRs in State, AID, and USIA are Mr. Macomber asked the Ad Floe for single persons (most of whom paid-up members now. We should be Committee to present its recommen¬ are women), protection of promotion pleased to have this disputed—and dations for inclusion in the reports, and retirement rights for FSSO and copied! the group arranged with Miss Eliza¬ GS personnel converting to FSRU Book Fair-Art Show beth J. Harper, chairman of the De¬ and FSO, and the need for specific partment’s Women’s Program Com¬ instructions to rating officers not to Young artists are encouraged to mittee, to call a Department-wide consider sex of officers in preparing enter their works of art in an Art meeting to secure as wide a sound¬ performance evaluation reports. Show to be held this autumn for ing as possible of women’s views. Several of the Task Force chair¬ children of the Diplomatic Commu¬ Miss Harper’s appointment to this men conceded that their groups had nity, ages 7-14. The show will be a newly created post had been an¬ not taken up the question of women part of the AAFSW’s annual Book nounced a few days earlier. —some pleading lack of time, and Fair, October 19-24. Chairmen or other spokesmen for the many issues to be considered. Finger paintings, charcoal, crayon all the Task Forces were present at One confessed: “Men tend to be blind and pencil drawings, decoupage and the Department-wide meeting, which —we admit it,” After hearing the dis¬ all brush work are welcome. All was chaired by Miss Harper, to an¬ cussion, several commented they work must be mounted before being swer questions from the floor. In had “no difficulty with," or could submitted. spite of a very short notice for the accept in principle many of the spe¬ Children who wish to sell their meeting, well over 150 women and cific recommendations made by the works of art are asked to price them men attended. Members of the Ad Ad Hoc Committee, as well as some no higher than $15.00. Hoc Women’s Committee, whose of the suggestions from the floor. For more details please contact Mrs. Charles Pitman at 538-6902. chief spokesman was Mary S. Following the meeting, the Ad Hoc Olmsted, presented their recommen¬ Please use the entry blank below Women’s Committee submitted to and send it with the entry to: dations for additions and changes Mr. Macomber specific recommenda¬ in the Task Force reports as well as tions, based on those made at the Mrs. Charles Pitman data showing the minority status of meeting and their own special 2601 N. Lexington St- women in the foreign services. Their study, to be incorporated in the Task Arlington, Virginia 22207 recommendations included abolition Force reports. The group also All entries must be received before of any discrimination, implicit or provided material on women's rights October 15. explicit, against women in recruit¬ and responsibilities in the foreign Name ment, promotion, training and career services for use in the general intro¬ Address assignments and an end to any duction to the Task Force reports, discriminatory practice against mar¬ and for Mr. Macomber’s instructions Title ried women or those who marry to the Selection Boards which began Suggested Price while in the Service. their deliberations September 15. Medium Age AFSA’s Scholarships written for the Journal. More New Careers The Assocaition wishes to thank Each year one of the William Ben¬ R. Richard Rubottoni, Jr. members and friends whose contin¬ ton scholarships is named for an ued support has made the Scholar¬ outstanding member of the Foreign After serving for many years in ship Program possible. Service. The officer honored for various Latin American posts, as As¬ As they have done each year, 1970-71 is Ambassador James W. sistant Secretary of State for Inter- members have given anonymously in Riddleberger. American Affairs, and most recently stocks and cash. Ambassador Julius Again we express our appreciation as Ambassador to Argentina, Ambas¬ Holmes and J. Alan Maphis provided to all those who have shown interest sador Rubottom accepted the position for the AFSA Scholarship Fund in in the AFSA Scholarship Program. of Administrative Vice President of their wills. The New York Times 1970-71 recipients will be an¬ Southern Methodist University in Dal¬ Foundation renewed three scholar¬ nounced in an early issue. las, Texas. He is responsible for the ships and a new scholarship was administration of the President’s Office Staff, the Dean of Students and given by Mrs. Jeanne F. Begg. AFSA Scholarship Program Through ingenious activities, wom¬ staff, and serves on a host of adminis¬ en’s organizations overseas funded Students who wish to participate trative committees. in the scholarship program for 1971- 12 grants and the Association of Robert J. Ryan American Foreign Service Women 1972 are invited to write for appli¬ cation material which will be issued Ambassador Ryan, who just recent¬ again contributed $11,000 from pro¬ ly retired from the Foreign Service, ceeds of the Book Fair. Contribu¬ in October. In your initial request be sure to give the student’s full name was, in July, 1969, named Director of tions in lieu of flowers provided the Administrative Management Serv¬ AFSA scholarships in memory of and mailing address as of Septem¬ ber and October, 1970, and the ice of the United Nations. This new members who have died within the office was created by Secretary- year and funds were received from a name and address of the parent or guardian. Address your letter to: General U Thant for the purpose of number of families who are building advising and assisting him on manage¬ Committee on Education, AFSA, memorials in perpetuity. Miscellane¬ ment activities and to conduct appro¬ ous sources of contributions to the 2101 E Street, N.W., Washington, D. C. 20037. priate management and organization scholarship fund were honoraria, studies. Formerly, Ambassador Ryan book royalties, profits from sales of February 15, 1971 is the dead¬ was US envoy to Niger. automobiles, proceeds of a “bet” line for the receipt at AFSA of the and authors’ refunds from articles About the October Cover student's part of the application. “Copenhagen Canal” was painted by Ruth Prengel, wife of FSO Alex T. 40 Years Ago in the Journal September Cover Artist Prengel. Mrs. Prengel attended the Annual Dues The Journal’s September cover, University of Wisconsin, and as an As stated last month, the new “European Village,” was the work of artist is self-taught. She has ex¬ fiscal year should remind us all that Mary Smith. Mrs. Smith, who paints hibited her work in connection with a remittance in payment of our an¬ mostly portraits, has studied at USIA Libraries at all the posts to nual dues to the Association should George Washington University, Cor¬ which she and her husband have be sent in promptly. Those who do coran Art School, and the Cooper been assigned—Cairo, Beirut, Berlin, so without further solicitation will Union in New York; she has ex¬ Tripoli, Damascus, and Alexandria. help eliminate much clerical work. hibited in Paris, Cannes, Munich, She has also had a one-man show at and Washington. Mrs, Smith’s hus¬ George Washington University. Mrs. -—American Foreign Service Journal band, Paul, is FSO-retired, and they Prengel and her husband have two September, 1930 have four children. sons.

25 Years Ago in the Journal FINAL Revamp of State Department Picured here are the first-place winners of the recent Recreation Association Art Show. Left to right, Dora Trujillo, Art Show Chairman, holding William New- Secretary of State Byrnes an¬ lin‘s “Stoneware Vase;” R. Gordon Arneson, winner of the “Best of Show" award; nounced on August 22 that he was Rose Everett, Christina Schultz, Ina Miller, and Valerie Bittner. Other winners planning a reorganization to end all were Robert B. Wright, Barbara Z. Cohen, Penny L. Lanphier, Rosemary O. reorganizations. Herman, Eli B. Roth, Robert W. Barnett, Jr., David Futterman, Solomon Mc¬ As he turned over the Budget Bu¬ Combs, Walter John Silva, Ann Heilman, Stephen L. Bush, Pamela Baker, David reau’s recommendations for stream¬ K. Newsom, Earl J. Wilson, Lois H. Nelson, Marilyn A. Johnson, and Howard E. lining the department to Colonel Sollenberger Frank McCarthy, newly-appointed Assistant Secretary on Adimnistra- an tion, Mr. Byrnes remarked that he thought the problem of reorganiza¬ tion would keep Colonel McCarthy entertained for some time to come. He pointed out that there have been three reorganizations in the State Department during the last four years and as there must be a war to end all wars, he believed there should be a plan to end all plans. —AFSJ, September, 1945 ig'fi T5-. AFSA BOARD MINUTES Minutes of the August 4 Meeting. Memorial Plaque Committee suggested that Mr. Harrop work out suitable extracts The Board unanimously approved the appointment of which could be used in a press release to be initiated by Harrison Symmes as Chairman of the Memorial Plaque AFSA. Committee. Ambassador Symmes is assigned to Congres¬ Action: 1. Mr. Harrop—to follow up on the Wednes¬ sional Relations (S/H), Room 7256, Department of State, day meeting with Mr. Macomber. Ext. 22163. 2. Press release material. Interim Report of Chairman of the Board Minutes of the August 11 Meeting. A draft letter to the membership has been sent to all Task Forces members of the Board and Officers of the Association. Copies of the draft were given to Miss Currie and Mr. Mr. Harrop reported on the meeting Friday, August 7, Maxim at the meeting. Drafts of a paper on the strategy with Messrs. Petrow, Lewis, and others to discuss the in¬ of dealing with Executive Order 11491 were similarly ventory process. AFSA participants held that a personal in¬ distributed. ventory of experience and skills is essential and must Action: Comments on the draft letter to the member¬ take into consideration future needs before any other ship are to be to Mr. Bray as soon as possible. steps are taken. It was reported that William 0. Hall, Formal consideration will be given to the pa¬ Ambassador to Ethiopia, has been called in to be Chair¬ per on E.O. 11491 at the Board meeting next man of an Inventory Study Group, and that he is assem¬ week, August 11. bling a Committee. Mr. Harrop said the discussion was profitable and that plans to implement Task Force pro¬ JFSOC posals are reassuring. Mr. Maxim, President of the Junior Foreign Service Officers Club, gave Mr. Bray a list of proposed amend¬ Staff Corps ments to the By-Laws of the American Foreign Service Mr. Bray pointed out that there has been no definite Association which had been prepared by a committee of statement on the future of the Staff Corps. It has been JFSOC, and requested that copies be circulated to mem¬ reported that the Department of State will study the bers of the AFSA Board and officers of the Association. issues. The Board decided that AFSA should develop Mr. Lambrakis of the ad hoc Committee on Communica¬ a position, using the Staff Corps Advisory Committee in tion has been advised of the proposals affecting issues coordination with JFSOC to prepare a draft paper. under consideration by that committee. Kidnaping Task Force—Reform In view of the shocking kidnaping and murder of Dan The AFSA position paper on the Task Forces (State¬ A.Mitrione in Uruguay, the Board was requested to deter¬ ment by the Board of the American Foreign Service Asso- mine the status of AFSA's recommendations to Mr. Ma¬ ciation,July 28, 1970) was sent to all members of the comber on benefits to survivors in cases of death result¬ Board of the Foreign Service with a letter of transmittal ing from hostile action. from Richard T. Davies, Acting Chairman of the Board of Action: 1. On behalf of the Association, Mr. Lam¬ Directors. A copy of the letter of transmittal to the Secre¬ brakis will send a telegram of condolence tary of State was also enclosed. The Statement was sent to Mrs. Mitrione. to the Secretary and to Mr. Macomber, Deputy Under Sec¬ 2. Mr. Lambrakis is to review correspondence retary for Administration. with Mr. Macomber and follow up. Copies have been mailed to the Chairman of each of Executive Order No. 11491 (Labor-Management Relations) the Task Forces, together with a copy of Ambassador Tib- bett’s report (Career Principles Committee) to Mr. Bray The Board discussed points covered in Mr. Bray’s draft of July 20. paper “Strategy for Dealing with Executive Order 11491." Copies of the statement have been circulated to all (An informal meeting will be arranged with Mr. Macomber members of the AFSA Board, Officers of the Association, before the general business meeting of the Association, and to the President of JFSOC and will be sent to mem¬ now tentatively scheduled after Labor Day.) Particular bers of the Association with the interim report of the attention was given to the manner in which AFSA’s dilem¬ Chairman of the Board. ma might be presented to Mr. Macomber. Mr. Lambrakis Mr. Harrop summarized his conversation with Mr. Chris suggested that the Association’s position should be that Petrow. In reply to an opinion that most of AFSA’s com¬ AFSA wants exclusive recognition, but with no distortion ments would have to be taken up in the future, Mr. Har¬ of its purpose as a professional organization. Definitions rop said that many of AFSA’s recommendations should must be clarified so that AFSA will know precisely how be acted on immediately, among them Personnel Require¬ they will be interpreted by the Administration in the De¬ ments Inventory and The Staff Corps. A compilation of partment of State. When Mr. Macomber's point of view comments on the Task Force Reports received from Open has been determined, the matter will be presented to the Forum and other sources is being made. It was reported AFSA membership. Mr. Bray’s letter, to be sent next week, that Messrs. Lewis and Stern will meet with AFSA on will include information on the problems created by the Friday, August 7, to discuss the inventory process. It is E.O., one of the areas of greatest concern to the AFSA anticipated that the complete text of all Task Force Re- Board. pors will be published October 1. At that time announce¬ Minutes of the August 18 Meeting. ment will be made of action taken to implement Task Force recommendations. JFSOC Mr. Harrop expressed his discouragement at the lack On behalf of JFSOC, Messrs. Maxim and Hirsch sub¬ of public interest in the reform program. Mr. Bray pointed mitted four proposed amendments to AFSA By-Laws, to¬ out that there are very good lines in the AFSA paper and gether with petitions signed by 116 active AFSA members and a covering letter requesting that the amendments be personnel, and thus AFSA could be denied the right to presented to the entire AFSA membership for vote in consult with an agency on behalf of its members. accordance with Article XI, Section 2, of the By-Laws. 2. Kidnaping: A letter will be presented to Mr. Ma¬ They asked for an opportunity to discuss the proposed comber, citing the editorial in the New York Times, amendments with the AFSA Board before the general August 14, which restated and strongly supported the business meeting of the Association which is scheduled Board’s recommendation for a concerted international to be held in September. agreement to refuse ransom as a means of stopping these Action: 1. Discussion of the proposed amendments crimes. The AFSA Board again urges the Department of with JFSOC to be on the agenda for the State to initiate consultations with other governments to AFSA Board meeting August 25. obtain such an agreement. The September Foreign Serv¬ 2. Micer .Journal Lambrakis will iscarry to presentanother the editorial report ofon the subject. the ad hoc Committee on Communications 3. Overtime: A letter will be presented to Mr. Macom¬ which has direct bearing on the JFSOC ber proposing the mandatory payment of overtime to Staff proposals. Corps personnel. 4. Staff Corps Improvements: Mr. Macomber will be Mr. Bray and selected members of the Board will meet given a report recommending numerous actions to be with Mr. Macomber at 2:30 on Wednesday, August 19, to taken to improve the conditions of employment of Staff discuss crucial issues facing the Association and the De¬ Corps personnel. The report was prepared by FSSO Bar¬ partment of State. Mr. Bray outlined the following items bara Good, a member of the Board of Directors and Chair¬ on the agenda: man of the AFSA Staff Corps Advisory Committee which 1. Executive Order No. 11491 (Labor-Management Re¬ includes members of State, AID, and USIA. lations): It will be stated that the Board has studied the 5. Benefits: The third letter to be presented to Mr. Executive Order thoroughly and that its implementation is Macomber will contain AFSA’s suggestion for establishing a matter of vital concern to the membership. The pre¬ a fund to provide increased benefits for the families of ferred definition of “unit” and “supervisor” will be stated Foreign Service personnel killed overseas in the line of and the Deputy Under Secretary will be asked to provide duty. specific definitions of these terms. It will be made clear 6. The Reform Program; The Board representatives that AFSA must have a legal and permanent right to con¬ will discuss what is considered to be an area of serious sult with State, AID and USIA on personnel matters affect¬ difficulty in the Reform Program. It has been reported ing members of the Foreign Affairs community. It can that Ambassador Hall’s Inventory Study Group will devote no longer rely on good will and sufferance as a basis for only two to three weeks to the inventory or reclassifica¬ such consultation in view of the provisions of the Execu¬ tion process. AFSA will offer a number of constructive tive Order. Under the current Order, a labor organization suggestions for a more comprehensive study which should could conceivably be granted exclusive recognition for be made concurrently with analyses of certain other Task large numbers of Foreign Service as well as Civil Service Force recommendations.

Get There Early for the Best Book Bargains in Town CSC Changes Mind The Civil Service Commission has Foreign Service employees and Department’s Exhibition Hall. given its support to legislation that their families will have a rare oppor¬ Some of the features of this year’s would allow a federal retiree who tunity to find the best book bargains Fair will be the Collector’s Corner of remarries after the death of his wife in town when the 1970 Book Fair rare books and first editions and the to provide survivor annuities for the opens at the Department of State Art Corner with paintings, prints, new spouse. Andrew Ruddock, direc¬ October 19. rubbins, batiks and other art ob¬ tor of CSC’s retirement bureau, said The first day of the five-day event jects for sale. the commission has dropped its pre¬ has been reserved for Foreign Serv¬ The international Stamp Collec¬ vious opposition to this measure, ice employees, their families and tion always draws special attention but it opposes another provision members of the diplomatic commu¬ as does the poster display with hun¬ that would restore the reduction in nity so that they will have the first dreds of scenic posters donated by annuities taken by retirees whose chance at the best book bargains. USIS posts around the world. wives predecease them and who do Early shoppers will have a head The Children’s Art Show will have not remarry. Both AFSA and DACOR start on the crowds of professional on sale paintings by dependents of have written to Congressman Wayne book buyers and the general public Foreign Service and diplomatic per¬ B. Hays asking that he introduce an who flock to the Fair each year in sonnel. And the raffle table will give amendment that would make the increasing numbers. away a set of the Encyclopaedia provisions of this bill applicable to The Fair will stay open until 8 Britannica and a book of Andrew Foreign Service annuitants. p.m. on Monday, October 19, for a Wyeth prints (a collector’s item special "Family Night” at which par¬ since Mr. Wyeth has destroyed the Foreign Service Day—1970 ents can browse with their children plates.) AFSA and DACOR are coordinating and have dinner at the State Depart¬ The American Association of For¬ with the Department in planning for ment cafeteria. A jazz combo will eign Service Women, which is spon¬ Foreign Service Day-—1970, which is provide background music for the soring the Book Fair, donates all scheduled for November 19. Retired late browsers and shoppers. proceeds to the Foreign Service As¬ FSOs should make a note of the day For those wishing to return for a sociation Scholarship Fund. Last which should be a memorable event. second or third look, the Fair will be year the Fund received $13,000 and Tom Beale, Chairman of AFSA's Re¬ open to the public from Tuesday, provided 23 college scholarships for tired Members Committee, and New¬ October 20, through Friday, October deserving Foreign Service depend¬ by Walmsley, Committee Chairman 23, from 10 a.m. to 4 p.m. in the ents. for DACOR, will handle details. RESEARCH REVISITED Now Foreign Service specialists can to fund projects for which there is a from page 28 increasingly effectively compete real need, and budgetary limita¬ with academic specialists at least at tions have kept it from sponsoring was their participation sufficiently the level of descriptive understand¬ the kinds of ill-conceived projects frequent to give them the necessary ing of the international situation. which Pentagon prodigality made continuity of involvement for a Moreover, at the very time that our possible. Even so there can be little constructive policy-oriented rela¬ own specialization has increased, doubt that the research contracted tionship. They never became the the academic community has by the Department in any one year gadflies of policy they might have turned away from traditional an¬ has failed to reach a wide audience been, and at best they were made alytical methods and has chosen to or to meet the Department’s funda¬ use of as a prestigious channel for adopt mathematical and other the¬ mental need for outside informa¬ making Department views known oretical tools in the pursuit of tion and talent. This is not to say on the outside. But far too fre¬ “science” in the social sciences. that the research commissioned by quently it was a case of the deaf These developments have dimin¬ the Department has been altogether listening to the deaf. ished the relevance of current irrelevant to its needs. Some con¬ If the system of advisors was not academic research to the foreign tract research, particularly on the a success, the system of consultants policy process at the very time that frontiers of foreign policy, focusing was, if anything, less effective. the Foreign Service’s own special¬ on scientific issues and making use Consultant usage declined steadily ized capabilities have increased. of computers and systems analysis, over a two-year period from a level The turning inward of the De¬ has broken new ground and has of 152 consultants working a total partment upon itself which is thrown light on many future policy of 2452 days in the last six months reflected in the reduced usage of problems. An excellent example is of 1967 to a level of only 87 con¬ individual advisors and consultants a recent study of the foreign policy sultants for 994 days in the first six is also apparent in the Depart¬ implications of weather modifica¬ months of 1969. The total number ment’s overall approach to external tion. Unfortunately even on some of consultants on the Department’s academic research. Each year some of these frontiers the Department’s roles went down from 395 in 1967 eight or ten contract research unfamiliarity with the new tech¬ to 313 in 1969. This decline took studies are undertaken within a niques and its lack of interest in place despite the ongoing use of reasonably low budgetary level of research generally has meant that consultants on statutory boards and $125,000. To a degree, the de¬ the monitoring of the actual re¬ committees such as the Board of mand for research has been re¬ search process has been uncertain. Foreign Scholarships or the Inter¬ strained by the size of the budget. Behind the new frontiers, howev¬ national Water and Boundary More significantly the lack of inter¬ er, in the shadows of our research Commission. Some bureaus where est in research is the product of the efforts, hides a surprising amount one might expect there to have Department’s smug self-confidence of traditional descriptive research been a need for outside technical in its own talents and the growing analyzing institutions, both military services, such as the Bureau of estrangement of the academic and and civilian. The Department Economic Affairs, made negligible bureaucratic communities. These squirrels away this type of informa¬ use of consultants. Even the geo¬ two groups have developed differ¬ tion for contingency purposes in graphic bureaus were at best sporad¬ ent methodological approaches to anticipation of the next coup or ic consumers of consultant serv¬ foreign policy problems and in re¬ revolution, but there is little reason ices. (Several bureaus spent less cent years have differed bitterly to suppose that much of this work than $100 on consultants in FY about the Vietnam war. could not easily be done elsewhere 1969.) In addition, the experience of within the intelligence community, In part the decline in the use of most officers with contract research thereby releasing resources for high outside talent may be the result of is not a happy one. The Depart¬ priority research needs. As it is, a increasing budget stringencies and ment’s contract studies have been concise CIA descriptive study al¬ an unwillingness to spend scarce of uneven quality and have fre¬ ready commands a government¬ resources, now set aside for such quently been irrelevant to the poli¬ wide readership and considerable purposes as overtime pay, on such cy concerns of the day. In addition, respect, in part because of the as¬ an uncertain commodity as sub¬ the irrelevance of much Defense sumptions which readers make stantive consultancy services. Department social science research about the encyclopedic resources of The decline may also reflect the has reinforced the natural cynicism the Agency. Externally contracted growing specialization within the of the Foreign Service about the State Department research on a Foreign Service and be an indirect benefits of contract research. There similar subject is unlikely to be as effect of economic and area study is scarcely an officer who has influential even though it may be a programs begun more than a dec¬ served abroad and who has not had useful yardstick against which in- ade ago, the results of which the to pick up some of the pieces from house research can be measured. Department is only now beginning Department of Defense-sponsored The fundamental purpose of re¬ to feel. In the day when all FSOs research, all too frequently related search, the searching again through were generalists, there may have to some such improbable topic as the facts and through the history of been both a greater humility and a the migratory habits of Himalayan a particular problem to make cer¬ lesser readiness to denigrate the birds. tain that readers have at their dis¬ specialized knowledge of others. The State Department has tried posal all the information necessary

FOREIGN SERVICE JOURNAL, October, 1970 37 to make decisions, is not always Departmental receptivity to outside Such procedures would still be appreciated in the Department. To expertise, even assuming that opposed, unless they were carefully protect itself from the unpleasant added resources were available, the monitored, since to many they consequences of a truly new look, Department is unlikely to demand would imply a derogation of the the Department frequently has or make constructive use of outside foreign policy responsibilities of the recourse to the device of using talent. It will only get more irrele¬ Secretary of State. It need not, former employees to act as its con¬ vant research and advice, rather however, be so, and in fact the sultants or to do its outside re¬ than the policy-focused specialized system could be developed in ways search. In the case of consultants knowledge it needs. which would enrich our policy¬ brought in by INR in FY 1969, A start must be made from the making process and enhance the fifteen were former Departmental top. Unless the Secretary and his Secretary’s responsibilities, rather employees. But even in the re¬ principal assistants demonstrate than the reverse. search field many of those commis¬ their belief in the Department’s re¬ There may also be a need for sioned to do research are former quirement for outside knowledge research to examine the effects of employees. The standard justifica¬ and talent, it is unrealistic to sup¬ our policies. It is not sufficient to tion for this practice is a self- pose that Assistant Secretaries and use outsiders to contribute to the serving one. Former civil servants, Country Directors will be any more formulation of policy. We may also it is said, have a unique knowledge enthusiastic for outside advice than wish to have outsiders review our of how the bureaucracy works and they are now. But even if the top achievements and shortcomings hence can tailor their work in ways levels of the Department make perhaps by including consultants on that the bureaucracy will find both clear that they expect research and inspection teams or by an ex post useful and intelligible. This in- consultant activity to be factored facto review of the implementation house section of the foreign affairs into our policy process, the bureauc¬ of policy decisions. Many of our establishment on the outside, on racy may still find ways to avoid programs have been going on for which we have relied to an increas¬ research. Here we must face the ten years or more, yet we rarely ing degree, probably does not give fact that fear plays a role in our have any informed outside review the Department the fresh point of approach to outside expertise. of their effectiveness, of their im¬ view which it would need to meet Despite our high qualifications, our pact or of their contribution to our any meaningful criteria of open¬ growing specialization and our overall policy needs. ness. broad experience, we do not wish There is also a need for a more What is to be done? Is it a to admit that we need any guidance effective dialogue between the for¬ question of seeking more resources beyond that available from our eign affairs bureaucracy and the to enable the Department to em¬ peers in the service. As a result we academic community through ploy outside talent and to contract have always tended to assume that which the two can come to value for a wider selection of relevant the results of research would be each other more highly. If this is to research? Or is it a question of nugatory, its conclusions facile and happen, Department officers will priorities, initiatives, perhaps even its utility marginal. have to attend academic meetings new directives from on high to To avoid these kinds of reactions more often and to contribute to force the Department to focus upon in the future, or at least to mini¬ them either by presenting papers or its need for outside talent in pend¬ mize them, we need to create a focal by participating in panel programs ing and prospective policy areas? point in the Department reporting as discussants. Not only would this There is, to be sure, a financial directly to the Secretary or the Un¬ give the Department a more valid dimension to our problem. At a der Secretary and charged explicit¬ appreciation of the academic time when there are pressures to ly with examining each and every world, but it would demonstrate to reduce expenditures in marginal ar¬ policy issue, every request for a the academic world, in the only eas, research and consultancy, National Security memorandum, medium it respects—the printed which have been clearly among the every policy planning study to see word—that Departmental research marginal programs of the past, are what outside advice needs to be and analysis is the equal of its own. unlikely to get any enthusiastic en¬ used and in what way. There are, Hopefully the development of couragement. The effect has been of course, a variety of ways in professional functional specializa¬ to dampen the demand for research which this could be done. In some tions on which the Department is in the bureaus and to inhibit them cases a preliminary draft paper now embarking, when combined from asking for research for which might be prepared outside the De¬ with the existing geographic speciali¬ they might otherwise have felt a partment entirely; in other cases zations, will create a cadre of officers need. If openness is, however, a specific portions could be sub¬ who can meet as equals in the groves high priority for the Department contracted, for example where of academe. As equals they should and is indeed a necessary element technical computer uses were re¬ then be able to recognize the re¬ of effective policy making, then quired. More frequently, policy pa¬ spective contributions which each special budgetary provision will pers could be reviewed through a can make to the work of the other. have to be made for consultants system of external examiners to en¬ From this may flow the genuine and research. sure that a genuine range of policy openness which can lead to the im¬ At the heart of the problem of options were being considered in proved policy process which has the use or misuse of outside talent response to any Presidential or De¬ long been the goal of both sides in is the question of attitude. Without partmental policy request. what now is an unequal dialogue. ■

38 FOREIGN SERVICE JOURNAL, October, 1970 The roots of Japanese-American relations were put down in infertile soil by repeated attempts of American merchants and missionaries—

Before Perry

J APAN, by the middle of the nine- EDGAR NOEL the intervening 28 years from 1809 teenth century, was an enigma not to 1837, there is no record of any only to the United States but also Edgar E. Noel, USIA, received his American ships having visited to most of the Western world. No MA from the University of Vir¬ Japan. Such events as the War of one really knew the nation and its ginia before entering the Foreign 1812, the Panic of 1819, and the Service in 1960, and has served in leadership. For over 200 years, the Thailand, Korea, and Japan. He opening of trade with the British Japanese had successfully isolated has written a book of Poetry, West Indies may be the reasons for themselves from foreign affairs. Only "Plum Blossoms," and is now as¬ such a long interruption between the Dutch, at a small trading post signed to the English Teaching Di¬ contacts. vision of USIA where he is writ¬ In the first period, 1791 to 1809, on the Island of Deshima at Naga¬ ing a history of the US to be used saki, were permitted to maintain a at various US1S posts. the sole objective was trade, and Western foothold in the otherwise some fourteen American ships vis¬ closed doors of the “Land of the ited Japan for this purpose. Like other foreign ships, however, they Mikado.” Dutch and Chinese came to Japan. were rejected by the Japanese. Yet, while the Western world Around 1790, however, with the Moreover, the Dutch, in order to knew very little about Japan, Japan, increased expansion of Western maintain their trade monopoly, on the other hand and in spite of its trade in the Pacific, vessels from added to the difficulties by discour¬ enforced isolation, knew a great deal America, Russia, England, and aging the Tokugawa from initiating about the outside world. News reg¬ France began coming to the islands. any such relations. ularly trickled into the country. Although all these foreigners were Every year, for example, the Dutch abruptly ordered away and all at¬ Americans, nevertheless, still managed to enter Japan. Between chief at Deshima had to submit an tempts to trade flatly rejected, their 1797 and 1809, the Dutch, whose annual report to the representatives visits marked the beginning of the of the Shogun on world current end of Japan’s isolation. fleet was occupied in the Napoleon- events. The Dutch also began to Moreover, with these foreign vis¬ teach their language to young schol¬ its, Japan became aware that there ars and future interpreters, and they were now ships of a new nation kept the authorities supplied with plying Pacific waters—those of the books on scientific and utilitarian United States. At the end of the subjects. By the time of Com¬ American Revolution, New Eng¬ modore Matthew C. Perry’s arrival land vessels had ventured into the in 1853, the Shogunate at Edo had lucrative China trade, and they had access to files such as the ILLU- begun crossing the Northern Pacific TRATED LONDON NEWS that the with cargoes of fur to sell in Can¬ Dutch regularly forwarded to the ton. Since Japan lay close to their capital, so the Japanese were cogni¬ route, it was not long before these zant of world affairs. enterprising merchants attempted Nevertheless, it is sometimes said to establish some kind of commer¬ and still believed by many, that cial relationship with the Japanese. Perry’s arrival suddenly aroused These attempts and their rejection Japan from her hibernation and marked the first American contacts complete isolation from world with Japan. affairs. Not true. Certainly for a In general, these American- century and a half, after 1640, the Japanese contacts prior to 1853 Tokugawa Shogunate found it easy may be divided into two periods: to maintain a policy of national iso¬ the first from 1791 to 1809, and lation because few ships other than the second from 1837 to 1850. For Commodore Perry in 1852

FOREIGN SERVICE JOURNAL, October, 1970 39 ic Wars, periodically chartered nine weakness and of Japan’s superior his duties to Commodore James American ships to make the annual strength over the young nation. On Biddle, a senior officer in the Navy voyage between the Netherlands this misconceived idea began the who had been ordered to convey East Indies and Japan. Arriving at second period of American-Japa- Everett to China. Biddle, therefore, Nagasaki under the Dutch flag, nese contacts. proceeded to Japan in July, 1846 these ships were officially registered The nature of these American and anchored in Edo Bay. The by the Japanese as being Dutch, contacts with Japan from 1837 to Japanese, still somewhat contemp¬ and the fact that their crews were 1850 was quite different from those tuous of Americans after the visit American caused no difficulty in that had taken place a generation of the Morrison, refused even to trading with the Japanese. Howev¬ earlier. Although the attempt of the begin negotiations with Biddle. er, by being isolated on the tiny Morrison had failed, its failure sim¬ When the Commodore received island of Deshima, these round¬ ply added to the American deter¬ this abrupt refusal, a Japanese sol¬ about American contacts impressed mination to open Japan. That there dier deliberately struck or pushed the Japanese very little and the was now such serious determination him. Immediate apologies were Americans even less. As for the on the part of Americans in the offered by the Japanese authorities, Shogunate in Edo, these American face of past failures can be ex¬ and Biddle dismissed the incident visits gained little, if any, attention. plained by a variety of reasons. with an acceptance of whatever During the second period of To begin with, in the early nine¬ punishment for the soldier the American contacts from 1837 to teenth century, both England and Japanese law provided. This ben¬ 1850, however, the Shogunate Russia had made unsuccessful evolent reaction must have been could not continue for long to ig¬ efforts to open relations with incomprehensible to the Japanese nore Western attempts to establish Japan. Upon being refused, they way of thinking. If such an inci¬ relations with Japan. In the first made little protest since both coun¬ dent, whether a push or a blow, half of the nineteenth century, the tries were more preoccupied with had happened to a Japanese feudalistic closed-door society of European affairs, and neither gov¬ official of equivalent rank, the Japan was already beginning to ernment thought a firm policy offender would most certainly have weaken not only from the internal toward trade with Japan to be been struck down, if not killed on pressures fermented by static years worthwhile. England, moreover, the spot. Biddle’s conduct, conse¬ of isolation, but also from the ex¬ was becoming interested in concen¬ quently, was misinterpreted as a ternal pressures caused by the com¬ trating her commercial expansion sign of weakness and lack of digni¬ bined commercial expansion and upon the East India and the China ty, and his mission accomplished technological advances of Western trade. Consequently, it was the nothing more than perhaps a fur¬ civilization. American government and Ameri¬ ther decline of American prestige With the rise of the Industrial can traders who were most eager to in Japanese eyes. Fortunately, the Revolution, the West was now no open Japan to their shipping. repair of this damaged prestige be¬ longer the West from which Japan In 1844, when Caleb Cushing came the conscious and calculated had retreated two centuries earlier. concluded the treaty of Wanghai policy of a future Commodore who Ships of a size and speed un¬ with China, he was urged by was to visit Japan in 1853, and dreamed of in the past were now American missionaries and mer¬ who was to be the first to adjust plying Eastern waters in pursuit of chants in Canton also to negotiate a American diplomatic procedure to the riches of the China trade and treaty with Japan. Cushing for¬ the Japanese mores. of the equally profitable whale, and warded their request to President After Biddle’s unsuccessful mis¬ Japan lay right in their path. Tyler in Washington, who, in view sion in 1846, the subject of a treaty Externally, pressure was brought of past Japanese behavior, was to open Japan and establish com¬ upon Japan’s closed doors primarily somewhat dubious that a treaty mercial relations continued to en¬ by Americans. In 1837, the Ameri¬ could be concluded. Nevertheless, gage the attention of Americans. can merchantman Morrison arrived he agreed to let Cushing try, and People were not only intrigued by at Uraga from Canton for the os¬ Secretary of State John C. Calhoun efforts to open the island kingdom, tensible purpose of repatriating sent Cushing instructions giving but also the mystery of what lay some shipwrecked Japanese sailors. him full powers to negotiate a trea¬ beyond its shores whetted public At the same time, however, C. W. ty with the Japanese. When the curiosity and the desire for infor¬ King, a representative for the Mor¬ instructions arrived in China, how¬ mation. Imaginative stories circu¬ rison's owners, tried to seize the ever, they were too late. Cushing, lated about Japan’s fabulous wealth, opportunity to open negotiations for thinking his request denied, had and some rumors claimed that even trade and missionary work in already departed for the United the houses in Japan had roofs of Japan. But the Shogunate’s officials States. gold. refused to have any dealings with The next year, Alexander H. To say the least, Americans had the Americans. Instead, on seeing Everett, the first American Com¬ a vague image of Japan and its that the ship was unarmed, they missioner to China under the Cush¬ people. Estimates of the country’s Jired upon it and forced it to de¬ ing treaty, was further commis¬ area ranged from 9.000 square part. This forced but bloodless sioned to negotiate a treaty with miles to 266.000, and its popula¬ withdrawal of the Morrison, more¬ Japan. En route to China, he be¬ tion from 15.000,000 to 50,000,- over, was interpreted by the came ill, and being forced to return 000. The population of Edo alone Shogunate as a sign of American to the United States, he delegated was asserted to be at least 10,000,-

•40 FOREIGN SERVICE JOURNAL. October, 1970 OOO. The “average” conception was and ideas about their Pacific neigh¬ respected, but not feared. that “As far as general impressions bor from the Dutch and Chinese at Moreover, contacts between the go, the ordinary. . . feeling—we Nagasaki, and by 1847 a detailed two countries had become more cannot call it knowledge—about Japanese description of the United frequent. With the increased num¬ Japan is, that. . . we . . . think of it States was published and widely ber of American ships entering as some Atlantis of the East, a circulated in Japan. This work not Japanese territorial waters and mystery and marvel seldom . . . only described the general geogra¬ their unfamiliarity with the rough revealed to the sons of men. . . .” In phy and colonial history of the weather in those waters, shipwrecks turn, the image of Japan’s inhabi¬ United States, but it also included a were common. Many of the ship¬ tants was blurred by confusing con¬ remarkably accurate “Short Biogra¬ wrecked sailors landed in Japan, trasts. Some accounts described the phy of Washington” as well as de¬ and their subsequent harsh treat¬ Japanese as fearless, harsh, inhu¬ tailed information about the Amer¬ ment and slow repatriation through man toward the weak, and capri¬ ican navy. It was further supple¬ the Dutch at Nagasaki, brought cious in their dealings. Others mented by a more elaborate ac¬ forth demands that the American claimed that the Japanese were count which appeared just prior to government insure proper treat¬ very inoffensive and timid people Perry’s arrival in 1853. One Japa¬ ment and protection of its citizens and so polite and courteous in their nese scholar concluded, in Japan. manners that they matched the The barbarians of today are In June, 1848, the whaler La- most polished Europeans. In their not like those of olden times. goda out of New Bedford was descriptions of the physical charac¬ And yet, people who do not wrecked on a shoal in the Sea of teristics, the image was somewhat realize this fact arrogantly Japan. The surviving seamen land¬ clearer but, nonetheless, opin¬ despise them and pay no at¬ ed at Matsumae and were soon ionated. tention to them ... It is the transferred by the Japanese to Conversely, the Japanese image duty of scholars to enlighten Nagasaki where they were im¬ of Americans was far more vivid. the people, and show them prisoned. At the same time, anoth¬ For years they had received news that the barbarians should be er incident, which marks the en¬ trance of the first American teacher into Japan, also occurred. Ronald MacDonald, the son of a Hudson’s Bay Company agent and a Chinook Indian woman, was a US citizen only by virtue of the Oregon Treaty of 1846. Desirous of becoming a teacher to the Japanese with whom he imagined a vague racial kinship, and also eager for adventure, young MacDonald arranged for a whaler to set him adrift off the coast of Japan in 1848. Like the other American sailors, MacDonald was captured and im¬ prisoned at Nagasaki, but he, as well as the Japanese, took advan¬ tage of his presence to train four¬ teen Japanese officials to become English interpreters. Two of these officials were Moriyama Yenosuke and Hori Tatsunosuke who later served in negotiations with Com¬ modore Perry. However, with the increased fre¬ quency of shipwrecked American seamen landing in Japan, the Shogunate was beeinning to suspect American espionage. The close confinement of these sailors— sometimes in cages after attempted escapes—was mainly a result of this suspicion. That such imprisonment was unjust or cruel, as these sailors The American ship Eliza out of New York battles a typhoon in Japanese waters. claimed, must be looked at from Captained by William R. Stewart, the first American to sail under a Dutch charter, both sides. A large part of the the Eliza traded between Nagasaki and Dutch Batavia from 1797 to 1799. so-called harsh treatment can be

FOREIGN SERVICE JOURNAL, October, 1970 41 blamed on differences in customs ]Economic changes typified by the United States send an expedition to and points of view. The suspicion jgrowth of the towns, the change to Japan in an attempt to force her of espionage must particularly be ;a money economy from the old rice to open her ports to trade, permit taken into account when consider-

42 FOREIGN SERVICE JOURNAL, October, 1970 whole oay is surrounded with innumerable forts. The expidi¬ tion [sic] will find the Japa¬ nese much better soldiers than they anticipated.” The presents had better been let [sic] at home. A trade will not soon be opened with that country except by force. For Matthew C. Perry, the use of force was regretfully anticipated but hopefully to be avoided if pos¬ sible. In any case, he was deter¬ mined to open the doors of Japan. Behind him was a history of many false starts and many frustra¬ tions in America’s early dealings Dutch factory on the island of Deshima with the Japanese. His arrival in Japan would find a country that had over 60 years of sporadic con¬ Consequently, by the beginning naval officer—Matthew Calbraith tact with Americans; a Japan that of 1852, efforts to open Japan were Perry. As newly appointed Com- was warned of his coming; and a still up in the air. The United States, mander-in-Chief of the East India Japan that was, in fact, more fully however, was daily becoming more Squadron and special envoy to informed about America than conscious of its potential position Japan, Perry made extensive America was about Japan. and influence in the Pacific, and for preparations for his mission, and As for the men of Perry’s expe¬ some, the dream of creating a vast finally in November, 1852, he de¬ dition, the voyage would be practi¬ mercantile empire in the Pacific by parted for the Far East. He carried cally a journey into the unknown. opening Japan was seen as the next with him the nation’s moral belief, Young Midshipman Robert D. Mi¬ step in America’s Manifest Des¬ backed by demands of reason, prog¬ nor of Virginia who later joined the tiny. ress, and religion, that Japan was a expedition wrote in his private This dream was mainly en¬ stumbling block in the world’s path journal: visioned by the Young America toward industry, civilization, and The mission of Commo. Perry Movement in the early 1850s. The happiness, and it was now his job is a peaceable one and he is young men in the Democratic Par¬ to clear that path. instructed by the proper au¬ ty, flushed over the easy and cheap Meanwhile, the Japanese had thorities at home to use concil¬ victory in the Mexican War and been informed of Perry’s expedition iatory measures in trying to fired with a jingoism that demand¬ by the Dutch at Deshima. News of induce the Emperor of so pow¬ ed even more accomplishments, a proposed American expedition erful an Empire to throw open adopted “Young America” as a slo¬ had been rumored in European his ports and abandoning the gan and a rallying cry in their drive newspapers since 1849, and the policy of his predecessors, for further expansion and national Dutch at Deshima had passed such mingle with the world at progress. To these men “the young news on to the Japanese. large! But should the Japa¬ giant of the West, America, was An American who returned from nese, adhering to their ancient pictured as standing at the full flush China wrote of the Japanese reac¬ and well established custom of of ‘exulting manhood,’ and the worn- tion to Perry’s mission: non intercourse, decline enter¬ out powers of the Old World A native of Japan says, “that ing into any negotiations . . . could not hope either to restrain or the Emperor is ready for the Commo. Perry intends, as far to impede his progress.” expidition [sic]. He exhibited as I can learn . . . after using For many others, the motive for a letter to me, which he had all conciliation, to resort to opening Japan was a religious one. just received from one of his force . . . In an age when commerce was countrymen. . . . ‘That the It is not surprising then that as often described as “the handmaid¬ people kept a strict look out Perry’s modest fleet of four ships en of the gospel,” Japan’s isolation all over the coast; that their rendezvoused at Naha, the chief was considered a violation of divine fires were already burning on port of the Ryukyu Islands, and law. the mountains at night in or¬ finally set sail for Japan on July 2, Late in March, 1852, President der to be ready in case the 1853, almost every American on Fillmore, undoubtedly pressed by squadron should appear at board, from those especially select¬ such public opinion, agreed to send night. One million of soldiers ed for their scientific and technical another envoy to attempt the nego¬ are ready at hand. The coast skills to the ordinary enlisted tiation of a treaty with Japan. is all set with guns, while in seaman, wondered what strange The man whom the President the bay of Jeddo, where the and exciting sights and experiences selected to head this expedition was fleet is expected, there are awaited him in the mysterious land a highly experienced and respected countless war junks, and the of Nippon. ■

FOREIGN SERVICE JOURNAL, October, 1970 43 Alfonso Jennings (right, gesturing) of New Jersey’s Black History Institute, plans a teaching schedule for an urban school with several other teaching interns. Teams of such teachers were employed by several schools to work as groups, pooling their skills, and drawing on one another for supprt. The program was organized by Robert F. Engs and John B. Williams, two specialists in urban education problems, who will visit African universities in 1971 on a State Department grant.

“What do black students want? Who are their real leaders? Why aren’t there more blacks in the Foreign Service of the United States?” Black Students and the Foreign Service w HEN I was stationed in West FREDERICK QUINN Ivy League. Several teaching in¬ Africa some of these questions Frederick Quinn, a member of terns had been social workers or were frequently raised by African the Board of Examiners, has served policemen specializing in youth students and cabinet officials, and in several African posts with US1S, work, people whose skills in dealing my answers were second hand. most recently as PAO, Yaounde. with urban children were consider¬ He spent the last academic year at Thus I was pleased to spend part of the University of California, Los able, but who lacked college de¬ last summer in a training program Angeles, and the month of July grees or teacher certification. for forty New Jersey ghetto teach¬ 1969 teaching African history to a During the summer the interns ers. It meant working with a cross- group of New Jersey ghetto teach¬ attend a teacher’s training institute, section of young blacks in their ers, and was recently chairman of continue college courses leading to a task force working group dealing early twenties, and translating this with recruitment, examination and certification and also teach. Since experience into language that might employment of young officers. the program started a year ago, it say something about this segment has placed more than a hundred of current America to non- interns in urban schools throughout Americans. the Governor of New Jersey New Jersey, and most of them have The forty interns, an elite group created shortly after the Newark become regular teachers. of enthusiastic and imaginative riots of 1968. Some came from The group I worked with was the young teachers, were members of southern colleges, others from Har¬ Black History Institute, held at Up- the Urban Education Corps, which vard, Yale, and elsewhere in the sala College in East Orange. It was

FOREIGN SERVICE JOURNAL, October, 1970 directed by Robert Engs, a history leaving Africa in three centuries, of carefully constructed copies of doctoral candidate at Yale, whose whom only five million came to the African life, one in the rain forest, specialty is Negro history, and who North American continent) into a second in the savanna. Both were has been invited by the State De¬ vivid personal narratives. He made illustrated with masks, hunting and partment to make a lecture tour of maps, showing the travel and set¬ farming tools, and musical instru¬ African Universities. tlement of freed slaves who became ments. Later some of the interns This last summer’s Black History traders, school teachers, and mis¬ took their classes through the ex¬ Institute opened with a leisurely sionaries in Africa, and read from hibit; the sixth graders in the group morning spent in the Newark ghet¬ their diaries and letters. retained a vivid impression of a to in small groups. Marvin Harris, Some interns were interested in talking drum that could carry a local artist, took us down what he traditional African religions. Two sound seven miles on a clear day. called “a nasty little street” near his of the books most read by the Evenings at the Institute were home, past schools fenced in as group were Placide Tempel’s “Ban¬ given to discussions, sometimes securely as SAC bases, by pawn tu Philosophy” and Daryll Forde’s with teachers established in the shops and the “Church of Power, “African Worlds.” One girl report¬ community, or among the interns. Sunday School and Catering Ser¬ ed on the Dogon of Mali, whose At some of these “rap” sessions the vice.” Mr. Harris described being religion represents a complex, sub¬ racial attitudes of participants sur¬ caught in the crossfire of a riot tle way of looking at the world, faced. There were heated there the previous summer. This translated into rich visual symbols discussions and on some questions year, as part of a teaching team, he of which the well-known Dogon the group split. A few white interns showed children in a community masks are but a part. The discus¬ were genuinely dismayed that their center how to make African masks sion which followed indicated that “we’re here to save the ghetto” for a “soul night,” which inaugurat¬ many of the interns were not aware attitude was rejected by blacks who ed a new housing development. of the sophistication of some of the didn’t even thank the whites for An intern’s day was divided into traditional African religions. their interest. For several black in¬ three sections, mornings were spent By contrast, Negritude, African terns, “integration” was a pejora¬ working in teaching teams in East socialism, and the independence tive term, because it meant selling Orange schools. During the after¬ movement were subjects that had out black uniqueness and losing noon, interns attended classes in few takers. Frantz Fanon’s “The black cultural identity in an homo¬ black history and African studies. Wretched of the Earth” drew a genized American culture. These The black history group, taught by mixed reception. A recent graduate interns favored black separatism. Robert Engs, focused on three peri¬ of Spelman College made a resume A different position was taken by ods in recent Negro history, the of Fanon for the group, arguing one of the young black staff mem¬ Reconstruction era following the that he provided a philosophy of bers, Lamar Glassner, a political Civil War, the Harlem Renaissance militancy for the Third World and science student at Macalester Col¬ of the 1920s, and the present. One an original response to colonial and lege. “I want to combat The Man group of interns started projects in neo-colonial ideology. Other black on his own terms,” he said, speak¬ “block history,” talking with older interns responded that Fanon, born ing of the white world. “Some peo¬ black residents along a city block, in Martinique of mixed parentage, ple say if you go to a white school eliciting their biographic profiles, was not African at all and that his and come back to the ghetto, they and finding out how they and their message, important for its shock won’t respect you and you won’t be neighbors came to New Jersey. value in places, soon became repe¬ effective. I believe the way to be This will lead to data on northward titive and thin. most effective is to beat The Man Negro migration, and information During the course we visited the at what he is doing. If you’re on demographic changes within the Museum of Natural History’s “Man ‘heavy’ you can be ‘heavy’ whether black community during its recent in Africa” exhibit. It contained two you come from Howard or any¬ history. Ralph Williams (right), an architec¬ where else.” The African studies group that tural studies major at Yale, suggests Many of the young black interns I taught was especially interested in how teachers can use African art in rejected the idea of participation in two subjects, traditional African so¬ urban teaching. party politics, Democratic or Re¬ cieties and how they looked at life publican, as a way of changing before contact with Europeans, and their lot. “It just isn’t my style, I African values and religious sys¬ have no taste for it,” one intern tems. One of the most popular said. A black community leader of books was Philip Curtin’s “Africa an older generation, who recently Remembered,” a collection of nar¬ spent three years with the State ratives by slaves freed during the Department, observed: “Black stu¬ eighteenth and nineteenth cen¬ dents have almost no experience at turies. Alfonso Jennings, who had working with political parties, and been a physics major at Maryland parties haven’t wanted them. But State College, presented several here is the only place where power narratives from the book, which lies, in the political process. I think translated the statistics of slavery you will find within five years the (possibly twenty million slaves black community will be an orga-

FOREIGN SERVICE JOURNAL, October, 1970 45 nized political voice in many pla¬ reflected it in dress, neat as a questions of immediate interest to ces, in the way that the Irish and Brooks Brothers advertisement— the students (discrimination, poor Jewish communities are important but personal. This was reflected in housing, little economic opportuni¬ political blocs.” their choice of cars as well, not the ty), clarified them, and traced these Harold Cruse, writer in residence big chrome and waxed up busses of questions to their historical roots. at the University of Michigan, has the ’50s, but smaller fast sports cars Issues in history came alive; for discussed the movement different¬ with wire wheels and a broad rac¬ example, one teacher started the ly: “All over the country,” he told ing stripe. study of constitutional process with a recent symposium at Yale, “in “Like who needs a big car any¬ white students attempting to regis¬ different aspects of the black move¬ place in America now,” said one ter to vote and black students, acting ment we can see a general thrash¬ intern as we were flipping quarters as local officials, applying restric¬ ing about, a frantic search for into toll boxes along the Garden tive requirements to keep them method, and a search for both in¬ State Parkway as it led to the Lin¬ from doing so. (Comment: “Well ternal and external criticisms. We coln Tunnel. Over the music that now, you know some of the Consti¬ see splits and factions, we see floated out of the two speakers in tution by heart, but you don’t have movements running into dead the back of his Cougar came the six enough memorized to qualify.”). ends.” o’clock news. Eldridge Cleaver had Some of the teachers introduced A new black generation is arrived in Algiers and the Eastern units on local history or town gov¬ reaching maturity in America. It is European delegation to a cultural ernment by distributing cheap young (half the Negro population festival there had given him an cameras to the students and letting in the United States is under twen¬ ecstatic welcome. “They’ll never them take pictures of their own ty-five), impatient, and anxious for get him,” the young black said, town, after which they discussed change. Feeling strong in the “They’ve got to realize that with all what they had recorded among present, and having recently dis¬ his problems the American black is themselves and with invited mem¬ covered their past, many of its rep¬ first of all an American. It’s here bers of the city government. For resentatives argue that they are that he will do his thing. How are most of the students, it was their doing nothing but taking what is we supposed to fit into Eastern first exposure to the city as a unit theirs under the Constitution. Europe?” The music came back in and government as a constructive “More than anyone else,” one ob¬ and he said “what some people force for all the people in a com¬ served, “the Negro bought the don’t seem to realize is that Ameri¬ munity. American dream, and the white can blacks are first of all Ameri¬ Some of the interns asked about man denied it to him. Now we are can.” life in Africa, but only a few were simply taking what is ours.” One positive result of the Black interested in the foreign service, in The black interns felt that every History Institute’s program has part because of an ingrained hostil¬ man must do his own thing, and been the revitalization of the ity toward the Establishment, but this finally had little to do with teaching of social studies among also because few have been ex¬ race. If the Reverend James H. schools that participated in it. In posed to the foreign service. It has Robinson went one way and Stoke- each case, the emphasis was not not figured as a career option for ley Carmichael another that was only on the subject, but on its most of them to date. “You live in all right: “More power to them all, imaginative presentation. Thus a different world,” one intern said. but don’t say they speak for me,” black studies, when carefully “I would no more think of going one intern put it. This generation’s presented, livened the whole social through the door of the State De¬ style is personal—the interns sciences curriculum. It presented partment than you would about having lunch in the Soul Kitchen¬ ette.” It is time for change on both Courses were held in both schools and community centers. sides. If UN statistics are reason¬ ably correct, more than half the world’s population is under thirty years of age, and the majority of that population is non-white. By honestly and clearly discussing “the black experience” as a central part of American history and culture, we are helping find another bond between audiences in the Third World and the United States; and to the extent that the foreign ser¬ vice pursues an energetic minority recruitment program in the United States, it helps close the generation and color gap which confronts America in its representation abroad. ■ Doxology for Repentant Bureau Chiefs Melpomene: The C Street Entrance Give us this ache, our daily ache A bronze of life size, near twin, And forgive the fate of our inviolated A copy goddess; one burnished arm in Indecision, though we, pressed to face Sorrow bent whose imprecation, silent, Our choice, do not forgive such indecision Seems ignored by man. His company Should it offset our own. Or knowing Suffers here the strain of her dominion, Right, see greater right by wronging wrong. Need not remind itself that she (by what Lead, lead us back into Disguised assignment of Olympian zeal?) Directs the essence of our recent life: Temptation so once again to face The tragic muse enfolds the tragic man. The tempter’s eye. Take back the yet To come, warped within our tresspass Piraeus, where Athens comes to sea, veiled Of the past. Then, when we have Her with muck, out of sight of Rome’s Come into our own, deliver us Imperium, whose rascal taste, like ours, From more than evil alas familiar Could not abide the keeping of a single To our red lipped eyes: Stone in place. In State she stands unveiled, Deliver us from us. A Periclean, nagging gift from Greece Within whose roots we find our own. O she Must weep to suffer through her unrequite Decrees: her land, as ours, cannot escape The sad equality of glory drugged. Four Cheers for State

WILLIAM A. SOMMERS Plutarch Comes To Lunch At State Plutarch wrote of lives He never wished to live And, inhabitants of newer state, Live lives they never Wished to have. Bronze Sculpture: South Court Fountain Today, with the sun out, There’s service in the courtyard This strange unknown unlike Prometheus And biography of morals Is neither bound nor bursting with the Deploys its force against Aspiration of his myth. But what is this The statesman quality of lunch. To State? Perhaps a planetary waiter With plattered worlds, a wild one Or would it seem as such To choose his service on a ball of bronze If Plutarch, taking time from And look complainingly that motion makes The soundless progress of his pen, Him sick. (The world must be a ball Came to lunch at State in Where without bronze, or brass, we fall.) Observation of our shapeless breed? Or do we whirl through time and space Yesterday was rain. I saw With grand conception, our myth burned Wet fever green the flashing, By stars we’ve flung blue hot upon Work its way to crevices H is hair, yet fused him to our coughing In walls that closer close Earth? Thus has he eyes that madly Us out of feeling what we do. Stare at testy water spouts He was compassionate with statesmen, Shooting chlorine on his bronze. The politic demands that eat away A grave mistake is structured here. State’s not a The meat of truth; yet he underlined Future thing: our polity would quake The grist of Greece and If vision were to take full reign, The riot out of Rome. For we would whirl on orbits Made of least events whose planning Some months ago was ice Would but show the scourge of Covering the pebbled walls Each prediction. With clear plastic, bitter and Revengeful, shuddering leafless No, better have a statesman sculpt the truth Shrubs to cries of silence. For all to see Than have an artist urge us on to what I think he would not now be gentle We’ll never be. Nor pause to see the many sided View that justifies the many Slides we’ve made. Would you Like another cup of coffee, Mr. P?

FOREIGN SERVICE JOURNAL, October, 1970 47 “5. Organization. “6. Breakdown, or severe in¬ capacity, of the opposing regime. "The first three are ‘motivating’ factors; the last three, factors of ‘achievement.’ ” Girling finds conditions conducive to insurgency likely to develop in In¬ dia, Pakistan, and Java and in Latin A View of Aid author relates the lessons of the 1920s America, but less likely in Africa, and to the present, and calls for more, concludes: A DIPLOMAT LOOKS AT AID TO LATIN rather than less, institutionalization of “Thus, conditions for revolutionary AMERICA, by Willard L. Beaulac. South¬ uprisings not only exist but are like¬ ern Illinois U. Press, $6.95 the type established at Bretton Woods. ly to become more widespread. —LEWIS C. MATTISON They will not necessarily be Com¬ A MBASSADOR WlLLARD L. BEAULAC, munist uprisings . . . But this does following a distinguished career in Conditions for Insurgency not exclude the possibility of out¬ Latin America which included, inter side intervention [especially] in a alia, assignments as Ambassador to PEOPLE’S WAR, The Conditions and the Consequences in China and Southeast larger country like India or Brazil Paraguay, Argentina, Colombia, and Asia, by J. L. S. Girling. Allen and Cuba, has been studying the question or Indonesia . . . But at least smal¬ Unwin, Ltd. ler countries of little or no strategic of aid to Latin America from the significance should be spared this vantage point of academic appoint¬ THIS is a thoroughly workmanlike ments at Southern Illinois University, fate. And these countries might book: a concise, incisive study of why avoid the risk altogether if they and Ball State University. insurgency comes about and why it Ambassador Beaulac is firmly sta¬ took care—by judicious measures— succeeds or fails. Areas specifically to prevent insurgencies from break¬ tioned in the traditional camp which surveyed included mainland China, eschews most development theory. In ing out in the first place.” “the model”; Vietnam, where insur¬ —DONALD S. MACDONALD his new book, he stresses time and gency was successful; Malaya, the again the vital necessity of leaving aid Philippines, and Indonesia, where if In the Bosom of Anarchism decisions to experienced hands in the failed. The content does not seem to RADICAL LIBERTARIANISM: A Right Wing field, and to officials in Washington offer any strikingly new ideas, but Alternative, by Jerome Tuccille. Bobbs- who have had extensive field experi¬ usefully points out and summarizes Merrill, $5.00'. ence. He has little use for theoreti¬ lessons learned. CAN an SDS stalwart and a YAF cians, innocent of language and area Girling is pessimistic about Vietnam expertise, who would provide all the hardnose make it together in these (apparently writing as of mid-1968). United States? Yes, says Jerome Tuc¬ answers. He is very critical of the unrespon¬ Several of Ambassador Beaulac’s cille, in the bosom of anarchism. In siveness, ineffectiveness, and instability “Radical Libertarianism,” Tuccille's own experiences in various Latin of South Vietnamese governments— political spectrum forms a circle, but American countries are also “it is imposible to explain how the recounted. Readers familiar with his instead of a melding of totalitarian insurgency was able to develop so earlier books, “Career Ambassador’ communism and fascism, this circle strongly without regard to the in¬ sees political philosophies meeting in and “Career Diplomat,” know how sufficiencies of the Diem and succes¬ skillfully he presents these episodes libertarianism. The collective anar¬ sion regimens.” He is also critical of from his long career. chist (SDS), seeking a spontaneous US policy, though not of military socialism, links arms with the individ¬ —C. E. SMITH intervention as such, which he finds ualist anarchist, fashioning a true lais¬ inevitable with the crumbling of the sez-faire capitalism. Money Problems Before the IMF Saigon regime; and of US military Mr. Tuccille was one of the “liber¬ BANKERS’ DIPLOMACY: Monetary Stabili¬ policy, for its emphasis on “search- tarians” within the Young Americans zation in the Twenties, by Richard H. and-destroy” rather than “clear and for Freedom who split with that orga¬ Meyer. Columbia University Press, $8.00. hold,” and in its intelligence failures in nization because of its “traditionalist underestimating Vietcong strength and Conservative” pose. The libertarian RICHARD H. MEYER is Chief of For¬ organization. follows the early Ayn Rand and looks eign Research at the Federal Reserve In his introduction, Girling states, to Aristotle while the traditional con¬ Bank of New York. He is evidently “The successful outcome of insur¬ servative (exemplified by William well qualified to discuss the negotia¬ gency in developing countries—to Buckley) displays a puritanical Chris¬ tion of international monetary prob¬ judge from the experience of Chi¬ tianity and harkens to Platonic lems, and the relationship of interna¬ na, Indo-China and South Vietnam; strains. Ideology reduces to man’s tional economics and politics. and from the ‘negative’ experience nature: Is he best left unfettered and Specifically, this study examines the of Malaya, Greece and the Philip¬ free to develop his own ego, or does difficulties encountered in negotiating pines—depends on the combination he need the checks of a state to stabilization loans for Belgium, Italy, of six conditions. . . . mitigate his barbarism and channel his Poland and Rumania in the years “1. Peasant support [usually de¬ appetites? 1926-28, and the impact on the cen¬ rived from serious econom¬ This sounds like heady stuff, but as tral banks of the United States, Eng¬ ic conditions in the country¬ presented in this slim volume, it is not. land and France. It points up the side], The first chapters are built of quotes crucial need for such organizations as “2. Ability to sustain ‘protracted from obscure and motley sources and the International Monetary Fund— war’. present a paltry case. Mr. Tuccille, a which of course did not then exist. "3. National appeal. true believer, bloats personal experi¬ In a cogent concluding section the “4. Leadership. ences into crucial events. A good ex-

48 FOREIGN SERVICE JOURNAL. October, 1970 ample is his too elaborate account of parliamentary system would do much, Sailors and Marines,” “The Furor of the split in the August 1969 YAF it is argued, to help restore a healthy the Consuls,” “Shanghai Nights” and convention. Its detailed treatment be¬ balance to the president’s power—not “Walking on Eggs in Siberia.” speaks more of Tuccille’s own beliefs to mention his sense of perspective. A noted biographer, Richard than it does of hard political reason¬ The 205 pages are fast reading, and O’Connor’s documented account of ing. at least some of the observations are America’s gradual evolution into a And speaking of reason, Mr. Tuc- genuinely fresh. Pacific power of imperial proportions cille extols reason expressed in a radi¬ —JOHN R. LEPPERD is brilliantly written, absorbing, signifi¬ cal individualism, but this ignores the cant history. murky in man’s nature, his irrational Imperial Designs in Asia —ROBERT W. RINDEN acts, his collective mayhem, his re¬ sponse to boredom. The book and its PACIFIC DESTINY, by Richard O’Connor. Little, Brown, $10. The Technology of Genocide author’s vision are earnest but too pat. T" HE widening involvement of the TNSIDE THE THIRD REICH, memoirs by —MICHAEL P. CANNING United States in Asia during the Albert Speer. Collier Books, $12.50. course of two centuries is the concern of “Pacific Destiny,” in which the AFTER admitting his guilt at Nurem¬ Balance of Presidential Power author considers the people and the berg, Albert Speer accepted his 20-year sentence with relative equan¬ THE TWILIGHT OF THE PRESIDENCY, by forces that have brought us to an George E. Reedy. World, $6.95. imperial situation in Asia—to a Pax imity and occupied a good part of his Americana, “placing a huge American time preparing notes for his memoirs I T will surprise few to discover that army in South Vietnam, American which have now appeared four years the author of a book describing the infantry divisions on the truce line in after his release from Spandau. presidency as “the American monar¬ South Korea, American task forces Of all the accounts of the rise and chy” served in the administration of patrolling the Formosan straits and fall of Nazism, this is probably the none other than Lyndon B. Johnson. the Gulf of Tonkin, American best that has appeared or that will Press Secretary Reedy was forced to squadrons flying from bases in Laos appear. Speer obviously was a man of meet almost daily an insatiable press, and Thailand, an American occupa¬ superior intellect, otherwise how could while having been granted precious tion force on Okinawa, and American he have so well maintained German little to reveal about a boss who as¬ pro-consuls ruling thousands of Pacific armament production throughout the pired to be both Conquering Hero and islands ‘in trust’ . . .” allied bombings of Germany? In addi¬ Inscrutable Occidental. Unlike most Those who have urged us on tion, he is a man of some sensitivity. revelations of former aides-de-camp, towards manifest destiny in the East In view of these two qualities, how however, this book is an attempt to constitute a highly diverse and fas¬ could he have let himself become so discuss the institution of the presiden¬ cinating cast: Presidents from Thom¬ heavily engaged in the madness of cy rather than a particular individual’s as Jefferson to Lyndon Johnson, men Nazism? This is a question that obvi¬ recollections of life in the shadow of of far-ranging vision like Captain Al¬ ously still bothers him, and one which the ultimate Mover and Shaker. fred T. Mahan, men of action like he handles about as well as possible in It is the author’s thesis that “to a Frederick Townsend Ward and Com¬ his book. He was trained as an ar¬ president, all men are ‘lesser breeds’ ” modore Perry, and “men of ambition chitect from a family of architects. He and that “the White House is an insti¬ and greed and evangelistic passion, first attracted Hitler’s attention as an tution which dulls the sensitivity of traders, pirates, soldiers of fortune, architect; and as Hitler’s architect, he political men and ultimately reduces missionaries, poets and plunderers.” became his friend. During the peace¬ them to bungling amateurs in their Their collective biography is set forth ful years of the Nazi regime, his job basic craft—the art of politics.” JFK’s fully and vividly, as is the story of the was one of city planner for Hitler’s Bay of Pigs decision and LBJ’s pro¬ Pacific peoples “who have borne the grandiose ideas. He admits that during posal to merge the Commerce and heavy burden of America’s imperial that period he was not aware of the Labor Departments are cited as ex¬ designs.” The sweep of this imperial full implication of the Nazi philoso¬ amples of the nefarious way the coun¬ drama is suggested by such chapter phy, but he is realistic enough to cils of the White House “court” work headings as “Opium for the Pipes of wonder whether he would have with¬ to subvert what should be the most China,” “Onward Christian Soldiers, drawn, even if he had recognized important function of the president— namely, to assess the state of the na¬ tion’s politics and the mood of its elec¬ torate, and to act accordingly. Chapters are devoted to the rela¬ tionships of the Chief Executive to his own staff, to the Cabinet, to the Con¬ gress, and to the press. The demands of security, the pre-eminence of TV image-making, the nature of the bu¬ reaucratic beast—all conspire to iso¬ late the president from The Real America. As his way out, Reedy somewhat apologetically proffers a number of improbable reforms—ones previously advanced by one or another political scientist. Separation of the roles of Chief of State and Chief of Govern¬ ment along the lines of the British

FOREIGN SERVICE JOURNAL, October, 1970 49 those dangers. The opportunity to cost of their lives attempted to put an the genius of this great writer. conceive vast architectural projects as end to the Nazi regime in July 1944. I hope it doesn’t take another dozen a young architect in a period when In recalling this episode it is difficult years for Americans to discover a there was little work for architects to resist the temptation of reminding Colombian writer, already well known was probably as hard for Speer to the younger generation that with few in Latin America and Europe, whose resist as it would have been for Wer¬ exceptions the honorable if tragic work I gratefully rank with that of ner Von Braun to turn down the attempt was made and paid for by Borges, Faulkner, Lawrence Durrell, opportunity of heading rocket de¬ men who not only were themselves in and Ivo Andric in its evocation of the velopment at Peenemunde at the age their fifties but whose very names and universal themes of the human condi¬ of 27. Presumably, the job was more traditions were of a vintage compared tion in a unique and sharply-drawn important than the master, or the to which today’s much criticized es¬ setting. ultimate aims. tablishment is a mere toddler. “One Hundred Years of Solitude” The insight into Hitler’s makeup in Mr. Nelson’s chronicle of the House was first published as Cien A nos de Speer’s memoirs is unlike anything of Hohenzollern is written from the Soledad by the prestigious Argenitne that we have read before, and it is perspective which comes best by wait¬ firm Editorial Sudamericana, S.A. in much too complicated to summarize ing a little until the subject is no 1967, but has only recently been re¬ here. One does get the impression longer controversial. It is a balanced leased in the United States by Harper that, because Hitler was relatively suc¬ and very well written account of this & Row in a faithful and sensitive cessful as a leader of peacetime Ger¬ family which has had so much to do translation by Gregory Rabassa. The many, he decided he could do as well with German and consequently Euro¬ author, Gabriel Garcia Marquez, tells as a leader of a warring Germany. In pean history until the furtive depar¬ of a century in the life of the extraor¬ fact as Commander-in-Chief, he was ture of William II from his wartime dinary Buendia family in the isolated, an utter disaster in more ways than headquarters in Spa to asylum in The mythic South American town of Ma- one. There is much to be learned from Netherlands on a November night in condo. this book. In his conclusion, Speer 1918. Much had preceded that depar¬ While superficially concerned with says that the extent of the crimes was ture since the Burgrave Frederick of Latin American wars and revolutions, also due to the fact that Hitler was the Nuremberg first received title to Mark Latin loves and hates, disease and first to be able to employ the imple¬ Brandenburg in the 12th century. disaster, and the rise and fall of the ments of technology to multiply From that beginning Prussia was Buendia family and the town (which crime. When one thinks of the tech¬ made by such men as the Great Elec¬ is briefly exploited by hilariously- nology that would be available to a tor and Frederick II known as the described American banana company Great as well as lesser members of the Hitler today in the form of nuclear people), this book is by no means just clan. The decline began to set in as weapons, computers, miniaturized re¬ another “Latin American novel” early as the 19th Century. The inabili¬ corders, and television cameras, the which should be read for insights ty of the Prussian royal house to cope sought by the area specialist. The spectre of the equivalent of a Hitler with the threat of Napoleon was an arising today is utterly chilling. insights are there, but they are inci¬ indication of dry rot. There followed dental to the universal appeal of this Speer also paints interesting por¬ the failure to recognize the dynamism absorbing and fascinating book. traits of a number of those close to of the drive for a unified Germany so —CLINT SMITH Hitler in the unreal world that they that it was only with considerable lived in. Throughout the book are effort that Bismarck, the Iron Nature Versus Culture woven the complicated intrigues of Chancellor, succeeded in pressing the THE RAW AND THE COOKED (translated the regime. Also throughout the book imperial crown on the brow of a from the French by John and Doreen runs the clear lesson that absolutely reluctant William I. Even more im¬ Weightman). Introduction to a Science the worse thing that can happen to an of Mythology, Vol. 1 (11 to come) by portant though was the failure of the Claude Levi-Strauss. Harper & Row, established government or other orga¬ ruling house to make a transition from $10.00. nization is that it refuses to listen to the autocratic tradition of warrior dissent and to unpleasant truth. There kings to a constitutional monarchy. A woman friend of mine with an are many lessons that we can still From that failure much harm came to I.Q. of 185 picked up Mr. Levi- profitably learn from this era, from Europe and the world. In the end the Strauss’s book and said, “Ah, a new this madness, and from this book. Hohenzollerns, or at least most of French cookbook.” I let her read it —Ai. STOFFEL them, came back to Hohenzollemburg without explaining, and her delighted in Swabia whence they had come 600 comment was “He interprets those The Hohenzollern Dynasty years before. For better and for worse Amazon myths as though Frenchmen they left their mark on the history of had invented them.” THE SOLDIER KINGS, The House of Ho¬ Europe. Claude Levi-Strauss is not merely henzollern, bv Walter Henrx Nelson. an anthropologist. He is a wild, bril¬ Putnam, $8.95. —WOLF LEHMANN liant thinker who designs his own dis¬ One Man’s Family I T is an appropriate time to write a ciplines. His present book, which is a history of the Hohenzollern dynasty. ONE HUNDRED YEARS OF SOLITUDE, by complicated scholarly modern com¬ Crown Prince William, the last of the Gabriel Garcia Marquez, translated by panion to his lovable old “Tristes Hohenzollerns who might have Gregory Rabassa. Harper & Row. Tropiques,” is only for readers with restored the ancient house to a posi¬ an intense interest in the interpreta¬ tion of glory but muffed his chance, A dozen years ago people deeply in¬ tion of tribal customs. His language is died in 1951. The former Crown terested in Latin American literature so intricate that the translation needs Prince failed his country and his fami¬ were lamenting the fact that the great translating, and though his logic is fas¬ ly when he refused not only for him¬ Argentine writer Jose Luis Borges was cinating his empathy for Indians is self but also for his son Louis Ferdi¬ so little known in the United States. scant. We have lived among many nand to have any part in the abortive Of course, all that is changed now, Amazon tribes, known them as friends, attempt by that small group of old and even the most provincial of the and find some of his mythological “establishment” Germans who at the American literary crowd is aware of equations unsympathetic, for example:

50 FOREIGN SERVICE JOURNAL, October, 1970 excrement is to increment as flatulence Just why, I do not know. It deals is to hiccupance. His book has a fas¬ with an important issue: Mr. Agnew, cinating structure of mathematical and inter alia, makes it most timely. It is INVEST in SO. CALIFORNIA musical forms, and there are ideas in very well written: the prose is brisk, • ACREAGE carefully selected it relating ancient cultures to our pres¬ economical, straightforward; some¬ ent one which I have never read any how, it respects all my prejudices by our RESEARCH staff for place else. One would like to have about language. It says many things possible large capital gains. heard Mr. Levi-Strauss analyzing needing saying. It is well documented. Father Teilhard de Chardin’s work, or Perhaps my trouble is my feeling • We SPECIALIZE in long term vice versa. that Mr. Minor does not quite live up investment programs tail¬ If one has the patience to pay close to his implicit promise to consider ored to individual needs. attention to his arguments concerning equally the responsibility of govern¬ Nature versus Culture (the raw vs. ment and the media for distortion of • Advantageous LEVERAGE, the cooking), there are concepts so the news. He has many hard, and rewarding and interesting as to war¬ pertinent, things to say about the press TERMS, and FINANCING. rant reading those parts of the book and electronic journalism. But subtly, twice. I feel, he weights the scale in the • Your investments continu¬ —JACQ SIRACUSA favor of the latter, and against gov¬ ously REVIEWED; monthly ernment, with its ineluctable responsi¬ reports furnished. TV News Examined bilities to the nation. To KILL A MESSENGER: Television News I can appreciate his difficulties. I • Assistance given in market¬ and the Real World, by William Small. have myself lived on both sides of this Hastings House, $8.95. particular fence—approximately the ing for RE-SALE. ANYONE frustrated by the incom¬ same number of years on each. And pleteness of capsuled television news, my sympathies run sometimes to the which can deal with a hot develop¬ one, sometimes to the other. LANVAL CORPORATION ment in the Middle East in 1 minute All that said, it is an important 4453 Van Nuys Blvd., Sherman Oaks, C«. 91403 41 seconds, would benefit from this book, one well worth reading. Its con¬ Attn: R. E. GIDDINGS, Col. USAF-Re». CBS newsman’s account of what tent is adequately described by the Please send information to: tremendous planning, effort, skill— subtitle: “How the Government and Name and expense—go into the big end of the Press Manipulate, Censor and Dis¬ Address the funnel. tort the News.” All newspapermen City State Television is, no doubt, the most ought to read it; all government in¬ influential medium in the United formation people must. States and a few of the world’s more —JOHN P. MCKNIGHT affluent areas like Western Europe If you can wade through some extraneous and Japan. America has become Urban Problems (but funny) material on post reports, selec¬ something of an indoor country be¬ tion out, assignments and representation cause of it. THE CITY, by John V. Lindsay. Norton, allowances, you will find some valuable What comes out of the tube looks $ 5.95. tips on etiquette in easy but represents hours, days or weeks of decision-making, negotia¬ U RBANOLOGISTS and commissions in¬ tions and preparation by some of the vestigating social discontent invariably best people in the craft of communi¬ point up our cities’ needs for more cations. Bill Small thoughtfully exam¬ money and for political restructuring. ines this complicated process from his John Lindsay’s provocative analysis of vantage point as Director of CBS New York well illustrates this intellec¬ News in Washington, and the result is tual framework. Basic problems— a highly readable volume filled with especially welfare and crime—are am¬ anecdotes and information available ply treated but in ways which those only to an insider. who prefer simplistic approaches will How American TV deals with the reject because of his emphasis upon Black militants, politicians seeking institutional rather than personal defi¬ free time, violence in various forms, ciencies. In addition, Lindsay gives his political conventions with their long, appraisal of his successful 1969 re- dull periods, relations with the White election campaign which many will House—all these add dimension to a find of interest. book which may not make your TV Although one may reject Lindsay’s An introduction to foreign service life for watching more enjoyable but will tell the student contemplating the career, a fashionable subordination of military chuckle for friends and relatives back home, you why it’s done the way it is. and transportation expenditures in fa¬ this 64-page book is only $1.00 from: —RICHARD G. CUSHING vor of urban programs from the view¬ point of governmental priorities, “The American Foreign Service Assn. The Friendly Adversaries City” is an important book if one Dept. L, 2101 E St., N.W. THE INFORMATION WAR, by Dale Minor. wishes to appreciate the nature of Washington, D. C. 20037 Hawthorn Books, $6.95. such problems as housing, welfare, law and order, etc., within the frame¬ Please send copies of Life and Love in the Foreign Service at $1.00 per copy to: I am sorry to have to confess that I work of our largest city. Its lessons found Dale Minor’s “The Information are relevant to many other cities as Name War” hard going. Indeed, I did not well. quite get all the way through it. —EDWARD R. O’CONNOR Address

FOREIGN SERVICE JOURNAL, October, 1970 51 EDITORIAL OLGA VAN OYEN, INC. REALTOR Associates: Mrs. Jose Dumoulin Mr. M. Marshall Marston Mrs. Robert L. Gordon Mr. Stuart B. Warwick Mrs. Vera Clay Higgins Mrs. James McS. Wimsatt Mr. Kenneth M. Hoeffel Mrs. Mary C. Woodville Complete service for sales, rental and full management. Right On, Women! Washington, D. C. & Maryland 5122 MacArthur Boulevard, N.W. AFSA believes that the September 2 meeting on the Washington, D. C. 20016 status of women—the first ever held by the Department 362-8766 —may well be an historic turning point in role of women in the foreign services. The meeting resulted from a ses¬ sion on August 26 (“Women’s Lib” Day) between Un¬ ASSIGNMENT WASHINGTON der Secretary Macomber and the Ad Hoc Women’s Com¬ TOWN OR COUNTRY: Top Virginia locations for mittee, a voluntary group of concerned women officers, city, suburban or rural properties. “TOWN & COUN¬ who pointed out to him that the Task Force reports had TRY” has an excellent selection of available homes in virtually ignored women in drawing up a “management beautiful Northern Virginia. FHA In-Service, G.I., and strategy for the ’70s.” While the September meeting Conventional Financing. Six offices to serve you. focused on the Task Force reports, the wide audience A complete property management and rental service. of men and women made clear the existence of a long (Frite for our free brochure unvoiced feeling of discrimination in recruitment, train¬ TOWN & COUNTRY PROPERTIES, INC. ing, assignments and proomtion of women in the foreign REALTORS service agencies (see AFSA NEWS story). 3807 Mt. Vernon Ave., Alexandria TE 6-8915 The evident concern of the participants was a hearten¬ 4701 Old Dominion Dr., Arlington, Va. 525-6900 ing sign, as is the declared intent of Under Secretary 4205 Evergreen La., Annandale, Va. CL 6-9100 1384 Chain Bridge Road, McLean EL 6-1323 Macomber to update the Foreign Service by modernizing 6556 Backlick Road, Springfield 451-0111 its attitudes toward women. Today women constitute 9637 Lee Highway, Fairfax 591-7000 less than 5 per cent of the FSO corps, hold less than 1 per cent of the top positions in the Department, and are “SHOP IN AN AMERICAN DRUG STORE BY MAIL” numerically so scarce, especially at the higher levels, “AN ICE CREAM SODA” is one of the few items we that few are available to represent the United States cannot mail. Drugs, cosmetics, sundries mailed abroad and at the UN, or even to serve on examination daily to every country in the world. and selection boards and staff review panels. AFSA We Maintain “Permanent Family Prescription Records" agrees with the Ad Hoc Committee that greater justice "SEND NO MONEY" and equality towards women are an essential in the Pay only AFTER satisfactory world of today—where many other countries outdistance receipt of order. the United States in placing women in prominent political este^n tthamacy and diplomatic posts. The Deparment should keep pace —indeed it should assume leadership. Signs of changes became evident even in the first days 1665 35th Sheet, JIM. after the meeting was held. Among them are: an FSSO representative is to be included in Inspection Teams; the 'Washington, 2). C. 20007 recruitment drive for more women FSOs is being stepped up, and an improvement in staff corps housing arrange¬ ments is being worked out. But much remains to be done. Women in the FSO/R STUART & MAURY, Inc. corps point out that they are underutilized by their REALTORS slow promotions, by the unwritten restrictions on their assignments, and by their extreme difficulty in obtaining Sales • Rentals • Insurance executive positions. The FSSO corps is justifiably con¬ Specializing in Residential Properties cerned about the uncertainty of the proposed terms of their conversion to the FSRU and FSO corps. The FSS Northwest Washington • Bethesda, corps is largely ignored, by the Task Force reports and .Chevy Chase and Potomac in Maryland generally. Finally, the Foreign Service wives are prob¬ Member: Multiple Listing Service ably the most underpaid, and often the most overworked 5010 Wisconsin Avenue, N.W. group in the entire foreign affairs community. Washington, D. C. 20016 The Ad Hoc Women’s Committee has ample problems ahead, but we congratulate it on its initiative and de¬ Telephone: 537-1366 termination in bringing these important issues into focus. Let l/» Know You Sate Our Ad In The Journal

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P ROBABLY the greatest contribution of Europe to gracious about MMttjr living, aside from Clarets, bidets, les bateaux mouches, and fettucini, is the concierge. He—that great repository of all knowledge, that unexampled purveyor of all services—is simply not “dug" by most Americans. They are either afraid of him, or distrustful of his ministrations. Fools—ye know not what ye do. It's because we simply have no counterpart in this country. We have no procurer of tickets, hirer of automo¬ biles, postmaster general, arbiter of restaurants, router of trips, shopping guide, night club mavin, and social arbiter— all in one. Matter of fact, as our hotels proliferate and grow larger in the process, the manifold functions of a concierge are dissipated over more and more territory. They have all the warmth of Baffin Bay and the personal feeling of Penn THE STATE DEPARTMENT Station. Theater tickets—they’re at the desk in the lobby. FEDERAL CREDIT UNION Postage stamps? In the drug store. Papers? That’s the news is for your convenience. Use it stand. Street information? See the assistant manager. A car? to help solve those financial The Avis and Hertz desks are in the basement. Restaurants? problems. For details, see Well, what's the matter with ours in the hotel? Sightseeing? You’ll find a man wearing a tour hat on 43rd St. at Times your administrative officer. Square. Night life? Get CUE. But, if you were at Sacher’s in Vienna (and that’s a pretty TOTAL LOANS: $11,427,718 good hotel, too), you’d ask Fritz (or it may have been TOTAL SHARES: $14,999,048 Karl). Fritz is 6' A" tall, with a Franz Joseph mustache and chops. He is dressed in a bottle green great coat with brass buttons. He is the first thing you see when you enter the

-i.i;vicK JOURNAL, October, 1970 lobby—and the last as you wave goodbye. He stands there all day long, dispensing information, and more tangible things, along with consummate Viennese charm—in Ger¬ man, English, French, Italian, Spanish and assorted Balkan DESTINATION WASHINGTON? tongues! To me he was the indispensable man, the fount of Our PICTURE GALLERY OF FINE HOMES and DESTINA¬ all knowledge and wisdom. He made our weekend in TION WASHINGTON with complet* information on financing, taxes, insurance, schools, etc, plus the do's Vienna. Restaurants? Try the Staatskrieg in the alley oppo¬ and don't* of buying or renting, sent free for the site the Drei Hussaren. The baked goose liver is very good. asking. Our 75 full-time associates con provide real A hat? The best shop is in the main Platz, next to the coffee service to your family. Offices in Alexandria, Arling¬ ton, Fairfax and McLean. shop, across from the park. Schoenbrun? I’ll call you a taxi. The Cathedral? Be sure you look at the roof—better than inside! The ballet? Tonight, The Nutcracker. I’d rather try 2160 N. GLEBE Rd. La Boheme at the Opera. Nilsson is singing. Money? 600 lira Crowell Arlington, Va. 22207 & COMPANY, INC. equal 4 marks. The only mistake I made was trying to do REALTORS Phone (703) 524-3131 one thing myself. I dropped in at the palace where the famous white Lippizaner horses perform each Sunday morn¬ ing, and asked for two for Sunday. The man stared. “This Sunday? Impossible, sir.” I walked back to the Sacher. I told my problem to Fritz. “How many will you need?” quoth he, flipping a deck. Now don’t think all concierges in Europe are the equal of Fritz. But most of them know everything, speak everything, do everything, have everything. And mostly they smile and call you by name. Isn’t that worth everything, in a foreign city, among strangers? The one at Milano’s Principe/Savoia had a car at the door—the largest available in Italy, a Fiat 230, with a luggage rack and automatic transmission, in a matter of minutes. The one at Palermo’s Grande Albergo tipped us off to the rehearsals of the Philharmonic Orchestra in the Cathedral. The one in Bordeaux suggested and shipped two unneeded bags home by boat—to save egregious overweight. The one in Rome’s Marini Palace provided a white paper bell and white ribbons for an impromptu anniversary cel¬ ebration. The one in Florence scrounged up a converter for our slide projector which operates on US voltage. The one in the tiny Brussels hotel walked five blocks every night to fetch a Coke for my teenage daughter. The one at the Paris Ritz selected the correct postage and applied same to some 34 pieces of mail bound for Djakarta, Biot, Palermo, San Francisco, and New York. The one at the London Hilton sent us to tea at the Connaught until the anti-Viet demonstration had quieted down at the Hilton. About the only things we didn’t ask for—and get—from Europe’s concierges were geisha girls and a catcher’s mitt. Not that I think they couldn’t have gotten them! The impos¬ sible simply takes a few minutes longer. Then, why is it, the American’s leeriness of using these marvelous men to the full? Basically, I think it’s because they don’t know the wonders these paragons can perform. And then again, it may be that they don’t understand the concierge syndrome. They worry. In typical American fash¬ ion, they don’t ask. The unvoiced questions: Do you tip Franz-Joseph? Is he a free hotel service? If you tip, how much is right? If you tip, do you tip for each service—or at the end of the sojourn? Well, I can tell you. You bet you tip a concierge; you don’t tip each time a service is performed; you tip when you leave, the amount depending upon what special services he has performed for you. If you have been there just two or three days and he has simply done the mail bit, handed you the room keys, told you how to get to Fauchon’s, looked up two addresses in the phone book, and called four taxis; five dollars should do it. If he has, on the other hand, secured an invitation for you to the Duke and Duchess’s garden party; arranged an audience with de Gaulle; found a place to buy a Picasso sketch at an absolute give-away price; and conjured up a gigolo for Cousin Maude—then let your concierge be your guide! ■ 54 FOREIGN SERVICE JOURNAL, October, 1970 HOW WE DO OUR THING ical shins and elbows on it, and feet put to the fire by elements from page 27 reach the point where they can outside of the national security ma¬ ignore what had been a serious an¬ chinery. It is pointed out to leaders to the generation and socio-political noyance. They therefore gradually that the overall national security proclivities of the individual) by lose interest in the doctrine-cn/??- position could be greatly improved, high ideals and old-fashioned elbow program-cnm-advocacy which they and it is suggested strongly that the grease, by systems analysis and the earlier blessed, and become caught new operational and regional advo¬ rational allocation of resources, or up with other crises and with other cacies which were christened with by openness and restructuring, plus “innovations” called forth by their promises of great and miraculous dialogue and/or confrontation. current dissatisfactions. changes to come in the internation¬ What happens when the world The standard bureaucracy has al environment are not delivering. stays the same, despite the optimis¬ by now admitted the “innovations” The problem must lie in the orches¬ tic reports from the new advocacy? to the ranks of recognized bureau¬ tration of these innovations, in the And here is one of the strangest cratic advocacies, with all the rights performance of the totality of pro¬ phenomena in the government. The and privileges appertaining thereto, grams, in the allocation of resources crisis managers have been com¬ and they become for all practical between existing area and opera¬ plaining of constraint X. They have purposes immortal. The only effec¬ tional advocacies. directed that a new advocacy be tive attacks which can be made on The energies of the bureauc¬ created as an innovation to remove them must by virtue of the nature racies then are channeled into or obviate constraint X. The inno¬ of the system come from a rival various proposed improvements in vation has little or no effect in the advocacy or combination of advoca¬ the allocative process. Some of desired direction. cies, and provided that the innova¬ these suggested improvements be¬ But the crisis managers have tion has reasonably good bureau¬ come typical “innovative” new ad¬ moved in and out of the govern¬ cratic gladiators assigned to it, it vocacies, in which certain routines ment, tended to close a lid on their may well lose ground if it is unusu¬ of allocation become the key to the own consciousness of the constraint ally ineffective but will not be like¬ successful operation of the entire by virtue of the fact that action was ly to give up the ghost. battery of young and lively and old taken to handle it, and gradually in¬ From time to time the crisis and decrepit advocacies and sub¬ ternalized the constraint to the point managers and the top people in the advocacies which constitute the that they no longer bark their polit¬ standard bureaucracies have their “programs” of the United States

FOREIGN SERVICE JOURNAL, October, 1970 55- government in the national security the system from outside, there to the security of the Republic, smell field. wither quickly. out what is bothering the crisis Big careers can be made through The bureaucracy produces advo¬ managers and the form in which identifying one’s self with one of cacies designed to end or amelior¬ the crisis managers perceive it. De¬ these purportedly “rational” alloca¬ ate the environmental problems sign an advocacy and push it tive techniques. The possibility that which bother the crisis managers. through to acceptance. Identify these processes are all to some ex¬ One or more of these, dealing with yourself with it and push it as the tent equivalent to allocating the an area, operational, or allocative greatest thing since self-determina¬ flow of material through various within the bureaucracy, will be offi¬ tion or the Gatling gun. holes in the bottom of a bucket is cially blessed and sent forth to Emphasize the necessity for the never considered. The holes rep¬ join the other advocacies in the allocation of money, men, and ma¬ resent duly christened and admitted jungle for every problem which an¬ terial, under your control, to the advocacies. A rival advocacy may noys the crisis managers over a new advocacy. As it becomes bor¬ beat them over the head but never period of time. Though advocacies ing and its silhouette fades from the stab them in the heart. may moult and shed their skins, or bureaucratic horizon, start looking In sum, the standard advocate- even reproduce through a process for a new innovation. A good run- judge bureaucracy can provide akin to budding, they seldom die, of-the-mill innovation should last judges up the line, and the crisis and the jungle becomes uncom¬ any daring young man for any¬ managers as well, with an excellent fortably crowded as time goes on, where between two and five years range of alternatives and even new while the crisis managers, insofar as before it becomes just another one proposals based upon combinations they have any continuity, mistake of the animals. Once in a while of the self-perpetuating drives of their own gradual adaptation to a super-innovation may come along existing advocacies. Little is likely rough spots in the environment that will provide a lifetime career. to be overlooked, and very often with the amelioration or removal of One caution: Never try to innovate alternatives which the Deity Him¬ the problems by virtue of the inno¬ by suggesting even obliquely that self might regard as “wise” come to vative operations called forth ear¬ some duly certified advocacy be the top. But new ideas and innova¬ lier. abolished as useless. This is the one tions beyond such alternatives must If anyone wants to be known as possible thing in the book that is be triggered by the crisis managers a successful innovator, as one who unforgivable. Who knows, the idea or (usually disastrously) thrust into has made original contributions to might spread. ■

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56 FOREIGN SERVICE JOURNAL, October, 1970 More than the emblem of a nation . . .

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FOREIGN SERVICE JOURNAL, October, 1970 57 PLANS & PREJUDICES Surely I did not imagine that by curious mores, and their ingrown from page 24 reforming bureaucracies or redefin¬ suspicion of official power and gov¬ ing the purposes of educational and ernmental manipulation, without rounded and coherent international cultural exchanges the respect and eventually making a problem for cultural program. But in imagining confidence of the intellectual com¬ itself as severe as a quarrel with this, one does not focus on the munity could be won. A govern¬ organized labor. To my mind, the problems that were faced by a bu¬ ment’s general policies—its weak¬ government faced a fundamental reaucracy trying to divvy up bu¬ ness for unilateral military inter¬ issue, and its approach to interna¬ reaucratic property. It needed vention, for example—can do more tional educational and cultural definitions that would clearly mark to alienate international intellectual affairs was part of that issue: Would out the different jurisdictions of the opinion than the best-devised pro¬ it push the intellectual and educa¬ two new agencies and leave no grams in educational and cultural tional world still farther away from room for evasion. Whether a ra¬ affairs can repair. But it did seem it, or would it find ways to give that tional program could be developed to me that if educational and cul¬ world a sense that it might partici¬ in terms of such definitions was a tural affairs were properly orga¬ pate in public enterprises it respect¬ secondary question. nized, a center of initiative and a ed? On the answer which the This, then, was the practical situ¬ point of view might emerge in one American government gave to that ation which I hoped to do some¬ area of foreign policy whose influ¬ question I thought that rather large thing to correct by entering the ences might spread to other areas. consequences rode. A government government. If it was not an impos¬ At the very least, the government which antagonizes its intellectual sible situation in which to introduce had the opportunity, in the field of constituency ends not only by mak¬ a new conception of educational educational and cultural affairs, to ing a problem for itself. It ends by and cultural diplomacy, it was a begin to redress its relations to peo¬ deepening the gulf between intel¬ quite difficult one. And the under¬ ple without whose support the lect and power, between “the sys¬ lying issue posed by this situation country could not be governed tem” and its watchmen and critics. transcended mere considerations of well. It thus helps to freeze the society it administrative efficiency and ra¬ governs into self-distrust and self¬ tionality. It had to do with the The government could not in¬ alienation. The chance to do some¬ general drift of American foreign definitely continue to treat intellec¬ thing to resist such a process or to policy, and with the relation of the tuals, scientists, artists and educa¬ reverse it seemed to me a substan¬ government to the intellectual com¬ tors simply as people to be used; it tial reason to enter the government. munity. could not persist in ignoring their ■

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Orders for APO & FPO ■ Add $2.00 per item for Parcel Post, Insurance and Handling Charges by the fact that we have a Bureau of the recent exam. Administration and a number of jobs This does not mean that less titled Administrative Officers into be¬ qualified candidates are being brought lieving that a field of sophisticated into the Service. It simply means that management administration actually it is harder to pass the oral examina¬ exists in the Foreign Service. I doubt tion this year than when Mr. Marks it. What we do have is largely what entered the Service. industry calls office management. Pri¬ There is evidence, including a mas¬ vate industry does not hire highly sive study by the distinguished Dr. qualified MBAs to perform this func¬ Kenneth Clark, that the Oral Panels tion, and will not the “highly qualified make a more significant judgment of MBAs” we are hiring become some¬ an applicant’s qualifications for the what disenchanted when they learn Foreign Service than does the Written the reality of Foreign Service admin¬ Examination. With that in mind, we istration? It seems to me we are put- doubled the number of candidates to ing ourselves in a position where we appear before the Oral Panels this JOHN Statesman's letter in the May accept administrative candidates who year. Among that group were 105 FSJ, commenting on Ambassador will either be over-qualified for their applicants for the Administrative Kohler’s previous letter, was as inter¬ specific work or under-qualified for “track.” Their scores on the written esting for what it left out as for what the general needs of the Service. exam ranged from a high score of 89 it included. Actually there are few As for consular work, T always to the passing grade of 70. observers around who argue that can¬ though it was generally conceded a Seven of those Option B (Adminis¬ didates will not present themselves for “good thing” to have eliminated the trative) candidates from last Decem¬ special-option entrance examinations distinction, often invidious, between ber’s examination have already been for the Foreign Service. The question, diplomatic (i.e. political) and consu¬ commissioned—a pleasant change of or rather questions, are more funda¬ lar officers back in the 1920s when pace from the days when candidates mental. we created a combined Foreign Serv¬ waited two or more years. They had The first relates to the quality of ice. That example was good enough written examination scores of 83, 82, the candidates for at least the admin¬ for most other countries to follow. 81, 79, 79, 79 and 73, hardly a weak istrative and consular cones. Despite Now it appears that we are returning showing. Mr. Stutesman's use of several MBA to that previous division. Their experience and educational candidates as examples, there are very In fact we appear to be creating out backgrounds include: B. A. ’68 (His¬ strong “rumors” around the Depart¬ of one, four new services. I realize tory) Johns Hopkins, MBA '70 Uni¬ ment that in fact the performance of that the stated purpose of the cone versity of Virginia; B. A. ’70 (Admin¬ administrative cone candidates on the system is not to divide but I do be¬ istrative Management) Temple Uni¬ last written examination was so poor lieve a little sober reflection will re¬ versity; B.A. ’62 (Political Science) that the passing grade had to be low¬ mind us that objective differences di¬ cum laude North Texas State, M.A. ered in order to obtain sufficient num¬ vide, they do not join. Under the new ’64 (Political Science) Pennsylvania bers of successful administrative can¬ cone system, we are not only intro¬ State, U. S. Navy (64-69); B.S. ’65 didates to interview. ducing the basic element of the old (Business Administration) Marquette, A second question relates to consular-diplomatic division, but we with emohasis on accounting, U. S. whether ©r not candidates, regardless are also re-introducing aspects of the Army Finance Officer (66-68), Audi¬ of their personal virtues and inclina¬ separate commercial officer service, tor, Inland Steel Company, Comptrol¬ tions, should be permitted to make and even something of the recently ler another company; B.A. ’62 (Gov¬ career decisions of that magnitude be¬ discarded British “A” and “B” officer ernment) cum laude Dartmouth: fore they have any experience on system. MBA ’70 (Business Administration) which to base the decision. Many feel That is the real danger of the new honors thesis on development that the answer is obviously no. cone system. It introduces organiza¬ economics of North Africa, New The third, and possibly most funda¬ tional subdivisions and greater com¬ York University, U. S. Army mental, question pertains to the plexity into the Foreign Service under (62-65), Continental Can (65-69); "needs of the Service” rather than the the guise of attacking alleged bureau¬ B.A. ’69 (International Studies) cum desire of the individual. It is quite un¬ cratic rigidities and failings. The logic laude American University, Assistant derstandable that some substantive of¬ of this approach escapes me. to Dean, Management Intern, De¬ ficers would like to eliminate the need EDWARD MARKS fense Department (69-70); B.A. ’68 to ever perform some of the more Washington (History) cum laude Dartmouth. mundane responsibilities of the For¬ MBA ’70 Columbia. eign Service, in particular the house¬ and Riposte This is pretty good evidence that we keeping chores. But is it really desir¬ are not bringing into the Foreign Serv¬ able for an organization to operate in T HANK you for the opportunity to ice Officers Corps mediocre material that manner? Do we really want to comment upon the accompanying let¬ under Option B. Mr. Marks could also categorize officers from the very be¬ ter from Edward Marks, simultaneous consult with PER/CMA and with the ginning, thereby inevitably limiting with its publication. Otherwise, the Geographic Bureau Executive Officers their perspective of themselves, their readers of the IOURNAL would have to to confirm the strong interest in the careers, and the organization. For re¬ follow our argument like a slow mo¬ talents of these new recruits who pro¬ gardless of what the regulations on tion tennis match of serve and re¬ pose to work in the Administrative the new cone system say, this is what sponse over a period of months. “track.” will happen. It is no rumor that more FSO Mr. Marks goes on to wonder The question is particularly perti¬ candidates passed the written exami¬ “whether or not candidates . . . should nent in respect to the administrative nation last December than ever be¬ be permitted to make career decisions and consular fields. There are those fore. About one thousand are usually . . . before they have any experience who believe we have become bemused passed. About two thousand passed on which to base the decision.” The

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FOREKIN SERVICE JOURNAL, October, 1970 61 answer lies in the reply to his third during the fifties. I suggest that AFSA ations review Task Forces whose rec¬ question concerning the management give due consideration to this problem ommendations I have just tried to of our personnel system. Personally, I in the reasonable future before we are read seem to me to fail seriously in at believe that the Office of Personnel all caught short. least two respects: they do not pro¬ can conduct a “track” system in a way A. IRWIN RUBENSTEIN pose an evaluation in depth of the real which engages with the needs of the Montevideo work to be done by the Department Service, while giving appropriate con¬ EDITOR’S NOTE: The A ESA Board aiul (an evaluation best made in my opin¬ sideration to the preferences of the appropriate committees have been giving ion by management experts and for¬ officers and their developing capabili¬ many hours of study to this problem, eign affairs specialists recruited from ties. The Task Forces have been study¬ particularly as it relates to E.O. 11491, the universities, industry and efficien¬ ing these issues intensely and it is best Labor-Management Relations in the Fed¬ cy minded Federal agencies like the to leave lengthy commentary to them. eral Service. Members should refer to The main purpose of this letter is to 3 FAM 630 or USIA’s MO A V-B-315, Bureau of the Budget); and they do present, proudly, the fact that we are and JFSOC’s discussion in the June and not propose that the Department, at attracting and are promptly commis¬ August issues of the AFSA NEWS. this relatively late date, adopt the full range of modern management tech¬ sioning young Americans of excep¬ Rx for Reform tional quality whose first interest in niques and procedures. In short, the the Service is in administrative- Task Forces have treated the symp- management. THE Department of State is not a loms of our out-datedness in detail but perfect instrument and the raising of JOHN H. STUTESMAN, JR. failed to diagnose and prescribe for the Executive Director, questions about ends (what is there for us to dol) and means (how best disease from which the symptoms Board of Examiners for originate. Foreign Service can we go about doing it?) should be ANDREW D. SENS Washington a continuing practice and at the mo¬ ment is fearfully overdue. The recent American Vice Consul organization, management and oper¬ Bordeaux AFSA Helped

Asa result of my recent reassign¬ Life and L^ve in the Foreign Service By S. I. Nadier ment to Washington, I did some shop¬ ping among area dealers for a Dodge Dart. While proceeding through this painful exercise, I came across a piece of AFSA literature noting that mem¬ bers could purchase cars through the United Buying Service at $100 over cost. Pursuing that avenue, I was able to buy a Dart at $125 under my best previous offer, and this from one of the more highly regarded dealers in the area. Your assistance is most appreci¬ ated. WILLIAM C. BUSCH Alexandria

Strategy for the ’70s

I should like to call to your attention, and that of your readers, the June 21 Mike Causey column in the WASHING¬ TON POST. Causey talks about the seri¬ ous problems facing the employees of the Federal Government in the com¬ ing decade: mainly, the fact that pay raises will be fewer, farther between and probably smaller in size when they come than has been the case during the sixties. This will be due to many reasons, not the least of which is the fact that, with the creation of a private corporation to run the postal system, we can no longer free-load on the strength of the postal workers’ bargaining abilities and political mus¬ cle. We of the State Department and of the rest of the Federal bureaucracy will have to develop a salary strategy and a bargaining strategy for the sev¬ enties or we will find ourselves in the same sad salary plight we were in “Honest! It’s the first time I’ve played ‘Hawk and Dove’! But I like it."

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