FOREIGN SERVICE JOURNAL JUNE 1973 60 CENTS

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COLIC/)!- OK ^W^BIUTATte/v w© nCTN N 1973 Lincoln Continental

Summitry 73 by Ford.

The fine art of summitry has seldom been In the New York area, contact Diplomatic practiced with such authority as by the 1973 Sales, Ford Export Corporation, Ford Motor Lincoln Continental and the Ford LTD. Company, 153 Halsey Street, Newark, N.J. Each is a leader in its own realm. The 07102. Telephone: 643-1900. From New Lincoln Continental . . . the final step up York, telephone: 964-7883. around the world. The Ford LTD .. . a better idea in luxury and quiet. Both are available at exceptional savings when you exercise your diplomatic discount privileges as a member of the U.S. Foreign Service. Order now. Save now. Arrange delivery stateside or overseas. For full information: 1973 Ford LTD Brougham

In the Washington area, contact FORD • TORINO • THUNDERBIRD • MUSTANG • MAVERICK Diplomatic Sales, Ford Motor Company, 9th • PINTO • MERCURY • MARQUIS • MONTEREY • MONTEGO • COUGAR • COMET • LINCOLN CONTINENTAL Floor, 815 Connecticut Avenue, N.W., • CONTINENTAL MARK IV Washington, D.C. 20006. Telephone: 298-7419.

All 1973 cars must meet Federal Emission Standards before sale. See your Ford Dealer for details. American Foreign Service Association

DAVID H. McKILLOP, President PRINCETON LYMAN, First Vice President HORACE G. DAWSON, JR., Second Vice President

Board of Directors THOMAS D. BOYATT, Chairman F. ALLEN HARRIS, Vice Chairman BARBARA J. GOOD, Second Vice Chairman DAVID W. LOVING, Secretary-Treasurer JOHN J. TUOHEY, Assistant Secretary-Treasurer HERMAN J. COHEN JAMES L. HOLMES, JR. WILLIAM R. LENDERKING, JR. LINDA LOWENSTEIN W. A. WHITTEN FOREIGN SERVICE JOURNAL Journal Editorial Board JUNE 1973: VOLUME 50, NO. 6 TERESITA C. SCHAFFER, Chairman RALPH S. SMITH, Vice Chairman FREDERICK QUINN HARRIETT S. CROWLEY EDWARD M. COHEN JOEL M. WOLDMAN G. RICHARD MONSEN ERIC GRIFFEL

Staff

GERALD BUSHNELL, Executive Director HELEN VOGEL, Committee Coordinator ELOISE JORDAN, Scholarship Aide Dynamics of Development IS C. B. SANNER, Membership and Circulation JOHN A. HANNAH Foreign Service Educational Center CLARKE SLADE, Director

Employment and Income Distribution: Journal Considerations for Development 16 SHIRLEY R. NEWHALL, Editor EDWIN COHN AND JOHN ERIKSSON MclVER ART & PUBLICATIONS, INC., Art Direction

Advertising Representatives

Busting Our Mental Blocks on Foreign Aid 19 JAMES C. SASMOR, 230 Riverside Dr., New York, N.Y. 10025 JAMES FALLOWS (212) 850-2100 ALBERT D. SHONK CO., 681 Market St., San Francisco, Calif. 94105 (415) 392-7144 JOSHUA B. POWERS, LTD., 46 Keyes House, Dolphin Sq., Communications re: London SWI 01-834-8023/9. International Representatives. Promotion and Assignment 6

©American Foreign Service Association, 1973. The Foreign Service Journal is published twelve times a year by the Amer¬ ican Foreign Service Association, 2101 E Street, N.W., Wash¬ ington, D. C. 20037. Telephone (202) 338-4045

Second-class postage paid at Washington, D. C.

DEPARTMENTS The FOREIGN SERVICE JOURNAL is the journal of professionals in foreign affairs, published twelve times a year by the American For¬ Editorials 2 eign Service Association, a non-profit organization. Material appearing herein represents the opinions of the writers and is Special Book Essay: not intended to indicate the official views of the Department of State, A Giant of the Foreign Service 24 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 Bookshelf 25 the professionals in foreign affairs overseas or in Washington, as well as to persons having an active interest in, or close association with, Letters to the Editor 35 foreign affairs. Membership dues are: Active Members—Dues range from $13 to $52 AFSA News 37 annually depending upon income. Retired Active Members—Dues are $30 annually for members with incomes over $15,000; $15 annually for less than $15,000. Associate Members—Dues are $20 annually. For subscription to the JOURNAL, one year (12 issues); $6.00; two years, $10.00. For subscriptions going abroad, except Canada, add $1.00 annually for overseas postage. Articles appearing in this journal are abstracted and indexed in Historical Abstracts and/or America: History and Life. Microfilm copies of current as well as of back issues of the FOREIGN SERVICE JOURNAL are available through the University Microfilm Li¬ brary Services, Ann Arbor, Michigan 48106 under a contract signed COVER: Semi Antics, suggested by Edward M. Cohen October 30, 1967. very concerned about the State conversions. We recently PSJ EDfTDRIAL wrote to Director General Hall, who has to date stead¬ fastly defended the career principle, reiterating our strong concern that the FSRU program not provide a “backdoor STATE PROMOTIONS entry” into the career service for political appointees. Specifically, we asked that FSRU appointments be strict¬ ly limited to bona fide specialists and former Civil Serv¬ IF the current State officer rates of promotion are sus¬ ice careerists. We hoped that the Director General would tained over time, the average times-in-class will be as adopt these proposals to govern career FSRU appoint¬ follows: ments. Unfortunately, he has not. Entry as 0-7 at age 27 The Director General’s reply left the door open for 0-6 at age 29 2 years the appointment of FSRU generalists—a contradiction in 0-5 at age 32 3 years terms: 0-4 at age 38 6 years “While it has been the intention from the beginning 0-3 at age 48 10 years that the (FSRU) program should be primarily for spe¬ 0-2 at age 60* 12 years cialists, we have always recognized the likelihood that 0-1 at age 71*11 years some participants would have the skills of a generalist, An FSO entering the Service at age 27 would make possibly in addition to their skills as specialists.” (Loop¬ FSO-3 in 21 years at age 48, and wo,..ld be separated holes emphasized). from active duty at age 52 for 20 years time-in-mid¬ The Director General has rejected our proposal that an AFSA representative participate in reviewing the career. If these rates are sustained, few FSOs will have a chance of making 0-1 or 0-2, and a rather large num¬ qualifications of FSRs applying for conversion to FSRU status—a proposal designed to have AFSA share the ber will not make 0-3. We have not yet reached this point, of course, but we will if these low promotion political heat of saying “no.” Before we can appeal this matter to the Board of the Foreign Service, it will be rates are sustained. The situation for other pay plans is too late. The major conversion decisions will by then no more encouraging. have been made by the Director General and the Di¬ In announcing the recent promotion list, the Depart¬ rector and Deputy Director of Personnel. ment appeared to take considerable pride in the fact AFSA will establish, in time, a procedure guaranteeing that the total number of FSO promotions was up con¬ that career status in the FSRU program is offered only siderably over the previous two years. The Department to those specialists for whom the program was designed. was not quick to point out that much of this increase Unfortunately, we may close this “backdoor” after the was attributable to the growth of the Corps due to the horses are in the barn. Until then, the Service must count conversion of FSSOs to FSO, and that the relative in¬ on the Director General, his staff, and ultimately on the crease was much smaller. Nor did they mention that they seventh floor principals, to insure that the FSRU pro¬ took into account the relatively large number of people gram is not abused. Mary Olmsted, Bob Brewster and facing selection out, but who were not selected out. Al¬ Bill Hall will be under extreme pressure to grant political though we are glad that total promotions are up—the FSRU appointments. It is up to all of us to place counter¬ fact that the previous two years were even worse does vailing pressure on them to defend the career principle. not make this year’s unacceptably low rates any better. In the midst of all this, the Department has announced a program which will substantially downgrade the level of jobs. The Department has constantly refused to con¬ sult with the Association on this ill-considered proposal, but has “assured” us that the effect of this down-grading will only somewhat depress promotion opportunities. Frankly, we think they are already pretty depressing. "Note: “Only the above average officer passes over the senior threshold!”

BACKDOOR ENTRY INTO THE CAREER SERVICE?

URING the last year this Association has repeatedly and strongly expressed its view that politically appointed FSRs should not be granted career status as FSRUs. AFSA supports granting career tenure in State and USIA to bona fide specialists with needed skills and former Civil Service careerists. We have been briefed by State and USIA managers on the upcoming conversions to FSRU. USIA has adopted tight specialist criteria for their program; but we are

2 FOREIGN SERVICE JOURNAL, June, 1973 VACATION HOME SITES AND PRIVATE CAMPING SITES

Values constantly rising on these vacation home sites. A beautiful wooded lot high in the Allegheny mountains can be yours.

A new section of permanent camp sites has been developed and choice sites adjoining Dutch Run

are now available. Just 31/2 hours from D.C. and well above the Eastern Seaboard humidity and smog, adjoining Prince Gallitzin State Park, with its six thousand acres of parkland and a 1,700 acre lake. Swimming, skiing, sailing or fishing—you can have the whole thing. Make plans now to see this hitherto undiscovered area of the Alleghenies and select your site for home leave and retirement. Central sewer and water systems assure preservation of the ecological balance.

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D □ TRAILERS Coverage Mandatory with House Trailers (Thir d party covera ge is au tomatic illy provi ded on tility tra lers— free of extra charge) Bodily injury $25,000/50,000 Property damage $5,000 $13.00 $15.00 $18.00 $20.00 $22.00 $26.00 $28.00 $30.00 $34.00 $36.00 $39.00 OPTIONAL DAMAGE TO ALL TYPES O FTRA 1LERS E □ COMPREHENSIVE—$25 Deductible $1.00 per $10 OOF D 4SURE D VALL E-SUBJ ECTTC ADJUS TMENT FOR S HORT TERM -MINI MUM 2 5% OF /VNNUA L PREM IUM FD FIRE ONLY— $.50 p er $10C OF IFJSURE D VALL IE—SUB IECT T< 3 SHOR T RATE TABL E OR 2 5% OF ANNlJAL PRI 3MIUM G □ THEFT ONLY—$25 Deductible $.10 p er $ 10C OF IFJSURE D VALL IE—SUB IECT T<3 SHOR T RATE TABL E OR 2 5% OF ANNL AL PRE MIUM H □ COLLISION—$ 100 Deductible $1.50 per $10 0 OF IF1SURE D VALU E

AIU AUTOMOBILE INSURANCE APPLICATION (Completed information must be accompanied by check and/or IMPORTANT: This must be completed. FSO 63 money order for full premium (U.S. Dollars) and mailed to AIU, Investment Bldg., 1511 K Street, N.W., Washington, D.C. 20005) Date of Birth Occupation Name of Applicant Make and Model of Motorcar Value Overseas Address. Year of Manufacture Motor-Serial No Mail Policy to —— Name and address of Mortgagee, if any Effective Date of Insurance Term days Coverages: A B C D E F G (circle coverages desired)

Has any insurance company or underwriter declined to accept or refused to renew your insurance? if yes, give particulars on separate sheet. (yes or no) Have you or any other persons or members of your household who will drive your car had any accidents during the past two years? if yes, give particulars on separate sheet. (yes or no) Do you plan to travel in Canada? (yes or no) Signature of Applicant Date J rests are inherently and manifestly incapable of provid¬ COMMUNICATIONS ing a fair and rational basis for this kind of fine tuning. They may serve validly to identify a handful of truly out¬ standing officers who are doing consistently superior work RE: or, on the other hand, to single out those few officers whose performance is clearly sub-standard. However, they cannot and should not be expected to provide the evidence on which one officer is ranked, for example, 32nd in his class while another is ranked 33rd. The most PROMOTIONS that could properly be asked of the Boards, beyond an identification of the extremes, is that they specify which officers, on the basis of their records, are presently pro- and motable and which are not. Facing an unreasonable requirement, the Promotion Boards now have no choice but to “read between the lines” of evaluations and search for any nuance that will ASSIGNMENTS provide them with some basis, however tenuous, for mak¬ ing the choices between individual officers which the sys¬ tem forces on them. In such a situation it is unavoidable that nuances and distinctions are drawn which are in¬ T HIS is in response to your request for comments on vidious, and often never intended by the rating officer. the Foreign Service promotion system. Moreover, the writing ability and style of the rating of¬ The fundamental flaw in the Foreign Service promo¬ ficer, as well as the time and effort he is able to devote tion system is that it forces Promotion Boards to make to the evaluation, tend to become critical, although discriminations for which they have no proper basis. The quite illegitimate, factors affecting the ranking process. other shortcomings and inequities that are so apparent The grade and status of the officer also become a sig¬ and widely commented on are for the most part the in¬ nificant factor under these circumstances. evitable consequences of this pernicious requirement The “problem” is simply that nearly all Foreign Serv¬ that the Boards rank officers numerically in pre-deter- ice officers perform well and effectively, and their per¬ mined upper and lower percentiles. formance evaluations reflect that fact, albeit with vary¬ The performance evaluations on which the system ing degrees of eloquence. To ask a group of people with- Asense of security, once you've arrived. Security has been helping government families make their way around the world since 1890. The move immortalized here was from Washington to Shanghai in 1948. A more recent tradition is insured security once you’ve arrived. Our Government Service Policy covers household and personal effects against fire, theft, mysterious disappearance, windstorms, floods and breakage during your stay anywhere in the world. (When the Ambassador to Haiti's home burned in Port-au-Prince several decades ago, our check for his entire valuation was in the mail be¬ fore the smoke cleared.) The annual premium is the same, whether you’re in Madagascar or Madrid. Worldly goods valued at $10,000 would be covered at a rate r $130 per year (and lower to AFSA members.) The policy can cover insurance in transit and a separate all¬ risk auto transit policy is also available. For specific rate information, please contact our Insurance Department. £rrupit{) j&OFagp (jompang of UJashinghon MAIN OFFICE: 1701 Florida Ave. N.W., Wash., D.C. 20009 PHONE: (202) 234-5600 / MARYLAND: Bethesda - Chevy Chase,Marlow Heights,White Oak/VIRGINIA: Alexandria, McLean/PHILIP LARNER GORE, President.

6 FOREIGN SERVICE JOURNAL, June, 1973 Thanks to these people and 427988 others, 1972 was a great year.

People like Hernando Blanco, Consolidated income for the year, demand for our telecommunications Peter Brinkerhoff, Pushpalata Chakra- before extraordinary items, rose equipment, principally in Europe, varthula, Tad Dmochowski, Mar¬ to $477 million, a gain of 12 percent, and also to gains in the financial serv¬ garet Cyumolcs, Ray Holloway, Henri compared with restated 1971 in¬ ices areas, including The Hartford Lellouche, Maureen Monahan, Aida come before extraordinary items of Group. Other areas of strength includ¬ Olivo, Arthur Schmitt, Anna Shek and $427 million. ed worldwide communications Grace White. operations, consumer products and The efforts of our 428,000 people, Telecommunications and financial natural resources. worldwide, made 1972 the 13th con¬ services were areas of strength. If you would like a copy of our 1972 secutive year of new records in Annual Report, write: Director of sales, income and earnings per share. This income was equal to $3.80 per Investor Relations, International Tele¬ share on an average of 124 million phone and Telegraph Corporation, Worldwide sales and revenues common and common share equiva¬ 320 Park Avenue, New York, N.Y. 10022. lents outstanding, an increase of 11 lor 1972 reached new highs. percent over 1971 per share earnings of $3.43 on 123 million shares Total worldwide sales and reve¬ outstanding. nues for 1972 reached a new high of approximately $8.6 billion, an in¬ The financial results for 1971 have crease of 12 percent over restated been restated to include the opera¬ 1971 sales of $7.7 billion. tions of companies acquired in "pool¬ In addition, finance company ing of interests" transactions revenues and insurance premiums in 1972. earned increased last year to $1.7 We attribute much of the improve¬ billion, up 14 percent from $1.5 bil¬ ment in sales and earnings for ITT lion in 1971. 1972 to continued strong worldwide SERVING PEOPLE AND NATIONS EVERYWHERE out direct knowledge of the officers concerned to dis¬ criminate between them to the extent now required on the basis of those evaluations, invites injustices and, quite frankly, is absurd. travel-pale An understanding of the nature of the fault in the current system points one toward the solution. What is needed is a system that rewards truly outstanding per¬ Personal Effects & formance with rapid promotion, identifies clearly sub¬ standard officers, and provides for steady and measured Liability Insurance for progress up to their highest level of competence for the People Living Overseas great majority of Foreign Service officers who fall in neither extreme. It is quite possible to design such a sys¬ tem which would operate fairly and equitably without Whether you’re coming— It you aren't making unrealistic demands of the Promotion Boards. going—or living overseas, protected now, I will propose an outline for such a system. TRAVEL-PAK is an insurance you should he. Under my proposal, the Promotion Boards would be policy specifically for you. For more asked to do several things. First, they would select the information, few truly outstanding officers in each class and recom¬ TRAVEL-PAK protects contact us today. mend them as an unranked group for immediate pro¬ against property loss under motion. Within broad limits, the number of such officers almost any circumstance, selected would depend only on how many such clearly including: outstanding officers can be identified on the basis of ade¬ Breakage - Fire - Theft - quate and unequivocal evidence. (It would be conceiv¬ able, although unlikely, that for a given class in a par¬ Shipping or Storage Loss - ticular year, no officers would be selected in this cate¬ Denting or Chipping - gory.) I would suggest as a guideline that the expected Pilferage - Explosion - numbers of outstanding officers be set at something ap¬ Vandalism - Natural Disaster proaching five percent of the class, with eight percent And, the annual premium representing an upper limit which would rarely be is about what you would pay reached. for shipping insurance alone. The next step would be for the Board to identify those officers whose performance has been clearly and In addition, TRAVEL-PAK consistently sub-standard. Again, there should be no provides up to $100,000 arbitary quota, and the possibility should be allowed protection against liability for in any given class and year, that no officer would fall suits resulting from bodily into that category. As a general guideline, it would be injury, property damage, appropriate to indicate to the Board, without binding pet's liability and much more. them in any way, what experience has indicated would be the expected upper and lower limits of this category (e.g., 2% to 8% of a class). (I want to emphasize that I do not advocate sum¬ marily dismissing those in this lowest category. There are ways of dealing with sub-standard performance which protect both the Service and the rights of the individual. The affected officer should certainly have the right to a To: James W. Barrett Co., Inc. hearing before any adverse action is taken. Should an IQI 1140 CONNECTICUT AVENUE independent hearing body confirm the judgment of the ©I WASHINGTON, D.C. 20036 • U.S.A. Board, there are a number of actions short of dismissal which properly could be taken depending on the particu¬ Please send me your free brochure on Travel-Pak. I lar circumstances involved: demotion to a lower rank at understand there is no obligation and no salesman will which he may have performed satisfactorily, withdrawal call. of clearance for overseas assignments, transfer to an ap¬ propriate GS or FSS assignment for which he is deemed qualified, early retirement at a reduced annuity—to name NAME a few. An employee should be dismissed fi e., “selected out”l only for cause and after due process has been ADDRESS granted.) As a final step, the Board would divide the remaining ZONE OR ZIP officers in each class into two categories: those fully qualified and ready for promotion to the next grade level COUNTRY and those who are not currently recommended for pro¬ Telephone (202) 296-6440 motion. There would be no arbitrary percentiles speci¬ fied. The Board would simply be asked to look at the

8 FOREIGN SERVICE JOURNAL, June, 1973 YOU CAN’T HIDE FROM ACCIDENTS! but.. .

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City State ZIP evidence in each officer’s file and make a judgment on BOARD COMMENT: AFSA has received a number of similar whether the officer was promotable at that time. How proposals. Recognizing the limitations of the efficiency re¬ many fell into one category and how many into the other ports, a general mid-career consensus appears to be emerg¬ would be solely a function of the Board’s judgment re¬ ing towards some form of seniority or seniority plus “water garding the qualifications for promotion of the individual walker” system. The basic question of the paucity of the officers in the class. promotion lists is not met by these simple proposals. (See The officers selected for inclusion in the outstanding editorial.) category would all be promoted. To the extent openings permitted, additional promotions would, on the basis of seniority, go to those officers certified by the Boards as To add spice to the current debate on the promotion promotable. and assignment process, I want to throw out a radical The promotion system I have described would be quite proposal—that the present hierarchical structure of the compatible with the threshold review concept at the inter¬ Foreign Service be scrapped altogether. In its place, I mediate and senior levels. It could also be applied on a would propose a simple system along the following lines: “functional cone” basis; however, I would hope that the Divide FSOs into three basic groups: trainees, oper¬ promotional system will soon be relieved of the burden ational officers, and executive officers. The FSO class of using promotions to reshape personnel skill patterns system would be abolished, to be replaced by automatic in response to shifting views of the Service’s requirements salary increases based on length of service. Greater use for various kinds of functional expertise. This is properly of merit increases could serve as an incentive for out¬ the function of the recruitment, training, and assignment standing performance. processes. (The selection of Promotion Board members Restructure jobs at posts, abolishing all hierarchical and the drawing of precepts for them are quite adequate distinctions below the level of chief of section. Each tools to assure that appropriate consideration is given to operational officer would be solely responsible for a performance in functional fields in which the Service cur¬ given area of work, and all operational officers would rently places high priority.) In the final analysis, a For¬ have equal status within the Embassy. Assignments eign Service officer serves where he is told and does the would be based on relating the interests and abilities of kind of work he is assigned. A fair and equitable promo¬ the officer to the job to be done. Even under this system, tion system must be concerned primarily with how well some jobs would, of course, be more interesting than he performs his assignments. others. Competition for the better jobs would provide an RICHARD J. SMITH (Continued on page 30)

Please send my complimentary copy of The Washington Monthly with James Fallows' "The Foreign Service as IF you liked Mirror of America" and enter my subscription for 6 months for $5 "BusriiMq OUR MENTAI Blocks (a total of 7 issues). Enclose payment with your order and get an extra month free, 8 issues in all. AbouT FOREK,IN Aid” □payment enclosed Dplease bill me in this issue of The Foreign Service Journal, you’ll also want to read James Fallows’

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10 FOREIGN SERVICE JOURNAL,, June, 1973 F0REICI1 SERVICE RRD IJSin OFFICERS SAVE HIOREV UIITHIISHR mSURRHCE. USAA Insures Homes, Household ity, and Boatowners policies offer Goods, Automobiles, Personal worldwide coverage. Auto insur¬ Possessions, Boats, your Personal ance is available in many foreign Liability, and your Life*. And for countries. As a career Ambassador less money than most other com¬ or Minister, or commissioned offi¬ panies. Initial premiums are low. cer in the Foreign Service or U.S. Dividends (not guaranteed, but Information Agency, you are eligi¬ paid every year since 1924) make ble to apply for insurance. Once the cost even lower. you have a policy with USAA, you Most of USAA’s coverages follow are always eligible to apply for right along with policy¬ more insurance at any holder-members when time, even if you leave they go overseas. House¬ the Foreign Service. Use hold Goods, Personal the coupon to request in¬ Articles (for expensive formation on USAA’s cameras, furs, silver¬ policies. ware, jewelry, and similar -THROUGH A WHOLLY OWNED items), Personal Liabil¬ USAA SUBSIDIARY OF USAA.

SEND INFORMATION FOR INSURANCE CHECKED BELOW

UNITED SERVICES AUTOMOBILE ASSN. (Available only to Career Ambassadors, Career (A reciprocal interinsurance exchange) Ministers, and commissioned officers of the For¬ t s □ Automobile eign Service and the United States information □ Household Goods and Personal Agency, including those who are retired.) Effects — Worldwide (clothing, china, 3134 cameras, golf clubs, etc.) □ Comprehensive Personal Insurance PLEASE PRINT OR TYPE WITHIN SPACE BELOW (Liability) □ Renters Insurance (combination Household Goods and Comprehensive Personal Insurance.) □ Personal Articles Floater Full Name Personal Rank and Class* Soc. Sec. No. (Expensive single items —jewelry, furs, art, etc.)

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Allied Perils USAA Building, (STATE) USAA LIFE INSURANCE CO. Area Code Phone Number USAA Membership No. San Antonio, (A wholly-owned subsidiary of USAA) (If Stateside) □ Not a USAA Member □ Life Insurance *R and S Classes not eligible unless holding a Texas 78288 Date of Birth Presidential commission Day Month Year (Life ins. not available in Ohio) (There is no obligation) The American Foreign Service Protective Association ANNUAL REPORT FOR THE INSURANCE YEAR ENDED FEBRUARY 28, 1973

1. OPERATIONS As of March 1 1972 1973 Members carrying Group Life 2998 2985 Group Life in Force $80,760,775 $79,142,225 (inclusive of Reversionary) Enrolled in Foreign Service Benefit Plan 9339 9576 Claims paid during year: Group Life, Number 34 24 Amount $ 602,875 $ 396,250 Family Coverage, Number 14 16 Amount $ 43,000 $ 42,600 Accidental Death, Number 1 2 Amount $ 17,500 $ 35,000 Foreign Service Benefit Plan $ 2,168,558 $ 2,639,009

The Association has been able to continue its remarkable 50% Reversionary rate for the insurance year beginning March 1, 1973.

Benefits under the Foreign Service Benefit Plan have been im- proved to include 100% semi-private hospitalization for 365 days instead of 120 days and material increases in dental-surgical bene- fits.

THE BOARD OF DIRECTORS: David D. Newsom, President Archer K. Blood, Sec.-Treasurer Waldemar J. Gallman, Vice President Fraser Wilkins, Director John M. Steeves, Director

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UNITED STATES OF AMERICA 'iliii» Dynamics Development DR. JOHN A. HANNAH

T. key to bettering the human ty. Their numbers are growing. condition and achieving lasting peace This situation appeals starkly to in the world may lie in the develop¬ traditional American sympathies. But ing countries. it is more than a moral dilemma. There are more than 100 de¬ It is a major determinant of the veloping nations. They contain 70 kind of world in which the United percent of the world’s population States must seek its own destiny. and occupy two-thirds of the earth’s Peace cannot be sustained in condi¬ land. tions of social upheaval or a These countries have made sig¬ growing confrontation between rich nificant progress in recent years. and poor. During the past decade their Equally important, the United economies grew at an average rate States and the other industrial coun¬ of just under six percent per year. tries are linked to the developing In the last ten years they have countries by considerations of trade, increased by 36 percent. Average investment, and critical resource life expectancy has continued to im¬ needs. We share with them a com¬ prove and reached 57 years in mon interest in an open internation¬ 1971. In the last decade, the de¬ al economic system in which all veloping countries have progressed Dr. John A. Hannah, who now holds the nations benefit from an increased faster than the developed countries record for length of tenure as Adminis¬ trator of AID, served for 28 years as flow of good and services. did at comparable time periods in President of Michigan State University. For example, US imports of their history. His interest in the foreign aid program energy fuels and minerals are ex¬ Commendable as this progress dates back to 1949 and the beginning of pected to increase from $8 billion may be it is only a silver lining the Point Four Program. At that time he in 1970 to more than $31 billion within some very large clouds. served President Truman for two years on the International Development Advis¬ by 1985—a fourfold increase in The common condition of the de¬ ory Board. He has also held other presi¬ only 13 years. By then half or veloping countries is still mass pov¬ dential appointments under the Nixon, more of our petroleum imports may erty. The benefits of growth have Johnson, Kennedy and Eisenhower ad¬ need to come from a dozen tradi¬ been offset by population increases ministrations. tionally poor and undeveloped and uneven development has too young workers flood into the job countries. The known reserves of often excluded those at the lower markets. The rates for unemploy¬ many minerals are largely located in end of the economic ladder. ment and underemployment range the developing countries. Chile, Because of population growth, up to more than 30 percent in many Peru, Zambia and Zaire supply per capita food production is barely developing countries—higher than most of the world’s exportable cop¬ higher today than it was ten years the United States experienced in the per. Malaysia, Bolivia, and Thai¬ ago. worst years of the depression. land account for 70 percent of the The developing countries have Mass unemployment is perpetuat¬ tin in international trade. doubled and tripled the size of their ing mass poverty which in turn On the other side of the trade school systems in the past ten years. perpetuates mass malnutrition, ill- ledger, the developing countries are But there are more children out of health, illiteracy and the whole ca¬ becoming increasingly significant as school today than there were ten talogue of human misery which markets for US exports and invest¬ years ago. There are no schools at comprises underdevelopment. ments. In 1970, they accounted for all for more than 300 million of Some forty percent of the total 30 percent of all US exports. their children. population in all developing coun¬ It is also true that solution of There is mass unemployment as tries is caught in this cycle of pover¬ such world problems as environ-

14 FOREIGN SERVICE JOURNAL, June, 1973 rectly, more quickly, and more effectively than can assistance through other mechanisms. It has an organizational discipline that pro¬ vides a flexible and innovative tool for carrying out US national policy in countries or geographic areas of particular US interest. It can apply special American techniques and expertise, largely drawn from the private sector, more effectively to development problems. It provides a channel for US leadership, and a clear identification of US participa¬ tion and a visible demonstration of US constancy in the sum of world development efforts that cannot be accomplished in other ways.

UNITED STATES bilateral develop¬ ment assistance will focus over the next few years on these problems: Food and Nutrition: At present Some of the 9.7 million refugees from East Pakistan in one of the camps in India. population growth rates, world food Assistance from the United States was channeled through the UN and voluntary production will have to increase by agencies. two and one-half times to provide adequate diets. Since there is little mental pollution, narcotics control, the United States is still the largest arable land not already in use, this and security of travel requires broad single donor, but no longer provides increase must be achieved by international cooperation, including the bulk of such assistance. Measur¬ break-throughs in agricultural pro¬ participation by the developing ing officially recognized develop¬ ductivity—an area in which Ameri¬ countries. ment assistance as a percentage of can know-how is preeminent. A dy¬ For all these economic, political, GNP, the United States now ranks namic agriculture is a prime requi¬ and moral reasons, a continuing twelfth among the sixteen major site for energizing the whole process US response to the challenge of un¬ aid-giving countries, behind Portu¬ of development. In most developing derdevelopment is as much in our gal, France, The Netherlands, Aus¬ countries agriculture must be looked own interest as it is in that of the tralia, Japan, Canada, Belgium, to not only for food, but also for a developing nations. It is indispensa¬ West Germany, the United King¬ major assist in providing jobs for the ble to an expanding international dom, Sweden, and Denmark. unemployed. economy and a decent international New international institutions— Family Planning and Health: At order. the World Bank, the Inter- the base of virtually all develop¬ Our response to this challenge American Development Bank, the ment problems in the poor countries should be a system of technical, Asian Development Bank, the Afri¬ is run-away population growth. institutional, and economic relation¬ can Development Bank—have These countries account for about ships—'between the industrial and come into being and are now well ninety percent of the annual world the poor countries—which enhances established. The UN agencies also population growth. India, for exam¬ the ability of the poor countries to play important roles. ple, despite government programs to mobilize their own energies for de¬ Over the past decade, US partici¬ reduce population growth, is in¬ velopment, and to make better use pation in the multilateral develop¬ creasing by about one million peo¬ of their own resources. Much of the ment institutions has been a signifi¬ ple per month. Family size in the machinery for this joint and sys¬ cant factor in their continuing de¬ developing countries now averages tematic attack by the rich and poor velopment and, together, they now about six children per family. At countries on the problem of world handle nearly 25 percent of the this fertility level, world population poverty is in place. The US inter¬ total of aid flows from all donor will grow from today’s 3.7 billion to national development assistance pro¬ countries. about 7.5 billion by the end of this gram is a key element of this system, At the same time, the United century. and bilateral assistance is the prime States will continue its bilateral pro¬ The population boom is perhaps mover of US development policies. gram. Both bilateral and multilater¬ the most intractable problem facing This system has been building al aid are needed now, and both the developing countries today. since the early 1960s. Other de¬ will continue to be needed, in care¬ Curbing it is only partly a matter of veloped countries have been en¬ ful coordination, for the foreseeable national family planning programs. couraged to join in the effort and, future. High birth rates are linked to prob¬ over the years, have continually in¬ The US bilateral aid program can lems of poor health and poverty. creased their contributions. Today, meet unique US purposes more di¬ Continued on page 33

FOREIGN SERVICE JOURNAL. June, 1973 15 The problems of inadequate employment and skewed income underscore the persistence of massive poverty in low income countries Employment and Income Distribution: Considerations for Development EDWIN COHN and JOHN ERIKSSON

VER the past two decades, the cent in many cities and running as The distribution of income is aggregate growth performance of high as 40 percent in some. The ap¬ closely related to employment since the developing countries has been plicability to developing countries of for most people productive work is remarkably high. But substantial the concept of open unemployment the main source of income. Most of segments of the population in less used in industrialized countries is the available evidence indicates that developed countries are not sharing questionable, however, since the in the absence of public policies in the benefits of growth. This une¬ great majority of the labor force in aimed at equalizing income distribu¬ qual participation in the benefits of less developed countries does not tion, such as those followed in development is apparent in two par¬ work at wage jobs in the organized Taiwan, economic growth in non¬ ticularly conspicuous and related as¬ sector but is family or self- socialist countries tends to favor the pects: first, persistently high un¬ employed. upper income groups and to worsen deremployment and, in some coun¬ The more prevalent, although less the relative position of the poor, at tries, unemployment, and second, readily quantifiable, phenomenon is least until a country has achieved a highly unequal income distribution. underemployment. The underem¬ relatively high level of socioeconom¬ Moreover, the available data, ployed include both those who are ic development. Scattered observa¬ though incomplete and not always idle during much of the year be¬ tions suggest not only that those in very reliable, indicate that the labor cause of seasonal or sporadic need the lower socioeconomic strata are force is increasing faster than op¬ for their services, such as a substan¬ receiving a disproportionately small portunities for productive employ¬ tial part of the agricultural work share of the benefits of growth, ment and that in most countries for force, and those who, although put¬ meaning that their relative position which data exist the distribution of ting in long hours throughout the is deteriorating, but also that some income is becoming more, rather year, are productive only a fraction of the poorest groups have been than less, unequal. of the time they spend at work, such experiencing no increase, or even a The inadequacy of employment as street peddlers. These types of decline, in absolute real income. It opportunities is reflected in open underemployment or low productiv¬ should be noted, however, that the unemployment and in widespread ity employment, which are wide¬ poor have received some significant underemployment in both urban and spread in both rural and urban areas, gains not counted as income, nota¬ rural areas. In a number of Latin constitute a much more serious bly the sharp decline in mortality American and African cities open problem, especially in those coun¬ and morbidity from famine and unemployment exceeds 10 percent tries where, according to official sta¬ communicable diseases (such as of the labor force and is probably tistics, open unemployment is rela¬ malaria) of which the poor had rising. For the 15-24 age group, tively low. Given on the one hand been the main victims. those seeking their first job, it is the projected acceleration in labor These prevalent problems of especially severe, exeeding 20 per- force growth rates in all regions of inadequate employment opportuni¬ the developing world during the ties and skewed income distribution Dr. Cohn and Dr. Eriksson serve in the next two decades and on the other in low income countries underscore Bureau for Program and Policy Coordi¬ nation, AID. This article is condensed hand the probable modest rise in the persistence of massive poverty from a paper prepared by them as a basis demand for labor in agriculture despite the rise in average per capi¬ for discussion in AID of the problems (likely to be at least partially offset ta income, a figure which like many of employment and income distribution by labor-displacing mechanization) aggregates can easily conceal gross in developing countries and possible ways and inadequate growth of labor re¬ inequalities. Even in developing in which external assistance can help to resolve these problems. quirements in the industrial sector, countries with average per capita Reprinted courtesy of “War on Hun¬ underemployment can be expected income of $200 or more, substantial ger to increase. segments of the population are un-

16 FOREIGN SERVICE JOURNAL, June, 1973 able to maintain a human standard cal and affects the demand for la¬ priate factor-pricing which makes of existence. In India, where per bor. The traditional technology of capital artificially cheap and labor capita income is less than $100, a developing countries is very labor artificially expensive. Capital is un¬ recent study placed those below the intensive but the technology being der-priced as a result of over-valued official poverty line, as defined by transferred to them from abroad is currencies, officially controlled low minimum nutrition standards, at that developed by and for industrial¬ interest rates, preferential tariffs on 40-50 percent of the population. ized countries which are character¬ imported capital goods, tax al¬ In addition to the human misery ized by relative abundance of capi¬ lowances on investment and import they entail, inadequate employment tal and scarcity of labor. While the licensing arrangements which dis¬ opportunities and increasingly une¬ economies of most developing coun¬ criminate in favor of large enter¬ qual income distribution have at tries remain generally rather labor prises. Labor, on the other hand, least two important implications for intensive because of the large size may be over-priced as a conse¬ the development process. First, the of the traditional sector, much of quence of minimum wages, high waste inherent in the under-utiliza¬ the technology introduced over the premiums for shift work, high legal¬ tion of human resources, the most past two decades has been more ly required social benefits such as abundant resource of most develop¬ capital-intensive and labor-saving family allowances, medical clinics ing countries, retards the develop¬ than is appropriate for countries and pensions financed from payroll ment process. Second, the frustra¬ with excess labor and acute scarcity taxes, and legislation intended to tions generated by perceived unequal of capital. The result is that employ¬ protect the job security of employes participation in the benefits of de¬ ment in the modern, organized sec¬ through, for example, rigid and velopment and especially by open tor, especially in manufacturing, has costly dismissal compensation. These unemployment, constitute a potential been growing at no more than half have the practical effect of encour¬ source of disaffection and unrest the rate of production growth and aging employers to minimize their which could undermine the develop¬ that the absorption into modern non- dependence on labor or to rely on ment process. Meaningful develop¬ agricultural activity of the surplus overtime rather than hiring addi¬ ment involves broad popular partici¬ labor from rural areas, which oc¬ tional workers. Moreover, these pol¬ pation in the development process curred in Western Europe, North icies and practices curb employ¬ and in its benefits, including prog¬ America and Japan at the time of ment growth by artificially encourag¬ ress toward meeting the basic needs their industrialization, is not pro¬ ing investment in capital-intensive of people, both their material needs ceeding at a rate commensurate sectors, by stimulating the adoption for food, health, shelter and security with the growth of the labor sur¬ of capital-intensive methods where and their less readily measured but plus. alternative technologies exist, and not less important spiritual need for The third element affecting the by discouraging the full use of exist¬ human dignity. problem is institutional. Credit, edu¬ ing scarce capital by such measures One of the basic factors responsi¬ cation, land tenure, agricultural ex¬ as multiple shift operations. ble for widespread unemployment tension, marketing and other institu¬ Also, there is often a bias in the and underemployment is demograph¬ tions tend to favor the already privi¬ bureaucracies of developing coun¬ ic. The population explosion of leged and to penalize or ignore the tries in favor of low prices and the 1950s and 1960s now is being poor. Large, well-established enter¬ rationing and against the value of reflected in labor force growth rates prises and upper income groups en¬ the market as an allocating mecha¬ of two to three percent in most joy superior access to these institu¬ nism. This approach is frequently developing countries and even more tions partly because of their power¬ justified on equity grounds, the usu¬ in some. This is at least double the ful connections and partly because al argument being that high interest rate of labor force growth experi¬ it is easier and more expeditious to rates, for instance, are antisocial. enced in Western Europe or Japan deal with large clients than to reach The fact is, however, that prices set at comparable periods in their de¬ out and serve the dispersed, less below the point at which supply and velopment. Labor force growth will well informed, less able to afford demand intersect make rationing continue at high levels even if fertil¬ risk, less market-oriented enter¬ necessary and that the larger, better ity rates decline because the en¬ prises and lower socioeconomic informed, more aggressive and pow¬ trants for the next 15 years have groups. Yet smaller units in agricul¬ erful operators obtain the lion’s already been born. The longer run ture, industry and construction are share of what is being rationed solution to the employment problem often more labor-intensive. This ori¬ while the small and weak farmers must come, of course, in large meas¬ entation of institutions to serving the and businessmen, for whose benefit ure from slower population growth, more powerful clients results in the practice is ostensibly intended, which underscores the critical need further skewing of income distribu¬ may receive little if anything. The for efforts to reduce fertility rates. tion and in the creation of fewer latter would be better off if prices Meanwhile, massive rural-urban mi¬ employment opportunities than were permitted to find their own gration compounds the problem in would otherwise be generated. level rather than, as at present, be cities. As a result of these factors Many policies and practices pur¬ compelled to resort to the more ex¬ the supply of labor can be expected sued by the developing countries pensive informal money market or to grow at an even higher rate, themselves aggravate employment black market, or be unable to ob¬ especially in urban areas. and income distribution problems. tain credit or supplies at all. The second element is technologi¬ Prominent among these is inappro¬ Aid donor agencies inevitably

FOREIGN SERVICE JOURNAI., June, 1979 17 affect employment and income dis¬ ing facilities to be made available have given recent emphasis to em¬ tribution as well, regardless of their first and most abundantly to large ployment problems. The Organiza¬ intentions or whether they even re¬ producers rather than to small ones. tion of American States focused on alize that they are doing so. Their Institutions established, often with employment generation in its 1971 influence makes itself felt in many donor assistance, to provide services Inter-American Economic and So¬ ways, notably by: of this type are normally designed cial Council Meeting. The Council • the orientations of the de¬ to support larger enterprises, which on Asian Manpower Studies veloping country institutions which also happen to be those with the (CAMS) was formed in 1971 by they support; greatest political power, rather than scholars and government officials of • the types of technological and to assist smaller units and those in nine East and Southeast Asian capital transfer which they finance; remote areas, which may have countries to sponsor policy-oriented • the effect of these transfers on somewhat different needs and call research on employment and in¬ what the developing countries do for different procedures and a dif¬ come distribution problems in the with their own resources; ferent orientation on the part of the region. CAMS has created five Asian- • the training in developed coun¬ staff. based working parties specializ¬ tries which they provide for admin¬ While in the past donor agencies ing on labor force and labor supply, istrators and technicians from less often disregarded employment and employment-generating projects and developed countries; and income distribution, they have paid policies, education and manpower, • the general policy advice they increasing attention to them in re¬ technology and trade, respectively. give to aid-recipient governments. cent years. The International Labor Funding sources include the major Organization (ILO) took the lead foundations, the United Nations, Many practices and policies fol¬ in the early ’60s by holding confer¬ and bilateral donors in the region, lowed by multilateral and bilateral ences and publishing studies on em¬ including the United States and donors have unwittingly made in¬ ployment problems in developing Japan. come distribution more unequal and countries. These efforts led to the A number of bilateral donor have created less additional employ¬ passage of ILO Convention 122 on agencies have manifested concern ment than they could have; in some Employment Policy which in turn with employment and income dis¬ instances they may even have re¬ laid the basis for the ILO’s World tribution problems. The Overseas duced employment. These results Employment Program (WEP), ini¬ Development Administration of the have occurred as a consequence of tiated in 1968. WEP has begun an United Kingdom supports major re¬ donors often encouraging capital- ambitious research effort to investi¬ search and technical assistance on intensive, labor saving technologies, gate the relationships between em¬ employment problems through the notably in agriculture, manufactur¬ ployment and population growth, Institute of Development Studies at ing and civil engineering works and technology, income distribution, ed¬ Sussex University. The Swedish In¬ of donors restricting their concern to ucation, urban development and ternational Development Agency, in aggregate growth and neglecting trade. WEP has also organized four addition to providing direct support which socio-economic groups con¬ major missions to analyze employ¬ to the ILO’s World Employment tribute to the increased production ment problems and make policy Research Program, has declared and receive the benefits. This is not recommendations in Colombia, Sri that its assistance will henceforth to say that donors have consistently, Lanka (Ceylon), Iran and Kenya. only be given to recipient countries much less intentionally, acted in committed to the goal of improving ways contrary to expanded employ¬ Current concern with employ¬ ment and income distribution prob¬ income distribution. ment and more equal distribution of On its part, the Agency for Inter¬ income. Many activities, notably lems is reflected in the UN’s “Inter¬ national Development Strategy” for national Development continues to Food for Peace and program loans support a number of activities with have brought important benefits. the Second UN Development Dec¬ ade. Two explicit goals of the a potential positive impact on em¬ But donors have often leaned in the ployment and income distribution. wrong direction and this could and strategy are (1) “to bring about a A significant proportion of capital should be corrected. more equitable distribution of in¬ come and wealth for promoting both assistance channeled through AID By concerning themselves mainly social justice and efficiency of pro¬ has been in the form of the program with aggregate economic growth and duction,” and (2) “to raise substan¬ loan. This form of assistance can paying inadequate attention to tially the level of employment.” result in greater employment gener¬ which socio-economic groups have ation than project lending restricted World Bank President Robert opportunities to contribute to in¬ to financing capital equipment be¬ McNamara has given repeated em¬ creased production or to participate cause it permits importation of a phasis to employment and income in the fruits of growth, donors have wide range of raw materials and distribution in his public statements neglected opportunities to exercise a intermediate goods. An assured ad¬ and the Bank now is sponsoring sev¬ positive influence to reduce inequal¬ equate flow of current inputs can eral research studies on employment ities in the distribution of income exert a significant favorable effect and income-distribution related top¬ and wealth. Usually it is easier and on the degree to which existing ca¬ quicker to achieve a given increase ics. Employment considerations also pacity is utilized and thus tends to in output by arranging for new tech¬ are beginning to be taken into ac¬ reduce the capital-labor ratio and count in project appraisals. nology, physical inputs, credit, in¬ raise employment. In addition, the formation and advice and market- Several regional organizations Continued on page 31

18 PORExo SERVICE JOIJRNAI tune, 1973 Is our only choice really between giving aid to anti-Communist dictators and not giving it at all?

UNITED STATES OF AMERICA 'l|||l' Busting our Mental Blocks on Foreign Aid JAMES FALLOWS

D URING the fall of 1971 my Today,” Robert Hunter, ed. (Prae- might, for example, have praised wife and I were living in West Afri¬ ger). Church said that aid’s failure is the parts of the aid program that ca, working with Ghanaians on con¬ “not technical and administrative, have done unequivocal good, such struction projects in the bush. Short¬ but conceptual and political, and as the famine relief shipments that ly before we were to head back to a can be understood only as an aspect kept India fed during the ’60s, or more familiar life, news came of the larger failure of American the similar project now under way that the United States Senate had foreign policy over the last decade. . in Bangladesh. voted to cut off foreign aid pro¬ . . I can no longer cast my vote to Church, however, was certainly grams apparently as a slap at the prolong the bilateral aid program as not hunting for a motive to replace President’s war policies. . . it is now administered.” cold-warism. He ended his speech After hearing of it I walked, liter¬ Church has a point. Since its be¬ not with an agonizing meditation ally amazed, through the desert town ginnings, the foreign aid program about how we should improve the of Bolgatanga, wondering what de¬ has illustrated the dangers of doing aid system, but by saying, “Essen¬ lusion could have made Americans the right thing for the wrong reason. tially, the question is whether we’re feel they no longer had anything to During the ’50s and ’60s, aid sup¬ prepared to recognize the limits of share with the world’s poor. porters thought that the program our own capacity . . . and allow Few of my friends at home might be easier to sell if it were ad¬ nature to take what may well be an seemed to understand this feeling. vertised as part of a holy war against uncongenial course in many coun¬ They said that the Vietnam experi¬ the Russians. The trouble with this tries in the third world.” ence had soured them on foreign compromise was that no one both¬ While this sounds like a disin¬ aid, and they disliked anything ered to bring up the real reasons for terred Malthus stalking through smacking of cultural imperialism. giving aid, and liberals were Congress, it points toward the sec¬ Yet enough of them—when con¬ trapped into supporting military aid ond apparent reason for the liberal fronted by dramatic images of for its own sake. After a while, if defection from foreign aid: com¬ suffering from Biafra and Bangla¬ you looked where the money was pletely apart from its cold-war ori¬ desh—experienced, at least momen¬ going, more was being spent for ma¬ entation, there is the disheartening tarily, enough of what I felt in chine guns and tanks than for con¬ fact that our aid has done little Ghana to lead me to write this arti¬ structive, humanitarian projects. . . discernible good. The latest evi¬ cle. . . Is our only choice really between dence is in a forthcoming book by The anti-aid alliance between giving aid to anti-Communist dicta¬ William and Elizabeth Paddock, George Wallace and J. William Ful- tors, and not giving it at all? Church “We Don’t Know How.” (Iowa bright, or Rep. Otto Passman and implies that it is. Despite a few State University Press). the New York literati, has been throwaway lines about reforming Before the book loses its way, it explained by Senator Frank aid programs by channeling them makes one point brilliantly: our aid Church, in a forceful speech ex¬ through the UN, the thrust of his programs are as badly run as any pressing the soured-liberal view¬ speech is to stop aid now, and worry other part of the bureaucracy, and point, reprinted in “Development later about finding something to re¬ they have done very little good. In place it. country after country, the Paddocks James Fallows is an editor of THE WASH¬ Church is too smart not to see the show how aid administrators have INGTON MONTHLY. He is author of “The implications of his words, so what made the same mistakes for years, Waterlords” and co-author of "Who Runs he leaves out of his speech is as conducting studies and setting up Congress.” This article is excerpted from important as what he puts in. . . projects, without having much im¬ the March issue of THE WASHINGTON MONTHLY, with permission. Copyright © If he thought the cold war was pact. As administrative critics, the THE WASHINGTON MONTHLY COMPANY. the problem and not aid itself, he Paddocks h ve few peers. They are

FOREIGN fc VICE JC JRNAL, . fie, 1973 19 especially sharp in showing how aid distaste for what its success would opment with Unlimited Supplies of programs suffer from those classic mean. Labor,” or the “Lewis model,” after bureaucratic hazards, institutional During most of the life span of its creator, Sir Arthur Lewis. Its cen¬ amnesia—“AID has no memory”— our aid programs, from World War tral idea was that, in Pakistan as in and information block. I hope the II to the mid ’60s, the goal seemed Britain, labor was the most valuable book’s first few chapters become unquestionable: what more could economic commodity. Therefore, the mandatory reading at AID. the United States want for the rest theory reasoned, the poor countries From the mess of wrecked pro¬ of the world than the Western-style were actually lucky, since they had grams they observed, the Paddocks industrialization which had brought so many people who had nothing to conclude that “we don’t know how” the plenty to America. But recently, do. The answer was to get them off to speed development in poor coun¬ as pollution and the other costs of the land and into the cities, where tries, even if we spend more money. technological advancement have be¬ they could be put to work at factory In what may be their single biggest come clear, the liberal gusto for benches. The problem, as later be¬ blow against orthodoxy, they also exporting development has faded. came obvious, was that there were announce that international aid pro¬ Western economic patterns usual¬ many more available workers than grams—from the World Bank to the ly assume perverse, distorted forms potential factory jobs; whenever the UN—don’t know how, either, since when transported to the poor world. theory went into action, the net re¬ they’re largely run by the same peo¬ . . . In direct proportion to their sult was the creation of an unfed, ple as AID and make the same exposure to Western development idle urban horde where previously mistakes. So what do we do? The experts, poor countries exhibit there had been peasants earning book says: malignant syndromes; tin dictators, their share of the harvest. or at least an elite that pretends I can no longer advocate foreign aid The list of similar theories is never to have heard of agriculture long—some economists have made until we first learn how to make it or manual work; dams and other achieve its goals. Hence I urge that we a career out of adding items—but first use our own country as a labora¬ gaudy industrial projects more use¬ there is one other major theoretical tory. . . ful for show than production; an “error” worth noting. Drawing on To provide housing in restless Bom¬ educational system in which chil¬ patterns shown in Europe and the bay, let us first learn how to rebuild dren learn, as African expert Stan¬ United States, where the wealthy our own ghettos. . . ley Meisler put it, “that life has no provide the capital for economic To advise how to prevent Uruguay’s more meaning than a starched white growth, some economists expected socialism from destroying the nation’s collar and a red Mercedes.” the same patterns to emerge in the stability, let us first learn how to make Some of the other symptoms of underdeveloped countries. The Medicare pay as it goes. . . “development” are even more alarm¬ thing to do, then, was to keep mon¬ To eliminate hunger in the world, ing: cities doubling in size every ey out of the hands of the lower let us first learn how to improve the decade, choked with emigrants from diets of the five million malnourished classes, who spent it all for food and the countryside; unemployment Americans who cannot afford the food housing, and funnel it to the thrifty rates ranging from 25 to 60 per cent they need. rich. Unfortunately, the theories did 4 of the available working force; gov¬ The book contains some insights— ernment budgets big on machine not reckon with the special kind of notably the idea that the United guns and luxury imports but short elite that often prevails in poor States should curb its own military on the agricultural basics needed to countries, especially in Latin Amer¬ spending before lecturing Pakistan feed the populace; vast strata of ica, and which tends to stash its about the same thing—but in gener¬ “over-educated unemployables” who money in Swiss banks rather than al the sense of disproportion is stun¬ have learned enough English or local factories. ning. Taking care of the five million French to know they don’t want to Development economics has hungry in America means changing stay in the jungle towns any more. caught up with many of these er¬ income distribution patterns; feed¬ Even the brightest hope of de¬ rors; now, the fashionable talk is ing the one or two billion malnour¬ velopment advisers, the “green about agricultural projects, “practi¬ ished in the world means finding revolution” of miracle grains, has cal” education, and other down-to- some way to coax more food out of brought its share of industrial- earth concepts. But the goal of all the crowded land . . . The foreign revolution-type social disruption. the manipulation is still the same: aid problems the Paddocks illustrate The seeds require such fancy in¬ economic development—the same are not ordained by God. The aid puts—-fertilizer and pesticides—that industrialized end as before . . . bureaucracy could find some way to only the large farmers can use When the advisers speak of “bal¬ keep in touch with what’s going on them; in many parts of India, the anced growth,” they are talking not in the field; it could protect its pro¬ green revolution has mainly meant about ways to contain some of the grams against political manipula¬ that small farmers have been driven social strains of turning a tribal land tion. The Paddocks presumably from their land . .. into a modern economy, but only of sense this, as do the other former Economics is still in the shake- the fastest route to industrialization. supporters of foreign aid. Why, down phase and a lot of mistakes It is this sense of grim inevitabili¬ then, their policy of benign neglect? that were made in the early days of ty which, I believe, is making liber¬ The reason, I believe, is not un¬ foreign aid have been corrected by als draw back from foreign aid. One happiness with the failures of for¬ now. . . . One of the finest examples need not entertain romantic views eign aid, but rather an increasing is a theory called “Economic Devel¬ of happy tribal life to feel a sense of

20 FOREIGN SERVICE JOURNAL, June, 1973 tragedy and loss: if the world’s fu¬ images of people trading in their designed to rouse liberal enthusi¬ ture is that it be remade in the bright native robes for factory drab, asm, for two reasons. First, the fu¬ image of Pittsburgh or Miami or regulating their lives by the ture seems only to mean that the Beach, why should we hurry? 40-hour week rather than by rice¬ other countries of the world will A possible answer to that ques¬ planting cycles—it would be hard to follow our route to a life of big tion, and a hint of a new liberal drum up much enthusiasm for the cities, clogged highways, and stand¬ rationale for foreign aid, comes venture among Americans who now ardized shopping centers. Our feel¬ from an unlikely source. In “Ben¬ lament that their own culture has ings about our own achievements evolent Aggression” (McKay), been so thoroughly busted. are sufficiently mixed that we hesi¬ Richard N. Farmer, like the Pad- Farmer answers, in the most sig¬ tate to promote the same goals over¬ docks, tries to explain why foreign nificant passage of his book, by de¬ seas. aid has failed; but where the Pad- scribing what happens after Western Second, and more important, docks are inclined to give up in the medicine introduces “death control” there is the danger of “cultural im¬ face of problems, Farmer is ready into poor countries: perialism.” There was a time, not with a whole pack of solutions. It comes down to this: all cultures long past, when the missionary Farmer is a business professor at are going to get busted, and the most streak transcended all others in our Indiana University, and much of his painful busting is going to happen in foreign policy. Farmer’s book shows book reads like a tract extolling the the poorer countries and subcultures. that the impulse is still there, wait¬ work ethic. But the book presents a Once a culture or a country accepts ing to convert the natives. But complex theory of development, among its old liberal-internationalist with important implications. Farm¬ It requires an extraordinary promoters, this zeal has nearly died er’s main premise is that all foreign amount of either romanti¬ in the last decade, mainly because aid projects have overlooked the of the war. . . . With a hundred most influential factor of all: the cism or hubris to think that, years’ hindsight, we now condemn managerial, profit-motivated, go- if only America would curb the British and French for imposing get-’em spirit that the carefree poor its foreign-aid meddling in their ethnocentric values on Africa must learn if they want to master and Asia. Knowing that, do we dare Western technology. Without this, the third world, all Western do the same today? he says, the countries are consigned influences would go away. While this hesitancy about export¬ to permanent retardation. Liberal ing our culture might have done administrators of aid programs, al¬ death control, all else follows. Popula¬ marvels for our foreign policy 10 ways soft of heart, refuse to face tion expands; unless the economic base years ago, it has a quaint, an¬ this fact. But when they do, Farmer gets changed very fast to cover the in¬ achronistic touch when applied to concludes, they will say something crease, someone starves sooner or our current foreign-aid dilemma. It like this to their clients: Want to later. . . Now, how do you increase requires an extraordinary amount of join in the wealth? Then you must production? T he Western way is the either romanticism or hubris to only one we know that works. So you think that, if only America would imitate our discipline: get your power plants, your irrigation . . . Because we are top polite now¬ systems, your fertilizers, your fac¬ curb its foreign-aid meddling in the adays to suggest directly to someone tories, and all the rest-—and in the third world, all Western influences that he should change his behavior, process change men and women to be would go away. The cultural mixing we normally talk about power plants able to handle these new tools. That’s of the world has already gone on to and engineering technologies rather the rub—the kind of person who can such an extent that it is pointless to than behavior. It all comes down to the figure out what to do in a power plant worry about “interference” with same thing. If you’re going to get rich or fertilizer warehouse is not going to other ways of life. Not all of the the way we did, you're going to have be anything but a Western man. mixing has been bad: just as Zen to behave the way we did . . . We Buddhism and French bread have want people who get the job done, The meaning here is so unpleas¬ who will drive forward across obsta¬ ant that it is preferable not to think enriched American culture, so cles to win, at whatever cost to them¬ about if. Farmer is saying that 100, American medicine and rock music selves. In short, we want an uptight or even 25, years ago the West have been bright additions in super-achiever. might have avoided the process that Ghana and Guinea. When “interfer¬ Stripped of its haranguing over¬ turns tribesmen into starched-collar ence” is accompanied by military tones, this view would fit right in unemployables; we might have power, it is of course a different with what Dumont, Myrdal, Hap- shied from the now-distasteful role matter. But the nasty fact liberals good, and others say. Myrdal de¬ as cultural dictators to the world. must face is that the world’s cultures scribes the “soft state” syndrome— But now we’ve been to the jungles have already been mixed, none re¬ when a government refuses to cor¬ with our doctors and our malaria tains its original purity. The chal¬ rect corruption and laziness—as one sprays, and the choice is out of lenge now is to identify the best of the greatest impediments to prog¬ anyone’s hands. Unless we accept elements of different cultures, and ress in the poor countries. But the restored “death control” through try to encourage them where they solution seems just as bad. If, as famine, the only chance is to speed can do some good. Farmer says, the only way to indoc¬ world economic development to If we draw back from our foreign trinate the indolent peoples in cor¬ keep up with the two to three per¬ aid program, culture-busting will rect behavior is through “culture- cent annual growth in population. still go on—but by whom? By Coca- busting”—a phrase that calls up This is not the kind of challenge Cola, the United Fruit Company,

FOREIGN SERVICE JOURNAL, June, 1973 21 Texaco, and the hundred other mul¬ king’s streets and the slums of Djak¬ finance ministry. Senegal and other tinationals that do business in every arta or Sao Paulo . . . African countries have put on big part of the world. By TIME, the China’s innovation seems to be campaigns for a return to the bush Voice of America, and the broad¬ the emphasis on individual sacrifice (called “animation rurale” in Sene¬ cast commercials which so clearly and self-discipline, for the general gal), but in most cases the leaders’ impart the materialist flavor of community welfare. Before this evident distaste for rustic living Western life. By the universities, could make any headway at all, the dooms the plans from the start. Per¬ especially British and French, which Chinese had to do something about haps if more leaders would emulate persist in imposing their absurd, the pervasive fear of being gypped Castro or Nyerere and work in the useless notions of “education” on which exists throughout the de¬ fields, there would be more Chinas people who should be more con¬ veloping world. There can be no and Tanzanias. cerned with tractors and village life. more powerful barrier to progress The most obvious similarity be¬ Realizing that these facets of the than the knowledge that, whatever tween the countries with a commu¬ West are going to interfere, no mat¬ gains are made, half will be si¬ nal spirit—China, Cuba, Tanzania, ter what nice reservations we have phoned off in corruption and the Israel—is that they are all revolu¬ about cultural imperialism, we must rest will go to the junta or strong tionary societies, where a new order try to present a better set of ideas. men in control. In the standard has been deliberately created. That To find guidelines for these “bet¬ Western view, Mao’s appeals for may mean—as Frank Church con¬ ter” ideas, we have two questions to self-sacrifice seem absurd; as Farmer cluded in his Senate speech—that answer: first, whether there is an points out on many an Adam we should sit and wait for the revo¬ alternative to the grubby path of Smith-ish page, the only way to get lution to come to Brazil and the industrial development whose con¬ people to do anything is to make it Ivory Coast, but this is an unpredic¬ sequences we mourn in much of the economically worth their while. In table, slow route. A more responsi¬ third world; and second, what our development planning, this can lead foreign policy can do to encourage ble course would be to do what we to some healthy measures—such as can now to encourage those quali¬ these ideas. land reform. But more often, it ties that seem to set the successful “Benevolent Aggression” provides tempts governments to import a countries off from the ones we think a starting point. In Farmer’s view, whole Western system of monetary it is frivolous to think of other of as sores. That some of the quali¬ incentives; this, in turn, leads to the ties of discipline and committment modes of culture-busting, since the impractical education, white-collar Western path to development is the may be exported was shown in East elites, and the general social chaos Africa by the Tanzam Railroad. only available choice. “In modern of the third world. China suggests There Chinese advisers stupefied times, only Red China tried to mod¬ that there may be other ways to old Africa hands by inspiring Tan¬ ernize in a non-Western way,” he develop, based on a different reward says. “It didn’t work.” zanians and Zambians into group —psychic rather than monetary. effort. The AID experts who fly in Farmer is wrong, and the mistake Enough other countries have for a week or two, or serve a two- is crucial. While we should not ide¬ toyed with this altered value system year spell at the consulate, have alize China as a model for the rest to show that it can work. In Cuba, rarely managed such a feat. of the world, it is undeniable that Fidel Castro wisely avoided the the country has “worked” in a way Russian mistake of assuming that From the examples of good and that few other poor countries have. slothful, overgrown bureaucracies bad development, we can find From a starting point fully as impov¬ would somehow be more creative several common ideas to apply to erished as that of any other Asian than slothful, overgrown economic our aid efforts. The first is working country, the Chinese have made im¬ elites. To wage their war against to reduce the tribal and racial divi¬ pressive economic advances (cer¬ bureaucracy, the Cubans tried to sions in many poor countries. Re¬ tified beyond questioning when Joe build a new ethic based on manual cently there has been a nostalgia for Alsop visited China this year and labor and communal work—all of “tribal” ties in America and espe¬ pronounced it a success). More¬ which is the furthest possible ex¬ cially in Europe—as our roots give over, the Chinese have done so treme from the starched-collar val¬ way, we think fondly of the tribes¬ without the social strains that pre¬ ues of most other poor countries . . . men who know who they are and dominate in the rest of the de¬ Several other countries have tried where they belong. It is easy, from veloping world. In most of Africa to involve their people in the coun¬ this perspective, to overlook how and Asia, the “economic growth try’s growth, with varying degrees of clumsy and cruel tribal divisions can rates” the governments announce success. Israel is perhaps the prime be in countries suffering enough rarely show up in improved living example of what determined people from other impediments . . . Along conditions for the peasants. In Chi¬ can do on sub-standard real estate with hunger and elitism, tribalism is na, there has been a serious attempt (although the economists always one of the three great debilitating to share the economic benefits. It is dismiss it as having the head start of forces of the poor world. Reducing still better to be a scientist or party “pre-conditioned” citizens). In Tan¬ this irrational hatred is one of the boss than a rice farmer or laborer, zania, Julius Nyerere has tried to few jobs outsiders can do especially but the gap between the masses and bring the educational system down well, operating as go-betweens for the leaders is less extreme in China to earth, with more emphasis on groups that would otherwise be than elsewhere. Observers have practical, agrarian skills and less on slaughtering each other . . . noted the difference between Pe- ways to get a job at the UN or the It is important to remember that

22 FOREIGN SERVICE JOURNAL, June, 1B73 “tribalism” is only a shorthand for with strangers. These examples do flows which so often seem wasted all the limitations—racial, religious, not mean that we should incorpo¬ into effective tools of development. cultural, or national—on man’s con¬ rate Marxism, or the Common Law, Moreover, in the short run, we can cern for his fellows. In the old Chi¬ into our foreign aid programs, but pick out those forms of aid we know na, for example, trust and sympathy only that outsiders can work signifi¬ to be effective, and enlarge them. dried up at the borders of one’s own cant, healthy changes. The first of these, which is crucial family. One of Mao’s first efforts The third element is by far the though obvious, is simply providing then, was to dispel that atmosphere most difficult, and the most de¬ enough food to keep people from of suspicion. pendent on the people’s own efforts starving. It may be hard to find A second task, which raises all rather than help from outside. This noble elements in our recent foreign our hackles about “cultural imperi¬ is developing that sense of commu¬ policy, but one which the country alism” but which must be faced, is nity, or group effort, which distin¬ can be proud of is its commitment to encourage ambition and individu¬ guishes China from the Philippines, in the ’60s to make up the food al motivation. This idea may be North Vietnam from the South. deficits in India and later Biafra phrased several ways: the need to While we cannot provide internal and Bangladesh. It is hard to know achieve, the entrepreneurial spirit, motivation, we can help break one whether the famine predicted this taking pleasure in work. What it of the main restraining forces: the year for North Africa and India will means, in concrete terms, is break¬ debilitating, imitation-Western elites be as serious as that of the mid- ing down the overwhelming feeling that seem to pop up everywhere, ’60s, but here is certainly an oppor¬ of impotence that predominates convincing the people that independ¬ tunity for humanitarian aid. among the peasants of most poor ence is the same as colonial rule, A second step, which we can take countries. The combined forces of only with bosses of a different color. with little fear of cultural imperial¬ nature and institutions—from dis¬ By their mere presence, Westerners ism, is to reverse some of the handi¬ eases and floods to the church and have been responsible for much of caps we now impose on export in¬ local government—naturally make the elites’ genteel lifestyle: what dustries in poor countries. If all the people feel they are victims of fate Pakistani, having seen a group of third world were in the position of and the environment. Until that white-shirted UN experts drive the Arabs—having near-monopoly feeling is removed, it is often impos¬ through town, can doubt what the control over a commodity whose sible to free the talents and energies Good Life means? A major con¬ price is certain to rise—then we the country needs. tribution that the United States can could all relax and let normal This is a hard idea to accept, for make is to offer alternate models. In economic forces do their work. But it calls up all our worst memories of this regard the Peace Corps was as reams of “neo-imperialism” tracts American do-gooders abroad—Pyle onto the right idea: when “rich” have shown, in most poor countries in Graham Greene’s “The Quiet Westerners spend several years liv¬ the price of raw material exports keeps falling as imports from the American,” or the bright, young ing in the countryside doing agricul¬ West cost more and more. Peace Corps trainees ready to tural work, they can be far more Finally, we can keep looking for bring George Washington and Hor¬ persuasive than government broad¬ those aid projects which, unlike atio Alger to the peoples of the third casts exhorting young students to world. But ambition is not a purely the usual heavy industries or dams, return to their villages. In Ethiopia, American trait. Through the years, will open doors to a whole chain of for example, the Peace Corps’ dozens of other groups have been economic development. One of the noted for it (the Lebanese and presence has contributed to forma¬ best examples is irrigation projects, Chinese, the Ibo and Kikuyu tribes, tion of a domestic service corps. For which can not only boost the food are a few examples). And it need the first time, university students in output of a country, but also make not carry with it the competitive, Ethiopia have gone out to the bush work for a great many peasants who cutthroat spirit that is the worst of to see what the real problems are. have gone into the cities. In some the American ethic. This, after all, is None of these approaches, it Asian countries, the hand-tool in¬ the lesson of China and Cuba: indi¬ might seem, requires any formal dustry has triggered a chain reac¬ vidual energies which have not been foreign aid program. We could sim¬ tion: farmers are able to plow the used before can be stimulated by ply revive the Peace Corps, make it land; artisans are kept working; something other than the profit sys¬ forget its old anti-communist junior- there is more food to eat and fewer tem. Hong Kong provides another ambassador role and concentrate on tools to import. All development example of how an external idea, the things it did at its best. These agencies naturally claim that they this one non-Marxist, can break included performing simple jobs like are on the lookout for key projects, through old barriers. Like China, teaching and nursing in places but too often the advisers fall back Hong Kong had to cope with the where they needed to be done; sug¬ on their gut feeling that England, pervasive air of suspicion: members gesting similar ideas to people in the the United States, and Germany all of one family would hardly deal host country; trying to get people to had big steel mills at this stage of with another family, for fear they’d work together across family bound¬ life, so the Congo should, too. be cheated. Mao tried to counter aries; and trying to replace rote The answers are easier to outline this suspicion with his attacks on the learning with educational systems than to execute, but with at least a family structure. In Hong Kong, the that opened people’s minds. glimpse of where to start, we should agent of change was British law, In doing so, we give ourselves be able to put our liberal consciences which lowered the risks of dealing another opportunity: to turn our aid back into gear. ■

FOREIGN SERVICE JOURNAL, June, 1073 2.1 and is a pragmatist, a self-styled poj BdDK ESSAY “realist” not much given to concep¬ tualizing and original thinking. This was his strength. Bohlen himself de¬ scribes an exchange with Kennan A Giant of the Foreign Service which illustrates the difference be¬ WITNESS TO HISTORY 1929-1969, by tween the two men. Charles E. Bohlen. Norton, $12.50 The place was Yalta, 1945. Ken¬ nan, appalled by what he saw as I HERE is no one in the Foreign Soviet determination to dominate Service who will not be interested in all of Eastern Europe after the war, this book, for it is written by our sent a note to Bohlen from Moscow most successful and respected career raising the question whether the US officer. Chip Bohlen came into the might not best write off Eastern Service by examination in 1929 and Europe, conceding it to the Soviets rose from FSO-Unclassified to as their sphere of influence, rather Career Ambassador strictly on the than going through the charade of photo by Christian Lemaire basis of merit, becoming Minister in trying to arrive at settlements which CHARLES E. BOHLEN Paris, Counselor of the Department, might engage—and discredit—our author of WITNESS TO HISTORY Ambassador to the Soviet Union, good word even while we would be 1929-1969 France and the Philippines, and unable to prevent the outcome. A Deputy Under Secretary for Polit- most penetrating question that went the Soviet government” at that time. cal Affairs. to th; heart of our policy vis-a-vis Yet, at another point Bohlen at¬ He was where the action was, in the Soviet Union at a possible turn¬ tributes the failure of the Yalta the field of US relations with the ing point in history. agreements to Stalin having Soviet Union, and he has a fascinat¬ Bohlen in effect shot the notion “changed his mind” after Yalta. ing story to tell. Historically per¬ down in flames, remarking that This is a view not shared by other haps even more interesting than his Kennan’s ideas “may well be the authorities. Feis and McNeill, for later exploits was his role as inter¬ optimum from an abstract point of instance, regard the agreement on preter and then adviser to President view. But as practical suggestions Poland as ambiguous and the Dec¬ Roosevelt and a succession of Secre¬ they are utterly impossible. Foreign laration on Liberated Europe as taries of State during World War II policy of that kind cannot be made something that Stalin signed to hu¬ and immediately afterward. He was in a democracy.” As he remarks mor his western partners but which in Moscow with Hull, in Teheran elsewhere in his book, “foreign poli¬ he never took seriously. In addition, and Yalta with FDR, at the CFM cy in a democracy must take into the declaration was so loosely word¬ (Council of Foreign Ministers) account the emotions, beliefs, and ed as not to constitute an enforcea¬ meetings with Byrnes and Marshall. goals of the people. The most care¬ ble document. He was also with JFK in Vienna fully thought-out plans of the ex¬ For a pragmatist, Bohlen displays and had a role in the conception of perts, even though 100 percent cor¬ a surprising amount of moral the Marshall Plan, the creation of rect in theory, will fail without outrage over the non-implementa¬ NATO, and the handling of the broad public support. The good tion of the Declaration on Liberated Berlin and Cuban crises. leader in foreign affairs formulates Europe. While one can sympathize “Witness to History” summarizes his policy on expert advice and with his position in 1945 that “there what happened during those crucial¬ creates a climate of public opinion should never be a single doubt that ly important days, and Bohlen to support it.” we had stood up for the rights of provides candid sketches of all the Disarmingly, Bohlen quite freely the people on the Soviet border to principal players. These alone are admits mistakes in the course of his determine their own destiny,” there worth the price of the book, which career. At one point when the site seems to be a lack of recognition, many of us will wish to have on our of the follow-on meeting to Yalta is even in retrospect, that the sound shelves even if only as a tribute to a discussed, he writes: “I am amazed and fury over this issue after World colleague who exemplifies what an now what I said in reply. I said that War IT could never have affected optimum career in the Foreign a site within Soviet communication the outcome. As he himself points Service can be. with Moscow . . . was preferable. I out, Europe was in effect divided The reader must not, however, explained that all of us who had not by nefarious actions of politi¬ expect elegantly felicitous writing been at Yalta ‘felt that the Soviet cians and diplomats at Yalta but by such as flows from the pen of failure to carry out the agreement the reality of the distribution of mili¬ George Kennan. Indeed, the con¬ reached there had been due in large tary forces at the end of the war. trast between the personalities of part to opposition inside the Soviet Churchill, of course, recognized the two men, who are good friends, government which Stalin encoun¬ this even before the war was over could not be greater. That contrast tered on his return.’ ” Of course, and in October 1944 tried to arrive perhaps also explains why Bohlen except for that momentary aberra¬ at a division of influence with Stalin had so much more day-to-day influ¬ tion, Bohlen had no doubt that that would at least preserve Greece ence on what was happening than his Stalin was running the show and for the West and that, in Churchill’s intellectual colleague. Bohlen was that there was no “opposition inside mind and just possibly also in

24 FOREIGN SERVICE JOURNAL, June, 1973 Stalin’s, envisaged a 50-50 division of the Communist threat, and is formed.” Actually, Stalin’s message of influence in Hungary and Yugo¬ frank to the point of bluntness in of April 7, 1945 defended his intel¬ slavia. Hopkins and Bohlen, who deploring “the narrow-minded way ligence chiefs and attacked those of was at that time working with him, in which Dulles pursued the anti¬ Roosevelt. were instrumental in preventing communist crusade.” Speaking of As one looks over the record of even the appearance of an Ameri¬ Dulles, he also remarks that “loyal¬ our top diplomats in Russia before can blessing for such a deal. ty should extend down from the World War II one cannot but be “At Potsdam,” Bohlen writes, boss as well as up from the em¬ appalled by their amateurishness: “the US attempted to reassert the ployes.” And he recalls that when William C. Bullitt, who had gone to validity of the Declaration on Liber¬ President Kennedy asked him what the USSR with extravagant hopes ated Europe. This was the document was wrong with the State Depart¬ for US-Soviet cooperation, became by which the three powers guaran¬ ment, he gave the straight reply: so disillusioned that before the end teed the establishment of democracy “In regard to the Department as the of the war he was publicly advo¬ in Eastern Europe. We judged that whole, the fault is yours” (for not cating war with our Russian ally. the Soviets had violated the pledge allowing it to be run with full au¬ Joseph E. Davies, his successor, was in Rumania, Bulgaria and Hungary. thority lodged in the Secretary of so enamored with the Soviets that The Kremlin denied the charge, and State). he freely accepted their official ex¬ in a diversion Molotov launched a planation of the blood purges. But violent attack on Greece which was Roosevelt believed that such under British influence.” This slurs “It is difficult to realize, looking amateur diplomats were giving him over some important aspects. back from the distance of twenty better service than professionals. —M.F.H. Actually, the British had with So¬ years, how the miasma of fear and suspicion infected American life and viet acquiescence beaten down the A Many-Splendored Love Communists in Greece, and in pushed our diplomacy off its correct referring to Greece the Soviets were course into a moralistic crusade. I THE MORNING DELUGE: Mao Tse-tung in effect saying that they had imple¬ believe that without the Korean war & The Chinese Revolution 1893—1954, by Han Suyin. Little Brown. mented that part of the deal with and the atmosphere it created, Mc¬ Churchill and didn’t see why the Carthy would have wound up with a western powers were getting so busted flush. Yet even Eisenhower LOVE is a many-splendored thing huffy about Rumania, Bulgaria and refused to defend his mentor, Gen¬ —and so is Chairman Mao Tse-tung Hungary. (Indeed, the Soviets in eral Marshall, from McCarthy. —according to Han Suyin, the re¬ establishing their primacy over po¬ At one point during the 1952 nowned writer. litical developments in the Balkans campaign, Senator Karl Mundt of Possibly anticipating some charges were following the example which South Dakota told me he thought of partiality in her account of Mao’s we and the British had set in Italy, that while McCarthy’s actions were life and works, she makes this less- from which we had excluded Soviet crude and perhaps a little unfair in than-startling admission: “If this influence.) some ways, they were essential to book is said to be pro-Mao lse-tung, There are also occasions when a awaken the American public to the the answer is that it is.” surprising amount of personal ani¬ danger of Communism. I disagreed, Quoting Emperor Haile Selassie mus shines through in the Bohlen pointing out that eventually McCar- of Ethiopia, “The life history of narrative. Reporting how President thyism would be so discredited that Chairman Mao is in essence the Truman gave Molotov an un¬ it might not be possible to win pub¬ history of New China,” she declares precedented and highly undiplomat¬ lic support for valid cases where that it is in this spirit that she has ic dressing-down in the White Communist actions threatened Amer¬ written this partial hagiography of House about the Soviet position on ican security. the Chairman. (A second volume Poland, he writes: “How I enjoyed I was too right. Now, in the will be forthcoming to cover the translating Truman’s sentences!” On 1970s, it is difficult to get many years after the Korean War.) another occasion, when Ernest Bev- Americans to pay any attention Given her special talents as a in almost physically assaulted Mo¬ whatsoever to the perils of Com¬ writer, this book is, of course, fas¬ lotov, he writes, “For one glorious munism when they do exist.”—WIT¬ cinating reading. Also, given her moment it looked as if the Foreign NESS TO HISTORY, p. 311. frequent and lengthy visits to the Minister of Great Britain and the Chinese People’s Republic since its Foreign Minister of the Soviet establishment in 1949, and given Union were about to come to The book having been written on her acquaintanceship with many of blows.” the basis of tape recordings, there is the great and near-great in the Pe¬ Was Bohlen, then, an inveterate not always good continuity and king regime, she is very well situated hard-liner who saw the Soviet there is at least one major historical to report on the China situation. Union as inherently aggressive and error: Contrary to what Bohlen Unfortunately, however, she did not dangerous to the West? Far from it. writes, in Stalin’s last answer to have access to Mao himself, his Again and again, he emphasized Roosevelt in the controversy over family, nor his papers, and so there that the USSR was first and fore¬ alleged US-UK negotiations with the is not much new material of real most concerned with promoting its Germans behind Russia’s back the significance in this unofficial biog¬ own security. He believes Acheson Soviet dictator did not concede that raphy. went too far in describing the extent “his advisers must have been misin¬ In this morality play of good

FOREIGN SERVICE JOURNAL, June, 1973 25 triumphing over evil, even the neo¬ A Giant Step Forward Be Wise Shop Riverside phyte in Chinese politics will have WORLD WITHOUT BORDERS, by Lester no difficulty in telling the good guys Brown. Random House, $8.95. Liquor from the bad guys—nor in figuring out the basis on which the godly LESTER BROWN’S “World Without Discounts were separated from the ungodly. Borders” is a beginning. As a mem¬ FOREIGN SERVICE MEMBERS With respect to those miscreants ber of the first generation able to who failed to perceive Mao’s infal¬ appraise the world as seen from libility, she remarks that “his space as an entity and explore its MAMMOTH enemies have fallen, one by one, interactions through complex com¬ JUNE INVENTORY SALE not through his actions but through munications systems, Lester Brown Imported and American Champagnes their own inadequacy.” advocates global concern as a new Imported and American Wines The first volume ends on a happy “ethic.” “At a minimum, this ethic must seek harmony between man Some of France’s finest Burgundies note. “ ‘There is no conflict of basic and Bordeaux at reduced prices interest between the peoples of and nature and encompass an ide¬ ology of global unification. It must Come in and browse around China and the United States and friendship will eventually prevail,’ seek to raise everyone above the subhuman conditions of life now Chou En-lai had said to Edgar Snow prevailing for so much of mankind. in 1960. In this he was quoting Mao Planned obsolescence, uncontrolled Tse-tung. And this sentence would Riverside human fertility and nationalism are apply not only to the American peo¬ out of place in the late twentieth Liquors ple but also to all other peoples of century. The politicians’ distinction 2123 E St., N.W. 338-4882 the world.” (Izvestia and Pravda between the national interest and (conveniently located c cross from please copy.) the global interest is diminishing the State Department on E Street, next to Peoples Drug Store) China-watchers will likely want to in our increasingly interdependent Our 40th Year add this book to their growing col¬ world.” lection of biographies of Chairman We loan glasses for parties Specialists claim that their dis¬ Mao. NO CHARGE cipline is the key to the interpreta¬ —ROBERT W. RINDEN tion of anything, while generalists claim the opposite. Historical inter¬ pretations based on a “theory” are the weakness of such historians as Toynbee and Spengler. Lester Brown has avoided this temptation. The strength in “World Without Borders” is its multi-disciplinary ap¬ proach, a well balanced environ¬ mental, sociological and economic Look to the ant, consider her ways, and be wise! treatise. To my mind, environmen¬ NO MATTER WHERE YOU LIVE OR SERVE tal analysis rightly plays a role equal AROUND THE WORLD! to social and economic explanations of the world. LET YOUR FUNDS, The weakness in “World Without LIKE AN ARMY OF WORKER ANTS, Borders” is its encyclopedic try at BUILD YOUR WEALTH! wrapping up the entire globe in a — for Education? — for Recreation? — for a Second Income? neat package. This has resulted in - FOR WHATEVER YOUR FINANCIAL GOAL! a number of statements which are not substantiated. He has avoided Are you looking for a better way to increase your wealth? writing a difficult to read, multi¬ Then let us help you try! volume tome, such as Gunnar THE Please send immediately a free copy of THE Myrdal’s “Asian Drama,” and giv¬ WANDERERS INVESTMENT SERVICE en us a provocative primer on our BOOKLET, describing their investment philoso¬ WANiEPEUS phy, tactics, and services. Please send it to: interdependent world. Post Office Box 1101 Readers from the foreign affairs community may be familiar with Silver Spring, Maryland much of the specific information in 20910 “World Without Borders,” but everyone will find it a useful intel¬ lectual tool for comprehending what We of THE WANDERERS are former FOREIGN SERVICE! is happening in our rapidly chang¬ WE CHOOSE TO SERVE OUR FOREIGN SERVICE FRIENDS! ing world. Although some will find

26 FOREIGN SERVICE JOURNAL, June, 1973 it a bit pious in tone and utopian in outlook, others may find it too pessimistic, too liberal or too un¬ realistic. WHERE TO JOURNAL readers will recall the LIVE IN fine chapter from the book which WASHINGTON? appeared in the February issue, “Needed: A Second Generation of Supranational Institutions.” If you're not familiar with Lester Brown has done us a great the Washington area, the nice folks in our 10 offices service in giving us a multi-discipli¬ (inside and outside the nary picture of the global coopera¬ beltway) will show you tion which many of us believe to be around. New homes, re¬ inevitable if we are to survive. sales, and recreation com¬ —PETER C. WOLCOTT munities. Memoir of a Cabot VIRGINIA: 6510 Arlington Blvd., Falls Church THE STORM HAS MANY EYES: A Per¬ 9001 Braddock Rd , Springfield sonal Narrative, by Henry Cabot 1984 Chain Bridge Rd., McLean 310 Pelham St., Fredericksburg Lodge. W. W. Norton. $7.50. All leading foreign cars, U.S. Fords, campers, Oddfellows Bldg., Marshall cycles delivered stateside or in Europe at special MARYLAND: factory prices. We arrange every detail. For complete information send for our free 60 page 2600 University Blvd., Wheaton THERE 11125 Rockville Pike, Rockville is so much which Henry Master Catalog. Please indicate whether you 6480 New Hampshire Ave., Takoma Park Cabot Lodge could have said of require delivery in U.S. or in Europe. himself and his experiences in a Name multi-faceted career, one feels cheat¬ Social Security = FREE-Complete relocation kit! Address Write any office or call ed by this synopsis. For us who are (202)659-7155. involved in foreign affairs, he says Place of Delivery entirely too little of his UN and Date of Rotation SHANNON LUCHS Vietnam experiences and we are the NEMET AUTO INTERNATIONAL. FSJ 6-3 153-03 Hillside Ave., Jamaica, N.Y.l 1432 poorer for it. What he does say is Tel: (212) 523 5858 REALTORS ESTABLISHED 1906 interesting and helpful but one can only regret that so slight a memoir is all he evidently intends to be¬ queath. We must keep in mind, it AUTHORIZED EXPORTER seems, to whom the Cabots speak. CHARLES E. " One of the interesting sidelights GENERAL ELECTRIC which Mr. Lodge casts upon the quiet, unobtrusive, civilizing contri¬ Bohlen butions of diplomacy to the world concerns Anatoly F. Dobrynin, WITNESS Refrigerators • Freezers • Ranges Under Secretary of the UN when TO HISTORY Washers • Dryers • Air Conditioners Mr. Lodge was Ambassador there. Mr. Dobrynin was collecting exam¬ 1929-1969 Dishwashers • Radios • Phonos ples of Russian-American coopera¬ “No single person was present at more of the high-level Small Appliances tion over the years and Mr. Lodge diplomatic encounters of the cited the case of George Washing¬ wartime and immediate post¬ Available for All Electric Currents ton Whistler, father of the celebrated war periods than Charles painter, who went to Russia to help Bohlen. And none was better Local Warehousing for Immediate construct the St. Petersburg (Lenin¬ equipped to judge them. His memoirs have, therefore, Shipment grad)-Moscow railway. This quiet, unique historical^ unobtrusive diplomat, for the last value and decade Soviet Ambassador to the should go far United States, thinking in historical to answer the General Electronics, Inc. questions of and constructive perspectives, has those who are been able to suggest these to his own now challeng¬ SHOWROOM: 4513 Wisconsin Ave., government and ours many times, to ing the sound¬ Washington, D. C. 20016 EMerson 2- the benefit of both. How little our ness of Ameri¬ can decisions 8300 public, academic community and in that time.” even our own government keep in -GEORGE F. WRITE FOR CATALOG. Our catalog is mind this civilizing contribution of KENNAN sent to administrative officers of em¬ diplomacy, which is to say of diplo¬ 32 pages of photographs. bassies and consulates throughout mats who take more than a super¬ At all bookstores, $12.50 the world. ficial interest in their daily chores. I Norton; —SMITH SIMPSON 55 Fifth Ave./New York 10003

FOREIGN SERVICE JOURNAL, June, 1973 27 took a piece of stainless steel and officer, an old timer, and asked, on it they carved a couple who rep¬ “What does this mean to you?” He resent our emissaries into deep replied, “The girl used to be Person¬ space. We presume that as they are nel Officer in Delhi and decided to emissaries, they are diplomats from integrate. She tried her hand at po¬ the Foreign Service. Then they took litical work, couldn't cut the mus¬ the carved stainless steel and they tard and got selected out in the glued it to a rocket and got it go¬ 1950s. But that’s no reason for in¬ ing a zillion miles an hour and away decent exposure. The guy’s prob¬ it went. ably some Junior FSO she’s train- What is amazing about this is the mg.• _ »J Foreign Service couple on the side To another, younger member of of the rocket are completely naked! the Embassy, we made the same in¬ This surprises us somewhat because quiry and was simply told, “It looks you don’t usually send our diplo¬ like a couple of diplomats, having mats out without their pants on. a sweaty problem, decided to take The implication is that all FSOs run a shower together and the man dip¬ around drawerless. Anyway, there lomat has soap in his eyes and is stands these two FSOs side by side, groping for the towel. The girl dip¬ with the guy FSO raising his hand lomat is waiting to be dried off.” to say “howdy.” The girl FSO is not A lady in the Embassy took one Means to “This Week doing nothing. In the background look at the scene and said, “What’s in Guinea” are a bunch of lines, and stars and wrong with you? You filthy minded ■ In the December issue of the FOR¬ moons, and some math equations or something-” From another jun¬ EIGN SERVICE JOURNAL we discov¬ which we can’t understand, so we ior officer we got a request to give ered that America has sent a capsule don’t know how in the world a him any extra copies we had. off to the stars in order to commu¬ bunch of space foreigners are going Okay, let’s say that the old cap¬ nicate with people who live in outer to know what it all means. sule finally lands in somebody’s space. As a matter of fact we showed meadow on the space planet called First, what the Americans did the picture to several other people in Tulf of Gonkin. All the people there was this. This is what they did. They the Embassy. We showed it to one are going to have to send a commit-

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33 Why We Buy The 7.20% Weapons We Do 144 No More Dissent Interest on these bonds is exempt James R. Kurth Simon Serfaty from state and local taxation. 57 Ulster Is An International Issue 159 An Atlantic-Japanese Energy Policy Edward M. Kennedy Waiter J. Levy Members New York Stock Exchange, Inc. OVER 60 BRANCHES THROUGHOUT THE U.S. THE VIEW FROM Please send me further information on THE HOUSE FSJ Tennessee Valley Authority Bonds. 73 Our Limits Are Real SPECIAL TO AFSA MEMBERS Marne Barber B. Conable A two-year subscription to Address 80 Games The Pentagon FOREIGN POLICY (8 issues) is City . . . Phone Plays available for $15.00, a saving of $5.00 over the newstand Mrs. Ruth G. Adler, Manager Lcs Aspin price and $2.00 off the regu¬ A. G. Edwards & Sons, Inc. lar subscription rate. Barlow Bldg., Suite 1050, 5454 Wisconsin Ave. Washington, D.C. 20015 Send checks, stating that you 654-3000 are an AFSA member, to 93 Must We Always Foreign Policy Subscription Be Tough? Dept., 155 Allen Blvd., Christopher Leman Farmingdale, N. Y. 11735.

28 FORETON SF.RVICK JOURNAL, June, 1973 tee to visit us. Now here’s where drawers back on, draft a Foreign initial message. Please repeat our the strained relationship will come Office Note called the Tulf of Gon¬ reference in next transmission.” This into play. The President of the Tulf kin Resolution, and we will be on is going to infuriate the receiving of Gonkin will load up a space craft their list for the rest of eternity. All planet, not only because they don’t and zip it to America. The craft this, just because somebody wanted have our message of 120,000 years will land in Washington, D.C. Bands to take their pants off. ago by now, but they don t even will play and speeches will take But this isn’t the only problem. have their own initial message on place, with a thousand TV cameras As we understand it, the capsule file, it having been destroyed by trained on the door of the space¬ will take 40,000 years to reach personnel from Files and Records. craft. With breathlessly bated breath another space civilization. Now then, To cover up its blunder in not hav¬ the whole world will wait. by the time that civilization replies ing either of the messages, the space Do you know what’s gonna hap¬ to our note, it will be another 40,000 civilization sends back a terse and pen? Well, the Tulfs of Gonkin years. Well, here again this is going perhaps somewhat insulting mes¬ want to meet us half way, they’ve to cause unnecessary strained rela¬ sage to us. We reply in kind, and seen our two diplomats on the side tions. Do you know why? We’ll tell the next thing you know we’ve brok¬ of the spacecraft. That door opens you. When their space civilization en off diplomatic relations and both and out steps the President of Tulf message finally gets back to us after planets prepare for a showdown. of Gonkin, his wife, all his cabinet, a passage of 80,000 years, that mes¬ No, TWIG is against this commu¬ a few members of both parties, a sage will start out something along nicating in space, against our For¬ lady mayor, and a prominent owner the lines: “Reference is made to eign Service officers being sent into of a department store. Not one of your message 40,000 years ago. We the cosmos without space suits, but them will have a stitch of clothing concur with your thoughts, but most of all we are against the slur on! A hue and cry will go up, moth¬ would like to remind you that . . to our fine FSOs. It will take zil¬ ers will cover their childrens’ eyes, This puts the State Department lions of years before the rest of the The diplomatic corps, realizing the in a real bind because we’ve lost the space people quit snickering and hideous mistake, will start to take initial message we sent into space referring to us as that bunch of off their bloomers right there in pub¬ 80,000 years previously. So, as we dirty old men. lic. TV will have a field day. The usually do, we send a message Tulfs, enraged at such trickery, will back into space stating: “Unable to HAROLD E. VICKERS retreat to their space craft, put their locate our original text cited in your Conakry

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FOREIGN SERVICE JOURNAL, June, 1973 29 PROMOTION continued from page 10 2. Identifying outstanding talent for merit salary in¬ additional incentive to good performance. The lack of creases and for the selection of executive officers. class distinctions would require more meaningful job 3. Selecting candidates for training assignments, ex¬ descriptions in order to match skills and experience with change programs, etc. 4. Identifying any officers unable to perform well. the position to be filled. This should make personnel work more challenging to officers assigned to this task as Unsatisfactory efficiency reports covering not less than well. Supervision of the office in the absence of the chief [two] different assignments, with unsatisfactory per¬ of section would be rotated among the operational formance clearly documented as such, might be grounds for selection out. officers to give all some management experience. At small posts, all jobs below DCM could be filled by The proposed system is based on the observation that the current FSO class system has only a broad relation¬ operational officers. ship to the demands of actual work being done by Trainees might spend one year in rotational training individual officers. An FSO-6 at a small post may in fact around the Embassy and one year in an operational have more opportunity for independent judgment than assignment. If performance is satisfactory, they would an FSO-4 at a large post. In a large section, officers in then be given permanent assignment as an operational officer in one of the functional cones. grades 4 through 7 may often be doing roughly compara¬ ble work, with little difference in the quality of per¬ Executive officers would be appointed as vacancies in formance. their ranks occur. Selection would be made from among all officers specialized in the relevant cone who meet The proposal would give increased responsibility to the certain minimum qualifications—say, at least [three] individual officer, eliminating intermediate supervisory tours of duty in operational assignments at different posts positions which serve the primary function of giving the with no unsatisfactory efficiency reports. On selection, more senior officer “executive” experience. It also recog¬ they would be given appropriate training. nizes that experience gained at one post often has only A similar system would of course apply to the Depart¬ limited application to another assignment. ment as well. One possible disadvantage is that it creates a distinct Efficiency reports would lose their primary function of “elite” in the executive officer group. This is partially getting the officer promoted (or not promoted, as the offset, in my view, by the increased flexibility possible in case may be). They should instead be addressed to: bringing exceptional officers into its ranks without their 1. Identifying the officer’s havingstrengths to climband weaknessesup all rungs of the ladder as at present. for the purpose of making subsequent assignments as The proposal can of course be refined, but I think its operational officers. nature is clear. BONNIE M. LINCOLN 1000 WATT TRANSFORMER A new solution to an old travel problem. This amazing newly patented BEGG, INC. Realtors Converter - Adapter weighs only 3 ounces and handles up to 1000 SALES • RENTALS • MANAGEMENT watts. Take along your own coffee brewer, port¬ INSURANCE able hair dryer, curlers and hot combs, electric toothbrush, power tools any and all heating or steam, and most motorized appliances. These are only a few of its 1000 uses. Almost anywhere in the world, WASHINGTON . MARYLAND . VIRGINIA the Converter-Adapter will transform foreign electric power from 220/ 240 volts down to 110/120 volts AC, 50-60 cycles. This mighty midget fits into pocket or purse. Send only $10.95 each or 3 for $29.95 plus Specializing in the 75« each for postage and handling or write for further information. KENGEM, INC., P.0. Box 12425-K Finest in Capitol Station • Austin, Texas 78711 Residential Properties and Assisting Association of American Foreign Service Women Foreign Service Box 4931, Washington, D. C. 20008 Personnel for the Past 22 Years HOUSING ASSISTANCE AND ORIENTATION Room 1248, Department of State, Tel. 632-3573

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30 FOREIGN SERVICE JOURNAL, June, 1973 CONSIDERATIONS FOR by AID have been geared to the content into cereals, child feeding DEVELOPMENT needs of large operators; the needs and other areas has also focused from page 18 of small producers have, except in largely on the nutritional problems program loan can provide fertilizer special cases, received much less of the poor. and other agricultural inputs to a attention. However, while the rela¬ Furthermore, AID is establishing large number of small farmers, tive distribution of the benefits guidelines for ensuring that, in a provided an adequate distribution flowing from the new grain varieties manner consistent with the values network exists. is an unsettled issue, the absolute and developmental objectives of the Food for Peace assistance, which increase in food supplies in some recipient, developing countries, con¬ has assumed substantial proportions parts of Asia, for example, has un¬ sideration is given to employment in several countries, has probably doubtedly reduced the incidence of and income distribution problems in exerted a positive impact on em¬ famine, which by definition affects its assistance programs. These in¬ ployment and income distribution. the poorest, exerted some favorable clude: Concessional food sales under Title effect on nutrition and permitted • Taking employment and in¬ l have reduced the relative prices of expansion in employment-generating come distribution into account in basic wage goods and permitted programs where food supply has economic planning discussions, plac¬ non-inflationary expansion of em¬ been an important constraint. AID ing the primary emphasis on the ployment and output. Title II grant has actively worked toward the de¬ ways in which employment can be assistance has been directly aimed velopment and diffusion of this tech¬ adversely affected by distortions in at the needy through maternal and nical break-through. Another area exchange and interest rates, tariff, child feeding and Food For Work where ATD’s technical assistance has tax and wage policies as well as programs. had a positive impact on the welfare foreign exchange and investment al¬ AlD’s technical assistance has of the poor is public health. Over location systems and other economic also influenced employment and in¬ the years programs supported by policies. come distribution. The effects vary AID have contributed significantly • Requiring that capital and depending on what kinds of institu¬ to sharp declines in the incidence of technical assistance project propos¬ tions and groups are assisted, such communicable diseases, notably ma¬ als include a section explaining as whether assistance is for primary laria. In nutrition, the work of AID what attention was given to employ¬ or higher education. In agriculture on the fortification of staples, the ment and income distribution con¬ many of the institutions supported genetics of breeding higher protein siderations.

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FOREIGN SERVICE JOURNAL, June, 1.973 31 • Exploiting as fully as possible mensions of the employment and discriminate support for any ap¬ the potential of human resource de¬ income distribution problems in de¬ proach which promises to increase velopment programs in health, nu¬ veloping countries and of the ways employment or equalize income re¬ trition, education, training and in which they are affected by differ¬ gardless of other consequences and family planning to create a more ent types of policies, AID will, in costs. Continuing growth of output employable and productive labor collaboration with international and remains essential. The weight given force, raise social mobility and ex¬ national institutions, support im¬ to employment and equity consider¬ pand the opportunities open to the provement of the concepts and the ations varies from country to coun¬ poor. To support this effort, research measurement of employment and try and is a matter for each country is being undertaken to explore income distribution. to determine for itself. These are what socio-economic groups benefit • Consideration will be given to not issues on which the United' from different types of human expanded AID support for public States or other donors should seek resources development programs. works which lend themselves to la¬ to impose their own values or goals. • Reorienting the foreign training bor-intensive methods (such as the This does not mean, however, that provided for developing country ad¬ construction of farm to market bilateral and multilateral donors ministrators, engineers, economists, roads, drainage, irrigation, terracing should remain indifferent to the em¬ educators and other experts, to the and conservation, housing) by food ployment and income distribution conditions of developing countries, assistance and other means. performance of aid-receiving coun¬ with special attention to the employ¬ • In AID’s extensive involve¬ tries, any more than they have ment and income implications of ment in programs in the agriculture hitherto remained indifferent to public policies and of technology. sector, increased emphasis will be their growth performance. The im¬ • Although AID is not heavily placed on problems of employment portant point is that development involved in industry sector pro¬ and income distribution, in particu¬ should be considered within an an¬ grams, where it is involved, em¬ lar on problems of the small farmer alytical framework which includes phasis is to be given to support of and landless laborer. these key aspects. It should be pos¬ programs and policies which make Placing an emphasis on employ¬ sible to develop and implement a for increased employment and im¬ ment and income distribution fac¬ set of policies and programs which proved income distribution. tors should not, however, mean ex¬ will promote economic growth, em¬ • In order to develop improved clusion of other essential elements ployment and equity as coordinate understanding of the nature and di¬ of the development process or in¬ objectives. ■

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32 FOREION SERVICE JOURNAL, June, 1973 DYNAMICS OF DEVELOPMENT Reconstruction and Relief Assist¬ that was in the Arab-Israeli war. from page 15 ance: Rehabilitation and recon¬ Egypt has now agreed to resume Where family income is inadequate struction in the countries of Indochi¬ debt payments and the Sudan is and the only security for old age is na will be an important foreign as¬ negotiating in that direction. in surviving children, families will sistance obligation of the United It is often alleged that the United not stop having them if a quarter of States over the next few years. But States carries a disproportionate those born die before they reach the the task of relief and reconstruction share of the world’s assistance bur¬ age of six. will not be confined solely to In¬ den. This assertion is wrong. In the Education and Human Resource dochina. US assistance will also be years immediately following World Development: Developing countries needed to provide relief and recon¬ War II our country was alone in the have doubled and tripled the size of struction to other areas torn by aid-giving business. Now the United their school systems in the past ten man-made or natural disasters. States provides about two-fifths of years, but there are more children the total Free World aid to the out of school than there were ten 6 ESIDES knowing the problems we developing countries and the other years ago. Rapid population growth are up against, and what we are 15 assisting countries provide the has outrun system expansion. doing to contribute toward their so¬ other three-fifths. US foreign eco¬ For a country with per capita lution, the Compleat Diplomat will nomic aid amounts to about one- GNP of $200 per year or less, it is be able to deal with the large body third of one percent of our GNP. impractical to attempt universal ed¬ of mythology which has grown up The American people spend five ucation in Western type schools, about ATD. Here are some of the times as much for tobacco as they with individual classrooms with 30 common canards: do for foreign assistance. The feder¬ students per room, teachers with Economic aid is accused of being al budget provides 30 times as much graduate degrees, visual aids, and a “giveaway.” It is not. About two- for societal improvement in the all the rest. These countries must thirds of AID’S development pro¬ United States as it does for all the develop nontraditional, low-cost sys¬ gram consists of loans. Less than rest of the world put together. tems of education if the tide of one-fourth of one percent in loans Many think that US foreign as¬ illiteracy is to be rolled back and made by AID and its predecessor sistance is a drain on our balance of people are to approach a quality of agencies have ever been in default payments. It is not. The US balance life they rightly expect as human for failure to pay interest or princi¬ of payments and gold outflow prob¬ beings. pal payments on time. The bulk of lems result primarily from major Washington Area Honsim Gride Free comprehensive information kit containing local tax and sal¬ ary scales, a financing guide, school, recreation and health facilities, history and everything else you need to know about living or buying in Northern Virginia, county by county. Also, what to —^ mfYiAYVi do in Washington D.C., moving hints and ^ details of our complete relocation services, rental housing and property W (JlArlA/t j management. M WOPERTIES INC Write or call collect (Area Code 703) \_XKC»LTORS 3807 Mt. Vernon Ave., Alexandria, Va 836-8915 4701 Old Dominion Dr., Arlington, Va 525-6900 4205 Evergreen La., Annandale, Va 256-9100 1384 Chain Bridge Road, McLean, Va 356-1323 6556 Blacklick Road, Springfield, Va 451-0111 9637 Lee Highway, Fairfax, Va. 591-7000 1805 Belle View Blvd., Fort Hunt, Alexandria 768-5100 13414 Occoquan Road, Woodbridge, Va 494-7101 309 Maple Ave., W.. Vienna. Va 938-5800

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NAME

ADDRESS

FOREIGN SERVICE JOURNAL, June, 1973 33 defense expenditures, US invest¬ support humanitarian agencies and effective program involving millions ments abroad, and tourist spending disaster relief. of people, and in the end it is only overseas—not from foreign aid. We provide American agricul¬ people that are important. US foreign assistance is accused tural products for food for school We have no alternative but to of sending dollars abroad at a time lunch and food for work programs join with the other developed na¬ when we need dollars at home. The both directly and through voluntary tions of the world in a common aid program sends US goods and agencies such as CARE nad the effort to do our fair share to help services abroad, not dollars. About Catholic, Protestant and Jewish re¬ the peoples of those poor countries 86 percent of AID’s funds spent for lief programs. who seek to help themselves in all purposes remain in the United AID is the most significant factor more effectively harnessing their States, and on commodities alone, in the world today in encouraging resources to improve their lives. $972 million out of a total of $975 public attention to focus on the pop¬ Human problems do not stay bot¬ million reported in fiscal year 1971 ulation problem and the develop¬ tled up behind national borders. came from more than 4,000 Ameri¬ ment of family planning programs. Diseases ignore national bound¬ can companies in all 50 states. We AID sponsors each year about aries. Polluted air and polluted had close to 1,300 technical service 13,000 trainees from the poor coun¬ waters flow freely across national contracts valued at $682 million tries in educational programs in this boundaries. The impact of uncon¬ with US private companies and in¬ country and elsewhere. trolled human reproduction vitally stitutions. Included were contracts AID provides credit to small affects the well-being of all nations. with 134 American universities and farmers in Colombia, fertilizer to Our children and our grandchil¬ colleges. small farmers in India, health facili¬ dren must live in the same world Foreign assistance is charged with ties to poor people in rural areas, with the children and grandchildren doing for others what others will not education for millions of students, of the peoples of the rest of the do for themselves. Again not true. nutrition and feeding programs for world, all continents, all races, all The poor countries invest at least low income groups and a wide vari¬ creeds. The kind of lives our chil¬ eight dollars of their own funds for ety of help to individual citizens in dren and their children after them every dollar that comes to them the poor countries to improve their will live, and the kind of world they from foreign assistance. present condition and to assure bet¬ will live in tomorrow, depends on ter lives for their children. whether we do our part to help THE foreign assistance programs Foreign assistance is a working, today. ■

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34 FOREIGN SERVICE JOURNAL, June, 1973 government which we have aided the neoisolationism now fashionable LETTERS ID pX^ | since World War II, our support for among so many of yesterday’s fer¬ Nationalist China was hampered by vent international activists. excessive American criticism of that As such I find it very uncon¬ A Reminder government. vincing, an appraisal I suspect he ■ The JOURNAL is to be congratu¬ KARL L. RANKIN shares to judge from his plaintive lated on its March issue, large¬ South Bridgton, Me. closing appeal for debate—rather ly devoted to the ethics of Foreign than dismissal—of his proposal of Service reporting, and to a chapter On Ambassadorial Appointments “strategic disengagement.” To start in our relations with China. I appre¬ ■ The Board of Directors should the debate, I would ask whether it is ciated particularly the cogent re¬ explain to the AFSA membership possible to imagine a workable sys¬ marks of John Stewart Service, and why it did not take a public posi¬ tem of “strategic disengagement” the JOURNAL’S splendid editorial, tion on the President's nomination which did not imply, for each mem¬ reprinted from January, 1952. of William B. Macomber, Jr., to ber, a high degree of economic au¬ Yet the net impression of the serve as Ambassador to Turkey. tarchy, and a defense establishment March issue leaves me uneasy. Will The published record of Mr. strong enough to ignore all conflicts the younger generation of the For¬ Macomber’s confirmation hearing or threats of conflict elsewhere in eign Service be encouraged to ac¬ (Senate Foreign Relations Commit¬ the world. If not, the debate should cept the Peking regime as made up tee document 92-156) reflects the be over. If, instead, he is merely of nice guys, whom we should controversy generated by this nomi¬ proposing a policy for the US re¬ have embraced long ago, while nation. gardless of what other countries find dumping the Nationalists at the The Board’s silence was a dis¬ possible for themselves, then he same time? service to the Foreign Service. Mr. shouldn’t be afraid to call the pro¬ Memories are short, and we Macomber claims he has “reformed” posal by its proper name: isolation¬ should not overlook an opportunity Foreign Service personnel opera¬ ism. to remind ourselves and others of tions, while his critics believe he has Incidentally, Mr. Ravenal’s at¬ pertinent facts and prospects relat¬ contributed immeasurably to down¬ tempt to clear ground for his own ing to the years following the defeat grading the role of the Department proposal by cutting down the bal¬ of Japan. Here are a few: of State in the foreign affairs com¬ ance of power approach to interna¬ 1. In the summer of 1948 we munity. tional order is regrettably and had every intention of maintaining A public and detailed examina¬ transparently polemical, in contrast our consulates in Communist-held tion of the conflicting claims by the to the objective description of past centers, notably Peking and Senate Foreign Relations Commit¬ systems which precedes it. (Surely, Shanghai. It was the Communist tee would have assisted the President it is tendentious to suggest that the treatment of our consular officers and the Secretary of State in in¬ balance of power system is the and other Americans, as well as of itiating the urgently needed reforms “least hospitable to efforts for direly United States Government property, which eluded Mr. Macomber. needed international cooperation.”) which made it clear that no offical JOHN J. HARTER What Mr. Ravenal seems to for¬ contacts with us were desired. We Washington get is that the existing international had no alternative but to with¬ BOARD COMMENT: AFSA, as a matter environment limits severely the draw. of policy, does not take public posi¬ choice of a viable international or¬ 2. The Peking leadership of to¬ tions with respect to ambassadorial der or foreign policy. The balance day remains substantially the same nominations. The Association has, on of power approach, to adapt what that threw us out in 1949, inflicted several occasions, considered establish¬ Churchill said of democracy, may thousands of casualties on American ing a mechanism to provide recom¬ mendations to the Executive and Leg¬ not be the most desirable policy, but forces in Korea in the following islative Branches on ambassadorial becomes so when one considers the years, and liquidated millions of fel¬ nominations. Individual Board mem¬ realistic alternatives. low-countrymen to maintain itself in bers have favored the establishment CARL A. BASTIANI power. Moreover, in the best Com¬ of a committee composed of distin¬ Genoa munist tradition, that regime has guished citizens, former career and never ventured to let the Chinese noncareer ambassadors, to advise the No Limited Horizons people decide, in a meaningful elec¬ President, the Secretary of State, and ■ Many thanks for publishing tion, whether China’s destiny indeed the Legislative Branch on ambassado¬ Charles Kennedy’s lively and frank belongs to Communism. rial appointments. The AFSA Board letter to those of us who, for one has not endorsed this proposal. How¬ 3. Not a few informed Ameri¬ reason or other, have chosen to toil ever, we would appreciate receiving cans believe that had our support comments from members on this issue. in the consular trenches. Being for the Nationalists been more con¬ blessed with his former, splendid sistent and more purposeful, China Rationale for Isolationism? slot in Belgrade, I can say that con¬ today would not be Communist, and ■ Earl Ravenal may eschew the sular work here is still just as chal¬ American armies would ne er have label “isolationism” but his discus¬ lenging and rewarding as during the been called upon to fight in Korea sion of the problem of international half-decade he spent in Yugoslavia. or Indochina. Or at least that this order (FSJ, April) strikes me as (Don’t bother to reach for your was not an incredible prospect. As simply an attempt to provide the pens, friends, I have already asked in the case of virtually every foreign missing, respectable rationale for for an extension!)

FOREIGN SERVICE JOURNAL, June, 1973 .35 On the other hand, I hope that those displaced. Then, if you’re Foreign Service have participated in the dismal prospects he forecasts worth your salt, you can do some a government-wide Savings Bond for our future elevation are in the pithy reporting, handle some impor¬ Campaign. Facsimile signed letters process of change, e.g. the February tant visiting delegations, show off went out to all posts from the Secre¬ NEWSLETTER article designating your earthy local lexicon learned in tary, addressed to all colleagues, some 40 principal officer jobs as be¬ visa interviews, and carry on with reminding us of “the great impor¬ ing primarily consular-oriented. Cer¬ new hope for positions of high trust tance of savings bonds to all Ameri¬ tainly, a consular officer who resigns and responsibility. Alternatively, you cans . . . one of our most effective himself to doing primarily consular could screw things up royally and means of protecting the Nation’s work in his mid-career (according still have a safe home to return to. economic strength and security . . . to the pledge taken at threshold In any event, doing all those Your support is vital ... I sincerely time) may not be very competitive things is a lot more fun than grous¬ hope that each of you will partici¬ when the time comes to pick Consuls ing around about limited horizons. pate.” General, DCMs, and even Ambassa¬ So, having been welcomed by CG A joint State/AID/USIA mes¬ dors. And if one relies on the im¬ Kennedy, I thank him for the sage sage instructed posts to “designate a personal, computerized “coners” in advice, and for telling it “as it is.” top administrative official or senior Washington, the chances of ever At the same time, I invite my con¬ officer to serve as chairman.” At the getting a substantive “out-of-cone sular brethren to join in seeing that end of the campaign, results were to excursion” are indeed slim. consular work is done as well as it be reported with such details as Yet, I am convinced that consular can possibly be done, with some employee strength, percentage of officers who are abroad (aren’t we faith that these important tasks— participation, number of new buyers all?), who have proved they can run performed wisely and with imagina¬ and dollar amounts allotted; about their own sections or sub-sections, tion—will not go unrecognized. all that could be reported except who try to view consular work with¬ names of buyers and non-buyers. THOMAS R. HUTSON in the overall objectives of the mis¬ At this post, we went through the Belgrade sion, and who are willing to stick routine of assigning a chairman and their noses into other sections’ af¬ distributing promotional materials fairs (many times to their great dis¬ An Issue of Privacy but no efforts were made to encour¬ comfort) to offer opinions, analyses, ■ Surely the time has come to do age or discourage purchasers. The and advice based on one’s travels away with the annual US savings undersigned let it be known that he and conversations with the young bond campaign. This would save a regarded decisions on personal sav¬ and old, farmers, policemen, busi¬ great deal of time and effort in the ings and investments as private. nessmen, illiterates and university Department and would remove a How much longer can the De¬ professors, can—through hard work long standing and irritating invasion partment go on “urging” purchases and painful persistence—sometimes of personal privacy. of US Government bonds as both a sneak into substantive slots . . . amid This year as for many years since patriotic duty and “a sound and no doubt cries of foul play from World War II, the Department and convenient method of regular sav¬ ing?” The first (the argument from Life and L^ve in the Foreign Service by Edward M. Cohen patriotism) is invalid at least so long as the US Government has no diffi¬ culty financing its deficit from mar¬ ket financial sources, and the second is gratuitous. In any case, govern¬ ment employees should not be sub¬ jected to greater pressure than are other private citizens. The assign¬ ment of senior officers as post cam¬ paign chairmen, and the detailed reporting required from each post can only be described as bureau¬ cratic pressure designed to compel individual decisions which properly should be private. One could of course argue that these pressures are not all that effective. In that case, why should we go through the motions? Does the Board of Directors of the Foreign Service Association TO MY COLLEAGUES IN PER/MGT: AS you can see by this photo, the Ambassador have the courage to take a stand on and l are fully complying with your directive regarding fair employment practices in the hiring of women. These are our new employees. The one at the far left is this issue of personal privacy? our Senior Political Advisor; the next three are Economic/Commercial Analysts; EDWARD DOHERTY and the four on the right are drivers in the Motor Pool. Munich

36 FOREIGN SERVICE JOURNAL, June, 1973 poses” introduced by Senator Hugh "(3) The provisions of section 636 and AID NEWS Scott of Pennsylvania title VIII of the Foreign Service Act of “(k) (1) In accordance with such 1946, as amended, shall apply to par¬ AID Foreign Service Retirement regulations as the President may pre¬ ticipation in the Foreign Service Re¬ scribe, the following categories of per¬ tirement and Disability System by any AFSA has continued its vigor¬ sonnel who serve in the Agency for In¬ such officer or employee. ous support for AID Foreign Serv¬ ternational Development shall become “(4) If an officer who becomes a par¬ ice retirement. The Association’s participants in the Foreign Service Re¬ ticipant in the Foreign Service Retire¬ Chairman, Bill Harrop, appeared tirement and Disability System: ment and Disability System under para¬ before the Senate Foreign Rela¬ "(A) Persons serving under unlimited graph (1) of this subsection is ap¬ appointments in employment subject tions Committee in April to urge pointed by the President, by and with to section 625(d) (2) of this Act as the advice and consent of the Senate, the Committee to amend the For¬ Foreign Service Reserve officers and or by the President alone, to a position eign Service Act’s retirement and as Foreign Service staff officers and in any Government agency, any United disability provisions to permit ca¬ employees; and States delegation or mission to any in¬ “(B) A person serving in a position to ternational organization, in any inter¬ reer AID Foreign Service partici¬ which he was appointed by the Presi¬ pation in that plan. national commission, or in any inter¬ dent, whether with or without the ad¬ national body, such officer shall not, AFSA/AID has been pushing for vice and consent of the Senate, pro¬ by virtue of the acceptance of such an speedy consideration of the re¬ vided that (1) such person shall have appointment, lose his status as a par¬ served previously under an unlimited ticipant in the system. tirement provisions so they would appointment pursuant to said section go into effect prior to June 30, 625(d) (2) or a comparable provision "(5) Any such officer or employee who 1973. Unfortunately, the outlook of predecessor legislation to this Act, becomes a participant in the Foreign is that Congress will not act and (2) following service specified in Service Retirement and Disability Sys¬ tem under paragraph (1) of this subsec¬ quickly on this issue. proviso (1) such person shall have served continuously with the Agency tion shall be mandatorily retired (a) at Specifically, AFSA/AID has for International Development or its the end of the month in which he made a number of representa¬ predecessor agencies only in posi¬ reaches age seventy or (b) earlier if, tions to AID management seek¬ tions established under the authority during the third year after the effective date of this subsection, he attains age ing their endorsement of having of sections 624(a) and 631(b) or com¬ parable provisions of predecessor leg¬ sixty-four or if he is over age sixty- the AID Foreign Service pro¬ islation to this Act. four; during the fourth year at age visions added to the State Au¬ “(2) Upon becoming a participant in sixty-three; during the fifth year at age thorization Bill on which hearings the Foreign Service Retirement and sixty-two; during the sixth year at age were held in early April. AID man¬ Disability System, any such officer or sixty-one; and thereafter at the end of employee shall make a special contri¬ the month in which he reaches age agement did not accept the AFSA bution to the Foreign Service Retire¬ sixty: Provided, That no participant proposal, but has introduced the ment and Disability Fund in accordance shall be mandatorily retired under this Foreign Service retirement pro¬ with the provisions of section 852 of paragraph while serving in a position the Foreign Service Act of 1946, as to which appointed by the President, visions in the 1973 AID Authoriza¬ by and with the advice and consent of tion Bill (S. 1711) which amends amended. Thereafter, compulsory con¬ tributions will be made with respect the Senate. Any participant who com¬ the Foreign Assistance Act. Simi¬ to each such participating officer or pletes a period of authorized service lar legislation failed to pass the employee in accordance with the pro¬ after reaching the mandatory retire¬ last Congress, due to differences visions of section 811 of the Foreign ment age specified in this paragraph Service Act of 1946, as amended. shall be retired at the end of the month between the House and Senate on in which such service is completed. other issues in the Bill. These is¬ INDEX “(6) Whenever the President deems sues still have not been resolved. it to be in the public interest, he may AFSA is working hard directly extend any participant's service for a Members’ Interests 39 with the Congress and with AID period not to exceed five years after management to make sure that Foreign Service News 38 the mandatory retirement date of such officer or employee. the retirement legislation is given AFSA Activities 39 “(7) This subsection shall become ef¬ prime attention. However, the out¬ State Dept. News 38 fective on the first day of the first look for quick action in this Ses¬ AAFSW News 39 month which begins more than one year after the date of its enactment, sion of Congress is not promising. Foreign Service People 40 S. 1711, “To Amend the Foreign As¬ except that any officer or employee sistance Act of 1961, and for other pur¬ AID News 37 who, before such effective date, meets

FOREIGN SERVICE JOURNAL, June, 1973 37 the ret irements for participation in ployee earning less than $16,609 in the Foreign Service. We trust the Fori =.n Service Retirement and Dis¬ to request payment for overtime that State’s managers will not be ability /stem under paragraph (1) of has been guaranteed by law since far behind. this si jsection may elect to become 1966. a p :rticipant before the effective date of this subsection. Such officer or em¬ The Committee has sent two STATE NEWS ployee shall become a participant on letters to the Comptroller General Post Guidelines the first day of the second month fol¬ rebutting misleading information lowing the date of his application for The Association has filed an presented by State’s administra¬ earlier participation. Any officer or em¬ unfair labor practice against the tors in their attempt to have all ployee who becomes a participant in Department of State as a result the system under the provisions of duty overtime worked character¬ of the Department’s publication paragraph (1) of this subsection, who is ized as “occasional and irregular." of an article in the April Newslet¬ age fifty-seven or over on the effective We expect a decision from the date of this subsection, may retire ter, “State, AFSA Set Guidelines General Accounting Office on this voluntarily at any time before manda¬ for Posts.” Although the article tory retirement under paragraph (5) of matter in the very near future. If purports to describe agreed pro¬ this subsection and receive retirement we are successful, all duty secre¬ cedures for the implementation benefits under section 821 of the For¬ taries, all duty communicators, eign Service Act of 1946, as amended. of Executive Order 11636 at over¬ and all duty officers will receive “(8) Any officer or employee who is seas posts, it is in fact an inter¬ separated for cause while a participant monetary compensation for the pretative commentary on the con¬ in the Foreign Service Retirement and overtime actually worked. Disability System pursuant to this sub¬ tent of these agreements. AFSA section, shall be entitled to benefits in The Committee is attempting to chapters and members are urged accordance with subsections 637 (b) establish guidelines for overtime not to rely on the April Newsletter, and (d) of the Foreign Service Act of compensation for Staff Assistants but to rely on the text of the 1946, as amended. The provisions of and Staff Secretaries whose as¬ section 625(e) of this Act shall apply agreement itself. to participants in lieu of the provisions signments require them to remain of sections 633 and 634 of the Foreign at work until their principal leaves. Promotion Process Disputes Service Act of 1946, as amended.” A large retroactive overtime pay¬ After failure to resolve two fun¬ ment to the Staff Assistant in one damental issues with respect to STAFF CORPS NEWS Bureau in the Department has re¬ the promotion process, AFSA has cently been paid. In this case, the filed an appeal with the Board of Action on Overtime Staff Assistant was regularly work¬ the Foreign Service to decide the The Association has established ing over 55 hours a week, despite following two issues: an ad hoc committee to deal with a staggered schedule. 1) Should the Precepts and pro¬ problems of overtime in the three cedures for the promotion board Foreign Affairs Agencies. Mem¬ be submitted to the exclusive bers of the Committee are: Ray FOREIGN SERVICE NEWS representative 60 days (manage¬ ment’s position) or 120 days Smith (Junior Officer), Francine Personal Appearance Before (AFSA’s position) in advance of Bowman (Staff Corps), Jim Holmes Retirement Board (Communicator), and Tex Harris convening such boards? (Mid-career Officer). The Courier In late February, prior to AFSA’s The Department’s 60-day pro¬ Association has been asked to Certification, AFSA Board mem¬ posal would preclude any dis¬ appoint a member. bers Bill Lenderking and Jack agreements between AFSA and The immediate work program of Tuohey requested USIA manage¬ the Department on promotion the Committee is to resolve indi¬ ment to amend the USIA Retire¬ Precepts being appealed to the vidual overtime problems which ment Board Precepts to provide Board of the Foreign Service are referred to the Association, to an opportunity for officers to oral¬ for resolution, as the minimum obtain a ruling from the Comp¬ ly present information relevant to time necessary for an appeal troller General that overtime the Board’s consideration of their is 74 days. The Department’s worked by duty personnel is “reg¬ cases. After a careful study of the proposal, in effect, means that ularly scheduled” overtime, and AFSA request, USIA management an appeal by the Association to obtain overtime benefits for agreed to permit Agency officers would mean delaying the pro¬ Staff Officers and Staff Secre¬ being reviewed for involuntary re¬ motions affected by that Pre¬ taries. tirement to appear personally, if cept. This is a fairly blatant The Committee has been suc¬ the officer wishes, before the USI4 attempt by administrative man¬ cessful in overturning a NEA Retirement Board. agement to deny appeal rights post’s refusal to pay a secretary Unfortunately, the Department on the Precepts. for overtime work. In this case, of State has refused to permit its 2) Should administrative man¬ the post unilaterally imposed officers being reviewed for invol¬ agement alone decide who is to stricter requirements for overtime untary retirement the right of per¬ serve on promotion panels? AFSA compensation than are estab¬ sonal appearance. AFSA has ap¬ believes that the members of pro¬ lished in 3 FAM 230. The post said pealed the Director General’s de¬ motion boards should have the that it would allow persons earn¬ cision to the Board of Foreign complete confidence of both ad¬ ing below $16,609 to request pay¬ Service. Once again, USIA man¬ ministrative management and the ment for overtime beginning on agement has taken a leadership elected employee representative. March 4, 1973. The right of an em- role in providing due process for To this end, AFSA proposes

38 FOREIGN SERVICE JOURNAL, June, 1973 that administrative management Home Leave Tax Deductions still way behind in our c 'lection should prepare a list of candi¬ and the US Tax Court of money for this purpose. dates for each selection Board, In a hearing on May 2, 1973, AFSA Awards Program and that the Association and man¬ Chief Judge Brennan of the US agement should jointly agree on Tax Court ruled that Foreign Serv¬ The closing date for the Herter, those to be appointed to the ice employees seeking refunds Rivkin and Harriman Awards has boards. from the IRS for home leave ex¬ been extended to July 15 to per¬ penses cannot challenge the IRS mit more nominations from the flFSfl ACTIVITIES in that court, including the “small field. These annual awards are Due to AFSA/Spain’s initiative, tax case” procedures for amounts given for outstanding intellectual Foreign Service employees in under $1,000. originality, courage, forthright¬ Spain won at least a partial vic¬ The judge explained that the ness, and “constructive dissent.” tory in obtaining increased hous¬ Tax Court was created by Con¬ The Herter Award is for senior offi¬ ing allowances for Madrid, Barce¬ gress to help taxpayers seek judi¬ cers (FSO 1 and 2 and equival¬ lona and Seville. The increases cial redress without first having to ents), the Rivkin Award for mid¬ ranged from 28 percent to a mere pay the IRS in a disputed claim. dle-grade officers (FSO 3-5 and 1 percent, and alleviate but do The Tax Court has jurisdiction, equivalents), and the Harriman not resolve the serious problem therefore, only in cases where the Award for junior officers (FSO 6-8 of housing expenses in Madrid. IRS is seeking more money from and equivalents). As usual, the housing allowance the taxpayer and has issued a cer¬ Complete information on the deficiencies fall most heavily on tificate of statutory deficiency. If format for nominations appears the Staff Corps and Junior Offi¬ you have submitted an amended in the March issue of the Journal cers. return for an earlier year in an or please phone the Association effort to claim a home leave ex¬ office (338-4045). Send nomina¬ MEMBERS’ INTERESTS pense deduction, an IRS notice of tions to AFSA, Awards Committee, disallowance is insufficient to give 2101 E Street, N.W., D.C. 20037 Dollar Devaluation the Tax Court jurisdiction. The Anyone with knowledge of a Overseas allowances affected “small tax case” procedures in Foreign Service colleague's ac¬ by the dollar devaluation of Feb¬ that court are therefore available complishments can nominate for ruary 14, 1973 have been adjusted only if the IRS disallows your these $1000, tax-free, awards. retroactively to that date. State claim and is asking for more airgram A-3614 of April 23, 1973 money through the issuance of a provides all the details, including notice of deficiency. As soon as flflFSW NEWS the adjustments for each affected you file a petition with the Tax post. Alleged efforts by OMB to Court, the IRS is prohibited from Oliver Owl is now searching for change the groundrules for cal¬ collecting the amount requested talent, as well as for books! He culating the cost-of-living allow¬ until the case has been con¬ invites you to help advertise the ance (reported in the May AFSA cluded. AAFSW Book Fair by participating News) fortunately were not con¬ An IRS disallowance without a in the Poster Contest. nected to the devaluation exer¬ notice of deficiency can only be cise. The danger is apparently challenged in District Court or the Design a poster—11" x 14" with still present, however, and AFSA Court of Claims, a procedure AFSA the following information: will utilize all of its authority un¬ hopes to begin as soon as appro¬ Book Fair der E.O. 11636 to prevent any ero¬ priate cases are received and suf¬ October 15-19 sion of Foreign Service allow¬ ficient funds are collected from Department of State ances. voluntary contributions. We are 2201 C Street, N. W. (Proceeds for the benefit of the AAFSW Scholarship/Education Fund)—Optional On Family Day, three first prizes will be awarded for the best post¬ er in each category: Adults, Sec¬ ondary school children, and Pri¬ mary school children. As the AAFSW plans to use all of the posters, they will become the property of the Book Fair Com¬ mittee. Oliver would appreciate your help! So, before the Contest clos¬ ing date, September 4, turn your poster in to the Housing Office, Room 1248, Department of State.

FOREIGN SERVICE JOURNAL, June, 1973 39 flflFSW/flFSfl JOINT tions. For AFSA and AAFSW mem¬ McCloskey. Matthew Henry Mc- bers, one hour’s consultation time Closkey, Jr., former Ambassador is without charge. Thereafter, the to Ireland, died on April 26 in PROJECT-EDUCATIONAL fees are partly subsidized, partly Philadelphia. on a user-paid basis. CENTER Metcalf. Gabriella E. Metcalf, FSIO-retired, died on April 21, in A year and a half or so ago, the Washington. Miss Metcalf served idea came up that, after 15 years’ with the ECA and USIA in Stutt¬ successful experience, the widen¬ DEATHS gart and Frankfurt, then with FOA, ing of AFSA’s educational coun¬ Ennis. James Henry Ennis, direc¬ and later with USIA at Palermo, seling services might render them tor, management systems staff of Rome, Bangkok and Frankfurt be¬ still more effective. the State Department, died on fore her retirement last July. Miss Envisioned were the expansion April 26 in Washington. Mr. Ennis Metcalf was a talented artist and of the scope of the counseling it¬ entered on duty with the Depart¬ was preparing for an exhibition of self and the addition of some ment in 1946 and joined the For¬ her sculpture at the Watergate services. How can children return¬ eign Service in 1954. He served Galleries this year. She is sur¬ ing from overseas be helped to at Athens, Beirut and Saigon. He vived by a brother, Richard, 3504 feel less like foreigners here in is survived by his wife, Barbara, Raymond St., Chevy Chase, Mary¬ their own country? Would some of 2911 39th St., N.W., a daughter land. parent/child discussion groups and two sons. Teller. Hugh H. Teller, FSO- help people to take stock when retired, died on March 31 in the reverse culture shock of a Farrell. William Stokes Farrell, Heidelberg. Mr. Teller entered the Washington assignment hits them? FSO-retired, died on February 23, Foreign Service in 1924 and Would a bit of selective tutoring in New York City. Mr. Farrell en¬ served at Stuttgart, Zurich, Naples fill in gaps between schools over¬ tered the Foreign Service in 1929 and Copenhagen, before his re¬ seas and stateside schools? and served at Mexico City, Addis Ababa, Aden, Beirut, Istanbul, tirement in 1961. He is survived The AFSA and AAFSW Boards Tehran, Baghdad and Damascus. by a nephew, Capt. L. W. Teller, voted to support a year’s trial run USN, of Silver Spring, and a of a “Foreign Service Educational He retired in the late ’40s. niece, Louise Pierucki of Albu¬ Center.” The resolution authoriz¬ Fischer. Edward P. Fischer, AID- querque, N.M. ing its establishment stated the retired, died on February 16 in FSEC objective “to establish an Miami Beach. Mr. Fischer joined Walmsley. Walter Newbold Walms- educational/family ‘service-base’ the foreign assistance program in ley, Jr., retired Ambassador, died in this country for consultation 1960 and served in Korea and on April 1 in Washington. Ambas¬ and planning with children and Vietnam before his retirement in sador Walmsley entered the For¬ parents; to provide means for as¬ 1969. He received an award from eign Service in 1927 and served sessing children’s inadequate or the Korean Government for his at Sao Paulo, Aden, Prague, Ha- lapsed progress; to offer remedial work in establishing a bureau of bana, Pernambuco, Rio de Janei¬ facilities; and to develop innova¬ standards there. He is survived ro, Lisbon, Paris, Rome, Moscow tive ways to counter such Foreign by his wife, Amelia A., 4705 N. and as Ambassador to Tunisia be¬ Service conditions as are adverse Michigan Ave., Miami Beach, a fore his retirement in 1963. Upon to children's progress.” son, Larry P., of Upper Marlboro, retirement he served as Secretary A Policy Direction Committee to Md., a sister, brother and grand¬ General of the Atlantic Institute oversee the Center’s operation daughter. in Paris, with the Popuiation and, in a year, to evaluate its use¬ Johnson. Ellen I. Johnson, mother Crisis Committee and as a gov¬ fulness, is being formed. Mary of Ambassador U. Alexis Johnson, ernor of DACOR. He is survived by Weiss and Priscilla Streator have his wife, Maria Teresa Sanchez- been appointed by Mrs. William died on April 20 in Santa Barbara, Calif. Mrs. Johnson lived with her Domenech y Baux Walmsley, 2540 Leonhart, President of AAFSW, as son in the Washington area for Massachusetts Ave., N.W., a step¬ that organization’s representatives many years. She is also survived daughter and two grandchildren. on the Committee. AFSA’s Board by a daughter, Mrs. Gerald Warner, has appointed Alan Lukens and Zweig. Ben Zweig, FSO-retired, of Washington and eight grand¬ Allan Furman as AFSA’s members died on March 24 in Tucson. Mr. children. on the Committee. Zweig entered the Foreign Serv¬ The Foreign Service Education¬ Mokma. Gerald Mokma, FSO- ice in 1924 and served at San al Center’s office is in the AFSA retired, died on April 6 in La Mesa, Jose, Tegucigalpa, Nogales, Ha- office building, 2101 E Street, N.W., California. Mr. Mokma entered the bana, Rome, Mexico City and Washington, D.C. The telephone Foreign Service in 1926 and Nuevo Laredo before his retire¬ number is 338-4045; Mrs. Martha served at Berlin, Budapest, Ant¬ ment in 1958. He is survived by Clark is the Center’s secretary and werp, Bogota, Windsor, Surabaya his wife, Lia, 1451 S. Abbie Lane, is glad to answer questions or and Tijuana before his retirement Tucson, three sons and a daugh¬ make appointments for consulta- in 1957. ter.

40 FOREIGN SERVICE JOURNAL, June, 1973 Dart Custom Four-Door Sedan

Fury III Four-Door Sedan

Newport Custom 2-Door Hardtop

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