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Board of Directors WILLIAM C. HARROP, Chairman THOMAS D. BOYATT, 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. F. ALLEN HARRIS WILLIAM R. LENDERKING, JR. LINDA LOWENSTEIN W. A. WHITTEN FOREIGN SERVICE JOURNAL Staff MARCH 1973: VOLUME 50, NO. 3 GERALD BUSHNELL, Executive Director CLARKE SLADE, Educational Consultant HELEN VOGEL, Committee Coordinator C. B. SANNER, Membership and Circulation

Journal Editorial Board The Nixon Foreign Policy: Toward TERESITA C. SCHAFFER, Chairman a New Concert of Powers 8 RALPH S. SMITH, Vice Chairman DR. CURTIN WINSOR FREDERICK QUINN EDWARD M. COHEN HARRIETT S. CROWLEY G. RICHARD MONSEN JOEL M. WOLDMAN

The (Real) Ills of the Foreign Service Journal An Interview with Dr. George I. Misttowt 10 SHIRLEY R. NEWHALL, Editor RALPH S. SMITH MclVER ART & PUBLICATIONS, INC., Art Direction

Advertising Representatives How China Makes Its JAMES C. SASMOR, 295 Madison Ave., New York, N.Y. 10017 Foreign Policy 12 (212) 532-6230 ROSS TERRILL ALBERT D. SHONK CO., 681 Market St., San Francisco, Calif. 94105 (415) 392-7144 JOSHUA B. POWERS, LTD., 5 Winsley Street, London W.1 01- 580 6594/8. International Representatives. John Paul Vann: Portrait of an Activist 15 ©American Foreign Service Association, 1973. The Foreign LACY WRIGHT 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

CHINA AND THE FOREIGN SERVICE Second-class postage paid at Washington, D. C. January, 1952 17 January, 1973 18 Why Policy Makers Don't Listen 18 BARBARA TUCHMAN Foreign Service Reporting 22 JOHN STEWART SERVICE The FOREIGN SERVICE JOURNAL is the journal of professionals in foreign affairs, published twelve times a year by the American For¬ eign Service Association, a non-profit organization. Communication Re: The Quiet Crisis 6 Material appearing herein represents the opinions of the writers and is JIM YOUNG not intended to indicate the official views of the Department of State, the United States Information Agency, the Agency for International Development or the United States Government as a whole. Membership in the American Foreign Service Association is open to the professionals in foreign affairs overseas or in Washington, as well as to persons having an active interest in, or close association with, DEPARTMENTS foreign affairs. Membership dues are: Active Members—Dues range from $13 to $52 Editorials 2 annually depending upon income. Retired Active Members—Dues are $30 annually for members with incomes over $15,000; $15 annually The Bookshelf 25 for less than $15,000. Associate Members—Dues are $20 annually. For subscription to the JOURNAL, one year (12 issues); $6.00; two Letters to the Editor 35 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: Liu Shih-ming (Mrs. Jack Friedman) October 30, 1967. P2J EDITORIAL The AFSA China Luncheon

Board of Directors of the Association took special pleasure in arranging our luncheon on January 30 to Mandate for What? honor the China hands of the 1940s. It was high time that the Foreign Service and the country paid homage to this generation of FSOs who striking result in the two Foreign Service repre¬ were so ungratefully castigated because the facts they sentation elections held to date is the small percentage reported were not welcome. of votes for “no representative.” The men and women in The 300 places at the lunch were reserved within a State and USIA want a voice through their exclusive week, and the Association contracted for closed circuit representative in making the decisions which affect the television to enable a spillover crowd of about 500 in Foreign Service. Nine out of ten of those voting opted for the State Department Auditorium to hear Barbara Tuch- an exclusive representative. This mandate appears to us man and John Service speak. (Their remarks are re¬ to contain three basic elements. printed in this issue and the Board commends them to The first element is for the employee’s viewpoint to be you.) cranked into each and every decision that affects the The event was broadcast nationally, and was filmed Foreign Service. Our primary concern is to adopt policies by the major television networks. Press coverage was which enable the Foreign Service to fulfill its mission of extensive. There have been editorials in, among other pa¬ effectively serving the interests of the United States. pers, the New York TIMES, the Baltimore SUN, the Min¬ However, too often in the past, policies have been neapolis TRIBUNE, the Philadelphia INQUIRER, the Fort adopted with secondary regard for the interests of em¬ Worth STAR TELEGRAM, the Boston GLOBE, the Miami ployees. Administrative concerns came first, employees HERALD, the Chicago NEWS and the Louisville COURIER second. We all recognize the real constraints on all deci¬ JOURNAL. sions. But it is imperative that the effect of a decision But the purpose of our luncheon went beyond the ex¬ on the people in the Service be weighed along with the tension of long overdue recognition to colleagues. We effect of a decision on the administration of the Service. wanted to discuss and reflect upon integrity in diplomatic The second element of the mandate appears to be a reporting. We wanted to underscore the importance of call for consistency in the application of personnel poli¬ maintaining the highest standards of professionalism in cies. The single most voiced complaint about personnel the Foreign Service. We wanted to underline our belief policies relates not to the substance of the policies but that in the nation’s interest her policy makers must weigh to the fact that they are in continual flux. It appears that all the facts. our only fixed policy is to change the system every other It is the duty of the Foreign Service to provide the year. The elected employee representative has a mandate facts as we see them to the President, and we shall con¬ to insist on a continuity of sound policies. tinue to do so. Finally, there is agreement in the Foreign Service that we must have fair procedures and guarantees of due process in the decisions that affect our careers. This mandate includes a comprehensive grievance system and About This Issue such basics as access to files, review of efficiency reports prior to submission, open information regarding assign¬ ments, and fair procedures regarding security matters. N January 30, AFSA held a historic luncheon Our most difficult job in the Foreign Affairs Agencies honoring the old China Hands of the Foreign Service. as exclusive representative is to develop a consensus on Barbara Tuchman and John Stewart Service spoke be¬ the personnel system which will most effectively meet fore a packed house, including an overflow audience the needs of the Service and fulfill our expectations. which practically filled the Department’s largest audito¬ AFSA represents all segments of the Service and must rium, on the theme of Foreign Service reporting. formulate personnel policies which will treat fairly all AFSA was proud to have been able to make this the groups competing for recognition in each of the For¬ event possible, and the JOURNAL is likewise proud to eign Affairs Agencies. If, and it is a big if, we can de¬ present as its star attraction in this issue the speeches velop a consensus in each of the Agencies, we can have given by Mrs. Tuchman and Mr. Service on that occasion, a decided impact on shaping the personnel system. Con¬ along with excerpts from AFSA Board Chairman versely, if we cannot develop a consensus, then we will William C. Harrop’s introductory remarks. Ross Terrill’s in the long run abdicate personnel policy formulation to article on how Chinese foreign policy is made is a management. fitting reminder of the historic importance of the events Developing a consensus is a political process—-one which John Service so courageously reported on from which an open AFSA is better able to perform than the Chungking. managements of the Foreign Affairs Agencies. There is Some readers may find Lacy Wright’s portrait of one large catch. The people affected must participate in John Paul Vann, “warts and all” an ironic companion the process. If we can achieve participation from all sec¬ piece to this discussion on China. Here, too, however, tors of the Foreign Service, we are confident we can we have an example of courageous individualism, this come up with responsible positions which reflect a true time in an AFSA member who was honored during consensus. his lifetime with the Herter Award.

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6 FOREIGN SERVICE JOURNAL, March 1973 to fear from admin than the other way around. Mechanization for example. It can be great or it can be a monster. It depends upon how well the people who de¬ sign and control the machines apply two principles: (1) Machines should work—people should think; (2) Ma¬ chines exist to serve people and not vice versa. Machine systems are successful when the designers ask the sub¬ stantive personnel what they want from the machine. As All risks a corollary Washington should ask the posts what the post wants. (There was such a questionnaire about 18 months ago but I don’t know what resulted from it.) Mechanization of payroll and disbursing for me on insurance balance has been good. Although communication between producer (Wash.) and user (individual at post) has be¬ come difficult simply because “you’re there and I’m here,” the development for me as post budget and fiscal type has enable me to devote more time to budget and less to fiscal (accounting, payroll, and disbursing). This is good and some of us budget and fiscal types may yet $1.50 per develop into budget-management officers as some of our job titles read. Mechanization brings centralization to mind. Is cen¬ tralization good? It depends. I regard the ideal as one of $100 per annum centralizing work and decentralizing decision-making. As an example, both common sense and neoclassical marginal productivity economic theory agree that in areas where labor is plentiful but machinery scarce it is wise to use relatively large inputs of labor. Washington may and should dictate certain goals which a post must WORLDWIDE accomplish but allow the post which knows its local conditions to select its own methods. The CASP is (including USA) probably a healthy development in this area in that it is a clear and systematic statement of general goals that ARA wants posts to accomplish and asks the posts to state its methods. Once Washington starts giving un¬ NO DEDUCTIBLE solicited advice or orders to a post concerning methods, the CASP will degenerate but so far I do not believe that this has been the trend. Unfortunately, the Department seldom asks posts Underwritten at for comments on proposed administrative changes. That should be done much more often. (An encouraging sign— CA/PER some months ago surveyed fiscal personnel Lloyds about a new system of long-range assignment.) Another improvement would be the requirement that all officers in State Department Washington at junior For very many years U.S.O.I.B. Ltd. have insured management levels and up be encouraged during their members of the Foreign Service. First class service careers to spend at least two two-year tours overseas and claims settlements. at small posts—class 3 and 4. This proposal neither emasculates the GS corps nor is it vindictive. It simply Complete and return coupon for full details. states that a man in Washington cannot appreciate conditions at overseas posts unless he has spent some time there responsible for a job at that post and not simply as a Washington visitor. GS people working for the To: United Services Officers' Insurance Brokers Ltd. Foreign Service agencies should be sent overseas occa¬ Clanville Lodge, Andover, Hampshire, England. sionally with a guarantee of a return to a comparable Washington job. This is nothing new—DOD for years Please airmail details of your special policy for now has been sending civilians overseas on this basis, serving members of the Foreign Service. and USAIDs are staffed with many a PASA person. Name So, Professor Mason, the emphasis should not only be on training people to adapt to the organization: there is Address still room for good people working well together to get the organization to adapt to people. JIM YOUNG Santo Domingo

FOREIGN SERVICE JOURNAL, March 1973 7 The international scene was witness once before, Now, as we look forward to four more years of the Nixon policies, we in the 19th century setting of Europe, to a may expect to see the gradual con¬ concert of powers. struction of a new international sys¬ tem. By way of analogy, one might say that the first term cleared the land and laid the foundations upon which a new international structure can arise. The work of the first term is by THE no means completed. But the mo¬ mentum of these achievements is cumulative, and it seems probable the second stage will arise even as NIXON the first continues. A basic theme of this process will be a shift of priority in the conduct of foreign policy from the realm of political-military FOREIGN affairs ,to that of political-economic affairs. Military considerations will by no means be removed or static. But the consent of the two principal POLICY: possessors of military might to rest at strategic equality will set the stage for a truly multi-lateral world Toward a New system—a concert of powers. This emerging international sys¬ tem will operate at two levels, a level of world interests and a level Concert of regional interests. At the level of world interests, we have the “world powers,” which may include several of Powers nations of Western Europe, Japan, China, the Soviet Union, and the DR. CURTIN WINSOR, JR. United States. These nations are so designated because they have present or foreseeable interests throughout the globe. Their interests are, to varying degrees, interlinked. These “linkages” have already come past year was an election strated, though the importance of to be, more or less, mutually under¬ year distinguished not by charismat¬ nuclear capability and the mainte¬ stood and respected, a process ic personalities but rather by the nance of a nuclear stand-off be¬ which has led to an era of crisis- divergence of views of the candi¬ tween the United States and the prevention at the “world” level. dates. Now that the record and pre¬ USSR continue to be a matter of This emerging concert of powers sumably the views of President Nix¬ policy as well as of fact. We have is not limited to direct relations on have been affirmed by the seen a determination evinced by the among the “world” powers. It American people, it seems in order Nixon Administration to achieve manifests itself also in several that we should examine some con¬ step-by-step nuclear disarmament regions of strategic importance to siderations of what they may bring through the maintenance of strategic these powers, where key regional us in the future. equality—a course of safety and powers play important roles and During the past four years, the thoroughness rather than dramatic have -the ability to affect notably the Nixon policies went far in clearing breakthroughs. Even the Vietnam interests of the world powers as well away the debris which has littered War, which historians may call as the stability of the given region. the international landscape since the America’s test of national maturity, This is the case of Israel in the final days of World War II. Policies seems to be fitfully subsiding. From Middle East, India in South Asia, and styles have been adopted which where I sit, there is a sense of and a number of countries in the have averted crisis and the need for happening—of passage—a transi¬ vast Pacific area. These areas and, crisis diplomacy. The sterility of the tion from one era to another. to a much lesser extent, Africa and nuclear arms race has been demon- The first term of the Nixon Pres¬ Latin America, have heretofore idency has thus set the stage by been fooal points of rival great- The author, a former FSO, is Special Assistant to the Chairman of the Republi¬ clearing away the Cold War and the power interests which in turn have can National Committee for International tenacious confusions which arose greatly exacerbated regional insta¬ Relations and National Security Affairs. during and after World War II. bilities. There has thus been a kind

8 FOREIGN SERVICE JOURNAL, March 1973 of self-fueling mechanism for both "Today's diplomacy spans continents regional and global mischief. (Re¬ cent cases in point being the Indo- and is no longer the province of Europeans, Pak War of 1971 and, in a far more though Europe continues to be a factor complex manner, the Indochinese wars.) at the world-peace level. This diplomacy While it is too soon to declare that the post World War II era is incompasses the cultures of East and West. altogether gone and forgotten, it It spans ideologies and it spans races." does appear that as the concert of powers emerges and military issues diminish, world diplomacy is turning increasingly to matters of an economic character. Trade has in¬ creased, new international economic patterns are taking shape, new in¬ which were once the semi-exclusive tions of interests which include multi¬ terests are being forged. New prob¬ preserve of a single world power or national corporations and some lems also are arising, of course. The even a few are opening up to more transnational interests. But national sheer growth of modern technolo¬ multi-lateral trade. By way of ex¬ interests remain the predominant fac¬ gies has created pressures unknown ample, Latin America, once largely tors in today’s diplomacy, and these in previous eras. (It is interesting to an economic province of the United are still defined by national bureau¬ note that ninety-five (95) percent States, now enjoys increased interest cracies and their constituent interest of all scientists ever bom are still from Europe and Japan. Africa, groups. alive today.) And yet, the common¬ once the province of France and Today’s diplomacy spans conti¬ ality of these problems works, at Britain, is now becoming increasing¬ nents and is no longer the province least in some ways, toward the ly of interest to the United States. of Europeans, though Europe con¬ creation of a new international sys¬ The international scene was wit¬ tinues to be a factor at the world- tem. ness once before, in the 19th- power level. This diplomacy encom¬ Uncontrolled expenditure of the century setting of Europe, to a con¬ passes the cultures of East and earth’s resources is a matter of in¬ cert of powers, which grew out of West. It spans ideologies, and it ternational concern as we become the turmoil of the Napoleonic wars. spans races. All of these factors increasingly aware of our planet’s The kings and princes of that era were non-existent in the era of finite character. The growing men¬ sorted out their personal aims and Prince Metternich. ace of world-wide pollution of the managed to harmonize them— air, waters and lands is rapidly be¬ largely under the genial guidance of In the four years which are yet to coming a matter of diplomatic ur¬ Prince Metternich—for a century; come, the Nixon foreign policy may gency. The dramatic problems of and the system perished only with emerge as both architect and pros¬ the planet’s wild-life are a matter of the onset of the First World War. pective tenant in this evolving con¬ grave concern. There is the plight of But theirs was a system of men and cert of powers. We have witnessed its ocean mammals, for example, human interests and understandings the Nixon diplomacy which pre¬ and the problem of fishing industries that was limited to the dimension of vents crisis and de-emphasizes mili¬ which can drive whole species, once a single continent, and set in an era tary considerations in favor of dependent upon reproduction in of individualistic diplomacy. In that economic ones. Perhaps we will also vast numbers, to extinction in sever¬ era, Prince Metternich sustained a witness the end of the bi-polar po¬ al generations. (Vide the Atlantic semblance of balance by dint of his litical-military era that followed herring, the yellow-tail flounder, personality and the commonality of World War II. We will see it give and the Atlantic salmon.) But new such problems as the industrial way to the multi-lateralism which is technologies have opened up areas revolution and the emergence of emerging from an era of increased for positive cooperation as well as bourgeois interests. and broadened world trade. This need for controls. The exploration In today’s world, President Nixon tendency will be further encouraged of outer space and underspace have has sought to clear away the obfus¬ by the need to protect the planet’s opened new doors in this respect, as cations of the Cold War era and to environment and to join in scientific has the field of medical research. coalesce the institutional interests of endeavors for the betterment of the All of these diverse considerations today’s world-power governments, species. And from these consider¬ and imperatives are contributing in much the same way as Britain’s ations perhaps even the flow of pressures toward the emergence of policies and Metternich’s skills ideas may grow along with trade the new concert of powers. achieved a concert in the 19 th Cen¬ and scientific cooperation. The As the bi-polarity of the post- tury. But there is a great difference evolving world order will be a less World War II environment becomes in the two worlds. Today’s interna¬ personal one than Metternich’s. It history and gives way to diverse tional relations are conducted by will represent broad and impersonal interests in an essentially economic more broadly-based bureaucracies— coalitions of interests. But, for this world system, we can also foresee a even when there is a strong element very reason, it may endure to give better environment for the nations of personal leadership at the top— our children and their children the south of the Equator. Continents and these in turn reflect vast coali¬ basis for generations of peace. ■

FOREIQN SERVICE JOURNAL, March 1973 9 Foreign Service. Smith: You mean, the wives . . . Mishtowt: I don’t mean to put all the blame on the wives, by any on means. A number of officers simply don’t find job-satisfaction; and others have told me that they too REAL were concerned with the frequent moves, especially where education problems were involved. You see the role that children play in this. HIS There is also the “re-entry phe¬ nomenon.” Many American Foreign Service children evolve fantasies Of about their own country—so that when they finally return home they may have serious problems of re¬ IDO entry into American society and the American school system. Smith: Getting back to the parents, Foreign what about alcohol? Mishtowt: The Foreign Service has Service no monopoly on alcoholism, of course. But with all the obligatory receptions and what-not, alcohol is obviously a “way of life” in the dip¬ lomatic community. And with scotch at $1.50 a bottle, exposure to alco¬ . . if you take any hallocinogen hol is not exactly a rare phenom¬ or any mood changing drug and give it on a enon. I think “exposure” is the key regular basis to a young individual word. We began to try a frank and this is going to have some effect on the direct approach to this problem maturing process." some ten years ago; but people, in¬ cluding the United States Govern¬ ment, just weren’t ready for it. There were no formal programs for this kind of approach in the federal Following a term of office which was compounded by unfamiliarity with service. The Civil Service Commis¬ marked by greatly expanded medical driving conditions in other coun¬ sion had not come out with any coverage and service for the Foreign tries. That seems to have tapered programs or policies on alcoholism. Service and the Department, Dr. George I. Mishtowt recently retired as Director off. More recently, it has been drugs So we kept our program pretty of the Office of Medical Services. and psychiatric problems—not em¬ much sub rosa for a while. But now He was interviewed by a member of ployees but dependents. . . . But of course this is all changed. There the JOURNAL board, Ralph Stuart Smith. long-term hospitalization, of course, is the Alcohol Rehabilitation Act, is not necessarily an index of the which enjoins all government agen¬ most common problems. cies to address this problem aggres¬ Smith: The Foreign Service has been Smith: Right. In any case I think sively. Since July 1 of 1972, in called a “hazardous profession.” the popular image I referred to re¬ fact, we have had a section of our Would you put it in a class with lates more to psychological factors: office devoted to this, and we hope sword-swallowing or high -wire broken homes, alcohol, and things we will be able to provide much work? generally coming apart. . . . more help in the field than we were Mishtowt: I wouldn’t say it’s par¬ Mishtowt: In a way it’s strange: able to heretofore. In this connec¬ ticularly hazardous, but it does American society is so mobile . . . tion, we are trying to encourage use have some built-in problems. . . . and yet, breaking roots here and of the AA — and interestingly Smith: What have been the major moving abroad is often traumatic. enough, there are A A chapters in causes of long-term hospitalization? For some people, frequent moves almost every major city in the Mishtowt: In the late ’50s and early thereafter are even more so—espe¬ World. We’re trying to coordinate ’60s it was chronic infectious hepa¬ cially when there is prolonged sepa¬ activities with the AA in this regard. titis. Since we started the gamma ration from children because of edu¬ We’re also trying to impress on su¬ globulin program, that has almost cation. There are some families pervisors abroad that when an em¬ disappeared. In the middle and late that just don’t stand up under this, ployee has this problem they should ’60s, it was car accidents—the same and so the husband finds himself address it directly and not just sweep thing as in the United States, but under heavy pressure to leave the it under the rug or recommend that

10 FOREIGN SERVICE JOURNAL, March 1973 the employee be transferred to ceptible, a more ready prey, than dence of the problem probably has Washington or another post. The other young people? leveled off. supervisor has a responsibility for Mishtowt: On the contrary, I’m Smith: I think that young people talking to the employee and referring afraid it is just a matter of time be¬ would draw a very sharp distinction him to the appropriate facilities— fore some of the others “catch up.” between marijuana and hard drugs. medical, AA, or otherwise — for It depends on the region, of course. Would you agree with this? help. Up to now we have had little or no Mishtowt: I would agree that mari¬ Smith: Realistically speaking, do problem with American adolescents juana should not be in the same you think an employee would go to in Central or Latin America, and I class with the hard drugs. A lot has his counselor or minister for help? believe this is simply a reflection of to be learned about marijuana; but Wouldn’t he be afraid of a stigma local conditions; but I don’t know the amount of active ingredient in it, on this record? how long it will stay that way. as generally available in the US, is Mishtowt: It’s certainly true that Smith: You have spoken about such that there is very little phys¬ over the years individuals have not drugs and FS children. How about iological or psychological effect approached their superiors in em¬ the parents? from it. On the other hand, when bassies for help; nor, in many cases, Mishtowt: I don’t know of any For¬ you get potent pot or hash, with have they approached us for help, eign Service employee who has been significant concentrations of THC, because they were afraid this would involved in the use of heroin. We it is an hallucinogen. So when young hurt their careers. But more recently have had rare cases of employees people say that pot doesn’t hurt, I we have had many more people who have self-medicated themselves will agree because most of the pot come to us. I could specifically name with amphetamines or barbiturates, that is available has so little THC in —but of course will not—individu¬ and we have had to evacuate them it that there’s very little in the way als who have been “reformed alco¬ and help them. But the problem is of real psychological or physiologi¬ holics” for a number of years and essentially with the young people. cal effects. have been holding down important This is an area in which we are Smith: If marijuana were legalized, and senior positions overseas with working very actively. We have a wouldn’t it be possible to control no difficulty. full-time psychiatrist who is work¬ the strength of it? Smith: What about hard drugs ing with the dependents’ school sys¬ Mishtowt: You have to remember among Foreign Service children? tem, with the President’s Special that the plant, in the US, is prac¬ Mishtowt: As I mentioned, psy¬ Action Group, with the Department tically ubiquitous, and therefore al¬ chiatric illness is now the major of Defense and their programs, and most impossible to control . . . cause of long-term hospitalization. he is trying to start programs of Smith: But if the sale of marijuana Ten years ago it was virtually un¬ preventive education in our schools were legalized, would you not have known for us to have a dependent overseas. the advantage that standard brands adolescent in a mental hospital for Smith: Would you say that the use would come onto the market, so any period of time; and now it’s not of hard drugs among FS children is that the buyer would know, just unusual for us to have five to ten— on the rise or leveling off? from looking at the package, that though by no means all drug-related Mishtowt: We are seeing more cases the dosage wasn’t excessive? —at any given time, many of them now, but I think this is at least part¬ Mishtowt: Yes, definitely, there hospitalized for six months to two ly due to the fact that word has got¬ would be that advantage; but the years. I’m sure that these problems ten around that we are trying to question remains as to who is going we meet are a direct extension of help families with this problem, that to use it. I’m oversimplifying the what is happening in our society in we are able to provide some as¬ problem a bit, but ... if you take the United States. But there are cer¬ sistance. So there are more families any hallucinogen, or any mood¬ tain differences, and these relate to coming forward now. In spite of changing drug, and give it on a reg- the ease of obtaining drugs over¬ this, I think that the actual inci¬ Continued on page 33 seas, and their cheapness. There are many countries where there are For some time the American community in Bangkok has suffered from a virtually no controls over barbitu¬ serious situation which involves the rather widespread use of heroin by rates or opiates . . . One can go into American adolescents, US Government personnel and others. the drug store and ask for anything MED, in cooperation with Defense and the Special Action Office for on the shelf, and it will be dispensed Drug Abuse Prevention (SAODAP) in the Executive Office of the President, without a prescription. Of course, has now set up a treatment and rehabilitation facility in Bangkok. On Jan. 15, 1973 a team of four drug treatment and training specialists, it’s also true that the THC—or consultants to SAODAP, landed at Bangkok and started treating patients tetrahydrocannabinol — content of and recruiting local paraprofessional personnel. pot and hash varies enormously The first 12 months of operation will be completely funded by SAODAP, from one place to another. In India, after which the facility will probably be operated as a shared administra¬ for example, it'is ultra-high com¬ tive support arrangement under the auspices of an employees association. pared to the United States, where This is a community problem and the community agreed in several the material has been cut so many meetings in early November to support wholeheartedly this type of program, times to make a profit for the mid¬ under the control of the Ambassador. It will be the first type of facility dleman. of this kind ever established overseas. Smith: Do you think that young AFSA welcomes the Department’s response to this problem and lends its full support to MED’S efforts in this field. Americans are somehow more sus¬

FOREIGN SERVICE JOURNAL, March 197S 11 In foreign relations, as in all other relations, a policy has been formed only when commitments and power have been brought into balance.—U.S. Foreign Policy, by Walter Lippmann

HOW CHINA MAKES rTS FOREIGN POLICY ROSS TERRILL

IGHTS burn late in the new the Chinese foreign policy establish¬ hua. Yet how little the huffing and cream-brick block which houses ment was very nearly derailed by a puffing availed. Today, Chi is Act¬ China’s Ministry of Foreign Affairs. hot avalanche of ultraleftism. Ch’en ing Foreign Minister, and Ch’iao is After the Cultural Revolution, the Yi, the Foreign Minister at that the Vice Minister in charge of West¬ number of personnel at the Ministry time, was harassed and “supervised” ern affairs and top man at the UN was slashed by almost one-half. so unrelentingly by Red Guards that for the 1971 session. Those who remain must work fan¬ Mao eventually declared: “How can At one point in the struggle of the tastic hours to cope with a swelling Ch’en be struck down? He has been Cultural Revolution, 91 senior men volume of business. Some work who with us forty years and has so many in the Ministry put up a manifesto are too tired and ill to work, like achievements. He has lost twenty- backing Ch’en Yi against those who Vice Minister Ch’iao Kuan-hua this seven pounds in weight. I cannot reviled him as “poison” and classi¬ past summer. Some who speak a show him to foreign guests in this fied him as “bourgeois.” Almost Western tongue fluently must punc¬ condition.” every responsible man one meets in tuate policy work with translating Ch’en Yi no longer works on for¬ the Ministry today is one of the 91, tasks. “Peking wives”—it occurred eign policy, but it does not seem as are most of the ambassadors who to me—must have even more to put that he has been purged. A senior have been flying out to occupy new up with than “Washington wives.” Chinese military man, when it was posts and dust down old ones. I (I say “wife,” but in fact the Chi¬ remarked to him by a European often talked with one official, of nese no longer use the established ambassador that Ch’en’s going was middle age, as much a scholar as a word for wife, “t’ai-t’ai”; they use a “loss,” replied with a broad smile: diplomat. Like his wife, he is a “ai-jen,” “lover,” for spouse or “Your loss is our gain.” One of Chi¬ graduate of Yenching University. amorous friend alike.) na’s true military experts, Ch’en Yi, His home is as well furnished with Yet morale is high. Officials are though seriously ill, has probably books as his mind is with ideas. I naturally encouraged that their Min¬ been working on high military mat¬ asked if the zealots (in conversation istry has become as much a focus of ters. He resurfaced last summer as they were always called “chi-tso- attention as any foreign ministry in a vice chairman of the top Military jen-tzu,” “ultraleftists”) had tried to the world. The more so because it Affairs Committee.* Of other high get at his books. For there was a bit firmly relegates to an unlamented officials in the Ministry, it is re¬ of “book burning” in 1967. Self- past the period of 1966-1967 when markable how few were blown away appointed maestros passed the wand by the storms of the Cultural Revo¬ of ideology over certain works, and lution. In 1967, the two Vice Min¬ pronounced even gold to be dross. isters most assailed by the zealots “No,” he answered with an expres¬ Copyright © 1971, 1973 by Ross Terrill sion that gave nothing away. And if from ",800,000,100: The Real China” hy were Chi P’eng-fei and Ch’iao Kuan- Ross Terrill. Reprinted hy permission of they had come? “If they had quoted Little, Brown and Company, Inc. in as¬ Chairman Mao to me, I would have sociation with the Atlantic Monthly * Ch’en Yi died of cancer in early Jan¬ Press. uary, 1972. quoted other parts of Chairman 12 FOREIGN SERVICE JOURNAL, March 1973 Mao to them—and I would have lations with Communist countries, has found its way to the highest lev¬ won.” (Remarkable was the diplo¬ but the visitor learns nothing about els of the Foreign Ministry. What mat’s belief in the power of per¬ it. looks like genuine collective leader¬ suasion, in the importance of the The Ministry itself seems in some ship has been set up in the Revolu¬ correct Word. But you find it every¬ ways a very conventional place. You tionary Committee. It is quite differ¬ where in China. The Chinese appar¬ cannot altogether wonder that the ent from the days when Ch’en Yi ently have not, like many in the zealots of 1966-1967 considered it a ran the Ministry with brusque au¬ West, from the greatest philosophers “bourgeois” island cut adrift from thority. PLA men and Vice Minis¬ to the hippie at the corner, lost con¬ the seething Maoist mainland. Dip¬ ters work things out together. The fidence that reason and conduct are lomatic procedures are much as in amiable and somewhat reticent Chi related.) a European foreign ministry. There is no strong man. Having set this new pattern and found it good, We find continuities in the his¬ are ambassadors, and there are third secretaries; commercial counselors China may not appoint a really tory of new China’s foreign policy community that rival Andrei Gro¬ and military attaches. Very few be¬ strong successor to Ch’en Yi for myko and J. Edgar Hoover. There come ambassadors who have not some time. have been only two regular Foreign been career diplomats for many Geographic groupings within the Ministers in the regime’s 22 years. years. Secret files exist. Zealots Ministry have altered interestingly Most of China’s senior diplomats briefly challenged this practice in over the years. The original tenden¬ come from a small circle of nego¬ 1967, one crying out as he rifled the cy in 1949 to divide the world into tiators and propagandists who cut files on May 13, “What’s so terrific “socialist countries” and “the rest” their teeth on four diplomatic oper¬ about secrets? To hell with them.” has totally gone. In those days one ations prior to Liberation. First, a Yet the attempt in the middle of the Vice Minister, Wang Chia-hsiang, liaison group headed by Chou En-lai Cultural Revolution to transform the looked after the Communist bloc at the Nationalist capital of Han¬ style of Chinese foreign policy in and another, Chang Han-fu, spanned kow (and after Hankow fell to the the end went little further than frills everything else. Gone, too, is the in¬ Japanese, at Chungking); second, a clusion of the Asian Communist branch outfit at Kweilin which put states in the same department as the out a news service. A third knot European Communist states. Later worked out of Hong Kong; Ch’iao We find continuities in the his¬ they formed a separate and impor¬ Kuan-hua distinguished himself tory of new China's foreign policy tant department of their own. Pre¬ there. Fourth, the Chinese Commu¬ ferring to salute the future rather community that rival Andrei than reflect the present, Peking in¬ nist party was represented on the Cromyko and J. Edgar Hoover. “truce teams” which the Marshall cluded the affairs of Laos and Cam¬ Mission operated in North China There have been only two regular bodia with “Asian Communist and Manchuria. Huang Hua, the Foreign Ministers in the regime's states.” present ambassador to the UN, was 22 years. Since the Cultural Revolution an active part of the Marshall Mis¬ brought a severe pruning of the sion machinery. He ran the informa¬ Ministry, there is now a single de¬ tion work at the Mission’s Execu¬ partment for “Asia,” Communist tive Headquarters in Peking. Many like what clothes to wear and how and non-Communist states together. of China’s senior diplomats are many courses to serve at diplomatic The other geographic departments Averell Harrimans of the East, their dinners. are West Asia and Africa (this resilient careers interlaced with dec¬ starts west of Afghanistan); East One important change in organi¬ ades of their country’s '(or Party’s) zation did occur (beyond the cutting Europe (including the USSR); the foreign policy. down in size). A Revolutionary West. This last department takes in What does the Chinese foreign Committee now runs the Ministry, not only the United States, but West policy machine consist of? It is and several sources style it a quite Europe and Australia and New Zea¬ small by US standards—the For¬ effective example of this new kind land. But it has a quite powerful eign Ministry has no more than a of organ. It is chaired by Chi P’eng- Deputy Director heading an Amer- ica-Australasia subdepartment Mr. thousand people—but not simple. fei, top man among the Vice Minis¬ Chou En-lai as Premier heads the ters, and Acting Foreign Minister. Mr. Ling Ching) and another (Mr. State Council. It is a kind of cabinet But the second and third figures in T’ang Hai-kuang) heading a West at the pinnacle of the state admin¬ the Revolutionary Committee are Europe subdepartment. In addition istration. Its well-staffed corridors not Vice Ministers. They are Peo¬ to these geographic departments, the include a Staff Office for Foreign ple’s Liberation Army men (Li Foreign Ministry contains five func¬ Affairs. The Foreign Minister feeds Yao-wen, Ma Wen-po). At a ban¬ tional departments: Information, to this office—for the benefit of quet given late in June by the diplo¬ Protocol, Personnel, Treaty and Le¬ Chou and his staff—papers from his matic corps, to thank the Ministry gal, and General Affairs. Ministry. Into the Staff Office also for the recent diplomatic tour of Outside Peking are officials who goes material from the “internation¬ various provinces, it was made clear work in the “foreign affairs section” al liaison” section of the Party Sec¬ in the ways the Chinese make these of each province’s Revolutionary retariat of the Chinese Communist things clear that Mr. Li and Mr. Ma Committee. These people, twenty or party. This section may well be ex¬ ranked above Ch’iao Kuan-hua and thirty strong in the provinces I vis¬ tremely important, especially for re¬ other Vice Ministers. So the Army ited, deferred on all nonlocal points

FOREIGN SERVICE JOURNAL, March 1973 13 to the Foreign Ministry people who post-Red Guard era. The elegance come immediately? Postponing the traveled with me from Peking. They and cultivation are matched by a delivery of the letter, I drove in¬ have no policy role, and concen¬ certain strength reserved for occa¬ stead to the Ministry. We had a trate on receiving foreign visitors sions of need. During the Hundred “business meeting” about my pro¬ with charm and informed conversa¬ Flowers period in the spring of gram, none of it of an immediate tion. One in Canton had dug up a 1957, Professor Chang assailed the character. Eventually the subject of fact about Australia that few Aus¬ Chinese Communist party for hav¬ Snow’s letter of introduction to a tralians know. “Oh, you are from ing “contempt for the past” and a leader of the Association was Melbourne,” he remarked the morn¬ “blind belief in the future.” He is broached. Just what was this letter? ing he met me at the Canton train still capable of caustic comment on I explained its harmless nature. “We station. “It is, of course, the former bureaucrats, and gentle irony about will deliver it for you.” So I handed capital, in the days before Canberra ideologists who talk as if they had it over. Three days later when the was built.” There is little point in history’s agenda tucked in an inside Association figure gave a lunch for talking about foreign affairs to most pocket. me at the Peking Hotel, a Foreign of these provincial foreign affairs We discussed political science, Ministry official was present through¬ officials. They seem to specialize in which he studied at Columbia Uni¬ out our four hours of conversation. what might be called the “kangaroo” versity and the London School of Liaison between the Ministry and or “fauna and flora” aspects of for¬ Economics, and taught for many the Association is clearly close. eign lands. (“China has never had years at Tsinghua and other leading Maybe the Ministry would like it to a Prime Minister drown in the sea, Chinese universities. This meant be even closer. as your Prime Minister did in neither the Thought of Mao nor These semiofficial agencies of the 1967.”) But they can give the visi¬ computerized social science. In the Chinese foreign policy establishment tor data about their province. warm Peking afternoon, banners of —others include the Overseas Chi¬ Officially separate from the For¬ Mao’s quotations above us, we nese Commission, the Friendship eign Ministry are a number of “peo¬ talked about the ideas of Harold Associations between China and ple’s organizations” essential to the Laski, Graham Wallas, and A. L. various nations, the Council for the conduct of Chinese foreign policy. Lowell! Required by the occasion Promotion of International Trade— Their personnel circulate like satel¬ one evening to allude to Australia, are led by a fascinating array of lites in the outer orbit of the Min¬ Professor Chang managed to recall able and experienced diplomats. istry. One of these bodies is the two famous Australian tennis play¬ You find they are finely tuned to the People’s Institute for Foreign Af¬ ers he had once watched play in Foreign Ministry. Yet they have a fairs. It was for years a mysterious New York. It was “people’s diplo¬ flexibility which makes them better body until it surfaced last summer. macy” of a casual and catholic kind. gatherers of information on the It receives ex-statesmen, such as You could mistake Chang for a re¬ world, and better defenders of the Clement Attlee in 1954 or the ex- tired professor presiding over a lawn Chinese position, than many diplo¬ President of Mexico some years tennis association, rather than a re¬ mats in the formal structure of the later, and it receives people “who tired professor presiding over Chi¬ Ministry. are not governmental but too dis¬ nese Communist semiofficial diplo¬ Wang Kuo-chuan, ambassador to tinguished to come to China in an macy. Poland in the mid-1960s, now does ordinary way.” Its former research important work on Japan questions Another finger on the hand of function has in recent years been from a base in the China-Japan Chinese diplomacy is the Associa¬ “neglected.” Only a dozen people Friendship Association. Li Shu-teh, tion for Friendship with Foreign work full time at its offices now. Its an economist on the Council for the Countries. It deals with notable for¬ directors are mostly former ambas¬ Promotion of International Trade, eigners who seem well-disposed to¬ sadors or distinguished professors, played a key role in talks with Mr. ward China. I never found out many of them extremely able, most Whitlam about trade between China where its offices are. Its leaders are of them fairly old. and Australia. When the Trade Min¬ like a heavenly host making appear¬ ister had a session with Whitlam, he The Chairman of the Institute, ances but having no known abode. Chang Hsi-jo, is a former Minister You can sometimes get from them was accompanied by a deputy direc¬ tor of his ministry, and by Mr. Li. of Education and one of China’s illuminating, informal explanations Similarly, in the session with the most prominent non-Party intellec¬ of Peking’s foreign policy line. Ed¬ Foreign Minister there was present tuals. Chatting with him at banquets gar Snow had given me a letter of and receptions, I found myself in introduction to an Association fig¬ one senior Ministry aide and also one aide from the world of semi¬ yesterday’s spacious, languid world. ure. One morning I got into a taxi official diplomacy: Ling Ching, head The patrician head of well-groomed at the Hsin Ch’iao Hotel to deliver of American-Australian affairs in white hair, the silk clothes, the pol¬ it. The driver said he did not know the Ministry, together with Chou ished walking stick which he wields where the offices of this body were. Chiu-yeh, a former ambassador now with authority, suggest an Oriental He went into the staff booth to in¬ prominent in the People’s Institute aristocrat from the pages of Somer¬ quire. Sitting in the taxi, I watched of Foreign Affairs. set Maugham. Here is a man who a series of consultations in the staff participated in the 1911 revolution booth. Twenty minutes later a Lux- In short, the Chinese foreign pol¬ and went soon after to study in Lon¬ ingshe aide came out of the hotel icy machine is like an orchestra of don, yet who is part of Mao’s for¬ and said I was wanted on the phone. diverse instruments. Now a drum is eign policy establishment in the It was the Foreign Ministry. Could I Continued on page 28

14 FOREIGN- SERVICE JOURNAL, March 1973 as they were at the techniques—like statistical analysis—that they prized. j OHN PAUL VANN was rarely And he knew Vietnam as did no spoken of except in superlatives. He other American. was described at one time or another Vann first went to Vietnam in as the brightest, the brashest, the most knowledgeable, the hardest- 1960 as an Army Lieutenant Colo¬ nel, and his career there rather neat¬ working, the bravest, the most ab¬ “For close to ten years in rasive American in Vietnam. He Vietnam, Vann displayed an ly divides itself into four parts. The first of these—and Vann’s Army was certainly the most tenacious: by unyielding moral toughness days—lasted until 1963. During this the end he had spent some eleven and integrity as well as period he was advisor to the Viet¬ years in Indochina. Through it all physical bravery of the first namese Army’s 7th Division, based his was the analysis of the war that order.” Foreign Service at My Tho in the Delta. These were was most right most times. He lived JOURNAL, August, 1972 the beginnings of our involvement, long enough to hear himself called a near-legend, and he seemed unable the days of President Diem, General Harkins, the Strategic Hamlet Pro¬ to forget what kind of performance gram, and official American opti¬ that led people to expect from him. mism. Vann was one of several dis¬ Once at a party in Can Tho I heard senting voices: he charged that the him shout into the bridgework of Vietnamese were not fighting but two Washington visitors that he fully evading, that reports were being fal¬ expected to die in bed. He was sified, and that our side—far from killed, instead, this past June 9th, in winning the war—was losing it, and a fiery helicopter crash, at night, fly¬ at a rapid pace. Vann soon found ing from his headquarters in Pleiku that the American command in Sai¬ to Kontum, then under siege. His gon was not interested in what he 48 th birthday was less than a month and his fellow dissenters (Colonel away. Wilbur Wilson was one, Colonel The characteristics that carried Fred Ladd another) had to say. John Vann from a poor Virginia People like David Halberstam of the boyhood to a position of high influ¬ New York TIMES, however, were ence in the longest war our country interested, and much of the informa¬ ever fought are not hard to cata¬ tion for Halberstam’s Pulitzer Prize¬ logue. Nervous, skeptical intelli¬ winning book, “Making of a Quag¬ gence. Incessant self-discipline. A mire,” came directly from Vann. willingness to take large—although When Vann’s tour came to an end well-calibrated—bureaucratic risks. in 1963, both the American and Almost superhuman staying power. Vietnamese leadership in Saigon (He normally slept four hours a considered him an upstart and a night, but often settled for three in troublemaker; and when he arrived times of crisis.) All this at the serv¬ back in Washington, the responsible ice of an ambition whose horizons men in the Pentagon did not ask for were being constantly expanded. PORTRAIT his views. Some of his Army friends Perhaps the most telling indica¬ OF AN succeeded in getting him scheduled tion of the intensity of Vann’s drive to brief the Joint Chiefs, but this is the contrast between him and the ACTIVIST was squelched at the last moment others who helped fashion our poli¬ by Maxwell Taylor (according to cies in Vietnam. Many of them were the account of Halberstam and oth¬ brilliant, well-connected men, Amer¬ ers). So John Vann, who loved the ican aristocrats: McGeorge and Army and would always remain a William Bundy, Ellsworth Bunker, military man above all, resigned his Henry Cabot Lodge, Maxwell Tay¬ LACY WRIGHT commission and went to work—at a lor. Others, like Robert McNamara, much higher salary—for the Martin- Robert Komer, Henry Kissinger, Marietta Corporation in Denver, and Creighton Abrams, boasted im¬ Colorado. pressive careers. John Vann, on the other hand, was by birth a redneck, By early 1965, however, Vann by training a flyer and guerrilla war ideas on US withdrawal from Viet¬ was back in Vietnam as a civilian expert, and by instinct and breeding nam and the phased turnover of the working for AID, beginning the sec¬ a military man. Yet by 1968 Dr. war to the South Vietnamese, and ond part of his involvement there. Henry Kissinger was reading Vann’s later Kissinger gave Vann credit for He was assigned the number two being the primary architect of Viet- American job in Hau Nghia prov¬ namization. Vann was accepted by ince in III Corps. Hau Nghia was From a speech given December 5, 1972, by Lacy Wright at the Armed Forces men like Kissinger and McNamara not only a dangerous place—which Staff College, Norfolk, Virginia. and Komer because he was as good Vann no doubt welcomed—but an

FOREIGN SERVICE JOURNAL, March 1973 15 obscure one—which, I suspect, he ing their own 18-year olds.) So with my predecessor there had been did not. Again, he was critical of Vann’s whole outlook changed after distant, and my boss at the Embassy the way things were being done, Tet, not because he decided he had in Saigon was not sure that Vann complaining, for example, of the been wrong before, but because he wanted to continue the practice of undiscriminating tactics being used believed the other side had blun¬ having as his Polad a provincial re¬ by the newly-introduced American dered so badly that now the Saigon porter from the Embassy political combat units, such as free lire zones. government stood a chance of win¬ section. Vann had said he wanted a At the same time, substantial and ning. Polad who worked only for him, visible progress was beginning to be During his time in III Corps and it was thought he might simply seen in Hau Nghia. His superiors Vann continued to add to his al¬ choose his own, and have nothing to were begrudgingly impressed. ready large personal reputation. The do with the Embassy’s man. But he It was in III Corps that Vann Tet attacks afforded him a number had apparently reconsidered, be¬ met Daniel Ellsberg, when the latter of chances to play the role he liked cause he shook my hand and wel¬ was working for Secretary McNa¬ best—that of a hero. (Not content, comed me to IV Corps. For the mara. One chapter of Ellsberg’s by the way, with courting danger in first six months or so, however, he “Papers on the War” recounts a trip the line of duty, he flirted with it in had little to do with me. It was not around Hau Nghia with Vann and his off hours as well: in the middle until I had gained some experience describes his massively detailed of every night of the Tet fighting, he that I started to get to know him. knowledge of the province. Ellsberg once told me, he drove alone from During the two years Vann spent was impressed with Vann’s ideas on Bien Hoa to Saigon to see his girl in the Delta, the business of the day how the war should be fought, and friend.) He continued, too, to in¬ was pacification. CORDS, set up by urged McNamara and others to pay form the press (or shoot off his Robert Komer in 1967 and now more attention to him. Gradually, mouth to reporters, depending on headed by William Colby, was at Vann’s viewpoint was gaining ac¬ your point of view) about the way the height of its activity. American ceptance. the war was going. advisors were trying to show their In late 1967, however, Vann was One such interview—with Peter Vietnamese counterparts how to de¬ in trouble again. His continuously Arnett of AP-^-cost him, he said, fend hamlets, build bridges, grow pessimistic reports from the field the top American job in the Delta, better strains of rice, construct com¬ contradicted the news of progress that of Corps Senior Advisor, which post plants, and a good many other being disseminated from our Em¬ he said had finally been promised things. More basically—and with bassy and top military commanders. him. He gave Arnett a long dis¬ more difficulty—they were trying to He told me later that it was sug¬ course on how well pacification was convince the Vietnamese that they gested to him then that perhaps he proceeding in III Corps (where he had an interest in helping gov¬ ought to resign. His superiors want¬ was by now the Senior Advisor’s ernment programs succeed. The ed a team player, not a prima donna Deputy for CORDS), but tacked on CORDS advisors encountered graft, who kept telling them they were to it his views on how mistakenly nepotism, tacit arrangements with wrong. the United States Army was fighting the enemy, and a general reluctance Then came Tet ’68. It was a turn¬ the war and how much wiser it on the part of all but a few to take ing point for Vann. There were no would be to start turning it over to the war any more seriously than was more suggestions that he resign (he the Vietnamese themselves. Arnett absolutely necessary at the moment. had, after all, tried to tell them it ignored the good news and printed Yet progress was being made, more was coming), and, more signifi¬ the complaint, even though Vann quickly than many had thought pos¬ cantly, his conviction that time (and had told him it was off the record. sible. Villages long sealed off to the everything else) was on the side of According to Robert Komer, who government were re-entered, roads the communists was completely re¬ spoke of the incident recently, Gen¬ long considered unsafe were again versed. He felt the other side had eral Abrams was furious. Komer, heavily traveled. Orchestrating it all risked all and lost: they had sacri¬ who imitated Abrams’ loud, high- —supervising the 2000-odd CORDS ficed irreplaceable numbers of their pitched whine, quoted him as say¬ Delta employees, swooping down best field commanders; they had ing: “I don’t mind that he criticized with uncomfortable regularity on the alienated the South Vietnamese me. Everybody criticizes the Com¬ 16 American province teams and population by causing widespread mander. What gets me is that he did 70-some district teams, sleeping two suffering, at the holiest time of the it in quotes!” or three times a week at lonely out¬ Vietnamese year; and, most impor¬ So when John Vann went to the posts, haranguing famous and not- tant of all, their attack had jarred Delta in early 1969, to begin the so-famous visitors as their chopper the South Vietnamese into taking third phase of his Vietnam career, flitted low across the rice paddies some of the measures—like mobili¬ he was not Corps Senior Advisor and up the canals, belching statistics zation—that they should have but, again, DepCORDS. It was in and exuding optimism—-was John adopted long before. (In later years the Delta that I served as Vann’s Vann. He was not Senior Advisor, Vann rarely let a visitor escape Polad. I remember meeting him for but he was making do. without giving him the surprising in¬ the first time at the airport in Can Vann was not an ideologue: he formation that it was not until 1968 Tho, a surprisingly short, thin¬ was not likely to be found lingering —three years after we had started haired, red-faced man with a raspy over coffee discussing Marxist-Len- sending combat draftees to Vietnam voice and eyes that perpetually inist subtleties. I heard him say once —that the Vietnamese began draft- squinted in the sun. His relationship Continued on page 30

16 FOREIGN SERVICE JOURNAL, March 1973 and the FOREIGN SERVICE

^HE conclusion of the Loyalty Review Board that tion. Finally, we believe that the Review Board’s judg¬ “there is a reasonable doubt” as to the loyalty of John ment of what is punishment and what is charity fails S. Service is cause for grave disquiet among all members to take into account the indelibility of a stain of doubtful of the Foreign Service. The JOURNAL is thankful, there¬ loyalty in the case of an employee of the Foreign Service. fore, that the full text of the latest official papers in Article I of the Constitution states “No Bill of Attain¬ the case have been made public. The Department’s an¬ der or ex post facto Law shall be passed.” While it may nouncement of the findings of its own Loyalty Security be that for the Foreign Service the Bill of Rights is Board and the findings of the Review Board have ac¬ partially suspended, the JOURNAL believes it wrong for cordingly been mailed in advance to each JOURNAL sub¬ actions to be taken within the Executive Branch con¬ scriber. It behooves each of us to try to determine what, trary to the spirit of the Constitution and which would in fact, is rotten, since the charge of “rotten apple in be precluded if taken by the Legislative Branch. We the barrel” has already been raised on the hustings and think the Review Board’s attitude can be justified only will undoubtedly become louder. by the precision of hindsight and is, in effect, an ex post The case turns on a freely admitted indiscretion facto ruling. The stigma of questionable loyalty when nearly seven years ago in the transmittal of information applied to an official dealing with foreign governments, of a non-public character to the editor of an American one of which he impliedly favors over his native land, is magazine, a journalist whose bona fides were inadequate¬ a cause for ostracism and other disabilities so serious ly examined. Nothing covert, no perjury by Mr. Service, that the penalty becomes akin to attainder and hence no affiliation with any organization now suspect is in¬ unduly cruel and unjustified. volved. The information transmitted did not affect the We hope the Review Board will give favorable con¬ national security but was of a “background” nature sideration to Mr. Service’s formal appeal for a reversal which, by direction of superiors, Mr. Service had pro¬ or reconsideration; if not, that prompt reference to the vided to journalists in China to explain the political President will be possible; and that if all recourse to situation in which the United States was trying to bring Administrative action should prove unavailing, the matter all factions to contribute to the assault against Japan. can be considered by the courts. For it is not only Jack The Review Board specifically asserts it does not find Service and the Foreign Service that are victims in this Service guilty of disloyalty. It merely concludes that matter. To the Department, the reversal implies that its “to say that his course of conduct does not raise a reason¬ Loyalty Security Board, despite carefully selected mem¬ able doubt as to Service’s own loyalty would, we are bers and diligence in the examinations which preceded forced to think, stretch the mantle of charity much too its decisions, is either inept or biased or both. far.” We note the phrase “forced to think.” If the present decision in the Service case is permitted The JOURNAL recognizes that forced thinking may be to stand without reference to the courts, one of two gen¬ induced by events which are extraneous to the case, in¬ eral conclusions—both damaging to the conduct of our cluding 100,000 casualties in Korea and admittedly foreign relations—can be expected to crystalize. One will partisan pressures inherent in our Far East policy and be “Maybe McCarthy was right after all.” For the more related events. But we plead for objectivity. We respect¬ discerning it will be “It seems that the good, along with fully suggest that the Review Board’s present ruling was the bad, must be sacrificed to the clamor for blood.” rendered in the light of conditions in 1951 rather than The JOURNAL believes that there is a great deal at of 1944, the date of the indiscretion. We believe that stake here for Service, the individual; for the Foreign judgment should be reached in consideration of Amer¬ Service as a group of dedicated government employees; ican policy in that earlier time when we were allied with for the Department in its heavy responsibilities of diplo¬ the Soviet Union and our military and diplomatic mis¬ macy; and for the American people and their heritage of sions in China were under instructions to seek unification justice. Every effort must be made in our collective self- of Nationalist and Communist forces. We think, also, that defense to utilize all available means, including the Mr. Service’s motives have withstood exhaustive scrutiny courts, to make certain that justice prevails in the case and are revealed as those of a loyal, devoted and effec¬ of the loyalty of John S. Service to the United States.— tive government official who was guilty only of indiscre¬ Foreign Service Journal, January, 1952

FOREIGN SERVICE JOURNAL, March 1973 17 FOREIGN SERVICE

JANUARY1973 I believe that over the years the Raymond Ludden, John Melby, James Foreign Service has consistently dem¬ Penfield, and Philip Sprouse could onstrated that greatest loyalty a po¬ have joined us also. litical leader can demand from a President Nixon has opened a new career service: complete and honest and hopeful phase in the relations be¬ professionalism. tween the United States and China. One of the best examples of this This is a fitting moment to honor a kind of loyalty was the performance generation of Foreign Service officers of so many Foreign Service officers in whose dedication and professional China during World War II, and of honesty was ill-paid by many of their others concerned with Chinese mat¬ countrymen. ters back in Washington. To help us learn from the lessons Congressman James W. Symington I believe we have much to learn of history, we are greatly honored to greets John S. Service as Ambassador from the example of these men and hear today from Barbara Tuchman W. Averell Harriman looks on, at the from the history of their era. I am and John Service. Mrs. Tuchman, as AFSA luncheon for the “old China delighted to see a number of them in you all know, has twice won the hands” on January 30 at the Depart¬ this room—Edmund Clubb, Robert Pulitzer Prize for her brilliant books, ment of State. As the Boston GLOBE Barnett, Fulton Freeman, John Serv¬ ‘The Guns of August” and “Stilwell wrote, “22 years later, the foreign ice, Arthur Ringwalt, Walton Butter- and The American Experience in policy establishment tacitly acknowl¬ worth, and others. 1 am especially China, (1911-45).” She will intro¬ edged its silence as a grave injustice pleased that Mrs. John Carter Vincent duce Mr. Service.—from the opening and error, and paid belated homage could be with us. I wish others such remarks of William C. Harrop, Chair¬ to the man and some of his col¬ as John Paton Davies, Edward Rice, man, Board of Directors, AFSA leagues.” Why Policy Makers Do Not Listen BARBARA TUCHMAN w■ ■ E have gathered to honor a sense that truth is indeed weirder Atcheson, both deceased, and group of Foreign Service officers— than fiction? When I was young, the among the secretaries and consuls represented in the person of Jack magazine VANITY FAIR used to pub¬ stationed all over China, besides Mr. Service—whom history has recog¬ lish a series called “Impossible In¬ Service, such men as John Paton nized as having been right; and not terviews” by the artist-cartoonist Davies, Edward Rice, Arthur Ring¬ only history, but even, by act if not Covarubbias in which he confronted walt, Philip Sprouse, and alternately by acknowledgment, the present Ad¬ Calvin Coolidge with Greta Garbo in the field and on the China Desk, ministration. Can there be anyone and John D. Rockefeller Sr. with Edmund Clubb and the late Carter among that group who reported Stalin, but last year’s meeting in Vincent. Several had been born in from China during World War II Peking outdid Covarubbias. China, many were Chinese-speaking, who, watching an American presi¬ Yet it could have happened 25 and some are happily here with us dent journey in person to Commu¬ years earlier, sparing us and Asia today. nist China in 1971, was not con¬ immeasurable, and to some degree For having been right many of scious of an irony so acute as to irreparable, harm, if American pol¬ them were persecuted,‘‘dismissed, or make him shiver? Could anyone, icy had been guided by the infor¬ slowed or blocked in their careers, remembering past attitudes, look at mation and recommendations of the with whatever damage done to them that picture of President Nixon and staff of the Chungking Embassy, personally outweighed by damage Chairman Mao in twin armchairs, then acknowledged to be the best done to the Foreign Service of the with slightly queasy smiles bravely informed service group in China. United States. No spectacle, Macau¬ worn to conceal their mutual dis¬ It included the Ambassador, Clar¬ lay said, was so ridiculous as the comfort, and not feel a stunned ence Gauss, the Counselor, George British public in one of its periodic

18 FOREIGN SERVICE JOURNAL, March 1973 This was not subversion as our Red- hunters were to claim, but merely observation. Any government that does not want to walk open-eyed into a quag¬ mire, leading its country with it, would presumably re-examine its choices at such a point. That after all, is what we employ Foreign Service officers for: to advise policy¬ makers of actual conditions on which to base a realistic program. The agonizing question is, why are their reports ignored, why is there a persistent gap between observers in the field and policy-makers in the capital? While I cannot speak from experience, I would like to try to John Service at the podium as the offer some answers as an outside guests rise in a standing ovation. assessor. Marshall Green, Mrs. Service and In the first place, policy is formed William C. Harrop, center front. by preconceptions, by long-im¬ From the Detroit NEWS, “John Stew¬ art Service has lived to see the day planted biases. When information is he thought he’d never see. ... And relayed to policy-makers they re¬ it would be difficult to say who was spond in terms of what is already more pleased—Service or the Foreign inside their heads and consequently Service officials who dared put on the make policy less to fit the facts than affair.” to fit the notions and intentions formed out of the mental baggage Historian Barbara Tuchman surr rounded by some of the capacity that has accumulated in their minds crowd at the luncheon, of which an since childhood. When President editorial in the Minneapolis TRIBUNE McKinley had to decide whether to remarked, “History has recorded what annex the Philippines in 1898, he happened to the official bearers of bad went down on his knees at midnight, news from China. The purge that according to his own account, and reached its sorry zenith in the Mc¬ “prayed to Almighty God for light Carthy era shattered careers and de¬ and guidance.” He was accordingly prived the US of some of its best guided to conclude “that there was government talent on China." nothing left for us to do but to take fits of morality—and none, one munists on the way in and that them all, and to educate the Fili¬ might add, so mean as the Ameri¬ American policy, rather than cling pinos, and uplift and civilize and can public in one of its periodic in paralyzed attachment to the for¬ Christianize them, and by God’s witch-hunts. Your colleagues and mer, might be well advised to take grace to do the very best we could predecessors were hounded because this trend into account. This was by them, as our fellowmen for able and honest performance of their implicit in reports from officers who whom Christ died.” profession collided with the hyster¬ had no contact with the Commu¬ Actually the main impulse at ics of the cold war manipulated by nists but were united in describing work was the pressure of the “mani¬ a man so absolutely without prin¬ the deterioration of the Kuomin- fest destiny” school for a stepping ciples as to be abnormal, like the tang. It was made explicit by those stone across the Pacific, but the man without a shadow. I shall not who saw the Communists at first mental baggage of a President in the pursue that story now, however im¬ hand, like Service in his remarkable 1890s required him to act in terms portant it is to you and to every reports from Yenan, and Ludden of Almighty God and the White citizen, because what I want to get who journeyed into the interior to Man’s Burden just as the mental fix at is a problem perhaps more abid¬ observe the functioning of Commu¬ of his successors in our time has ing, and that is, why these men nist rule, and Davies whose ear was required them to react in terms of were not listened to even before everywhere. They were unequiv¬ anti-communism. Closer observers they were persecuted. ocal in judging the Communists to than Almighty God could have in¬ The burden of their reports taken be the dynamic party in the country; formed McKinley that the Filipinos as a whole was that Chiang Kai-shek in Davies’ words in 1944, “China’s had no strong desire to be Christian¬ was on the way out and the Com¬ destiny was not Chiang’s but theirs.” ized or civilized or exchange Span-

FOREIGN SERVICE JOURNAL, March 1973 19 ish rule for American, but rather This desire not to listen to unhappy eral Staff in the years immediately to gain their independence. This be¬ truths—“Don’t confuse me with preceding 1914, including authentic ing overlooked, we soon found our¬ facts”—is only human and widely documents sold to them by a Ger¬ selves engaged not in civilizing but shared by chiefs of state. Was not man officer, could not divert them in a cruel and bloody war of repres¬ the bearer of bad news often killed from their own fatal plan of attack sion, much to our embarrassment. by ancient kings? Chiang Kai-shek’s through the center or persuade them Failure to take into account the na¬ vindictive reaction to unpleasant to prepare a defense on their left. ture of the other party often has an news was such that his ministers In 1941 when the double agent awkward result. gradually ceased to bring him any Richard Sorge in Tokyo reported to The same failure afflicted Presi¬ with the result that he lived in a Moscow the exact dates of the com¬ dent Wilson who had a mental fix fantasy. ing German invasion, his warning opposite from McKinley’s, in favor Your reports must also pass was ignored because the Russians’ of progressivism, reform and the through a screen of psychological very fear of this event caused them New Freedom. So fixed was his factors at the receiving end: tem¬ not to believe it. The same principle mind that when the reactionary perament, or private ambitions, or dominated Washington’s reception General Ffuerta carried out a coup the fear of not appearing masterful, of the reports from China in the in Mexico in 1913, Wilson became or a ruler’s inner sense that his man¬ 1940s. No matter how much evi¬ obsessed by the idea that it devolved hood is at stake. (This is a male dence was reported indicating that upon him to tear the usurper off the problem that, fortunately does the collapse of the Kuomintang backs of the Mexican people so that not trouble women—which might be was only a matter of time, nothing Mexico might be ruled by the con¬ one advantage of having a woman could induce Washington to loosen the silver cord tying us to Chiang sent of the governed. “My passion in high office. Whatever inner in¬ Kai-shek nor rouse the policymakers is for the submerged 85 percent who adequacy may gnaw at a woman’s from what John Service then called are struggling to be free” he said, vitals, it does not compel her to an “indolent short-term expedi¬ but the reality was the submerged compensate by showing how tough 85 percent were cowering in their she is. You might cite Golda Meir ency.” huts unable to distinguish a differ¬ in objection, but one gets the im¬ National myths are another ob¬ ence between Huerta and his rival pression that her toughness is nat¬ stacle in the way of realism. The Carranza. Wilson however sent in ural rather than neurotic, besides American instinct of activism, the the Marines to seize Vera Cruz, an required by the circumstances.) “can do” myth, has lately led us intervention that not only appalled Proving his manhood was, I into evil that was not necessary and him by costing American lives, but imagine, a factor pushing President has blotted the American record be¬ succeeded only in deepening the Nasser of Egypt into provoking war yond the power of time to whiten. turmoil in Mexico and drawing the with Israel in 1967 so that he could Stewart Alsop made the interesting United States into further interven¬ not be accused of weakness or ap¬ point Sunday [January 28] in the tion two years later against that man pear less militant than the Syrians. New York TIMES BOOK REVIEW of the people, Pancho Villa. Polit¬ One senses it as a factor in the that American Presidents since ical passion is a good thing but personalities of Johnson and Nixon Roosevelt have disliked the State even better if it is an informed in regard to withdrawing from Viet¬ Department and leaned heavily on passion. nam; there was that horrid doubt, the military because the military tend to be brisk, can-do problem- Roosevelt’s bias too was in favor “Shall I look soft?” It was clearly of the progressive. George Kennan present in Kennedy too; on the solvers while senior Foreign Service has told how, when the Embassy other hand it does not seem to have officers tend to be “skeptical exami¬ staff in Moscow began reporting the bothered Eisenhower, Truman or ners of the difficulties”; and worried facts of the Stalinist purges of the FDR. uncertain presidents will prefer posi¬ 1930s, revealing a tyranny as ter¬ A classic case of man’s tempera¬ tive to negative advice. You will rible as the Czars’, the President ment obscuring the evidence is notice that this reliance on military discounted the reports as the prod¬ brought out by John Davies in his advice coincides with the era of air uct of what he considered typical recent book, “Dragon by the Tail.” power and has much to do, I think, State Department striped-pants men¬ Stalin’s greatest error, he points out, with the enormous attraction of the tality. It was not only inconven¬ was to underestimate Chinese Com¬ easy solution—the idea that a hor¬ ient but disturbing to be in re¬ munism. “He was deceived by his rid problem can be solved by fiat ceipt of reports that would have own cynicism. He did not think from the air, without contact, with¬ required a change of attitude toward Mao could make it because, aston¬ out getting mixed up in a long dirty the Soviet Union (foreign policy ishingly enough, of his own too little business on the ground. The influ¬ obeys Newton’s law of inertia: it faith in the power of a people’s ence of air power on foreign policy keps on doing what it is doing un¬ war.” would make an interesting study. less acted on by an irresistible Of all the barriers that reports Activism in the past, the impulse force). Rather than be discomfited from the field must beat against, to improve a bad situation, to seek by these disclosures, which Roose¬ the most impenetrable is the disbe¬ a better land, to move on to a new velt’s own bias caused him to be¬ lief of policy-makers in what they frontier, has been a great force, lieve were biased, the Russian Divi¬ do not want to believe. All the the great force in our history, with sion was closed down, its library evidence of a German right-wing positive results when it operates in scattered and its chief re-assigned. thrust obtained by the French Gen¬ a sphere we can control. In Asia

20 FOREIGN SERVICE JOURNAL, March 1973 that is not the case, and the result It was a poignant occasion when several hundred officers of the has been disaster. Disregarding local United States Foreign Service gave a luncheon at the State Department realities, and depth of motivation, last week in honor of a small band of their former colleagues who had disregarding such a lesson as Dien Bien Phu, we feel impelled to take been persecuted for being right. Here, in effect, was the last step in action rather than stay out of trou¬ the vindication of the "old China hands," whose careers had been ble. It would help if we could learn ruined or tarnished because they correctly predicted the victory of the occasionally to let things seek an indigenous solution. Chinese Communists over the ineffective Kuomintang Government of The costliest myth of our time Chiang Kai-shek.—Editorial, New York Times, February 4. has been the myth of the Commu¬ nist monolith. We now discover hap¬ pily if belatedly that the supposed Sino-Soviet unity is in fact a bitter meeting. Following arrest in the Amerasia antagonism of two rivals wrapped Mr. Service was born in China affair in 1945, Service was exoner¬ in hate, fear, and mutual suspicion. in the Province of Szechuan, the ated and cleared, and promoted in Our original judgment never had son of missionary parents serving 1948 to Class 2 officer—only to be much to do with facts but was with the YMCA. His youth was plunged back under all the old rather a reflection of fears and spent in China until he returned to charges in 1949 when the Commu¬ prejudices. Knee-jerk reactions of the United States to attend Ober- nist victory in China set off our this kind are not the best guide to lin College from which he gradu¬ national hysteria, and put Senator a useful foreign policy, which I ated in 1932. He also acquired a McCarthy, in strange alliance with would define as the conduct of rela¬ classmate as wife and anyone who the China Lobby, in charge of the tions and exercise of influence so as knows Caroline Service will recog¬ American soul. If Chiang Kai-shek best to serve an enlightened self- nize this as an early example of were to keep American support it interest. Jack’s good judgment. After pass¬ was imperative that the “loss” of The question remains, what can ing the Foreign Service exams, he China so-called, should be seen as be done to narrow the gap between returned to China because no open¬ no failure from inside but work of information from the field and ings were available during the De¬ some outside subversive conspiracy. policy-making at home. First, it re¬ pression, and entered the profession That spectre exactly fitted certain mains essential to maintain the in¬ by way of a clerk’s job in Kunming. native American needs. Along with tegrity of Foregn Service reporting, Commissioned as a Foreign Service others, Service suffered the conse¬ not only for the sake of what may officer in 1935, he served in Peking quences. Despite a series of acquit¬ get through, but to provide the basis and Shanghai, and joined the Em¬ tals, he was pinned with a doubt for a change of policy when the bassy in Chungking in 1941. During of loyalty and dismissed from the demand becomes imperative. Sec¬ the war years he served half his Foreign Service by Secretary Dean ond, some means must be found to time in the field, seeing realities Acheson in 1951, as Davies and require that preconceived notions outside the miasma of the capital. Vincent were subsequently dis¬ and emotional fixations be periodi¬ This opportunity culminated when missed by Secretary Dulles. Six cally tested against the evidence. after being attached to Stilwell’s years of pursuing redress through Perhaps legislation could be enacted staff, he served as political officer the courts finally brought a unani¬ to enforce a regular pause for re¬ with the American Military Ob¬ mous verdict in his favor by the thinking, for questioning the wisdom servers Mission to Yenan, the first Supreme Court of the United States of an accepted course of action, for official American contact with the in 1957. He rejoined the Foreign cutting one’s losses if necessary. Communists. His series of conver¬ Service but was kept out of any Failing that, I pass to a final sations with Mao, Chou En Lai, assignment that would use his suggestion which is not proposed as Chu Teh, Lin Piao, and other lead¬ knowledge and experience of China. a joke: it is to abolish the presi¬ ers, embodied in vivid almost ver¬ When it was clear that the Kennedy dency, because it seems to me that batim reports with perceptive com¬ Administration would offer no bet¬ too much power and therefore too ments, are a historical source of ter, Service resigned in 1962 and much risk is now subject to the idio¬ prime and unique importance. has since served with the Center for syncrasies of a single individual at Equally impressive are the examples Chinese Studies at the University of the top whoever he may be. I would that show Service passionately try¬ California in Berkeley. substitute a committee of five to be ing to persuade and convince the Fortunately for the record and elected as a slate put forward by policy makers, as in the brief pre¬ the reputation of the Foreign Serv¬ each party, and to have a single pared for Vice President Wallace ice, the reports of Service and his five-year term with a rotating chair¬ in June 1944 and the famous group colleagues from China in the 1940s man, each to serve for one year. telegram to the Department, largely are now where anyone can consult The idea needs a little working out drafted by Service—a desperate ef¬ them—in the published volumes of which I leave for the moment to fort by the Embassy staff to halt “U. S. Foreign Relations, China anyone here who may want to con¬ the Hurley drift down the rapids Series.” Under the inflexible verdict sider it. with Chiang Kai-shek. If there was of history, they stand up. By a circuitous route I come to passion in this it was at least in¬ I am honored to present to you Jack Service, the focus of this formed passion. Mr. John Service.

FOREIGN SERVICE JOURNAL, March 1973 21 Foreign Service Reporting

JOHN SERVICE

^■ET ME, first of all, say simply Obviously, reporting is not mere¬ from our own. that my family and I appreciate ly a glamorous, exciting pastime. It I have yet to learn of a computer¬ your invitation to be here, and that is utterly basic to the intelligent ized prediction that Mao’s people- is probably the understatement of formulation of a realistic foreign based forces would defeat the vast¬ the year. policy. And to keeping it up-to-date. ly larger, better-equipped, Ameri¬ There have been some very kind Without facts, and an understanding can-trained armies of Chiang Kai- remarks about us “old China of those facts (which may often be shek; or that Mao would turn hands.” I particularly appreciate tenuous and largely intangible be¬ against his party and carry the coun¬ the mention of John Carter Vincent. cause they involve people and atti¬ try with him in the astonishing Cul¬ We all knew him as a staunch tudes rather than quantifiable items tural Revolution. There is a limit friend, and as a capable, courageous in the national balance sheet), our but also much truth in Mao’s idea and loyal chief. policy makers are flying blind. And that man and his spirit are more im¬ The group of officers you are re¬ even being hard-nosed in a condi¬ portant than machines. membering today have some things tion of blindness is not to be rec¬ I recently heard a talk by a man in common—-beyond shared experi¬ ommended. who has spent many years, up to the ences in China and in post-China. Of course, the Foreign Service of¬ present, as a China-watcher in Hong One of these is that in China we ficer has many functions other than Kong. His gist was that all the re¬ were primarily political reporting political reporting: you can name cent American visitors to China officers. But another is that we are them as well as I. I submit, though, since ping-pong diplomacy and the all strong-minded individuals. To that none is more vital to the coun¬ President’s visit had learned little pretend to speak for this group try, or more rewarding to the indi¬ that was not already known to his would be foolhardy—and presump¬ vidual, than reporting. It was the craft in Hong Kong. When the tuous. I speak for myself alone. best, most satisfying part of my own chance came for questions, I had If, by some miracle, the clock career. But, again, I was fortunate two: Had he applied for a visa to could be turned back and I had my in having unusual opportunities. China? And, if granted, would he life to relive, I would still wish to Twenty-three hundred years ago, go? The answer to both was an un¬ be a Foreign Service officer. But if a Chinese scholar of strategy said: qualified affirmative. denied that choice, my second wish “Know your enemy, know yourself; Confucius seems not to have said: would be a career as a foreign cor¬ a hundred battles without danger.” “One picture is worth a thousand respondent. The link, of course, is Much of our policy toward China words.” But perhaps one can coin the absorbing quest to observe, un¬ and Vietnam since World War II another phrase: One close look is derstand, and report in depth what has been a negative example of Sun worth a thousand distant guesses. is really happening in a foreign so¬ Tzu’s wisdom. Of course, the other There is no real substitute for being ciety: to get beneath the superficial, side has had problems knowing us. on the ground. The briefings and pick up the important, underlying But the value of reporting is far lectures I listened to during my re¬ trends—and from that basis to try broader than “knowing the enemy.” cent trip to China meant less than to look into the future. We must also know and understand being able freely to walk city streets Classified policy matters aside, the problems and attitudes of and country paths and to travel this common reporting goal often friends, and neutrals. some 6500 miles. makes natural allies of FSOs and Reporting obviously varies. From Political reporting, if worthy of press abroad. Many of the best some countries (such as the devel¬ the name, is nonpolitical. My two brains I’ve picked have been those oped, free press countries of West¬ chiefs, Ambassador Gauss and Gen¬ of newspapermen: American, Chi¬ ern Europe), the flow of informa¬ eral Stilwell, both anathema to the nese, and foreign. A junior officer, tion is so great that Foreign Service China Lobby, were both—so far as nebulously assigned to the American reporting may play a relatively un¬ I know—staunch, life-long Repub¬ Army in Chungking, would be told important role. Elsewhere, reporting licans. But their views and reports to “get lost” if he sought interviews may have to be done from a dis¬ of the facts in China were insepar¬ with august figures such as T. V. tance, or under severe limitations. able from those of their subordi¬ Soong or Generalissimo Chiang. The Kremlinology, refugee interviews, nates whose inclination might be same questions might just as well-—- the piecing together of rumors try Democratic or plain liberal. or even better—be put by a repre¬ to fill the gap. We who served in China during sentative of the world press, who Foreign Service reporting be¬ the 1940s have awaited—for what could get a private interview. It was comes vital as we move toward has seemed an excessively long time my good fortune that we had a re¬ countries that may be small, less de¬ —the publication of the annual Chi¬ markably able group of correspond¬ veloped, non-white, or with cultures na volumes in the fat, red-bound ents in Chungking during the war. and institutions drastically different series, “Foreign Relations of the

22 FOREIGN SERVICE JOURNAL, March 1973 United States.” They have just sador Avra Warren, an old profes¬ a talent for developing contacts reached 1947. The product has been sional, had assigned a young, new- among the right people—though in worth a wait. These are an admir¬ minted third secretary the task of this case the right people were clear¬ able, objective, and complete pres¬ making an analysis and electoral ly to the left of the Ambassdor’s entation of the historical record. prediction. Pouch day was upon us circle. Furthermore, those contacts There has been no attempt, so far as —our last chance to get a predic¬ led to the development of useful in¬ I can see, to doctor that record, to tion to Washington. The Ambassa¬ formation; we’ve all seen high-pow¬ make it look better than it actually dor thought the third secretary a ered social types who “know every¬ was. Everything is there: including capable young man—“likely to do body” but somehow lack a nose for reports and views that pointed in well in the Service”—but had grave news. And finally, he knew what to directions other than the policy fi¬ reservations about his prognosis. do with the information. Some offi¬ nally adopted. Perhaps I may be The third secretary conceded that cers accumulate a terrific amount of bold here with a collective “old the election would be close, but data in their heads or personal files; China hands” word of appreciation firmly concluded that Labour (the but it doesn’t mean a thing in the for the uncompromising honesty incumbents) would win by certainly Department if they can’t organize it and high professional quality of three, and probably four seats. to produce a cogent, timely report. these works of the Historical Office. “Hell,” said the Ambassador, “al¬ Also the reporting officer had Personally, I shall also look forward most all the press supports the done his work so well that he had with anticipation—hopefully before Tories; everyone I know outside the the courage of his conclusions—de¬ 1990—to reading what Foreign government is going to vote Tory; spite the intimidating effect (even if Service officers on the ground in and everyone tells me the Tories are not intended) of the Ambassador’s Vietnam were actually reporting in doubts. The Ambassador deserves 1963, 1964, and 1965. . . . much more remains to be credit, too, for a broad concept of One notable thing about the rec¬ done. For example, rather than reporting, and for willingness to ord shown in the “Foreign Rela¬ downgrading the State Depart¬ trust the judgment of the officer. tions” volumes is the broad unanim¬ ment and its "bureaucrats," we Incidentally, the young third sec¬ ity in the Foreign Service political should strengthen it, insulate it retary was Marshall Green. The reporting from China. A few of us as far as possible from domestic political crosscurrents and en¬ Ambassador’s early judgment, that (like John Davies, Ray Ludden, and courage its experts to join in he was a man of promise, was in¬ myself) may have been more ready public debate on the major is¬ deed correct. to propose policy conclusions and sues. — Editorial, Carden City We have been looking at report¬ recommendations. But in substance, Newsday, February 4. ing from the American angle. Per¬ our reports, though they received haps a New Zealand echo of this publicity, and unmerited notoriety, going to win.” Furthermore, the story may not be irrelevant. In 1948, were not different from those of the Ambassador had a theory (call it as some of us will recall, everyone many other Foreign Service officers history or political science) that de¬ (and I mean everyone) was sure reporting from the Embassy and all mocracies change parties after a that Truman was going to lose. In a over the country. I say this, of long war. conversation with an officer from course, not to spread the onus; but My immediate task was to read New Zealand External Affairs a few to suggest that any credit for being the report and advise whether it weeks before the election, I was sur¬ “right” must be widely shared. should go forward. I knew nothing prised to have him say: “What are Successive volumes extend the about New Zealand politics. Having you chaps so excited about? Our picture. When the “first generation” transferred direct from Tokyo, there Embassy in Washington tells us that of reporters became unacceptable to had not even been the chance for a Truman is going to win.” the fixed ideas of Ambassador Hur¬ briefing by the country desk. So I Obviously, to be most effective, ley, new men were brought in: men talked to the understandably up¬ the reporting officer needs some with “fresh minds” — supposedly tight third secretary about his freedoms. If his reporting is to get without “bias” or “preconceptions.” sources, and how he had gone about beyond clipping newspapers and col¬ To meet these standards, it was ob¬ collecting the information for what lecting published statistics, he viously necessary to assign men who appeared to be a superbly docu¬ should not be overly tied to a desk. had not been recently in China. mented, realistic analysis. On this If he is going to be able to travel Many were assigned without any basis, I told the Ambassador that about the countryside and succeed previous experience in the country. I thought we should send it. In con¬ in getting close to people, he may But very soon the reports of all trast to one other Ambassador I need time, encouragement, and fa¬ these men came to sound very much have known, he took my advice. cilities for intensive country speciali¬ like those of the men they had re¬ The wait seemed long but elec¬ zation and language training—and placed. The “truth” of China did tion day finally came. Labour did some assurance that the time com¬ not change. win by four seats, but one seat was mitted to gaining such in-depth spe¬ There’s more to reporting, of so close that for a while it seemed cialization will not penalize him in course, than merely being on the that the margin might be only three. the competitive rat-race for promo¬ ground. In October 1964 I arrived A few comments. Most impor¬ tion. Finally, he needs freedom in in Wellington, New Zealand, as tant, the report was right—right on his contacts in order to get beyond Deputy Chief of Mission. It was just the button. That’s what the game is the local elites and the particular before a national election. Ambas¬ all about. But more. The officer had party that, for the time being, may be

FOREIGN SERVICE JOURNAL, March 1973 23 holding (or monopolizing) power. position to be the best, most current, ine we can all think of negative ex¬ My assignment at the Embassy in and only steadily available source of amples : they have not been few. Let Chungking and later for two years reliable information. For State to re¬ me take an example. with the Army gave me these free¬ duce its flow of sound, reliable re¬ When the Sino-Japanese War doms in what—for the Foreign porting from the field is, I suggest, commenced and the Japanese occu¬ Service—was perhaps an almost un¬ a sure method of slow suicide. pied Shantung in 1937 and 1938, precedented degree. Without those Where does the reporting officer our consul in Tsingtao was Samuel freedoms, my reporting would have stand in all this? First of all, he has Sokobin. He was a capable, consci¬ been much more limited—and you his responsibility to State and the entious officer—a China specialist probably would not have invited me American government. That respon¬ of long experience. As is often the here today. sibility is to report the facts consci¬ case, he had come to have a genuine It is interesting, though, to recall entiously as he finds them. If the liking and respect for the Chinese. that when I first suggested in Janu¬ government dislikes or ignores his Eventually, Chinese guerrillas began ary 1943 that the Kuomintang-Com- reports, that does not relieve him to be active in Shantung. Soon the munist struggle for power was going from his responsibility as a report¬ Chinese press was carrying dramatic to engulf all policy considerations ing officer. When Ambassador Hur¬ accounts of heroic exploits in crip¬ in China, and that the only ade¬ ley resigned in 1945 with strong pling the Japanese-held railways and quate way to inform ourselves on charges against the reporting of denying the Japanese the important the attitudes and strength of the some of us in China, Secretary of agricultural and mineral resources Communists was to send Foreign State Byrnes replied: of the province. In his post at the Service reporting officers to Yenan, I should be profoundly unhap¬ main port, and making intelligent my proposal was met in the top py to learn that an officer of use of excellent contacts in shipping echelons of FE with much tongue- the Department of State, with¬ and business circles, Sokobin came clucking and grave head-shaking— in or without the Foreign Serv¬ to realize the gross exaggeration in in a negative direction. I and others ice, might feel bound to refrain these claims. The Japanese were did, of course, eventually get to from submitting through proper maintaining and increasing the flow Yenan. But only because there was channels an honest report or of these strategic materials to Japan. a change of guard in FE (with men recommendation for fear of of¬ Sokobin did not consider that a recently in touch with the actual sit¬ fending me or anyone else in responsible officer needed to be told uation in China—such as John Car¬ the Department. If that day when (or what) to report. He com¬ ter Vincent—taking over). And should arrive, I will have lost menced a series of reports thor¬ also because, while State approved the very essence of the assist¬ oughly documenting the success of and desired our going there, it could ance and guidance I require for the Japanese in countering the guer¬ be done under the convenient guise the successful discharge of the rillas and in exploiting the resources of our working for the Army. heavy responsibilities of my of their occupied territory. He There are still countries—in Latin office. should, of course, have been com¬ America, Africa, and parts of Asia But the reporter is also in a sense, mended; but the reaction his reports —where the situation is not unlike writing for himself—for his own received was very different. He was that in China during the 1940s. If we conception of what good reporting upsetting the picture, then the ac¬ keep ourselves in ignorance and out should be, and for his own integrity. cepted line, of a Chinese resistance of touch with new popular move¬ Most definitions of good reporting not only brave but also effective. ments and potentially revolutionary would suggest that it involves more Sokobin’s reports were harshly de¬ situations, we may find ourselves than a mere recital of facts: it also preciated. He was cruelly and ridic¬ again missing the boat. The proper means an ability and willingness to ulously accused of being “pro-Jap¬ measure of such reporting should not draw conclusions from those facts. anese.” And, with a perverted idea be popular sentiment in the United The reporter 9wes something, of justice, his transfer was arranged States as reflected in some segments too, to history. He watches history to Kobe, Japan. He was never re¬ of the press, or by some Congres¬ being made, wherever he is. It may turned to service in China. sional committees not charged with be a relatively quiet backwater. Or Sokobin’s career might never foreign relations. he may be very close to momentous have reached the heights—one can Sometimes, of course, the report¬ events—as I was to the world-chang¬ never know. But in 1947 he finished ing is in vain. It may, for various ing revolution of a half billion peo¬ 33Vf> years of loyal service as Class reasons be ignored—or, in effect, ple—that make insignificant his role 3 and consul in Birmingham. rejected—by the President and pol¬ as an individual. But whatever the This was long before McCarthy icy-makers in Washington. This has magnitude of the events he observes, had become a senator. The United been well discussed by Barbara or his distance from their vortex, the States was neutral in the Sino-Jap- Tuchman. But, from the viewpoint reports he writes today will be part anese War, and there was no out¬ of the Department, this should not of the history of tomorrow. And if side high level pressure. It was en¬ reduce the value of reporting. he writes them when he is young tirely an internal State Department There are many countries, as I enough, he may see that tomorrow. affair: in fact, it was done by the have noted, where—despite the in¬ I wish I could say, after all this, China branch to one of their own. formation explosion of modern news that the Foreign Service itself has Perhaps, in valuing the integrity and media and academic research—the always supported the value of re¬ honesty of field reporting, few of us Foreign Service reporter is still in a porting and area expertise. I imag¬ are beyond reproach. ■

24 FOREIGN SERVICE JOURNAL, March 1973 that the requirements placed on his Hungarian Foreign Policy FX; | BOOKSHELF Mission were so large—which did HUNGARY AND THE SUPERPOWERS: not prevent him from reverting to The 1956 Revolution and Realpolitik, Modesty and Clarity his advocacy of massive cuts when by Janos Radvdnyi. Hoover Institu¬ he had again left the Service.) tion Press, $5.95.

THE CONDUCT AND MISCONDUCT OF The Yost book ends with a plea

FOREIGN AFFAIRS, by Charles W. for greater support of the United THIS study, concerned with the Yost. Random House, $7.95. Nations as a mechanism that should consequences of the Hungarian rev¬ be given a chance to make the ad¬ olution in regard to Hungary’s in¬ CHARLES W. YOST having left the justments between the great powers, ternational relations, is of singular employ of the United States Govern¬ and indeed between all countries, value for students of Eastern Euro¬ ment in 1971 under less than auspi¬ that will be necessary to avoid world pean affairs and Foreign Service of¬ cious circumstances after having catastrophe. The author argues per¬ ficers specializing in the area. It served it honorably and effectively suasively that the eventual transfor¬ joins to scholarly analysis of the for almost 40 years, the first thing mation of the UN into something subject the knowledge derived from to note is that his latest book is not like a world government is neces¬ the author’s previous experience in one of the “kiss and tell” variety. It sary. One is less persuaded that it the diplomatic service of the Hun¬ is a sober, intelligent, fairly dispas¬ will be possible. Indeed, his argu¬ garian government. For those of us sionate analysis of the factors that ment is essentially that it must be in the Department of State who go into the making of a sound (or possible because it is necessary. dealt with Janos Radvanyi as chief unsound) diplomacy. Acceptance of this thesis requires of the Hungarian diplomatic mission That it is an unspectacular book an act of faith. One is reminded of here (1962-67) the appearance of will not surprise those who have Blaise Pascal who argued that if the the book has been awaited with keen known Ambassador Yost, whose chance of eternal life through faith interest. style has always been a combination in God were only one in a million, The work throws considerable of calm, clarity, courage, and great he would be a fool not to make a light on the machinery and methods modesty. That there is occasional bet even against such odds, since the of reaching decisions in Hungarian opposition partisanship on topical alternative is nothingness. foreign policy; on the moderating in¬ issues is perhaps understandable, —M. F. H. fluence of Kadar on Hungary’s for- the author being a Democrat who was writing in an election year. That the book goes over the same ground as so many factors on the same sub¬ ject that have appeared in recent years is inevitable. What is note¬ VACATION HOME SITES worthy is that it ends on an entirely different note. A beautiful wooded lot, The author gives highly personal appraisals of the Presidents and Sec¬ high in the Allegheny mColumbia University Press, agreements are an inevitable conse¬ $10.00. Riverside quence of the differing approaches which different writers with differ¬ CUMULATIVE multiple correlation Liquors ing backgrounds and outlooks will coefficients? Structural collective necessarily have to historical reality. variables? 2123 E St., N.W. 338-4882 They may sometimes help speed in¬ If the Far North suggests to you (conveniently located across from the State Department on E Street, to oblivion works which deserve to only free love, fiords, or Berg¬ next to Peoples Drug Store) be forgotten, but they cannot cause man films, “Scandinavian Political Our 40th Year lasting damage to a work such as Studies” may prove as disconcerting We loan glasses for parties Toynbee’s “A Study of History,” as your first sauna. If, on the other NO CHARGE which is so clearly the product of a hand, you really like “typologizing mind of great quality, of vigorous your subapproaches,” this 1972

26 FOREIGN SERVICE JOURNAL, March 1973 Yearbook is for you! rection. They will “steer” rather It is the seventh in a series pub¬ than “drive.” Theirs is the tough lished annually by the Political Sci¬ task of making cooperation really : 11 FI 1 ence Associations in Denmark, Fin¬ work—by getting people to put the land, Norway, and Sweden. Its skunk on the table and face the real roster of writers reads like a who’s issues (Chris Argyris, take heart!). who of Nordic political scientists Cleveland analyzes many of the who can and do give their US gut issues which continue to ham¬ brethren a run for their krona. Thir¬ per State’s effectiveness. teen, 20-page essays range from It’s worth six bucks for those in¬ analysis of labor radicalism in Nor¬ terested in what may happen to peo¬ ple in future organizations and for way (the most radical in all Scandi¬ Cleveland’s accounts of crisis man¬ navia) to potential racism in Den¬ agement in State. mark (and we Americans thought —HARRIS H. BALL we had that to ourselves!). Five brief “reviews” probe recent elec¬ A Personal History tion returns in all four countries and CHINA PAST AND PRESENT, by Pearl such pending questions as economic S. Buck. The John Day Company, $8.95. stabilization and affiliation with the Beat Stateside prices! European Community. The text con¬ All leading foreign cars, U.S. Fords, campers, CONSIDERING the role Pearl Buck cycles delivered stateside or in Europe at special cludes with a comprehensive bibli¬ factory prices. We arrange every detail. For has played in introducing China to complete information send for our free 60 page ography of Scandinavian political Master Catalog. Please indicate whether you many millions of people around the require delivery in U.S. or in Europe. ^ ^ science for 1971. The book is for world, it is difficult not to feel a Name the specialist not easily deterred by little sad about this latest book. Be¬ Social Security ~ quantification and behavioralese. hind the weighty title is a picture Address That caveat aside, no serious stu¬ book and some one hundred pages dent of the northern flank should of text in which Miss Buck presents Place of Delivery. miss this impressive reference col¬ her very personal autobiography, a Date of Rotation. lection. —SANDY VOGELGESANG very personal history of China and some very personal interpretations A Look to the Future of China today.

THE FUTURE EXECUTIVE, by Harlan The whole book seems to be an Cleveland. Harper & Row, $5.95. overreaction to an unfortunate ex¬ perience: in response to her recent THE name of the game for Harlan application for a visa to visit the Cleveland’s future executive will be People’s Republic, she received an complexity and constant change. insulting note of rejection from Pek¬ Effective organizations, those that ing stating that “. . . you have in WASHINGTON? make things happen (hopefully the your works taken an attitude of desired things) will consist of sys¬ distortion, smear and vilification tems, not hierarchical pyramids, and toward the people of new China.” If you're not familiar with that means a blurring of the tradi¬ Understandably upset, Miss Buck the Washington area, the tional lines of authority and respon¬ uses this book to remind us of her nice folks in our 10 offices sibility. Tension, loose control at the parents’ sacrifices for China, of how (inside and outside the top, plural centers of decision will she is more Chinese than American, beltway) will show you characterize these organizations. In of how much she loves the Chinese around. New homes, re¬ other words, they will be more hori¬ people, and of how she knows Chi¬ sales, and recreation com¬ zontal, more consultative. And the na better than almost anyone else. munities. line between public and private ex¬ No one can deny that Miss Buck VIRGINIA: ecutives will grow more indistinct. knows China. Unfortunately, how¬ 6510 Arlington Blvd., Falls Church 9001 Braddock Rd., Springfield Their feet will be kept to the fire by ever, the “feel” that she has for the 1984 Chain Bridge Rd., McLean 310 Pelham St., Fredericksburg making sure their decisions will be country goes back to the years of Oddfellows Bldg., Marshall publicly known. “The Good Earth,” while in her MARYLAND: 2600 University Blvd., Wheaton To staff these systems the author apparent belief that China is China 11125 Rockville Pike, Rockville 6480 New Hampshire Ave., Takoma Park sees more women in the saddle, as is China, she is sorely lacking the well as representatives of other mi¬ “feel” (which she says is so impor¬ nority groups, such as the Black tant) for the China of today. FREE —Complete relocation kit! Panthers. John Gardner’s “gifted The pictures of Henri Cartier- Write any office or call (202) 659-7155. generalist” will be in great demand. Bresson, Rene Burri, Hiroshi These people will need a lot of Hamaya, Marc Riboud and Helen physical energy, enthusiasm, humil¬ Snow are beautiful and discerning, [SHANNON-&LUCHS] ity (James Huff, June issue, “The but the book makes one sorry for Foreign Service Illusion,” take Miss Buck—a very uncomfortable REALTORS ESTABLISHED 1906 heart!), a relaxed approach to di¬ feeling. —LEO A. ORLEANS

FOREIGN SERVICE JOURNAL, March 1973 27 HOW CHINA MAKES ITS used to be an Institute of Interna¬ The second point can be put sim¬ FOREIGN POLICY tional Relations in Peking, which ply. Watch out for the Navy and from page 14 taught at the graduate-student level. the Air Force. After Lin Piao took used; now a violin for a mellow ef¬ But some of its former students over Defense from the less “Maoist” fect; now a flute to achieve a deli¬ (who include foreigners) told me P’eng Teh-huai, the Army swelled cate and modest melody line; now that it no longer functions. up with prestige as a “model” and a “school” for the whole nation. A a trumpet such as Radio Peking to In the next few years, diplomats sound the major theme in unmis¬ with an Army training will emerge little resentment stirs in the other takable fashion. The musicians are in China’s embassies. Just how they two services. They feel that the co¬ highly professional even when they are being trained is not known, but lossal stress upon politics has left are packaged as amateurs, and most two interesting points surround the the more professional and more of them have been at the job, with a Army’s role in the foreign policy technical aspects of military work change of instruments, for many corps. One is that a number of able enfeebled. The Navy and the Air years. men were sent into the Army, some Force are the natural repositories of Of the training of new diplomats at Chou En-lai’s own instigation, to these neglected aspects. In recent the visitor discovers little except “hide” from the furies of the Cul¬ months there has been pressure to that it is done not by a single meth¬ tural Revolution which might other¬ give more prominence than Lin od but by many. A few have a back¬ wise have cut them down. This is Piao’s policies did to air and naval ground in the Institute of Interna¬ one more case of the Premier run¬ work and weapons. This may well tional Relations of the Academy of ning the Cultural Revolution with affect defense and foreign policy by Sciences. But this has been suspend¬ his left hand while limiting its de¬ the end of 1972. Already in the fall ed since the Cultural Revolution. Its structiveness with his right. It is also of 1971, it became one of several members have gone off to com¬ one more case of the Army extend¬ issues surrounding the eclipse of Lin munes to exchange the care of na¬ ing its role beyond military tasks. Piao, and accompanying changes in tions for the care of pigs. The For¬ The result is that there are many the relation of the Army to politics. eign Language Institutes are an im¬ diplomats (and other professionals) In the leading universities, teach¬ portant source. They began the path in the Army who are not ordinary ing of international relations re¬ back to regular work late in 1971 Army men, but whose career pat¬ sumed in the fall of 1970. One (with even more emphasis than be¬ terns are now bound up with the place I glimpsed it was Peking Uni¬ fore on Western tongues). There Army. versity. The seven subjects taught in

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FOREIGN SERVICE JOURNAL, March 1973 29 ACTIVIST him was, I think, that it created a these sessions the assembled report¬ from page 16 new underdog: troops from the ers arose when Vann strode in. It that our justification for keeping the North, different from and disliked is plausible, and it is safe to say, North from taking over the South by the average southerner, had there was no other man in Vietnam Vietnamese was to inhibit China, openly invaded the South and caused who could command such a reac¬ during her belligerent phase, from terrible damage. This was the level tion.” For my part, I remember liberties she might otherwise be im¬ of injustice that moved Vann. Vann as a speaker at the monthly pelled to take with the nations If Vann was not an ideologue, he “Hail and Farewell” parties in Can around her. He asserted that China was unmistakably a leader. He had Tho to welcome new members to would be bound, eventually, to ex¬ acquired, first of all, the underpin¬ CORDS and say goodbye to depart¬ ert her influence over the Indochi¬ nings: he knew about organizations ing ones. Stiff, hatchet-voiced, the nese states, but that she needed to and was an expert statistician; he precise arrangement of polysyllables be restrained until she was ready to never made the mistake of relying that would have been easy work for do it peaceably. Although that ex¬ on only one source for news of a Ellsworth Bunker or William Colby planation is probably as good as situation, nor did he expect to get seeming always just beyond his there is to be had on the subject, it the truth about a project from the reach, he commanded absolute si¬ was not a theme Vann returned to man he had assigned to do it; he lence. And among his subordinates often. He was, in reality, congeni¬ managed to get to know most of his only the handful of those who had tally on the side of the underdog: subordinates in the field personally known him longest, like Wilbur Wil¬ he said many times that, had he and remember their names; he son or Colonel Carl Bernard, called been a young Vietnamese when sensed when the real chain of com¬ him by his first name. To everyone Diem was president, he would have mand differed from the formal one. else, whether speaking to him or joined the VC. He had always He was, in short, a formidable bu¬ about him, it was “Mr. Vann.” thought that the war during that pe¬ reaucrat. Vann’s magnetism, it seems to riod was primarily a civil war, aided But he was more. The Washing¬ me, lay in his powerful ability to to be sure by the North, and he ton POST spoke after his death of convince people he was right. As stood in sympathy with the griev¬ the press conferences he held each though his very presence in a top ances that fueled it and in admira¬ Wednesday night in Pleiku while position in Vietnam were not living tion of the men who fought it. The he was directing the defense of Kon- proof of the accuracy of his predic¬ profounder significance of Tet for tum: “It is said that at the first of tions, Vann bombarded any inter-

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30 FOREIGN SERVICE JOURNAL, March 1973 locutor—reporter, senator, or gen¬ deed, he was the only civilian capa¬ press conferences were almost the eral—with statistics, history, vignet¬ ble of handling it. (Vann liked to sole source of news about the offen¬ tes, prognoses, analyses. He typi¬ boast that he had more official com¬ sive, and the reporters said Vann cally took visitors on his daily bat time in than anyone in the US was more cocksure and aggressive rounds, dropping down here and Army, and that he was adding to than they had ever seen him. He there, generally displaying he knew his combat experience every day.) was said to have exhausted the pity more about a subordinate’s area His year in MR II was to see what he used to feel for the enemy. He than the man himself did. Vann was probably the last great commu¬ made the defense of Kontum his rarely let up on a captive listener: nist offensive of the war. And it was personal crusade: while others pre¬ on a long ride, or late into the night to end, as we know, in his death. dicted the North Vietnamese would at his office, Vann could talk vir¬ I know only bits and pieces of walk over it, Vann insisted it could tually non-stop for two, three, five what happened to Vann in the weeks and should be held. The last Sunday hours. In III Corps he had once before his helicopter crashed. I have of Vann’s life his helicopter took taken Teddy Kennedy for an all spoken with two friends who were ten rounds going into Kontum. The night drive through the countryside reporters at some of Vann’s last next day, the height of the fighting, (which he was, of course, strictly press conferences; I talked with his was the only helicopter to go in. forbidden to do), and he later con¬ Robert Komer, who visited Vann in It was on the Friday that he per¬ cluded that Kennedy’s views were Pleiku before the offensive started; ished. pretty sensible when you got him and I read the papers. The image of Vann had always drawn criticism away from his chief aide. It is closer Vann that emerges is almost that of for doing too much, for taking un¬ to the truth, I suspect, that Ken¬ a man possessed. He took over the necessary risks. He rode his motor¬ nedy, subjected to the full Vann direction of the war completely. He cycle alone through the Delta. He treatment, hardly got a word in. had already relegated Corps Com¬ drove his car through the deserted In the spring of 1971, Vann was mander Major General Ngo Dzu to countryside at night. If there was finally elevated to the job he had the status of a corporal, according fighting, he went to it himself, day long wanted. He was sent up to be to Komer. Now he began personal¬ after day if need be. He had sur¬ the Senior American Advisor in ly planning air strikes, personally vived countless battles and at least Military Region II. He was the first rescuing trapped American advisors, several ambushes. A friend estimates and only civilian to be given com¬ personally flying into Kontum at he was shot down by hostile fire at mand of a military region, and, in¬ night while it was under seige. His least 25 times during the past ten

FOREIGN POLICY NUMBER 10, SPRING 1973, $2.50

3 The Establishment 132 Forgetting About Godfrey Hodgson The Unthinkable Rob Paarlberg 41 European Security 141 The Flight From Beating the Numbers Foreign Policy Game Thomas L. Hughes Frederick S. Wyle

55 Israel Awaits The JORDAN: THE FOR¬ Doves GOTTEN CRISIS Peter Grose 157 Were We Masterful... We And The Arabs Henry Brandon Arie Eliav 171 . . .-Or Lucky? David Schoenbaum 73 Has China Changed? Joseph AIsop, Jack Chen, John K. Fair- bank, JonathanMirsky, SPECIAL TO AFSA Hugh Scott, John S. MEMBERS Service, Susan Shirk A two-year subscription to FOREIGN POLICY (8 issues) is available for $15.00, a saving of $5.00 over the newstand THE U.S. AND ITS price and $2.00 off the regu¬ NEIGHBORS lar subscription rate. Send checks, stating that you I was the strong silent type at cocktail parties 94 Taming The Cuban are an AFSA member, to Cir¬ until I started reading the JOURNAL. I'm still Shrew culation Service, Room 307, Jorge I. Dominguez 1140 Broadway, New York, silent but I can no longer tear the phone book N. Y. 10001. Checks should be made out to FOREIGN in half. 117 Will Canada Last? POLICY. Robert Gilpin

FOREIGN SERVICE JOURNAL, March 1973 31 years. back reports of visits to units in the enough to that. Spiro Agnew and If some of Vann’s daredeviltry field whose personnel he had asked Melvin Laird were there, and so was grandstanding, most of it was to have shown to him so he could were Teddy Kennedy and Daniel due to his conviction that, if you see for himself how many were Ellsberg, along with others of every want to know what things are like, there as opposed to how many there different persuasion, the prominent you have to go there yourself. He were supposed to be. It was in the and the unknown. Robert Komer didn’t pronounce a road secure until course of initiatives like these, car¬ spoke, I think, for all of them when he himself had ridden on it, and he ried out day by day over years and he called Vann “the best we had.” didn’t assess the worth of an out¬ years and often carefully put down Before I close, I feel I should re¬ post until he himself had spent the in writing, that Vann learned about mind you of all the things about'' night there. Once he and I flew to Vietnam. There was no way to do John Vann I’ve had to leave out. Ben Tre to have lunch with a judge this consistently without exposing I haven’t told you about his battles whom Americans in the province himself to danger. with Ambassador Bunker, about his were calling a VC sympathizer be¬ What, now that it is all over, dislike for the CIA, about his wom¬ cause he was freeing suspects were his accomplishments? How anizing, about how he got along scarfed up by the Phoenix program. should we remember him? Well, he with the Vietnamese, about his I did the interpreting, and Vann was got to the truth more often than weakness for giving jobs to old at his diplomatic best, soft-spoken, others, and he reported it fearlessly. friends or about the Tran Ngoc Chau sympathetic but insistent. We dis¬ He argued early on that we were affair. cussed case after case, and found killing indiscriminately and that it I haven’t even told you he had a that most of the suspects were poor was losing the war for us and that sense of humor. David Halberstam’s people being used by local officials the Vietnamese would never fight as latest book tells of a briefing Vann as fodder to fill quotas, against long as we did it for them, and gave to Walt Rostow in 1967, which eventually many of his ideas were whom there was no real evidence. was somewhat pessimistic. Rostow, On another occasion, when Ambas¬ adopted. He was an inspiring and slightly shaken, said, “But you do sador Bunker’s office challenged tireless leader in the field. admit that it’ll all be over in six Vann’s contention that 10 to 15 per But I think we should remember cent of the South Vietnamese armed him above all as his own man. The months.” forces were ghost soldiers (that is, crowd at his burial in Arlington Na¬ “Oh,” said Vann, “I think we can merely names on a list), Vann fired tional Cemetery should be testimony hold out longer than that.” ■

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32 FOREIGN SERVICE JOURNAL, March 1973 FOREIGN SERVICE ILLS Smith: Another subject: What about it; I’m sure that some of this is also from page 11 “war casualties”—from Vietnam, I related to frustrations over trying to ular basis to a young individual who mean? get a job done under those circum¬ is emotionally maturing, this is go¬ Mishtowt: People don’t always talk stances . . . ing to have some effect on the ma¬ about these things. I know that, Smith: During the time you have turing process. In this respect I psychologically speaking, there have been in the Foreign Service there think you have to look at it in the been “casualties” ... on both sides have been great improvements in same way as at alcohol: it’s obvi¬ of the question. There were some medical benefits—and I know you ously no good for an adolescent to who believed fervently in the poli¬ are not unconnected with this. How drink every day. You understand, cies that the United States Govern¬ would you summarize the changes I’m not trying to equate alcohol ment adopted, and were disillu¬ that have taken place? with marijuana, because there’s no sioned that they weren’t able to Mishtowt: There’s no question that question that physiologically mari¬ carry them through. There were al¬ the coverage now is much, much juana is many, many times as safe so individuals who violently dis¬ better than it used to be. First of all, as alcohol, and there’s no evidence agreed with these policies from the dependents are now covered—this that marijuana is addicting as such beginning . . . was an amendment to the Foreign or that it will cause some of the Smith: And clinically? Service Act in 1958, with appropria¬ long-term degenerative brain or liver Mishtowt: We have had an unusual tions being made available in 1959. changes that alcohol will cause. number of heart attacks in Vietnam There is no question that we have Smith: On balance, then, in the —primarily among AID people. Of been much more liberal in interpre¬ United States, do you think the course this relates to the work-load tation of the regulations and what problem would be more manageable that’s placed on the heart in hot, we can do. Under Mr. Macomber’s if marijuana were legalized? humid climates . . . “Diplomacy for the ’70s” we have Mishtowt: Probably, and yes, I think Smith: Might it be that the AID changed the regulations to extend it should be legalized, and I think it people also have to travel around benefits beyond the 120-day limita¬ is just a question of time before it the country quite a lot and are sub¬ tion that applies to dependents if will be. But you understand that ject to a corresponding number of the condition has clearly been that still will not solve the problem physical dangers? caused or aggravated by being I mentioned, which exists with any Mishtowt: This is part of it; the long abroad. There are government-wide hallucinogen . . . hours of work probably are part of insurance policies now, paid for by

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FOREIGN SERVICE JOURNAL, March 1973 33 both the government and the em¬ ployee . . . be done in FS medicine that isn’t ployee, which were not available Smith: Altogether it’s quite apparent being done? when I joined the Foreign Service. that the Foreign Service has meant Mishtowt: One area which particu¬ Also, there is the expansion in the a lot more to you than just the sum larly concerns me is the need for a number of Foreign Service doctors of its patients. How did you get in¬ dental program. We have too many and nurses manning dispensaries in terested in it in the first place? documented cases of individuals who our embassies abroad. Mishtowt: I had originally hoped to were unable to receive adequate Smith: How would you compare the go to the Georgetown Foreign Serv¬ dental care at posts, and who, in system of benefits to that which is ice school. But that was in the de¬ order to correct the dental problems available to the military? pression years. I received a science that arose, have had to pay as much Mishtowt: They’re less-, "there’s no scholarship at Georgetown, and in as several thousand dollars ... I question that they’re less. But the order to go to college at all that know several families that have bills military have had, historically, a dif¬ was the route I had to take. I went between $3000 and $5000 because ferent type of benefits. They have into science courses and became in¬ of lack of dental care where they had total, comprehensive medical terested in medicine. But I never were stationed. I have proposed that care . . . The Foreign Service has lost my interest in the Foreign Serv¬ we have a series of roving dental had the use of appropriated medical ice. Also, my wife’s father was in teams in certain areas, and that funds primarily for serious illnesses the Dutch Embassy here; and my these teams would provide, if you and injuries incurred abroad. It has own parents were in the Russian will, prophylactic or “routine main¬ been primarily an “overseas bene¬ Embassy in Washington, before the tenance” care . . . Unfortunately, fit,” if you will, rather than a “bene¬ Revolution. After getting my medi¬ I’m told that we need an amend¬ fit while you were in service,” which cal degree in ’42 I went into the ment to the Foreign Service Act to is of course quite different from Army, then to the Lahey Clinic in implement this, and that is now what the military have. And of Boston, then into private practice; dormant . . . course the regular military have but when I was asked to join the Smith: All the same, Foreign Serv¬ benefits after retirement, whereas Foreign Service medical program, ice medicine seems to be one of the Foreign Service Act specifically in ’55, it seemed like a rather natu¬ those rare things which are getting states that our benefits are for tne ral thing to do. better . . . employee; and once one becomes an Smith: In terms of the immediate Mishtowt: There always have to be annuitant, one is no longer an em¬ future, what do you think should exceptions. ■

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Box 12425-K 1805 Belle View Blvd., Fort Hunt, Alexandria 768-5100 Capitol Station • Austin, Texas 78711 13414 Occoquan Road, Woodbridge, Va 494-7101 309 Maple Ave., W., Vienna, Va 938-5800 34 FOBEIGN SERVICE JOUBNAI,, March 1973 even overzealous in this respect. for devoting space to it rather than LETTERS TC>p^ | This leads to my second observa¬ the normal combination of elec¬ tion which is that, if the prime qual¬ tioneering and bread-and-butterism ity a President seeks in an advisor which generally dominates this peri¬ is personal loyalty, he is mistaken odical of ours. Unfortunately, this Presidents and Bureaucrats and doing himself a disservice. If venture into professionalism was not that were his primary criterion, he sustained in the accompanying anal¬ ■ I have read with interest the edi¬ would surround himself with a group ysis except in the most cursory way. torial “Presidents and Bureaucrats” of “true believers” or of docile yes- As we seem to live in an illiberal in your January issue and, as an men who would merely confirm his time when people must establish FSO who was an editor of the JOUR¬ prejudices and encourage his mis¬ their credentials if they wish their NAL in the 1930s and has served takes. viewpoints considered on the basis under seven Presidents and 15 Sec¬ Of course a President cannot tol¬ of merit, let me unequivocally state retaries of State, I should like to erate public servants who are under¬ that I yield to no one in my belief make the following brief comments. cutting him behind his back. He that the Service needs a just and No doubt you are correct that must be expected to introduce into sensible grievance system and that suspicion and mistrust has often the higher echelons of the bureauc¬ the management of the Service is existed between the President and racy some people of his own party not perfect. Nevertheless, I also be¬ the State Department. President and persuasion, hopefully enjoying lieve that the alarums and excur¬ Roosevelt was inclined to consider other qualifications as well. How¬ sions of the past few years over this its personnel hopelessly reactionary, ever, the essential service which ca¬ issue may well have dulled the pro¬ out of sympathy with his New Deal reer public servants with long and fessional perceptivity of both the reforms and with his liberal attitude wide experience can render a Presi¬ Service and its managers. It may toward foreign affairs. Fifteen years dent is to “tell it like it is,” to in¬ well be true that our energies have later the pendulum had swung to form him without fear or favor, for been sapped to such a degree by the other extreme and the Depart¬ example, what the real situation is what must appear from the White ment was believed, in some execu¬ in a particular part of the world, House as a dispute that is given tive and legislative circles, to be what are the US capabilities and the undue weight and attention vis-a-vis populated with Reds and subversives. limits on US capabilities in respect the national interest. The question Both stereotypes were wide of to it. may well be—why should the Presi¬ the mark. Views of most career per¬ If a President interprets such ob¬ dent—any President-—take us seri¬ sonnel had changed during this in¬ jective advice as “disloyalty,” or ously. The burden of proof is on terval only in the same direction mistakes prudence for timidity, he us to demonstrate that we have and to a similar degree as American will be cutting himself off from the something to offer—skill, vigor, per¬ opinion generally. The difference main benefits a highly trained bu¬ ceptivity, and non-partisan loyalty was in the way it was perceived reaucracy can bring to him. In his (perhaps this is better than apolit¬ from outside, by Presidents, Sena¬ own broadest interests he should ical) to the Constitutional order. tors and citizens. This misunder¬ facilitate their input into policy¬ We must demonstrate that we are standing may be inevitable in the making and encourage in-house di¬ forceful advocates of thoughtful case of the particular bureaucracy versity of opinion and dissent. The policies and also vigorous executors which deals with kinds of problems failure of many Presidents adequate¬ of Presidential instructions. . . . —foreign affairs—which are arcane ly to recognize and use the knowl¬ Times are difficult for the Serv¬ and mysterious to most citizens, edgeable people available to them ice—and unfair things have hap¬ even to many Senators and some has often gotten them and the coun¬ pened to some of us—and may Presidents. The fault is not primari¬ try into serious trouble. continue to do so in the future. ly in the bureaucracy. In summary, I should venture the There is no question but that we Your editorial states: “From any view that the problem is not pri¬ should work to change things for President’s viewpoint, the prime marily one of “loyalty” down the the better—but surely this can be quality to be sought in an advisor line but of sufficient broadminded¬ done without damaging further our is personal loyalty.” This remark ness and sophistication at the top to credibility or reducing the quality provokes me to make two observa¬ use profitably precious assets built of our labor to the mediocre or tions. up in the public service over many time-serving. President Kennedy told First, in my 35 years in the Serv¬ years. us that life is unfair—and he surely ice I never encountered a case of CHARLES W. YOST cannot be accused of complacency. disloyalty to an incumbent Presi¬ New York The improvement of our relation¬ dent. The tradition and training of ship with the Presidency will not FSOs is to present their views, as A Fundamental Issue be a gift from “senior appointees candidly and vigorously as the cur¬ . . . who are sufficiently politicized rent climate and their position in the ■ The editorial in the January, to be sensitive to the needs of the hierarchy permits, before a policy 1973 issue of the JOURNAL, “Presi¬ White House. . . .” (Are FSOs decision is made, but to carry out dents and Bureaucrats” raises a fun¬ really that politically backward that that decision scrupulously and loyal¬ damental issue—the Service’s rela¬ they cannot see the political reali¬ ly once it is made. They have some- tionship with the White House—and ties in the United States? For imes tended, in my opinion, to be I congratulate the Editorial Board shame!!) Nor will it come as a beni-

FOKEIGN SERVICE JOURNAL, March 2973 35 son from the President. It will come JOURNAL readers the identity of “the practice. Most Foreign Services when we persuade the White House foremost authority” on this quota¬ move their diplomatic staff quickly that we are professionally competent, tion and also to disclose who con¬ to First Secretary, but this does not non-partisan, emotionally mature, ferred on him the accolade of “the necessarily reflect promotion within and willing and able to carry out foremost authority.” their personnel structures to a pay the incumbent’s policies., While respectfully awaiting Dey’s and position grade equivalent to VICTOR WOLF, JR. reply in the JOURNAL to these ques¬ FSO-3 within ours: (0-3 being the Copenhagen tions, may I cite my foremost au¬ normal grade for First Secretary). thority in this matter: “MacMillan’s Tribute to an Adversary The distinction is between diplo¬ Book of Proverbs, Maxims and matic title (largely for external pur¬ ■ What manner of crepitations Famous Phrases” (New York: Mac¬ poses) and pay grade/rank. emanate from Hanover? Is it Am¬ millan; 1948), in which on page EDWARD MARKS bassador Briggs asserting the For¬ 2666 will be found the following Brussels entry, quoted verbatim and in toto: eign Service is not rpt not an ad¬ Use of the Flag versary of the Department? Who can 7. Not too much zeal (pas trop de forget that Ellis Briggs was the zele) Charles-Maurice de Talley¬ ■ I was very intrigued by the James staunchest adversary the Department rand (c. 1792), See Sainte-Beuve, May article on the perfect diplomat ever had? Who can forget how the Critiques et Portraits, iii, 324. Some¬ in the January issue of the JOURNAL. cables burned round the globe with times quoted, “Surtout pas de zele” The closing line is interesting for immortal mixed metaphors in re¬ (Above all, no,zeal). A reflection the words “. . . and the national flag sponse to the more insane edicts of the French proverb, “Trop de over his coffin when he dies.” out of Washington? And in those zele gate tout.” (Too much zeal After first posing the question as dark days of the early ’50s, wasn’t spoils everything). to whether an American diplomat, either current or retired, has the it Ellis Briggs, one of but three cries Evidemment, Dey simply cannot right to have the American flag dis¬ in the wilderness, who dared to bear trop de zele, id est, excessive¬ played on his coffin when he dies, I challenge the famous bookburning ness. Yet, not content to use JOUR¬ would ask why not? and if so, under mandate in excoriating Briggsonese? NAL columns to “correct” me and what conditions? The only prose burned under his my alleged accomplice-in-misquota- JOAN E. CORBETT command were such sort of deptels. tion (who, lucky him or her, is Washington I am too far removed from the spared by anonymity the public present day realities of the Foreign obloquy which I must bear alone), EDITOR’S NOTE: The answer to the first Service to take a position on the Dey must also cast personal asper¬ question is yes, according to the pro¬ visions of 2 FAM 154.3, which pro¬ merits, but I deem it likely that the sions on us, for he deduces that as we are “mis-quoters,” we must suf¬ vides in part that the flag may also be Ambassador may well recognize that used to cover the casket of a deceased any relationship in which two be¬ fer from “an excess of some quality or other.” To condemn not only the American Foreign Service employee ings, human or organizational, are pending completion of transportation legally bound, ineluctably attains art “sin” but the “sinners” does seem arrangements or up to the time of adversary character at times. But excessive, even “trop de zele.” burial is burial takes place at his post. When, un beau jour, you, dear little wonder Ambassador Briggs Representation Variants fails to sympathize with the majority Editor, decide that la preciosite of of FSOs who feel they must organize our indulgence in ces grandes preoc¬ ■ Bravo for Irwin Rubenstein’s to effectively carry on the good fight, cupations is excessive (“This corre¬ letter (November 1972) on repre¬ which he waged so ardently, so well spondence must cease”), my French sentation! I, too, have assumed the and for so long ... all alone. . . . instructor and I can continue our Congress to be reasonable until duel in the cornfields of Iowa— IRYNE CODON BLACK proved otherwise. (If a sensible pro¬ Newport Beach, Calif. with cornstalks as weapons. posal is made and still ignorantly ROBERT W. RINDEN refused, that, of course, proves Assez C’est Assez Ancien eleve, Oskaloosa H.S. otherwise.) ■ Now that the shame of it all no Someone has to testify that there longer leaves me atterre I rise to prof¬ German First Secretaries are variants of what is now called fer regrets and apologies (neither ■ Dennis Kux and Michael Boer- “representation.” If you hold a sem¬ trop deep) to Edward K. Dey ner’s article on the German Foreign inar lasting all day, refreshments (ancien eleve, I’Universite McGrew, Service in the January issue of the and/or lunch are merely a civilized Paris) for the distress and shock FSJ contained one possible misun¬ thing to do and should be consid he suffered on, unexpectedly, find¬ derstanding. They said that “The ered a part of the program costs ing twice {twice, mind you) in the Germans promote their younger of¬ Events of this sort do differ mate September JOURNAL this statement ficers much faster than we; an of¬ rially from the at-home cocktail of Tallyrand’s classic advice to di¬ ficer can expect to reach First Sec¬ But we should try sensible pro plomatists: “Et surtout, pas trop de retary level in about four or five posals for necessary representation zele.” He declares that, according years after entering the Service.” A1 Capp has come a long way fro' to “the foremost authority,” the trop While the Germans may actually thinking Congressmen are Neander in this quotation is “apocryphal.” promote their younger officers faster thals. Maybe we should too. Before accepting his presumed than we do, the quick elevation to FRANK LATTANZ correction, may I ask him to inform First Secretary is not proof of such Ibadan

36 FOREIGN SERVICE JOURNAL, March 1973 published by the AMERICAN FOREIGN SERVICE ASSOCIATION 2101 E Street, N.W., Washington, D. C 20037 flFSfl ACTIVITIES in time to be received by April 15, tiny to junior and senior officers 1973. with the right qualities. Nominations Needed The format for nominations is It is again time for nominations as follows: AFSA Honors John Service and for AFSA’s three awards honoring PART 1: China Hands Foreign Service people who tell it Biographic Data A distinguished audience of like it is and who have the cour¬ NAME nearly 300 scholars, journalists, age and integrity to question the BIRTH DATE government leaders and Foreign system’s conventional wisdom. GRADE Service officers gathered in the This is one of the Association’s AGENCY eighth floor ballroom of the De¬ most important professional ac¬ partment on January 30 to honor tivities and it is placed in high PART 2: John Service and his “China relief by the Association’s recent Association with Candidate hand” colleagues for their contri¬ honoring of Jack Service and the (Strictly limit to 250 words). butions to the quality and integ¬ “old China hands” for their con¬ PART 3: rity of political reporting. tributions a generation ago. Justification for Nomination Highlights of the moving tribute The three awards are the Herter (Strictly limit to 500-750 words). to Mr. Service were an introduc¬ Award for senior officers (FSO 1 Summary of specific reasons tion by historian Barbara Tuch- and 2 and equivalents), the Rivkin for nomination. The narrative man, in which she discussed the Award for middle-grade officers should discuss: reasons why candid political re¬ (FSO 3-5 and equivalents), and a. Qualities of mind and spirit ports are often ignored by deci¬ the Harriman Award for junior of¬ which qualify the Nominee sion makers, and Mr. Service’s ficers (FSO 6-8 and equivalents). for the award; own remarks, in which he stressed They are given, not for all-around b. Examples of the Candidate's the need for acute observation, good performance or super-effi¬ accomplishments, particu¬ honesty, and the courage to draw ciency reports—this is the Depart¬ larly evidence of outstand¬ conclusions. Mr. Service twice re¬ ment’s area—but for outstanding ing initiative, integrity, and ceived standing ovations from the intellectual originality, courage, intellectual courage. Anyone with knowledge of a For¬ gathering, which prompted Wash¬ forthrightness, and “constructive ington Post reporter Marilyn dissent.” Although past recipients eign Service colleague’s accom¬ Berger to observe that “the For¬ have often been chosen on the plishments can nominate for eign Service officers seemed in basis of their contributions to the these awards—in fact, the idea is some respects applauding them¬ Department’s debate on general to emphasize peer nominations selves at a time when their own foreign policy issues, this is not rather than nominations by su¬ utility has been brought into ques¬ the only field in which these char¬ periors. This is where you come tion by a White House that runs acteristics can be displayed. One in: the more nominations AFSA its own foreign policy.” The of last year’s winners, for exam¬ receives, the more certain we Post story described the lunch- ple, was singled out for her work can be of having sought out and on women’s rights. The awards found the most deserving candi¬ themselves are $1000 each. dates. We hope that some person INDEX Two copies of each nomination, at each post meets the specifica¬ unbound on regular size paper, tions for one of these awards, AID News 38 marking each page with the name that you AFSA representatives will USIA News 38 of the nominee and numbering pass the word to others at the each page, should be sent to: post, and that each chapter will State News 38 American Foreign Service Associ¬ send in at least one nomination AFSA Activities 37 ation as soon as possible. Because the Members’ Interests 40 Awards Committee middle-grade group is far larger 2101 E Street, N.W. than the other two, we would ap¬ AAFSW News 4 Washington, D.C. 20037 preciate your giving special scru¬ Foreign Service People 39

FOREIGN SERVICE JOURNAL, March 1973 37 eon, which was organized by bility. AFSA believes it would be time for negotiations during the AFSA, as an occasion regarded most unfortunate if action were first ninety days following the cer¬ by Foreign Service officers “as taken to revise the Agency's per¬ tification of an exclusive employee vindicating the role of the Foreign formance evaluation and promo¬ representative, AFSA has pro¬ Service itself. Some even said tion system at the very time an posed, and the Department has they came to assuage their own employee representative is being accepted, simultaneous discus¬ guilt." elected. Under the Executive Or¬ sions on matters of mutual inter¬ In introducing the program, der, no system can be devised or est. To this end, the Negotiating AFSA Board Chairman William C. revised solely by management. Committee has been divided into Harrop said that the most fitting In light of these circumstances, four subcommittees: Framework reaction to the affair came from AFSA requested that any recom¬ (Rick Melton); Grievances (Tex one of the Departments “old mendations submitted by the Harris); Members’ Interests (Hank China hands,” invited back by Study Group be held in abeyance Cohen); and Personnel (Jack Mik- AFSA. “I never thought I’d live to pending certification. At that time, los). AFSA representatives are see it,” he said. the exclusive representative will currently meeting with their man¬ New Luncheon Series most certainly enter into consul¬ agement counterparts each after¬ Deputy Secretary Kenneth Rush tation with AID regarding any re¬ noon on a Monday through Thurs¬ and Under Secretaries William vision of the Agency’s perform¬ day schedule. Casey, William Porter and Curtis ance evaluation and promotion Discussions have been frank Tarr have agreed to join AFSA system. and businesslike. In the frame¬ members in a series of get-ac- work area, AFSA has already pro¬ quainted luncheons this spring. USIfl NEWS posed agreements relating to dues The schedule for the four lunch¬ allocation; AFSA access to new eons to be held in the Benjamin Retirement Board Precepts employees; access to agency com¬ munications facilities; the organi¬ Franklin Room on the Eighth Floor AFSA has commented on the of the Department is: zation of overseas chapters; and proposed Precepts for the 1973 the provision of other agency serv¬ Wednesday, March 21—Deputy USIA Retirement Board. After not¬ Secretary Kenneth Rush ices and facilities, including office ing that the Association has seri¬ space within the Department. Thursday, April 5—Under Secre¬ ous reservations regarding basic tary William Porter These agreements are essentially USIA selection out procedures, facilitating arrangements which Tuesday, April 24—Under Secre¬ AFSA made the following recom¬ are designed to enable AFSA to tary Curtis Tarr mendations in a letter from Board meet its responsibilities to repre¬ Monday, May 14—Under Secretary members Jack Tuohey and Bill sent all Foreign Service employ¬ William Casey Lenderking: ees of the Department of State. Notices and reservation forms —That the Retirement Board be On Members’ Interests subjects, are in the mail to AFSA members required to develop standards AFSA has introduced detailed pro¬ on the luncheon list. If you will be of performance for each class posals with respect to adjusting in the area at the time of any of in accordance with the Foreign allowances for the recent devalu¬ these luncheons and would like Service Act; ation, eliminating deductibles on to attend, please see the recep¬ —That the Retirement Board ap¬ R & R and emergency visitation tionist at AFSA headquarters. ply these standards and make travel, dropping mandatory at¬ final determinations on selec¬ tendance at US Government- AID NEWS tion out, instead of the de¬ sponsored schools, equalizing terminations being made by the shipping allowances for single Review Proposed of Study Deputy Director; employees and married couples Group Recommendations —That the Retirement Board be In a letter to Assistant Admin¬ without children, providing special drawn from all classes of the assistance to families with handi¬ istrator Campbell, AFSA has com¬ Agency, not just senior officers. mended the diligent efforts of the capped children, and restoring Foreign Service Performance Eval¬ ship travel. Other proposals are in uation System Study Group. How¬ STATE DEPT. NEWS preparation. ever, AFSA has pointed out that AFSA has put forward the Bayh- it would be inappropriate for the Negotiations Begin Cooper Bill as the basis for a per¬ Agency to implement any recom¬ The AFSA State Negotiating manent grievance system. mendations emanating from the Committee, under the direction of On personnel subjects, AFSA Group prior to the certification in Tom Boyatt, has initiated discus¬ has requested formal consultation the very near future of an exclu¬ sions with representatives of the on the structure, precepts and sive employee representative. Per¬ Department’s management on a membership of all selection formance evaluation and promo¬ wide variety of subjects. In order boards. AFSA has asked for an tion are two extremely important to come to grips as quickly as explanation of the Department’s subjects for AID employees and possible with the large backlog of policy on Section 519 of the For¬ for their exclusive representative; matters of interest to AFSA mem¬ eign Service Act. AFSA has re¬ they are directly within the latter’s bers and to take advantage of the quested management to review sphere of concern and responsi- more liberal granting of official the criteria and definitions used

38 FOREIGN SERVICE JOURNAL, March 1973 for the classification of Foreign invitation to all FSRs—even those vived by her parents of the Amer¬ Service positions, and to discuss not falling in the highly special¬ ican Embassy, Brasilia. The family establishing midcareer multifunc¬ ized categories described by the asks that contributions in her tional positions. AFSA has also quotation from MRB No. 8—to name be addressed to the Treas¬ asked for access to data on non¬ apply for conversion. urer's Office, Children’s Hospital career appointments and on the I would very much appreciate Medical Center, Boston, Mass, for lateral appointment process. your confirmation that the Asso¬ the Charlotte B. Ward Fund. ciation's understanding of the Davis. Robert C. Davis, FSO-re- Career Tenure FAS program is correct and that tired, died on December 22, in Excerpts of letter from AFSA officers in specialties which are Boston. Mr. Davis joined the De¬ Chairman Bill Harrop to the Di¬ standard to and available in the partment in 1946 and later served rector General: career service will not be eligible. in the Foreign Service. He was as¬ As you know, the Association is As exclusive representative of signed to London, Brussels, Mos¬ determined to maintain and the Foreign Service in the De¬ cow and Ottawa before his retire¬ strengthen the career Foreign partment of State, the Association ment in 1972. He is survived by Service officer system established wishes formally to request that its his wife, Shirley Chapman Davis, by the Foreign Service Act. I representatives participate on the Olde County Road, Francestown, know you fully share this position. panels or boards which will N.H., a son, a daughter and four We have applauded the Foreign evaluate the eligibility and quali¬ grandchildren. fications of limited appointment Affairs Specialist Corps proposed Dempsey. James M. “Jack” Demp¬ by the Task Forces, with the clear officers being considered for ten¬ sey, AID-retired, died on Decem¬ ured FAS status. understanding that the FAS Corps ber 24, in Gainesville, Florida. Mr. would be composed of true spe¬ Dempsey joined the foreign assist¬ cialists whose expertise was ance program in 1957 under the needed by the Government, was ICA and served in Vietnam, Iran not available elsewhere in the and the Dominican Republic, re¬ career Service, and was of a char¬ MARRIAGES tiring in 1969. He was the author acter requiring a higher degree Morrison-Cadeaux. Margaret Eliza¬ of several authoritative books and of specialization and continuity beth Morrison was married to FSO papers on vegetable fiber develop¬ than was appropriate to FSOs. Ralph H. Cadeaux, on February ment. Mr. Dempsey is survived by It is our understanding that 10, in London. Mr. Cadeaux is his wife, Kay, of 275 Carib Dr., Foreign Service Reserve officters being reassigned to FSI as Coordi¬ Merritt Island, Fla. and two sons who are not profound specialists, nator for the Consular Course. from a previous marriage. and who are in fact qualified for Frazier. Alfred D. Frazier, retired BIRTHS and engaged in the traditional courier, died on January 28 in administrative, economic, consu¬ Stempel. A daughter, Jill, born to Paris. Mr. Frazier retired in 1953 lar and political functions of the FSO and Mrs. John D. Stempel, at the age of 70. FSO Corps, are not eligible for on January 23, in Lusaka. Hamilton. Robert C. Hamilton, conversion to career FAS status. AID, died on December 23, in To utilize the FAS program to DEATHS Washington. Mr. Hamilton joined grant permanent career status to Ballantine. Joseph W. Ballantine, AID in 1966 and served in Viet¬ such officers would in our view be FSO-retired, died on January 29, nam until 1969, when he trans¬ a distortion of the Foreign Serv¬ in Fairfield, Connecticut. Mr. Bal¬ ice Act and an abuse of the lantine entered the Foreign Serv¬ ferred to Washington. He is sur¬ career principle. ice as a student interpreter in vived by his wife, Mary, Apt. 516, At a time when our Service is Japan in 1SK)9 and served at Kobe, 4545 Connecticut Avenue, N.W., shrinking under stern budgetary Yokohama, Tansui, Kolohama, To¬ Washington and four children pressure, the permanent retention kyo, Dairen, Canton and Mukden. from a previous marriage. of such FSR officers, who were He also served as consul general Louchheim. Walter C. Louchheim, appointed for a limited period in Ottawa and then as director of investment counselor, civic leader only as authorized by the Foreign the Far Eastern office and special and patron of the arts, died on Service Act, could make it virtu¬ assistant to the Secretary of State January 31, in Washington. Mr. ally impossible for us to increase before his retirement in 1947. He Louchheim helped to organize and the recruitment of new junior authored two books and many became a member of the staff of FSOs, an increase which must be¬ magazine articles. Mr. Ballantine the SEC and served as one of the gin very soon if we are to retain is survived by his wife, Lesley, planners and an adviser to the our career system. The implica¬ 129 East 10th Street, New York U.S. delegation at the Bretton tions for the assignment and pro¬ 10003, three daughters and 7 Woods Conference and the in¬ motion of career FSOs, and for grandchildren. augural meeting of the IMF and their exposure to time-in-grade Cleveland. Cybele Sieta Mari¬ World Bank. He is survived by his retirement are evident and highly anne Evalee Cleveland, 9-year-old wife, Kathleen (Katie), a former deleterious. daughter of FSO and Mrs. Stanley deputy assistant secretary of State, The Department Notice of Janu¬ Cleveland, died of leukemia on of 2824 O Street, N.W., two daugh¬ ary 24 could be interpreted as an January 30 in Boston. She is sur¬ ters and three grandchildren. The

FOREIGN SERVICE JOURNAL, March 1973 39 family suggests contributions in national trade,” is the third to ask the courts to decide that the his memory to the Katie and an American diplomatic officer, seven percent of salary withheld Walter Louchheim Fund of the other recipients being Ambas¬ for the civil service retirement Library of Congress. sador Conant and Ambassador fund not be counted as part of Wilson. Wilbur Wilson, Associate Krekeler. Mr. Becker was also gross income for federal tax pur¬ Director of CORDS Region IV, died the recipient of the Chamber’s poses. If the Association wins the on December 19, in Washington. “Certificate of Merit” at the time case, the implications for all em¬ Mr. Wilson joined AID in 1967 and of his retirement in 1969. He is ployees in and out of government served in Vietnam, in Bien Hoa the Washington representative of would be far reaching. The Gov¬ and Can Tho Provinces. He is sur¬ the American Chamber of Com¬ ernment will certainly fight hard vived by his sister, Mrs. Howard merce in Germany and of the on this one all the way to the J. Evans, 271 White Oak Dr., New Munich Fair Authority. highest judicial levels. The IRS Kensington, Pa., a niece and a Employees Association, however, nephew. flflFSW NEWS is advising its members to file Weintal Bequest amended returns for 1969 request¬ ing refunds on the contributions AAFSW members have been in¬ The will of Edward "Teddy” to the retirement fund. Amended vited to The White House for tea Weintal, former Polish diplomat, returns for 1969 cannot be legally on March 13 at 3:00 P.M. And on veteran Newsweek diplomatic cor¬ filed later than April 15, 1973 be¬ March 15, members and their respondent and special assistant cause of the statute of limitations. guests will be welcome at the Na¬ to the Director of USIA, estab¬ By filing for 1969 now, a taxpayer tional War College luncheon ar¬ lished an annual prize or prizes keeps his 1969 case open until ranged by Mrs. William Leonhart. for the best news, magazine or the court case is settled. electronic reporting on foreign Luncheon is at 12:00 and Liz Car¬ policy and/or diplomatic affairs. penter will be the featured Sales Taxes on Pouch Room The awards will total at least $5,- speaker Packages 000. Members who enjoyed the Thanks to an alert AFSA member In addition, the income from the morning of Americana and old in New Delhi, AFSA requested other half of the residuary estate movies at the National Archives Sears Roebuck to stop collecting will maintain one or more scholar¬ on February 13 may be interested sales taxes on merchandise being ships bearing Mr. Weintal’s name to know they can get information shipped overseas via the State at Georgetown University’s School about other Archives activities as Department mailroom. AFSA ex¬ of Foreign Service. well as about joining the Archives’ plained that zip code 20521 exists Awarding of the prizes and new Associates Program by call¬ exclusively for mail destined to scholarships will be by a three- ing Mrs. Barbara McDonald at addresses outside the United member panel consisting of 963-5456 or writing her at National States, and is therefore in the Charles Bartlett, Chicago Sun- Archives, Washington, D. C. 20408. same category as APO and FPO Times, Marvin Kalb, CBS News, A summary of the AAFSW’s mail. Sears executive suite agreed January panel on the changing and Hugh Sidey of Time-Life, with to stop collecting the sales taxes role of the Foreign Service wife the President of Georgetown Col¬ immediately, and sent appropriate may be secured by sending a self- lege or his designee serving as ex- instructions to the Philadelphia of¬ addressed stamped envelope to officio member and administrator. fices. Sears also asked that any Mrs. Richard B. Finn, Program Mr. Weintal was killed January failure to implement the new in¬ Chairman, 7007 MacArthur Blvd., 24, 1973 in a horseback riding ac¬ structions be reported to Mr. Claw¬ Washington, D. C. cident in Rock Creek Park. son, Dept. 568-E, Sears, 4640 Potential members are remind¬ Roosevelt Blvd., Philadelphia, Pa. ed they are welcome at all meet¬ Becker Awarded Honorary Life 19132. AFSA suggests that com¬ ings of the AAFSW. While it is Membership plaints be made (with copy to possible to join at each meeting, Edmund F. Becker, FSO-retired, AFSA) only on merchandise the best way to join and be as¬ has been awarded Lifetime Hon¬ shipped from Philadelphia after sured of receiving the AAFSW orary Membership in the American February 15, 1973. Information Newsletter is to call or write Mem¬ Chamber of Commerce in Ger¬ about other mail order houses bership Chairman Mrs. Robert S. many, the Chamber announced which collect sales taxes on mer¬ Steven, 657-9714, c/o AAFSW, P. recently. Mr. Becker served with chandise sent through the State O. Box 4931, Washington, D. C. the State Department in Germany Department mail room should be 20008. for over 11 years, as Commercial forwarded to the Members Inter¬ Attache at the Embassy in Bonn, ests Committee as soon as possi¬ as the first Director of the Trade ble. Now if only Sears will drop Center in Frankfurt, and as Com¬ MEMBERS INTERESTS its special surcharge on pouch mercial Counselor at the Embassy room mail, we will all be happy. in Bonn. The award, which was in Income Tax Litigation AFSA and Sears request that recognition for ‘‘long years of out¬ The National Association of IRS orders going to Sears with 20521 standing and dedicated service Employees has filed an interest¬ as the return address be clearly . . . rendered in promoting inter- ing suit against the USG. They labeled “not subject to sales tax.”

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