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For additional information, or to place orders, contact Lever Brothers Company, Box 729/3J, 390 Park Avenue, N.Y. 10022. FOREIGN SERVICE JOURNAL FEBRUARY 1979: Volume 56, No. 2 Officers and Members of the Governing Board ISSN 0015-7279 LARS HYDLE, President KENNETH N. ROGERS, Vice President THOMAS O'CONNOR, Second Vice President FRANK CUMMINS, Secretary M. JAMES WILKINSON, Treasurer RONALD L. NICHOLSON, AID Representative PETER WOLCOTT, ICA Representative The Girt from Ipanema JOSEPH N. McBRIDE, BARBARA K. BODINE, LIBBIE MATHES 6 ROBERT H. STERN, State Representatives EUGENE M. BRADERMAN & ROBERT G. CLEVELAND, Local Problem Solving: Retired Representatives A New Development Strategy Journal Editorial Board BRUCE STOKES 13 JOEL M. WOLDMAN, Chairman JAMES F. O'CONNOR DAVID LEVINTOW Townsend Harris HARRIET P. CULLEY MICHAEL A. G. MICHAUD EDGAR E. NOEL 16 WESLEY N. PEDERSEN ARNOLD P. SCHIFFERDECKER NEIL A. BOYER With the Compliments of Staff Lyndon Johnson ALLEN B. MORELAND, Executive Director MORTIMER GOLDSTEIN 20 WILBUR P. CHASE, Counselor CATHERINE WAELDER, Counselor May I Light Up? CECIL B. SANNER, Membership and Circulation CHRISTINA MARY LANTZ, Executive Secretary LUCIEN AGNIEL 22 A Castle in Spain Foreign Service Educational GRANT PARR 24 and Counseling Center Income Tax: Dos and Don’ts 32 BERNICE MUNSEY, DirectorICounselor HANSON & HANSON, LTD, CPAs AFSA Scholarship Programs LEE MIDTHUN

Editorials 4 Journal The Bookshelf 35 SHIRLEY R. NEWHALL, Editor Letters to the Editor 49 MARCI NADLER, Editorial Assistant AFSA News 51 MclVER ART & PUBLICATIONS, INC., Art Direction Advertising Representatives JAMES C. SASMOR ASSOCIATES, 521 Fifth Ave., Suite 1700, New York, N Y. 10017(212) 683-3421 ALBERT D. SHONK CO., 681 Market St., San Francisco, Calif. 94105 (415) 392-7144 Cover: Women of the Middle East, JOSHUA B. POWERS, LTD., 46 Keyes House, Dolphin Sq., by Kathie Wellde London SW1 01-834-8023/9. International Representatives.

The FOREIGN SERVICE JOURNAL is the journal of professionals in annually. Retired Active Members—Dues are $35 annually for members foreign affairs, published twelve times a year by the American Foreign with incomes over $15,000; $20 annually for less than $15,000. Associate Service Association, a non-profit organization. Members—Dues are $20 annually. All dues payments include $6.50 allo¬ cation for the Journal and AFSA News, per AFSA Bylaws. Material appearing herein represents the opinions of the writers and is not intended to indicate the offical views of the Department of State, the For subscription to the JOURNAL, one year (12 issues); $7.50; two years, International Communication Agency, the Agency for International De¬ $12.00. For subscriptions going abroad, except Canada, add $1.00 annu¬ velopment or the United States Government as a whole. ally for overseas postage. While the Editorial Board of the JOURNAL is responsible for its general Microfilm copies of current as well as of back issues of the FOREIGN content, statements concerning the policy and administration of AFSA as SERVICE JOURNAL are available through the University Microfilm Library employee representative under Executive Order 11636 on the editorial Services, Ann Arbor, Michigan 48106 under a contract signed October 30, page and in the AFSA News, and all communications relating to these, are 1967. the responsibility of the AFSA Governing Board. '- American Foreign Service Association, 1979. The Foreign Service Jour¬ Membership in the American Foreign Service Association is open to the nal is published twelve times a year by the American Foreign Service professionals in foreign affairs overseas or in Washington, as well as to Association, 2101 E Street, N.W., Washington D.C. 20037. Telephone (202) persons having an active interest in, or close association with foreign 338-4045 affairs. Second-class postage paid at Washington, D.C. and at additional post Membership dues are: Active Members—Dues range from $39 to $65 office. AR^A EDITORIAL

ALLEN B. MORELAND THE CHESTNUT TREES Allen B. Moreland became AFSA Executive Director Green governesses with white gloved in the summer of 1975, just after the new Governing hands you point to pre-war heavens: Board had taken office. His appointment was approved God exists, you proclaim unanimously by that Board, which was, however, so di¬ thereby entering the chestnut tree vided on other issues that Allen must have known his job into the lists of orthodoxy. would be demanding. You preach by the light of your blooming, Since then, Allen has turned in a distinguished perfor¬ by the hundreds of pure white torches, mance under conditions which were often difficult. He in a child's tongue, explain resurrection, kept the staff together under daily pressure in 'the early lessons children learn and forget months. During a cash flow crisis in the fall of 1976 he as they race and run, cheat and regret. volunteered for a 50 per cent reduction in his salary, which, along with cuts in the pay of other professional Children, donkeys, sweepers, seasons. staff members, got us through. The Executive Director is My long windows reach out to your rhythms, primarily responsible for the AFSA budget, which is bal¬ autumn, death, the late white torch of spring. anced during the current fiscal year without resort to My feet race through childhood beliefs, “prior use” funds or cash flow loans—and we’re running tight shoes, rules, small wins, harsh defeats. ahead of budget projections as of the first half of the fiscal Katie Louchheim year. At the close of last year’s annual audit, the auditors praised AFSA for keeping its costs under control in an era of inflation, and for following correct accounting pro¬ cedures and standards. Much of the credit for this goes to Allen. Allen’s resignation as Executive Director, after three and a half years, took effect January 11. At times, that HYDE PARK period must have seemed longer. It was a hardship post, One early April English evening without a hardship allowance. Often it must have seemed spilled purple crocus in my tea, thankless. Well, the Governing Board thanks you, Allen, a man’s lips waited in the cup, for your distinguished contribution to the Association sweetened by spring’s rash legacy. and the Foreign Service. May you enjoy many years of carefree and pleasant retirement. Katie Louchheim

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COUNTRY . -ZIP. She’s tall and tan and young and lovely. . Hie Girl firm Ipanema UBBIE S. MATHES

One third of all employed Brazilians earn one across the Ipanema beach perfectly at ease in her tanga minimum salary or less per month—less than bikini, the incarnation of a Varig travel poster. US$78.00.* Over 95 percent earn ten minimum salaries Her minimal bikini top raises and rounds her small or less per month. Few of these people can aspire to live breasts, and the narrow tanga arches over her backside in Ipanema. Rent alone in that chic district would con¬ revealing the eye-popping curves of ample perfect bun- sume the entire monthly income of the vast majority of das, deliciously suggestive Portuguese word, that. You Brazilians, yet for most of the world Brazil is symbolized can hear the roundness and fullness—bundas! The girl is by picture post card Ipanema and is personified by its almost more interesting walking away than approaching. most extolled resident, the Girl from Ipanema, who, of The tanga, true star of Ipanema, was designed to course, doesn’t work at all: glorify and maximize exposure of that part of the female She’s tall and tan and young and lovely just like the anatomy favored by traditional Brazilian girl watchers. song says, and she’s nearly nude, swaying gracefully There are those who would see in this anatomical prefer-

*Statistics from the IBGE Interin Census—the PNAD of 1976. Mrs. Mai lies is working as a free-lance journalist while in Sao Paulo These are the latest tabulated statistics. Figures represent all with her branch PAO spouse. Her current project is a series of inter¬ but about 5% of the entire national sample. views called "Women in Brazil," of which this is the introduction.

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9l0maha.\L/ Name People poo cao coont on... Address — MUTUAL OF OMAHA INSURANCE COMPANY HOME OFFICE: OMAHA, NEBRASKA City State ZIP Code FILL OUT AND MAIL TODAY! ence the total depersonalization of Brazilian women by benefit of her stunning derriere. their men, but such musings are best left to the The Girl from Ipanema is real. She is not the product psychologists. In any case intellectualizing is not suited of tourist office hype, and the lure of encounters with to the mind-withering carioca heat. these natural, sensuous, sleek bronze beauties fills Rio’s Our girl wades into the water up to her knees, splashes hotels in summer and makes the city one of the great herself down, and holding her nose, stoops and bends hedonistic tourist capitals of the western world. back to duck her head. This ritual is accomplished in less Since Tom Jobim and Vinicius de Moraes canonized than a minute, and she is ready to come out of the water. Ipanema’s beach creatures in their Bossa Nova classic, Bathing is not the reason for coming to the beach; bathing the girls have been fully aware of their position as living is for cooling off when the tropical sun becomes too symbols of the Brazilian feminine mystique. For a few punishing. Smoothing her hair and carefully adjusting her years, until they become bored or get married, the beach tanga—there is little margin for error; the difference be¬ is a religion and a stage on which these enchanting young tween acceptable exhibitionism and vulgarity is mea¬ priestesses ritualistically perform their sun worship con¬ sured in millimeters—she emerges from the sea and re¬ verting all doubters into faithful minions who sing praise turns lazily across the sand to her towel, studiously ob¬ to the beauty and perfection of the Brazilian woman. livious of the careful scrutiny she is getting from four The flaw in the picture is that the girls have almost pale, paunchy men with foolish grins under red noses and nothing in common with the larger Brazilian reality, and dark glasses. Obviously foreign tourists on their first day most visitors don’t have the time or the interest to dis¬ in Rio, they are to be ignored. Maybe she’ll give them a cover this truth. thrill later and with a melting smile, go bum a cigarette. But now the travel poster will take some sun. Perform¬ Asked about their plans, the girls are vague: “Maybe ing a carioca beach ritual she mounds sand with her feet study, maybe work, maybe travel ...” What is closer to into a headrest over which she drapes her towel at an the truth is, “Maybe nothing.” Theirs is not a cerebral angle directly into the sun and away from the openly state. They feel no pressure to plan tomorrow, only to be, appreciative tourists. They twist around and squint into to instinctively enjoy the pleasures of today. the dazzling sol to keep her in view, but she still gives no The Girl from Ipanema is the privileged daughter of sign of having seen them, though she is a bare ten meters Brazil’s dominant class, the top two percent of the coun¬ away. Satisfied with her arrangement she dots her nose try’s population, living in one of the world’s highest rent with cream against the burning rays, makes a final check districts where one night in a small sea front hotel room on her tanga, and tossing her hair over her shoulders, will cost a couple the equivalent of the doorman’s stretches out onto her tummy giving the foreigners full monthly wage—one minimum salary—the amount earned Picasso Stayed Here* If we wanted to name drop, | our insurance department we could boggle your mind. through its Annual Govern¬ Because for decades, Security ment Service Floater. Storage has been Washington’s | Decades of this kind of favorite place to store valu¬ efficient, personal service, and ables. And when it comes to a dedication to quality, have FSO valuables, the Govern¬ made Security an FSO moving ment will cover all expenses, and storage expert. And that’s providing special arrangements | why anytime you need depend¬ are made in advance with your able service, it’s good to know transportation officer. Security is there. Silver, jewels, stamp and coin collections, and rare books are protected in Security’s vault. Temperature controlled areas are available for rurit|> jSl'oragt (Jompang maximum protection and preservation of furs and off-season wardrobes. And paintings in our Art Room of UJashington MAIN OFFICE: receive the same storage treatment as paintings in 1701 Florida Avenue, N.W., Washington, D.C. 20009 (202) 234-5600 MARYLAND: one of Washington’s largest museums. Bethesda-Chevy Chase, Marlow Heights. White Oak In addition, hundreds of your colleagues use VIRGINIA: Alexandria, McLean 8 FOREIGN SERVICE JOURNAL, February, 1979 by 33.7 percent of the country’s employed and by 46 Hot dog men serve drive-up customers on motorbikes percent of salaried Brazilian women. from umbrella-shaded mobile stands parked at intervals Around the girl’s neck hangs a short gold chain along the super-heated black and white stone sidewalk. fashioned of this year’s favorite Cartier links which cost Young sneak thieves prowl between the towels, eyes her father 15 minimum salaries. She saunters home to a peeled for abandoned purses, glasses, watches, shoes. modest apartment three blocks from the beach which One never sees them; the only evidence of their presence rents for 14 minimum salaries a month and eats a lunch is the occasional wounded yelp of a burned tourist who prepared by a well-paid cook who earns two minimum thought he left his wallet safely hidden under his towel salaries. Then she takes a nap. Tonight she’ll wear a while he took a dip. Nearby bathers react to such distress dress of Indian cotton which cost three minimum salaries with a yawn; only tourists are naive enough to bring any¬ and go to dinner with three friends at a chic restaurant thing but a towel, a few loose cruzeiros and sandals to the where the bill can easily exceed her cook’s monthly pay. beach. She is privileged, so much so that she represents the At dusk, after the crowds have gone home, orange- average Brazilian woman only in age—she is nineteen. shirted teams of garbage men fan out to comb the littered Oh yes, in Ipanema one does find some average Brazi¬ sand with rakes. They gather the day’s refuse in huge lians. Most of them come to serve and some to prey on straw baskets which they periodically empty into a truck the rich. Plump Bahiana-costumed women sweltering inching along the avenue keeping pace with them. The under their heavy dresses stroll among the prone, oiled girls from Ipanema shamelessly toss their trash over their bodies on the beach, hips undulating. They sell divine, shoulders, desecrating their glorious playground. Never home-made gooey cocoanut quindin (desire) sweets from mind: their sloppy habits create employment. Empty trays on their heads covered with immaculate white cigarette packs, bottles, paper cups, ice cream contain¬ linen. Other less colorful women offer lace beach robes ers, orange peels, broken combs, half-eaten hot dogs; and crocheted blouses made by favela neighbors. Wiry whatever they no longer need is discarded onto the sand. muscular mate (herb tea) vendors, shiny black with Tonight someone will clean up the sand box. Before the sweat, stride up and down the sand hauling a 25-kilo garbage men arrive scavenger children make a sweep of drum of sweet iced liquid on each shoulder to sell to the beach and collect everything of value including empty parched bathers at Cr$4 a paper cup. Theirs are among but reusable suntan oil containers. Their brothers will the most beautiful bodies on a beach renowned for spend the evening filling bottles and tubes with watered sculptured feminine forms. And where do they get the down versions of their original contents to hawk to un¬ energy for such exertion when the sun dissolves the rest wary blistered bathers tomorrow. of us into voluptuous indolence? An unsettling fact forces itself on even the most casual

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FOREIGN SERVICE JOURNAL, February. 1979 11 12 UIV Afl S3SS01 ■ STOLEN LUGGAGE • FIRE DAMAGE . BODILY INJURY LIABILITY • BREAKING AND ENf£ *4/ L•MARINE •PILFERAGE 35 Gentlemen Tell meallaboutTravel-Pak Name Address City State Zip your home,autoandlife.33 sound economicalinsuranceprogramcovering you completedetailsaboutTRAVEL-PAK— there (includingstorage,ifrequested)—and call us—wellbehappytohelpyousetupa> included. personal possessionsfromheretothere—while promptly. back again.Personalliabilitycoverageisalso when you'regoingtoliveabroadforawhile. whatever youdocanapplyforTRAVEL-PAK You can—ofcourse! TRAVEL-PAK protectsyourhouseholdand When youreturntotheWashingtonarea—^ Call usorreturnthiscouponandwe'llsend YOU—whoever youarewherever FOREIGN SERVICE JOURNAL, February',1979 WHEN YOU'REGOINGTOLIVEABROAD! SHIPPING LOSSESOFALL James W.BarrettCompany,Inc. REED SHAWSTENHOUSEINC. A REEDSHAWSTENHOUSECOMPANY OF WASHINGTON,D.C. travel-pak 1140 ConnecticutAve.,N.W. Telephone: 202-296-6440 Washington, D.C.20036 Insurance Brokers a O O O V) (/) m > > x O ■o X 3 V) H 33 T~ H r~ 03 > -< U. j hintsofthelargerBrazilian realityneverappearintravel shrinking awayfromphysicalcontactwiththeuntouch¬ silence. Pedestriansstepasidetoletthempass— wine intherestaurant,andnightpredatorsappearat observer. Inacountrywherethenationalmythology dull eyesrubtheirstomachsmoaning,“Hungry,hun¬ ables. Twoofthem,littlegirlsinragswithdirtyhairand gentility. Theirwretchedpovertycommandsrespectful cafe' tablespresentingfadedrosestheyfilchedfrom stresses theidealofaraciallymixedsociety,people dered sleeveinsisting,“Hungry!Hungry!”untiltheem¬ gry,” atthetableoffourvisitorsabouttoattackobscene and awareeyesofstreetkids—partthe16millions for thethoughtfulgesture.Theboyshavefalsesmiles flower shopstoflusteredtouristswhofeelobligedtip the beach.Threeyoungboysweaveamongsidewalk ingly black. light-skinned, andthoseservingthemareoverwhelm¬ at thebeachforpleasurearepredominantlymediumto fles intoview,feetswollen,atatteredbabushkaonher from thelatehourandimpatienttoearnhernight'squota poverty.) parents butareentirelyontheirown.livinginabject there arewaystogetmoremoneyfromtourists? table totable.Isthebabyagirltoo,Senhora?Whatbad barrassed man,anxioustoremovethefilthychildfrom so shecangotosleep,theoldergirltugsatanembroi¬ mountains oficecreamandchocolatesauce.Yawning million areabandoned.Fourteenhaveoneorboth Brazil’s abandonedandtechnicallyabandoned?(Two luck! Andhowlongwillitbeuntilyourdaughterslearn head, asleepingbabyonherhip.Shebegsquietlyfrom away; thefourpickattheirsundaeswithoutappetite. throws hersomeuncountedtornbills.Thechildrenmove his sightandconscience,fumblesinpocket and iridescentblouses,offeringonelastservicetothe working mothersadvertisingtheirwaresinshortshorts high-heeled, false-eyelashedbirdsofpreycruisesAve- tle. Strikingmulatachorusgirlsleavenightclubs in of peacebeforethestartanotherdayheatandhus¬ and pedestriansishushed,theavenueenjoysanhour vacationing tourist. nida Atlanticapasthotelsandcafes:Rio’slovelyyoung few hourstodeepenhertan.Shecancatchupon her The firstbusarrivesbringingaloadofblackmaids from dawn. Thelastdiscothequecloses,andtheGirlfrom from Ipanemawilltakeadvantageofthestrongsun for a bizarre costumescomicallyoutofplaceinthegray pre¬ bunches, andhookersstraggleoutofthehotels, their isters onfewmindsasthecrucible inwhichthecountry’s club . the favelastoworkinIpanemaapartments.The Girl in Rioforacarnival ofsamba,beachand headysensual posters orsouvenirsnapshots ormemory.Thebeachreg¬ sleep thisafternoon.Tonightthere’sadanceat the pleasure remember onlytheGirlfrom Ipanema. privileged richandmarginalized poormix.Mosttourists Ipanema drivesslowlyhomeinawhiteMercedes. Another groupapproachesattemptingnofacadeof It’s 10pm.TheGirlfromIpanemaisdrinkingFrench Throughout thesultrynightrelentlessparadeof At adiscreetdistancethegirts’ravagedmothershuf¬ The sunisup.Hotalready;itwillbeanotherscorcher. Four a.m.Thecafe'tablesareempty.dinoftraffic As theresultofsomesubliminal selectiveprocess, “A creative economy is the fuel of magnificence. —Emerson

1 Loc ;al Prc >bk HH iSo Ivii rig: lew De /el opn len it SI rate jgy p1

BRUCE STOKES

President Carter sent to Con¬ AID, which laid the groundwork generation slip by and the number gress this month a proposal for for the president’s recommenda¬ of malnourished grow. Putting food revamping the administration of tions, differed on many points, but on the table in many countries is American foreign aid. In reviewing they all agreed that the foreign as¬ more and more the responsibility of the White House's suggestions, sistance bureaucracy should be de¬ the American farmer. Similarly, Congress should take note that centralized, with more decision¬ despite major international efforts, some of the most successful third making taking place outside of the World Bank estimates that world development efforts have Washington. They suggested that more than 800 million people still come not through highly cen¬ recipients of aid should participate lack adequate housing and health tralized, capital intensive interna¬ more directly in identifying needs care. The energy needs of develop¬ tional programs, but through peo¬ and in carrying out programs. They ing countries are neglected as ple doing more at the local level to concluded that where bureaucratic Americans fret about gasoline help themselves. efficiency conflicts with effectively prices. The administration would like to meeting basic human needs, the lat¬ However, in many countries replace the Agency for Interna¬ ter should take priority. where the people most affected by tional Development (AID) with an a problem have assumed responsi¬ These recommendations reflect a bility for solving it. basic needs are International Development Coop¬ growing consensus in Washington eration Administration. This new being met. Such initiatives are be¬ that local efforts are often best at ginning to receive the financial and sub-cabinet agency would oversee fulfilling housing, energy, health most bilateral and international aid political support of many govern¬ care, and food needs. This aware¬ ments and international agencies programs and have more inde¬ ness has been slow in coming. Dur¬ pendence and authority than AID. long frustrated by their own litany ing the past decade, there was a of failures. The reform is a pared down version tendency to attempt to solve at the of one of Hubert Humphrey’s last international level problems which n every society, most people, no legislative initiatives and owes were once handled exclusively in I much to internal AID critiques, matter how low their incomes, local communities. Ever higher find a way to put some sort of roof like the Babb report, and an outside levels of national and international evaluation by the Brookings Insti¬ over their heads. This primal nest¬ authority were created to help the ing urge contains the seeds of a re¬ tution. poor. The growing awareness of These proposals to remodel sponse to the worldwide shortage global interdependence led to the of adequate housing. Population fallacious assumption that prob¬ growth and rising affluence have lems could be solved without in¬ physically and financially out¬ Bruce Stokes is a researcher with volving those most affected by stripped the ability of governments Worldwatch Institute, Washington, D.C. them. and private industry to meet shelter This article is drawn from his recent Worldwatch Paper: Local Responses to The difficulties with this ap¬ needs. The United Nations esti¬ Global Problems: A Key to Meeting Basic proach are now manifest. For mates that in urban areas alone, au¬ Human Needs. example, the goal of ending world thorized construction is expected Worldwatch Institute, 1978. hunger in a generation has seen that to fall four to five million housing

FOREIGN SERVICE JOURNAL, February, 1979 1 3 units behind demand each year be¬ resources, the absence of a private Philippines have stressed home tween 1970 and 1985. World Bank housing industry in developing vegetable-growing as a means of data indicate that even the cheapest countries, and the lack of govern¬ improving nutrition. Unfortunate¬ existing housing units built by the ment initiatives, leave unaided ly, the programs have met with a organized public or private sectors self-help housing as the only route mixed reception. A more success¬ are too expensive for one-third to to homeownership for many peo¬ ful effort has been mounted by the two-thirds of the people in most ple. Jamaican government under its developing countries. The volume of current self-help “Grow Our Own Food” cam¬ There is no construction industry housing in the third world— paign. In the rural St. James parish or public housing authority in the millions of housing units each studied by Thomas J. Marchione of Altiplano of Peru or in the Sahel. year—suggests the poor possess Case Western Reserve University, For most people living in rural the ingenuity, drive, and initiative the proportion of homegrown food areas in the developing world, required to overcome the economic in the household diet grew from 38 self-help housing has been and and material obstacles to building a to 56 percent from 1973 to 1975. probably always will be the only home of one’s own. This consti¬ The amount of income spent on way to obtain shelter. In urban tutes a vital force that needs to be food decreased and child malnutri¬ areas, the poor must help them¬ tion dropped significantly. selves by erecting cardboard and In China, an estimated 25 to 30 sheet-metal shelters, adding more percent of total household income substantial siding or an extra room “Land reform induces in the early ’60s came from the pri¬ with the aid of family or friends farmers to increase vate production of vegetables, when time and money permit. poultry and pigs. The Chinese gov¬ Government and international their personal ernment’s official position on pri¬ aid to self-help housing, a conve¬ investment of labor, vate production is ambiguous. Yet nient marriage of available money Premier Chou En-lai told a group and local initiative, is a logical re¬ capital and fertilizer. of American visitors in 1971 that sponse to housing problems. Such With more to gain from private plots were necessary to efforts have been going on in many stimulate the initiative of the peas¬ countries in a piecemeal way since increased production, ants, so that they could earn some¬ the mid-’60s. The World Bank’s owner-operators put thing in addition to their collective basic urbanization project is the income while ensuring some vari¬ largest such program. Begun in more of themselves into ety in their diet. To formalize this 1972, in five years it has provided their work.’’ practice, the peasant’s right to farm $866 million for self-help projects in privately was included in the 15 countries. Chinese constitution adopted in Initially, the World Bank’s pro¬ January 1975. gram consisted of “sites-and- tapped more effectively if housing Since home gardeners and those services” projects, an approach to problems are to be solved. who tend private plots cannot feed housing that encompassed a pack¬ All too often, government initia¬ themselves solely through their age of urban amenities including a tives in the housing field have own production, small family farms dwelling site, roads, water, and superseded efforts by the homeless have become crucial to increasing sewage disposal. Unfortunately, it rather than complemented them. food production in a number of soon became clear that the cost of Governments should not attempt countries. Rural reforms in Tai¬ such a strategy—from $600 to to do what people have already wan, South Korea, and Japan have $3,500 per dwelling—was prohibi¬ demonstrated they can and will do focused on the family farmer. In tive. Any thought of applying it to themselves. Governmental housing Taiwan, the proportion of farm the several hundred million squat¬ efforts should focus on providing families who owned all the land ters in the world was out of the financing and tenure for the major¬ they cultivated increased from 36 question. ity of the population willing and percent in 1950 to 78 percent in The World Bank and national able to make major contributions to 1972 because of a “land-to-the- governments have been forced to their own homebuildings. tiller” program. In South Korea, rethink how best to assist self-help owner-operators constituted 14 housing for low-income people. Rising food prices and national percent of all farm households in More money is being spent on pro¬ food shortages in the '70s have 1945. but 70 percent in 1965. grams that provide assistance for forced a major reassessment of There is no clear-cut indication the upgrading of existing housing, how to squeeze more food out of that land reform increases food which is cheaper and stimulates the the land and how to ensure that it production. Yet, when accom¬ local economy by drawing on in¬ gets to those who most need it. panied by the provision of agricul¬ digenous materials and labor. Consumers and individual coun¬ tural support services for the small However, even the latest World tries have begun to rely more on farmer, it has increased produc¬ Bank projects reach only a small their own resources to meet part of tion. In Taiwan, following land re¬ number of people and fail to di¬ their food budgets. form, the rice yield per hectare in¬ rectly address the questions of land Gardening programs have be¬ creased by more than 80 percent speculation and tenure. These come important parts of food self- between 1950 and 1972. Technical problems, combined with the in¬ reliance strategies in some develop¬ services are not the only explana¬ adequacy of international financial ing countries. Both Ghana and the tion for this higher productivity. 14 FOREIGN SERVICE JOURNAL, February. 1979 Land reform induces fanners to in¬ Much of this self-care is worthless illnesses of children and pregnant crease their personal investment of or dangerous but all of it should not women. The results are encourag¬ labor, capital, and fertilizer. With be dismissed out of hand. Phar¬ ing. Maternal and infant mortality more to gain from increased pro¬ macologists have only begun to has decreased; deaths from gas¬ duction, owner-operators put more study the curative powers of home troenteritis, tuberculosis, and of themselves into their work— remedies. China encourages the measles fell by nearly 80 percent what John Kenneth Galbraith has use of traditional medicines to go between 1962 and 1973. While the called self-exploitation. By the best hand in hand with modem medi¬ overall economic and social de¬ yardsticks of agricultural policy— cine. The World Health Organiza¬ velopment of Cuba during this productivity, job creation, energy tion (WHO) is also exploring ways period certainly accounts for some use, environmental impact, and the traditional cures can complement of this improvement, neighborhood well-being of rural society—many professional medical care. health care has played an important observers now agree that owner- The World Bank estimates that role. operated small farms are of more 800 million people—one fifth of the The growing third world interest benefit to society than large, ab¬ world’s population—still have no in the decentralization of medical sentee-owner farms. services and the involvement of in¬ Whether judged by yield per acre dividuals as active participants in or by the cost of production, small health are logical responses to the farms compare favorably with large “Because tapping such unmet demand for health services. farms on all continents. Most of the While even the best primary, pre¬ economies of scale associated with energy sources ventive and self-health care cannot size can be achieved on units small requires the continual ensure that every child will live to enough to be farmed by a family. the ripe old age of Methuselah, in¬ Numerous studies have borne this participation of creasing the individual’s and the out. A 1970 survey for the United individual consumers, community’s roles in health care States Agency for International brings the goal of longer and Development showed that small the transition to locally healthier lives for many people farms in India, Japan, Taiwan, the controlled, highly within humanity’s grasp. Philippines, Mexico, Brazil, Co¬ differentiated energy lombia, and Guatemala had higher Self-reliance has also become the productivity per acre than large sources will unalterably touchstone of national and local farms. A similar study of 40 coun¬ remold society.” energy policies. Energy consum¬ tries undertaken by the World ers, whether countries or individu¬ Bank indicated that small holdings als, are assessing how they can best and relatively equitable land dis¬ become producers of more of the tribution were associated with an energy they need. The most effec¬ increase in output per hectare. It is access to even minimal health care. tive way is through the natural clear, in meeting future food needs, According to the WHO, fewer than sources of energy—from sunlight, home gardens and small farms will 10 percent of the children bom wind, water, and green plants. play an important role. each year in poor nations are im¬ While engineers working in the munized against the five most third world have focused on build¬ Two health concerns dominate common fatal childhood diseases. ing large hydroelectric plants, people’s lives: how long they The volume of these unmet basic much small-scale hydropower has will live and how often they will be medical needs has long argued for yet to be exploited along streams sick. Ever greater investments in greater attention to primary care and irrigation ditches. About 37 hospitals, drugs, and medical provided by paramedics. Long¬ percent of China’s electricity technology are largely irrelevant to standing ties to western medicine comes from water power; estimates these interests. Living healthier have impeded a shift in this direc¬ suggest as much as one-fifth of this and longer lives in developing tion. Only in the last decade have comes from small plants. Accord¬ countries will largely depend on in¬ governments and international ing to some observers, there were dividual and community efforts to agencies begun to encourage de¬ 15,000 small hydropower stations solve health problems through im¬ centralized delivery of services. in operation in China in 1968 and proved access to simple medical Fortunately, some nations have over 60,000 by 1975. Such plants care and preventive health mea¬ the combination of government are built almost entirely with local sures that rid communities of the commitment and local involvement resources. Even the electrical causes of disease. necessary to bring better medical generating equipment is sometimes The first line of defense in health care to a broad spectrum of people. made locally, with many com¬ care for the poor is self-help medi¬ Such an effort was launched in munes producing their own tur¬ cine. The rural poor in Africa, Cuba in the early '60s. The number bines and generators. While the Asia, and Latin America have long of rural health clinics and hospitals amount of power generated in each treated their own illnesses using in¬ has increased dramatically since location is often small, sometimes digenous herbal medicines. An es¬ then. Many neighborhoods now the result of water falling only a few timated 65 to 90 percent of those have health workers, local stu¬ feet, it can provide electricity to who fall ill in South and Southeast dents, housewives, or retired run light industry close to the plant. Asia use herbal cures in conjunc¬ women, with only minimal training In other countries, the time- tion with a visit to a native healer. who check hygiene, diet, and minor (Continued on page 39) FOREIGN SERVICE JOURNAL, February 1979 1 5 The life and hard times of Townsend Harris—first diplomat through Japan’s open door.

In these post-bicentennial years president of the Board of Educa¬ when all aspects of American tion. As president, he was instru¬ history are being examined, re¬ mental in founding the Free examined and even revised, it is Academy which later developed only appropriate that Americans into the College of the City of New know more about their forebears York. In 1848-49, he left New who represented the United States York for a trading venture to on the diplomatic frontiers of their California and the Far East. history. Far from the “cookie Bachelor Harris spent the next six pusher” image, so frequently and years in the eastern trade and erroneously used to depict dip¬ thereby gained a useful knowledge lomats today, these early American TOWNSEND of Asia and the Pacific area. When envoys often faced hardships as Perry was in China prior to his mis¬ trying and dangerous as the sion to Japan, Harris had at¬ pioneers on the frontiers of the HARRIS tempted to secure permission to American west. One such Ameri¬ join the expedition, but like many can was Townsend Harris, first other applicants, he was turned United States consul general to Ja¬ down. He nevertheless continued pan. EDGAR E. NOEL to follow the news of Perry's In 1854, after Commodore negotiations and developed a keen Matthew C. Perry signed the ommendations from Commodore interest in Japan. In 1855, stirred Treaty of Kanagawa with the Perry and Senator William H. Se¬ by the news of the Treaty of Shogunate government of Japan, ward of New York, President Kanagawa, Harris returned to the the State Department was aware Pierce appointed Townsend Harris United States where he utilized his that the treaty had only placed a as American's first consul general political connections and influential wedge in Japan’s closed door. The to Japan. friendships to secure the appoint¬ treaty was one of “amity and inter¬ Born in 1804 at Sandy Hill, New ment to Japan. course” but had made no provi¬ York, Harris had long been a mer¬ In October, 1855, Harris left sion for commercial relations be¬ chant in New York City where as a New York for Penang where, after tween the two countries. As a re¬ prominent civic leader and suppor¬ a delay of two months, the steam sult, Secretary of State William L. ter of the local Tammany machine, frigate San Jacinto arrived with his Marcy decided, with the approval he had served from 1846 to 1848 as secretary and interpreter, Henry of President Franklin Pierce, to at¬ C. J. Heusken of New York, a tempt the negotiation of a commer¬ naturalized American citizen born cial treaty with Japan. To ac¬ FSIO Edgur E. Noel has spent most of his in Amsterdam. Reaching Bangkok complish this, he took advantage of career in East Asia, first in Korea and then in Japan where he studied Japanese and in mid-April, 1856, Harris suc¬ a section of the Treaty of was for three years the director of the ceeded in signing a new commer¬ Kanagawa which provided for dip¬ American Cultural Center in Fukuoka. He cial treaty with Siam, and then in lomatic representation at Shimoda is a long time scholar of the history of the May he left for Hong Kong where within 18 months from March 1854. first Americans in Japan and in 1967 as¬ the San Jacinto caused further sisted in some of the original research for To this legal representative Secre¬ Samuel' Eliot At orison’s hook on Commo¬ delay while her engines were re¬ tary Marcy planned to assign the dore Matthew Perry. Old Bruin. Mr. Noel is paired. At last, on August 12, Har¬ task of securing a new treaty. Once also the author of a hook of poems about ris boarded the patched-up frigate again, as with Perry, the country Japan, published in English and Japanese. and set out on his Japan adventure. was most fortunate in its choice of In 1972 he was co-author and editor of a four-volume history of the United States Harris confided to his journal: a representative. After careful con¬ which was produced for worldwide use bv I shall be the first recognized agent sideration backed by special rec- US I A. from a civilized power to reside in Ja-

16 FOREIGN SERVICE JOURNAL. February. 1979 pan. This forms an epoch in my life and As the summer dragged into fall, wrote Shogun instead shows that may be the beginning of a new order of the lonesome bachelor continued to even after a year in Japan the con¬ things in Japan. I hope I may so con¬ wait in vain for a sign of an Ameri¬ sul general was still unaware that duct myself that I may have honorable can ship. Finally, however, on Sep¬ the two rulers were not one and the mention in the histories which will be tember 7, a signal gun echoed same person. written on Japan and its future destiny. across the harbor, and Heusken For the next two months, Harris It was raining on the morning of raced in with the news that the and the local officials, aided by August 21, 1856 when Harris ar¬ American sloop-of-war Ports¬ Moriyama and other representa¬ rived in Shimoda aboard the San mouth was approaching. Harris tives from the Ministry of Foreign Jacinto. Because of the rain, Har¬ was overjoyed, and when the cap¬ Affairs, made elaborate prepara¬ ris instructed Henry Heusken to in¬ tain came ashore, the consul gen¬ tions for the entry of the first form the three local officials who eral, putting aside his usual dignity, American representatives into the came on board to meet the new greeted him with tears of joy. The forbidden capital. Certainly, by the consul general that he would not go captain later wrote: “Mr. Harris, time the preparations were com¬ ashore to visit the governor until our consul general, welcomed us pleted and the procession set out the weather was better. The with that emotion which seclusion. for Edo on November 23, no Japanese, however were not eager American had ever dreamed of the to welcome the consul. Because of oriental pomp and splendor which the increasing opposition in the now surrounded Harris on his country to admitting foreigners, the triumphal journey. authorities wanted to avoid or ‘‘The inhabitants, Surrounded by a personal staff of delay the acceptance of the Ameri¬ dressed in their holiday about 150 persons, consisting of can consul in Japan. Even the gov¬ everyone from bodyguards to ernor tried to avoid a meeting with clothes, knelt face cooks, grooms, and shoe bearers, Harris by excusing himself on ac¬ down in front of their Harris rode on horseback, followed count of illness, but Harris replied by his specially constructed, that unless he received a written houses, all forbidden to seven-foot, pillow-filled palanquin excuse to relay to Washington, he gaze at the great carried on the shoulders of 12 bear¬ would go ashore anyway to visit ers. On either side to the rear, his the governor. This embarrassed the American ambassador. guards and suite marched in new authorities, and they finally made Harris noticed, cotton and silk kimonos decorated arrangements for him to meet with on the back, breast, and sleeves the governor on August 25. however, that the with the emblem of the United On the appointed day, Harris women ‘would have a States; while in front, flanked by headed ashore to meet with the peek, regardless of the two guards, marched a stout governor. Preceded by three boat¬ Japanese carrying the American loads of officers and men, who consequences.’ ” flag. Far ahead three boys led the landed and formed a guard of honor procession and served as harbin¬ along the beach, Harris followed in gers. Waving wands of bamboo a fourth boat accompanied by with white strips of paper attached, Heusken. As he neared the shore, for a year, from one’s countrymen they repeatedly cried out the the San Jacinto suddenly burst naturally inspires.” Japanese words for “Clear the forth with a roaring 13-gun salute. In the excitement of the way! Clear the way! Kneel down!” Portsmouth’s visit, Harris also re¬ Behind them rode an advance Reaching shore, Harris and his ceived good news from the guard, followed by a bearer carry¬ party walked through the streets, Japanese. After waiting for over a ing a large lacquered tablet upon crowded with curious spectators, year for permission to go to Edo to which Harris’s name and title were to the governor's office where the present his letter of credence and written. Then came the flag bearer prefect, looking very healthy for a request for a commercial treaty and the main procession accom¬ supposedly sick man, cordially re¬ from the president to the emperor, panied by Heusken also on horse¬ ceived them. Accustomed to orien¬ the authorities finally informed him back with his guards and the re¬ tal practices and etiquette, Harris that permission was granted. tinue carrying the party’s food, impressed the officials by refusing In his journal on September 22 bedding and supplies. Finally, the to discuss business since “it would Harris recorded: vice-governor of Shimoda, the not be good breeding to enter on I am to go to Yedo, in the most hon¬ Mayor of Kakizaki, and other business on a visit of ceremony.” orable manner; and. after my arrival. 1 Japanese officials with their respec¬ As he took his leave, they made an am to have an audience of the Ziogoon tive suites brought up the rear. appointment to meet again and (Shogun), and then present the letter of “The whole train,” remarked Har¬ begin their negotiations. the President! The manner in which I ris impressively, “numbered some am to salute the (Shogun) is to be the Another American ship did not same as in the courts of Europe,—i.e.. three hundred and fifty persons.” arrive until September, and as the three bows. They made a joint request For the first three days the days and weeks passed, Harris felt that I would prostrate myself and cavalcade’s route wound through that he had been forgotten. In May “knock head,” but I told them the steep mountains and deep ravines, 1857 he wrote despondently in his mentioning of such a thing was offen¬ but on the third day, it arrived on journal: “I have not heard a word sive to me. the Tokaido, the great imperial from Washington since I left the The fact that the letter was ad¬ road between Kyoto and Edo. All United States . . . October 1855.” dressed to the emperor and Harris travel had been suspended or de-

FOREIGN SERVICE JOURNAL, February. 1979 17 toured, and in each village that ting room, dining room, and a bed¬ more closely in the ties of enduring Harris passed, he found the shops room furnished with tables, chairs, friendship.” The Shogun, in reply, closed, and the inhabitants, and even a western-style bed. jerked back his head and stamped dressed in their holiday clothes, Heusken’s rooms were similarly his foot three or four times, and knelt face down in front of their furnished and adjoined those of then spoke in a pleasant and firm houses, all forbidden to gaze at the Harris. voice: “Pleased with the letter sent great American ambassador. Har¬ For the next week, the American with the Ambassador from a far ris noticed, however, that the envoy was occupied with receiving distant country, and likewise women, like curious females courtesy visits from various offi¬ pleased with his discourse. Inter¬ everywhere, “would have a peek, cials or in returning their calls. Fi¬ course shall be continued forever.” regardless of the consequences." nally near the end of the week, the When the Shogun concluded this During part of the trip, Harris Japanese summoned Harris to the brief reply, Heusken brought for¬ suffered from a sore finger, and he formal audience. ward the president’s formal letter ordered a Japanese doctor to apply On December 7, 1857, Harris which an official accepted and some leeches to it: put on his gold laced coat, blue placed on a lacquered stand. This pantaloons with a broad stripe run¬ ended the audience, and the The doctor approached with great ning down each leg, cocked hat Americans backed out of the trepidation while large drops of perspi¬ chamber. Afterwards, the Japanese ration stood on his forehead. I asked with gold tassels, and a pearl han¬ what ailed him. (Harris recorded) he dled dress-sword. Then leaving the officials congratulated Harris on said that he had never approached any house with Heusken. he set out for his marvelous self-possession since person of such exalted rank be¬ the Palace where they were met by he had not quaked or trembled in fore .... He was told to forget all two chamberlains who “knocked the presence of the mighty ruler of about rank, and to apply his remedy heads" and conducted them to an Japan. .... My surgeon, having finished his apartment. There they were served For the next two months, Harris labor, retired a proud and happy refreshments, and after a short remained in Edo, and in spite of the man .... wait, the Prince of Shinano entered Japanese attempts to delay a dis¬ Since only officials of the highest and announced to Harris that the cussion of a new treaty as long as rank could enter Edo in palanquins, “Emperor” was ready to receive possible, he patiently persisted in Harris, on the morning of him. his negotiations with the Council of November 30, turned his horse Going to the audience chamber, State and the Ministry of Foreign over to a groom and entered his Harris passed through a large hall Affairs. Finally, he resorted to his sedan chair for his entry into the in which some 300 to 400 Japanese first use of a threat and informed capital. Every member of the pro¬ nobles were kneeling “as motion¬ Prince Shinano that he did not be¬ cession was dressed in his ceremo¬ less as so many statues." They lieve any negotiations could be nial costume, and Harris declared were all in court dress made of yel¬ successful unless he was backed by “I do not know when I have seen low silk with wide trouser legs six warships which offered cannon such a display of spread eagles." or seven feet long. “Consequently, balls for arguments. He proposed Even the packages carried by the when the wearer walks." described to return to Shimoda to await such porters were decorated with the the observant Harris, the pants' a fleet. The foreign minister, Lord emblem of the United States or had legs “stream out behind him and Hotta, desperately trying to ap¬ a small American flag flying from give him the appearance of walking pease the conflicting factions and an attached bamboo standard. on his knees . . . Reaching the interests in the country, urged Har¬ The weather was glorious with chamber, the Prince of Shinano ris to be patient. At last, by the end bright sunlight, a cloudless sky, prostrated himself on his hands nad of January, 1858, actual discus¬ and a cool coastal breeze. The knees. A chamberlain called out in sions of the text of the treaty be¬ streets were packed with people, a loud voice: “Merrican Ambas¬ gan. and at every intersection a special sador!" Harris bowed and entered During these negotiations, Har¬ honor guard met the procession with the prince crawling along be¬ ris received his first suspicions that and escorted it to the next cross side him. Heusken, holding the the Shogun was not the supreme street. Harris was struck by the si¬ president's letter, halted at the en¬ ruler in the country. As the treaty lence; not a shout or cry was heard trance. “1 advanced,” wrote Har¬ neared completion, the commis¬ except for the cries of the harbin¬ ris, “making three bows as 1 pro¬ sioners told him that they would gers calling “Clear the way!" To ceeded, and halted at the head of have to delay until a member of the Harris “the silence of such a vast two lines of men, who were pros¬ Council of State secured approval multitude had something appalling trated on their faces .... His of the treaty from the Mikado in in it .... I estimated (he wrote) Majesty was seated on a chair Kyoto whom they called “The the number of persons that . . . elevated some three feet above Spiritual Emperor." In the past the .... lined each side of the way to the floor .... He was dressed in emperor had given his approval as be 300,000. Yet in all this vast con¬ yellow silk, and wore a black lac¬ a matter of routine, and, as they course I did not hear a word." kered (sic) cap.” explained to Harris, this approval At length the procession arrived After a short pause. Harris was a mere formality. Harris be¬ at the great Castle of Edo. "fhere he began his speech in which he deliv¬ lieved them, and though he was still was warmly greeted by the Prince ered greetings and wishes for good ignorant of the Shogun’s real posi¬ of Shinano who showed him a health from the president, intro¬ tion. he nonetheless now knew that house set aside for his use which, duced himself, and expressed the another influential ruler also re¬ much to his surprise, included a sit- desire to unite the “two countries sided in Kyoto. 18 FOREIGN SERVICE JOURNAL, February, 1979 What Harris never found out and hasten the Japanese into signing the Shimoda to be closed six months what completely shocked the American treaty before the foreig¬ after the opening of Kanagawa; the Shogunate was that the emperor re¬ ners arrived. Boarding the frigate, right of Americans to reside in Edo fused to approve the treaty. The he proceeded to Kanagawa where and Osaka in 1862 and 1863 respec¬ powerful exclusion group which he sent a dispatch to Edo. In it, he tively; the imposing of custom rates dominated the court in Kyoto now notified the Council of State of the on both imports and exports; the gave the politically weak Mikado situation and urged the concluding freedom of religion and extra¬ enough support so that, for the first of the treaty "without the loss of a territoriality for Americans in Ja¬ time, he could openly oppose the single day.” The Shogunate pan; and finally that ratifications Shogunate. The Americans, unwit¬ reacted immediately, and fearful were to be exchanged in Washing¬ tingly by their treaties and presence that Japan might become like India ton. in Japan, were giving the oppo¬ or China, promptly dispatched two No sooner had the Powhatan nents of the Shogunate their oppor¬ envoys to meet with Harris. Arriv¬ sailed for home with the signed tunity for action. Faced by this un¬ ing aboard the Powhatan at mid¬ treaty, than the British, French, expected turn of events, the night on July 28, the two commis¬ and Russian fleets arrived from Shogunate tried to bribe their op¬ sioners, after receiving’a 17-gun sa¬ China. Their subsequent negotia¬ ponents in Kyoto, but when this lute in spite of the late hour, held a tions, following the American failed. Lord Hotta went to Kyoto private conference with the consul model, were friendly while Harris, to try to settle the matter. In the true to his word, stood by the meantime, he assured Harris that Japanese and played a helpful and the treaty would be signed, but understanding role. He even there would be a further delay. “As a commentary on supplied the services of Henry Harris, who had become ill, did not Heusken, who, being thoroughly protest but decided to return to their duties besides familiar with the American treaty Shimoda where he could con¬ housework, they were served as interpreter for the other valesce until the time arrived for powers. In fact, the British were so him to return to the capital to sign ordered to spy on the grateful for Harris's friendly medi¬ the treaty. consul general and to ation that Queen Victoria sent him When he returned to Edo in a gold snuffbox in appreciation. April, Harris found the Japanese report to the governor For the remainder of the year, still requesting a delay. Believing ‘as soon as they Harris remained in his little temple that he had been deceived, Harris became pregnant.’ ” near Shimoda. In his former isola¬ bitterly reproached the commis¬ tion he had complained about not sioners and informed them that if receiving any letters, but now with they did not have full powers to the news of the treaty, he found sign the treaty, he would deal di¬ himself deluged by them not only rectly with the Mikado. When general. In Edo, the authorities, from the State Department, but Hotta returned from Kyoto, how¬ hearing the thunder of the distant also from American merchants and ever, he frankly told Harris for the salute, thought the assault on Japan manufacturers with visions of a big first time of the situation within the had begun. new commercial market. Finally, country and assured him that if he During the conference, which after taking a few weeks vacation in would consent to a further delay lasted until almost dawn, the com¬ China, he returned to Shimoda and until the Kyoto opposition was won missioners were distressed and received the news that on January over, then the treaty could be worried. The emperor still had not 7, 1859. by President Buchanan's signed without the danger of a civil given his approval to the treaty, but nomination, the Senate had unani¬ war. Accepting Hotta’sword, Har¬ in the face of the urgency of the mously voted him the first Ameri¬ ris agreed to postpone the signing situation backed by Harris’s con¬ can minister to Japan. until September, and he returned to viction that the other Western Thus, on July 7, 1859. with vivid Shimoda to wait. powers would accept treaties based memories of his first isolation amid That summer of 1858 was an anx¬ on the American prototype and the suspicious Japanese and of his ious time for Harris while he that he would "act as a friendly long months of frustrating but re¬ waited in Shimoda. On July 23, the mediator should any difficulties warding negotiations for a treaty, frigate Mississippi stopped at the arise," the commissioners finally Townsend Harris proudly hoisted port long enough to bring him im¬ went ahead, with approval from the American flag over the newly portant news: the English. French, Edo. and signed the treaty. In opened American legation in and Russian fleets were on their honor of the achievement. Com¬ Edo—a converted Buddhist tem¬ way to Japan, flushed with victory, modore Tattnall of the Powhatan ple, appropriately known as the after having compelled the defeated hoisted the American and Japanese Shrine of Peace and Prosperity. Chinese to sign the treaties of flags and fired a 21-gun salute. At the subsequent negotiations, Tientsin. The likelihood of their This first commercial treaty with the Japanese increased their efforts using force to make Japan open her the West in more than 200 years to induce Harris to return to ports to commerce only made Har¬ provided for the exchange of minis¬ America. The Shogunate sent its ris more apprehensive. Two days ters and consuls between Japan and chief interpreter, Moriyama later, however, when the frigate the United States; the opening of Yenokuke, also an official of the Powhatan arrived at Shimoda, the the ports of Kanagawa, Nagasaki, consul general saw his chance to Niigata, and Kobe by stages, with (Continued on page 45) EIGN SERVICE JOURNAL, February. 1979 1 9 When a Texas president gives a golf club it may be Burning Tree .

MORTIMER D. GOLDSTEIN

People who look to the past to setbacks on major national issues. lighted to receive a golf bag as one find today's wisdom are hacking To mention just two, his govern¬ of the several presidential presents, long odds. Perhaps they misunder¬ ment had lost a three-year struggle the response was, “Good idea—if stand Santayana. When he said to save the pound from devalua¬ the bag is filled with clubs.”

“ Those who cannot remember the tion, and General de Gaulle, with What happened in the next mo¬ past are condemned to repeat it,” the delicacy of the guillotine, had ment is hard to explain. You must he did not promise that a study of followed that with a veto of Brit¬ understand that no one who is ex¬ history would grace us with wis¬ ain’s second attempt to join the perienced in the diplomatic busi¬ dom. He merely noted that failure European Common Market. ness and is reasonably sane and to study it would ensure our folly. So when the two men set Feb¬ sober ever becomes more involved History as a source of comfort ruary 7, 1968 as the date of Harold than necessary in the personal or offers better odds. It is encourag¬ Wilson's sixth (and last) official social side of a presidential meet¬ ing to find out that the absurd, irra¬ visit to the White House of Lyndon ing. Yet, after my idea for a golf gift tional, and bizarre things we do Johnson, we can be sure that the had been accepted, I heard myself have been done before. And it is president, aware of Wilson’s prob¬ volunteer to select and buy it. reassuring, in a way, to see endless lems, wanted to give him a particu¬ Looking back now, I have no evidence that we and our contem¬ larly cordial reception. Not that good explanation for such an im¬ poraries did not invent foolishness President Johnson needed an ex¬ prudent and unprofessional act —and should not hope to abolish it. cuse to be an expansive host. As after 20 years in the State Depart¬ It is in the spirit of providing we in the State Department well ment. Perhaps it was the long, golf¬ such comfort to new legions of bu¬ knew, when a chief of state or head less winter that affected me. Buy¬ reaucrats that I write this memoir, of government came to Washing¬ ing a set of clubs probably seemed a footnote to the history of two ex¬ ton, the President liked to partici¬ like an opportunity to come close traordinary politicians. pate in the customary exchange of to the game again even if I could gifts in Texas style. That may ex¬ not get out on the course. Lyndon Johnson and Harold plain why, when I remarked in a It was only minutes after the Wilson cannot be linked as senior White House planning ses¬ high-level White House meeting cronies or pals—at best, they were sion that Wilson was a passionate broke up that the low-level White allies—but they appreciated one golfer and would probably be de- House bureaucracy moved into ac¬ another in the unique way that one tion. A presidential military aide master of a difficult art understands phoned me at my desk in the State his equal. Department and asked what made me think I knew how to go about Eleven years ago they were both Mr. Goldstein served in the Department troubled men. The president, be¬ from 1947 to 1972: first in the Civil Service, picking out the right set of clubs for sieged by the opponents of his then as an FSR. At the beginning of the the prime minister. A few months Vietnam policy, was only weeks article, he was deputy director of the office before, he told me, the President away from announcing that he of British and North European affairs; at its had decided to present golf clubs to close, he was the director. Since retiring in a diminutive VIP visiting from an would not run again. And the prime 1972, he has been engaged in free-lance minister, though firmly in office, writing, among other things. Asian country, and the clubs that was badly shaken by a series of Copyright ' Mortimer D. Goldstein were bought would have been right

20 FOREIGN SERVICE JOURNAL, February, 1979 for Wilt Chamberlain. I patiently golf equipment distributors and re¬ About two weeks before Wil¬ explained my long experience as a tailers. son’s scheduled arrival, Max Elbin golfer, mentioned my golf handicap 1 finally gave Mr. Elbin an order had everything together. I ap¬ (10 at the time) as evidence of my for the equal of any golf equipment peared at the East Wing of the competence, and outlined my plan available at that time; Walter White House, my burdens were of campaign. Apparently reas¬ Hagen “Ultra” woods and irons, passed by the security force, and I sured, my caller “authorized” me and an elegant medium-blue vinyl handed them to Bess Abell, an as¬ to go ahead. There seemed to be no bag and matching club covers (no sistant to Liz Carpenter, the White point in asking who had authorized flashy two-tone or simulated black House social secretary. She ac¬ him to authorize me. alligator, gilt-trimmed job for the cepted the packages with apprecia¬ My first step was to call a senior PM). I finished the list with a tion but without commitment. Sev¬ officer in the American embassy in bright, multi-colored umbrella, the eral hours later she phoned me. London, a practical man and a kind that looks so attractive bob¬ The vinyl bag would not do—the serious golfer. I asked him to get in bing across the deep green President gave only genuine touch quietly with the secretary of background of a distant fairway leather. And the bright umbrella Harold Wilson’s golf club near was too bright. And how about golf London and find the answers to a balls? I explained that the British number of questions about the used a smaller ball than we did in PM's golfing tastes and habits. In a “Ido not know what the the United States and that I didn’t few days, I had the information I regulations say about think the British ball was available needed and decided on a set of in Washington. I was told, how¬ fourteen clubs, including four using the pouch for ever, that the president might like woods (Nos. 1,3,4, and 5), a blade presidential golf balls, to reach in the bag and take out a putter, and nine irons (Nos. 3 ball or two when he presented the through 9, a pitching wedge, and a but it provided the most gift. (For all I knew, there might be sand wedge). The specifications, of secure transportation a little black-tie putting competition interest only to golfing buffs, were: on a White House rug before din¬ D-2 swing weight, standard length, available for such a ner.) In any case, one dozen golf regular flex steel shafts, and com¬ high priority and sensi¬ balls were essential. Please get position rubber grips. The golf bag them. And a leather bag, and a dif¬ would be vinyl, not leather which tive package.’’ ferent umbrella. So I went back to London considered too heavy and Max Elbin and the catalogues. In a something of a bother in Britain’s hurry, for time was getting short. wet weather. The final touch would Fortunately, we were able to find be a bright golf umbrella. when you are out on a British in¬ a magnificent blue leather bag and The second step was to decide land course on an overcast, drizzly club covers in the Ben Hogan line, where to buy. I learned from the day. along with a matching nylon um¬ office of the chief of protocol at the With the order in, I was able to brella, large enough, it seemed, to State Department that the White resume work at my desk, much to shelter a complete Cabinet meet¬ House had on several occasions the relief of the assistant secretary ing. A long distance phone call, the bought golf equipment from Max of state for European affairs. He magic words “White House,” and Elbin, the pro at Burning Tree understood, of course, the impor¬ the critical equipment was on its club, the playground of political tance of the president’s gift, but he way by airfreight. A trans-Atlantic powerhouses in the Maryland sub¬ was also concerned that we spend a phone call took care of the golf urbs of Washington. When I drove little time preparing for the sub¬ balls. A dozen balls from Wilson’s out that Saturday afternoon to see sidiary matters connected with the (no relation) British factory were Mr. Elbin, my wife came along to PM’s visit, such as discussions on sent promptly by the American observe the fun. She got no closer nuclear relations, NATO, interna¬ embassy in London in the diploma¬ to the action than the parking lot. tional monetary and trade issues, tic air pouch. I do not know what Burning Tree was and presumably Middle East and Far East prob¬ the regulations say about using the still is a bastion of the male lems, and the like. pouch for presidential golf balls, chauvinist. I could not abandon the golf but it provided the most secure Mr. Elbin, at the time president clubs entirely, however, since method of transportation available of the Professional Golfers Associ¬ there were still some details to at¬ for such a high priority and sensi¬ ation, showed the cool competence tend to. For example, Tiffany’s tive package. that undoubtedly led to his election called—a Major somebody-or- Less than a week after my first to that post. He was a thoughtful other. He had been told by the journey to the office of the White and calm consultant; he showed me White House about the gift and was House social secretary, I returned his stock and displayed a variety of supposed to produce a small ster¬ with my new goodies. Liz Car¬ catalogues to provide me with ling silver presentation plaque to be penter was not in, and Bess Abell further information. 1 was not riveted to the golf bag. So we had was not available; so 1 was re¬ satisfied to order from a catalogue to work out the size, the design, ceived by the third echelon. I pre¬ if the real thing was available for and a suitable inscription. We de¬ sented the box of golf balls and inspection; so, before making a de¬ cided on something historic, like: identified them as “imported”—a cision, 1 spent many hours the fol¬ “Harold Wilson from Lyndon grave error. “Oh,” the third eche- lowing week on a round of visits to Johnson, February 1968.” (Continued on page 44)

EIGN SERVICE JOURNAL, February, 1979 2 1 In a season which finds the query (Germany) and in the department’s The charge warned Mr. Roman “may I light up?’’ answered communications section ‘because that unauthorized absences on his more often than not with a blunt of the nature’ of the equipment, part would be charged to leave and occasionally profane negative, then most certainly the same can be without pay . . . (emphasis it’s hardly surprising that the State applied to my health. If tobacco supplied). Department seems to be left hold¬ smoke is dangerous to computers, I “Mr. Roman, dissatisfied with ing (the expression should be forgi¬ fail to understand why it is not con¬ the arrangements made by the ven) a smoking bomb. sidered dangerous to me ... I am charge, forwarded his grievance to The bomb ticks away down in sure fair-minded and intelligent the department on August 1, 1977. Abidjan on the Ivory Coast. The people can only be in agreement “The department, in its final re¬ man who built it is Jacques Roman, with that.” view of the grievance dated a support communications officer The grievance board’s shrift to November 15, 1977, found that the in his first foreign service post with Roman was not quite so short as charge had acted responsibly in de¬ the department. the department’s. In nine pages of veloping a compromise which tried During his indoctrination period bland whey dished up on April 3, to take everyone’s needs into con¬ in Washington, Jacques Roman 1978, the board nonetheless gave sideration. It concluded that no quietly insisted that tobacco smoke upstart Roman the back of its col¬ further action was required. made him ill—and that it was in¬ lective hand. Excerpts from that “Equally dissatisfied with the jurious to his health. Friends and communication mark the mile¬ department’s response, Mr. colleagues by and large accommo¬ stones of Roman’s dogged effort to Roman submitted his grievance to dated him by refraining from smok¬ control the air he breathes: the board . . . ing in his presence. “The charge, in an attempt to “The department states that at¬ In May of 1977, Roman was as¬ work out a compromise, asked the tempts by the post to meet Mr. signed to Abidjan, where, a com¬ employes of the C & R section to Roman’s objections have been rea¬ placent department assumed, he refrain from smoking in the con¬ sonable . . . would adapt to whatever condi¬ fined code room area. He refused, “The charge also discussed Mr. tions the environment imposed. In¬ however, to abolish smoking in Roman’s intolerance to smoke with stead, Roman kept repeating, again other parts of the C & R section, the post doctor. The doctor sug¬ and again, that he did not wish to stating that he felt such a step gests that Mr. Roman is unusually inhale the smoke that three fellow would work a hardship on those sensitive to tobacco smoke; he employes of the communications persons in the section who smoked. could not, however, identify a section exhaled. specific medical problem caused by Discussions followed; a com¬ Mr. Roman’s exposure to promise was proposed: smoking smoke . . . would be off limits in one small “The department points out that area where all four worked—but the only existing regulations gov¬ permissible in the rest of their work erning smoking in government in¬ space. Surely, the charge reasoned, stallations are contained in guide¬ that was fair enough. lines issued by the General Ser¬ Not so, said Jacques Roman. He vices Administration . . . maintained he spent three-fourths “The department concludes of his time in the smoking area and that, unless and until legislation is that his air space was fouled with passed or regulations published smoke. So he appealed to the de¬ prohibiting smoking in any area partment for relief. Summarily re¬ where there is an objecting jected, he filed a formal grievance. nonsmoker, nonsmokers are left “How can anyone,” he asked in with a choice as to whether or not a letter to the grievance board, “in to continue employment in an envi¬ this day and age when so much is ronment where other individuals being spent on anti-smoking cam¬ have chosen to smoke . . .” (em¬ paigns, remain oblivious to the phasis supplied) serious dangers resulting from to¬ On page seven, the board got bacco smoke? It is the depart¬ around to its “Discussion and ment’s duty, as my employer, to Findings”— insure and guarantee my right to a “The board concludes from an 9 work environment free from any examination of the record in this humanly controllable contaminants case that there has been no viola¬ which will endanger my health.” tion of any law, regulation or pub¬ He raised another issue: “If lished policy which would em¬ smoking can be banned in the Bonn power the board to take action in this case (sic). The board examined Lucien D. Agniel has served as a newspaper in particular the bulletin (FPMR editor, program director with Radio Free LUCIEN AGNIEL D-143 of September 17, 1976) from Europe, associate editor of a newsmagazine and as government information officer for GSA to the heads of federal agen¬ EC A and USJA. He retired in June of'17 cies which sets out guidelines for and is working on several hook projects. controlling smoking in GSA- 22 FOREIGN SERVICE JOURNAL. February, 1979 controlled buildings and facilities. with a stock brokerage firm as a smokers, it is imperative that the The board could find no infraction teletypist—a skill acquired in the Department take all possible action of these guidelines in Mr. Roman’s Marines. necessary to fulfill its obligation to case. The board would like to urge After a year, he returned to the provide a safe and healthy work the charge, who has made a consci¬ United States and started a small environment for its employes.” entious effort to arrive at a com¬ business which offered comput¬ Just a bit more than three weeks promise arrangement, to continue erized financial services; but he later, Barnes dismissed Comer in to seek a mutually agreeable solu¬ tired of it, sold out to his partner three paragraphs— tion to a problem which, from the and entered the foreign service. “Thank you for your letter. It evidence, is of such extreme dis¬ His lawyer, Edward H. Comer, pulls together into a logical whole tress to the grievant.” continues to press for reconsidera¬ the question of regulation of smok¬ Anticlimactically, the board tion of the board’s decision on ing as it pertains to the Department made its “Determination”— smoking and the effort began at the of State. As you note, the courts “On the basis of the evidence in top—with Director General of the and our own grievance board view the Record of Proceedings and the Foreign Service and Director of this as a matter to be settled admin¬ findings stated in this memoran¬ Personnel Harry G. Barnes, Jr. istratively. Current procedure del¬ dum, the board is unable to sustain In a six-page letter to Barnes on egates such regulation to chiefs of Mr. Roman’s grievance.” Signing June 7, 1978, Comer stated— mission. off for the board were: John W. “The Department of State is ob¬ “In view of the wide variety of McConnell, Presiding Member; ligated to ensure that Mr. Roman working conditions encountered by Rufus Z. Smith, Member: and Wal¬ and his fellow workers have a safe department employes at more than ter L. Swierczek, Member. and healthy environment in which 250 posts abroad, I feel that a de¬ If Jacques Roman was naive in centralized regulatory posture is expecting the grievance board to eminently wise and sensible in this function as an entity independent instance. A department-wide hear¬ of the department, the rush of ‘‘His response offered ing might serve to illustrate the dif¬ events which followed the verdict ficulty of effective and even- suggest that the department may no target at all. It was handed central administration of have underestimated Jacques Ro¬ purely arms and smoking regulations, but it would man. serve no other useful purpose at From Abidjan, he hired a elbows; nobody could this time. lawyer. He entered into detailed lay a glove on it.” “I support the view that Mr. correspondence with officials of Roman should seek an informal ac¬ the Departments of Health, Educa¬ commodation of his problem and tion and Welfare and of Defense. do not believe it to be appropriate He circulated a petition in Abidjan to work. As part of this obligation to insert myself into discussions which resulted in a majority vote to to its employes, the department pertaining thereto.” ban smoking in offices there, a must consider the health hazards Undaunted, Comer waded in majority which included many and physical irritation of tobacco with another letter dated July 24, smokers. And he pledged an all-out smoke and in particular must pro¬ 1978. He said, in part— fight until the rights of non-smokers tect those employes who are sensi¬ “I would like to make clear that to breathe uncontaminated air were tive to it.” we have not requested that the de¬ recognized. The letter cited in great detail the partment establish a central regula¬ A quick glance at Roman’s file Surgeon General’s ruling on the tory administration in Washington could have convinced anybody he hazards of smoking and numerous to consider all complaints and is not a man to be taken lightly. He studies in support of it. It also cited grievances relating to smoking. We was bom in Antwerp in 1939 of HEW’s strict bans on smoking in feel the department’s current German Jewish parents. His father conference rooms, classrooms, au¬ grievance procedures, which per¬ survived several Nazi concentra¬ ditoriums, libraries, elevators and mit these types of issues to be re¬ tion camps. His mother fled with shuttle vehicles. Similar rules have solved locally, could be ade¬ him to Brussels and worked as a been adopted, Comer pointed out, quate . . . However, specific guid¬ domestic with false papers by the Department of Defense. He ance from your office as to the provided by the underground. added— standards which should be applied Roman himself was cared for by a “The secretary of HEW recently to resolve such issues would be of Catholic family who sheltered him personally requested that the heads great assistance to him (Roman) at grave risk. of all federal agencies, including and to the department’s administra¬ After the war the family was re¬ the secretary of state, adopt similar tive officers. united and in 1952 emigrated to the regulations to ensure the healthful¬ “Therefore, could you please United States. ness of the working environment identify for me the standards and Jacques Roman believed in pay¬ for their employes and the public.” criteria which DCMs and other ing his dues; in 1959, barely 20, he “In view of the strong evi¬ State Department administrative joined the Marines and served in dence,” Comer continued, “that officials must apply when faced Okinawa and Japan. Upon dis¬ the contaminants from tobacco with grievances or complaints relat¬ charge he worked in his father’s smoke in the workplace can and do ing to smoke and tobacco contami¬ painting-contract business in profoundly harm the health, well¬ nation? I am particularly interested California, then took a job in Paris being and efficiency of the non- (Continued on page 43) FOREIGN SERVICE JOURNAL, February. 1979 23 “There’s a castle in Spain, very charming to see, deal more than they did five years Though built without money or toil; ago but there are still real bargains in Spain. Of this handsome estate I am owner in fee, I could go on for some time de¬ And paramount lord of the soil.”—John Godfrey Saxe tailing the virtues of this land of sun and sea, mountain and lake, mesa and valley, a place of beauty and for many a continuing joy. “Aha,” I hear you say, “he has flipped out on too much hot sun and red wine. I suppose in Spain there’s no such thing as AA.” On the contrary there are many active chapters of that worthy organiza¬ tion. Nevertheless, let me hasten to assure everyone that this is a very sober report. I’ve begun by writing of Spain as it is for any visitor whether for a short stay or for months of years, but to retire there—. The thought evokes many concerns.

The word retirement itself means GRANT PARR something different to every¬ one. Often pushed out of mind until the last moment before the defini¬ tive birthday, there is probably A castle in Spain? It’s a dream there is some gay and charming only one aspect with universal that could come true. What fiesta in one or another town or significance—the size of the an¬ other country has so many ancient city. There are famous religious nuity. Does it mean no deadlines, battlements to decorate its hilltops? observances such as those of Eas¬ no reports, less tension, no fixed There seems to be a castle for ter week in Seville. Many villages hours, no push; time for sport, every pueblo—and many are de¬ have for years presented excellent reading for pleasure, possibly writ¬ serted. awaiting the restorer. Passion plays. No matter where ing or painting, even just reacting Such ruins of course are not all you live, any brief drive will turn to each day as it comes? Or is it the for sale; and great piles of stone up new vistas—things of beauty beginning of one, even two, new may be drafty, even damp and and of history—reminders of what careers with every effort bent to¬ cold. It may be better to settle for a Spain was; and what it is. ward outstanding achievement? Or watchtower or old mill. They look Living here isn't as cheap as it will the extra time be used to help like castles and are more apt to be once was, but there are few other others, in civic or charitable work? livable. places that can match it— Such things must be decided no Recently I received a letter from particularly not in Europe. Nor is matter where or when “retire¬ a friend who, having considered lo¬ there much one might want that ment” occurs. If the where is Spain cations ranging from the Caribbean isn’t abundantly and often inexpen¬ and the time is now it will be your islands to Arizona to Portugal, now sively available—art, music, danc¬ own desires and talents that make it says he may retire in Spain. He is ing, sports—swimming, boating, the right or the wrong place for thinking of the weather, costs, per¬ fishing, hunting, skiing, golf, ten¬ you. They will also indicate what sonal and property security, and fu¬ nis. For bird-watchers, Spain's place in Spain you should select. ture prospects. There’s also the wildlife wilderness, the Donana, A young Englishwoman, writing pleasure of living—getting some offers a visual feast. on what Spain means to her, has fun out of life. One to three days travel, depend¬ pointed out that her Spain “is In Spain everything is changing; ing on where you start, will bring around eleven miles wide and 24 yet much that is old or traditional you to Granada, Cordoba, Sala¬ miles long, a mere drop in the remains. Some traditions, regional manca, Segovia, Santiago de Com¬ Peninsula.” dances for example, are actually postela, Toledo—or to a great city, She lives on an island in the being revived. All year around Madrid or Barcelona. Within the Mediterranean, Ibiza. Yet the same time range, a few hours by thought is important and applicable air, a very few days by train or car, elsewhere; for Spain is so varied Grant Parr, FS IO-retired, lives with wife Penny in Cadaques, Spain. Before joining one can be in Paris, London, that it is almost all things to all peo¬ the State Department (later USIA) in 1948, Amsterdam, Vienna. ple. he was a foreign correspondent in the Mid¬ Despite the death of Franco and In Torremolinos foreigners and dle East and Europe for NBC and the New the uncertainties of a new govern¬ some Spaniards live in a go-go at¬ York Times. With USIA he was assigned in mosphere of bars, discos, clubs, Damascus, Bonn, Hamburg, New Delhi ment, Spain remains for foreigners and Dacca. Accompanying cartoons by an unusually safe place to live. crowded beaches, hectic socializ¬ Penny Parr. Both land and houses cost a great ing, high-rise apartments, plush re-

24 FOREICN SERVICE JOURNAL, February, 1979 Drinking milk is a foreign insanity “Just think—fish, squid, eels—and Informality reduces clothing needs to a very fresh!" minimum. sorts, a sort of multi-lingual Miami torian, or an archeologist, or a Spain will be difficult. It might take Beach. Yet only a few miles away, movie star? There are possibilities. at least three months a year in other foreigners live on mountain- Occupations least likely to in¬ London or Washington for the tops, so isolated that they seldom volve foreigners in Spanish legal needed research. However, if you see anyone except farmers, villa¬ restrictions are those of writer, ar¬ can work in Spanish, there is a gers, and a few hardy friends who tist, teacher of or in English, real mine of historical information drive up a rutted trail to visit them. estate developer, interior de¬ available that has hardly been Between such extremes there are corator, and landlord—usually touched. many gradations. renting one or more apartments Some people try to make their Do you speak Spanish; or can built in conjunction with one’s own research a direct route to wealth— you learn the language easily? dwelling. Some rent their own sunken treasure. In the Archives of One can accomplish a great deal house for part of the year. the Indies in Seville lie the com¬ with only minimal Spanish. Some No matter what the rule, how¬ mercial records for four centuries English people seem to manage ever, there always seem to be ex¬ of Spanish exploitation of the New well without a word. On the other ceptions. By obtaining Spanish World. Seville had a monopoly and hand, if your Spanish is good there partners or meeting special needs, all shipments, including those of will be many more opportunities foreigners also run restaurants, gold and silver, had to land there and you will be less concerned with boutiques, pubs, antique shops, initially. When ships were lost the the number of other English- lending libraries. One group ser¬ time, place, and cargo were usually speaking people living near you. To vices and tends yachts. recorded. Even if one fails to locate pursue a serious second career in Though there might be occa¬ a treasure there must be some good Spain, unless you are a writer or sional jobs as extras if a movie is stories in these records. painter. Spanish is almost a sine produced near where you live, the A science more likely to bring qua non. “profession” of movie actor can’t reward—at least the satisfaction of What can you do or not do? The be counted on. The exception is a the search—is archeology. Spain is professions, such as law or medi¬ retired British army officer who a treasure house of history, from cine, are probably out—though one heard of an English-language film the Altamira caves containing English barrister does well writing being made in Madrid. He applied, wall-paintings at least 15,000 years in English about Spanish law. To was tested, accepted and has had old, through relics of such con¬ get a Spanish work permit, en¬ parts off and on for ten years. querors as the Greeks, Romans, gineers and similar technicians If you write on foreign affairs Carthaginians, Visigoths, and must bring a skill not obtainable and need an English-language many more. from a Spanish citizen. library of greater depth than those On Ibiza, a British woman, a But if you would like to be a his¬ of ICA and the British Council, Navy widow but trained in ar- FOREIGN SERVICE JOURNAL, February, 1979 25 cheology, is helping to uncover a here, though not on the coast, a costs do vary widely according to Carthaginian grave dating to the large plot containing three old where one lives. In general, the sixth century B.C. On the amateur stone houses is for sale for $65,000. south is cheaper—if one avoids level a father bought his young son It seems quite possible that these areas over-impacted by foreigners. a metal detector and the boy found could be restored and modernized In most ways cities cost more, yet a valuable ancient coin on the first and that two could be sold for the covered markets of some, such day. enough profit to make the third vir¬ as Barcelona, offer the best and tually free; but during the process least expensive foods. You may af¬ some $90,000 in capital might be ford oysters or lobster near the At¬ Spain offers many opportunities obligated. lantic; but heating bills will be and some mean a supplement to With enough patience, initiative, smaller or non-existent near the the income; but none obviate the and willingness to work—possibly Mediterranean. basic question of cost. even as a painter, bricklayer, or Virtually all services are consid¬ Today the greatest problem for carpenter—an American should be erably less than in the United any American living outside the able to find or create a beautiful, States. Repairs of all sorts cost United States is not his annuity nor well-located house, with two to less, and people are available to finding added income, it is the un¬ three bedrooms and two bathrooms make repairs in situations where in certain dollar. Inflation at home plus a spacious patio for $30,000 to most Western nations the only re¬ may raise the annuity; but there $35,000. But it would be even course would be to jettison the item may also be inflation where he is easier to spend $50,000 without get¬ and get a new one. Though the orig¬ living. ting what you really want. inal cost of autos is considerably Unless there is considerable cur¬ Location is all important. To live more, the subsequent costs for re¬ rent income earned abroad any tax inexpensively but graciously it’s pairs or maintenance are much advantage will be limited to avoid¬ essential to avoid big cities such as less. ing state sales and income taxes. Madrid and Barcelona where real In Spain the hair-do that would cost at least $30 in the US can be obtained for about $7; and the one done in Spain is likely to be better. Food? Overall it probably costs “Are you tempted by mussels, fresh tuna or less in the United States. Meat, anchovies, sardines grilled over vines or eggs, and milk are definitely cheaper; but it depends on what charcoal, octopus, squid ‘en su tinta,’ or sea food you eat. Beef, on a cost-quality paella? There’s also a peculiar Spanish basis, costs more in Spain. Yet pork, chicken, and lamb are more treat—baby eels called angulas—one of the best tasty than American equivalents. dishes I’ve tasted anywhere.’’ The pork is so lean and flavorful that some cuts can be substituted for veal. Chicken has more taste and less fat, yet it is not tough or stringy. The lamb is younger, more luscious. For these cost-quality Until the new tax laws are fully in¬ estate costs about as much as in may tip toward Spain. terpreted there is no certainty that other large European cities—which Spanish eggs are usually large anyone will benefit, in terms of is a lot. (There’s always the excep¬ and very fresh; but milk, though federal taxes, by living abroad. tion. “Bohemians” do buy or rent germ-free, is usually reconstituted. The state of the dollar is beyond and restore old apartments in old For Spaniards, the idea of drinking the scope of this article. We all buildings often near the city-center the stuff is a foreign insanity. hope for an upturn. Meanwhile for reasonable amounts. However, Though good, Spanish cheeses and let’s examine the cost of living in though such places may be fun. butter cost more than similar items Spain. they won’t afford what the foreign in the US—and a lot more than in In the “unspoiled fishing vil¬ service calls “representation.”) France, which may justify an occa¬ lage" where we live, a few miles Though the “vacation areas” sional trip across the border. from the French border (it still cost less than the cities, in general, What do you like to eat? This looks like a fishing village and is houses on the coast cost more than may be the most important ques¬ rather “in” with the French and those a few miles inland. The best tion. Are you tempted by mussels, wealthy Spaniards from Barcelona) opportunities now are probably in fresh tuna or anchovies, sardines real estate is worth about four relatively “undiscovered” villages grilled over vines or charcoal, oc¬ times what it was when we pur¬ a few miles from the sea, but in topus, squid “en su tinta,” or sea chased our ruin in 1970. Similar in¬ scenic locations. food paella? There’s also a peculiar creases have occurred all over Assume for the moment that one Spanish treat—baby eels called an- Spain. is living somewhere in Spain. How gulas; one of the best dishes I've Still project houses can be pur¬ do costs compare with those else¬ tasted anywhere. chased for about $15,000 in a vari¬ where? Best of all in Spain are the fresh ety of places and locations. As for Before answering such a ques¬ fruits and vegetables, and the ruins, in a pleasant village near tion. however, one must note that bread.

26 FOREIGN SERVICE JOURNAL, February. 1979 Fresh and delicious French-style clothing is expensive in Spain, the shine it’s usually warm; in the bread, often still warm from the informality of life reduces needs to shade it’s usually cool. oven, is sold by local bakers for 30 a minimum. You can afford excel¬ to 35 cents a loaf. Also available in lent quality. It is easier to match Since we bought a min in Spain in most neighborhoods are croissants, the Joneses and there is no need to 1970 and came to live here in brioches and churros, a sort of keep up with the Molinas. 1972 one axiom has always been doughnut stick. There are also Many retired people like the mix true. The best time to buy has long good pastry shops, less expensive of ages characteristic of foreign passed; the next best time is now; than those in France, and much communities in Spain—from really and the worst time, costwise, is cheaper than the gourmet specialty young people (often “reformed” coming. places in Georgetown. hippies who have found a niche) to Real estate values are still rising Though fruits and vegetables resilient types in their 80s. It’s def¬ and new (really old) areas are being come only in season, the seasons initely not retirement village. discovered and developed—with are quite long. Everything is consequent price increases. For ripened in the sun on the tree or hen there’s the climate. anyone wishing to invest in Spain vine and the quality is a joy. Valen¬ Many, perhaps most, of the best time appears to be as soon cia oranges are a treat that lasts Journal readers have themselves as possible. from late fall to March. lived or traveled in Spain. It’s pos¬ This means money, perhaps a Except for milk, whisky, and sible to find only sunshine and soft good part of a life’s savings. The gasoline, almost everything liquid breezes; but we know one FSO first query must be, “How secure costs less in Spain. If you don't like who, with family, spent a month in will we and our investment be?” wine—at 45 cents a liter—you have Spain and saw little but rain. If Without a crystal ball, this can’t lost a major advantage in living there is a general concept of Spain be answered with absolute cer¬ here: though we do know several it is probably of a land about as tainty. Do you know any place happy residents who drink nothing warm in summer as Florida and where it could be? However, based stronger. Good bulk sherry costs seldom colder even in winter than on the experience of our family and less than a dollar. A liter bottle of San Francisco. If you must have a observations of ourselves and Gordon's gin is about $4.00, but generalization this is a reasonably friends, we believe Spain remains there are several good gins for half good one. among the most secure places for that and bulk gin (from a barrel) is In areas frequented by foreig¬ both person and property that exist only about $1.25 a liter. It is good ners, except possibly such cities as anywhere. for any mixture using gin except Madrid and Barcelona, there is lit¬ Some, we think mistakenly, have dry martinis. Even good Scotch- tle weather hot enough to call for given credit for this to General type “guiski” can be found in bar¬ air-conditioning. This assumes Franco; but the deterioration pre¬ rels for $3.00 a liter. (Along the open windows, moving air, and dicted when he died has not oc¬ Spanish-French border tiny An¬ reasonably high ceilings and thick curred. dorra offers further opportunities. walls. It is true that the police are There everything is tax-free.) On the other hand, some places numerous, tough, and inflexible. If you are moderate, these prices can seem cold. This is true more Punishment for any infraction is won’t matter so much to your own because central heating is seldom likely and speedy. But there is budget—except when you enter¬ needed than because, in American more to it. Whether Andalusian, tain. Then you enjoy the same ben¬ terms, it is ever really cold. Basque, or Catalan, Spaniards efits as does the diplomatic host In the Costa Brava region when want no repetition of the terrible while in service abroad. the icy breath of the tramontana Civil War which many still re¬ One of the most pleasurable sweeps off the Pyrenees (“It’s the member, nor of the times of vio¬ economies comes when eating out. best thing in the world for your lence and unrest that helped to pre¬ For modest prices one may eat well health”, the Catalans insist) or in cipitate it. at excellent restaurants. The Granada of a January when the sun Few find theft or violent crime “menu of the day,” a three-course goes down, anyone lacking a heavy attractive; and there are few groups meal with wine, is offered for as lit¬ sweater will shiver and wish for a from whom even tacit support for tle as $3.00. Really good places list hot-air furnace. such activities can be expected. such specialties as calamares (a Yet in Granada, high in the True, tax reports are a travesty and form of squid), rabbit, duck, goose, Sierra Nevada, Spain’s lowest embezzlement all too common; but trout, or mussels (not all of them on minimum temperature as recorded these are impersonal transgres¬ the same menu of course) for $5.00 in an average year, is barely freez¬ sions. to $6.00. For $10 one can dine in ing, 32. The highest, 93, is usually Something, very possibly pride, real luxury. in Seville where the air is dry and keeps Spaniards from robbing per¬ Obviously not all Spanish restau¬ the shade always cool. Along the sons or homes, or taking women rants are good; but virtually Costa del Sol the range is only from through force. Whatever the reason everywhere in the country good 46, in January, to a maximum of 85 or reasons thefts, muggings, and ones can be found. in July and August. rapes are very rare. Though it is possible for an If before selecting a place to live In Barcelona, for example, re¬ American family to manage as an American discards illusions and spectable young women can still cheaply at home as in Spain, the carefully examines the records cli¬ walk about quite safely at almost life-style is likely to be more con¬ mate should be a significant asset. any hour of day or night. During strained. For example, though If you have a windbreak and sun¬ (Continued on page 41)

FOREIGN SERVICE JOURNAL, February, 1979 31 “These are the times that try men’s souls.”—Thomas Paine

Income Tax- DOs and DONTs

HANSON & HANSON, LTD.—CPAs

“Tax avoidance is a virtue while Tax his car and tax his gas, periodically to take “home leave” tax evasion is a crime" is an old Tax the road that he mast in the United States (Foreign Ser¬ truism. But year after year, tax¬ pass. vice Journal, September 1978). As payers encounter trouble trying to Tax his payroll, tax the sale. in the “Stratton” case decided in confirm where their actions fall in Tax his hard earned paper September 1971 by the 9th Circuit the broad gray areas between those kale. Court of Appeals in California, the two extremes. Also, be aware that Tax his pipe and tax his smoke. court permits the lodging, board “The Internal Revenue Services Teach him government is no and travel expenses of the em¬ bears most heavily upon taxpayers joke. ployee only (not his family) to be whose inexactitudes are of their Tax the water, tax the air, deducted on Form 2106. while on own making.” As the only jovial Tax the sunlight if yon care. mandatory home leave, from his note in this article may we furnish Tax the living, tax the dead. gross income in computing his tax¬ the following words of the IRS Tax the unborn, ere tliev're able income. Creed: fed. Note should be made, however, Tax his coffin, tax their shrouds, that even though the deduction has Tax his head, tax his hide, Tax their souls beyond the been ruled legal in two US Courts Tax small business far and clouds. of Appeal, IRS is still reluctant to wide. Tax them all and tax them well. allow such deductions on returns Tax his cow, tax his steer, Tax them to the gates of hell. filed by residents outside the 4th Tax his bread and tax his beer. and 9th Judicial areas (4th- Tax his houses, tax his lands, In any discussion of tax Maryland, Virginia, West Virginia, Tax the blisters on his hands. avoidance, it must be understood the Carolinas; 9th-California, Ore¬ that each transaction must be car¬ gon, Washington. Nevada, Arizo¬ ried out in substance as well as in na, Idaho, Montana, Alaska. Robert N. Dnssell. Enrolled Agent, served form so as to qualify as legitimate. Hawaii, Guam). Taxpayers filing as AID Employee Chief Tax Adviser from In complete view of the above, the in other jurisdictions should be the agency's creation in 1961 until retire¬ ment in 1972 after 32 years of Federal Tax following tax counsel is furnished: prepared for battle with IRS over Service. Since 1972 Mr. Dnssell has served this deduction for a while longer Tax Tips—1978 as Tax Advisor to AFSA and AID officials until final regulations are forthcom¬ as liis counsel is requested. He is presently 1) Home Leave—On June 12, ing as a result of the latest court associated with the CPA Firm of Hanson & decision. There is still every right Hanson. Ltd. of Arlington and Falls 1978, the 4th US Circuit Court of Church. Va. as an Enrolled Federal Tax Appeals in Richmond, Virginia to “cautiously” claim this expense Agent. ruled in the “ Hitchcock" case that on your tax return whether a resi¬ Frank E. Hanson. CPA, is President of a foreign service employee could dent or not of the 4th or 9th J udicial Hanson it Hanson. Ltd.. CPA firm of Ar¬ take deductions on his income tax District, but be prepared to defend lington and Falls Church, Va. Mr. Hanson form for necessary and ordinary the expense if audited, which re¬ has over twenty years of experience in tax and public accounting in the Northern Vir¬ expenditures incurred when obey¬ lates again to having full and com¬ ginia area. ing the congressional mandate plete accounting records.

32 FOREIGN SERVICE JOURNAL, February. 1979 2) New One-Level Appeals Pro¬ file tax returns in both the local in Virginia, Maryland or D.C. and cedure by IRS—Effective October jurisdictions and the jurisdiction of paying taxes there have, on depar¬ 2, 1978, a new IRS office in each permanent domicile. As an excep¬ ture overseas, tried to change their district will handle disputes which tion, presidential employees, FSO domicile to Florida only to find out were previously appealed to con¬ or FSIO, living in the District can later that the Washington area ference or appellate level. The claim exemption from D.C. income jurisdiction continues to have a two-level system of conference and tax obligations provided the FSO valid, enforceable claim for taxes appellate was found a costly dupli¬ or FSIO can establish he or she has due. Generally, in order to change cation for both the taxpayers and a permanent domicile in some other a domicile, the taxpayer must phys¬ IRS and thus were consolidated jurisdiction. To do this submit ically move to the new domicile. A into the Director of Appeals Of¬ D.C. form D40-B (D.C. nonresi¬ “visit” is not enough but there is fice. Although the Regional Direc¬ dent request for refund or ruling). no accepted required length of time tor of Appeals will be physically Most states have provisions in their that the person must remain in his located at each regional headquar¬ tax laws to protect against a double or her new domicile. However, in ters the appeals officers will be as¬ tax liability but this does not addition to physical presence, the signed to each District office and exempt the employee from the re¬ taxpayer should take additional hold appeals conferences at each quirement to file a return in both steps to confirm the new domicile, post of duty; as was done at the jurisdictions. When completing the such as register for voting, estab¬ conference level in the past. Tax¬ lish a bank account, own or have an payers will have the same rights interest in property, obtain a without being inconvenienced by driver’s license. Of these the most additional travel, etc. important is to register as a voter. 3) Home State of Residence Tax However, it is best to have a con¬ Liability—The issue of liability for “In how many lives tinuity in such matters and to adjust state taxes still plagues many does Love really play a employment records to confirm the foreign service officers and the fol¬ new domicile, such as by stating it lowing is furnished to help clarify dominant part? The as the home leave address. this continuing knotty issue. Tax average taxpayer is no Further, and most important, the authorities of Maryland, Virginia more capable of a employee should take care to com¬ and the District of Columbia are ply with the new jurisdiction’s in¬ giving increased audit time to the ‘grand passion’ than of come tax requirements. tax liability of Federal employees a grand opera.’’ In this same context, because a working overseas. There is ample foreign service employee continues legal precedent confirming that a —Israel Zangwill to have a domicile in the United foreign service employee, or other States, the employee is eligible to civilian Federal employees as¬ file his or her Federal tax returns signed abroad, continues to be le¬ with the IRS office having jurisdic¬ gally subject to the income tax laws tion over that address rather than of his or her permanent state of appropriate tax returns, the with the International Division Of¬ domicile within the United States. employee is advised to always indi¬ fices of the IRS in Philadelphia. If the employee is at any time as¬ cate on the tax form the locality of This can be particularly important, signed to the Washington area and his or her claimed permanent in case the taxpayer has a domicile thus subject to the income tax re¬ domicile. If Maryland, Virginia or in the 4th or 9th circuits and there¬ quirements of one of the local D.C. is merely a transitory resi¬ fore currently is the beneficiary of jurisdictions, that jurisdiction may dence, so state this fact when com¬ the Hitchcock or Stratton decisions well attempt to assert that his or pleting each year’s tax return. At when making a claim for home her tax obligation continues even the time of departure for an over¬ leave expense as a business deduc¬ after the employee departs on seas assignment, the taxpayer tion. another overseas assignment. For should inform the local tax au¬ 4) Overseas Employment Trou¬ this and other reasons, each em¬ thorities that he or she has been ble Areas Under Foreign Earned ployee is strongly advised to estab¬ only a temporary resident in the lo¬ Income Act of 1978: (PL95-615) lish and maintain as clearly as pos¬ cality and continues to maintain a a) Exemption of income does not sible the locality of his or her legal permanent domicile in another include any amounts paid by the domicile as this will help avoid fu¬ specified jurisdiction. Virginia, US Government to any person ture tax problems with any other Maryland and D.C. authorities working overseas and thus ex¬ taxing jurisdiction. normally check these facts com¬ cludes federal employees as in the If any employee's domicile is in pletely. past. Virginia, Maryland or the District If an employee moving abroad b) It appears from Sec. 206 of of Columbia or some other area; he wishes to change his or her perma¬ Act that the running of the 18- or she is liable to comply with that nent domicile from one jurisdiction month replacement period for de¬ jurisdiction’s tax laws at all times. to another, this can be ac¬ ferral of personal residence sale If the employee has a domicile in complished but should be done profit would be suspended during some other part of the United with care. Otherwise, the employ¬ any time that taxpayer or his States but is physically a resident in ee may continue to be liable for spouse have a “tax home” outside Virginia, Maryland or the District state taxes where last liable. More the USA after the date of the sale of Columbia he or she may have to than a few employees with domicile of the old residence; except that FOREIGN SERVICE JOURNAL, February, 1979 33 any such period of time as so sus¬ of residence listed in the form 1040 Act of 1978 will affect more tax¬ pended shall not extend beyond the booklet. payers when they file their 1979 re¬ date four years after the date of the a) If operating a business, file turns than when they file their 1978 sale of the old residence. This in with the Service Center where the returns. Most of the changes Con¬ effect brings other US citizens em¬ principal place of business is lo¬ gress enacted pertain to taxable ployed overseas in line with the law cated. years beginning January 1, 1979. for the armed services members in b) If the taxpayer has no legal The expressed intention of Con¬ the past. residence or place of business in gress was to reduce the tax burden c) It further appears that a the USA then file with the District for the American taxpayer. How¬ spouse employed by a private Director in Baltimore, Maryland. ever, in combination with the in¬ company while sojourning over¬ This is basically for US citizens re¬ crease in the Social Security rate seas with a foreign service tired or working full time for pri¬ and limit, some middle income tax¬ employee shall be fully affected by vate employers outside the USA payers will actually be paying more all aspects of the Foreign Earned and having bona fide residence in a total tax in 1979 than in 1978. Income Act of 1978 and should ob¬ foreign country. The changes affecting 1978 are: tain a copy thereof and become c) A US citizen employed by the a) Capital Gains: The sellers of familiar with its many provisions federal government and temporar¬ capital assets held in excess of one effective in 1978. For 1978 year ily assigned overseas should file year can now exclude 60 percent of only, taxpayers may opt either the the gain instead of 50 percent. The 1976 Reform Act or provisions of sale, however, must have been 1978 Foreign Earned Income Act. made on or after November 1, This act’s provisions will remain in “Annual income twenty 1978. If before that date the old law the gray area of knowledge until the governs. The fifteen percent IRS regulations are issued thereon pounds, annual minimum tax on capital gains un¬ some time in middle 1979. expenditure, nineteen taxed by income tax remained in ef¬ 5) Energy Tax Credit-Residen¬ fect until January 1, 1979. How¬ tial Property—An income tax six, result happiness. ever, any sale of a personal resi¬ credit of 15 percent of the first Annual income twenty dence after July 26, 1978 is exempt $2,000 of qualifying residential pounds, annual from the “add-on tax.” energy conserving expenditures b) Sale of Personal Residence: can be claimed (for a maximum expenditure twenty This change took effect as of July credit of $300). The credit is avail¬ pounds ought and six, 26, 1978 and pertains to taxpayers able for expenditures made on or 55 or over. The new law allows any after April 20, 1977 to a previously result misery.” taxpayer who is at least 55 to ex¬ constructed principal residence. —Charles Dickens clude up to $100,000 ($50,000 in the The credit is not limited to case of a married person filing homeowners but tenants in rental separately) of gain realized on the and coops and condo dwellings as sale of a principal residence. This well. The credit is cumulative and with the Service Center listed for election is only available once in a all 1977 and 1978 expenditures will his or her legal state of residence, taxpayer's lifetime. To have his or be claimed on the 1978 tax return normally the “home leave” state her property qualify, the taxpayer and any balance carried to 1979- and/or where he or she files state must have owned and occupied the 1982 up to the maximum $2,000. A tax information. This includes a property as a principal residence minimum $10 credit is required US citizen in the armed services as for an aggregate of three out of the each year. The basic qualifying well. five years immediately prior to the items are: storm doors, storm win¬ This issue of where to file may sale. However, a taxpayer who is dows, caulking and weather strip¬ become very important in the event 65 or older who made a sale before ping, auto energy saving thermo¬ the taxpayer is claiming home leave July 26, 1981 can elect the five out stats, etc. Air conditioners, heat expense or attempting to confirm a of eight year test of the old law. pumps, space heaters, and fire¬ legal state domicile for the state in¬ Also a taxpayer, 65 or older, who places DO NOT qualify for the come tax purposes. Filing in the previously elected the special ex¬ credit. IRS has released a form legal home state while outside the clusion under Sec. 121 is still eligi¬ #5695 which all taxpayers will use state will not cause trouble if au¬ ble for the new $100,000 exclusion to compute the credit with the in¬ dited since the case can be trans¬ under the new law. structions on such form stating ferred to the taxpayer’s present In conclusion it might be well to what does and what doesn’t qualify area if so requested at time of audit. suggest referral to the Income Tax for the credit. Form #5695 will be One should try, in every possible article in the February 1978 FSJ. made a part of your 1040 tax return way, to keep contact with the state The items in #3-Moving Expenses; and the credit will be reported on of legal residence so no one can #4-Sale of personal residence line 45 thereof. break the ties of home to cause ad¬ rented temporarily; #5-Repre- 6) Where to File Tax Returns— verse tax action. Filing a return in sentation Expenses; #6-IRS audits The taxpayer need not necessarily the home state is merely one more and #7-Sundry tax issues merely file a federal tax return with the way to hold these ties intact if so using one year later dates where same IRS Center used last year. desired. applicable still apply to each tax¬ He or she should file with the Ser¬ 7)payer involved Rwith such tax is¬ evenue Act of 1978— vice Center listed for the legal state Changes for 1978—The Revenue sues. 34 FOREIGN SERVICE JOURNAL, February, 1979 Hull read Grew’s final report on But, “ . . . [T]he most serious pgJBCBKSHBF the Embassy’s efforts for peace in limiting factor in the Sino- late 1941 and, obviously suspecting American cooperation is [its being that its publication would show his based] almost exclusively on stra¬ A Golden Thread own positions to have been overly tegic grounds .... In short, rigid, blew up in typical Tennessee Sino-American cooperation will THE JAPANESE THREAD: A Life in the sulphur. continue to have a narrow US Foreign Service, by John K. Em- merson. Holt, Rinehart, Winston, In his description of his assign¬ base .... will depend heavily on $16.95. ment to Yenan in 1944-45 Mr. the forces which brought it about in Emmerson again has done a service the first place—the evolving bal¬ At first glance the title reminds to his countrymen and to histo- ance of power in Asia.” one of Broken Thread, a study of ians. Typical of his insights is his To sustain such cooperation, the the end of Anglo-Japanese friend¬ note that the Chinese Communists US must remain powerful in East ship by Major General F.S.G. Pig- did not seem time-ridden; he never Asia. If US strength were to de¬ gott, pre-war British military at¬ saw a clock in Yenan. The after- cline substantially, the US would tache at Tokyo. Like Mr. Emmer- math of his Yenan assignment was, be less valued by the CPR as a son, General Piggott thought his of course, his being caught in the countervailing force to its per¬ own country’s policies toward McCarthy whirlwind. Mr. Emmer¬ ceived Soviet threat. Also, if Rus¬ Japan too rigid; the Foreign Office son’s account is careful and char¬ sia should significantly moderate took to calling his reports “Piggot- itable. He tells wryly of the secu¬ its policy toward China, the latter tries” and ignoring them because rity officer who found him might find less need for the US as a they thought he was pro-Japanese. “dreamy and careless and rather hedge against Soviet threat. But whereas the Anglo-Japanese weak-willed’’ because he had spent Readers of this lucid account of thread broke violently in De¬ so many years in Oriental coun¬ things past and present in US- cember 1941, probably never to be tries. But in this rancorless account China relations—and its perceptive fully repaired, Mr. Emmerson re¬ Foreign Service colleagues of a interpretation of their possible mains cautiously hopeful of the fu¬ younger generation might well take future—will find it absorbing, trou¬ ture of the American-Japanese heed of the risks they run when bling. They will also appreciate, thread which has run its way crimes are being committed in the too, T.S. Eliot’s words in “Burnt through his long and interesting name of politics and patriotism; the Norton”: “Time present and time career. He does note, though, that crimes are compounded by the past / Are both perhaps present in neither country has a good percep¬ bueracratic empires that are built time future, / And time present tion of the other’s vital interests. on those crimes. contained in time past.” Most fascinating in Mr. Emmer- Wherever the thread led him— —ROBERT W. RINDEN son’s carefully understated story is Moscow, Paris, Lima, Rhodesia, the view he gives of pre-war US- Karachi—Mr. Emmerson was a The Suez Crisis Japanese relations. Historians who perceptive, thoughtful witness to have examined the record have history. He has written a compel¬ THE LION’S LAST ROAR 1956, by Ches¬ been suggesting we were too self- ter L. Cooper. Harper and Row, ling account of that witness. $12.95. righteous and Sinocentric. This —J. K. HOLLOWAY very human account shows these The Suez Crisis of 1956 and its traits to have been prominent in “Time Future” aftermath marked the end of Brit¬ Stanley Hornbeck, then head of the ain’s role as a world power and department’s far eastern division. CHINA-WATCH: TOWARD SINO-AMER- drastically weakened its special re¬ Hornbeck once challenged Em¬ ICAN RECONCILIATION, by Robert G. lationship with the United States. merson, then on home leave and Sutter. Johns Hopkins University By precipitating an inconclusive consultation, to name one country Press. $10.95. and self-defeating confrontation be¬ that ever went to war out of This book is an authoritative, tween the western European pow¬ desperation—the exact word many succinct survey of Sino-American ers and Egypt, the crisis polarized Japanese used later to explain the relations from World War II to the opinion in _ the third world and origins of the Pacific War. The death of Chairman Mao Tse-tung. opened the way for greater Soviet State Department, ever the keeper These relations are discussed influence in the Middle East. The of faulty flames, censored a review within the matrix of East Asian leaders of the free world, and espe¬ of one of Mr. Emmerson’s earlier Power realities, in which the US, cially Anthony Eden and John Fos¬ books, The Japanese Dilemma, the USSR, the CPR, Japan, and ter Dulles, have much to answer because it suggested Hornbeck was Korea are inextricably involved. for in bringing these unhappy wrong-headed and quoted a declas¬ In his masterly exposition of events to pass. sified telegram he had drafted de¬ US-CPR relations during the past Chester L. Cooper is eminently riding Japanese bombing abili¬ three decades, Dr. Sutter pos¬ qualified to write the most au¬ ties—dated December 5, 1941. tulates that strategic factors have thoritative work on the Suez Crisis Americans in general and histo¬ played the chief part in the current to date. A CIA analyst in London rians in particular will find poignant rapprochement. Balance-of-power at the time of the crisis, Cooper Mr. Emmerson’s description of the considerations in East Asia have was Secretary Dulles’s intelligence meeting between Ambassador made the US and the CPR see that adviser on matters relating to Grew and Secretary Hull after the their national interests are best Egypt and the Canal. He brings former’s return from Japan in 1942. served by cooperation. penetrating personal insights to a

FOREIGN SERVICE JOURNAL, February, 1979 35 crucial episode that will continue to which the American taxpayer mended by Rubenstein’s friends, in suffer from a paucity of historical would subsequently have to a seedy room overlooking a trash evidence, especially about the de¬ underwrite—the heritage of an er¬ dump, which the manager assured cision to attack, until British, roneous interpretation of post- us was one of his best. On the other French and Israeli archives are World War I experience. hand here and there in the recom¬ open for inspection. This is an im¬ Despite Backer’s title, the evi¬ mendations one can find a hotel portant work that over and above dence shows that the 1947 US deci¬ that is a gem such as Inga Haag’s its historical merit is impeccably sion to reject Soviet demands for elegant small hotel in the Rue des written and enriched with striking reparations from current produc¬ Beaux Arts in Paris in which Oscar pen portraits of the principal pro¬ tion was not a “decision” to divide Wilde took refuge, accurately not¬ tagonists. Germany—the country was al¬ ing on his death bed there, “I am —CHARLES MAECHLING, JR. ready divided, the Iron Curtain dying above my means.” To sum down, the political switches set. As up, this is an entertaining book for Drawing the Iron Curtain the author so rightly notes on page hotel aficionados, but its unreliabil¬ 89 . . . “any review of Soviet his¬ ity makes it of little help to the THE DECISION TO DIVIDE GERMANY, tory should have made it clear to traveler planning a European trip. by John H. Backer. Duke University American diplomats that Soviet —CHARLES R. FOSTER Press leaders never had been willing to Hundreds of studies have been trade political concessions with written about early post-war Ger¬ long-range effects for short-term For Africanists many. This is one of the few to in¬ economic benefits.” AFRICA’S INTERNATIONAL RELAT¬ tegrate the scholarly and historical —KARL F. MAUTNER perspectives of an insider’s under¬ IONS, by Ali A. Mazrui. Westview Press, $23.75 hardback; $15.00 paper. standing of how the Occupation ac¬ The Guide that Failed tually functioned at all levels. The Ali Mazrui is the one person result is an impressive analysis of EUROPE'S WONDERFUL LITTLE whose writing might warrant the that complicated phenomenon—its HOTELS AND INNS, by Hilary Ruben- price of this book. There is a lot of origins, dynamics, cross-currents stein. E. P. Dutton. $9.95. historical commentary here, but and unexpected evolution. Karl Baedeker originated the the impression left by the book Dr. Backer makes a persuasive first guidebook in Coblenz in 1824 makes us look to the future, stimu¬ case in explaining occupation pol¬ and set the standard for travel lated by Mazrui’s new ideas and icy from the economic point of guides. Baedeker had never been trenchant observations. Mazrui view, focusing on the central ques¬ content (as most current guides shakes up our thinking and forces tion of reparations. Nevertheless, are) with information on hotels, us to consider a world in which his most striking contribution, in restaurants and shops. He aimed at existing political, economic, and this reviewer’s opinion, lies in the an audience that was literate and cultural forces have advanced to noneconomic side of the story; the culturally curious; and Baedeker new stages of development and im¬ setting in which the reparations guides provided interesting essays portance. He anticipates, for in¬ issue evolved. Here it becomes on the culture, history and stance, a growing influence of Is¬ clear that the title of the book is geography of the various countries lam, noting that “the prestige of a misleading—it should have in¬ using a galaxy of talent and exper¬ religion is often positively corre¬ cluded a large question mark. No tise. lated with the political or economic matter what he intended, Backer Today, alas, Baedeker’s high power of those who profess it.” He demonstrates convincingly that standard has been abandoned. looks to a day when African Mus¬ there never was a decision to divide Guide-books sound alike in their lim missionaries in major American Germany—it just happened (in pedestrian descriptions. To avoid urban centers seek to spread Islam poli-sci jargon by “disjointed in¬ this sameness Hilary Rubenstein, among black Americans eager to crementalism’’). an English literary agent, hit upon a reforge historical and cultural links The book’s introductory discus¬ new approach—have your friends to Africa. He asks us to imagine sion of historical perceptions pro¬ write personal recommendations. the impact on American foreign vides a unifying background for the This is the way this guidebook was policy if the influence of the black many disparate threads Backer compiled; a more honest title American community should ever weaves together: bureaucratic pol¬ would list the authorship as equal that of Jewish Americans at icy-making in Washington, intera¬ “Friends of Hilary Rubenstein.” present. He foresees growing gency rivalry, General Clay’s But friends’ tastes vary. For in¬ Afro-Arab cooperation in Third pragmatism, congressional and stance, two of these friends, Uwe World fora, and asks us to consider domestic prejudices, the problem and Sheila Kitzinger, who domi¬ the impact on the world monetary of coping with an unstable and vin¬ nate the French recommendations, system which could result from dictive France, hasty US demobili¬ are vegetarians; hence we have a cooperation between Arabs in con¬ zation, the cost and logistics of rare review of a hotel on the Rhone trol of half of the world’s monetary feeding half of Europe, Soviet whose chef is a vegetarian, and reserves and black South Africans obstructionism, and burgeoning another one whose piece de resis¬ in control of the major source of “containment’’ sentiments, to tance is a trolley of crudites. gold. The influence of Islam on re¬ mention a few. And permeating it On a recent holiday in Wales we cent events in Iran, as well as its all, a conviction that the US should bedded down in an overgrown, importance in Nigeria, another never sanction reparation demands overpriced seaside hotel recom¬ country of potentially vital impor- 36 FOREIGN SERVICE JOURNAL, February. 1979 tance to the US, clearly indicates comedie humaine of Maoland ascent to power, through disap¬ that Africanists too should sharpen ... its petty cadres, intellectuals, pointments and morose with¬ their understanding of the social, workers, young activists, misfits, drawal, to a commitment to elimi¬ political, and economic aspects of faithful believers, shrewd nate the Nazi regime. As Dr. Islamic thought if we are to under¬ operators, weary old men, social Reynolds (now a Marine lieuten¬ stand fully the motivations of many climbers ...” ant) makes clear, Beck’s funda¬ popular movements in Africa in the One story is about a lonely, mental objective throughout was coming quarter century. middle-aged bachelor who falls in consistent: to salvage the German A characteristic of Mazrui is that love with a charming young widow Army and the Prussian virtues he he takes great care not to use terms (and she with him) but finds that, valued, and thereby salvage Ger¬ loosely. Whatever his subject, he for him, “there was only loneliness many. In the end, he conspired to clearly defines his terms and in the ahead.” His peer committee de¬ kill Hitler in order to save the process refines our own under¬ nied his request to marry her. Her German Army from total defeat standing of the phenomena in ques¬ father was of the “landlord class” and then restructure Germany in a tion. This book is full of such and her deceased husband a projection of his ideals. examples. The only disappoint¬ suicide. She was ideologically un¬ Given the absoluteness of ment one might note is that some of acceptable. Beck’s convictions, the long the chapters are slightly dated. The Nixon’s Press Corps tells about drawn-out struggle of conscience chapter “Africa and the USA’’ the people of Nanking being or¬ entailed in violating his oath to Hit¬ was written before the election of dered by Party cadres to clean up ler (who, after all, came to power President Carter; another, “Arms and spruce up—in anticipation of a legitimately) does not emerge and Nationhood,” discusses a visit by “foreign friends.” Make a clearly in this biography. For those number of philosophical questions, long story short: they skipped of the officer corps who freely took but was also written well before the Nanking for Hangchow—but one that personal oath without reserva¬ advent of the Carter administration recalcitrant woman (no Potemkin- tion, reconciling such a breach with and its policy of arms sales re¬ villager, she) got in bad. their conscience was a wrenching straint, and therefore we miss the Do, please, enjoy these stories. experience, a point the Ellsberg benefit of comment by Mazrui on They’re almost too much. You’ll generation will have difficulty ap¬ this attempt to marshal multilateral laugh, you’ll cry—you’ll wonder preciating. But it also becomes a cooperation in reducing arms sales why. telling indictment of Hitler that to the third world by setting an —ROBERT W. RINDEN even these unquestioning officers example worthy of emulation. finally held him to be sufficiently Nevertheless, no book can be criminal to invalidate their oath. completely up to date, and Af¬ The General’s Last Stand In any event, the July 20th con¬ ricanists ought to read this one for spirators were not adventurers; if Mazrui’s ideas cannot help but TREASON WAS NO CRIME. (Ludwig they had been, they might have stimulate further thought. Beck, Chief of the German General been more successful. Some who —CHARLES O. CECIL Staff), by Nicholas Reynolds. William survived came to believe their fail¬ Kimber, London. ure, and the subsequent catas¬ Treason Was No Crime attacks trophe, were foreordained. Gen¬ Life in Mao-Land a formidable subject; it could also eral Beck apparently concluded as have been titled “The Last Prus¬ much beforehand but, despite THE EXECUTION OF MAYOR YIN AND sian's Last Stand.” This particular deepest pessimism, felt compelled OTHER STORIES FROM THE GREAT spiritual descendent of Frederick to act: he was, after all, the only PROLETARIAN CULTURAL REVOLU¬ the Great was one of that breed of man of stature around whom the TION. by Chen Jo-hsi. Indiana Univer¬ German military whose definition armed forces would rally after Hit¬ sity Press, $8.95. of duty encompassed only honor, ler’s elimination. When Colonel A native of Taiwan and a post¬ loyalty to their oath of office, and Stauffenberg’s bomb failed to do its graduate student at Mt. Holyoke dedication to Germany. The work. Beck committed suicide in and Johns Hopkins, the author, species was already on the en¬ the chief of staff s office from and her husband, in 1966 went to dangered list by the time the Prus¬ where he had hoped to direct Ger¬ Peking “to serve the people.” sian commonly associated with many’s salvation. Their generous, courageous de¬ Wilhelm II emerged. Lt. Reynolds’s book is minutely cision was soon regretted. After Yet the obviously gifted General detailed, yet highly readable, par¬ seven years (including the “Cul¬ Ludwig Beck, was, ironically, a ticularly in its latter portions. The tural Revolution”) they left China Rhinelander of bourgeois origin. author does, however, concentrate for Canada. She wrote nothing Despite, or perhaps because of it, on only one faction of the conspir¬ while in China, though an ac¬ he evolved into an epitomization of acy, the military. The Kreisauer complished writer. But, once out, the old Prussian model once he ad¬ Kreis of the Moltkes and the she wrote of her experiences in vanced into the upper strata of the Yorcks, Julius Leber's moderate China and of those she left behind. German General Staff. His Soviet Democrats, and Jakob Her collection of eight stories, humanistic education and upbring¬ Kaiser’s Catholics are treated only melancholy, angry, satirical, Simon ing within an erudite, albeit politi¬ in passing. They deserve a bit more Leys (Chinese Shadows) says are cally naive, family explains much attention for providing the philo¬ “a vivid gallery of characters ... a of his subsequent pilgrimage—from sophical-ethical-political content to microcosmic and unforgettable a man who first welcomed Hitler’s the conspiracy. So does Hans FOREIGN SERVICE JOURNAL. February. 1979 37 Oster who until his arrest may well were frustrated at every turn by glish: no pedagogese; no jargon; no have been the brains and the core pure bad luck. And so, as Reynolds lingo. Its style is informal, without of the group. puts it justly: “a particular ethos of being cute. The text reflects wide And general Beck himself does selfless duty to country, and a spe¬ experience, dedicated ingenuity, not quite emerge as a human being, cial code of refinement and and sound scholarship, without although that may be more the chivalry, each anchored in tradition pontificating. The book's format general’s fault than the author’s— and courage, died with Beck.” has variety and zest: it doesn't lull Beck was an awesome institution. —NEIL A. BOYER you to sleep. Above all, what is Reynolds laudably does not pass said is practical, down-to-earth, over the general’s failure to recog¬ Help for Children useful. nize the Nazi menace early on, nor No EASY ANSWERS: The Learning Foreign Service parents, espe¬ his long collaboration with them, Disabled Child, by Sally L. Smith. cially those at posts where schools nor even how he welcomed the Government Printing Office, Washing¬ provide no sophisticated address to short-term advantages of the Aust¬ ton, 20402. DHEW Publication the learning disabled child’s real rian and Czech annexations. No.(ADM) 77-526, $3.25. pain, will find the book basically It is still a matter of surprise that The day the National Institute of reassuring; yet at the same time it the 20th of July conspirators were Mental Health contracted with conveys clearly, over and over, able to move around so freely in the Sally Smith to write this book, that indeed there are no easy an¬ midst of total war, and surprising NIMH did a genuine service to swers and that a child's education too how long the aura of high mili¬ learning disabled children, who are will be a long row to hoe. tary rank, retired or active, could struggling; to their parents, who are The GPO Bookstore in State has serve as a protective shield in Hit¬ worrying; and to their teachers, the book in stock. Parents in the ler Germany. But perhaps most who are in there pitching. field can order it from the Superin¬ fascinating is Reynolds’s depiction Item: Sally Smith knows what tendent of Documents of the Gov¬ of the extent to which the German she's talking about: she is Associ¬ ernment Printing Office. The $3.25 resistance had to be pushed before ate Professor. American Univer¬ is money well spent. its members could be moved to ac¬ sity, in charge of the Learning Dis¬ —CLARKE SLADE tion, before they could be brought abilities Program, and she is Foun¬ A psychiatric social worker in the mental to discard their oath to the der and Director of The Lab health service of the Department of State's Medical Division, the reviewer was AFSA s Fuehrer. The old Prussians obvi¬ School of the Kingsbury Center. consultant in education and youth concerns ously waited too long, and then Item: The book is in plain En¬ from 1958 to 1976.

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38 FOREIGN SERVICE JOURNAL, February. 1979 LOCAL PROBLEM SOLVING tecting local woodlots and starting gas project—named for the Hindi from page 15 tree plantations. Fast-growing word for cow dung—has been slow trees, to be grown along roadways to get off the ground. By 1976, less tested windmill has been resusci¬ or in small private plots, are being than 25,000 small plants were in tated as a useful source of power. developed; these offer encouraging operation. By contrast, biogas Because of limited rainfall, the opportunities for individuals and plants are widely used in the vil¬ Gelebs in rural Ethiopia scratched neighborhoods to build a sustain¬ lages of China. In May 1977, the out a meager existence for genera¬ able firewood supply. In many New China News Agency reported tions, subsisting on the food pro¬ South Korean villages, local fores¬ 4.3 million working units, many of duced during one short growing try associations have been formed them communal plants producing season. With the help of American to plant and maintain woodlots and enough gas to meet the needs of up missionaries, who introduced to organize the cutting and sale of to 50 people. Recent reports indi¬ windmills of a design long used in wood. While the associations re¬ cate that 17 million peasants use Crete, the Gelebs have begun to ceive some government financial biogas for cooking, heating, and pump underground water for irriga¬ and technical assistance, the villa¬ lighting in Szechwan Province tion. The windmills are cheaper to gers run the program and benefit alone. build than more technically ad¬ from the woodlots. By 1977, some Green plants can also be grown vanced models from developed two million acres of trees had been specifically as “energy crops" to countries and they pump twice as planted by these local groups. further national energy inde¬ much water in the same wind. When organic matter decays in pendence. In late 1975. Brazil Their use means the Gelebs have the absence of oxygen, it generates launched an ambitious program to year-round cultivation and a better methane gas. Controlled fermenta¬ reduce the country’s dependence chance of avoiding future food tion of both plant and animal waste on imported petroleum through the shortages. in biogas plants can produce distillation of cassava and sugar Solar power that is captured and methane suitable as a replacement cane into alcohol for automobile stored in green plants is a renewa¬ for natural gas. The plants take use. By mid-1977, service stations ble source of energy that is also waste of negligible value and turn it in Sao Paulo and Rio de Janeiro well-suited to local use. To better into usable energy and a high qual¬ were selling a mixture of gasoline manage dwindling firewood ity fertilizer. The first attempt to in¬ and alcohol. Greater production of supplies, some communities in the troduce widespread use of biogas cassava and sugar cane will be re¬ third world are organizing and pro¬ was in India in the '40s. The gobar quired to meet the national goal of

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FOREIGN SERVICE JOURNAL. February, 1979 39 replacing 20 percent of gasoline basic human needs. The estimated ingenuity that no amount of money with alcohol by 1981. The govern¬ price tag for solving humanity's could buy. Funding should be ment has yet to decide whether to most pressing problems was stag¬ channeled through organizations favor intensive cultivation of these gering, at least $47.1 billion a year that truly have their roots in the crops on plantations or on small between 1980 and 2000. World local community. The Inter- land-holdings. Support for small Bank analysts concluded that third American Foundation is an excel¬ farm production would ensure that world governments will never be lent example of this practice. Be¬ many of the economic benefits of able to raise this capital themselves tween 1971 and 1976, the founda¬ increased national energy self- and that the success of efforts to tion disbursed $40 million of AID reliance are equitably distributed. solve these problems depends upon funds to citizens' groups in Latin Because tapping such energy large financial transfers from rich America. None of these grants sources requires the continual par¬ to poor nations. The international went to foreign governments; the ticipation of individual consumers, community will not play this role. funds went directly to cooperatives the transition to locally controlled, In 1975, total public and private of¬ and other participatory groups. highly differentiated energy ficial development assistance The new Congress will be consider¬ sources will unalterably remold so¬ through bilateral and multilateral ing a proposal to set up a similar ciety. As in possibly no other area channels totaled $18.4 billion, not organization for Africa—the Afri¬ of human endeavor, today’s local even enough to meet yearly basic can Development Foundation. responses to the global energy housing needs according to the In the past, developmental ef¬ problem will profoundly affect the bank estimate. The political will forts have often been hamstrung by social and political structure for does not exist to solve problems centralized decision-making and years to come. through a large transfer of re¬ bureaucratic strictures. Decen¬ sources. Any development strategy tralized, participatory efforts are. based on the assumption that the however, flexible by nature. In a This return to greater local re¬ rich will more than double their rapidly changing world, many pro¬ sponsibility for problem solving foreign aid is doomed to failure. ponents of a revision of American does not mean that foreign aid This means a new facilitating foreign aid strategy think the resili¬ should be abandoned. But a World role for international agencies and ence of a local problem solving ap¬ Bank study in August 1977 unwit¬ national governments. Every effort proach would be an important asset tingly highlighted the difficulties in should be made to mobilize the in any effort to meet basic human any international effort to meet the local reserves of labor and human

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40 FOREIGN SERVICE JOURNAL, February . 1979 A CASTLE IN SPAIN? separatists or other terrorist clubs and hence no fees; but from page 31 groups. There is no apparent mo¬ facilities are more limited. tive for any group to involve non- If you play tennis will you find the day, where men are working, official Americans. American dip¬ partners and opponents? A bridge there will be jibes and ribald re¬ lomatic and consular posts have club? Other Americans? Everyone marks (e.g. ola, a real Malaga saus¬ taken security measures but on must make his or her own list and age!) Pinchers are not unknown. nowhere near the same scale then check all points carefully. But the threat is to dignity and deemed necessary in Germany. Should it be warm the year temper, not personal safety. From all experience to date a around or do you want some sea¬ As for property, houses are left non-official American can discount sonal stimulation? A sand or rocky with full furnishings for months at a terrorism as a serious threat. beach? To swim modestly or in the time and with minimal risk. The biggest risk for someone altogether? Education? Religious Foreigners are able to leave con¬ who has decided to live in Spain is observances? siderable property in Spain and live selecting the wrong location. Next elsewhere without extensive secu¬ would come the neglect of small To repeat—almost everything is rity measures. matters more likely to be remem¬ available in Spain, but not Yet there are terrorists. After bered if at home, such as water everywhere. Children of school age Italy and Germany Spain probably supply, drainage, size of rooms and who want to attend Spanish ranks third in Europe in deaths and doors in relation to furniture. schools can find acceptable schools injuries caused by political vio¬ Each member of the family must almost anywhere and at little cost; lence. think carefully about what he or and there are also good private Except in the Basque area in the she hopes to find. Take golf American and English schools, north, such assaults seem to be di¬ courses. Spain has thousands; but plus some run in part by the minishing; but of course there can here in Cadaques the nearest is American embassy and consulates be no guarantee they will not re¬ nearly an hour’s drive away. general. These, however, are in sume. Foreigners with no particu¬ Beaches are generally open for either sizable cities or in areas lar business there seldom settle in swimming but if you sail or use a where considerable numbers of the Basque provinces which are in¬ motorboat you will want to know English-speaking people reside— dustrial and often smog-ridden. the cost of marina fees or any Ibiza, the Costa del Sol. However, to date no foreigner has necessary club fees. Many smaller As would be expected, Roman been a victim either of the Basque ports have neither marinas nor Catholic churches and services are

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FOREIGN SERVICE JOURNAL, February, 1979 41 abundant throughout Spain. There Much can be learned from other priorities must not be neglected; are also some Protestant churches Americans or English friends. perhaps they should weigh more and Jewish synagogues. The There are publications and bulletin heavily than any others. former, though often a cooperation boards through which tips can be Spanish regulations regarding of several denominations, are usu¬ passed on or goods and services in¬ foreigners sound complicated, but ally based on English Anglican formally exchanged. Maids and usually prove reasonably simple in facilities. Jewish services occur gardeners are easier to find. practice. Importing household ef¬ regularly in most cities and also However, with these benefits fects requires a declaration of an in¬ where any considerable number of goes a certain hectic quality, a tention to reside in Spain—a small, foreigners reside, but locations temptation to compete. You may self-signed form available in should be checked. abhor the over-building, the high- provincial capitals. However, there Ideally a family would rent for a rise skylines, the occasional sniff of is now a new requirement—that a few months while members look the pretentious. person intending to reside in Spain about personally before making If you want to do more for your¬ obtain a Special Visa in his or her any decisions that cannot be easily self, be sure of cool summers, and passport at a Spanish embassy or changed. don’t mind a nip in the air now and consulate in the entrant’s home However, one big, general then, you may prefer more north¬ country. This is said to take some choice should be faced at once. Do ern areas—perhaps the Costa three months between application you wish to live immersed in a Brava. and issuance. foreign, partly English-speaking But no one can advise another Though not needed by any community in which life can be beyond posing possibilities. One American willing to make a brief lived with a minimum use of can be isolated in Ibiza, or find trip out of Spain after each 180 days Spanish and comparatively little populous English-speaking com¬ (tourist status), it is likely to be re¬ contact with Spaniards? munities north of Barcelona. quired for obtaining a residence Then you will probably choose A last thought. Because of the permit and for entry of household the south, say the Costa del Sol or sports and open-air life Spain offers effects. Since no obligation is in¬ one of the Balearic islands. There it it is sometimes liked better by men volved in such a Special Visa, any¬ is almost always warm (sometimes than women. There is more chance one thinking of an extended stay in too warm) and there are clubs of all that a woman may have to create Spain might profit by obtaining sorts, group sports, many social ac¬ her own life without too much out¬ such a visa in advance at his or her tivities, some charitable endeavors. side stimulation. Her desires and own convenience.

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42 FOREIGN SERVICE JOURNAL, February, 1979 MAY I LIGHT UP? needed.” smoke-contaminated air. from page 23 It was a time-tested department In August, the American Medi¬ remedy for dealing with awkward cal Association released a report, in receiving copies of all documents problems. In denying that “any 14 years in preparation at a re¬ and guidelines which advise these widespread difficulty” existed, search cost of 15 million dollars officials how to resolve such com¬ Barnes seemed to be banking on which tagged cigarette smoking and plaints and which purport to pro¬ the disappearance of the difficulty smoke as responsible for or tect the health and comfort of in question. His response offered exacerbating to maladies ranging employes who are harmed by or ob¬ no target at all. It was purely arms from indigestion to cancer. ject to tobacco smoke.” and elbows; nobody could lay a Posters bearing the lurid mes¬ This time, in just over two glove on it. sage “Kindly Keep Your Butt Out weeks, Barnes got back to Comer Meanwhile, however, pressures of Here” showed up in California in a letter of two lean and clean were building on other fronts. In in early autumn—but failed to per¬ paragraphs— the spring, Jimmy Connors and suade voters in November to ban “This is in response to your let¬ Bjorn Borg had shocked fans at the smoking in all work areas except ter of July 24 suggesting that a set Grand Prix Masters tennis final at private offices. of standards be established for use Madison Square Garden by having Still, in a country which has bent in resolving grievances arising from the public address announcer ask over backwards to accommodate smoking. I am unaware of any that everyone refrain from smok¬ minorities, lobbies, pressure widespread difficulty on the part of ing. After a startled pause the fans groups, women’s lib, gay rights and DCMs and administrative officers burst into spontaneous cheering. assorted others, there is more than in resolving such issues. There ap¬ The state of New Jersey shortly a little suspicion that Jacques pears to be little need at this time to thereafter announced a ban on Roman is in the vanguard of a new produce and coordinate policy smoking in all public buildings, in¬ movement whose time has come. guidance on this matter. cluding the gambling casinos of At¬ In Abidjan, he continues his “Accordingly, your suggested lantic City. one-man assault on promiscuous review of existing policy does not At the University of California in smoking amid speculation that only appear to be warranted. You may July, patients suffering from angina a handful of veteran pipe-and-cigar be sure that the bureau of person¬ pectoris were found to suffer ag¬ men stand between him and un¬ nel will continue to monitor the gravated chest pains when perform¬ conditional surrender of the de¬ smoking issue and revise policy as ing exercise after breathing partment’s smokers.

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FOREIGN SERVICE JOURNAL, February, 1979 43 WITH THE COMPLIMENTS after the president’s dinner for the no less than six strokes off his game! OF LYNDON JOHNSON prime minister on February 8. We Mr. A—(an adviser to the prime minis¬ from page 21 accepted. The golf clubs were not ter) afterwards remarked separately Ion exclaimed, “the president in evidence then, but they occupied that they had been quite the most suc¬ cessful gift the prime minister had ever never gives anything that isn’t a prominent place in a photograph had. American.’’ I protested that the of the president’s gifts in the Wash¬ “So 1 feel the least I can do is to let you Wilson Company was an American ington Post later in the week. It know that all the trouble you went to firm, but the third echelon pointed was a happy ending to a project over this particular presentation was to the box, which carried the fraught with suspense and peril. very far from being love’s labour lost, words, “Made in Scotland.” I Incidentally, the prime minister's but obviously made an important con¬ opened the box, and saw that each policy discussion's with the presi¬ tribution. . . .” ball was wrapped in cellophane and dent and the secretary of state pro¬ I had a chance to test the accu¬ secured with a paper seal marked duced no comparable crisis—at racy of that report when Mr. Wil¬ “Wilson. Made in Scotland.” Dis¬ least none that was apparent. son came to Washington for his aster. I ripped the wrapping from first visit during the next presiden¬ one of the balls. It was marked There is an epilogue. Some tial administration. In the course of “Wilson” but—Oh, joy!—no months later, I received a letter drinks and small talk before a work¬ “Made in Scotland.” I tore off the from a good British friend at the ing lunch at the British embassy, I other eleven wrappers and dumped Foreign Office in London who caught the prime minister during a the dozen balls into the ball pocket knew of my involvement in the golf lull in the conversation. He seemed of the bag, and said in the coolest club caper. He wrote: rather tired and abstracted. I re¬ voice I could manage, “You now “I was at Chequers on Satur¬ ferred to the golf clubs and men¬ have a dozen American golf balls, day. . . .When I rang the bell the door tioned that I had participated in and please don’t say another was opened by the prime minister in their selection. His face lit up. A word.” She hesitated—and she person, with warm greetings and the marvelous gift, he said. A fine set didn’t. first thing that struck my eye, standing of clubs. And particularly, the No. in the hall, was the famous bag of golf 5 wood—a terrific club. I’ve made The following morning I re¬ clubs . . . showing all the signs of regu¬ ceived a “thank you” call from the lar use. I at once commented on this to some great shots with it. . . . The White House and that afternoon, Mr. Wilson and asked him how he abstraction and the fatigue were an invitation for my wife and me to found them. He immediately said that gone as we walked to the dining join in the dancing and champagne they had been first class, and had taken room.

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44 FOREIGN SERVICE JOURNAL, February, 1979 TOWNSEND HARRIS honors due to my high place, and to and trust of the Japanese by his from page 19 assign me . . . the Temple ... at quiet conduct and friendly disposi¬ Kakizaki . . . although I fear my tion. His task was not an easy one. newly created Ministry of Foreign Government might blame me for From the beginning, the authorities Affairs, to help the local authorities accepting a residence at Kakizaki spied on him and Heusken. As far deal with the unwelcome diplomat. instead of Shimoda . . . .” as his mingling with the people was When Harris showed them his Accordingly, Harris sent Heusken concerned, Harris found himself copy of the treaty which plainly to nearby Kakizaki with the ship’s almost completely isolated. Even permitted a consular agent at carpenter to prepare the temple for the hiring of Japanese servants was Shimoda, the officials replied that his use. a problem. their version—which had been de¬ By September 1, Harris began On one occasion, Harris showed liberately accepted only in moving ashore. Boats from the fri¬ Moriyama his blistered hands Japanese and left to their own gate carried his baggage and stores, “which had so become,” he de¬ interpretation—gave no such while men from the San Jacinto clared, “by my being compelled to privilege. They further understood came to the temple and erected a do work in fault to proper ser¬ that a consul would only be sent in flagstaff. Finally, the job was vants.” Moriyama begged him to case some difficulty should arise finished and while the sailors half be more patient, but shortly there¬ and none had arisen. Harris, how¬ ceremoniously formed a circle after, the authorities assigned sev¬ ever. remained firm in his refusals around the pole, Harris hoisted the eral young men to Harris’s house. and denial, and as stoically as the American flag “for the first time in Besides the male servants, Har¬ Japanese, he sat through the long the mystical Empire of Japan.” ris later acquired five females espe¬ hours of repetitious arguments Soon afterwards, the San Jacinto, cially selected by the authorities. without betraying his impatience or dipping her flag in farewell, headed As a commentary on their duties weariness. Finally he bluntly told out to sea. Now alone, with no besides housework, they were or¬ the officials that he would go to friends to talk with except Henry dered to spy on the consul general Edo (Tokyo) to have the matter Heusken, the consul general began and to report to the governor “as settled “whether they would re¬ his long exile. soon as they became pregnant." ceive me in Shimoda or not.” This During his first months in Japan, The Japanese, however, wasted “greatly agitated” Moriyama and cut off from the outside world, their schemes on the morally strict the governor and caused them fi¬ Harris devoted himself to getting Harris, and any spying the women nally to receive Harris “with all the settled and to winning the respect accomplished was done over the

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FOREION SERVICE JOURNAL, February, 1979 45 laundry tub or in the kitchen and of the holidays, Harris felt quite weight “so that where we paid not in the bedroom.* lonely and depressed. He confided $100, we now,” declared Harris, Harris also faced a food supply to his journal on December 25: “pay only $34.50,” extra¬ territoriality was secured, and fi¬ problem. His shopping lists had to Merry Christmas! How happy are nally, the consul general was per¬ be submitted to the local magis¬ those who live in lands where these trates who supplied him, at exor¬ joyous greetings can be exchanged! As mitted freedom of movement bitant prices, with the items he re¬ for me, 1 am sick and solitary, living as throughout Japan. quired. Often to Harris’s exaspera¬ one may say in a prison—a large one it The securing of this convention tion, they informed him that they is true—but still a prison. was a solid achievement. Unlike could not find certain items which Beginning with the new year, Perry, Harris had obtained these he or his servants had already seen 1857, Harris threw himself into his favorable concessions not by a bountifully displayed in the shops diplomatic work. In meetings with show of force, but by his own indi¬ of Shimoda. The only food Harris officials, he sought a readjustment vidual efforts, strengthened by ex¬ had no trouble in securing was of Perry’s treaty asking for more perience, a respected sense of jus¬ sweet potatoes, eaten only by the privileges for Americans such as tice, and a steadfast patience and lower classes, and for over two permanent residence and extra¬ friendliness toward the Japanese. months he ate them with every territoriality. These negotiations Moreover, he had done it in com¬ meal except breakfast. stretched into the spring and early plete isolation from American sup¬ In December, with the approach summer. Harris, however, much to port. the surprise and increasing admira¬ In fact, only two American ships *According to Japanese legend, Isa Sltin- jiro, one of the Shogunate officials assigned tion of the Japanese, refused to had visited Japan since his arrival to Sliimoda when Harris was there, per¬ give up. ten months previously. The first suaded Okichi, "a reluctant geisha of rare As a result, by June, Harris suc¬ stayed for four days in October beauty and talent" to "sacrifice herself for ceeded in concluding the Shimoda 1856: the second, arriving in March the sake of the country" in order to spy on Convention in which the Japanese 1857, stayed for 20 days. Harris Harris. This story, also retold in a 1958 movie. The Barbarian and the Geisha, was granted the United States five im¬ especially welcomed this ship since repudiated in 1953 by the great grandson of portant rights: Nagasaki was it furnished him with newspapers Isa, who said that "Harris did not even opened. Americans received the dated as recently as November 8. touch the girl." He claimed the "love af¬ right of permanent residence at From them he learned that James fair" between Okichi and Harris is a tourist attraction promoted by present day Shimoda and Hakodate, the cur¬ Buchanan had been elected presi- Shimoda. rency exchange was readjusted by

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46 FOREIGN SERVICE JOURNAL. February, 1979 every year of education provided in impression, the belief, that the LETTERS 70 | the United States, the student must United States Government is sec¬ agree to spend an equal period of ond to none in the bureaucratic big time back in his own country be¬ leagues. fore he can emigrate to or work in Can this be improved? Yes. The A Few Quick Fixes the US. No adjustments of status same offices that grind out immi¬ allowed, even if he or she marries gration visas issue US passports. Although I agree with a an American citizen. The only ex¬ Most of us would regard a passport great deal of what John St. Denis ception should be if the student can as a much more important docu¬ says in “What the Hell Am I Doing show that he will be politically ment than a visa. Yet issuing a Here’’(F57, December, 1978), I persecuted upon returning home. passport takes a small fraction of don’t realistically expect a new We should not send people home to the time and effort required for an IN A in the near future from Con¬ firing squads. A couple of lines in immigration visa. It was not always gress to tighten some of the absurd the IN A would solve the problem. so. But over the last 10 years Con¬ loopholes in the present law. A few Does this proposal sound cruel gress has dropped anachronistic quick fixes would help. or heartless? I don’t think so. The citizenship legislation and the de¬ Section 214(b) of the Act allows federal government is financially partment has streamlined proce¬ consular officers to refuse visas to involved these days in higher edu¬ dures. The same thing could be applicants who cannot establish cation on a grand scale. All univer¬ done with immigration visas. that they are bona fide nonimmi¬ sities, public and private, receive The department could start by grants. It puts the burden on the subsidies of one sort or another administratively reforming its IV applicant, which in effect means from Uncle Sam. Thus, educating procedures while requesting mod¬ that the consul can use circumstan¬ foreign students is in fact a hidden ernizing legislation where needed. tial evidence to refuse the case— form of foreign aid probably The legislation should be sought, for example, such factors as lack of amounting to millions each year. not on the basis of relaxing stan¬ financial resources, employment, Given that why shouldn’t these dards and controls, but on the basis or family ties in his own country. In students be required to return of identifying those controls which other words, the consul does not home and use their skills there? make sense and which work. If have to extract a confession from GERALD A. WUNSCH they can’t be made to work, drop the applicant that his intention in Amsterdam them. As an example, every coming to the US is to remain per¬ would-be immigrant must take a manently. On the other hand, Sec¬ Streamlining Procedures physical examination and present a tions 101(a) 15(b), (0, (h), and (j) all police clearance from every place state that the visa applicant must John St. Denis’s article in he has lived for more than six have a residence abroad which he the December issue of the Journal months. In most countries those has no intention of abandoning. In raised some interesting questions documents are invariably “clear.” recent instructions to the field, the concerning consular work, particu¬ We know why but we can’t change department has stated that in effect larly visas. As Mr. Denis said, we local custom. Let us at least recog¬ it is the consular officer’s responsi¬ lack control over the movement of nize the phenomena and drop those bility to establish that the applicant people to the United States and, in requirements. They only serve to intends to abandon his residence. the Foreign Service at least we transfer money from a poor class, Anyone who has done visa work seem to have little interest in doing the immigrants, to doctors and will tell you that this is a tall order. anything about it. Whether we police officials. We do not have crystal balls behind agree with this attitude that we only Almost every visa section is the counter. implement policies someone else busy but much of the work is busy I had to chuckle recently when a makes, we can start to improve the work. If we can eliminate the point¬ consular assistance team (CAT) way we issue visas, particularly less paper shuffling we can get a lot was dispatched to the consular sec¬ immigrant visas. The thick piles of more done, we might even find tion in New Delhi to “reeducate,’’ paper that accompany every visa, time to think about the movement if you will, our consular officers the elaborate card files, the “wait¬ of people to the United States. there who were apparently refusing ing lists,” the clearances from one RICHARD J. HIGGINS too many student visas. Of course, post to another, the allocation of American Consul they were doing exactly what I “numbers” by the department all Istanbul would do: asking themselves hon¬ take great amounts of time on our estly what are the odds that this part and on that of the applicant. Is Write On student visa applicant will ever re¬ it worth it? I don’t think so. Two turn to India. In most cases about minutes will indicate whether John St. Denis’s “What zilch. Ask any US engineer: the someone will get an immigration the hell . . .” correctly scores the Indian or Pakistani engineer has visa. After that we chase them up somewhat surreal quality of the become as ubiquitous on the and down the hill “assembling immigrant visa function in a “come American scene these days as the documents” while we spend hours now—adjust status or be amnestied Filipino doctor. every day explaining requirements, later” world. And the lack of crit¬ The student visa mess, for answering questions (“no, the ical letters to the editor which he example, could be easily solved numbers haven’t come yet”) and notes following the number of with a very brief amendment to the sending messages around the provocative FSJ articles of consu¬ IN A. Simply legislate that for world. We also drive deeper the lar interest has indeed been strik-

FOREIGN SERVICE JOURNAL, February, 1979 49 ing. However, I believe that consu¬ I, childless, are contributing might¬ No Press Agentry lar officers have not been ily to the medical bills of other peo¬ bludgeoned into an entirely passive ple’s children. This is not what in¬ Upon re-reading the letter submission to the current visa surance is about; it is supposed to to the editor entitled “Ambassador non-system and truncated career involve the sharing of equal or Young” in your November 1978 is¬ prospects. The Open Forum’s comparable risks. But a family with sue, I find that someone simply has working group on consular six children pays the same health to warn the Journal against publish¬ affairs—soon to publish a com¬ care premium as my wife and my¬ ing such letters; and since nobody prehensive report—is one example. self. else seems to have thought of doing Another is the six-year old Consu¬ Questions: 1. Is there some rea¬ it, I guess the task falls to me. lar Officers’ Association, encom¬ sonable explanation for the differ¬ That letter, by my friend passing half of the consular cone, ence in cost between plans 401 and Zachary Geaneas, was really a and its newspaper, the Consular 402 that I do not perceive? piece of press agentry—obviously Packet, whose pages, indeed, have 2. Is the establishment by CSC unsolicited—for Ambassador supplied Mr. St. Denis with the of only two categories of plan (self Young. (“I know him to be an as¬ consular promotion statistics he only and self and family) legisla¬ tute, highly intelligent and articu¬ uses so well. His general message tively mandated or is it merely a late politician who has mastered is right on target, and I expect that policy of CSC? the trade of diplomacy. He has it will impel many others interested 3. In either case, has any recent earned the respect of his peers, the in consular work to action and to thought been given to revising the other representatives to the United voice. system so that the premium de¬ Nations. He is considered by them ALFORD COOLEY pends directly on the number of to be one of the finest representa¬ Washington persons covered, thereby reducing tives that the US has ever had in the unfair burden on childless the UN. I personally classify him couples? at the same level as two well- Premiums and Penalties HARVEY I. LEIFERT thought-of political appointees.”) Paris This kind of mash note from a I am enrolled in the Foreign subordinate about his superior does Service Benefit Plan (Enrollment Tribute to Peter Orr no good to either of them. Nor does Code 402) under the Federal Em¬ it do the Journal any good, unless it ployees Health Benefits Program. Like Mr. Boughton, I would were to open its columns to people The monthly cost of this plan, like to add to the obituary of Peter who hold different opinions, which which is self and family—high op¬ Orr. In addition to other assign¬ I do not by any means recommend. tion, has jumped from $28.15/ ments, Peter served twice in Viet¬ There is no doubt that the letter month in 1978 to $48.43/month in nam, first in the provinces, later in was written from the heart, but it 1979. A telegram from this em¬ Saigon, where he became my col¬ really raised more questions than it bassy to the State Department in¬ league, neighbor, and friend. answered. Had Ambassador quiring about the reason for such a During March and April 1975, Young seen the letter before it was spectacular increase brought forth Peter, who was in the Consular sent? Are subordinates now ex¬ the laconic response that CSC had Section, threw himself with total pected to write this sort of letter to instituted a new way of figuring the dedication into expediting the the Journal when their superiors premium for this plan. I would like evacuation to the United States of are publicly criticized? Could not to know more precisely how the American citizens and Vietnamese other ambassadors now think that new premium is justified. whose safety was threatened. He it is all right for them to solicit such A related, but to me even more was particularly concerned to help letters from subordinates? important, issue, is the relative cost relatives of American citizens— And what will the Journal do if it of plan 401 (self only) and 402 (self especially children—who were receives letters of a different tenor and family). Plan 401 will cost separated from their families in the about the performance of other $8.44/month in 1979. Thus, two United States. ambassadors? Is it to become a eligible persons—husband and By negotiation with the Viet¬ forum for performance evaluations wife—could each join plan 401 for a namese authorities, Peter estab¬ of American diplomats? And if it combined monthly cost of $16.88. lished a procedure which greatly becomes something of that kind, In cases like mine, however, where speeded the evacuation process what embarrassing things might not my spouse is not a federal em¬ and made it possible to take fuller be revealed by subordinates who ployee eligible to join plan 401 (or advantage of the weeks remaining do not hold the same high regard any other), we must opt for the before the fall of Saigon. During all for their superiors as Zack family plan. This costs us $32.45/ this time he seemed never to rest, Geaneas does for Andy Young? month beyond what we would have driven by anxiety that some person It was a nice letter, but a bad to pay were my wife also in the would be left behind and a family precedent. Let’s not have any more foreign service. This $32.45 differ¬ divided forever. His truly heroic letters of that kind. They are em¬ ence is itself $4.30/month more exertions will be remembered by all barrassing. This has nothing to do than the monthly cost of the family who served with him; and thou¬ with Ambassador Young. For all I plan in 1978. sands now in the United States will know, he may have been embar¬ Clearly, there is something always be in his debt. rassed himself. wrong in the way premiums are es¬ JOSIAH W. BENNETT MARTIN F. HERZ tablished , for in effect my wife and Marco Island, Florida Washington 50 FOREIGN SERVICE JOURNAL, February, 1979 AroA FEBRUARY, 1979 This portion of the JOURNAL is the re¬ ELECTION CALL sponsibility of the Governing Board of AFSA and is intended to report on 1979 ELECTION OF AFSA OFFICERS AND CONSTITUENCY employee-management issues, condi¬ REPRESENTATIVES tions of employment and the policy and administration of AFSA, including its This Election Call issued in accor¬ C. Nominations for Officer Positions Board, Committees, and Chapters. dance with Article VI(1) of the AFSA Any member in good standing of Members wishing to send letters on Bylaws, constitutes formal notice to all AFSA may nominate any member in employment, working conditions or AFSA members of the opportunity to good standing, including himself/ AFSA affairs should get them to AFSA participate in nominations and election herself, for the position of President, by the 10th of the month preceding de¬ of a new Governing Board. All of the Vice President, Second Vice Presi¬ sired publication. AFSA News Commit¬ Officer and Representative positions dent, Secretary, or Treasurer. No tee, Room 3644, N.S. listed below are for two-(2) year terms member may nominate more than beginning July 15, 1979. one (1) person for each position. A. Positions To Be Filled D. Nominations for Constituency CONTENTS 1. The officer positions to be filled in Representative Positions News for Retirees 52 this election are: Any member in good standing of Our Cover Artist 52 (a) President AFSA may nominate any member(s) Revision of FS (b) Vice President in good standing of his/her constitu¬ Personnel System 52 (c) Second Vice President ency (AID, USIA, State Depart¬ Unified AID Personnel System 53 (d) Secretary ment or Retired), including himself Bodine and Stern on Board 53 (e) Treasurer or herself, for the position(s) of Rep¬ Foreign Service People 54 2. The Constituency Representative resentative from that constituency. Overtime Compensation 54 positions to be filled in this election are: No member may nominate more than a) State Department Representa¬ three (3) persons for State Depart¬ tive (3 positions) ment Representative, one (1) person NEWSBREAK (b) AID Representative (1 posi¬ for AID Representative, one (1) per¬ COMPLAINT AGAINST AFSA tion) son for ICA Representative, and/or DISPOSED OF BY LABOR DEPT. (c) ICA Representative (1 posi¬ two (2) persons for Retired Member tion) Representative. By letter of January 11, the Director (d) Retired Member Representa¬ E. All nominations must be submitted of the Office of Labor-Management tive (2 positions) in writing or by cable. All written Standards Enforcement informed the The number of representatives to nominations must be addressed to American Foreign Service Association which each constituency is entitled AFSA Elections Committee, P.O. of the disposition of the complaint filed is determined by a formula pre¬ Box 57061, West End Station, Wash¬ with the Secretary of Labor by Mr. scribed in the AFSA Bylaws, Ar¬ ington. D.C. 20037. To be valid, they John D. Hemenway relating to the 1977 ticle IV (4) authorizing one repre¬ must, without exception, be received AFSA Governing Board Elections. sentative for every one thousand at this address no later than 5:30 After summarizing the results of its members or fraction thereof. The p.m., March 2, 1979. Members over¬ investigation of the approximately 30 number of positions to be filled in seas can send “AFSA Channel” ca¬ allegations presented in the complaint, this election is based upon the bles marked for delivery to AFSA the letter concluded “it has been de¬ membership rolls as of December Elections Committee. They must be termined, after consultation with the 31, 1978. received by the Committee within Solicitor of Labor, that legal action is B. Qualifications for Nominating and the same time limits. not warranted in this case and we are, Being Nominated F. Nominations may be submitted in¬ therefore, closing our file as of this 1. Any member in good standing of dividually or in slates, and will be date.’’ AFSA (i.e., a member whose dues listed accordingly on the ballot. Of the allegations, eleven were found are automatically deducted or who G. No member may appear on the bal¬ not to constitute violations of Execu¬ has paid dues through March 2, 1979, lot as a candidate for more than one tive Orde,r 11636 or of the Regulations the deadline date for receipt of nomi¬ (1) position. of the Assistant Secretary of Labor. nations) may submit names in nomi¬ H. An authorized representative of the Eight others were declared to relate to nation for any or all of the above- Elections Committee will communi¬ recall issues not within the purview of listed positions. cate with each nominee (including the Office Director's jurisdiction and 2. In order to be nominated a person members who nominate themselves) three were declared not to fall within must likewise be a member in good as quickly as possible after the re¬ the elections provisions of the Execu¬ standing. (The Bylaws require that a ceipt of each nomination to deter¬ tive Order. The remaining allegations “candidate’’ must be a member mine whether the nominee wishes to were generally dismissed as not sub¬ through June 30, 1979. If a member is be a candidate. Any member who so stantiated by investigation or without nominated who is not on automatic accepts the nomination must confirm merit. Reporting in the Journal on is¬ dues deduction and has paid dues his or her acceptance in writing ad¬ sues raised in Mr. Hemenway’s allega¬ through March 2, 1979, but has not dressed to the AFSA Elections tions was found to be factual and objec¬ paid through June 30, 1979, that Committee, Post Office Box 57061, tive. member will be contacted and ad¬ West End Station, Washington, The complete text of the January 11 vised that he or she must pay dues D.C. 20037, to be received no later letter will be supplied to members on through June 30 in order to be a can¬ than 12 noon, March 9, 1979. Alter¬ request. didate.) natively, the written acceptance can FOREIGN SERVICE JOURNAL, February, 1979 51 be hand delivered to a Committee K. Ballots PROPOSED REVISION OF F.S. member who will be in the AFSA The ballot will be distributed on or PERSONNEL SYSTEM Office, Room 3644 NS from 11 a.m. about May 15, 1979, to each person to 12 noon on Friday, March 9. Any who is a member on May 1, 1979. nominee whose written acceptance Each member may cast one vote for of nomination has not been received each Officer position and in addition The Department of State’s manage¬ by the Elections Committee, by one vote for each Representative po¬ ment began just before Christmas to 12:00 noon, March 9, 1979, will be sition in the member’s own constitu¬ unveil and invite discussion concerning considered to have declined candi¬ ency by voting for candidates listed a series of proposals for revising the dacy. on the official ballot, or by writing in Foreign Service personnel system. Pre¬ I. In accordance with instructions the name(s) of member(s) eligible as liminary meetings have been held with which will be issued by the Elections of June 30, 1979, or by both. To be AFSA and draft memoranda outlining Committee on or before March 1, valid a ballot must be received by the ideas have been circulated among most 1979 and distributed as promptly as Elections Committee no later than senior level management officials. No possible, all candidates nominated 5:30 P.M., Friday, June 29, 1979, at hard new formula has yet evolved; under the procedure outlined above the address indicated on the en¬ however the central theme appears to will be given the opportunity to sub¬ velope accompanying the ballot. be aimed at better rationalizing the mit campaign statements for distribu¬ More detailed balloting instructions present dual personnel system in State tion to AFSA members in the April will accompany the ballots. (Foreign Service and Civil Service), at 1979 issue of the Foreign Service L. Tally of Ballots creating within the Foreign Service a Journal and/or AFSA News as pre¬ On or about July 1, 1979, the Elec¬ new Senior Executive level of scribed in the AFSA Bylaws, Article tions Committee will count the bal¬ employment, and to realign the Foreign VI (4). All candidates will be given lots and declare elected the candidate Service pay schedule to be more further opportunity to distribute receiving the greatest number of closely identical to the Civil Service campaign statements to the AFSA votes for each position. Candidates pay levels. members in the May 1979 issue of the or their representatives may be pres¬ In part, the stimulus for these pro¬ Foreign Service Journal and/or ent at the counting and challenge the posals is the recently passed Civil Ser¬ AFSA News. validity of any vote or the eligiblity of vice Reform Act which largely J. Any candidate at his or her own ex¬ any voter. The Committee will in¬ exempted the Foreign Service but does pense may obtain from AFSA a form candidates individually of the have considerable impact on the career printout of membership or gummed election results by the swiftest possi¬ status of Civil Servants employed in mailing labels for the entire mem¬ ble means, and will publish the the foreign affairs agencies. In particu¬ bership or individual constituency as names of all elected candidates in the lar, management is attracted by the listed in paragraph A.2 above. Any August issue of the Foreign Service concept of a Senior Executive Service candidate may at his or her own ex¬ Journal. The elected candidates will which gives management increased pense use AFSA’s regular contrac¬ take office on July 15, 1979, as flexibility in handling senior level per¬ tual facilities to reproduce, prepare provided in the Bylaws. sonnel. The proposals would also open for mailing, and mail campaign litera¬ M. Questions, Suggestions or Com¬ up the opportunity for senior Foreign ture to the entire membership or in¬ plaints Service personnel to receive perfor¬ dividual constituency as listed in At any time following publication of mance pay which could increase an paragraph A.2 above. Such requests this Election Call through September employee’s income substantially above will be honored from February 19, 15, 1979, any member may file a writ¬ the present $47,500 ceiling. 1979 through May 31, 1979. A list of ten question, suggestion or complaint Obviously, the Foreign Service Act these services together with a state¬ concerning the conduct of the 1979 of 1946 will have to be significantly ment of the charge for each will be election. Such question, suggestion amended before most of these propos¬ included in the Instructions to Can¬ or complaint should be addressed to als could be adopted. AFSA will have didates to be issued by the Elections the Chairman, AFSA Elections many further consultations with man¬ Committee. Candidates may also Committee, P.O. Box 57061, West agement before any proposals are sub¬ place paid advertisements in the End Station, Washington, D.C. mitted to Congress. AFSA is also pre¬ Foreign Service Journal. 20037. pared to communicate its views di¬ FOR RETIREES rectly to Congress. We will vigorously support those proposals which we be¬ Wellfounded rumors have been cir¬ lieve are constructive and oppose those culating that the Carter Administration OUR COVER ARTIST we see as weakening the effectiveness was considering plans to limit cost of of the Foreign Service. living raises of annuities paid to retirees Kathie Wellde, who painted As soon as management’s proposals to once a year from the current twice “Women of the Middle East” on our are received in a coherent form, we will yearly schedule. Administration budget February cover, cooks and writes as circulate them to our membership and officials estimated the change could well, and is a member of the Washing¬ request your views and observations. save the Government up to $500 mil¬ ton bureau of the New York Times. As We understand that State manage¬ lion a year. Responding to widespread a Foreign Service wife, Kathie lived ment is also floating these same ideas to protests by employee groups and and cooked in Europe and the Middle management officials in AID and ICA. others, we understand that the Admin¬ East for 13 years. She also studied art Reportedly, ICA management finds istration has shelved this proposal for for many years and held one-person State’s preliminary proposals interest¬ at least 1979. shows of her impressionistic paintings. ing and is inclined to support their The next cost of living increase will A widow, Kathie has raised five chil¬ adoption. AID management, on the take effect in March 1979 as deter¬ dren and her oldest daughter, Kristen, other hand, is undecided how to react mined by increases in the Consumer has followed the Foreign Service path because it is already deeply involved in Price Index. According to current es¬ and works in the exhibits section of reorganizing its personnel system in re¬ timates as we go to press, it is expected 1CA. Kathie’s book. Guess Who’s in sponse to demands mandated by the that the increase will be about 4 per¬ the Kitchen, will be published later this last Congress as reported in recent is¬ cent. month. sues of the Foreign Service Journal. 52 FOREIGN SERVICE JOURNAL, February. 1979 PROPOSED UNIFIED PERSONNEL SYSTEM IN AID We anticipate that an intensive lob¬ AFSAAV appreciates the comments without reference to the panel. There bying effort will be required with the on the proposed system provided to the would be retreat rights to the grade held Congress to insure that the final law is AID Standing Committee by AFSA before selection in and, perhaps, salary consistent with our interests. Chapters and F.S. personnel. Your protection for those on the way down. AFSA members in the Washington interests and concerns are being made (e) All overseas positions would be Area, active and retired, are urgently known to Agency management. classified IDO; AID/W positions needed to help present our views to the We are fast approaching a new stage would be classified IDO and IDR, de¬ Congress. Volunteers are requested to in the development of the Agency’s pending upon such factors as the need contact the AFSA office in Main State proposal, which is scheduled for for continuity of encumbrance or over¬ (telephone 293-3806 or 632-8160) or a transmission to the President, through seas experience (criteria not yet fixed). member of the AID Standing Commit¬ the OMB, on February 15. The Agen¬ (0 Civil servants encumbering IDO tee. cy’s consultant expects to complete a positions and unwilling to accept over¬ NEW TO AFSA BOARD draft concept/principles/framework seas service would be grandfathered in paper o/a January 19th. It will contain as IDRs and allowed to encumber any Following a straw vote by State recommendations that have been dis¬ IDO position, i.e., regardless of length Keypeople in which six candidates con¬ cussed with Agency management, of service all civil servants would be tended. the Governing Board on De¬ other Government agencies, including retained as if nothing had happened cember 19 appointed Barbara Bodine Congressional staff, and employee bar¬ (Note: Management states it would new (NEA/ARP) and Robert Stem (EA/ gaining agents. None of these organiza¬ hire IDRs for IDO positions on an ex¬ PHL) to fill two vacant State Repre¬ tions are likely to be happy with all of ception basis only). sentative positions. This brings the the recommmendations, e.g., the Sen¬ (g) There would be common (mixed) Board, which serves until next June, up ate and House Foreign Assistance Ap¬ promotion panels and RIF schedules to its full 13-position complement. propriations and Authorizing commit¬ for IDOs and IDRs. tee staffs (and AFSA) believe that too (h) Due to a F.S./Civil Service inter¬ much of an accommodation is being change agreement, any G.S. with ten¬ recommended for Civil Service, and ure would automatically have tenure if the OMB would like to see the min¬ converted to an IDO. imum requirement for retirement made (i) All new IDOs would immediately age 55 with 30 years service. join the F.S. Retirement System (IDRs AFSA will be commenting to would remain in the Civil Service Re¬ Agency management and other Gov¬ tirement System) and compute their ernment agencies, including the Con¬ annuity on a flat two percentum per an¬ gress, on the consultant’s recom¬ num. However, age and service re¬ mendations, which we understand quirements for retirement would be re¬ probably will include the following: duced from 55/30 to 50/20 by subtract¬ (a) A rank in person system for the ing one year of age and two years of entire Agency. service for each year of overseas ser¬ (b) Two career strains: International vice, i.e., it would take five years of Barbara joined the Foreign Service Development Officers (IDOs)—avail¬ overseas service for the full reduction. in 1971, and since then has done consu¬ able worldwide—and International (j) The current selection-out author¬ lar and political-military work in Hong Development Reserve (IDRs)—US ity would be retained (even if not used). Kong and Bangkok, with stints in service only. (k) IDOs, but not IDRs, would be Taiwan in Chinese language training (c) Adoption of the G.S. pay subject to mandatory retirement at age and on the Department’s Secretariat schedule (grades 1 through 18) for all 60, if the Supreme Court rules for the staff. Recently she's been active as employees. IDOs would receive an an¬ Administration. AFSA Keyperson and is co-chairman nual within-grade step increase until (l) IDOs no longer able to serve of the informal “Group of 46" which they reach the G.S. equivalent salary overseas would be retained as IDOs. spearheaded the petition signed last level of Step 7 in the old F.S. pay (m) IDRs might be allowed to opt for winter by 600 FS people on State's schedule. The waiting period for the one tour overseas for experience. Foreign Service personnel policies. remaining steps, and all within grade (n) All initial conversions to IDO/ Bob entered the Foreign Service in step increases after promotions, would IDR would be simultaneous. 1966 and has had consular and be in accordance wtih G.S. criteria, (o) Conversions, with the exception economic/commercial tours in Costa i.e., one year for steps 2, 3 and 4; two of those for permanent supergrades, Rica, the Philippines, and Hong Kong. years for steps 5, 6 and 7; and three probably would be to the lowest grade A long time member of AFSA. he is on years for steps 8, 9 and 10. that would not cause a salary loss, e.g. his second Washington assignment, (d) Current permanent supergrades, an FSR 3 step 7 would become a grade having served on the Precepts Sub¬ primarily FSR-ls and 2s (AID has only 14 step 10. committee during his previous tour. eight permanent G.S. supergrades) After OPM, State, AFSA, etc., have would be grandfathered in as perma¬ commented on the recommendations, nent supergrades. Other supergrades GC is expected to draft the authorities would be AD (AID has about 106 (not detailed regulations) to be re¬ ADs, of which 48 are supergrade) or quested from the President and/or members of a Foreign Affairs Senior Congress. Your inputs are again re¬ Executive Service (FSES), which quested so that AFSA can represent, might have links to other foreign affairs and have the benefit of, your views. agencies and/or the USG-wide SES. AFSA representatives are requested to Selection into the FSES (voluntary) make wide USAID distribution of this and selection-out would be by recom¬ message. mendation of a panel. The Adminis¬ The legislation implementing the trator probably would have the right to UPS must be submitted to Congress by remove personnel from the FSES March 15. FOREIGN SERVICE JOURNAL, February, 1979 53 Born. Christopher Bom, 21-year-old Overtime Compensation son of Donald and Margot Bom, died when struck by a car on December 3. AFSA SIGNS Birth Christopher, a student at the Univer¬ AGREEMENT ON sity of Massachusetts, was bom in Au¬ FSO—FSIO PAY Miller. A son, Eric Robert, born to Dr. stralia and accompanied his parents on and Mrs. Thomas J. Miller on January assignments to Haiti, Turkey, India Continuing Opposition 4, in Washington. and Bangladesh. In addition to his to Pell father, now assigned to Ghana, and his Amendment Stressed Deaths mother, 3932 Legation Street. N.W., Atherton. Joan Reed Atherton, mother Washington, D.C. 20015, he is sur¬ In a tough rearguard action, AFSA of Ambassador-at-Large Alfred L. vived by three brothers, Timothy, on December 19 completed negotia¬ Atherton, Jr., died on December 9 in Peter and Stephen, and a sister, Susan. tions on premium pay for at least some Palm Beach Gardens, Florida. She had Bowie. John M. Bowie, FSO-retired, of the FSOs and FSIOs for whom such accompanied her son and family on died on December 19, in Potomac, compensation has been precluded since their assignments to Aleppo and Cal¬ Maryland. He joined the Foreign Ser¬ October 1, 1978 by Senator Pell’s cutta. Known to children and adults vice in 1945, after serving four years in Amendment to the FS Act. alike as Grammy Jo, or GJ, she was the US Navy. Mr. Bowie had assign¬ The Congress, it will be recalled, had “grandmother at post” to everyone. In ments in Beirut, Damascus, Amman, amended the FS Act in August 1977 to addition to her son and his wife, Betty, Jerusalem, Haifa, Nicosia, Manila, eliminate any compensatory time or of 1435 4th St., S.W., Washington, Jiddah, Rabat and Khorramshahr. He overtime pay for these officers. Later D.C. 20024, she is survived by another also served as NATO Adviser on Mid¬ under AFSA pressure it had agreed son, Robert, and six grandchildren. dle East Affairs in Paris, and at the US that there be a “special allowance” for Armed Forces Staff College in Vir¬ a small number of them to receive par¬ ginia. In 1964 he served in Alexandria, tial compensation when substantial UARand from 1964-72 in the Office of regular or shift work is performed. It [HO I SPECIAL Munitions Control. His last overseas was this provision that AFSA and rV^I I SERVICES post was headquarters, EUCOM in management succeeded in putting into in order to be of maximum assistance to Germany before retirement in 1976. He an agreed-upon regulation. AFSA AFSA members and Journal readers we are is survived by his wife, the former ended by winning employee benefits accepting these listings until the 15th of Janine Cabirol, and son, Ian, of 11121 for the ICA Foreign Service as well, each month for publication in the issue Hunt Club Drive, Potomac, Maryland since their nominal representative, dated the following month. The rate is 40( 20854. Contributions in his memory AFGE Local 1812, pulled out of the per word, less 2% for payment in advance, may be made to DACOR. negotiation early on. minimum 10 words. Mail copy for adver¬ Hoffheimer. Ruth Ann Hoffheimer, In general terms, the agreement tisement and check to: Classified Ads, FSSO-reitred, died on October 22, in provides for limited compensation (at Foreign Service Journal, 2101 E Street, London. Miss Hoffheimer joined the about half-pay, not time-and-a-half) for N.W., Washington, D.C. 20037. Department of State in 1945 and served a limited number of FSIOs and FSOs at Tehran, Singapore, Wellington, Tel (only about 100 State officers, plus 12 BOOKS Aviv, London, Nice, Phnom Penh, La in Sinai and only about 30 ICA officers, BEST BUYS IN BOOKS. Our super-value plan Paz, Colombo and again London where 8s through 4s only, but not if they’re brings big savings. Send list of Subjects and she retired in 1968. working for senior officers at State, Authors of interest. Book Service, 348 East Troy Vincent. Elizabeth T. Vincent, widow AID, or ICA). Compensation may be Avenue, Indianapolis, Ind. 46225. of CM John Carter Vincent, died on granted if the officer averages at least VACATION RENTALS November 24, in Cambridge Massa¬ 55 hours per week or 45 hours if work¬ ADIRONDACK LODGES on Upper Saranac Lake. chusetts. Mrs. Vincent accompanied ing rotational 24 hour shifts (e.g. S/S-O) Available for two weeks or a month, July through her husband on assignments to Muk¬ or shifts with half the duty hours falling September. Everything provided for comfortable den, Nanking, Dairen, Geneva, outside ordinary Government working living in the quiet woods. Please write Bartlett Shanghai, Chungking, Bern and Tan¬ hours. Except for the Sinai 12, no offi¬ Carry Club, RD 1, Tupper Lake, NY 12986. gier before his retirement in 1953. Mrs. cers working overseas would qualify VACATION IN NEW HAMPSHIRE during home leave. Vincent is survived by her son, John C. for the “special allowance.” Available May through October, furnished house Vincent, Jr., c/o Hill & Barlow, 225 AFSA in signing asked management on five wooded acres off 1-93 adjacent White Franklin St., Boston, Mass. 02110. to append our statement of our continu¬ Mountain National Forest. Many summer ac¬ ing disagreements to the Foreign Af¬ tivities nearby. $350 monthly. Also small newly fairs Manual Circular publicizing the furnished two bedroom apartment $200. new regulation. Management refused. Brochure on request. Write Roger King Realty, Our objections are: 1) to the 55 hour Campton, N.H. 03223. Congress. We have already called or figure—management had told Congress NURSING HOME management to consult about establish¬ that the “special allowance” should go UNIVERSITY PARK, 2420 Pemberton Rd., ing official records showing how many to officers working more than50 hours, Richmond, Virginia 23229. Brand new facility required overtime hours were actually 2) to the 112 person limit for State on meeting latest codes and requirements on 30 worked, so they can give the Congress people to be compensated—-man¬ acres park. Only IV2 hours south of D.C. Phone: factual information rather than guesses agement’s own survey indicates about 804-747-9200. when staffing questions arise. Princi¬ 300-400 FSOs may be working over 50 TAX RETURNS ples of professional management alone hours per week, and 3) to manage¬ INCOME TAX preparation. Rentals, moves, sales, should require that the Department and ment’s continuing lack of an effective etc. For TCA computer checked returns, Brigitte ICA do this rather than, as has just oc¬ system for determining how many Savage, 620 Beulah Rd., Vienna, Va., 22180. curred, allow their guess expressed to hours of work are required to do State’s (703) 938-4296. the Congress to force the agencies to (not to mention ICA’s) job. require several hundred officers to con¬ TAX RETURNS and representation. T. R. Planned AFSA Action McCartney (ex-foreign service). Write: Business tribute many required work hours Data Corporation, P.0. Box 57256, Washington, gratis to the Government while others We will continue to work for the re¬ D.C. 20037, for details. are receiving premium pay. peal of the Pell Amendment in the new

54 FOREIGN SERVICE JOURNAL, February, 1979 1750 Pennsylvania Avenue, N.W., Washington, D.C., 20006 Suite 1305 — Phone (202) 393-4220

CHANGES IN Group Life Program effective March 1, 1978 < Additional insurance available up to $30,000 for those who have or take the basic $17,500 policy. It is with pleasure that we announce that our tirement or age 65 (whichever is first). Board is able to offer an additional unit of $10,000 Officers who are now members of the Association group life and AD&D for the active member, making may make application by using the amended form a total of $30,000. including information necessary to satisfy the Un¬ Members of the Association under 60 years of derwriter that they are in good health (see section age and on active service may subscribe for an of booklet entitled ENROLLMENT). additional $10,000, $20,000 or $30,000 Group Life and $10,000, $20,000 or $30,000 AD&D, effective Officers joining the Association who wish the March 1, 1978, at $85 a year per each $10,000 of additional insurance should make their application additional insurance, provided that this additional therefore at the same time as the application for coverage must terminate upon resignation or re¬ Group Life. NEW PREMIUM RATES Regretfully inflation has forced some changes in as of March 1, 1978 reads: our premium rates for the first time since 1929. RETIREMENT. Members who retire on an im¬ The new rates for old or new members for the basic mediate annuity may retain this -policy unchanged $17,500 Group Life plus $17,500 AD&D, plus up to until age 65. If at age 65 they have held this policy $3,000 family coverage are: continuously for 20 years, they may continue to carry $5,000 plus reversionary if any, AD&D at To 41st birthday $100 per year (unchanged) $5,000 and Family Coverage (if they have been car¬ To 51st birthday $150 per year rying $17,500) at $185 per year (lesser amounts at To 65th birthday $185 per year lower premiums if they have been carrying less Over 65 for those who qualify for reduced coverage, than $17,500). $37 per $1,000 per year. Members who transfer without a break in service from the Foreign Service to another civilian position with the United States Government may continue their policy unchanged as long as they continue Coverage After Age 65 such Federal employment and have the same There is a minor change in retirement coverage privileges as noted above if they retire on an im¬ for old or new policies and the provision effective mediate annuity.

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