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CLEMENTS fc? COMPANY Washington, I).C. The Foreign Service in the Post-Cold War Era AMERICAN FOREIGN During the Cold War, United States foreign policy was driven, out of SERVICE ASSOCIATION necessity, by global military considerations. The new international challenges Governing Board facing our nation are no less daunting, but of a very different nature. Success President: WILLIAM A. KIRBY State Vice President: JOSEPH H. MELROSE JR. will come primarily through creative diplomacy rather than military power, and AID Vice President. CAREY COULTER the front lines will be manned by a revitalized Foreign Service. USIA Vice President: BERNARD HENSGEN Retiree Vice President: CHARLES A. SCHMITZ The post-Cold War era therefore requires (a) reorienting our foreign policy Secretary: ANNE WOODS PATTERSON Treasurer: JOSEPH HUGGINS and structures to address the global challenges that threaten our common future State Representatives: CATHERINE BARKY and (b) restoring a diplomatic focus to U.S. foreign policy and strengthening the PAULA BOYD JONATHAN FARRAR Foreign Service to play its proper role in that effort. HARRY GALLAGHER AFSA urges the adoption of the following priority objectives to which it ROBERT PERRY AID Representatives: WILLIAM D. MCKINNEY pledges its wholehearted support: JAMES DEMPSEY USIA Representative: LAUREN HALE Help U.S. business compete while promoting U.S. and global prosperity. Retired Representatives: PATRICIA M. BYRNE DANIEL NEWBERRY • Act on the principle that domestic and foreign policy are inseparable; global DONALD R. NORLAND leadership is founded on economic prosperity' at home which, in turn, DAVID SCHNEIDER requires commercial success abroad. Staff Executive Director: SUSAN REARDON • Reprogram foreign affairs resources to permit more active assistance to U.S. Business Department business interests abroad. Controller: CATHY FREGE LETTE Administrative Manager: SANDRA KARLOWA • Encourage and strengthen market forces worldwide, confident in the Office Manager: JUDY SHINN knowledge that the U.S. can compete and that prosperity is mutually Accounting Assistant: SHEREE E. BEANE Administrative Assistant: DIANNA DUN BRACK beneficial. Executive Assistant: TARA GADOMSKl • Restructure the U.S. national security apparatus to assure consistent Legal Services application of our national economic priorities. Legal Counsel: SHARON PAPP Staff Attorney: COLLEEN FALLON Combat common global threats to peace, health,and well-being. Law Clerks: EDWIN GANIA PATRICIA A. MALONE • Recognize that the global repercussions of ethnic violence, racial and Member Services religious intolerance, drug trafficking, environmental degradation and Director: JAMES YORKE Representatiires: DEBORAH M. LEAHY pollution, mass poverty and starvation, uncontrolled population growth, JULIE SMITHLINE refugee movements and the spread of disease, including AIDS, adversely Membership Director: JANET L. HEDRICK affect our national interest and well-being. Representative- LAURIE A. McMICHAEL

• Relate U.S. foreign assistance directly to confronting these problems. Professional Issues: RICHARD S. THOMPSON

• Promote a new “Global Charter” as a framework for affirming our values of Retiree Liaison: WARD THOMPSON

peace and justice while rallying governments and peoples worldwide to Congressional Liaison: RICK WEISS eliminate these scourges. Scholarships and Development Director: GAIL VOLK • Magnify the effect of U.S. initiatives by building multilateral coalitions; Coordinator. MICHAEL DAILEY unilateral actions are not sufficient for addressing global issues. Speakers Bureau and International Associates: GIL KU'LICK Promote democratic and free market principles and practices worldwide. Conferences: JOHN J. HARTER JASON FELDMAN • Uphold the U.S. role as champion of democracy and free-market reforms. The American Foreign Service Association, founded in 1924, • Mobilize resources to project educational, cultural and economic assistance is the professional association of the Foreign Service and the official representative of all Foreign Service employees in the programs that affirm and enhance that leadership role. Department of State and the Agency for International Devel¬ opment under the terms of the Foreign Service Act of 1980. • Promote multilateral institutions and initiatives that advance these objectives Active or Retired membership in AFSA is open to all current or retired employees of the U.S. foreign affairs agencies. Associate membership is open to persons having an interest while providing a means of sharing the costs. in or close association with the Foreign Service Annual dues: Active Members—$80-465; Retired Members—$45-55; Asso¬ ciate Members—545- All AFSA mem!>er.s are members of the Foreign Sen-ice Club. Please note: AFSA dues and Legislative U.S. Policy Objectives and Interests Action Fund donations may be deductible as an ordinary and It is indispensable that the United States remain fully engaged in world affairs necessary business expense for federal income tax purposes. Scholarship and AFSA Fund donations are deductible as in order to consolidate the freedoms unleashed at the end of the Cold War. We charitable contributions. AMERICAN FOREIGN SERVICE ASSOCIATION. 2101 E Street NW, believe it would be contrary to our character as a people and our tradition as Washington. D.C. 20037. Executive offices, membership, professional issues, scholarship programs, insurance pro¬ a nation to abdicate that leadership role just as those Cold War goals—for which grams. JOURNAL offices; (202) 338-4045. Governing Board, standing committees, general counsel, labor-management we sacrificed some $6 trillion of our national treasure—-are within reach. relations, member services, grievances. (202) 647-8160 • (continued on insert page 6) FAX: < 202) 6 )7-0265 • Foreign Service Club (202) 338-5730.

2 • FOREIGN SERVICE JOURNAL • DECEMBER 1992 DECEMBER 1992 JOURNAL

Editorial Board Chairman BRANDON GROVE

STEVEN AOK1 C. STUART CALLISON JOE B. JOHNSON ROBERT MAUSHAMMER FRANK McNEIL DONALD R. NORLAND PHYLLIS OAKLEY ERIC RUBIN ROBERT TOTH The Ambassador’s on Hold 31 Loyalty and Dissent 39 HANS N. TUCH

“The Independent Voice of the FEATURES Foreign Service” Think Tanks at Work... 10

Acting Editor BY ANNE STEVENS0N-YANG NANCY A. JOHNSON Editor An Impossible Job? 18 ANNE STEVENSON-YANG Advertising Manager Advice to the new secretary of state TINA DREYFUS BY DAVID CALLAHAN Executive Assistant DEREK TERRELL Editorial Intern STEPHEN G. HALL Focus: AMBASSADORS Quizmaster GIL KULICK Design 0, Pioneers! 24 MARKETING & MEDIA SOLUTIONS Professionals at the outposts BY NORMAN KEMPSTER FOREIGN SERVICE JOURNAL (ISSN 0015-7279), 2101 E Street, N.W., Washington, D.C. 20037-2990, is published monthly by the American Foreign Service Differences in Style 27 Association, a private, non-profit organization. Career vs. political appointees Material appearing herein represents the opinions of the writers and does not necessarily represent AN INTERVIEW WITH BRANDON GROVE JR. the views of AFSA or the JOURNAL. Writer queries are invited. Sorry, the Ambassador’s on Hold 31 JOURNAL subscription: AFSA Members -$9.50 included in annual dues; others - $40. Overseas BY GEORGE GEDDA subscription (except Canada) - $50 per year. Airmail not available. Frontier Embassy 35 Second-class postage paid at Washington, D.C. BY JOSEPH LAKE and at additional mailing offices. Postmaster: Send address changes to FOREIGN SERVICE JOURNAL, 2101 E Street, N.W., Washington, D.C. 20037-2990. Microfilm copies: University Microfilm Library' Loyalty and Dissent 39 Services, Ann Arbor, Michigan 48106 (October 1967 to present). Indexed by Public Affairs The Foreign Service and the war in Southeast Asia Information Service (PAIS). Advertising inquiries BY DANIEL A. STRASSER invited. The appearance of advertisements herein does not imply the endorsement of the services or Diplomat in Central Asia 45 goods offered. FAX: 202/338-6820 or 202/338- 8244 • TELEPHONE: 202/338-4045 or 338-4054. BY JAMES CRITCHL0W

American Foreign Service Association 1992 DEPARTMENTS AFSA Views 2 Advertising Sections: THE COVER: Clippings 4 Real Estate 53 Letters 7 Marketplace 57 Illustration by AFSA News, Classifieds/Pull-out Section 1992 Index 58 David Chen Fifty Years Ago/Quiz 60

DECEMBER 1992 • FOREIGN SERVICE JOURNAL • 3 NO COVER-UPS accounts that we reported to the United Nations. THE WASHINGTON TIMES, OCTOBER 17, 1992 No one at any level of our govern¬ BY WARREN STROBEL ment asked me to cover up any incident Acting Secretary of State Lawrence of atrocity. To the contrary, my in-box Eagleburger took responsibility has been so flooded every day from yesterday for the State Department’s sources within and without the U.S. improper handling of Democratic government that I began a second presidential nominee Bill Clinton's report before our first one arrived at records, but said requests for the UN and before any member nation information put the administration in a bureaucrats—both senior Foreign of the UN made a report. Service officers and appointed “damned if you do and damned if you PAUL P. POMETTO II officials—that they refused to even don't” position. BUREAU I OR HUMAN RIGHTS AND probe into reports of Serbian On Wednesday, the State Depart¬ HUMANITARIAN AFFAIRS ment admitted that lower-level officials concentration camps. As a result, their improperly expedited news policy recommendations, when they organizations’ requests for access to did turn them out, were ill-conceived. HIDING BEHIND APRIL Clinton’s files, which, Republicans have Policy was media-driven, GLASPIE suggested, might contain damaging responding only when confronted by data from the nominee’s days as a what the press had been able to find THE WASHING TON POST. OCT OBER 21, 1992 Rhodes Scholar in England. out, and then in ways that were entirely BY JIM HOAGLAND However, Richard Boucher, deny¬ inadequate. . . . There was no way for As Perot reminded the nation in [the] presidential debate, April Glaspie ing political motivations, said those dissonant information to get through officials were not acting on the orders the door. was the U.S. ambassador to Baghdad who met with Saddam Hussein on July of higher-ups. Democratic lawmakers And while the administration was were not satisfied with that explana¬ not seeking out reliable data, it also 25, 1990—eight days before Saddam invaded Kuwait. She cabled tion, and accused the Bush administra¬ withheld what little information it had. Washington after the meeting that the tion of using low-level officials as On September 24, the administration scapegoats for wrongdoing. submitted a report to the U.N., in Iraqi dictator wanted peace. . . . [Bush Eagleburger, making his first public accordance with U.N. Security Council and Baker’s] effort to deep-six Glaspie comments on the subject, objected to Resolution 771, which called for all . . . needs to be brought into sharper that charge. “Any implication . . . that organizations to submit whatever ma¬ focus. Bush’s friendly “oral response” to we’re trying to lay off mistakes, if there terial they possessed relating to atroci¬ the Butcher of Baghdad’s open but were any, on lower level people is ties and war crimes. The U.S. report misunderstood threats to Glaspie simply not correct . . . the buck stops listed 31 violent acts. But for more than simply carries forward—long after it here. As acting secretary of state, if the five months the American Embassy in State Department did something Belgrade had sent to Washington at should have been dropped—the policy improper, that is my responsibility.” least one cable per day on the situation line Bush decided on at the crucial, President Bush and his aides have in Bosnia, and each cable reported up previously unreported National Security questioned the Democratic nominee’s to dozens of cases of atrocities. That Council meeting on Iraq the previous makes at least 500 incidents the de¬ rear. 1969 trip to Moscow. There have also been repeated rumors, never partment did not forward to the U.N. The July 28 cable simply repeats Bush’s “let’s get along” message. It was confirmed, that Clinton wrote letters seeking to give up his citizenship a philosophy that coincided with Glaspie’s own thinking on Iraq. She because of the Vietnam War. Responding to Kenney THE WASHINGTON POSE, OCTOBER 22, 1992 helped shape that philosophy “This should have been dealt with throughout her tour as the first in private for the benefit of everybody George Kenney contends falsely American woman ambassador to the and not in the middle of some political that “the highest levels of State made Middle East. . . . campaign,” he [Eagleburger] said. “But the decision not to publicize more She followed orders well, if not I will tell you now, the State Depart¬ information for fear that it would wisely. But when the roof fell in, Baker ment is not going to cover up anything. ” prompt further public pressure on the administration to intervene.” did not send the vacationing Glaspie I am the mid-level bureaucrat . . . back to the Middle East or give her a SEE NO EVIL, MAKE NO who typed every entry of throats being key role in Washington. She went into POLICY cut, bodies being decapitated, and policy limbo, where she remains to massive areas of the former Yugosla¬ this day. THE WASHINGTON MONTHLY, NOVEMBER 1992 via being “ethnically cleansed.” I was On a Sunday morning television BY GEORGE KENNEY often unable to stomach lunch as I talk show after the Kuwait invasion on SO timid were the State read and summarized the inhumane Aug. 2, Baker sought to avoid his

4 • FOREIGN SERVICE JOURNAL • DECEMBER 1992 responsibility in misreading Saddam and subtly shift the blame to Glaspie. Today, Glaspie handles ECOSOC issues, whatever those are, as part of the U.S. mission at the United Nations. [Glaspie’s] rehabilitation should be one of the first symbolic acts of the new administration, be it Clinton, be it Bush. It would show character.

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DECEMBER 1992 • FOREIGN SERVICE JOURNAL • 5 DEPARTMENT OF STATE PEOPLE SAY WE ARE A JUMP AHEAD WHILE MAKING THEIR MOVES!

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At home and abroad, the Foreign As this year ends, and we turn the Service Journal is one of the best ways pages that open new chapters at home to stay involved and in touch: with and abroad, so many of our interests, congressional readers, colleges and concerns, and feelings are engaged in universities, the media, and with others new ways with new immediacy. Truly, in the global foreign affairs community. these are times of change. The first issue of the Journal This December issue of the Foreign Come to American appeared in October 1924 along with Service Journal looks ahead to the momentous changes of this decade Service Center for diplomatic with an examination of the immunity from high prices. If Today is also a time of ambassadorial confirmation process you are on an overseas and how our new embassies are being assignment, and carry a questioning. When has there staffed—and there’s also a first-hand diplomatic or official passport, account of the challenges and rewards you can save on the purchase been a better, harder, more of opening a frontier embassy. We of a new Mercedez Benz with look back to a pioneering journey in important, or, as Consul U.S. equipment, shipped 1873, and recall the Vietnam era, a directly to the United States or time when many Foreign Service Felix Cole already put it, for pick up in Stuttgart*. officers were questioning U.S. foreign Contact Erik Granholm, more inspirational time to policy. Today is also a time of questioning. our Diplomatic and Tourist write? Letters are always When has there been a better, harder, Sales Manager. more important, or, as Consul Felix welcome. Cole already put it, more inspirational time to write? Letters are always welcome. Forward-looking articles on the birth of a new organization, the diplomacy, professional issues, American Foreign Service Association, historical insights and sketches of the combining the two branches, consular human dimension in world affairs, as and diplomatic, of the Foreign Service. well as book reviews, are always The first editor, Consul Felix Cole, needed. appealed to his readers to supply Acceptance or rejection of material for the new publication. Cole submissions is made by an 11-member said “its purposes are to add to the editorial board. Submissions should understanding of the tasks of the be sent to Editor, Foreign Service Foreign Service. . . . but the main Journal, 2101 E St., NW, Washington 585 North Glebe Road purpose of the Journal will be D.C. Arlington, Virginia 22203 inspirational . . . and personality will So let us hear from you. And in 703/525 2100 be at a premium in its columns.” today’s world, why not FAX your letters FAX: 703/525-1430 *Car niusi he imported into l IS. within The Journal’s worldwide circulation or articles to us at (202) 338-6820? 6 months after taking delivery in Europe is now nearly 12,000, but as in its first volume years ago, the Journal today is Mercedes Benz-Rc^isu. rd Trademarks of Daimler Benz AG. as informative and thought-provoking, Stuagart, Federal Republic of Germany as influential and entertaining, as all of Brandon Grove Jr. you—our contributors—make it. Chairman, Editorial Board m

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The end of the Cold War in a sense “new world order,” a vague organizing principle for international action, was restored the world to geopolitical inadequate to the challenge, and, as yet, President-elect Clinton has not articulated complexity. Eastern Europe’s cultural his views of the new U.S. national richness reemerged from the sepia interest and its means of defense. Into the. breach come Washington’s snapshots purveyed by the Soviet think tanks: last year several produced documents advocating foreign policy bloc, and nations in other parts of strategies for the coming decade. The the world broke out of the Cold selective review that follows considers papers produced under the aegis of the War’s ideological stranglehold. Carnegie Endowment for International Peace, the Heritage Foundation, the Unlike many historical watersheds, Overseas Development Council, the the Cold War ended at a precise and universally recognized Georgetown University Institute for the Study of Diplomacy, and the Commission moment in history. It left no time for the slow accretion on U.S.-Japan Relations for the 21st Century. Copies of the documents can of political theory and its popularizations, leading to the be obtained from the addresses listed formation of policy. on page 16. The “unity” of foreign and domestic policy is the think-tank mantra for the As the political theorist Michael Novak new courses to be plotted in territory year, a standard carried by such dispar¬ once commented, great nations are like where a two-dimensional map has been ate crusaders as the Carnegie aircraft carriers: they like to change given perspective by multiple ethnic, Endowment and the Heritage directions very slowly, in degrees. But topographic, linguistic, and religious Foundation. This may look like merely the post-Cold War map requires whole overlays. The Bush Administration’s a strategy for maintaining America’s

10 • FOREIGN SERVICE JOURNAL • DECEMBER 1992 international involvement during politicians, economists, journalists, and SHORT-TERM recessionary times, but the formulation others, chaired by Winston Lord, the contains much wisdom. The revolutions former U.S. ambassador to China and RENTALS in Eastern Europe reaffirmed that the former chief of the State Department’s 2 weeks — 6 months world is knit together more tightly than Policy Planning Staff. The commission before. News travels too quickly now members included former Chairman of APARTMENTS via satellite transmission, phone, and the Joint Chiefs of Staff William J. Crowe ^ & TOWN HOMES fax to come under complete control by Jr.; Henry Cisneros, the former mayor of repressive governments; money crosses San Antonio; AFL- CIO Treasurer Thomas Foreign Service Institute, borders with the speed of an electronic R. Donahue; Jessica T. Mathews, vice Foggy Bottom and government offices a short transmission; deforestation in Brazil can president of the World Resources METRORAIL ride away mean climate change in Canada; and Institute; and former Secretary of De¬ the trade policies practiced in Tokyo fense Frank Carlucci. FREE SHUTTLE can spell the difference between jobs The report quotes the poet C.P. to nearby and unemployment in Toledo. Most of Cavafy: Huntington MetroRail the think tanks take being elbow-to- Now, what is going to happen Station elbow with other nations as an to us without opportunity rather than a threat; only the Barbarians? They were, Heritage, coming from the conservative those people, after all, tradition of reluctant international a kind of solution. HUNTINGTON involvement and limited government, is In measured tones, Changing Our GATEWAY cautious about the benefits of the new Ways proposes a radical shift in the collectivity, which for many means focus and conduct of U.S. foreign policy. Alexandria's newest and forfeiting some discretion in international The commission argues that the post- most desirable location matters to the multilateral institutions. Cold War environment requires a de¬ militarized foreign policy, one that NO BETTER PLACE .. . America and the new world concentrates instead on promoting eco¬ NO BETTER PRICE The most ambitious and thoughtful nomic growth in the United States and, of the policy papers is Carnegie’s by extension, in the world. U.S. foreign Changing Our Ways, an immaculately policy must change its stance from written and ornately printed document formal belligerence to cautious Featuring ... in 87 pages of text. The Carnegie cooperation, argue the commission • Rates well below per diem Commission’s ideas and general aims members. Without providing numbers, • Flexible leasing are largely shared by the Overseas' De¬ the group advocates deeper cuts in • Elegantly furnished velopment Council’s Challenges and military spending than proposed by the Priorities in the 1990s, though the latter administration, along with a restructuring • Fully equipped kitchen; linens; TV focuses on proposing what the ODC of military forces to emphasize highly • Washer/dryer, dishwasher, microwave, in each unit considers a practical, politically saleable mobile, long-range weapons with space- • Cable TV & local phone service included alternative budget for foreign affairs for based command and control systems • Indoor/outdoor pool the new administration, leaving discus¬ and forces that, for the most part, would • Tennis courts sion of the broader aims of foreign not require foreign basing. The • Indoor racquetball and basketball courts policy brief and businesslike. Heritage’s international weapons trade must be • Fitness center report, by contrast, is a manifesto advo¬ curbed, regional collective security • Sauna, steam rooms, whirlpool cating strengthened hegemony in world organizations should be nurtured, and • Garage parking affairs for the United States. The NATO made more flexible. The • On-site retail stores Georgetown Institute paper concerns commission recommends that the United • Major credit cards accepted itself exclusively with the Foreign Service States pay its UN assessments and and the personnel, training, and support a broadened peacekeeping 1-800-933-8367 assignment systems it should adopt in function for that body along with an Fax 703-329-8659 order best to execute diplomacy in the expanded Security Council. 5990 Richmond Highway 1990s. The U.S.-Japan Commission Nevertheless, in an echo of an earlier, Alexandria, VA 22303 report concerns itself with cooperation unofficial Defense Department proposal between the United States and Japan, that favored maintaining a U.S. ability to Corporate but within the broader context of a counter any threats to our military hege¬ I .—. r—, ,—i X Our service multilateralized international system. mony, the commission argues that the "Executive TEMPORARY begins The Carnegie Endowment assembled United States should remain the HOUSING the day an extraordinary commission to produce paramount military power. “The United INC Serving you call! its recommendations: 23 diplomats, States is the world’s leading military Northern Virginia

DECEMBER 1992 • FOREIGN SERVICE JOURNAL • 11 power. We must keep it that way. . . . America’s armed forces must do more LET EUROPE than defend our interests from direct threats. They must also support our BE YOUR CAMPUS diplomacy, lending weight to our initiatives and helping shape how other LEYSIN AMERICAN SCHOOL IN SWITZERLAND countries see us. U.S. military power is GRADES 9 THROUGH 12, PG YEAR a factor in the calculations of decision¬ makers throughout the world,” SUMMER ENRICHMENT PROGRAM comments the commission. Perhaps as significant as the Highly respected, private, coeducational, American International conclusions in the report’s section on boarding school in the French Swiss Alps, near Lake Geneva. post-Cold War military needs is the Successful American College Prep, Advanced Placement, and the implied dissent by two conservative commission members who chose to International Baccalaureate programs. SAT testing Center. Finest disassociate themselves from the report: sports and recreation programs in all of Europe. Magnificent skiing '‘at former Assistant Secretary of Defense our doorstep”. Full U.S. and European Accreditations. Richard N. Perle, now at the American Enterprise Institute, and James R. Schlesinger, former secretary of defense Thomas F. Rouillard and director of the CIA, among other L.A.S. U.S. Director of Admissions government posts. Box 4016, Portsmouth, NH 03802-4016 In place of the militarily driven policy Tel: 603.431.7654 ® of the post-war era, the commission Fax: 603.431.1280 proposes that U.S. policy focus on promoting economic growth. “. . . America’s first foreign policy priority is J to strengthen our domestic economic performance,” lest further deterioration weaken the U.S. foreign policy stance How to Buy Auto Insurance Overseas and prove destabilizing. The Carnegie group also advocates restructuring the There's really only one way. Select the agent who offers broad international economic system to reflect experience and a high level of repeat business. Experience that helps its newly multilateral nature, aiding de¬ you avoid the pitfalls of a highly complex business. Repeat business veloping nations and the formerly that results from providing what's best for the customer - not the agent. Socialist countries in their effort to integrate with the global economy, and For 34 years Harry M. Jannette, Jr. & Company has provided stimulating trade. The report analyzes dependable coverage with U.S. carriers to thousands of Foreign Service the emergence of regional economic personnel worldwide. Thus, you gain the broadest U.S. terms and blocs but does not necessarily see conditions and flexible value limits often not available from other regionalism as a threat. “[Nleither the insurance carriers. United States, the EC, nor Japan is able to go it alone. We share a common stake • WORLDWIDE COVERAGE Fire, theft, comprehensive and collision in an expanding global economy and protection are available at foreign posts. improved international arrangements.” Carnegie’s report also reviews a • U.S. AUTO LIABILITY Available for short term on home leave, change of number of transnational issues that have assignment, and new auto purchase prior to foreign departure. only recently come within the diplo¬ • FOREIGN LIABILITY We suggest contacting your post on arrival. Local matic ambit— environmental pollution, laws require specific limits and coverage. Pricing is normally best on site. the trade in illicit drugs, illegal immigration and refugees—and puts • CONTACT US TODAY Let us send you "The Embassy Plan" brochure. It forth solutions that propose to stem the contains all the answers about dependable coverage and low cost premiums. sources of these ills instead of simply I® Harry M. Jannette, Jr. & Company managing their flow. The United States 3530 FOREST LANE #305 Telephone: 214-350-5141 needs to show leadership in DALLAS, TEXAS 75234-7955 FAX: 214-352-7022 environmental policy and to promote ^ Or Call 1-800-256-5141 “full-cost pricing” that takes into ac¬ count the after-use costs a product

12 • FOREIGN SERVICE JOURNAL • DECEMBER 1992 incurs for environmental clean-up. Efficient energy use will require imposition of a stiff tax on gasoline rather than simply protection of access eopsug,.. to sources of oil. Migration and refugee flows could be eased through diplo¬ A Classic AU-Suite Property matic initiatives to protect the “right to Ideally Located in Historic stay,” while the drug epidemic is best Foggy Bottom. combatted by reducing demand. “After Our 225 spacious suites offer full decades of blaming other countries for kitchens, mini-bars, and comfortable our daig problems, the United States hving areas. The highly acclaimed simply must start taking responsibility at Garden Cafe features contemporary home,” argues the report, which points American regional cuisine and seasonal out that the United States spends almost outdoor dining. as much on international drug Convenient to the State Department, the interdiction as on all its domestic Kennedy Center, Georgetown, Metro, treatment and prevention programs and the free MUSEUMS AND combined. MONUMENTS. Changing Our Ways is magisterial in Special AFSA rates available. scope and bracing in the earnestness and reasonableness of its ideas. Of course, an unelected commission can afford to be frank. The increasingly sclerotic, interest-bound nature of 2117 E Street, NW Washington, DC 20037 American politics does not come within the scope of the commission’s report, (202) 861-8200 • (800) 424-2859 but that is die gaundet its program must ultimately run, and one suspects that proposals for deep cuts to the military, a $ 1-per-gallon gasoline tax, a substantial increase in humanitarian foreign aid, and a reorientation of education from kindergarten through graduate school to enhance the learning of languages study and international affairs, to enumerate a few of the ideas put forth would be tickets to oblivion for any but the most “PyCCKAfl courageous and imaginative politician. Verm er This is not to suggest that it is futile or Sun^ LUKQ/IA” naive to put forth a political agenda undiluted by political concerns; the Intensive Russian Program in lan¬ political dialogue needs precisely such guage, literature, business, and cul¬ a nonpartisan vision. But changing our ture for students at the beginner, ways will entail more than vision. undergraduate (second, third and The Carnegie commission’s report fourth year), and graduate level. 35th does not address the domestic annual session also will include films, bureaucratic machinery that will be dancing, choral singing, drama and social activities to complement the inti¬ necessary to enact a foreign policy mate all-Russian environment. refocused on trade and multilateral efforts June 21-August 6,1993 for peace; such proposals are to follow (Beginners start June 14). in a report that was to be released in Contact: November, and they will be critical to The Russian School the viability of the commission’s vision. NORWICH UNIVERSITY The methods and purposes of the Cold New courses in Box 892, Northfield, VT 05663 War would seem to be as entrenched Business Russian and 1 -800-468-NORWich within certain civilian bureaucracies as beginning Czech. 802-485-2165 in the military itself, and if foreign policy is to have increased international

DECEMBER 1992 • FOREIGN SERVICE JOURNAL • 13 prosperity as its object, it must be better world and promoting American Support Funds, which the council rightly conducted by publicly accountable humanitarian ideals.” Likewise, the ODC points out have mostly been a institutions, such as the State Depart¬ stresses the importance of promoting an smokescreen for strategic aid to military ment, that are equipped to do economic open world economy and expanded allies in the battle to contain Soviet as well as political reporting. That will international trade, through debt relief, expansion. Additionally, the council entail some reordering of budgetary government-sponsored export would cut funding levels for the U.S. priorities domestically as well as abroad. promotion, multilateral financing, and Agency for International Development, bilateral aid. The ODC also stresses whose role would be taken over by a An alternative budget multilateral peacekeeping and conflict new Sustainable Development Fund More concerned with the tools of resolution efforts, like Carnegie, advo¬ (SDF). USAID, instead of getting a direct foreign policy is the Overseas Develop¬ cating that the United States pay up on funding allocation, would compete for ment Council (ODC), which this year its UN arrearages and support increased money from the SDF. (For a thorough proposed an alternative foreign affairs funding for UN peacekeeping. The examination of the SDF proposal, see budget for the new administration. The money for these new or enhanced the November Journal.) The ODC also ODC’s goals make it Carnegie’s spiritual programs would flow from deep cuts in hopes to realize a $1.2 billion savings brethren, and the report repeatedly defense and other security-oriented from government broadcasting services, sounds the theme of domestic renewal programs. including Radio Free Europe, Radio as prerequisite to global strength: “[T]he But the bulk of the ODC report is Liberty, and the Voice of America. The traditional dichotomy between ‘domes¬ dedicated to detailing where the money report does not acknowledge, however, tic’ and ‘international’ issues increasingly would come from and where it would that prevailing political winds are against is an anachronism; global action is go in the council’s post-Cold War foreign such cuts. needed to successfully address so-called affairs scenario. The biggest savings In place of these programs, the ODC domestic concerns as well as to advance would come from trimming Foreign would fund initiatives designed to long-tenn U.S. interests in building a Military Financing Funds and Economic promote world trade and economic

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14 • FOREIGN SERVICE JOURNAL • DECEMBER 1992 development, facilitate conflict are slowing population growth, bootstrap rhetoric in development resolution, and promote “regional improving health, supporting agriculture, policy. It also provides a useful corrective reconstruction”—assistance for areas and developing new sources of non- for those who will inevitably cry penury emerging from war or other in arguing against new conflict. The report advo¬ initiatives in foreign policy. cates more than tripling the The core of the ODC report money eamiarked for debt lies in its championship of A level playing field relief, to $3 billion over five a classically liberal agenda in The Heritage Foundation’s years, favoring those development. Programs it Making the World Safe for countries that put into place America: A U.S. Foreign advocates would be specifi¬ macroeconomic policies Policy Blueprint, a forcefully that the United States cally aimed at the poor and worded and philosophically considers sound. U.S. Ex¬ designed to strengthen what crystalline document, reads port- Import Bank budget development experts like to like the Nicene Creed of authority would also be conservatism. The foreign call “human resources” increased to provide more policy stance advocated is support to U.S. exports. rather than economic entirely defensive; America The core of the ODC infrastructure. must militarily protect its geo¬ report lies in its political interests and refuse championship of a to cede veto power over classically liberal agenda in develop¬ agricultural employment. American action to any country or ment. Programs it advocates would be The Alternative Budget contains multilateral body. The geopolitical specifically aimed at the poor and de¬ several innovative proposals—the interests to be protected, in the view of signed to strengthen what development Multilateral Reconstruction Fund, for the report’s authors, are the integrity of experts like to call “human resources” example, and the SDF. Primarily, U.S. land, sea, and air frontiers; the rather than economic infrastructure. The however, it is a numeric exposition of freedom from domination by any hostile four programs recommended as focuses laudable humanistic goals that have power of Europe, East Asia, or the for the Sustainable Development Fund tended to get lost in the last decade of Persian Gulf; market access and free

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DECEMBER 1992 • FOREIGN SERVICE JOURNAL • 15 trade; access to resources, and protection equipped to project power rapidly from dangerous legacy of George Bush’s for Americans from threats to their lives the U.S. to the Persian Gulf, even without handling of the Persian Gulf crisis has or well- being, such as terrorism or drug the support of local allies.” That means been his reluctance to act without first trafficking. deploying a strong naval force in the winning approval from the United Deterring hegemony by any hostile Gulf, keeping fighter-bombers locally Nations Security Council, and hence power will require substantially more ready, investing in strategic sealift and from Moscow and Beijing, to say nothing military engagement, in Heritage’s view, airlift capabilities, strengthening military of Paris,” warns the report. Heritage also than envisioned by the Carnegie and cooperation with conservative Gulf states demands that such UN organizations as ODC reports. The authors express such as Saudi Arabia and Kuwait, and the UN Development Program and the concern over control of the strategic containing both Iraq and Iran with Food and Agriculture Organization nuclear weapons remaining in the economic sanctions and support for “abandon their anti-Western, anti-free fragmented Soviet Union. To guard domestic opposition groups. market agendas” by 1995 or be against their use, the United States must Impediments to trade are seen as the threatened with U.S. withdrawal. make strategic defense a top priority, only serious non-military threat to the “Working from the outside, the U.S. can the report argues, “with early deploy¬ United States, but to combat them, pursue unilateral policies promoting ment of a limited ground- and space- Making the World Safe advocates international trade and investment, and based system at the top of the promoting free-trade agreements assisting countries in adopting high- conservatives’ defense agenda.” In ad¬ throughout the world. The report is not growth, free market agendas.” In sum, dition, Heritage recommends mending friendly to the Foreign Service: Heritage despite the report’s proclamations about what it characterizes as serious would welcome a “greatly reduced” the end of Soviet antagonism, tire Cold intelligence failures in the past not by State Department, while “bloated U.S. War paradigm is everywhere in evidence cutting the intelligence establishment government bureaucracies like the on Heritage’s scope. The chimeric new but actually by increasing U.S. Agency for International Development goal of U.S. foreign policy—preventing intelligence capabilities. Specifically, the can be trimmed and reoriented toward the rise of hostile hegemonic powers— United States needs more local agents, projects to promote entrepreneurialism, is enough here to command nearly all specially trained U.S. personnel, and investment, and growth in Africa." the military resources once devoted to electronic intelligence systems devoted Counter to the recently prevailing stopping Soviet expansion. A potential to gathering information in Central Asia view, which has hailed the United threat is as good as a military menace, and the Middle East. Nations as a natural, if limited, successor and, while welcoming helping hands in Guarding against the rise of a hostile to the bipolar international system, NATO, ASEAN, and the CSCE, the United hegemonic power in the Mideast will Heritage expresses a somewhat cranky States should take on the greatest require maintaining “forces armed and suspicion of the United Nations. “A burdens of its bellicosity alone. 2001 The Georgetown University Institute for the Study of Diplomacy's report, The For Further Reading Foreign Service in 2001, (see “Des¬ patch,” October Journal for a more thorough critique) takes on the questions Changing Our Ways. A report by the Carnegie Endowment National Commission on of means that the other policy reports America and the New World, 1992, available for $9.95 from the Brookings Institution, largely neglect. After a section explain¬ 1775 Massachusetts Avenue, NW, Washington, D.C. 20036 • (202) 797-6258 or ing the assumptions underpinning policy 1-800-275-1447 recommendations in the report, the Institute provides its “strategic vision” Making the World Safe for America: A U.S. Foreign Policy Blueprint. By the staff for the Foreign Service then explains of The Heritage Foundation, April 1992. Available for $5 from The Heritage Foundation, how it believes the diplomatic corps 214 Massachusetts Avenue, NE, Washington, D.C. 200024999 • (202) 5464400 should be prepared to fulfill the vision. Unfortunately, a typically prescient Challenges and Priorities in the 1990s: An Alternative U.S. International Affairs comment from Pogo provided in the Budget, FY1993. By John W. Sewell, Peter M. Storm, and contributors, 1992. Available report’s opening summary signals a for $8.00 from the Overseas Development Council, 1875 Connecticut Avenue, NW, certain defeatism that runs through the paper like a bass theme in a minor key: Suite 1012, Washington, D.C. 20009. (202) 234-8701. “We are surrounded by insurmountable The Foreign Service in 2001. By the Institute for the Study of Diplomacy, 1992. opportunities.” Available for $6.00 from the Institute, School of Foreign Service, Georgetown University, Indeed, on the landscape of post- Washington, D.C. 20057-1052 • Tel: (202) 687-8971, Fax: (202) 687-8312 Cold War opportunity, the Institute seems simply to throw up its collective arms in despair of ever meeting the challenge.

16 • FOREIGN SERVICE JOURNAL • DECEMBER 1992 The document reads like a stem quarterly For the United States, that means environment, and lack of technical ex¬ report from the new CEO of an ailing ceasing to blame Japan for decreasing pertise in developing countries. and poorly managed company: American competitiveness. It also Most of the recommendations, streamline, get rid of dead weight, means that America must fix its educa¬ however, suggest not new structures tighten management, recruit able tional and health systems, its budget but new mindsets. On baniers to trade, people laterally as well as from the deficit, and the lack of incentive to the commission remarks, “Rather than bottom. Diplomacy is envisioned as save and invest. For Japan, accepting offering general criticism of the Japa¬ the recourse of hard times, when the responsibility means using its eco¬ nese keiretsu system, the United States impoverished taxpayer is less willing nomic power responsibly, reducing its should understand the strengths and to pay for “luxury goods” such as trade surpluses, and devoting a greater weaknesses of the system, which has military and intelligence services. “In proportion of its GNP to international been one of the keys to Japanese economic terms,” the Institute explains, affairs. The commission suggests a industrial success, to see if any of its “diplomacy can be thought of as an long-tenn goal of 3 percent of the strengths can be advantageous to our ‘inferior’ national security good. Inferior GNP. “Most of that should be dedi¬ business organizations.” On security, goods are those for which spending cated to non-self-defense matters, eco¬ “The United States should urge Japan to increases when money is define regional and global tight and buyers are forced responsibilities and its to forsake luxury goods, as Ideas from these reports, physical and monetary when we buy more particularly the Carnegie contribution to them, using potatoes and less steak. As Japan’s own yardstick of commission’s, will provide money for the luxury, ‘comprehensive security,’ coercive side of useful direction to the new ad¬ which covers everything international relations ministration. Yet some critical from self-defense to refugees (represented by military assumptions underlying the and economic assistance. and intelligence spending) Americans can, however, more or less common goals of declines, purchases of cease to press Japan to ex¬ cheaper, persuasive diplo¬ spurring international eco¬ pand its military.” The report macy (such as at State, AID, nomic growth and containing provides a useful reminder, USIA, and Commerce) conflict through multilateral just when the U.S.-Japan relationship is tense, that it should increase, by a efforts remain unexamined. smaller amount.” remains critical to building a It may be an indication new international order. of the quality of the recommendations nomic aid and debt relief, the UN Ideas from these reports, particularly in the Institute’s report that, of the system (including peacekeeping), the Carnegie commission’s, will provide papers under review, “2001” is the most refugees, and the global environment.” useful direction to the new administra¬ poorly written. The remarks just quoted, The report, which was issued in tion. Yet some critical assumptions for example, come under the bold head¬ November 1991 and followed more underlying the more or less common ing, “Fully recognize the Foreign Service than a dozen more specific papers on goals of spurring international economic agencies as ‘national security agencies’ aspects of the U.S.-Japan relationship, growth and containing conflict through a la the CIA and Defense Department.” discusses cooperation in economic and multilateral efforts remain unexamined. security matters but also in safeguarding The currently popular outlook, as Preparing for the Pacific Century the environment, conserving energy, articulated in these policy papers, Narrower in scope than the other and promoting education and research assumes that worldwide economic reports, America’s Stake in the Future of in science and technology, among other growth and increasingly free markets the U.S. -Japan Relationship, nevertheless issues. Vehicles for cooperation could will lead inexorably to democratization, makes many of the same assumptions: include a Pacific Community “aimed at and that democratized nations will prove that fostering economic growth evolving rules and structures to make more peace-loving than their Communist internationally is a key goal of diplo¬ the Pacific economic regime genuinely or authoritarian predecessors. In the macy and that many of the challenges open and inclusive;” a Center for Global more peaceable new world, conflicts of the new world must be met in Energy Efficiency that might be a “one- will be regional, hermetic, and less multilateral fora. As a critical step toward stop shopping center” for developing likely to spread than were the conflicts modernizing the international system, countries seeking to become more that arose during the Cold War. One the private Commission on U.S.-Japan energy efficient; a joint commission to hopes that all these assumptions will Relations for the 21st Century argues srtidy ways to achieve sustainable eco¬ prove valid, but they remain to be that both countries should overcome nomic growth in the developing world proven. ■ the low-grade hostility that has led to and Eastern Europe; and joint research increasing contention and accept the institutes and projects that would seek Anne Stevenson-Yang is editor of the full burdens of international leadership. solutions to problems in health, the Foreign Service Journal

DECEMBER 1992 • FOREIGN SERVICE JOURNAL • 17 Impossible Job? Advice to the new secretary of state

s the Democrats prepare A to take control of foreign policy for the first time in 12 years, there is good reason to believe that the State Department is

n < headed toward a new era of enhanced > U influence and prestige. ’J) Z During the high-stakes competition £ 03

e5 zUJ o with the Soviet Union, security issues— O) r- 03 U- Alexander M. Haig Jr. and the Pentagon officials best-versed in

BY DAVID CALLAHAN

18 • FOREIGN SERVICE JOURNAL • DECEMBER 1992 them—often tended to dominate discussions of the U.S. Department can chart the direction of American grand national interest and its defense. Today this is less the case, strategy, as it did during the Truman years. At its weakest, it as issues like trade, democratization, and the environment can be reduced to an errand boy. The size of State’s slice of increasingly take center stage in foreign policy debates. The the policy pie depends largely on the secretary’s infighting end of the Cold War has made the world a vastly more and management skills. complicated place, and as the need for a renaissance in A front line in the war for influence is the interagency American diplomacy becomes more obvious, the opportunities policy-making process. Even a secretary of state who has for State can only grow. steady access to the president can find himself outmaneu- Perhaps as importantly, there now exists a consensus that vered or overshadowed by rivals in the government. An the national security adviser should not have a policy easygoing secretary like Dean Rusk or Cyrus Vance, who advocacy role. In the unhappy past, powerful national takes the view that “we are all on the same side,” may find security advisers often usurped the influence of secretaries of himself with steadily diminishing influence, as encroachments state and undermined their public position. However, after on State’s territory go unrepulsed. To preserve his position a the policy gridlock of the Carter years and the Iran-Contra secretary must show early on that he is willing to go to the mat, scandal of the Reagan years, many observers came to believe and resign if necessary, over issues of policy procedure and that the national security adviser should be a neutral figure bureaucratic sovereignty. In the summer of 1983, for ex¬ confined to brokering policy, not making it. If followed under ample, Secretary of State George Shultz learned that the Clinton, as it was under Bush, this model is likely to become Pentagon was planning a step-up of military pressure on increasingly institutionalized, bettering the prospects for Nicaragua. Shultz hadn’t been informed of the move, which State’s long-term domination of foreign policy. coincided with a spate of news stories about the In the years ahead, the new secretary of state will have rising influence of National Security Ad¬ an unprecedented opportunity for refurbishing both the viser William Clark. The secretary’s powers of his department and the status of his office. response was to march into the Oval But the task won’t be easy. President Eisenhower Office and threaten to resign. Faced once described the position of secretary of with the prospect of losing a second state as the “greatest and most important secretary of state (Alexander Haig job in the world.” While much of that had resigned in 1982) Reagan awe still surrounds the government’s promised to give Shultz greater top cabinet position, it has been tem¬ authority and better White House pered by the fact that these days a access. Over the next five years, secretary of state is lucky to survive four Shultz threatened to resign three or eight years with his reputation intact— more times. His brinksmanship if he survives at all. Just holding on to yielded results: Shultz avoided over¬ what has been called “the impossible job” frequent humiliation and steadily built will be hard enough. To rise to the his influence. During the Nixon Ad¬ opportunity at hand, the new secretary ministration, by contrast, William Rogers must fight two battles simultaneously: a failed to make an early stand against policy battle to prove that State can indeed White House operations that excluded be a concepmal leader in shaping a complex State. new foreign policy agenda that mixes Rogers’ tormenter, of course, was National traditional politico-military concerns with Security Adviser Henry Kissinger. And today economic and environmental issues. And, a new NSC-State rivalry is by no means more familiarly, a bureaucratic battle to keep inconceivable. The security adviser has two the president’s ear and to maintain State’s advantages: a small, flexible staff capable of fast- influence over a wide range of issues. reaction, and constant access to the president. This situation presents an almost irresistable temptation for Taking turf wars seriously the NSA to engage in policy entrepeneurship. Even In theory, the State Department has a Brent Scowcroft, a well-known advocate of the mandate to be the principal player on a “honest broker” concept before serving as NSA wide range of matters, from foreign eco¬ under Bush, occasionally strayed into the realm nomic policy to military assistance of policy advocacy, especially during the Persian programs to environmental treaty Gulf crisis and war. negotiation. But much of this potential A secretary of state obviously can’t stop influence can be stolen away by other the NSA from influencing the president agencies. At its strongest, the State Cyrus R. Vance through frequent contact, nor will State

DECEMBER 1992 • FOREIGN SERVICE JOURNAL • 19 ever be as responsive to a president’s defining America’s role in the new era. Paul immediate needs as a staff based in the Wolfowitz, the under secretary of defense White House. But a secretary can de¬ for policy and Dick Cheney’s chief ideas mand a very circumscribed policy role man, emerged as probably the leading for the NSC adviser. During the Carter geopolitical thinker in the Bush Admin¬ years, the frequent disarray in admin¬ istration. It was Wolfowitz’s office, for istration foreign policy stemmed from example, that supervised the drafting the ambiguous role of NSA Zbigniew of the 1992 Defense Planning Guid¬ Brzezinski. Although it was initially ance, which offered a U.S. grand agreed that Brzezinski would mainly strategy for the 1990s. be a coordinator, Carter failed to stop If the new secretary of state is to him when he sought to become both a recapture the initiative on long-range policy advocate and, increasingly, an ad¬ strategy, he must stay focussed on the ministration spokesman out of step with the big picture amid an unending stream of secretary of state. Vance made a grievous immediate demands and unexpected error by not strongly objecting to crises. Dean Acheson is an example of Brzezinski’s power grab early on. a secretary who deftly succeeded in this The new secretary of state cannot juggling act. Acheson served during a afford to be passive when policy period of nonstop action comparable process is being established during to that of James Baker’s tenure. But, the opening phase of the Clinton unlike Baker, Acheson never neglected Administration. He must insist that strategic planning and actively nurtured the security adviser’s neutrality is the long-term planning work of State clearly spelled out in guidance docu¬ Department strategists like George Kennan and Paul Nitze. The new ments and that those documents are Henry Kissinger approved early on by the president. secretaiy must place conceptual Alexander Haig rightly sniffed trouble thinkers in important positions and when President Reagan failed to sign, in the early days of give a high priority to their work. He must, moreover, insure his administration, a carefully drafted blueprint for how the that his system for long-range planning continues to national security process would be managed. In the policy function in times of crisis. free-for-all that ensued, Haig and the State Department A final major challenger to State’s influence is the Central were frequent losers. Intelligence Agency. An energetic director of central Another sure challenger to a secretary of state’s power intelligence (DCI) can use his position as chief intelligence is the secretary of defense. While the importance of security interpreter to shape the way an administration views the issues is waning, the world remains a heavily armed place world, thus affecting the intellectual parameters of policy. in which many overseas problems have a security While less likely in this new era, he can also push for covert component. During the early 1960s, Robert McNamara and operations that have enormous ramifications for U.S. diplo¬ his high-powered staff played a dominant role in develop¬ macy. It is no exaggeration to say that DCI William Casey ing U.S. policy positions on Cuba, Berlin, and Vietnam. Far had far more influence over U.S. policy toward some more than State, it was the Pentagon that shaped the regions of the world during the Reagan years than Haig and Kennedy Administration’s geopolitical stance. One lesson Shultz. learned on the New Frontier is that if the State Department A secretary of state can counter such power grabs in two leaves a conceptual vacuum, the Pentagon will gladly fill it. ways: first, as with the security adviser, he can insist on strict This, arguably, is what happened during the Bush procedural limits on the DCI’s policy advocacy role. Second, Administration. With Baker and his overextended inner and more importantly, he can adroitly employ the circle scrambling to manage one crisis after another, the considerable analytical resources he has at his disposal to State Department failed to provide leadership on long- insure that State does not lose the battle to interpret crucial range strategy. Dennis Ross, the head of the Policy Planning world trends and events. Of course, this has proved difficult Staff, would have been the most likely candidate to in the past. Hemy Kissinger has complained that the State spearhead such planning. But Ross spent much of his time Department has an “allergy to conceptual thought.” Ex¬ circling the globe on diplomatic missions with Baker. And panding on this point, another observer has written that the Baker, himself a tactical thinker by nature, did not give a “analytic caliber of State’s papers and reports has been mandate to any other official to develop broad geopolitical criticized roundly by many inside and outside the building. goals for U.S. foreign policy. . . . papers are so cautious and vague as to be of little use Instead, it was the Pentagon that often took the lead in to policy-makers who long ago concluded that such

20 • FOREIGN SERVICE JOURNAL • DECEMBER 1992 ‘waffling’ constitutes the quintessential character of the for basic briefing material before overseas trips. ‘Fudge Factory at Foggy Bottom.’” The need to keep up with a fast moving White House or There is no easy solution to this problem. Yet unless a risk irrelevance places a secretary in an impossible position secretary can better harness the expertise at State to sound from day one. The secretary’s institutional mandate often analytic ends, he will always have difficulty capturing and pulls him out of the presidential orbit. As Henry Kissinger holding the intellectual high ground in debates over U.S. observed, the secretary of state “presides over a vast foreign policy. catalogue of international relationships that are not always reflected on the presidential agenda or in the labors of the Keeping the president’s confidence National Security Council and many are far from glamorous. In Washington, a secretary of state who has lost the . . . Inevitably, he must grapple with many mundane or president’s ear is much like a person with terminal cancer: highly technical subjects. He is forced to champion unpopular everybody around him knows that their demise is inevitable causes, such as the annual appropriations for foreign aid. and only wonders how much he will suffer in the meantime. There is always the risk that the secretary of state begins In the case of William Rogers, the suffering lasted for years, either to bore the president with arcane problems that as President Nixon excluded him from most important require urgent presidential decision, or to appear to him foreign policy decisions, which Nixon made in the White like some special pleader.” House with Kissinger. In the case of Haig, the end came On a deeper level, a strong belief in State’s diplomatic within 18 months of Ronald Reagan’s inauguration, when mandate can be perilous for a secretary. A chief aim of bad chemistry between Haig and the White House produced diplomacy, of course, is to avoid resorting to force to solve an early resignation by the secretary of state. international differences. However, a secretary who dog¬ Historically, presidents have been quick to reach the gedly represents this perspective in administration councils conclusion that the State Department was unresponsive runs the risk of looking weak or indecisive in the president’s and inflexible. Kennedy and his aides saw State as “a bowl eyes. For example, Vance’s insistence that only a negotiated of jelly,” incapable of new thinking or quick action. “What the settlement could end the Iranian hostage crisis ultimately hell is wrong with that department of yours?” Kennedy once cost him his job when Carter opted for a rescue mission in asked the diplomat Charles Bohlen. Jimmy Carter reportedly April 1980 and Vance felt compelled to resign on principle. complained near the end of his term that the State Department In general, a secretary can find his influence and visibility had not produced a “new idea in 20 years.” wane during overseas crises, because he is not in the Foreign policy is one of the few areas in which a business of suggesting how military force should be president can act decisively. If State is seen as diluting deployed and used. Thus, Defense this power, through its slow reaction time and over¬ Secretary Robert McNamara became bureaucratization of problems, a president will the dominant player on Vietnam, work around the department—and its head. For eclipsing Rusk. And during the a secretary of state, maintaining the president’s Persian Gulf crisis there was confidence often has more to do with widespread talk of James responsiveness than it does with ideological Baker’s diminished influence or personal compatibility. A chief reason that in the Bush Administration. Cyrus Vance lost status in Carter’s eyes was In the struggle to be because he came to be seen as too much a relevant, a major battleground creature of a cautious State Department. In is the president’s appointment his memoirs, Carter commented that Vance book. Baker could meet with “mirrored the character of the organization President Bush anytime he he led,” while noting that National Security wanted, but such access was Adviser Zbigniew Brzezinski and his staff often not been available to his were “not handicapped by the inertia of predecessors. Before Haig took a tenured bureaucracy.” Under office, he received a phone call Kennedy, the seeming passivity from Richard Nixon. The former of Rusk’s State Department president who had so ignored led the president to turn William Rogers suggested to Haig frequently to the Pentagon that he should insist on a lot of for geopolitical advice. personal contact with Ronald Kennedy even got to the point Reagan. Haig took this advice where he was asking the to heart, but found himself Pentagon’s office of completely isolated from the International Security Affairs President. There was no

DECEMBER 1992 • FOREIGN SERVICE JOURNAL • 21 arrangement made for regular meetings effort to distance himself from the State Depart¬ between Reagan and Haig. The secretary ment while using it as a platform to achieve did not even have a way of directly success on a few key foreign policy issues. contacting Reagan. Instead, Haig had At times it seemed that Baker’s operation to communicate through White House on the seventh floor had little connection aides like Edwin Meese, who often to the rest of the department. rejected his requests for Oval Office In making a case for this model, visits. When Haig wrote a note to Reagan officials and commentators have requesting a weekly meeting, he received suggested that the alternative approach no reply. Cordell Hull, Franklin D. to leading State—what might be called Roosevelt’s secretary of state, also the Dean Rusk model—has invariably had problems with access, as did emasculated it. Rusk sought to take William Rogers. A secretary of state on the whole menu of need not be good friends with the responsibilities which fall to a president to be effective, but if a secretary. He tried to keep up perception emerges with a large percentage of the inaccurate—that he doesn’t have issues State handled; he took the president’s ear, the secretary’s relations with Congress very standing both in the administra¬ seriously; he spent a great deal tion and overseas can be greatly of time holding press damaged. conferences to explain U.S. Kiss-and-tell books by Reagan policy; he put enormous energy aides ridiculed Haig as a prima into managing the department, donna who got huffy over such working closely with bureaucrats minor points as where he sat on at lower levels and taking a presidential helicopter rides to Camp personal interest in the future of David. There can be no doubt that Haig the Foreign Service. (Rusk proudly had an ego problem. But the sad truth is that recounts in his memoirs how he where one sits on Air Force One can indeed reorganized State’s filing system to matter in status conscious Washington. save paper and floor space.) He believed in State’s procedures and was loathe to circumvent Rising above stereotypes them. For decades, conventional wisdom has held that a new Yet by most accounts Dean Rusk was one of the weakest secretary of state faces only two real options for how to secretaries of state in recent history. By doing everything conduct himself. Under the first option, a secretary largely right, by respecting the ways of the institution he lead, Rusk ignores the entrenched bureaucracy and concentrates on mired himself in a bureaucratic world and was unable to serving as a close policy adviser and trouble shooter for the emerge as a creative policy innovator in the Kennedy or president. Important matters at State, such as policy Johnson administrations. Vance is said to have committed formulation and interagency coordination, is to be entrusted the same error, although to a lesser degree. to political aides of unquestioned loyalty to the secretary. However, despite the allure of the Dulles/Baker Foreign Service officers are seen as paper pushers and alternative, the new secretary of state would be ill-advised errand boys who lack either the political savvy or analytical to adopt it. In reality, there is no stark choice between skills to succeed in the Washington policy world. abandoning State and succeeding, err embracing State and This model was perfected by John Foster Dulles, who failing. As George Shultz demonstrated, a secretary can cast the State Department adrift and imagined himself as a widely tap the restxirces of the department without becoming kind of deputy president for foreign policy. To a less a bureaucratic hostage or a policy invalid. Indeed, in the extreme degree, Secretary Baker followed the same broad scheme of things, a secretary who fails to use all the approach. “I hope to be the president’s man at the State assets at his disposal and to pay attention to the full gamut Department, instead of the State Department’s man at the of issues in his poitfolio insures his limitations as policy White House,” Baker said in an early interview, affirming innovator and bureaucratic infighter. his determination not be “captured” by State’s bureaucrats. To be leader in foreign policy, in other words, the new Baker’s heavy reliance on political aides, his general secretary of state must also be a leader at Foggy Bottom. ■ indifference to management matters and his willingness to delegate vast responsibility on mundane issues to his David Callahan writes on diplomaticfigures andforeign deputy, Lawrence Eagleburger, were all indicative of his affairs.

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hen the Soviet Union splintered into 16 independent republics, it was reasonable to assume that President Bush would turn to the professional Foreign Service for ambassadors to represent the United States in the new countries. After all, dusty Central Asian backwaters like Dushanbe and Bishkek are not the sorts of prestigious diplomatic posts that are coveted by wealthy campaign contributors or other potential political appointees.

“These are real hardship posts, they are pioneering A senior administration official said Bush frequently posts,” said Alfred L. Atherton, a career diplomat who retired turned to the Foreign Service for ambassadors because as director general of the Foreign Service. “If you picked a “with a Foreign Service officer, you know what you are successful business person, this would not look like the getting and you can anticipate the kind of job he will do.” glamorous diplomatic life that a lot of them have images of.” The official, a key foreign policy strategist, added that the George Vest, who also held the director general position quality of political appointees at this writing. “Some of the prior to his retirement, made much the same point: “You need best ambassadors are political appointees but so are some people who understand the frontier scene, make their own of the worst,” he said. contacts, and boil their own water. This is not the ideal place Worldwide, less than a quarter of all U.S. ambassadors for political appointees.” are political appointees at the present time. That is well So it comes as no surprise that Robert Strauss in Moscow below the historical average of about 30 percent. As is the only non-career ambassador serving anywhere in the recently as the closing year of the Reagan Administration, former Soviet Union. Maybe less predictably, there are only non-career ambassadors held more than 35 percent of the professional diplomats running embassies in the other formerly posts, causing concern over what was then seen as a Communist states in Eastern Europe, although these include politization of the foreign policy process. With a new such graceful capitals as Prague and Budapest. administration in the White House, it remains to be seen On the surface, at least, this would seem to be a vivid where new ambassadors will come from—the professionals demonstration of confidence in the Foreign Service. At the or the politicians. start of the post-Communist era, Bush relied upon career Beyond those figures, however, lay the reality of the Foreign Service officers and resisted the temptation, to Bush administration State Department, at least until James which his predecessors had so often succumbed, to send a A. Baker III was summoned to the White House to run political crony to an important post. Bush’s faltering reelection drive. While the percentage of

BY NORMAN KEMPSTER

24 • FOREIGN SERVICE JOURNAL • DECEMBER 1992 Foreign Service officers serving as ambassadors rose, it is unlikely that the former Soviet Union will remain the Baker and a tight circle of associates controlled the policy¬ preserve of the professional Foreign Service for veiy long. making process to such an extent that the department’s “I would assume that the next group will contain some professionals often felt left out. political appointees.”

New embassies Atypical political appointee Nevertheless, the concentration of career ambassadors in The most important non-career choice in Bush’s admin¬ the formerly Communist East is unmistakable, especially istration—Strauss in Moscow—was not the typical political because that region was always at or near the top of Baker’s appointee. A Democrat in a Republican administration, agenda during the years of his personal domination. The 15 Strauss had held a series of sensitive posts prior to his new embassies were staffed very rapidly, according to Larry selection for Moscow. Vest, who spent much of his long C. Williamson, acting director general of the Foreign Service, diplomatic career promoting the interests of the Foreign and, with the exception of the mission in Kiev, went into Service, calls Strauss “a perfect choice." cities that had never had permanent American diplomatic “The old requirement for Sovietology and defense was representation before. “These posts are still in the replaced by a need for knowledge about trade, business, and organizational phase,” Williamson said. “People are living in how to make business and politics work,” Vest said. Atherton hotels and in many cases working out of hotels.” Political agreed: “I would call Strauss, in his own way, a professional. appointees, he said, “would have a difficult time adjusting.” He has a lot of experience and he is awfully good at using He added, “These are going to be very difficult posts to live his career staff. He is a very quick learner.” in for the next few years until we get ourselves established.” As a lawyer, businessman, and political activist, Strauss “We’re at our best when we are out in hardship posts,” brought to the job skills that are not usually required for Williamson said of the Foreign Service. He said Washington diplomacy but, in this case, were extremely important. “has the best Africa service in the world” because U.S. Certainly few Americans are better versed in the rough and diplomats adjust well to difficult environments. But he said tumble world of free market economics. One wag quipped

DECEMBER 1992 • FOREIGN SERVICE JOURNAL • 25 that sending Strauss to teach the Russians about capitalism world. “Dushanbe and Ashkabad are very difficult because was like sending Bonnie and Clyde to lecture on bank Aeroflot is the only airline that goes there,” the official said. reform. “And in some of the new capitals, there is no banking Strauss has played an important role in the lobbying effort infrastructure so everything has to be paid in cash.” on behalf of the economic-aid package for the republics of Maybe worse yet, the official said, there are no savvy the former Soviet Union, which the administration gave the local employees to help out. “At a normal embassy, the portentous title of Freedom Support Act. As a fonner Foreign Service nationals are the continuity,” the official Democratic national chairman, Strauss has credentials with said. “A new officer can arrive at a post, walk in the door the congressional majority that the president and his other and the Foreign Service national knows what forms to fill aides lack. out, what cables to send, the “Strauss has spent an inordinate contacts, the whole list of admin¬ amount of time lobbying the istrative-type things. In these posts, Congress for the Freedom Support “Popadiuk has the Foreign Service nationals are Act,” said Senator Richard Lugar seven or eight years just being hired and they have no (R-Ind.), a ranking member of the of White House knowledge of State Department Foreign Relations Committee. But procedures,” the official added. Lugar said that the importance of experience and “The officers are having to learn the legislation to U.S. foreign policy close contacts with from scratch the minutest details, objectives made the lobbying job especially in the administrative Brent Scowcroft, one of overriding importance. area, so they can teach [others].” and a lot of more senior officers do In selecting ambassadors for Different strokes not have that.” the republics of the former Soviet Certainly the U.S. government Union, the State Department expects its ambassadors in Eastern insisted that all candidates must Europe and the former Soviet be fluent in Russian, the language Union to perform very different jobs today than it expected that czars and commissars imposed on the regions added 10 or even four years ago. Once the ambassador’s focus to a Russian-dominated empire. There may have been no was on managing an adversarial relationship between real alternative, because very few Americans speak Kazakh sworn enemies. Now he must be a mentor to developing or Uzbek or most of the other local languages. And all top democracies and free market economies. officials in all the new republics do speak Russian, at least “In Eastern Europe, the test is how well the ambassadors as their best second language. can deal with the American private businesses that will be But Paul Goble, a former State Department expert on tiying to move into these countries,” Lugar said. “Clearly the Soviet Far East who is now a scholar at the Carnegie this is the kind of relationship between governments that Endowment for International Peace, believes that the are at peace. That wasn’t true during the Cold War.” administration should have tried harder to find people A State Department official said the U.S. embassies in who speak the local languages, especially Armenian and the former Soviet republics serve as sources of information the languages that are derived from Turkish. Sending for the fledgling governments. “There is no reason why the Russian speakers, he maintains, shows U.S. acquiescence very small foreign ministries of these countries should to a Russian cultural imperialism. have known anything about the incredibly complex arms Williamson insists there was no alternative. “We just control agreements to which they are now parties,” the don’t have any depth of Central Asian language officers, official said. “We can help provide that information. One either here or in the academic world,” he said. “We are of the functions of an embassy is to assist the countries having a devil of a time setting up programs to train people where we can.” who will go in the next tranche. We sent people who While the ambassador and his staff may have a near speak Russian because that is the lingua franca of the area. monopoly on the arcane details of arms control in some of It isn’t easy to train people in those languages and it just the new nations, the new embassy has often experienced takes time.” But, in spite of the difficulties, at least a few a severe shortage of other forms of information. The USIS embassy officers already speak the local language in wireless file is available almost everywhere and is Tajikistan, Moldova, Armenia, and other republics. appreciated as an important source of information. However, according to a State Department official, “Some posts are Two worlds feeling very isolated because of a lack of media. Some can For Ukraine, almost certainly the second most important get CNN, but some are totally isolated except for shortwave state evolving from the former Soviet Union, Bush selected broadcasts from the BBC and the VOA. In the kit we sent an ambassador who does speak the language and seemed to each new embassy, we included a television, a VCR, and to have a foot in both the professional and political world: two shortwave radios.” Roman Popadiuk, a Foreign Service officer, but one with It is also incredibly difficult to travel in some of the new very close ties to the White House. Popadiuk was the chief countries, either within the republic or to the outside (continued on page 29)

26 • FOREIGN SERVICE JOURNAL • DECEMBER 1992 DIFFERENCES IN STYLE BRANDON GROVE JR. TALKS ABOUT CAREER VS. NON-CAREER AMBASSADORS

Let me talk first about non-career people... . Very often Unrealistic expectations these people are successes in what they did before, On the debit side of the ledger, again, political appointees and they’re accustomed to success.. . . This can be a sometimes come to their jobs with too much enthusiasm minus and a handicap once they are ambassadors if they go about what they can get done, an unrealistic view of the to difficult countries. I think that one of the toughest things prospects in the relationship, and an insecurity which can be for non-career people to understand is that holding the line, quite translatable to an embassy staff, about their role, in terms of the American/foreign country relationship, can about their authority, and about what they should do when itself be a good outcome, that surviving real stresses and they get out of bed in the morning and go to the chancery. strains can be a reflection of success in a relationship. I happen to have served under more political ambassadors People who don’t know this by being in our profession are than career ambassadors. They need careful handling (and often shocked that they can’t get more done more quickly and this is where the DCM [deputy chief of mission] comes in), achieve the public recognition they are used to having, for careful understanding in terms of what their sense of goals their work as ambassador. and objectives is, and an understanding, on the part of the Non-career people are often good with other people. DCM and the embassy staff, of the inevitable adjustmentthat They’ve got a good sense of public relations. Many of them a non-career person goes through in arriving at an embassy are extroverted in a positive sense. They have a keen nose if they haven't had a lot to do with embassies before. That for public diplomacy, for dealing with the media. Many of said, non-career people can be a lot of fun at a post, for many them are smart negotiators, particularly those who have of the reasons I mentioned before. come from the business world. A good sense of how to cut . . . [Tjhe most intimate relationship at an embassy is adeal. Many ofthem are gifted leaders in terms of organization, between the ambassador and the DCM. It becomes very sophisticated in the kinds of training that they have had and complicated, potentially at least, if the ambassador is non¬ experience they have had in running things—not immediately career and inexperienced in foreign affairs. [There is a] need translatable in every way to running an embassy. fora "psychological contract" between the ambassador and But there is a lot there of managerial experience and the DCM. It’s critical, in the relationship, to the prospects for sophistication that can be very impressive. They tend also to success of an inexperienced political ambassador or of a be problem solvers. Their instinct is to get things resolved veteran Foreign Service officer. and to move on from there, something that doesn’t happen that readily in foreign policy, where monstrosities like the Depth of knowledge Berlin Wall goon for decades, and you learn to live with them. Foreign Service people, and I would include in that people At the same time, such people can lack depth in understanding who have had extensive experience in foreign affairs in other the foreign policy issues themselves, and are often agencies—USIA, USAID, occasionally the military, occasion¬ inexperienced in how the bureaucracy works. I think one of ally CIA—very often have great depth in languages, areas, the most notable differences between even the very best non¬ and issues in specific context, when it comes to individual career and Foreign Service ambassadorial appointees is that countries or regions, and even globally. They have a sense of the Foreign Service side of the house knows the bureaucratic U.S. purpose worldwide which they have acquired over many map, and the political people tend to be increasingly horrified years of experience. They are the experts in a very real way as they understand how our bureaucratic system either does more often than not. They are, if they’re any good at all, very or does not work. savvy about bureaucratic politics. They know how the sixth People who come from outside the Foreign Service, on the and seventh floors in the State Department work. other hand, often have a very sophisticated understanding of Just as important, they understand the interagency process, our political system and how it works. ... To a remarkable the legitimate roles of other departments, sometimes the extent, such people can quickly empathize with leaders of preponderant role in specific issues of departments such as other counties. They feel that they’ve shared the same the military, Treasury, Agriculture, for example, but not to the dilemmas, that they have a unique understanding of what political heat is really all about. continued on next page

DECEMBER 1992 • FOREIGN SERVICE JOURNAL • 27 exclusion of the primacy of the secretary of state in foreign tatives, actively promoting American trade and exports, is a affairs. On occasion foreign affairs issues are the legitimate, central responsibility of an ambassador. It’s a new function for preponderant interests of other departments and agencies, some people; they’re not as good at it sometimes as they something which is clearly understood by good people on the should be. Foreign Service side. I also think Foreign Service officers occasionally are media- They are experienced in the conduct of diplomacy because, shy and public relations-shy, too timid in public diplomacy. I from vice consul on, they have had a number of assignments, don’t mean any heavy-handed propagandistic efforts. I do probably in different parts of the world. [They are] at home mean utilizing those tools that USIA provides, speaking en¬ within the foreign culture itself. Not just among other diplomats gagements, a press policy, for maximum effect forward accom¬ at a post, and not just with the government, but in that culture. plishing U.S. purposes.... [Wje could do better in seizing the They are, in fact, recognized by everyone in the host country possibilities, in a media age, for very broad communication with concerned with foreigners as being professional outsiders from the people of a country about ourselves as people, that the United States. There are subtleties. I think style is impor¬ modern-day media techniques provide. tant. And there are certain rules that govern this. . . . Those Sometimes Foreign Service officers are too much focused within the Foreign Service, I think, have a concept of service not just on Washington but on the Department of state. This is itself, of service to country, which is very strong. It transcends not to denigrate the primacy of the secretary of state, the the partisan feelings that each one of us has, is more extended responsibility of assistant secretaries forconduct of ourforeign and expansive than the immediate allegiances of political policy, ortheirorigins within the State Department themselves. appointees to any given administration, but does not in any It is to say that there are other legitimate players, and that you sense mean that the Foreign Service person would be less loyal are the president’s ambassador and notthe State Department’s or less dedicated or less supportive. ambassador. It’s just qualitatively different, this concept of service, [An ambassador] is the president's ambassador. And there because you’ve lived it all your life. You’ve lived it through are times when [the ambassador] will disagree with the State hardships. You’ve lived it in the sense of developinga long view Department, will... believe that another agency is closerto the of the U.S. purpose and of the nature of U.S. representation, mark in what it is advocating than are the views of the the financing of programs, the structure of embassies, the department of State. This is a tough dilemma. Handling that, staffing of embassies, the communications between embas¬ arguing it, is very delicate. It takes a certain amount of courage, sies and the department, and the whole world of what that but it’s essential to do it. When we fail to provide a broader view relationship means. All of these things are matters on which about the interagency aspects within an embassy, I think we’re we’ve worked one way or other in our careers. letting the team in the State Department down. To refer to a point I made earlier about non-career people, On the question of policy, an ambassador is, after all, those in the Foreign Service often recognize that strained supposed to reflect the president personally. You are the relations with the host country can be the best you can hope personal representative of the president of the United States for under the circumstances, and are not so “success driven” and therefore of the policy views of the president and of the as some of their political colleagues can be. administration. This is as true of Foreign Service ambassadors Now there are also, of course, weaknesses that Foreign as it is of political appointees. You serve a president person¬ Service people have and display, and they’re not necessarily ally, and you take on the character of the administration as you generic any more than the strengths or weaknesses of political represent our country abroad, at any given moment and under people.... These weaknesses can include micro-managing— any given president. This can sometimes be difficult for Foreign the ambassador who just can’t let go of the details of the Service people who, after all, have their own sets of values and operation of an embassy, or the economic section if that political beliefs. It can cause non-career people to be excessive person primarily had economic experience, or of the political in their zeal, in an ideological way, in representing the United section if that person is primarily someone who has been a States abroad. . . . But . . . any ambassador is not the political officer—can’t release to the DCM what the DCM needs Department of State’s ambassador but the president’s am¬ to have to be the manager of an embassy under the direction bassador. ■ of the ambassador. That’s a big problem for many of our colleagues. This excerpt is from American Ambassadors in a Troubled Sometimes I think Foreign Service people tend to take a World, Interviews with Senior Diplomats, edited by Dayton smaller view of their responsibilities than they should. By that, Mak and Charles Stuart Kennedy, Greenwood Press, for example, I mean that the outreach to the American business Westport, CT., 1992. Copyright © by Dayton Mak and community is sometimes astonishingly poor. It is hard for some Charles Stuart Kennedy. Order from Greenwood Press at of us to realize that dealing with American business represen¬ 800-225-5800, ext. 12.

28 • FOREIGN SERVICE JOURNAL • DECEMBER 1992 foreign policy spokesman and media contact for the chamied Hungary’s reform Communists while maintaining president and National Security Adviser, Brent Scowcroft. ties with the Democrats who ultimately gained control. He Of Ukrainian extraction, Popadiuk is fluent in Ukrainian. played tennis with the prime minister, became a regular But this is only Popadiuk’s second overseas posting and fixture on Hungarian television and advised both Americans he was not promoted to the Senior Foreign Service until and Hungarians about how to profit from the changing just before he left for Kiev. To some, he seemed to be a political climate. fairly junior officer to be named ambassador to a country When the reformist Communist regime in Budapest with 50 million population and, for the time being at least, started pulling down the fence that for decades had a nuclear arsenal. One department official who helped marked the border between Hungary and Austria, the prepare the lists of potential government mounted snippets of candidates for posting in the former the rusty barbed wire on plaques, Soviet republics, said Popadiuk which they gave to important may be about one grade below Palmer did nothing visitors like President Bush and that of most ambassadors. But the more than follow his sold to others as pieces of “the official added, “He has seven or own advice, which iron curtain.” The idea is widely eight years of White House expe¬ believed to have been Palmer’s. rience and close contacts with was available to all As the Communist reformers Brent Scowcroft, and a lot of more potential American gave way to a democratically senior officers do not have that.” businessmen. But... elected regime, many saw new Although Popadiuk is the son business opportunities. Around of immigrant parents, the Baker and his top aides considered the New Year’s day in 1990, Palmer appointment produced some ambassador’s activities to be a helped to form an investment controversy in the Ukrainian- serious conflict of interest. company, Central European De¬ American community. His detrac¬ velopment Corp., to cash in on tors complained that Popadiuk what he once referred to as a showed little interest in Ukraine “gold rush.” or in the Ukrainian-American community until the possibility He had planned to remain as ambassador for the first of an ambassadorship opened up. half of 1990, leaving sometime in July. But when Baker Eugene Iwanciw, director of the Washington office of learned of Palmer’s private business plans, he hit the roof. the Ukrainian National Association, rejects such criticism. Palmer left Budapest in early winter. Palmer did nothing “I think people are proud that the son of an immigrant, more than follow his own advice, which was available to someone born in post-World War II Europe is the first all potential American businessmen. Certainly, he was ambassador to the Ukraine,” Iwanciw said. “I know the never charged with acting illegally. But there is no question Ukrainian government welcomes him. Early on, there was that Baker and his top aides considered the ambassador’s some disappointment when the appointment was activities to be a serious conflict of interest. announced only because Evans and Novak had floated the There have been only a few non-career ambassadors in idea of [former National Security Adviser Zbigniew] the former Soviet Union and its one-time allies in recent Brzezinski or [former Senator and White House Chief of years, so it is difficult to compare the performance of the Staff] Howard Baker. Some people wanted a big name.” professional ambassadors with that of political appointees. But there is general agreement that the career Foreign The right side of the line Service officers who held the jobs deserve high marks. The purpose of sending an American ambassador to a “Highly professional people ought to be assigned to new republic in the foimer Soviet Union or elsewhere in extremely complex situations,” Lugar said. “I think we Eastern Europe, or any other region is to have him represent have been well served by those who were sent to the U.S. interests, not the interests of the host government. In former Soviet Union and Eastern Europe.” theory, at least, professionally trained Foreign Seivice officers In the final analysis, every ambassador must be judged are more effective than non-career political appointees in on his own skills and on his own achievements. Without identifying that line and in staying on the right side of it. But question, some of the nation’s ablest ambassadors have it does not always work out that way. been political appointees like Ellsworth Bunker, David “Clientitis happens to everybody,” Atherton said. “Career K.E. Bruce, W. Averell Harriman, and Arthur Burns, to cite people are not immune to it; I don’t think anybody is.” Of only those who have served in this century. all the U.S. ambassadors in Eastern Europe during the But when choosing ambassadors for the new republics, collapse of communism, no one went about the job of the decision was clearly made to avoid risks. With trained promoting democracy and free market capitalism with Foreign Service officers, there are fewer costly blunders. more flamboyance than Robie Marcus Hooker Palmer, And, so far at least, that’s the way it has worked out. ■ envoy to Hungary from June of 1986 until January of 1990. Palmer, a career Foreign Service officer who ranked Norman Kempster is diplomatic correspondent for The among the department’s top experts on the Soviet Union, Los Angeles Times.

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Order with confidence Write for free catalogs: American Supply International, Inc. • 100% satisfaction guaranteed. • FREE replacement of products P.O. Box 1207 stolen or damaged in tne mail. Bryans Road, MD 20616 • American Supply is dedicated to Phone: (301) 283-0151 the Foreign Service. FAX: (301) 375-8006 1993. Future Reserve candidates will applicants will be notified by letter Foreign Affairs be processed as their applications when certified and will be taken into Reserve Corps come in from newly retiring State For¬ the FARC for a four-year period (after eign Service and Civil Service employ¬ which they may apply for a new four- imminent ees, currently reemployed annuitants year period). Their names will be reg¬ By Ward Thompson of the department who wish to transfer istered in a skills bank. The FARC Retiree Liaison to the FARC, and other State retirees coordination center in the Office of Re¬ Activation of the Foreign Affairs Re¬ who were not available for the FARC tirement and Career Transition will serve Corps (FARC) appears imminent, in the initial application period. De¬ provide a monthly listing of the regis¬ although the Department of State is still partment officials anticipate that even¬ tered Reserve Corps members to the wrestling with last-minute technical ar¬ tually the FARC will include most department’s bureaus and will re¬ rangements and occasional bureau¬ re-employed annuitants, reflecting the spond to bureau requests for names of cratic inertia. AFSA continues to work advantage of having a centralized, pre- reservists possessing particular skills. with department officials to identify processed pool of reservists available The bureaus will contact reservists di¬ and overcome obstacles and to make to meet personnel needs. rectly to make reemployment arrange¬ sure that the FARC meets the expecta¬ What about retirees of foreign af¬ ments for each short-term assignment. tions of those hundreds of State retir¬ fairs agencies other than State? AFSA The coordination center will make ees who have volunteered for it. has secured State’s willingness to ex¬ a note in the register of those reservists The FARC was on the agenda for pand the FARC to accommodate other- who enter into re-employment ar¬ AFSA President Bill Kirby’s initial calls agency retirees-if the agencies rangements, but the files of such re¬ on Acting Secretary Eagleburger and themselves decide to participate in the servists will remain active. While there new Director General Holmes, both of FARC. We will work with these agen¬ is no guarantee that a reservist will be whom expressed strong support for cies with the aim of bringing them into offered employment, those who are the Reserve concept. The concept the program soon, so that all of our re¬ readily available will be most likely to moved closer to reality in October, tired foreign affairs colleagues will be be called. when State Vice President Joe Melrose eligible to apply for the FARC. Reserve met with Office of Retirement and Ca¬ reer Transition Director Walter Lundy, responsible for administration of the AFSA president presents hurricane relief checks FARC. That meeting produced agree¬ ment on procedures for hiring reserv¬ In Miami, AFSA President William Kirby handed over checks totaling ists, as well as on the need for more than $16,000 for distribution flexibility in meeting the underlying to employees affected by Hurri¬ FARC goal of making retiree expertise cane Andrew at the Miami Pass¬ available quickly to meet the needs of port Office and the State the department. Department Miami Regional Cen¬ ter. AFSA members donated Of the nearly 500 retirees who ap¬ nearly $24,000 to assist State De¬ plied for the FARC, about one-third partment employees and their have been retired less than a year and families affected by the storm. do not need an extensive security Jamiss Sebert (left), head of the clearance process. Their names will go Passport Office and Dianna Ritter (right), director of the Miami Re¬ into the FARC register as soon as their gional Center, which is now lo¬ files are processed and will form the cated in Ft. Lauderdale, accepted initial pool with which the FARC will the AFSA donations on behalf of be activated. The remaining applicants the assisted employees. are expected to be certified by early

DECEMBER 1992 • AFSA NEWS • 1 tinued phenomenal change around due in large part to our successes. We AFSA Governing the world, the presidential election now have for the first time ever a Board Retreat campaign, and the imminent publica¬ USAID vice president authorized to de¬ tion of studies which could have pro¬ vote full time to the concerns of our By William A. Kirby found consequences for the Service. USAID colleagues. At this time of un¬ AFSA President In the most general sense, the board precedented uncertainty about the fu¬ The AFSA Governing Board met concluded, on the one hand, that AFSA October 23-25 for its second annual ture of USAID, this is a most important is successfully carrying out its mission planning retreat. The commitment of development. In addition, we are cau¬ both as a union and as a professional the members of the board to their re¬ tiously hopeful that we will suceed in organization, but on the other, that this becoming the exclusive bargaining sponsibilities on behalf of AFSA was is no time for complacency. There is no agent for Foreign Service employees at demonstrated by the fact that 16 of the reason for radical change, but there are USIA. These two developments bring 19 members devoted a beautiful fall areas for either consolidation or im¬ weekend to in-depth discussion of the expanded responsibilities in our role provement. future of the association. One member as a union, but they also provide the As an organization, we can take was unable to attend because he was opportunity to upgrade our labor- getting married the same day. pride in the continued growth that has management resources. This we are resulted in a membership that recently doing, and all members of all of our The Governing Board meets every passed 10,000. But we can still do bet¬ other week—and the Executive Com¬ bargaining units should benefit. ter in convincing specialists and junior mittee on the odd weeks—to carry out Growth has also occurred in our officers in particular of the importance the business of AFSA. The retreat is not outreach activities, which have as their of AFSA to them. The Membership just a longer board meeting but rather purpose bringing the message of the Committee is charged with developing provides an opportunity to take a Foreign Service to as wide a public as ideas for making AFSA more relevant broader look at where the association possible. Our new Speakers Bureau is and where it and the Foreign Service to all members—and especially poten¬ has already sent several qualified indi¬ tial members. are going. viduals to the heartland of America and This seemed particularly relevant AFSA’s union activities will face we have an impressive array of re¬ this year against the backdrop of con¬ special challenges in the coming year, quests from all over the country and a long list of willing volunteers. In addi¬ tion, our Minority Mentoring Program from the State vice president has provided most of last summer’s State Department minority interns with FSNs give to hurricane fund mentors, drawn from the ranks of re¬ by Joe Melrose tired Foreign Service personnel living As previously reported, shortly after Hurricane Andrew struck Florida, near their schools. The goal is that each AFSA established an emergency fund to assist those State Department employ¬ of these former interns will one day ees affected by the storm. While the effort has been successful to date, the enter the Foreign Service themselves. drive to collect funds continues. AFSA has distributed 27 checks to State De¬ Our outreach programs are not partment employees and their families who were severely affected by Hurri¬ funded by member dues, but rely on cane Andrew. Checks disbursed up to this point total over $18,000. contributions. It is necessary for these Donations were received from more than 250 individuals and groups, again new activities to put down solid roots demonstrating the generosity and caring that have long been hallmarks of the and prove themselves successful over Foreign Service community. One donation of $500 deserves special recogni¬ time. We are therefore in a period of tion. That check was from the Foreign Service Nationals’ Association in Thai¬ consolidation as regards our outreach land. Often, we and the agencies that we serve forget about the most numerous and will be taking the occasion to ex¬ group of employees in our Foreign Service, the Foreign Service Nationals. The amine how we can enhance our ability world-wide community of FSNs forms an integral part of the family of State, to raise funds to support such pro¬ USAID, and USIA employees. I welcome this opportunity to express our ap¬ grams in the future. preciation for their loyal support at this time when their American colleagues The retreat also spent time talking are in need. about specific issues near and dear to The need for additional funds continues as AFSA strives to reach every em¬ members and which you will hear ployee who has been gravely affected. AFSA has worked closely with the di¬ more about as they arise-housing, ju¬ rector general and her staff along with personnel of the bureaus whose nior coning, EEO matters, travel regu¬ employees were affected by the hurricane to identify those most in need. We lations, spousal employment and the have sought to move the disbursement process quickly and efficiently. While like. In the meantime, and as always, the total funds received have reached nearly $24,000, contributions are still we need to hear your views. AFSA is welcome. If you have not done so already, please consider giving to the Hur¬ your association and should meet your ricane Relief Fund. needs.

2 • AFSA NEWS*DECEMBER 1992 from the USAID vice president USAID, AFSA, and change by Carey Coulter course. The question is not whether fully represent the literally tens of Changes on the international scene change is coming or whether it is de- thousands of years of collective expe¬ in recent years have been dramatic, sirable-it is both. The question is what rience of the USAID career Foreign profound, and heartening. With the re¬ form change will take, and how it will Service in conceptualization and im¬ moval of the Cold War as the central be implemented. We believe that plementation of development pro¬ theme of U.S. foreign policy, new ho¬ USAID’s Foreign Service has a valu- grams. In any attempt to formulate rizons have opened for the advance¬ able-indeed, essential-contribution what you describe as ‘the best, most ment of America’s positive agenda for to make. AFSA’s position was summed cost-effective mechanism for provid¬ constructive change in the world. up in a letter sent by then-USAID vice ing our aid,’ the voice of USAID’s ca¬ USAID has been a primary vehicle for president Bill McKinney to Patrick J. reer Foreign Service development advancing that positive agenda. As the Leahy, chairman of the Senate Appro¬ assistance practioners, whom AFSA world has changed, so have we, with priations Committee Subcommittee on represents, should be heard. major new emphases on free and open Foreign Operations: Contrary to your description of our markets, democratization and the en¬ ”We note your recommendation to agency as ‘tired, weak, and dispirited,’ vironment; important initiatives to as¬ the president that a conference on for¬ you will find USAID’s career Foreign sist Eastern Europe and the CIS states eign aid be convened after the elec¬ Service to be vigorous, committed pro¬ in their transition to political democ¬ tions. ... If such a conference is held, fessionals, willing and able to make an racy and free economic systems; and the American Foreign Service Associa¬ important contribution to any deliber¬ much more. tion (AFSA) should be at that table. The ations on the future of the U. S. foreign The world will continue to change political leadership of USAID would assistance programs I urge you and at a rapid pace in coming years. have a legitimate and essential role in your subcommittee to take advantage USAID also must continue to change representing the policy perspective of of the valuable resource which our if we are to maximize the contribution the administration regarding foreign membership represents." that our experienced, highly qualified aid programs. However, they cannot development professionals can make. The calls for further change in How does free money for your child’s USAID are now widespread and vigor¬ education sound to you? ous. They are internal and external, from both major political parties, from | 1993-1994 scholarship applications available the legislative and executive branches Eligibility: Dependent students of all Foreign Service personnel in State, ! of government, and from interested j USAID, USIA, Commerce, or Agriculture who have served abroad, private-sector individuals and organi¬ j Merit Awards: For graduating high school students in 1993 only, based \ zations. In some cases these calls for \ on academic merit. change contain unfair and inaccurate Financial Aid Awards: For full-time undergraduate students in the United i attacks on USAID and its career ser¬ j States, based on need. j vice. In such cases we will, as Bill Mc¬ Special Foreign Affairs Study Awards: For full-time rising junior or se- i Kinney wrote in the November j nior college students with a major in the field of foreign affairs. Journal, ”be passionate in our own de¬ I Deadline: Applications become available in October 1992 and must be : fense." If we are not, who will be? But \ completed and returned to AFSA before February 15, 1993. equally important, we are eager to i Contact: For more information and a 1993-94 AFSA Scholarship Programs j contribute in a positive way to a con¬ \ application, clip this coupon and mail today to: AFSA Scholarship Department, ; structive process of change. j 2101 E St. N.W., Washington, D.C. 20037. FAX: (202) 338-6820. We in USAID do not fear change. ; i Indeed, change is at the very heart of { Name \ our business. Do we want a clearer | mandate, appropriate to evolving U.S. l Address foreign policy objectives and changing international realities? Unequivocally, yes. Do we want internal procedures Telephone and organizational structures better suited to carrying out that mandate? Of \ Student(s) name

DECEMBER 1992 • AFSA NEWS • 3 and single parents receive the same Members voice space allocation. However, a single Dues Increase housing concerns parent needs additional bedrooms, en¬ AFSA last raised dues in 1989. Not tertainment, and study areas for chil¬ surprisingly, costs for personnel and By Joe Melrose and Julie Smithline dren. AFSA believes single parent operations have increased over this AFSA’s consultations with the de¬ families should be treated the same as period. While inflation is partially re¬ partment on housing continue. (Hous¬ married couples with children in allo¬ sponsible for this increase, there has ing is not a negotiable issue). Posts will cating space. been a small increase in staff. This staff have seen the ALDAC cable detailing • Seniority issues: Seniority, par¬ increase enables us to pursue a more our comments that were submitted to ticularly in those specialties with lim¬ aggressive and active posture vis-a-vis State. Additionally, we have received ited upward mobility, does not now Congress and to upgrade our labor many comments about how the pro¬ affect space allocation. For example, a management efforts. The number of gram is faring at individual posts. A single senior secretary and a single grievance cases also continues to high proportion pointed out the inflex¬ first-tour secretary are allocated the grow, and for the first time, we now ibility of the policy. Many comments same amount of space, although they have a full-time USAID vice president. indicated that cheaper, larger houses have very different responsibilities and Frequently we are asked about the were released for smaller, more ex¬ needs. AFSA recommends that addi¬ relationship between outreach and pensive houses. The department ac¬ tional space be allocated to employees other professional programs to dues. knowledged the potential for with 12 or more years of service. Such programs are virtually self-sup¬ misunderstanding in this area and State The housing program is an exam¬ porting. Our financial position is cur¬ cable 269551 was sent to rectify the sit¬ ple of an issue in which the AFSA chap¬ rently sound, and a modest dues uation. Since the issue of size in rela¬ ter at post can play an important role increase will ensure that it remains so tionship to cost has been addressed, in assisting and determining how local our comments focused on four addi¬ and also will allow us to take initiatives issues are handled. Post-specific issues in the labor-management area. tional concerns: regarding the implementation of the A- To meet new goals and to continue • Insufficient space allocation 171 program should be addressed at the work AFSA has done on behalf of for singles: Married couples and sin¬ post, at least initially. These might in¬ its Foreign Service constituents, the gles are allocated the same amount of clude whether or not to request a Governing Board has approved a shipping allowance, but a single em¬ housing exception based on signifi¬ slight increase in 1993 membership ployee is expected to live in a house cant representational activities. The dues. This increase is in accordance or apartment that is significantly housing pool should be a positive with the bylaws, which allow a dues smaller. AFSA urged the department to means of handling a very difficult sit¬ increase of not more than the cumu¬ allow single employees and married uation, but much depends on the im¬ lated increase in the CPI since the last couples equal amounts of space. plementation. increase. Dues have not been raised to • Insufficient space allocation In the future we intend to provide the maximum amount allowed. The for dependents away from post: a package of information on how post Board has also designed a more equi¬ The policy allows one additional room chapters can better fulfill their overall table dues structure, with smaller in¬ for every two dependents not residing labor management role at individual creases for the lower ranks. Increases at post for more than 51 percent of the posts. range from 6.25 to 13.9 percent. year. This policy presents problems for families with children away from post on educational allowances, especially New membership dues beginning January 1, 1993 if the children are of different sexes or Grade Dues Bi-weekly allotment have large age differences. Such lim¬ FE-CA, FE-CM, FE-MC, FE-OC $188 $7.25 ited space is inconsistent with the U.S. FS-1, FS-2, FS-3 $165 $6.35 practice of maintaining a child’s room FS-4, FS-5, FS-6 $125 $4.80 for his/her return over vacation or hol¬ FS-7, FS-8, FS-9 $85 $3.25 idays and could have a negative im¬ Retired members pact on the child. AFSA requested the Annuity over $35k $62 department to consider children away Annuity between $25k-35k $55 at school on either of the post educa¬ Annuity under $25k $45 tion allowances to be allowed a space A new category of Life Membership has been established exclusively allocation equal to children residing at for retirees. Those retirees who wish to become Life Members may do so for post full-time. a one time payment of $1,000. (Active members who choose Life Membership • Single-parent needs: The new will continue to pay $1,500.) housing regulation does not address Annual dues for Associate Members, currently $45, will be $50. the different room configurations and For active members who are paying dues by payroll deduction, the additional space needed by a single increase will be implemented in the first pay period of the year. parent. Presently, married couples

4 • AFSA NEWS*DECEMBER 1992 search and development as a critical vestments don’t always pay off in the means of sharpening the overall com¬ immediate future, he noted, but they petitiveness of the American economy; "do establish a foundation... They are Targeting R&D but more important than the amount at the cutting edge of economic com¬ for competitive of money so deployed is its focus. petitiveness." This theme resonated at an October Dr. Roger Porter, assistant to Presi¬ advantage 6 AFSA symposium on R&D. The key¬ dent Bush for economic and domestic by John J. Harler note speaker, Dr. D. Allan Bromley, di¬ policy, suggested that "the technolog¬ The president of the United States rector of the White House Office of ical frontier" will exercise the same should, this coming January, put forth Science and Technology Policy, told force in shaping the future of America a series of interrelated proposals de¬ the conference the United States is on that the Western frontier did in deter¬ signed to encourage the American the verge of a golden age of discovery mining the American spirit. He noted people to invest more resources in re¬ in science and technology. R&D in¬ that we live in "an increasingly inte¬ grated global economy. . . [in which] the rapid diffusion of ideas, processes, newsbriefs and innovations now dominates the international economy." Review of Skill Code Change Regulations. The department has pro¬ Other key points stressed by confer¬ posed changes to the regulations governing Skill Codes and Occupational ence panelists included the following: Categories (3 FAM150). AFSA is reviewing these changes and expects to begin • The emphasis of public policy is negotiations shortly. One major change which AFSA applauds is the creation turning from a geopolitical to a of a procedure that allows specialist personnel who have demonstrated their geoeconomic focus, from ideology to abilities in a skill group other than their primary one to redirect their career reality, from process to outcomes. The path by changing to a new specialist group. These regulations appear to have United States must be concerned flexibility by allowing the director general, under exceptional circumstances, about where the most advanced pro¬ to designate additional personnel functional skill areas for conversion in areas duction will take place in the world that are not specifically in deficit. AFSA will provide updated information on and our part in it; these changes as negotiations progress. • Extraordinary resources have Changes in Packing and Shipping Procedures. Effective November supported military R&D. Comparable 1, the department has begun assigning and scheduling packing and storage government allocations must now be contractors to individuals. The department has also begun a pilot program directed to commercially useful activi¬ using the international through bill of lading (ITGBL) to a limited number of ties in the civilian sector; posts. Under the pilot program 50 percent of the shipments to these posts • The most important influence on will be sent via the international through bill of lading, while the remainder our international competitiveness is are sent under the current system. AFSA provided input to a Department not the government’s technology pol¬ Notice concerning this program and will shortly be contacting the AFSA Rep¬ icy but the overall economic environ- resentatives at those posts slated for the pilot program. We will be asking post representatives to have all new arrivals fill out a questionnaire on their experiences with either procedure. "Weingarten Rights" Reminder. Foreign Service employees within Sustain the Tradition of AFSA’s bargaining units are reminded of their right to have an AFSA repre¬ Excellence sentative present during interviews conducted by the inspector general or dip¬ Remember to nominate outstanding lomatic security officers, if they believe the interview will result in disciplinary colleagues for the annual AFSA action. Your "Weingarten" right is available when you are the "target" of the awards. Awards are conferred on a se¬ investigation or when you have merely been contacted as a "witness" (subject nior officer, a mid-level officer, a junior to the condition that you believe you may be disciplined). Because Foreign officer, and a Foreign Service secretary Service agencies only announce your right to union representation annually, or group of secretaries. A Foreign Ser¬ you will not be reminded of this right during the course of an IG or DS in¬ vice family member is honored for vol¬ terview. It is incumbent upon you to request union representation, preferably unteer service, and a number of prior to the interview. AFSA’s attorneys, Colleen Fallon and Sharon Papp (647- awards are given for achievement in 8160), are available to assist you. the study of hard languages. Voluntary Contributions Update. AFSA has been investigating legisla¬ The deadline for nominations is Jan¬ tion which could reinstate voluntary contributions to the Foreign Service re¬ uary 31, 1993. Details are in the No¬ tirement system. AFSA State Vice President Joe Melrose and AFSA Staff vember issue of the Foreign Service Attorney Colleen Fallon recently met with a member of Senator Robb’s staff Journal and in a letter mailed to all ac¬ to explain our proposals. At this time prospects look favorable for the senator tive duty AFSA members. Questions? to introduce appropriate legislation in the next Congress. Contact Richard Thompson, 2101 E Street NW, DC 20037, tel: 202-338- 4045, FAX: 202-338-6820.

DECEMBER 1992 • AESA NEWS • 5 ment in which our businesses operate. AFSA Views Strengthing the Foreign Service As long as the political system treats The structure, management and corporations as all powerful, we per¬ continued from page 2 staffing of foreign affairs agencies must petuate a climate that is non-condu- To be faithful to the past and re¬ be comprehensively reexamined if we cive to capital investment—and it is sponsible vis-a-vis the future, it is in are to realize the full potential and capital investment that creates jobs and our highest national, long-term inter¬ promise of diplomacy in promoting increases the tax revenue base; and est: first, to remain the flagship for de¬ prosperity, stability, and peaceful • Our greatest technological asset is mocracy and market forces around the change. Greater efficiency, flexibility, not the technology we create, but the world by actively supporting political and creativity are fundamental watch¬ people who innovate-the scientists and economic reforms; second, to in¬ words in seizing the opportunities of and the engineers who work for the vest our moral authority and national the post-Cold War era. corporations and the government. strength to promote global prosperity Specifically, as a first step, we urge Panelists at the symposium in¬ while building multilateral coalitions an across-the-board management reo¬ cluded senior R&D executives at to counter global threats. rientation to decentralize authority, re¬ AT&T, Air Products and Chemicals, U.S. leadership and national com¬ sources, and responsibility from General Motors, Gillette, IBM, Merck, mitment in building a global anti-Com- central headquarters to action officers the Pharmaceutical Manufacturers As¬ munist coalition were vital to success abroad. This will entail a reversal of the sociation, Thermo Electron, and 3M, in ending the Cold War. That commit¬ growing tendency to micromanage corporations that also contributed fi¬ ment is no less urgently required in the field operations which diverts re¬ nancial resources to help pay for the post-Cold War world. The goals of sources and energies from programs to conference. (Allied Signal, Chevron, peace, justice, stability, and sustain¬ costly, unproductive, and unessential Ford, General Dynamics, ITT, Intel, able economic progress in a healthy paperwork. and Pfizer also provided financial global environment, have universal Examples of intrusive microman¬ grants to support the conference.) application and are inseparable. agement include current efforts to pre¬ This was the 15th of a series of AFSA We understand the temptation of scribe Foreign Service housing and conferences initiated in 1989 to foster reverting to a simpler era of isolation travel norms. The proposed regula¬ improved dialogue and better under¬ and single-minded concentration on tions are rigid and nonuser-friendly; if standing between the Foreign Service domestic affairs. To succumb to such approved, they would result in heavy and U.S. corporation executives. a siren song at this critical time of test¬ additional administrative costs at the AFSA will publish a "Plighlights Re¬ ing, however, would demoralize and expense of program effectiveness port" on the conference in January. discourage the forces of freedom and overseas. Any AFSA member wishing a copy economic reform that we have stead¬ Second, training and recruitment should contact AFSA headquarters. fastly supported and nurtured. must match service needs and person¬ In brief, we consider continued U.S. nel resources. The selection of career leadership an essential, critical force in candidates should reflect the needed deciding which principles and values generalist skill codes with adjustments Scholarships available will prevail. In sustaining this U.S. coming through the mid-level entry The following schools offer schol¬ leadership role, the Foreign Service program and transfers among "cones." arships to dependents of Foreign has the capacity to provide informed Specialists should have a viable career Service personnel. For more infor¬ policy counsel and professional im¬ pattern in each speciality as well as op¬ mation contact the AFSA Scholarship plementation. portunities for upward mobility and Office, 2101 E St. N.W., Washington * First, we can spearhead the use of skill-code transfers for all specialists. D.C. 20037 FAX (202) 338-6820. diplomacy’s full potential in promoting Third, as a matter of priority, enter¬ Secondary Schools U.S. economic interests and building ing officers should be actively re¬ the multilateral coalitions that are in¬ cruited to reflect our country’s The American School in Switzer¬ dispensable in addressing the critical diversity—ethnic, racial, and social. land (TASIS) and TASIS England; issues of our time. In summary, the central focus of the Castilleja School; Dana Hall School; * Second, we can invigorate U.S. personnel policies of foreign affairs The Foxcroft School; Grier School; public diplomacy and consolidate agencies must henceforth be geared to Miss Hall’s School; Middlesex support for democratic and free mar¬ achieve greater adaptability, flexibility, School; The New Hampton School; ket reforms through programs of edu¬ and efficiency. The objective is to meet Northfield/Mt. Herman School; The cational and cultural exchange. the imperatives of changing service Phelps School; Phillips Academy; St. * Third, we can implement eco¬ needs without endangering the princi¬ Albans School; St. Andrews School; nomic development and humanitarian ples of the career service. Vermont Academy; Wykeham Rise. programs that are the indispensable Colleges basis for peace and stability by helping The above remarks are ex¬ to reduce the gross disparities between cerpted from an AFSA policy Dartmouth College; Vassar Col¬ peoples of the developing and devel¬ paper. lege; Yale University. oped world.

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F | or 22 would-be ambassa¬ dors and other aspirants to high diplomatic office, 1992 was a heady period, at least for a while Their nominations by President Bush had sent their hopes soar¬ ing, and the last hurdle in their way was Senate confirmation. But the only thing the Senate confirmed before adjourning in October was the suspicion of many of the 22 that the system ILLUSTRATION BY DAVID CHEN for approving diplomatic appointees is in acute need of overhaul.

BY GEORGE GEDDA

DECEMBER 1992 • FOREIGN SERVICE JOURNAL • 31 It is a system that enables an individual senator to block was broad agreement among senators that John F. Bookout, nominees on the basis of whim; it matters not what the a friend of Bush’s and a former CEO of Shell Oil Co., other 99 may think. And life for nominees—as some of should be approved as ambassador to Saudi Arabia. But these 22 learned—is even more harrowing and Senator Harris Wofford, (D-PA), believed it would be a unpredictable in an election year than it is in off years. Also mistake to confirm political appointees just before a conspiring against early confirmation is the discouragingly presidential election arguing that a new president would long time it takes for background checks and other want his own choices. Senate luminaries such as Lloyd paperwork to be performed. In some cases, there simply Bentsen (D-TX), and J. Bennett Johnston (D-LA), both was not enough time to take care of these details before the chairmen of key committees, implored Wofford to back Senate adjourned. down, but he stood his ground. The Bookout nomination As the clock ticked toward adjournment in the wee fell by the wayside. hours of October 9, there were efforts to give the green Another issue centered on what to do about nominees light to many of the 26 pending nominees, but only four who had not had a committee hearing, as was the case with squeezed through—-John Monjo to Pakistan, Bill Rugh to several proposed for Latin American posts. Jesse Helms (R- the United Arab Emirates, David Dunford to Oman, and NC), and Christopher Dodd (D-CT), come from opposite Edward Walker to the United Nations as deputy U.S. sides of the political spectrum, but during the final days of representative. The rest—17 career diplomats and five the session they agreed not to stand in the way of such political appointees—came up empty-handed. nominees to which neither had an objection. Of the 22, all but five were slated to be ambassadors to But Paul Sarbanes (D-MD), felt strongly that no nominee foreign countries. The rest were assigned to various posts should be approved without having appeared before the that carry the title of ambassador and require Senate committee. Sarbanes’s objection was enough to thwart confirmation. The best they could aspire to after Senate those on the Helms-Dodd list. There was a separate list of adjournment was a recess appointment, a device by which appointees for posts outside Latin America on which the nominee takes up his duties without confirmation with Helms and committee Chairman Claiborne Pell (D-RI), the understanding that he would have to undergo Senate were able to agree. But Sarbanes again prevailed with his scrutiny within a year. Alternately, the posts will remain no hearing-no confirmation stand. vacant until President-elect Clinton gets around to filling them—with Senate consent, of course. Canceled hearings Various nominees might have been approved much Consent by consensus earlier in the year, but Helms underwent heart surgery in The degree to which Senate Foreign Relations Committee June and asked that no action be taken on any of them members operate on the basis of consensus rather than during his convalescence. By August, the signs were majority rule was evident throughout the year, especially somewhat more hopeful. A hearing was scheduled for the during the final days of the Congress. For example, there early part of the month, and the appointees, some with

NOMINATIONS UNCONFIRMED BY THE SENATE

Alvin Adams Peru Marilyn McAfee Guatemala John F. Bookout Saudi Arabia William T. Pryce Honduras Parker Borg Burma Nicolas Salgo Sweden Eric Boswell Director of Foreign Missions Steven Steiner START Joint Compliance and James P. Covey AssistantSecretaryforSouthAsian Inspection Commission Affairs William Gi Walker Argentina Lois Evans U.S. Representative to the U.N. Alexander M. Watson Brazil Economic and Social Council Allan Wendt Slovenia Harry J. Gilmore Armenia Victor Jackovich Bosnia The nomination of Joe Sullivan as ambassador to Nicaragua Mark Johnson Senegal was withdrawn by the White House shortly before Senate Michael Kozak El Salvador adjournment on Oct. 9. Roland K. Kuchel Haiti Mara M. Letica Croatia Evans, Letica, Light, Salgo and Bookout are non-career Walter S. Light Ecuador appointees. John J. Maresca Cyprus Coordinator Marshall McCallie Namibia Source: Bureau of Legislative Affairs, Department of State

32 • FOREIGN SERVICE JOURNAL • DECEMBER 1992 family members who had flown an ambassador to Rangoon and in from distant points, converged by downsizing the embassy staff. on the hearing room. The water The administration seems to agree was poured and everything with much of what Moynihan says seemed in order. But the session but believes such decisions should was canceled minutes before it be left to the president or the was to begin. Senator Lany Pressler, secretary of state. As one official (R-SD), irritated with the adminis¬ put it, “Lany Eagleburger argues tration on an issue unrelated to that he’s not going to have sena¬ committee business, struck back tors and House members tell him by bringing the confirmation how big embassies should be.” process to a dead halt. The disap¬ Another nominee left uncon¬ pointment among the nominees firmed was William G. Walker, was palpable. who was scheduled to go to Ar¬ They had seemed just days away from being sworn in. gentina, where career diplomat Terence Todman, a Virgin Instead they found themselves swearing at a system that Islands native, has served since 1989. Some department allows a single senator so much power. For senators like officials were bemused by a letter-writing campaign waged Pressler from small states, sometimes the only way to get the on Todman’s behalf by members of the congressional Black attention of the administration is to sabotage the confirmation Caucus and by Ron de Lugo, the elected representative of the process. Pressler presumably thought there was nothing to Virgin Islands to Congress. The letters expressed concern prevent the hearing from being rescheduled. And, indeed, that Bush had not nominated Todman to a new assignment. the committee took another crack at holding a hearing on But as the officials see it, Todman should be thinking about September 25. Surely the nominees would have better luck retirement, however ably he may have performed in Buenos this time. It was not to be. Once again, the hearing was Aires. They believe that a man of 66 who has been canceled on short notice. Just who was responsible and what ambassador six times should be making room for deserv¬ his (or their) motives were has not been fully explained. ing younger officers. Some officials believe the campaign Efforts to try yet again to hold a hearing before adjournment was aimed at allowing Todman to stay on in Buenos Aires were unsuccessful because, officials said, committee members at Walker’s expense. But Walker’s inability to get con¬ argued there was not enough time. firmed seemed to be related more to the vagaries of the Senate processes than to the labors of Todman’s congres¬ Roller coaster ride sional allies. For his part, Todman, a former assistant It is difficult to exaggerate how much fmstration these secretary of state, insists he had nothing to do with the months-long delays have caused for the nominees. “You campaign. become a clock-watcher,” said one. “I’ve had trouble keeping busy. There’s basically nothing to do. It gets to be Missing ambassadors human torture.” He said he felt compelled to keep as low a U.S. diplomats have trouble convincing foreign govern¬ profile as possible while awaiting confinnation. To get ments why the new U.S. ambassador they had been involved in something controversial during the waiting promised has not turned up. Many governments refuse to period, he said, camies the risk of alienating a Senate believe the claims of U.S. officials that the Senate system committee member. In a system which operates on the basis is to blame and often look for other explanations. Some of unanimous consent, that could prove fatal. think the United States is showing displeasure with them “I’ve been on an emotional roller coaster,” another by keeping the ambassador’s office vacant. In this kind of nominee said. “The final results are excruciatingly disap¬ circumstance, Machiavellian theories abound. pointing and in many cases truly outrageous. I have great Officials always speak warmly about those who fill in disillusionment with the system.” for absent ambassadors. But, unlike ambassadors, charges The most vulnerable nominees are those with school-age cV affaires are not the personal representatives of the children. One such example is Parker Borg, nominated president and lack the clout and the access with foreign ambassador to Bunna. Acquaintances said Borg paid the governments that accredited ambassadors have. non-refundable tuition fee in the spring for his children to The administration, in most cases, is more than eager to attend a Washington-area private school in the fall. In effect, have an ambassador on the scene. It certainly has wanted Borg was betting that his nomination would not be approved. ambassador-designate Victor Jackovich to be in Bosnia to He was right. monitor the warfare and the humanitarian relief effort. The He nonetheless spent countless hours studying Burmese administration has been anxious to have Roland Kuchel in without any assurance that he'd ever see the country. Once Haiti during the political trials of that country. The same again, the problem was not widespread Senate opposition, holds true for Peru, to which Alvin Adams is due to go. And only that of a single senator, Daniel Patrick Moynihan CO¬ because of the stalemate in the Senate, Harry Gilmore has NY). Moynihan believes the United States should signal its been unable to go to Armenia, the only republic of the displeasure with Burma’s repressive regime by not sending former Soviet Union not to have a U.S. ambassador.

DECEMBER 1992 • FOREIGN SERVICE JOURNAL • 33 Both El Salvador and Nicaragua have not had a U.S. illegally and blamed Sullivan and Kozak. When Bush ambassador since February. The administration believes that nominated the two as ambassadors, Helms and Dodd having one in each country could make a difference as they blocked their confirmation. struggle to consolidate their respective democratic systems. Among some State Department officials, the action left The most bitterly contested nominations were those of embittered feelings, which were aggravated when the two Joe Sullivan, slated to go to Nicaragua; and Mike Kozak, to senators refused to allow the nominees to defend themselves El Salvador. Sullivan is a career diplomat who spent three before the committee. Sullivan and Kozak have not been years as deputy assistant secretary responsible for Central able to go public with their case because that would entail America. Kozak is a civil servant who spent most of the Bush uncovering a covert operation, a precedent the administra¬ years as the No. 2 official in the Latin America bureau. Kozak tion has been unwilling to set. is perhaps best known for his abortive effort in early 1988 to In late September, less than two weeks before Senate induce General Manuel Antonio Noriega to agree to surrender adjournment, a notice appeared in the Federal Register power peacefully in Panama. fonnally announcing the withdrawal of Sullivan’s nomination. At issue in the confirmation struggle of Sullivan and Kozak Tire announcement caused surprise at the State Department. was a covert administration program to encourage Miami- Officials there had decided that Sullivan’s nomination was based Nicaraguan opposition leaders to return to Managua not salvageable, but formal withdrawal was supposed to in 1989- It was a time when, under pressure from the United come later. The announcement in the Congressional Record States and Latin American countries, the Sandinista govern¬ was described as the result of a misunderstanding between ment was opening up the political process. The administra¬ the White House and State Department officials. The one tion reasoned that the Nicaraguan opposition belonged in bright spot for Sullivan in an otherwise frustrating year was Nicaragua, not Miami, and a program to resettle opposition his receipt of the presidential distinguished service award, leaders back home was approved. worth $20,000. But disgruntled former Contras alleged that the program As for Kozak, he was one of the 22 who fell through the was actually used illegally to promote Violeta Chamorro as cracks of the Senate confirmation process. He and the others the candidate to face Sandinista leader Daniel Ortega in the can only hope thatthey will have another chance in 1993- ■ February 1990 elections. Ignoring an inspector general’s report exonerating Sullivan and Kozak from any wrongdoing, George Gedda is a diplomatic correspondent for the Helms and Dodd insisted U.S. funds were indeed used Associated Press.

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34 • FOREIGN SERVICE JOURNAL • DECEMBER 1992 WANTED: Ambassador. Must enjoy minus 40-degree weather. Ability to do electrical wiring, fix plumbing, repair computers, operate communications equipment also useful. Benefits include a small apartment sometimes lacking heat or electricity and extensive travel in four-wheel-drive vehicle.

N ot a job description to attract the eye of the USSR from Stalin’s purges of the 1930s to the first glimmerings average Foreign Service officer, but a good portrait of the of perestroika were mirrored in Mongolian society. Its duties of an ambassador in Mongolia. Four years before a knowledge of the West was through the distorted prism of wave of new embassies opened in the former Soviet Moscow. A classic colonial society, Mongolia fed raw Union, Embassy Ulaanbaatar became the first embassy on materials to the Soviet economy and received finished the frontiers of American diplomacy. Mongolia, the home products in return. Everything—from window glass to of Genghis Khan, the land of steppes and nomads, is a vast peak-use electricity—was imported. country stretching from New York to Denver and In the summer of 1990, Mongolia had many advantages Minneapolis to Dallas. With only 2 million people, it has as it faced a transition to a democratic society: a relatively the same population as Northern Virginia. simple economy with a strong animal husbandly foundation, In early 1921 Mongolian revolutionaries, assisted by the an extremely well-educated population—the literacy rate Red Army, took over the country. In 1924, after the death is in excess of 90 percent, and a tremendous, essentially of the last theocratic ruler of Mongolia, the Communists untapped natural resource base to sustain long-term formally proclaimed the Mongolian People’s Republic— development. creating the first Soviet satellite. Sixty-six years later, following a series of peaceful demonstrations during the Soviet ties broken winter of 1989-1990, Mongolia became the first Asian But on January 1, 1991 an economic barrier suddenly communist country to abandon Marxism. came down between Mongolia and the Soviet Union, During its years under Soviet domination Mongolia tearing apart their unified economy. Suddenly, Mongolia became an extension of the Soviet Union—its life and had to use hard currency to pay for Soviet imports. Soviet society were totally dominated by the USSR Events in the aid, which had averaged 30 percent of GNP annually

BY JOSEPH LAKE

DECEMBER 1992 • FOREIGN SERVICE JOURNAL • 35 during the last 30 years, history to winter in came to an end. The Ulaanbaatar. Among international donor their winter activities community came were Sunday picnics forward to support in sub-zero cold. Mongolia in its During the 1989- transition to a free- 90 revolution, dem¬ market economy. onstrations in sub¬ However, no one zero weather anticipated the collapse challenged the dem¬ onstrators, as well as of the Soviet economy Picnic at 20 below—Left to right are embassy families Sharon Senko, Dita Senko, and eventually the Sally Nist, Mike Senko, Ted Nist and the Nist’s dog, Shannon. those reporting on the Soviet Union itself. The demonstrations. ripple effects of these dramatic changes were particularly Many Foreign Service officers have witnessed dramatic acute in Mongolia—a country where more than 90 percent turns in histoiy—but few have spent so many chilly hours of its foreign trade was with the Soviet Union. doing it. An unreliable telex connection through Moscow Last year foreign trade fell 40 percent and continues a continued as the only channel of communication. A downward spiral this year. Unemployment is likely to rise Cyrillic keyboard on the telex machine added to the to over 10 percent by the end of the year. Inflation, which challenge of drafting an English-language message as was more than 100 percent last year, is running at desired by the Department of State. approximately 12 percent a month this year. With the There was no ambassadorial office, apartment, or winter approaching, Mongolia’s power stations and coal furniture before my arrival in July 1990. Fortunately, mines are teetering on the brink of disaster. In January, someone vacated a fifth floor walkup in the same building when the temperature is minus 40 degrees, the power as the embassy, and the Ni.sts moved upstairs from their system could fail leaving an estimated 200,000 people second-floor apartment, providing office space for the without any source of heat. new ambassador in the living room and a communications Today, Mongolia faces a crisis that threatens to destroy office in the kitchen. A temporary-duty apartment next the infrastructure it has created, and its effoits to firmly door became the “residence.” Japanese furniture discards establish democracy and a free market economy are provided a dining room table and a desk for the new trapped in a crisis brought on by the economic and ambassador. There was one minor problem with the political collapse of the Soviet Union. dining room table—the extended leaves fell off the end of the table—encouraging small representational events. Embassy pioneers The furniture problem was solved when Embassy In January 1987. the United States Beijing donated one apartment of recognized Mongolia. And in the spring furniture for the ambassador in of 1988, Steve Mann and Toria Nulancl Ulaanbaatar. However, unloading were the Foreign Service pioneers who the furniture from the train and arrived to open Embassy Ulaanbaatar. bringing it to the apartment was Symbolic of Mongolia’s modern history another challenge. The driver of the and prophetic of future problems, the only forklift available had gone on first telex sent to the new U.S. embassy vacation and taken the keys with was delivered to the Embassy of the him. Ultimately my wife went to the USSR—the post office had never heard rail yards, climbed into the box car, of the Americans! and personally supervised the As planned, Mann and Nuland de¬ unloading of lift vans. Tools were parted that fall after Dick Williams, our one of many things the embassy did first, non-resident ambassador, presented not have—I put the furniture to¬ his credentials. Mike Senko and Ted Nist gether using a screwdriver and pliers reopened the embassy on a full-time from one of the two embassy basis in the summer of 1989- They and vehicles. their families, including the Senko children aged 2 and 16, had the distinc¬ First American embassy building in Expanded embassy tion of being the first Americans in recent Ulaanbaatar. Even though the expanded

36 • FOREIGN SERVICE JOURNAL • DECEMBER 1992 embassy now occupied two best in town. apartments, space was still at a We wintered in the old embassy. premium: the copying machine was There was plenty of space in our tiny kept on a board on the bathtub, the offices that winter—it’s remarkable telex, which now had an English- how few visitors you have when it is language keyboard, was housed in minus 40 degrees. My winter was the closet. However, my favorite space relieved when I accompanied story concerned the interview I did for President Ochirbat on an official an American television team. It proved working visit to Washington—the first extremely difficult to fit the camera, by a senior Mongolian official. the interviewer, and myself in the The visit was a tremendous success small office. Finally, the camera Ambassador Lake serves mutton as from the perspective of U.S. goals and remained in the doorway. After the Administrative Staff Director Luvsanjav Mongolian interests. However, it did interview, the cameraman commented looks on. have its lighter moments. I suspect it that he had never before filmed an was the first visit to the Blair House by interview in a closet. a group that did not eat vegetables or fish—presenting a The two weeks after my arrival were hectic: the embassy unique culinary challenge for the staff. provided an observer team for the first democratic elec¬ Winter was far from over when I returned to Ulaanbaatar. tions in Mongolian history and prepared for the secretary We moved into our new building on April Fools Day in of State’s visit to Ulaanbaatar. With the elections—a giant 1991 • While it did provide more space for our growing staff step toward democracy—and Secretary Baker’s visit, the and visitors, we faced new problems. I missed the 50 U.S.-Mongolian relationship changed dramatically. Over degree office temperatures—in my new office the tem¬ the next year, U.S. foreign assistance to Mongolia grew perature was frequently in the 40s. But snows stopped as from zero to over $20 million. As the relationship ex¬ usual in May, and the summer brought us some welcome ploded, our tiny embassy of three people was swamped relief. with a flood of visitors from almost every agency in the foreign affairs community. One week the permanent staff Improvise or do without was outnumbered seven to one by temporary-duty In Ulaanbaatar, everything we need—from fresh fruit personnel. and vegetables to nails and paper is brought in from At the time of my arrival, the new building selected for Beijing. When one of our vehicles was involved in an the location of our embassy was under construction. To a accident, there were no spare parts to repair the grill or cynical Foreign Service officer who had served in the frame. However, my driver is very creative. I suspect we Communist bloc before, this building looked like a poor had the only embassy vehicle in the world with a two by hope for the future. As a matter of fact, the building is still four as part of the frame and animal hide painted to match under construction as the vehicle for a grill. of October 1992. I We developed immediately began a interesting skills to search for a different cope with the site. After extensive and frequent absence of frustrating efforts, I electricity. A candle finally went to placed in front of a President Ochirbat and mirror provides said that if we could enough light to read not find an embassy by when the power is site, we could not do off. A refrigerator must our job. That afternoon be used to keep food we were offered the warm enough to eat. building an Foreign One of our winter ar¬ Building Operation’s rivals was in his apart¬ team had turned down ment for a week be¬ three years earlier. fore he realized the They were probably refrigerator was not right, but it was the plugged in.

DECEMBER 1992 • FOREIGN SERVICE JOURNAL • 37 We also needed to be cre¬ Service in Mongolia offers an ative to plan for visitors. Late opportunity to help build a nation’s one Saturday night we received future. Our colleagues in the new word that Secretary Baker was embassies in the former USSR have going to make his second visit WV^'VVWV ~ 'WVWC'V.'*. the same opportunities, and I the following Thursday. Four Shannon, the Nist’s dog is immortalized on a suspect will face some of the same Mongolian stamp. days of preparation for a four- challenges. Our experience in day visit by the secretary of state was one of the more Mongolia has shown that it is cmcial to have reliable interesting roller coaster rides of my Foreign Service communications, adequate funding, and flexibility in man¬ career. Fortunately, by the time of the visit we had agement to allow the embassy to focus on key issues. upgraded communications and had a telex with a com¬ By the way, in October 1991, we finally established puter terminal and an INMARSAT satellite telephone. Now regular unclassified communications with the department. it only took us five minutes to receive a one-page cable. However, when the frozen ground melts in the spring, or A cold night spent by candlelight may not be the same it rains in the summer, communications fail for a few days as a cocktail party in Western Europe, but there are at a time. It is still the frontier. ■ rewards. The challenge facing the Americans who serve in Mongolia is how to transfer 200 years of experience with Joseph Lake has been U.S. ambassador to Mongolia since democracy and free enterprise to a people who lack that July 1990. The views expressed are solely the author’s experience. The 50 Peace Corps volunteers and staff, the and do not necessarily represent those of the U.S. govern¬ small USAID staff and contractors, and the State officers ment. (Photos by Sally Nist and Karen Enstrom.) who serve there are all making a difference.

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oreign Service officer George Affairs, and the uncertainty of a future F Kenney’s resignation has been THE FOREIGN appointment was a serious disappoint¬ hailed in the media as an act of ment. courage and conscience and SERVICE AND But one month later, I received an treated with respect even by Act¬ unusual letter, stating: “The Department ing Secretary Eagleburger, whom Kenney THE WAR IN of State is prepared to offer career criticized. Foreign Service officers don’t appointments to a number of Foreign often resign because they differ with official SOUTHEAST ASIA Service officer candidates who will serve policy. The entire system of government is their initial tour of duty with the Agency designed to find consensus. If anything, for International Development in disputes tend to be over turf, roles, or resources, not principle. Vietnam. . . . Upon completion of this assignment, officers After passing the Foreign Service exam and being admitted selected for the program will be phased into the Foreign to the Service ahead of many thousand other applicants, very Service ... as rapidly as possible.” Though the term was not few want to chuck it all to make a point, wreck a career, and used, in fact we were being solicited to join the “pacification leave as a martyr. Veiy few FSOs resigned over our involvement program,” designed to “win the hearts and minds” of the in Central America despite revelations about Iran/Contra, South Vietnamese people. human rights violations, and serious questions about the It appeared to me that this curious combination of 1) morality of our involvement. indicating that normal Foreign Service entries would not However, the war in Southeast Asia did elicit significant likely be available; and 2) a sudden offer of an assignment to internal dissent. I’d like to recall those events. This is the stoiy Vietnam as perhaps the only way into the Service, was a of what happened to eight officers in my Foreign Service subtle form of blackmail to assure that State was able to fill class, myself included, who, along with others who entered its quota of officers assigned to Vietnam. The State Depart¬ the Foreign Service in that era, were assigned to Vietnam. ment also had taken the unusual step of not holding the We took the written exam in 1967, but we were only annual Foreign Service examination in 1968. informed of having passed the full written and oral exam over A number of colleagues accepted the Vietnam offer. A a year later, in January 1969. At that time the State Department number of us, myself included, did not. Though painful, I did also informed us that it had curtailed the intake of new not agonize over the decision. I had spent all of 1968 in the officers, and we might not be offered an appointment any anti-Vietnam War movement, actively supporting the peace time soon. At the time I took the exam I was a graduate candidacy of Senator Eugene McCarthy for president. Being student at Columbia University’s School of International a “McCarthy kid” meant more than just being against the war;

BY DANIEL A. STRASSER

DECEMBER 1992 • FOREIGN SERVICE JOURNAL • 39 to serve in the pacification program. Thus our fate was sealed; the DG refused to change our Vietnam assignments. In the end, however, I was the only one of the three actually to serve in the pacification program. One resigned rather than go to Vietnam. The other was allowed, as a modest concession, to serve in a regular embassy position in Saigon. His Saigon apartment would later become a favorite gathering place for those of us who were assigned to the “boonies.” My dedication to the Foreign Service as a career did not permit me to resign over my Vietnam assignment; I took my commitment to worldwide availability seriously. Although I would go to a war that I considered folly, I would not commit a dishonorable act and would try to be a force for good. I seriously believed that the American system of govern¬ 1970 scene of the main street in downtown Phan Rang after a rain. ment was the best and that people of liberal temperament could not abandon govern¬ it was a manner of fundamentally expressing our faith in ment service to the hardliners and opportunists. I would do and desire to work within the democratic system and what I could from the inside. opposing the takeovers and hostage takings sweeping the university campuses. In training It was inconceivable, therefore, for me to volunteer for Determined not to be faulted on my performance, I Vietnam service in the pacification program. I declined the completed 47 weeks of language training and became (I offer, writing: “I stated my opposition to this nation's was told) one of the department’s 10 best linguists in involvement in Vietnam to the examining panel during my Vietnamese. The following March, a personal letter from oral examination. Therefore, I cannot in good conscience the director general said, “I want you to know that I am voluntarily contribute to that involvement.” The answer I gratified by the way you accepted this difficult assignment received to this was straightforward: “Whether or not you and by the efforts you are making to prepare yourself for accept the offer tendered you. . . is entirely up to you. You the tour in Vietnam.” Though still bitter, I appreciated the should be aware, however, that even if you were to enter the consideration. Service on terms which did not directly relate to Vietnam, Washington during that year was a strange place to be you might wind up there anyway.” Having completed this studying Vietnamese. The city was full of protests. I did not exchange, I mentally kissed the Foreign Service goodbye. hide my own opposition to the war among my 150 fellow students at the Vietnam Training Center (VTC), located in the Another chance garage area of a Rosslyn apartment building. After seeing all It was with great surprise, therefore, that I received a my military colleagues with lapel pins in their suits symbolizing letter that June offering me a regular Foreign Service one thing or another, I went to a jeweler and had him design appointment. Five of the class entering that August had a gold peace-symbol lapel pin, which I wore every day to accepted the first offer of Vietnam service. Though not a VTC. I was determined that eveiyone would know where I total surprise, it was a shock when I and two others who was coming from. I felt a need to preserve my identity and had rejected that offer were assigned to CORDS (Civil self-respect. Operations and Revolutionary Development Support— I was certainly not alone in my skepticism over the not only a mouthful, but also a misnomer)—the pacification indoctrination we were receiving. Most of our group jokingly program in Vietnam. The three of us sent a joint code-named the pacification program “Operation Prop-up.” memorandum to the then-Director General John Burns. In February 1970, 10 of us formed a Vietnam Study Group, While accepting the worldwide availability provision, we “to discuss all aspects of the Vietnam problem, provide a stated that we considered our assignment to CORDS/ forum for ideas ...” The study group became a significant Vietnam “inconsistent with the circumstances under which forum for discussion of the issues surrounding our upcoming we entered the Service,” given that we had turned down assignment. We developed 11 different themes for discus¬ the previous offer of Vietnam and had clearly stated our sion. We read books; met with Tran Van Dinh, an exiled desire not to be assigned there. writer and former South Vietnamese diplomat; and—at my However, the department was said to be under severe initiative—met with Averell Harriman at his Georgetown pressure from the White House to demonstrate its loyalty home shortly after he resigned from the Paris peace talks. It to the policies in Vietnam and to come up with “bodies” was only some years later that I learned from the New York

40 • FOREIGN SERVICE JOURNAL • DECEMBER 1992 Times that our meeting with Harriman had been monitored by the FBI on orders of the White House because we were among those President Nixon suspected of leaking secrets to the press. This seemed quite humorous, since none of us knew any secrets whatsoever.

A letter of protest The April 30 invasion of Cambodia was the real watershed for many of us. On May 4, the Kent State shootings took place, and on May 9, 100,000 people demonstrated in Washington. The day before, however, 250 foreign affairs personnel, including 50 Foreign Service officers, sent a letter of protest to Secretary of State William P. Rogers. The core of this protest included those officers in the study group. The letter said: “Our sense of responsibility to you, to the department and to ourselves, precludes Diplomat among warriors: Strasser (in mufti), in 1970, as Deputy District Senior Adviser our remaining silent on these critical issues. As of Thanh Hai District, South Vietnam, with fellow District Advisory Team members. the advice you offer the president reflects your Some of the junior officers who served in the CORDS civil/military pacification program judgment and conscience, we, in the same in Vietnam expressed opposition to the war. spirit, offer our views to you. In our opinion, the expansion of military activity should be reversed. We fear that this expansion threatens the prospect an extraordinary response. The subsequent death of some 2 for an early peace and heightens the serious problem of million Cambodians, a consequence of U.S. policy in divisiveness at home. For these reasons, we question the Cambodia, strengthened my sense that we were fundamentally recent military decision. We urge you to seek reconsideration right to express our protest at the time in the way we did. of the apparent direction of American policy in Southeast The situation was complicated by the publicly circulating Asia.” The letter was immediately leaked to the New York information that Secretary Rogers had opposed the invasion, Times. as had Secretaries of Defense Melvin Laird and Interior On May 11, the FSOs who had signed the letter received Walter Hickel, who made his feelings public and was forced a stem written order to report to the department’s Map Room to resign. All had been blindsided by a secret Nixon/ to hear Undersecretary for Political Affairs U. Alexis Johnson. Kissinger policy; Rogers had told a House subcommittee one The order said ominously: “This is mandatory.” Johnson, week before the invasion that no ground troops would be accompanied by William B. Macomber, deputy sent into Cambodia. In a sense, though, if we had failed to undersecretary for management, expressed disappointment be loyal to the president, we had been loyal to and backed and told us that, as public servants, we did not have the right up the secretary of state. to express public dissent against presidential policy. Several officers viewed the letter as a “cry of conscience.” When Department backbone Johnson questioned our loyalty, he was reminded that most One amazing aspect of the letter is that, though its text was of us were in training to go to Vietnam and risk our lives to made public, the names of its signatories never were. The defend U.S. policy there. I believe it came as a shock to those White House reportedly was furious and asked the depart¬ department officers to discover that a bunch of junior officers ment to mm over the names. In a remarkable demonstration who were the department’s newest recruits in the Vietnam of backbone in defense of the Foreign Service, the depart¬ effort were in revolt over Cambodia. No resignations were ment and AFSA protected these employees. According to an demanded, but it was made clear that there was no place in account by U. Alexis Johnson in the September 1984 Foreign the career service for those who could not support the Service Journal, President Nixon took the petition very president. personally and called up the under secretary at 1:30 a.m.: “I Backing the department’s criticism, an article in the want you to make sure that all those sons of bitches are fired September 1969 Foreign Service Journal stated that officers first thing in the morning,” the president demanded. When had the right and the duty to dissent on policy up to the point this proved not feasible, Johnson continues, “he wanted all of decision-making. However, the article continued, “It is not the names by that evening. I had no enthusiasm for that idea the role of the Foreign Service ... to undercut the political either, because I was sure die officers’ careers would be decisions which have been made.” The Cambodia invasion mined.... [Secretary] Rogers agreed to take my list and lock policy was made totally in secret with no opportunity to it in his own safe.... I promised the president that I would express dissent in advance. The invasion itself was an keep an eye on all of them to make sure none was promoted outrage, an extraordinary event that required, in our minds, or posted to Southeast Asia. Then I had a meeting with those

DECEMBER 1992 • FOREIGN SERVICE JOURNAL • 41 harm to the moral fabric of this country. We have transformed Vietnam into a society without will or spirit, a nation of scroungers from top to bottom.” I continued, “Vietnamization will fail, ” and I proposed a peace settlement plan. I fully expected the letter to have serious personal repercussions for me. Strangely, I never heard the slightest response and can only assume the letter was never even given to Kissinger. During this period, I won a small battle that gave me a great deal of satisfaction. Before leaving Washington for Vietnam in 1970, I had filed what today would be called a grievance. It happened that those of us in Vietnamese training for the previous year who had volunteered to go to Vietnam had Vietnamese provincal troops prepare for an operation. received per diem during the entire year of training. Those of us, myself included, who had been “drafted” once we got to Washington, did not [officers], . . I stressed the loyalty that we all owe the receive this subsidy. Technically one group was entitled to president, unless we choose to resign.” Johnson adds, “I the extra pay, which I compared to a mercenary payment. never had to intervene to halt their promotions and after What I did not realize was that my “grievance” had Nixon left office their careers resumed at a normal pace. But provoked an internal dispute in the department of epic Nixon never forgot. For a year afterward he regularly asked proportions. In November, I received a status report on my me for written and oral reports on what was happening to grievance from Frederick Z. Brown of Personnel: “On your them.” In June, AFSA sought and received assurances from special problem I am optimistic The matter will be settled Macomber that no formal or informal disciplinary action one way or another in three weeks. . . . Please don’t spend would be taken against the signers, including notations in your per diem before you see it reflected in your bank files. account. I can only promise, at this point, that we are trying like hell.” But it was May of the following year before I Service satisfaction received a notice to come to Saigon for a meeting with During my two years of service in Vietnam I was satisfied Brown, “a pleasant one for you and much in your interest to with my role there and later felt a melancholy satisfaction that attend.” When I got to the meeting, Brown had checks for I had gone to that country and remained in the Foreign six of us who were present, but he gave me mine first and Service. Based on nearly fluent Vietnamese, I quickly said, "Strasser is the only one here who really deserves the graduated from being a district-level pacification adviser, a money. ” Again, as in the case of the Cambodian letter, I came job in which I visited three or four hamlets a day and helped out of that experience with a renewed sense of confidence complete village water systems, to becoming the POLAD in the department and its ability, when provoked, to defend (Political Advisor) to II Corps, the U.S. Command in one of and do justice for its people. South Vietnam’s four military regions. For about six months, I worked for John Paul Vann trying to report fairly and Fighting from within honestly on political events, which mostly revealed the Certainly, one could question whether the anti-Cambodia comaption and undemocratic attitudes among our South invasion protest letter was as appropriate or as noble as a Vietnamese allies. One of my most significant contributions resignation. In fact, four of Kissinger's closest NSC aides was a report, based on my travels through the II Corps resigned over the invasion. I believe that having been provinces, of how President Thieu had manipulated his directly involved in White House policy-making over the power in the hinterland to engineer the one-man 1971 war, and having been cut out of the secret decision which election—the beginning of the end of his legitimacy based they opposed, it was untenable for them to continue. Those on a claim that Vietnam was a democracy. of us who signed the protest letter were prepared to In July 1971, after nine months in Vietnam, I learned of continue, but we were willing to risk dismissal for our near Secretary Kissinger’s visit to Vietnam. I hopped on a plane insubordination. The fact that we were not dismissed speaks from Nha Trang to Saigon and handed a letter to one of quite a bit to die tenor of those times. Kissinger’s aides just as the secretary’s party was leaving the I personally believe drat if you can express your opposition embassy to depart Saigon. from within and stay on to fight another battle down the road, In this letter, I called the Vietnamization policy a failure you can be more useful inside than outside the system. A and said that U.S. policy had served more to undermine Foreign Service employee has many opportunities to be a Vietnamese will and ability to resist communism than to voice of conscience. There are almost daily battles over shore it up. I wrote, “we have spawned attitudes of both questions of honesty and proper judgement. As wrong hopelessness and dependence and done almost irreparable policies often are an accumulation of incorrect decisions, it

42 • FOREIGN SERVICE JOURNAL • DECEMBER 1992 THE ULTIMATE DISSENT BY STEPHEN G. HALL

When George Kenney resigned from the Foreign Service during that period. Maynes believed Vietnam Sendee in August, he gained publicity and made a was overshadowing critical domestic issues. He recalls powerful statement of opposition to U.S. policy on watching smoke from the riots outside the window of Yugoslavia. Dissent during the Vietnam era was quite the Foreign Service Institute where he was studying different. Because American lives were at stake, the Russian. It was there that he asked himself, “Why is the war prompted opposition throughout the country. nation so preoccupied with matters abroad when there The resignation of a Foreign Sendee officer would are so many problems being neglected back home?” have had little impact cm U.S. policy amid the sea of Shortly after the invasion of Cambodia, Maynes asked protest already sweeping the country. Therefore, to take leave from the Foreign Service for a year to despite the large number of ISO’s who opposed the work for Senator Fred Harris, where he felt he could administration’s policies during the Vietnam era, veiy make a difference in civil rights legislation. The State few chose to resign, feeling, as Daniel Strasser did, Department refused his request, which Maynes that they could best address their opposition by attributes mainly to pressure from Kissinger to clamp remaining in the system to work for change. For the down on possible dissent within the Foreign Service. ones who did leave, their departure was more a result Acknowledging his opposition to U.S. policy in Vietnam of their personal convictions than an effort tp make a and his desire to contribute to the domestic needs of statement of protest. the country, Maynes resigned from the Foreign Service. Anthony Lake, an aide to Kissinger on the National The Foreign Sendee is a prestigious and secure Security Council who was deeply involved with U.S. career that most officers do not wish to risk losing. To policy toward Vietnam, was one who resigned at this a limited extent, tire dissent channel has provided an time. According to press accounts, after being kept in outlet for officers wishing to voice opposition to policy the dark about Nixon’s decision to invade Cambodia, while remaining loyal to the State Department. Although Lake, along with other Kissinger aides, resigned to many FSOs question the seriousness with which the protest the administration’s decision. service has been regarded by policy-makers in recent Donald McHenry, who later became ambassador years, the Foreign Service—and American public to the UN under Carter, also left the Foreign Service servants generally—does not have a tradition of in disagreement with Nixon’s policies toward Vietna m. resignation in protest. In this era of broad national After he went on leave in 1971, McHenry’s hopes for consensus on—-and widespread indifference to— change in policy rested with Senator Eugene McCarthy. foreign policy, the rush of principled resignations over He eventually resigned in 1973 after Nixon’s landslide Vietnam seems all the more a historical anomaly. ■ victory. Charles Williams Maynes, until recently the editor Steven G. Hall is an intern at the Foreign Service of Foreign Policy, also resigned from the Foreign Journal.

is important that those motivated by idealism, principle, and people had mentally disengaged. Walking in Georgetown morality not quit. It is equally important that members of the the evening Saigon fell, despite the TV images of helicopters service speak up to express their concerns and be willing to taking people off of embassy rooftops and my own shock, accept the consequences of being unpopular with depart¬ I had the strange feeling that the American people did not ment management. Before resigning, the dissent channel/ realize that the United States, for the first time, had just lost Open Forum mechanism should be used to the fullest. a war. State had a harder and harder time forcing young men and I do not want to exaggerate our role in opposing U.S. women to go to Vietnam against their will. A year after I was policy in Southeast Asia. Frankly, though there certainly was assigned, the department ceased forced assignments there. more internal resistance than what I have recounted here, Those of us who went to Vietnam were later treated very well there was not nearly enough. The fact that the war dragged by a grateful bureaucracy. I was awarded my first-choice on for seven years after the American people had given a mandate assignment to Rio de Janeiro. However, I was called back to to end it was a travesty on our system of democracy. ■ Vietnam as a “ceasefire observer” after the January 1973 peace treaty. By that time, for all practical purposes, the war Daniel Strasser is an FSO in the Bureau of International was over. When Saigon fell in April 1975, the American Narcotics Matters.

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ore than 100 slave, a young boy of seven or M years ago, Eu eight named Hussein, at the bazaar gene Schuyler, in Bukhara and, with the secretary of the complicity of friendly Russian American officials, took him back to St. Legation in St. Petersburg, made Petersburg—living evidence that a pioneering visit to Central Asia, trade in human beings was still traversing the region now occu¬ going on despite protestations to pied by the newly independent the contrary. republics of the former Soviet Schuyler was a man of Union. In March 1873, the 33- considerable learning. At age 19 year-old Schuyler set out on the he had been the youngest journey that was to keep him for graduate in the Yale Class of nearly eight months in this Muslim 1859, stayed on two years more territory where the conquest by for a PhD, and then received a Russian arms was not yet law degree from Columbia. He complete. began Russian lessons with an Even today, Schuyler’s Orthodox priest in New York observations—set down in a after meeting Russian naval handwritten dispatch to the State officers during the historic 1863 Department, which he later ex¬ visit of the tsarist fleet to that city. panded into a two-volume book, He honed the language as Turkistari: Notes of a Journey in American consul in Moscow from Russian Turkistan, Khokand, 1867-69, his first overseas post, Bukhara, and Kuldja,—are a and then after 1869 as legation valuable source of enlightenment M any of Schuyler’s observations of secretary in St. Petersburg. He about the life of the region. He Central Asia ring true even now. His also knew French and Finnish. penetrated behind the facade of description of the way men dressed For his travels in Central Asia, the Russian administration to talk however, he prudently used to people of all walks of life. He might have come from a visit only this interpreters who knew the local roamed the streets with a sharp year to the bazaars of Samarkand or languages. eye for detail, striking up conver¬ Bukhara. . . Many of Schuyler’s obser¬ sations with any and all. vations of Central Asia ring true Here, from a book of selected even now. His description of the essays, is Schuyler’s description of a man had even seen a picture of way men dressed might have come visit to a Muslim learned man, director Lincoln—whom he thought a very from a visit only this year to the bazaars of a religious seminary, in the native handsome man. of Samarkand or Bukhara: “long, gay- quarter of Tashkent: During his years of service in the colored dressing-gowns of cotton or There were a lot of people there, Russian Empire, Schuyler repeatedly silk . . . white or blue turbans . .. little relatives and students. We sat on exhibited concern for human rights, embroidered caps.” On the other our legs on carpets spread on a sending dispatches to Washington hand, women in Schuyler’s day kept portico, drank green tea, smoked a about the problems of Jews, for the most part behind the walls of Bukharan pipe, and ate various Mennonites, and Ukrainian Catholics. their houses: “You see them occasion¬ sweet things and pistachio nuts. While in Central Asia, in one of the ally in the street in blue dresses and a Curiously enough everyone seems more curious incidents of his diplo¬ black horse-hair veil which effectually to have heard of America, and one matic journey, he purchased a Persian hides their faces.”

DECEMBER 1992 • FOREIGN SERVICE JOURNAL • 45 H I Y

His vignette of a Sufi folk festival my conduct in going before your Petersburg on March 23, Schuyler held just outside Tashkent evokes an permission has arrived,” he said wrote, “I cannot say exactly when I atmosphere familiar to visitors to apologetically in the same dispatch to shall come back, if I ever do, for as Uzbekistan today: Secretary Fish, adding—over there is a war in that region things are Samovars were smoking optimistically—that he hoped to return rather unsettled.” Schuyler and a tem¬ everywhere, and all along the brook in three months. porary traveling companion, a New were pots where pilafwas preparing. His long absence from his post in St. York Herald correspondent named

Eugene Schuyler’s 1873 journey.

In almost every booth there was Petersburg tried the patience of his Januarius Aloysius MacGahan, arrived someone playing on the guitar and superiors. Six weeks after Schuyler’s March 26 at Saratov on the Volga by singing, and in veiy many could be departure from St. Petersburg, the rail. The two Americans then set out by heard the rapid beating of a tam¬ problems of his absence were horse-drawn sled, crossing the ice of bourine and the measured clapping compounded dramatically by the death the Volga and passing through German of hands, showing that there was of the minister, leaving the consul settlements on the left bank until they dancing going on. general to handle legation business came to Bashkir villages to the east, Schuyler started out for Central Asia alone. In a plaintive and rather testy their “first glimpse of Oriental life.” in a state of great excitement, despite dispatch sent after his arrival on This route was not a regular post road, fears that his trip might jeopardize September 25, the new minister, a and they had a constant struggle to both his career and his life. “I trust that political appointee named Marshall obtain replacement sleds and horses. my journey may be fraught with profit Jewell, informed the department that The weather was also the coldest to the country and to myself,” he wrote “I find no record of any transaction at Schuyler, although raised in upstate to Hamilton Fish, secretary of state in this Legation since April 4th last,” and, New York and a veteran of Moscow the administration of President Ulysses ominously for Schuyler, who had by winters, had ever experienced, and by S. Grant, in a dispatch dated the day now been away for six months, “I do the time they reached the Siberian before his departure. He had obtained not find the Secretaiy of Legation or town of Orenburg their faces were red permission to go only from his any communication from him though and peeling. In addition, they were immediate chief, Minister James L. Orr, I learn from the Counsel (sic) that the suffering from snow-blindness. and left without waiting for Secretaiy may be expected in two or Despite difficulties, Schuyler Washington’s response to a cable three weeks.” managed along the way to begin his requesting confirmation. “I trust you There were also physical dangers in journal, in which he was to include will kindly excuse the irregularity in making the trip. Before leaving St. meticulous descriptions of people and

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Bishkek and Alma-Ata, today capitals them past the ruins of the Ak.-Sarai, little knowledge of it during his of Kyrgyzstan and Kazakhstan), and the splendid palace constructed by stay. He has considered it necessary then to Kulja in China, where he saw Timur. to keep up an appearance of state, the ruins left by recent disastrous Having survived the rigors and perils and to have little communication fighting between Chinese government of the trip, Schuyler needed all his with the natives.... He never rides and Muslim forces, and among Muslim diplomatic skills to appease his new through the streets without a groups. He returned via Siberia to St. superior when he finally returned eight bodyguard of a hundred Cossacks, Petersburg, arriving in mid-November. months later, in mid-November, but and maintains himself at a distance As an accredited diplomat, Schuyler he succeeded, for Minister Jewell cabled from the Russians also. traveled under the auspices of the Washington that the former’s explana¬ Perhaps the supreme tribute to Russian government, which was still in tions were “satisfactory.” Subsequently, Schuyler’s perspicacity is that Russian the process of subjugating the i scholars who studied the area after him elevated this out¬ Central Asians. Many of the Jf\s an accredited diplomat, Schuyler local people were not even sider to a pedestal of authority aware that there was a differ¬ traveled under the auspices of the Russian for his insights into the Central ence between a Russian and govern ment, wh ich was still in the process Asian scene. However, it must be remembered that Schuyler, an American. At times, this of subjugating the Central Asians. Many of caused him to be greeted with a product of his own time evasiveness and downright the local people were not even aware that and culture, believed, even hostility, even physical dan¬ there was a difference between a Russian while criticizing the Russian administration that the ger. He had ample and an American. At times, this caused opportunity to display a conquest of Central Asia was courage that surmounted his him to be greeted with evasiveness and part of the civilizing mission native timidity. In Kokand, he downright hostility, even physical danger. of the Western world. Indeed, was “reviled by the the native regimes of inhabitants” and on another Schuyler’s day were cruel and occasion, in Karshi, was subjected to the two men established cordial relations: corrupt, a sad relic of the region’s angiy demonstrations during which the following March, when Jewell bygone glories, but in the light of one man picked up a stone and forwarded Schuyler’s trip report to subsequent Tsarist and Soviet abuses muttered, “Just let me hit him and he Secretary Fish, he noted enthusiastically Central Asians have resented Schuyler’s will drop dead at once, and there will that “I have no doubt it will be of great support of their colonial masters. This be one Kaffir the less.” interest to you, as it is veiy clear and detracts little, however, from his Still, Schuyler’s official status meant comprehensive, and does credit to his painstaking reporting. that he was often received with great observance and industry.” Schuyler served later in the Otto¬ deference and ceremony. This is how Schuyler’s report, in his own neat man Empire, the Balkans, and Rome. he described his arrival in one medium¬ penmanship, is preserved today on He earned further prominence through sized town: microfilm in the National Archives. To an investigation of Turkish treatment At the Bek’s express desire, I was his astonishment, and that of Minister of the Bulgarians, which helped to taken immediately to the palace. At Jewell, the State Department published mobilize world support for Bulgaria’s the gate of the citadel a guard of it in the 1874 volume of Foreign independence and caused British Prime honor hailed me with a blast of Relations of the United States, causing Minister William Gladstone to write trumpets, and passing them and Schuyler to worry that his Russian him a personal note of congratulation. within the gates through several hosts would be offended by the candor Before dying from a sudden heart crooked streets I came to a large with which he criticized their adminis¬ attack at age 50, he finished a biography open place, where three or four tration of the Turkestan Territory. of Peter the Great that still commands hundred soldiers were drawn up in Fortunately, the department had the scholarly respect, and a book of essays a hollow square to receive me. wisdom to delete some of his comments on Italian culture. ■ There was another grand flourish of about the governor-general, Konstantin drums and trumpets and I was P. Kaufman, including this passage: James Critchlow is a Fellow of the astonished by a salute of cannon. General Kaufman is unfortunately a Russian Research Center at Harvard Here I was presented to two veiy weak, as well as a veiy vain University. He has served with USIA Yuzbasbis... wearing gowns made man. ... He came to Central Asia and the Board for International of Cashmere shawls, with highly with no knowledge of the country, Broadcasting and is the author of wrought silver belts. Dismounting and by holding himself in a very Nationalism in Uzbekistan,published from my horse I walked on with lofty position, has acquired very in 1991 by Westview Press.

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dressed to the American nation by Tucker dismiss a product of the Council on Devil’s Contract and Hendrickson, has been overtaken Foreign Relations Press when it so by events and by some sober morning- sharply challenges what used to pass for conventional wisdom in the foreign THE IMPERIAL TEMPTATION: after reflections in the American body politic. The authors’ warning is essen¬ policy and defense establishments. THE NEW WORLD ORDER AND tially this: Even so, one cannot put aside The AMERICA’S PURPOSE The euphoria that attended our battle¬ Imperial Temptation without reflecting By Robert W. Tucker and David C. field victory over Saddam Hussein was that few in the White House or the Hendrickson, Council on Foreign pathological. We fastened upon a for- Pentagon in the summer of 1992 could Relations Press, 1992; 228 pages, have felt very “imperial” as they stewed $14.95 softcover. over the limited modalities and possi¬ ... none of us should lightly bilities for sending U.S. military aid to Reviewed by Daniel Newberry dismiss a product of the relieve the embattled victims of war in George Bush and the American Sarajevo and for getting our troops out people entered into a contract with the Council on Foreign Relations again. Devil, you might say, by the manner in Press when it so sharply Daniel Newberry is a retired Foreign which we waged the Gulf War. That is challenges what used to Service Officer. the indictment brought by Professors Tucker and Hendrickson. According to pass for conventional their analysis, the Faustian bargain took wisdom in the foreign policy its most effective toll when we em¬ and defense establishments. Global Power braced highly advanced means of mak¬ ing war against Saddam Hussein—meth¬ SEIZE THE MOMENT: ods that, while making the war more mu la forgoing to war—in which Ameri¬ AMERICA’S CHALLENGE IN A ONE- palatable to us, concomitantly increased can casualties are minimized and pro¬ the misery we inflicted on others. tracted engagements are avoided—a SUPERPOWER WORLD The bulk of the book is devoted to a fonnula that requires the massive use of By Richard Nixon, Simon & Schuster, detailed analysis of how President Bush American firepower and a speedy with¬ 1992, 522pages $25.00, hardcover. set out to organize what passed for a drawal from the scenes of destruction. “national consensus,” how he put to¬ The formula, say Tucker and Reviewed by David Adamson gether the coalition, and why the presi¬ Hendrickson, “creates anarchy and calls Seize the Moment conveys many dent contradicted his own stated war it peace,” allowing the U.S. to assume an sound judgments about the world in aims once the Iraqi troops were forced imperial role without discharging the which we live and America’s role in it. out of Kuwait. classic duties of imperial rule. Among Nixon believes that America needs to We entered into the Faustian bargain the imperial “duties” Tucker and stay globally engaged: other nations (for that is what the authors themselves Hendrickson would have assigned to may match us in particular dimensions call it), “at grave risk to the nation’s the United States in Iraq would have of power, but among the great powers reputation for justice and humanity.” been the occupation of Baghdad and only the United States is perceived as That quotation gives an idea of the the care and feeding of democracy lacking hegemonic ambitions and can moralistic and admonitory overtones of inside Iraq. effectively serve as an honest broker The Imperial Temptation. Certainly there To remark that this book is being and geopolitical balancer in Europe and is room for morality in considerations of overtaken by events is not to disparage Asia. In this connection, Nixon points foreign policy. However, the book, re¬ its message or its scholarship. Students out that as “a nation, Americans have leased in June 1992, is in another sense of diplomacy and national policy for¬ difficulty grasping the depth of historical already out of date. It does not, for mulation would do well to go step-by- antagonisms between other nations.” example, take into account the substan¬ step with these two professors through Nixon admits the need for a greater tial Pentagon budget cuts proposed last their closely reasoned analysis of the multilateral dimension in U.S. foreign January by House Armed Services Com¬ logic and illogic applied during and policy, but he is skeptical about the mittee chairman Les Aspin. after the Gulf War adventure. potential of the UN: “advocates of a In other words, the warning ad¬ Likewise, none of us should lightly greater role for the United Nations ig-

50 • FOREIGN SERVICE JOURNAL • DECEMBER 1992 nore the abysmal record of collective on family planning and trade, not aid. security.” As another guidepost for His fundamental message—that American foreign policy, Nixon would American world leadership remains very distinguish among vital, critical, and much in our own interest—bears PeaVe your peripheral U.S. interests. Our vital repeating in this period of U.S. interests include the survival and retrenchment. Seize the Moment independence of key allies, neighbors, contributes significantly to the national most and resource-rich areas. Critical interests debate on future priorities, and as a are ones that, if undermined, would result, it will also assist Richard Nixon’s create a direct threat to vital interests— ongoing political rehabilitation. for example, the loss of Korea would important David M. Adamson serves as political create a direct challenge to Japan. counselor at the embassy in Lisbon. Peripheral interests only distantly involve our main concerns; we would not want investment to use our limited power to defend such interests. Secret Stories Nixon’s continent by continent review With the bears witness to his years of experience CASTRO’S FINAL HOUR: THE SECRET and fascination with foreign policy. Completed just as the Soviet Union STORY BEHIND THE COMING management collapsed, his book is particularly DOWNFALL OF COMMUNIST CUBA prescient in anticipating the break-up of by Andres Oppenheimer, Simon and the Soviet empire. He welcomes this Schuster, 1992, $25-00, hardcover. professionals development as consistent with America’s historic support for national Reviewed by Roy Sullivan self-determination. He also explodes Pulitzer-prize winner Oppenheimer misconceptions about Gorbachev and cautions that his book can only “begin you trust. Yeltsin, seeing Gorbachev as an to suggest the secret story of the improviser and transitional figure who demise of Castro’s revolution.” Unfor¬ Rental and Management promoted reform out of need, not choice, tunately, he offers little substance to of Tine “Properties in and Yeltsin as a man of much greater support its catchy short title; never¬ substance. Unfortunately, Yeltsin, like theless, it is must reading for those Northwest T)C, CheVy Chase, Khrushchev before him, has been interested in Cuba. Portions of the “Bethesda and Potomac misinterpreted as an “opportunistic book read like a thriller rather than an lightweight” who drinks excessively. investigative report based on more Nixon anticipates the break-up of than 500 interviews with Cubans of all Yugoslavia as well, and calls for the types, including Fidel. Cubanphile or early dispatch of UN peacekeepers there. not, you may have trouble putting it More questionably, Nixon implies that down. Eastern Europe is as important to the The first third of the volume is United States as Western Europe. Nixon devoted to the events leading to the favors European unity, but at the same 1989 trial and execution by firing time, he warns of growing European squad of Cuba’s most decorated (and Community protectionism and popular) general, Arnaldo Ochoa. “socialism” in the fomi of state subsidies Ochoa is a principal figure of the ililii to steel, aerospace, and other industries. book and his name reappears linked But Nixon believes America’s most to major events throughout it. Also Executive Housing important economic interests lie across tried and executed along with Ochoa Consultants, Inc. the Pacific ocean, not the Atlantic, noting was Cuba’s most famous spy—Colo¬ 7315 Wisconsin Avenue that American trade with East Asia nel Antonio De la Guardia—head of Suite 1020 East already far outstrips our trade with the convertible currency department Bethesda, Maryland 20814 Western Europe. Given the economic of the Interior Ministry. General 301/951-4111 importance of Asia and the abiding Ochoa’s offenses were his growing national rivalries there, Nixon would popularity and restlessness with the have the United States retain a significant revolution’s (read Castro’s) rigidity. “We care for your home military presence in Asia, as in Europe. Officially both Ochoa and De la Nixon’s prescriptions for economic Guardia were found guilty of drug as if it vVere our ortn. ” development in the Third World are trafficking and treason. By linking the sound, if unexceptional: his emphasis is two, Fidel adroitly eliminated a future

DECEMBER 1992 • FOREIGN SERVICE JOURNAL • 51 BOOKS When personal contender and purged the assist the Sandinistas if the United you give blood Interior Ministry, which was compet¬ States invaded Nicaragua: all the Cu¬ ing for power with brother Raul’s bans in Nicaragua were to be mobi¬ you give Ministry of Defense. On the interna¬ lized to attack Honduras while the tional front, it was a strong anti-drug Sandinistas and the Salvadoran rebels another statement from the Castro govern¬ would take San Salvador by storm. ment. Score three for Fidel. The Sandinista air force was also to Oppenheimer builds the case that bomb the U.S. Embassy in Costa Rica. birthday Castro tacitly allowed drug trafficking One of the authors of the plan was to take place in exchange for hard General Arnaldo Ochoa. another laugh, currencies required by his faltering Less exciting but equally detailed is economy. Fidel once used his Medellin Oppenheimer’s coverage of the USSR’s another hug, drug cartel connections to have weap¬ retrenchment from its role as under¬ ons flown from Cuba to Colombia's writer of Fidel’s economy; and inter¬ another M-19 terrorists. views with young Cubans, including Not long after the Ochoa/De la Fidel’s daughter and Che Guevara’s Guardia executions, Castro was faced grandson, all of whom are dissatisfied chance. with the loss of Panama, which Cuba with the graybeard’s regime. had supported with massive amounts of weapons and military training. Ac¬ Roy Sullivan is a Foreign Service offi¬ cording to the author, Fidel neither cer in the Office of Inter-American liked nor trusted Noriega, but needed Affairs. American Red Cross Panama as a valuable trade front Please give blood. through which Cuba could evade the U.S. embargo. An interesting aside is that the Cubans left Panama hours after the U.S. invasion because of a report that U.S. C-131 transports were landing at Floward Air Force Base, Stay in a little one every 10 minutes. Noriega read corner of the same report but shrugged it off. According to Oppenheimer, Washington Noriega was searching for a source of SA-7 missiles prior to the U.S. inva¬ sion. Had he found the SA-7's, Noriega’s forces might have been able to down U.S. aircraft, buying him time to ask the UN Security Council for a .. .that isn’t. condemnation of the United States and a cease-fire. Luckily. Noriega ap¬ Stay in Arlington, at the proaches to the Cubans, Soviets, PLO, Ramada Renaissance. Just south and Libyans were fruitless. of the Potomac, in what once was Fidel was also disappointed in the part of Washington, you’ll be 10 minutes loss of Nicaragua, another beneficiary from the monuments and museums of Cuban largess, in the 1990 elec¬ by Metrorail. Yet comfortably out¬ RAMADA tions. An estimated 3,000 Cuban mili¬ side the District — with all the NAISSANCE tary advisors were in Nicaragua and HOTEL General Ochoa, fresh from successes comforts of home. ARLINGTON in Angola and Ethiopia, was assigned 'Per room, per night. Subject to availability. Not 950 North Stafford Street Arlington. Virginia 22203 there to revamp the Sandinista armed valid with groups or other discount programs. Arlington (703) 528-6000 Telefax (703) 528-4386 forces. Cuba also sent another 6,000 (800)228-9898 civilian doctors, teachers, engineers, agrarian reformers, and construction workers to Nicaragua. Fidel even had a grandiose plan to

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DECEMBER 1992 • FOREIGN SERVICE JOURNAL • 57 AUTHOR Peck, Edward L., Selection In and Promotion Up November Adkins-Blanch, Charles, The 1990 Immigration Act March Pickering, Thomas R., A Structure for Unity July An, Tai Sung, Coping with the Kims June Reston, James, Reflections on the Foreign Service October Anderson, Jim, The Fall of Elliot Abrams January Richmond, Yale, Cold War Stories: Romney Meets Arbatov Oct. Anderson, Jim, Foreign Policy in the Presidential Race Oct, Rodman, Peter W., The NSC System: Why It’s Here to Stay Feb. Anderson, Jim, Vietnam: School for Spin Doctors September Segesvary, Louis S., USIA’s Mission in the Post-Cold War Era Nov. Antonucci, Michael, Byzantine Diplomacy August Sewell, John W., and T.A. Johnston, Redesigning Foreign Aid Nov. Baker, John A., The Diplomat as Broker March Shellenberger, Jack H., The Forgotten Consul May Barnes, Jr., Harry G., On Getting Involved May Simpson, Howard R., A Memoir of Vietnam August Beecher, William, The Specter of North Korea June Sterner, Michael, Democratization and U.S. Policy October Binns, Jack R., On Extraterritorial Kidnapping October Steve ns on-Yang, Anne, Think Tanks at Work December Bloch, Julia Chang, Aiding Democracy in Nepal April Strasser, Daniel A., Loyalty and Dissent December Bovey, John, Brahim August Sundarji, K., Non-Proliferation and the First World June Briggs, Ellis O., The Consul and the Mutiny August Tuch, Hans N., The Case Against Radio Free China July Callahan, David, The Honest Broker: Brent Scowcroft February Vargo, Valentina, Journey from Moscow: Part I&II Jan & Feb Callahan, David, An Impossible Job? December Walser, Ray, 10 Steps to Diplomatic Discourse September Callahan, David, Reslicing the Pie: Foreign Aid and Security Apr. Warnke, Paul C., Quick March to Disarmament March Callahan, David, U.S. Foreign Policy and the UN July Callison, C.S., and J.G. Stovall, A.I.D.’s Identity Crisis January TITLE Callison, C. Stuart, Thinking Globally, Acting Locally November A.I.D.’s Identity Crisis, by C.S. Callison, and J.G. Stovall January Colby, William, Retooling the Intelligence Industry January Aiding Democracy in Nepal, by Julia Chang Bloch April Critchlow, James, Diplomat in Central Asia December Airlift Minsk: Operation Provide Hope, by Arthur Lezin July Cruit, Bette, Rider of the Afghan Range March Brahim, by John Bovey August Drexler, Robert W., The Insubordinate Peacemaker January Byzantine Diplomacy, by Michael Antonucci August Fascell, Dante, Don’t Ask Why, Ask IIow and for Whom April Case Against Radio Free China, The by Hans N. Tuch July Fenzi, Jewell, The 1972 Directive on Wives June Clearances and Closets, by Jan Krc July Frechette, Barbara, Revitalizing a Role for Spouses June Cold War Stories: Romney Meets Arbatov, by Yale Richmond Oct Gedda, George, Sorry, the Ambassador’s on Hold December Congressional View of the Foreign Service, by Lee Hamilton May Gedda, George, Yankee Come Home February Consul and the Mutiny, The by Ellis O. Briggs August Gilbert, R., Prestige and Perception at the World’s Fair August Coping with the Kims, by Tai Sung An June Godard, Wesley Ann, Home Leave: It’s Not a Vacation August Crisis at Guantanamo Bay, The by Doris Meissner March Gormley, James J., State Department Drug Warrior June Cultivating Dissidents in Romania, by Roger Kirk October Gray, Victor, A New Germany, Old Perceptions April Democratization and U.S. Policy, by Michael Sterner October Gribbin, Robert E., Political Vignettes from Africa Sept Differences in Style, by Brandon Grove, Jr. December Griffith, William H., The Dublin Visa Lottery March Diplomat as Broker, The by John A. Baker March Grove Jr., Brandon, Differences in Style December Diplomat in Central Asia, by James Critchlow December Hamilton, Lee H., Congressional View of the Foreign Service May Don’t Ask Why, Ask How and for Whom, by Dante Fascell April Harter, John J., Strategies for a Post-Cold War World September Dublin Visa Lottery, The by William H. Griffith March Harter, John J., Mr. Foreign Service: Loy Henderson April Dulles on Dissent October Houston, Robert, Treasure Islands November Earth Summit: All that is UNCED, The by W.A. Nitze May Jennings, M., and A.S.Yang, Gays in the Foreign Service July Ethiopia at the Polls, by Gilbert D. Kulick September Johnson, Harry, Farewell to the Pan Am Clipper June Fall of Elliot Abrams, The by Jim Anderson January Jones, D.T., and T.C. Jones, Reinventing the Oral Exam November Farewell to the Pan Am Clipper, by Harry Johnson June Jones, David T., Mr. Jones Goes to the Pentagon March First Planning Staff, The by George F. Kennan September Keilson, Jerrold, Training Soviet Managers January Foreign Aid and Security, by David Callahan April Kempster, Norman, O’Pionccrs! December Foreign Policy in the Presidential Race, by Jim Anderson October Kennan, George F., The First Planning Staff September Forgotten Consul, The, by Jack H. Shellenberger May Kenney, George, On Making a Difference: Why 1 Resigned Oct. Frontier Embassy, by Joseph Lake December Kirk, Roger, Cultivating Dissidents in Romania October Gays in the Foreign Service, by M. Jennings & A.S. Yang July Krc, Jan, Clearances and Closets July Home leave: It’s Not a Vacation, by Wesley Ann Godard August Kreisberg, Paul, A Pragmatic Approach September Honest Broker: Brent Scowcroft, The by David Callahan February Kulick, Gilbert D., Ethiopia at the Polls September Impossible Job, An, by David Callahan December Laukhuff, Perry, Paris Fell, and I Celebrated March Insubordinate Peacemaker, The by Robert W. Drexler January lake, Joseph, Frontier Embassy December Intelligence After the Cold War, by Frank McNeil February Lezin, Arthur, Airlift Minsk: Operation Provide Hope July Interview with William Macomber June Maechling, Jr., Charles, The Rise and Fall of Policy Planning Sept. Introduction: The End of Immunity September McNeil, Frank, Intelligence After the Cold War February Journal: Rider of the Afghan Range, by Bette Cruit March Meissner, Doris, The Crisis at Guantanamo Bay March Journey from Moscow: I&II, by Valentina Vargo Jan & Feb Morgan, William D., Keeping Our Consuls March Keeping Our Consuls, by William D. Morgan March Nitze, William A., The Earth Summit: All that is UNCED May Loyalty and Dissent, by Daniel A. Strasser December Patterson, J.A., USAID Needs a Mission and a Mandate June Memoir of Vietnam, A, by Howard R. Simpson August

58 • FOREIGN SERVICE JOURNAL • DECEMBER 1992 Mr. Foreign Service: Loy Henderson, by John J. Harter April On Getting Involved, by Harry G. Barnes, Jr. May Mr. Jones Goes to the Pentagon, by D.T. Jones March FOREIGN POLICY: NSC System: Why It’s Here to Stay, The by P.W. Rodman Feb. Democratization and U.S. Policy, by Michael Sterner October New Germany, Old Perceptions, A by Victor Gray April Foreign Policy in the Presidential Race, by Jim Anderson Oct. 1990 Immigration Act, The, by Charles Adkins-Blanch March Non-Proliferation and the First World, by K. Sundarji June 1972 Directive on Wives, The Jewell Fenzi June Okinawa and the U.S.-Japan Relationship May Non-Proliferation and the First World, by K. Sundarji June Pragmatic Approach, A by Paul Kreisberg September O’ Pioneers, by Norman Kempster December Strategies for a Post-Cold War World, by J.J. Harter Sept. Okinawa and the U.S.-Japan Relationship May Think Tanks at Work, by Anne Stevenson-Yang December On Extraterritorial Kidnapping, by Jack R. Binns October Yankee Come Home, by George Gedda February On Getting Involved, by Harry G. Barnes, Jr. May FOREIGN SERVICE On Making a Difference: Why I Resigned, by George Kenney Oct. Congressional View of the Foreign Service, by Lee Hamilton May Paris Fell, and I Celebrated, by Perry Laukhuff March Differences in Style, by Brandon Grove, Jr. December Philip Habib: A Remcmberance July Diplomat in Central Asia, by James Critchlow December Political Viginettes from Africa, by R.E. Gribbin September Gays in the Foreign Service, by M. Jennings and A.S. Yang July Pragmatic Approach, A by Paul Kreisberg September Habib, Philip: A Remcmberance July Prestige and Perception at the World’s Fair, by R.Gilert August Loyalty and Dissent, by Daniel A. Strasser December Professional Diplomacy, by BUI Clinton April Mr. Foreign Service: Loy Henderson, by J.J. Harter July Quick March to Disarmament, by Paul C. Warnke March On Making a Difference: Why I Resigned, by George Kenney Oct. Redesigning Foreign Aid, by J.W. Sewell and T.A. Johnston Nov. O’ Pioneers, by Norman Kempster December Reflections on the Foreign Service, by J. Reston October Professional Diplomacy, by Bill Clinton April Reinventing the Oral Exam, The by D.T. Jones & T.C. Jones Nov. Reflections on the Foreign Service, by James Reston Oct. Retooling the Intelligence Industry, by William Colby January Sorry, the Ambassador’s on Hold, by George Gedda Dec. Revitalizing a Role for Spouses, by Barbara Frechette June IMMIGRATION: Rise and Fall of Policy Planning, The, by C. Maechling, Jr. Sept. Crisis at Guantanamo Bay, The by Doris Meissner March Selection In and Promotion Up, by Edward L. Peck November Dublin Visa Lottery, The by William H. Griffith March Sorry, the Ambassador’s on Hold, by George Gedda December 1990 Immigration Act, The, by Charles Adkins-Blanch March Specter of North Korea, The by William Beecher June JOURNAL: State Department Drug Warrior, by James J. Gormley June Brahlm, by John Bovey August Strategies for a Post-Cold War World, by John J. Harter Sept. Consul and the Mutiny, The by Ellis O. Briggs August Structure for Unity, A by Thomas R. Pickering July Farewell to the Pan Am Clipper, by Harry Johnson June 10 Steps to Diplomatic Discourse, by Ray Walser September Home Leave: It’s Not a Vacation, by Wesley Ann Godard Aug. Think tanks at Work, by Anne Stevenson-Yang December Journey from Moscow: I&II, by Valentina Vargo Jan & Feb Thinking Globally, Acting Locally, by C. Stuart Callison Nov. Memoir of Vietnam, A, by Howard R. Simpson August Training Soviet Managers, by Jerrold Keilson January Paris Fell, and I Celebrated, by Perry Laukhuff March 1 reasure Islands, by Robert Houston November Rider of the Afghan Range, by Bette Cruit March USAID Needs a Mission and a Mandate, by John A. Patterson June NATIONAL SECURITY: U.S. Foreign Policy and the UN, by David Callahan July Honest Broker: Brent Scowcroft, The by David Callahan Feb. USIA’s Mission in the Post-Cold War Era, by L.S. Segesvary Nov. Intelligence After the Cold War, by Frank McNeil February Vietnam: School for Spin Doctors, by Jim Anderson September NSC System: Why It’s Here to Stay, The by P.W. Rodman Feb. Yankee Come Home, by George Gedda February Quick March to Disarmament, by Paul C. Warnke March Retooling the Intelligence Industry, by William Colby January SUBJECT PERSONNEL: USAID: 1972 Directive on Wives, The, by Jewell Fenzi June A.I.D.’s Identity Crisis, by Callison, C.S., & J.G. Stovall January Reinventing the Oral Exam, The by D.T. Jones & T.C. Jones Nov. Aiding Democracy in Nepal, by Julia Chang Bloch April Revitalizing a Role for Spouses, by Barbara Frechette June Airlift Minsk: Operation Provide Hope, by Arthur Lezin July Selection In and Promotion Up, by Edward L. Peck November Don’t Ask Why, Ask How and for Whom, by Dante Fascell April STATE: Foreign Aid and Security, by David Callahan April First Planning Staff, The by George F. Kennan September Redesigning Foreign Aid, by J.W. Sewell and T.A. Johnston Nov. Frontier Embassy, by Joseph Lake December USAID Needs a Mission and a Mandate, by J.A. Patterson June Impossible Job, An, by Anne Stevenson-Yang December Thinking Globally, Acting Locally, by C.S. Callison November Mr. Jones Goes to the Pentagon, by David T. Jones March DIPLOMACY: Rise and Fall of Policy Planning, The, by C. Maechling, Jr. Sept. Byzantine Diplomacy, by Michael Antonucci August State Department Drug Warrior, by James J. Gormley June Cultivating Dissidents in Romania, by Roger Kirk October UNITED NATIONS: The Diplomat as Broker, by John A. Baker March Structure for Unity, A by Thomas R. Pickering July On Extraterritorial Kidnapping, by Jack R. Binns October U.S. Foreign Policy and the UN, by David Callahan July 10 Steps to Diplomatic Discourse, by Ray Walser September USIA: ENVIRONMENT: Case Against Radio Free China, The by Hans N. Tuch July Earth Summit: All that Is UNCED, The by W.A. Nitze USIA’s Mission in the Post-Cold War Era, by L.S. Segesvary Nov.

DECEMBER 1992 • FOREIGN SERVICE JOURNAL • 59 (Executive

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