PUBLISHED BY THE AMERICAN FOREIGN SERVICE ASSOCIATION SEPTEMBER 2020 FACING RACISM

PLUS: UNITED NATIONS AT 75

FOREIGN SERVICE September 2020 Volume 97, No. 7 Focus on Addressing Race, Diversity & Inclusion

24 33 40 Inclusion Helps Living Up to the The Making of a Drive Diversity American Idea Real American Diplomat State’s new initiatives create space Besides the moral imperative, A senior member of the Foreign for difficult conversations and there are compelling reasons to have Service who immigrated to the incorporate accountability. a Foreign Service that looks like United States as a child reflects By Mirembe Nantongo America. Here are some suggestions on her journey. for how to get there. By Julie Chung 30 By Peter F. Romero Creating a Culture of 44 Inclusion at State 35 It’s Not Just About To establish diversity at State, Diversity at State: Intake: A New Approach it is essential to make inclusion A Dream Deferred and a to Advancing Diversity count—in every promotion, job Collective Responsibility After 30 years, another round prospect and assignment. Two fellowship programs are heralded of the same measures will not do. By Gina Abercrombie- for bringing people of color into It’s time to define the problems Winstanley the Foreign Service, but the new and seek new solutions. employees’ advancement is inhibited By Patrice Johnson by institutional barriers. By Ana Escrogima, Lia Miller and Christina Tilghman 48 From the FSJ Archive: Diversity in the Foreign Service

Feature Cover Story: The U.N. at 75 62 51 Bringing Order Out U.N. Relevance Depends of Crisis: Behind the on U.S. Leadership Scenes of a Task Force By Jeffrey Feltman By Chris Meade, Holly Adamson, Merlyn Schultz 57 and Fany Colon de Hayes Ralph J. Bunche, U.N. Architect By James Dandridge

THE FOREIGN SERVICE JOURNAL | SEPTEMBER 2020 5 FOREIGN SERVICE

Perspectives Departments

10 Letters 7 92 14 Talking Points President’s Views Reflections Change Has Come, History of a Handshake: 80 In Memory More is Coming Ground-Level PD in Belarus By Eric Rubin By George Krol 85 Books 9 94 Letter from the Editor Local Lens It’s Time Annecy, France By Shawn Dorman By Brian Aggeler Marketplace 21 88 Real Estate Speaking Out 89 Index to Advertisers Why “27 Years and Out” Should Be Retired 90 Classifieds By Ted Craig

AFSA NEWS THE OFFICIAL RECORD OF THE AMERICAN FOREIGN SERVICE ASSOCIATION

67 AFSA Hosts Town Hall Series 74 This Is Not Your Father’s DACOR on COVID-19, Diversity 76 AFSA Lauds Supreme Court Decision 74 68 State VP Voice—Diversity and on Workplace Discrimination Inclusion: The Time to Act Is Now 76 AFSA Welcomes New Members 69 USAID VP Voice—The (GAO) Report of the U.S. Foreign Service Is In on Diversity at USAID 77 Seminar: How the SECURE and 70 FCS VP Voice—You Can’t Really CARES Acts Affect Retirement Ever Go Back, Only Forward … 77 AF SA Governing Board Meeting 71 AFSA Congratulates Kennan Resolutions Award Winners 78 FSI Releases New Guided 72 FSJ Wins Two TRENDY Awards Journal for FS Children for Publishing Excellence 79 Tomoko Morinaga Joins 72 How LWOP Affects Your AFSA as Membership AFSA Membership Operations Coordinator 73 AFSA Seeks Your Help with Outreach Efforts

On the Cover—Cover art by Alexandra Bowman, inspired by the concept “Diversity is being invited to the party, inclusion is being asked to dance.” That evocative phrase is introduced by Deputy Assistant Secretary Mirembe Nantongo in her lead article, and originally comes from diversity advocate Verna Myers. Find more of Bowman’s work on Instagram @alexbowman.

6 SEPTEMBER 2020 | THE FOREIGN SERVICE JOURNAL PRESIDENT’S VIEWS

Change Has Come, More Is Coming

BY ERIC RUBIN

his is a time of seismic change We are still not the Service we are supposed to be. for the world, our country, our profession and our institutions. TThe global wildfire-like spread of to be, one that looks like the country we The separation of families due to post the novel coronavirus and the economic represent. We’re more diverse than we departures related to the pandemic, and and social shocks that it brought have led were decades ago, to be sure, but progress the fact that many are still stuck in place to unprecedented challenges. There is no has slowed dramatically, and in some due to travel restrictions, has brought doubt our country could have responded respects we have gone backward. a slew of difficult decisions. Overseas better to the crisis. And while it was Second, because we have not lived up schools, which are so important to widely understood that our society had to our rhetoric. The numbers speak for making accompanied tours possible for failed to address fundamental issues of themselves, and the recent GAO reports families with children, are in some cases racial and economic fairness, the wave of are particularly revealing. AFSA recently facing challenges to their survival. Issues protest that followed the killing of George polled our membership on issues related related to COVID-19 testing, quarantine Floyd caught many Americans off guard. to racism and diversity. The responses and authorized departure continue to This is the first of two back-to-back underline how common it is for minor- demand creative solutions and the pro- issues of The Foreign Service Journal ity members of the Service to experience tection of our members and their families. dedicated to issues of diversity, inclusion blatant or subtle racism and discrimina- This brings us to the larger reality: The and discrimination in our Service. The tion, and how unrepresentative many of Foreign Service Act of 1980 is 40 years old passing of Representative John Lewis our overseas posts and domestic bureaus this year. It is our foundational legisla- (D-Ga.) reminds us—as he himself often are in terms of looking like America. tion, and I believe it is fundamentally did—that while we have come a long Of course, the effects of the coronavi- sound and should be largely preserved. way since the days of Jim Crow and legal rus crisis on our Service are real and dra- But the Foreign Service cannot be frozen segregation, we have a long way to go to matic. AFSA is working hard to support in amber. We are dealing with major become a truly fair and inclusive society. our members as they deal with the dis- changes in America’s role in the world, The ongoing debates over Confederate location that 2020 has brought. We have significant generational changes regard- flags and monuments also remind us that won important victories on issues that ing attitudes and expectations, and the we have not succeeded in achieving a are critical to our members in navigating need to rethink and improve how we common national understanding of the this crisis, and we are very glad that our recruit, hire and retain talent. We also Civil War and its causes, nor of the years agencies are bringing on new members of need a hard focus on workplace culture and decades that followed the Union the Service through online training and and its importance in fostering respect, victory. orientation. inclusion and morale. Why do we need The months ahead will bring more We want to hear your views on what to focus on diversity challenges and painful compromises. The needs to be done to improve and modern- in the Foreign Ser- loss of consular fees due to the impact ize our Service. Please share your thoughts vice today? First of of coronavirus will affect State’s ability with us at [email protected]. Thank you all, because we are to hire new officers. These fees pay the for your commitment and dedication to still not the Service salaries of many entry-level officers, who our country and to our shared mission at we are supposed serve in consular assignments first. this very challenging time. n

Ambassador Eric Rubin is the president of the American Foreign Service Association.

THE FOREIGN SERVICE JOURNAL | SEPTEMBER 2020 7 FOREIGN SERVICE

Editor-in-Chief, Director of Publications Shawn Dorman: [email protected] www.afsa.org Senior Editor Susan Brady Maitra: [email protected]

Managing Editor CONTACTS Kathryn Owens: [email protected] AFSA Headquarters: ADVOCACY Associate Editor (202) 338-4045; Fax (202) 338-6820 Director of Advocacy Cameron Woodworth: [email protected] State Department AFSA Office: Kim Greenplate: [email protected] (202) 647-8160; Fax (202) 647-0265 Publications Coordinator USAID AFSA Office: FINANCE AND ADMINISTRATION Dmitry Filipoff: [email protected] (202) 712-1941; Fax (202) 216-3710 Director of Finance and Facilities Business Development Manager— FCS AFSA Office: Femi Oshobukola: [email protected] Advertising and Circulation (202) 482-9088; Fax (202) 482-9087 Manager, HR and Operations Molly Long: [email protected] Cory Nishi: [email protected] GOVERNING BOARD Controller Art Director President Kalpna Srimal: [email protected] Caryn Suko Smith Hon. Eric S. Rubin: [email protected] Member Accounts Specialist Editorial Board Secretary Ana Lopez: [email protected] Alexis Ludwig, Chair Ken Kero-Mentz: [email protected] IT and Infrastructure Coordinator Hon. Robert M. Beecroft Treasurer Aleksandar “Pav” Pavlovich: Daniel Crocker Virginia L. Bennett: [email protected] [email protected] Joel Ehrendreich State Vice President Harry Kopp Thomas Yazdgerdi: [email protected] COMMUNICATIONS Jess McTigue USAID Vice President Christopher Teal Director of Communications Jason Singer: [email protected] Joe Tordella Ásgeir Sigfússon: [email protected] FCS Vice President Vivian Walker Manager of Outreach and Internal Hon. Laurence Wohlers Jay Carreiro: [email protected] Communications Dinah Zeltser-Winant FAS Vice President Allan Saunders: [email protected] Michael Riedel: [email protected] Online Communications Manager Retiree Vice President Jeff Lau: [email protected] THE MAGAZINE FOR FOREIGN AFFAIRS John K. Naland: [email protected] Awards and Scholarships Manager PROFESSIONALS State Representatives Theo Horn: [email protected] The Foreign Service Journal (ISSN 0146-3543), Joshua C. Archibald 2101 E Street NW, Washington, D.C. 20037-2990 is Strategic Messaging Coordinator published monthly, with combined January-February Matthew Dolbow Nadja Ruzica: [email protected] and July-August issues, by the American Foreign Service Holly Kirking Loomis Association (AFSA), a private, nonprofit organization. Kristin Michelle Roberts Material appearing herein represents the opinions of the MEMBERSHIP writers and does not necessarily represent the views of Tamir Waser Director, Programs and Member Engagement the Journal, the Editorial Board or AFSA. Writer queries Lillian Wahl-Tuco Christine Miele: [email protected] and submissions are invited, preferably by email. The USAID Representative Member Operations Coordinator Journal is not responsible for unsolicited manuscripts, Lorraine Sherman photos or illustrations. Advertising inquiries are invited. Tomoko Morinaga: [email protected] All advertising is subject to the publisher’s approval. FCS Alternate Representative Coordinator of Member Recruitment AFSA reserves the right to reject advertising that is not Mike Calvert and Benefits in keeping with its standards and objectives. The appear- FAS Alternate Representative ance of advertisements herein does not imply endorse- Perri Green: [email protected] ment of goods or services offered. Opinions expressed in Mary Parrish Retirement Benefits Counselor advertisements are the views of the advertisers and do USAGM Representative Dolores Brown: [email protected] not necessarily represent AFSA views or policy. Journal Steve Herman subscription: AFSA member–$20, included in annual APHIS Representative dues; student–$30; others–$50; Single issue–$4.50. 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Office Coordinator Senior Labor Management Advisor Postmaster: Send address changes to Therese Thomas: [email protected] James Yorke: [email protected] AFSA, Attn: Address Change Labor Management Coordinator 2101 E Street NW PROFESSIONAL POLICY ISSUES Patrick Bradley: [email protected] Washington DC 20037-2990 Director of Professional Policy Issues Senior Grievance Counselor Julie Nutter: [email protected] Heather Townsend: [email protected] Grievance Counselor SUSTAINABLE Certified Sourcing FORESTRY Benjamin Phillips: [email protected] INITIATIVE www.sfiprogram.org SFI-01268

8 SEPTEMBER 2020 | THE FOREIGN SERVICE JOURNAL LETTER FROM THE EDITOR

It’s Time

BY SHAWN DORMAN

his month’s focus—addressing being invited to the party, while inclusion association did not always lead on the race, diversity and inclusion— is being asked to dance. issue, it is aiming to play a productive has been on the calendar since This concept, originally introduced by role today in raising and advocating Tthe end of last year when we set diversity advocate Verna Myers, inspired recommendations emerging from the 2021 themes. It is not a new topic, nor a the wonderful cover art. We commis- Foreign Service community—through new problem; but this moment in our sioned Black American artist Alexandra AFSA surveys and meetings and through country’s history may offer a real oppor- Bowman to bring the vision to life. We the affinity groups (who will weigh in tunity for change that is new. trust you will agree that she did. next month on these pages). The police killing of George Floyd In “Creating a Culture of Inclu- Our cover stories honor the 75th and all that followed has led to the airing sion at State,” Ambassador (ret.) Gina anniversary of the establishment of the of the Black experience in American Abercrombie-Winstanley puts forward United Nations. Ambassador (ret.) Jeffrey diplomacy in a way not widely seen specific recommendations on building Feltman shares his insider experience before. As Americans are facing racism accountability into the system to ensure as U.N. Under-Secretary-General for and taking stock of how our society and that promoting inclusion is everyone’s Political Affairs, explaining why “U.N. institutions are doing when it comes to responsibility. And Ambassador (ret.) Relevance Depends on U.S. Leadership.” equality and inclusion (not so well), so Peter F. Romero suggests specific ways Ambassador (ret.) James Dandridge too is the Foreign Service. the Foreign Service can truly look like brings us a story from the organization’s For this Journal focus, we have and represent America. beginnings in “Ralph J. Bunche, U.N. brought together powerful voices for In “Diversity at State: A Dream Architect.” positive change from various vantage Deferred and a Collective Responsibil- And following our focus on pandemic points, and we hope their insights and ity,” FSOs Ana Escrogima, Lia Miller diplomacy last month, we present a first- recommendations will contribute to the and Christina Tilghman offer an honest hand account from the 2020 Repatria- measures, policies, and even the cultural assessment of how well the Pickering and tion Task Force that brought home more shifts required to create a Foreign Service Rangel Fellowships have done in advanc- than 100,000 Americans. Chris Meade, that can live up to American ideals of ing diversity at State, and what should Holly Adamson, Merlyn Schultz and equality and inclusion. change. Fany Colon de Hayes—all with the State Leading the discussion, Deputy Senior FSO Julie Chung shares her Department Operations Center’s Office Assistant Secretary Mirembe Nantongo deeply personal story in “The Making of a of Crisis Management and Strategy—tell presents an inspiring look at why and Real American Diplomat.” us about “Bringing Order Out of Crisis: how diversity (about people) and inclu- In a critical look at barriers to Behind the Scenes of a Task Force.” sion (about culture) matter and what the advancement for people of color in the The FSJ strives to shine a light on State Department is doing to deal with Foreign Service, FSO Patrice Johnson the realities, diverse perspectives and both. She begins by tells us “It’s Not Just About Intake: A New real recommendations on how to move painting a powerful Approach to Advancing Diversity.” diplomacy forward. Given the ground- image of diversity vs. And we dove into the FSJ Archive to swell of attention to diversity and inclusion—diversity is resurface a selection of articles on diver- inclusion—and the opportunity of this sity in the Foreign Service going back to moment—we shifted our October focus Shawn Dorman is the 1963. to continue this conversation, which editor of The Foreign AFSA’s legacy on advancing diversity we invite you to join by writing to us at Service Journal. is mixed, and while it is fair to say the [email protected]. n­

THE FOREIGN SERVICE JOURNAL | SEPTEMBER 2020 9 LETTERS

Remembering with Tex from 1974 to 1977 in my first At the time of the massacre’s 10th Joseph Diatta assignment as an FSO. I was working in anniversary (July 11, 2005), I was an I was saddened to learn of the recent the European Affairs Bureau, and Tex FSO serving at U.S. Consulate General death of Joseph Diatta, a former ambas- was on detail to the Environmental Pro- Casablanca. Not even the horrors of Abu sador from Niger to the United States tection Agency. Ghraib upset my Moroccan colleagues and a colleague at the Foreign Service I also got to know his family during more than the Srebrenica massacre. Institute’s Foreign Affairs Counter Threat those years, and I am forever grateful to While watching the Al-Arabiya news (FACT) course. have shared in the generous spirit and channel’s coverage of the 10th anniver- As a facilitator with the FACT course, warmheartedness that later led them to sary of the massacre, the Moroccans, I had the privilege of working with Amb. their courageous actions in Argentina. I noticeably upset and even enraged, Diatta for nearly five years. He demon- worried about them in those years, but asked me whether the West would ever strated a quiet dignity, pro- I was not surprised by accept them, Muslim natives of the first vided a realistic encounter what they felt com- country to recognize the United States for students, and drew on pelled to do. in 1777. his personal experiences Separately, I doubt- After all, the Bosniacs were them- when teaching the impor- less would have joined selves considered the most Westernized tance of cultural sensitivity, AFSA anyway; but Muslims. Yet, subjected to the Serbs’ mutual respect and active when I met Tex (on ethnic cleansing campaign, they were listening. the last day of A-100 victims of the worst massacre in Europe Having served as ambas- orientation), he said since the end of World War II, while Sre- sador to the United States to me: “You’re an FSO; brenica was ostensibly under U.N. blue and having been one of you have to belong to helmet protection. (U.N. “safe haven” the chief architects of the AFSA.” That settled it. must be the oxymoron of the 1990s!) 1995 peace agreement that I was an FSO for My Moroccan co-workers simply reconciled the Tuareg armed only five years, but I could not fathom how the United States rebellion in Niger, Amb. Diatta brought a have happily been an AFSA member for and the West, well aware of the brutal unique perspective to the FACT program. more than 45 years. reputations of Ratko Mladic and Radovan In observing his interaction with I hope that members of the Foreign Karadzic, could let this happen. students, I was struck by the importance Service community who never had the The subsequent radicalization of some he placed on nurturing relationships, good fortune to know Tex personally will Bosniacs, like the Chechens before them, increasing rapport and promoting com- nevertheless find inspiration in him to should not have surprised anyone—and munication. He understood, better than nurture their own integrity, professional- certainly not members of our profes- most, that open communication might ism and humanity. sion—remotely aware of what was done at some point save a Foreign Service offi- Edwina Campbell to them by the Serbs and the Russians, cer’s life or the lives of their colleagues. Former FSO respectively. Joseph Diatta will be missed. Fort Worth, Texas Although the July-August FSJ under- Michael Maxey standably focused on COVID-19 and USAID FSO, retired Remembering the the widespread public outcry in the Fairfax, Virginia Srebrenica Massacre United States and elsewhere over George It has been 25 years since Bosnian Floyd’s murder and police brutality, it Endowing the Serbs murdered more than 8,000 fellow was disappointing that the Journal did Tex Harris Award Bosnians who were Muslim. Despite all not also feature a remembrance essay on In May, I sent a contribution to AFSA our professions since the Holocaust of Srebrenica and the international commu- to help establish a permanent endow- “Never Again,” wanton genocidal killing nity’s failure to stop the Bosnian Serbs’ ment for the Tex Harris Award. of noncombatants had occurred once onslaught. I had the privilege of working closely more in Europe. After all, several FSOs, notably area

10 SEPTEMBER 2020 | THE FOREIGN SERVICE JOURNAL experts George Kenney and Marshall 19, draconian lockdowns and terrible Mr. Moore suggests and adopts many Freeman Harris, resigned in protest of health care situations. additional technologies and policies to our government’s inaction. It is nice to acknowledge all the hard modernize. Let the challenges created It is incumbent on us to reflect work that was done in the wake of the by COVID-19 be a catalyst for positive periodically on what was done to the COVID-19 pandemic, but it would also change. Bosniacs, Darfuris, Kurds, Rohingyas, be nice to allow a tip of the hat for what Daniel Walsh Chechens, Palestinians and other vic- happens after everyone is evacuated. FSO timized peoples when confounded by Thanks to AFSA and the FSJ for all Auckland, New Zealand their intransigence and anger. you do. George W. Aldridge Ubah Khasimuddin An Art Based on Science FSO, retired Office Management Specialist Andrew Moore’s June Speaking Arlington, Texas U.S. Embassy New Delhi Out on lessons from Silicon Valley is a refreshing call for a Foreign Service life Keeping Embassies Responding to Lessons in which diplomats spend most of their Running from Silicon Valley time serving America, rather than navi- I read the July-August Journal on the Andrew Moore’s June Speaking Out, gating bureaucratic mazes to manage FS response to the COVID-19 pandemic “Lessons from Silicon Valley: Practical their service. Many diplomats likely saw with interest. It seems that throughout Suggestions for a Modern Workplace,” themselves in his all-too-relatable war the world, at all was timely and exactly what story of a nine-month saga to get a $50 posts, everyone was the State Department needs reimbursement. consistent in their to hear at this time. Yet, while I’m sure most in the State effort to repatri- The COVID-19 pandemic Department agree that we should ate Americans back has forced the department “modernize diplomacy” and “make it the home—if it were to deploy technological first tool of foreign policy,” some would possible, we should and policy changes to cope unfortunately be quick to explain why all get one big group with unprecedented global each specific innovation Moore proposes Eagle Award. challenges. Technological for doing so (e.g., the use of advanced However, one changes that had been in analytics in decision memos) “could thing I’ve noticed that development were deployed never be done here.” is markedly missing rapidly with positive results. Those in State’s ranks who cling to in almost all State Sensible policy changes “the way things have always been” often Department commu- like teacher language score justify their reticence to innovation by nication, and in the Journal, is appre- evaluations at FSI and interview waivers saying “diplomacy is an art, not a sci- ciation and/or stories about those of for H2A applicants demon- ence” and pointing us who stayed behind, those of us who strate that it is time to review to a past golden age didn’t take authorized departure but why certain policies are in of diplomacy (that remained at post. place. If they can be changed never really existed) We are the warriors ensuring that in the face of crisis, are they to which we should the embassies continue to run and that necessary at normal times, instead return. there is an American presence (and or are they in place because However, this American Citizen Services) in far-flung “we’ve always done it this hagiography ignores locations, even during this pandemic. way”? the history of reform We forfeited being in the United As an entry-level officer at State. Far from States and near our loved ones, instead with a background in artists remaking the serving our country on the front lines, tech, I hope the depart- world, past efforts to often in countries with raging COVID- ment makes the changes bolster diplomacy

THE FOREIGN SERVICE JOURNAL | SEPTEMBER 2020 11 have gone hand in hand with a push to bread-and-butter language and area make it more rational, specialized and expertise. professional. As major transnational threats Consider, for example, Wilbur like artificial intelligence, pandemic Carr, the father of the Foreign Service. disease and climate security continue Working in the Progressive Era to end to dominate the international political State’s unfortunate distinction as the landscape, diplomacy will also need last bastion of the spoils system (see to become more of a specialist craft, Fareed Zakaria’s From Wealth to Power: embracing subject-matter expertise. The Unusual Origins of America’s World Today, as in days past, the art of Role), Carr largely authored the Foreign diplomacy is to embrace the science. n Service Act of 1924 (known as the Ryan Dukeman Rogers Act). The legislation fused the Ph.D. student, Princeton University diplomatic and consular services, and & former State Department created the first merit-based hiring and Center for Analytics consultant promotion requirements in the depart- Princeton, N.J. ment’s history. These changes brought in new FSOs who (among other fields) understood the then-burgeoning science of public administration, replacing old patron- age hires who did little more than push paper. Later, the Foreign Service Act of 1946 created a corps of reservists, diplomats based primarily in Washington who could be called to overseas service if needed. In post–WWII practice, however, most employees remained stateside, and later became the expert Civil Service foreign affairs officers we know today. This provision recognized the distinct duties for diplomats serving overseas and at home—information collection and representation vs. policy analysis—and further specialized the Share your diplomatic corps to take advantage of thoughts about the unique skill sets of each. These and other reforms, opposed this month’s issue. by many traditionalists at the time, were premised on the belief that diplomacy should increasingly professionalize itself Submit letters and benefit from the advances of the day. to the editor: Today, that means recognizing that [email protected] cutting-edge information sciences are a complement, not a substitute, for

12 SEPTEMBER 2020 | THE FOREIGN SERVICE JOURNAL

TALKING POINTS

State Struggles to but dropped to 14 percent of the Senior or lower ranks, but just 32 percent of the Promote Diversity Foreign Service. Senior Foreign Service. n June 17 testimony, “Additional Steps As of early June, only three of the “Although State has implemented IAre Needed to Identify Barriers to State Department’s 189 ambassadors several plans, activities and initiatives Workforce Diversity,” the Government were Black American career diplomats, to improve diversity and representation Accountability Office presented State and only four were Hispanic. throughout the ranks of its workforce,” Department data from Fiscal Year 2002 to GAO also found that the overall GAO concludes, “longstanding diversity FY2018 showing that promotion rates for proportion of female full-time career issues—for example, underrepresentation ethnic and racial minorities are consider- employees at State decreased slightly, of racial or ethnic minorities and women ably lower than for whites. from 44 to 43 percent, between 2002 and in the senior ranks—persist at the agency. The testimony, delivered by GAO 2018. While the proportion of women in “Until State takes steps to explore such Director of International Affairs and the Foreign Service increased from 33 to issues, it could be missing opportuni- Trade Jason Bair to the House Foreign 35 percent during that period, it fell from ties to investigate, identify and remove Affairs Committee’s Subcommittee on 61 to 54 percent in the Civil Service. barriers that impede members of some Investigations and Oversight, was based The proportion of women became demographic groups from realizing their on the comprehensive report it had even smaller at the higher ranks of the full potential.” issued in January (GAO-20-237). Foreign Service, according to the 2018 At the end of 2018, State had 22,806 numbers, GAO reported. Women made full-time, permanent career employees, up 68 percent of the workforce at FS-6 an increase of nearly 40 percent over 2002, GAO found. The number of full- time employees in the Civil Service rose Site of the Month by nearly 40 percent, from 6,831 in 2002 Black Diplomacy: Chris Richardson to 9,546 in 2018. The number of full-time Interviews Prof. Michael Krenn (YouTube) employees in the Foreign Service rose 36 percent from 9,739 in 2002 to 13,260 n this YouTube video, former For- in 2018. Ieign Service Officer Chris Rich- The overall proportion of racial or eth- ardson interviews Professor Michael nic minorities in the State Department’s Krenn about race relations in the full-time career workforce grew from 28 State Department. to 32 percent from 2002 to 2018. In the Prof. Krenn, the author of Black Foreign Service, that number increased Diplomacy: African Americans and in the department since 1949, the from 17 to 24 percent, and in the Civil the State Department, 1945-1969 struggles of the first Black diplomats Service, it fell from 44 to 43 percent. (M.E. Sharpe, 1999), teaches history and what Krenn believes is needed to The proportion of African Americans at Appalachian State University. The reform State. in the Foreign Service increased from book discusses integration of the Chris Richardson—whose 6 to 7 percent during that period, while State Department after 1945, as well op-ed, “The State Department Was the percentage of African Americans in as the appointments of Black ambas- Designed to Keep African Americans the Civil Service decreased from 34 to 26 sadors to African and other develop- Out,” appeared in the June 23 New percent. ing nations. York Times—is currently the general According to the United States Census In the interview, Richardson and counsel and chief operating officer Bureau, 13.4 percent of Americans were Krenn conduct a decade-by-decade for BDV Solutions, an immigration Black as of July 2019. analysis of State and its issues with consulting firm. GAO found that all minorities race. The two also review various con- Watch the video at https://bit.ly/ made up 30 percent of Foreign Service gressional investigations about race black-diplomacy. employees at the FS-6 rank and lower,

14 SEPTEMBER 2020 | THE FOREIGN SERVICE JOURNAL Harassment at Border Crossings Contemporary Quote n the wake of discussions sparked Right now, there are two fellowship programs that hire people of by the blog posts from former State I color and give them positions within the Foreign Service. I’d say Department Consular Fellow Tianna that the State Department needs to increase fellowship programs like this. Spears, the American Academy of Diplo- They need to increase hiring of people of color, promoting entry-level macy sent a letter on July 13 to Secretary officers and mid-level officers so that they actually have the opportu- of State Mike Pompeo regarding harass- nity, sit at the table and make decisions within these rooms and within the embassies and consulates. So the entire State Department has to look ment of minority diplomats at U.S. border within and see what they can do to make the culture safer, healthier for crossings. The letter was signed by Ambas- people of color that come in and give their lives and their careers sadors (ret.) Thomas Pickering, AAD and their families to its mission. chairman, and Ronald Neumann, AAD president. Excerpts from the letter follow. —Former Foreign Service Consular Fellow Tianna Spears, when asked how “We are writing to address one acute the State Department could reimagine recruitment and bolster retention of diverse staff issue: the deeply troubling pattern in and diplomats in a July 13 interview with PRI’s “The World.” the mistreatment of Black, Hispanic and other minority officers crossing U.S. bor- der/entry points. By their own testimony, “We would like to suggest some Department. Further progress toward many State Department officers have steps to address and hopefully halt the this objective will require sustained effort endured regular and persistent discrimi- mistreatment of Black and other minority at the most senior levels to ensure that nation and harassment by U.S. Customs staff, indeed all State Department staff, by all Department officers get the respect and Border Patrol officers. law enforcement at border entry posts: and dignity from U.S. law enforcement “Problems include CBP officers not “• A Department-wide review, ordered officials, which every American is entitled accepting standard diplomatic docu- by you, regarding the specific incidents to at the border and international entry ments; placing Black and Hispanic offi- reported by officers and consideration of points, especially while on official duty.” cers in secondary examination without measures that can be taken within State cause; and repeated hostile questioning both to intervene immediately in such Top State Official and delays. This is made even more glar- cases and ensure equal treatment at the Resigns Over Trump ing when they travel with Caucasian col- border of all staff in Mexico and world- Response to Racial leagues who pass through with the same wide; Issues documentation. … “• A review of the issue at a senior he State Department’s highest-level “Mistreatment of State Department level with the Department of Homeland TBlack official, and the only Black personnel by U.S. CBP is not new. We have Security, specifically the U.S. Customs assistant secretary of State, resigned on learned that such incidents have often dis- and Border Protection, to ensure such June 18 over President Donald Trump’s rupted the official travel of Black, Hispanic practices cease; and handling of racial tensions. and other officers. While in the past, some “• Make clear to all Department Mary Elizabeth Taylor was the first incidents came to the attention of Depart- employees that you regard such mistreat- Black woman to hold the position of ment leadership, the continued reports, ment as unacceptable, that you expect assistant secretary of State for legislative including from our most senior members, reported cases to be addressed overseas affairs. At age 30, she was also the young- suggest that such mistreatment lives on and domestically, as appropriate, and est. A Republican political appointee, she and too often goes unaddressed. that you will follow up regularly with the previously served as an aide to Senate “We hope you concur that any percep- Director General and relevant senior Majority Leader Mitch McConnell (R-Ky.). tion of tacit acceptance of such practices officials at State and other agencies. “Moments of upheaval can change you, or indifference to the reports by Depart- “The American Academy of Diplomacy shift the trajectory of your life, and mold ment officials or other Federal officials is strongly supports a diverse, inclusive, your character. The President’s comments unacceptable and warrants action. well-resourced and high-impact State and actions surrounding racial injustice

THE FOREIGN SERVICE JOURNAL | SEPTEMBER 2020 15 and Black Ameri- to travel to their onward assignments, employee safety—have not been met. … cans cut sharply another factor in school attendance. [F]ive of the seven indicators on the Diplo- against my core Some FSOs who were allowed to travel macy Strong dashboard show clearly that values and convic- to new posts found the experience bewil- the Washington metro area should not be tions,” Taylor wrote dering. Some countries required new moving to this next stage.” in her resignation arrivals to quarantine for up to 14 days, letter to Secretary of forcing FSOs to perform the embassy Packing the USAGM

State Mike Pompeo. DEPARTMENT STATE check-in process virtually. And for some, n June 4, days after the FSJ reported “I must follow the Mary Elizabeth the usual excitement of arriving at a new Oon unprecedented White House Taylor dictates of my con- post was tempered by not being able to attacks on the Voice of America, the Sen- science and resign as Assistant Secretary of meet embassy colleagues in person or ate confirmed documentary filmmaker State for Legislative Affairs.” explore the city. Michael Pack as chief executive officer Many who have been on global autho- of the Broadcasting Board of Governors, COVID-19 Challenges rized departure were unsure when they which oversees the U.S. Agency for Global Continue for Foreign would be allowed to return to their posts, Media. Service or whether they should curtail. And many USAGM encompasses VOA, Radio s COVID-19 cases increased dra- who have stayed at post wondered if it Free Europe/Radio Liberty, the Office of Amatically in the United States in was safe to take a vacation and what to do Cuba Broadcasting (Television and Radio June and July, the Foreign Service sought with their accrued R&R leave. Martí), Radio Free Asia and the Middle to adjust to numerous challenges brought While COVID-19 cases dropped East Broadcasting Networks. on by the pandemic. dramatically in some countries in Europe Pack’s June 2018 nomination was so One of the foremost issues on Foreign and Asia, other parts of the world—such controversial that it took more than a Service families’ minds was whether their as the Middle East and the Americas— year to pass through the Senate Foreign children would be able to attend school became hotspots. Relations Committee, and still had not in person this fall, and how that would More than 500 FSOs signed a July 27 reached the Senate floor at the end of May affect parents’ ability to work. letter to Under Secretary of Management 2020. But after heavy administration pres- In the Washington, D.C., area, for Brian Bulatao, asking the State Depart- sure, Pack was confirmed even though example, Arlington Public Schools Super- ment to delay its move to the second he remains under investigation by the intendent Francisco Duran proposed a phase of its reopening plan. In Phase 2, District of Columbia attorney general for virtual-only start to the school year, with up to 80 percent of staff members would allegedly channeling money from a non- the goal of beginning in-school instruc- return to the office. profit group he oversees to his for-profit tion for some students in the Virginia The letter asked the under secretary film production company. district in October. to “provide definitive guidance to all Shortly after he was appointed, VOA The District of Columbia on July 30 bureaus and overseas [m]issions direct- Director Amanda Bennett and Deputy announced an all-virtual start to the ing them to allow all telework-ready Director Sandy Sugawara, both civil school year through at least Nov. 6. employees to continue to telework full- servants, resigned on June 15. Two days Overseas, many parents also faced time, without retribution, until all local later, on his first official day in office, Pack difficult school choices, depending on school districts have discontinued virtual fired two more network heads: Bay Fang, the severity of the pandemic in their options and public transportation is president of Radio Free Asia, and Emilio host countries. On the popular Facebook available and safe.” Vazquez, acting director of the Office of group Trailing Houses, some parents AFSA also sent a July 27 letter to Secre- Cuba Broadcasting. shared homeschooling resources to tary of State Mike Pompeo about the issue, Next, Libby Liu—a George H.W. Bush supplement virtual education. and in a July 29 statement to its members, appointee and former head of RFA now In the foreign affairs agencies, many said: “AFSA believes that the criteria set directing a special program, the Open members of the Foreign Service still did out by the department—data, conditions Technology Fund, aimed at developing not know when they would be permitted on the ground in specific locations, and digital tools to penetrate the so-called

16 SEPTEMBER 2020 | THE FOREIGN SERVICE JOURNAL Protecting FSOs Abroad HEARD ON THE HILL and can play a role also in coordinating This year is a stark reminder of how we broader overseas U.S. engagement. must do everything we can to support the —Chairman Sen. Jim Risch (R-Idaho) at the safety of our Foreign Service officers work- Senate Foreign Relations Hearing, “COVID-19 ing abroad at 260-plus installations. and U.S. International Pandemic —Rep. Hal Rogers (R-Ky.) at the State, Preparedness, Prevention, and Response: Foreign Operations and Related Programs Additional Perspectives,” June 30. (SFOPS) Full Appropriations Committee Markup, July 9. Diversity at State People who bring diversity to the State Diplomacy’s Bedrock JOSH Department will help us more than oth- I am very, very appreciative of your dedication to … ers because we’ll have a Foreign Service that reflects protecting our career personnel at the State Department America, but it will also undercut the propaganda of and USAID and international institutions, these people our enemies, who say that America is a place of discrimi- who are the bedrock of our nation’s diplomatic efforts. nation and caste. And obviously, nothing defeats that —Rep. David Price (D-N.C.) to Appropriations argument more than people at a high level in our State Chairwoman Rep. Nita Lowey at the SFOPS Department serving abroad in illustrating the opposite. Full Appropriations Committee Markup, July 9. —Rep. Brad Sherman (D-Calif.) at the House Foreign Affairs Committee’s Oversight and Investigations State’s Role During Pandemic Subcommittee Hearing, “Diversity and Diplomacy: The State Department has an incredibly important role Why an Inclusive State Department Would Strengthen in building diplomatic support for pandemic readiness U.S. Foreign Policy,” June 17.

Great Chinese Firewall—was sacked than Alexandre, senior counsel for Liberty lems that have surfaced in the media” and before she could resign. Counsel, an organization dedicated to warning that, while he hoped to “confer Pack also dismissed RFE/RL President “religious freedom” that once threatened extensively with you—the talented and Jamie Fly and MBN President Alberto legal action against a Jacksonville, Florida, dedicated men and women of USAGM … Fernandez, both staunch Republicans library for holding a Harry Potter event, current circumstances will limit the kind appointed by Trump, and both esteemed on the grounds that this constituted pro- of outreach and contact we have for a throughout USAGM. motion of witchcraft. while longer.” Pack froze all spending and replaced all USAGM then issued a press release, members of the organizations’ biparti- quoted by Martha Bayles in The American san governing boards—which included Interest. “Pack’s message was met with an seasoned, knowledgeable individuals overwhelmingly positive response by staff like Ambassadors (ret.) Ryan Crocker and and grantees, who personally reached Karen Kornbluh—with himself and five out and candidly congratulated him,” the other individuals. Even as heads were rolling, Pack sent release stated in part. Among them are Rachel Semmel, who an email to USAGM employees assuring As Bayles trenchantly observes, “It is has used her position as spokesperson them: “I am fully committed to honoring remarkable how closely this resembles an for the Office of Management and Budget VOA’s charter, the missions of the grant- official Chinese Communist Party com- to provide caustic responses to questions ees and the independence of our heroic muniqué, translated into stilted, unnatu- about Trump’s disputed decision to with- journalists around the world.” ral English by a person with absolutely no hold military aid from Ukraine; Bethany But the message concluded on a ear for the way people actually talk.” Kozma, who has brought her anti-abor- chillier note, as Pack announced his Meanwhile, Pack has refused tion-rights activism to USAID; and Jona- intention “to examine some of the prob- calls to sign off on J-1 visa extensions

THE FOREIGN SERVICE JOURNAL | SEPTEMBER 2020 17 50 Years Ago

Radio Is Alive and Well adio informs, interprets, teaches, persuades States Government, is the largest and Rand entertains, all for a penny’s worth of battery most comprehensive of the various electricity a day. It hurdles the barriers of censorship American broadcasters. It airs 830 and illiteracy. Many in the world are illiterate, but few hours a week in 35 languages—well are deaf. behind Radio Moscow, Radio Peking There are about 850 million radio sets in the world and even the national radio of the today. One out of three can pick up short wave. If the United Arab Republic. present trend continues, over one billion radio sets will be Radio Moscow and its sister station, “Radio Peace and in use by 1980, perhaps 300 million of them capable of Progress,” must be viewed as the single biggest world receiving short wave. broadcaster with 1,920 hours a week going out in 82 All major and many small nations broadcast interna- languages. Radio Peking follows with nearly 1,500 hours tionally. in 38 languages, and UAR Radio has 1,040 hours in 29 The total air time of all American broadcasters languages. (government and private) transmitting to foreign audi- With all this international broadcasting going on, it is ences—2,240 hours a week—exceeds that of all other easy to see that the airwaves are jammed and the com- nations. This astounding total includes the output of petition for the limited number of available frequencies American radio stations like Radio Free Europe, Radio is fierce. In fact, the most striking recent development Liberty and RIAS, which program exclusively for audi- in international broadcasting—regular satellite radio ences in Eastern Europe and the USSR, and also the transmissions are still in the future—has been the rapid world-wide American Forces Radio Network, which increase in the number and power of both medium and broadcasts only in English. short wave transmitters in the world. The Voice of America, a part of the United States —FSIO Richard G. Cushing, excerpted from his article of Information Agency and the official radio of the United the same title in the September 1970 FSJ.

for foreign nationals working for VOA in tional broadcasters are an important part for every American diplomat, to recognize Washington. Not only would this deprive of the face we present to the world. Thanks how our founders understood unalienable the agency of a wealth of talent and to congressional negligence, presidential rights,” Secretary Pompeo said in a speech expertise, but it may leave scores of pro- malice and general indifference, that face at the National Constitution Center there. fessionals who have dedicated their lives has just gotten uglier.” “Foremost among these rights are prop- to furthering American ideals with no erty rights and religious liberty.” choice but to return to the very regimes Pompeo Unveils Secretary Pompeo created the advi- on which they have been reporting. Unalienable Rights sory commission in July 2019 to provide Writing in June in The Atlantic, Anne Report “advice on human rights grounded in our Applebaum observes: “In a world where rguing against a “proliferation” of nation’s founding principles and the prin- airwaves are flooded with authoritarian Ahuman rights and claiming that ciples of the 1948 Universal Declaration disinformation, the effectiveness of Amer- “more rights does not necessarily mean of Human Rights,” according to the State ican messaging depends on the perceived more justice,” Secretary of State Mike Pom- Department website. It was greeted with credibility and independence of the mes- peo unveiled a draft report of recommen- skepticism from parts of the human rights sengers. Anything that resembles ‘Trump dations from his Commission on Unalien- community from the outset. TV’ or even just old-fashioned propa- able Rights on July 16 in Philadelphia. Release of the report initiated a two- ganda will have neither. America’s interna- “It’s important for every American, and week public comment period.

18 SEPTEMBER 2020 | THE FOREIGN SERVICE JOURNAL The commission’s report included a The Times “wants you to believe that prefatory note highlighting the recent our country was founded for human racial upheaval in America, and the stark bondage,” he said. “They want you to need to improve on human rights in the believe that America’s institutions con- United States. tinue to reflect the country’s acceptance AFSPA afspa.org “As the Commission’s work on this of slavery at our founding. They want Report was nearing its completion, social you to believe that Marxist ideology that Episcopal Church Schools convulsions shook the United States, America is only the oppressors and the of Virginia testifying to the nation’s unfinished work oppressed. The Chinese Communist www.episcopalschoolsva.org in overcoming the evil effects of its long Party must be gleeful when they see The history of racial injustice,” the note reads. New York Times spout this ideology.” Clements Worldwide “The many questions roiling the On July 20, a group of more than 30 clements.com/missionsabroad nation about police brutality, civic unrest religious leaders (including Catholic, and America’s commitment to human evangelical, Jewish, Muslim, Sikh and Corporate Apartment Specialist rights at home make all the more urgent Buddhist leaders) released a statement corporateapartments.com a point we had already stressed in the in response to the commission report, Introduction and elsewhere in this stating in part: “We know from Secretary Federal Employee Report: The credibility of U.S. advocacy Pompeo’s repeated comments … that he Protection Systems for human rights abroad depends on the will seek to use the Commission’s report fedsprotection.com nation’s vigilance in assuring that all its to justify marginalizing certain rights, thus own citizens enjoy fundamental human diminishing human rights advocacy and Georgetown University, rights. With the eyes of the world upon stifling demands for accountability for Walsh School of her, America must show the same honest those whose rights have been violated. … Foreign Service, ISD self-examination and efforts at improve- “Such politicization of human rights— casestudies.isd.georgetown.edu ment that she expects of others. Ameri- and of freedom of religion in particular— ca’s dedication to unalienable rights—the is dangerous, particularly now when the Property Specialists, Inc. propertyspecialistsinc.com rights all human beings share—demands forces of authoritarianism are on the rise no less.” globally. … Richey Property Management A coalition of four groups sued Sec- “We urge members of the commission richeypm.com retary Pompeo on March 6 for allegedly to consider the risks of complicity in such unlawfully creating the commission in an effort and use this comment period Washington Management violation of the Federal Advisory Com- to ensure that the final version of the Services mittee Act. And human rights groups commission’s report firmly upholds the wmsdc.com have criticized the commission for universality and indivisibility of rights as considering LGBT+ rights and women’s set forth in the Universal Declaration of WJD Management reproductive rights (including abortion) Human Rights.” wjdpm.com to be among those they see as outside of “natural,” unalienable rights. No Good Deed In his speech in Philadelphia, Secre- Goes Unpunished tary Pompeo denounced “rioters pulling he July 22 New York Times reports down statues [who] see nothing wrong Tthat in February 2018 Robert Wood with desecrating monuments to those Johnson IV, President Trump’s ambas- who fought for our unalienable rights,” sador to the Court of St. James’s, unsuc- and disparaged The New York Times’ 1619 cessfully pressured U.K. officials to steer Project about the history of slavery in the the British Open golf tournament to the United States. Trump Turnberry resort in Scotland.

THE FOREIGN SERVICE JOURNAL | SEPTEMBER 2020 19 He did so despite the advice of his Neither the State Department nor the Turkish cleric whom Turkish officials deputy chief of mission, Foreign Service embassy has addressed the accusations accuse of orchestrating a failed coup Officer Lewis A. Lukens, that such a directly, but the department said Mr. against Erdogan’s government in 2016. request would constitute an unethical use Johnson had led the embassy “honorably Gulen, who lives in Pennsylvania, has of the presidency for private gain. A few and professionally.” It issued a statement denied backing the coup attempt. months after Lukens notified the State declaring, “We stand by Ambassador We first reported on Mr. Topuz’s Department of the incident, Amb. John- Johnson and look forward to him con- plight in our December 2018 issue, which son ousted Lukens, seven months before tinuing to ensure our special relationship focused on Locally Employed staff, in an his tour was to end, effectively torpedoing with the U.K. is strong.” article titled “When Doing Your Job Lands his diplomatic career. You in Jail.” Among other things, Johnson was A Discouraging Secretary of State Mike Pompeo called reportedly furious that at two British “New Era” the accusations against Topuz “baseless,” universities his DCM had given a speech n a case that has stoked tensions stating that the charges “misrepresent in which he shared a positive anecdote Ibetween Ankara and Washington both the scope and nature of the impor- about President Barack Obama’s 2013 visit since 2017, a Turkish court sentenced tant work undertaken by our local staff on to Senegal, where Lukens was the ambas- Metin Topuz, an employee of Consulate behalf of the U.S. government and in the sador at the time, according to a December General Istanbul who had spent 20 years promotion of our bilateral relationship.” 2019 GQ article by Julia Ioffe, “Trump Is working for the U.S. Drug Enforcement “This conviction undermines confi- Waging War on America’s Diplomats.” Administration, to nearly nine years in dence in Turkey’s institutions and the TheTimes article also noted com- prison on June 11. critical trust at the foundation of Turkish- plaints that the ambassador compliments A post on the Twitter account of U.S. American relations,” Pompeo declared. the appearances of female embassy Embassy Ankara noted that U.S. officials “We reiterate our call on the Turkish employees during staff meetings. CNN have “observed every hearing in the trial government to resolve his case in a just reported July 22 that Johnson made racist of Metin Topuz in Istanbul, and we are manner.” generalizations about Black men. deeply disappointed in today’s decision.” On June 15, Ambassador Eric Rubin, At least some of the complaints The sentence was handed down just president of the American Foreign about Johnson’s management style were three days after a phone call between Service Association, issued the following raised with the department’s Office of Turkish President Recep Tayyip Erdogan statement: “I share Secretary Pompeo’s the Inspector General last fall, when a and President Donald Trump. Erdogan concern over the conviction of U.S. Con- team of investigators began a routine later said during a television interview sulate General Istanbul Locally Employed review of diplomatic operations in that “a new era” could begin in Turkey’s staff member Metin Topuz. AFSA joins London. relationship with the United States. the entire Foreign Service community in Their findings were submitted in Feb- Turkish authorities had arrested hoping that this conviction will be over- ruary, and the complaints about Johnson the 20-year veteran of the consulate in turned quickly. are expected to be included, according to September 2017 and charged him with “AFSA stands in support of our tens one of the investigators. It is not clear why membership in a terrorist organization, of thousands of Locally Employed staff the review has not been made public, but among other counts. members, without whom the daily busi- it has been designated classified, which is The arrest set off a tit-for-tat spat ness of American diplomacy would be unusual. between the United States and Turkey, impossible,” Rubin continued. “Their On Aug. 5, Lukens spoke about the which included reciprocal travel restric- contributions are myriad, and they make incident on “The Rachel Maddow Show,” tions. In March 2020, Turkish prosecutors our foreign policy and global engagement confirming that he had advised Amb. reduced the charges, dropping accusa- stronger and more successful.” n Johnson twice that pushing the British tions of espionage and attempting to government to use Trump’s golf course overthrow the government. This edition of Talking Points was com- was “unethical, probably illegal,” but that Topuz was convicted of aiding a move- piled by Cameron Woodworth and Steven the ambassador went ahead anyway. ment led by Fethullah Gulen, an exiled Alan Honley.

20 SEPTEMBER 2020 | THE FOREIGN SERVICE JOURNAL SPEAKING OUT

Why “27 Years and Out” Should Be Retired

BY TED CRAIG

his September I will retire from The 27-year rule is draining away experienced the U.S. Foreign Service. Not for lack of energy and commitment, and skilled officers at a time of unprecedented Tas I sit squarely in my mid-50s challenge to our interests and ideals overseas, and am in good health. Nor for lack of capability, if my last employee evaluation and it may play a role in limiting diversity in report in a senior overseas leadership our senior ranks. position is to be credited. And not for any constraints on my readiness to serve. Along with scores of other capable number of years to make flag rank—the vice’s most senior “pre-flag” rank colleagues every year, I am moving on one-star ranks of brigadier general for (FS-1, the protocol equivalent of a colo- because of the Service’s long-standing the Army, Air Force and Marine Corps, nel) has been pushed forward by at least requirement that we retire after 27 years and rear admiral for the Navy—or face three promotion boards and should be unless selected to the Senior Foreign mandatory retirement. And some of the a strong officer. Service. It is the deal we signed up justifications for the system are similar While we still occasionally see for, so those of us who don’t cross the for both the military and the diplomatic underperformers marking time at the threshold must accept the outcome. corps. FS-1 rank, the reality is that most of Whether this deal still makes sense for First, the limitation ensures “pass- those pushed out of the Service are still the Foreign Service is another question. through” in the ranks, opening oppor- capable of strong contributions and The 27-year threshold is the relic tunities for the next generation of valuable mentoring. Many will have been of an age of one-career couples and officers to move through the system as recommended for elevation to the Senior unsuited to the professional constraints longer-serving officers are retired. Like Foreign Service by the annual selection faced today by single parents, dual- most bureaucracies, we have a pyra- panels, falling short because of limited career partners, or just about anyone mid-shaped organization at the State allotted slots for new senior officers. with a substantial life challenge. It is Department. We need more mid-level draining away experienced and skilled diplomats than we do ambassadors and Why 27 Is Not Working officers at a time of unprecedented deputy assistant secretaries. There is The arbitrary 27-year TIS limit, insti- challenge to our interests and ideals not room for everyone to be selected for tuted almost 75 years ago, is a throw- overseas, and it may play a role in limit- the Senior Foreign Service, and using back to a time when Foreign Service ing diversity in our senior ranks. upward progression as an incentive for officers were male, and uncompensated The 27-year “Time in Service” (TIS) superior performance is beneficial. wives were expected to promote their limit in the Foreign Service mirrors the A second argument for the TIS limit, husbands’ careers by organizing and U.S. military, where officers have that unspoken in polite company, is that hosting dinner parties. Men could be it rids the system of underperforming expected to make assignment choices Ted Craig has been a bureaucratic deadwood. This argument based solely on advancing their career member of the Foreign is less convincing. Like the military, the path toward promotion to flag rank, Service since 1991, serving Foreign Service uses up-or-out all along even though it meant expecting their overseas most recently the way, thinning the ranks at each step wives to shoulder family responsibilities in Islamabad. in promotion; anyone making our Ser- in addition to representational duties.

THE FOREIGN SERVICE JOURNAL | SEPTEMBER 2020 21 Two modest changes could substantially In short, the result of the current TIS threshold is that the Department of ease the costs to our diplomatic readiness State, an institution built around human and to our officers and their families. capital, is losing quality officers too early. This is a loss to our foreign policy. More, at a time when foreign audiences In the modern American family, with Selection boards are faced with a are questioning the inclusiveness and couples juggling two careers, single par- difficult job in discerning among a pool fairness of American institutions, the ents struggling with childcare options of capable, high-performing candi- rule may be perpetuating an outdated and everyone facing eldercare dilem- dates, few of whom may have obvious profile among our senior ranks. mas, the direct career path to flag rank blemishes. As such, they have almost no may be elusive as officers balance work choice but to consider as stronger the A Few Small Repairs and home responsibilities. FSOs have candidate who has served exceptionally Given that our Service, like the always faced tough choices to maintain in a series of senior FS-1 or senior-stretch military, probably still requires a time- an overseas career, it is true, but societal positions as compared to the candidate limited mechanism to select its senior change in recent decades has amplified with a shorter résumé. This is the reality ranks and ensure pass-through within those challenges. that may cut down any number of great the system, radical changes to Senior As enlightened as our agency may candidates who take their time getting to Foreign Service selection might be ill- have become about work-life balance, FS-1 and then mix in at-grade but family- advised. Two modest changes, however, the reality is that the career clock still friendly jobs out of personal necessity. could substantially ease the costs to our offers just 27 years—and those with Finally, while we are inarguably a diplomatic readiness and to our officers the flexibility to take the killer job will more representative diplomatic service and their families. have a leg up. Those who take a “lateral” today than we were in the 1950s, that First, extend the 27-year TIS threshold assignment to be near a parent, to go to diversity falls off precipitously in the to 30 years in recognition of the reality a post that can meet the special needs of senior ranks. It is worth considering that equally effective officers in today’s a child or to favor the career opportunity whether the 27-year limit plays a role in Service will take different paths to of a partner may well run out of time. that outcome. In recent reflections on the FS-1—whether owing to divergent skill- The challenge may be even more pro- role of race and gender at the Depart- code promotion rates, timeouts brought nounced in coming years as the depart- ment of State, some current and former on by family crises or the vagaries of ment has again reduced the number of officers have pointed to the assignment luck in landing (or not being able to positions overseas in the wake of Iraq process as a barrier to advancement, take) that magically mentored job that and Afghanistan drawdowns. arguing that they were passed over opens opportunities. This is a change Another troubling aspect of the repeatedly for promotable jobs for which the Department of State can make with- 27-year rule is its unfairness given they were qualified. out a change in law. sometimes wildly divergent opportuni- Given that assignments are likely to Second, adopt a five-year noncareer ties to demonstrate readiness for senior- remain heavily influenced by the subjec- appointment option for officers failing to level duties. From 2000 to 2010 there tive views of section heads, office direc- cross the senior threshold. This appoint- were huge percentage differences in tors and various front offices, along with ment would allow those choosing not to promotion rates among the five areas of the “corridor,” there is no certain way to retire to work for five additional years, endeavor into which FSOs are divided: eliminate this potential bias. Relaxing full time, bidding for jobs at their retire- consular, economic, management, the TIS limit—and possibly extending ment rank. These appointees should political and public diplomacy officers. “Time in Class” limits at earlier grades— face automatic retirement if they cannot FSOs in some areas stood a much better is one possible way to mitigate the harm find a job in the regular bid cycle (they chance of moving into FS-1 positions and improve the chances that every either fill a need or they don’t). early and demonstrating senior-level employee will have several realistic shots Such a five-year window would allow leadership over a span of several years. at advancement. officers to contribute their experience

22 SEPTEMBER 2020 | THE FOREIGN SERVICE JOURNAL Speaking Out is the Journal’s opinion forum, a place for lively discussion of issues affecting the U.S. Foreign Service and American diplomacy. The views expressed are those of the author; their publication here does not imply endorse- ment by the American Foreign Service Association. Responses are welcome; send them to [email protected].

and skills to U.S. diplomacy as and where needed, without having to be shoehorned into the 50-percent time of the current “retired annuitant” opportu- nities (it would also mirror an approach the military takes in giving officers more years to adjust to their final rank and retirement status). Embassies and bureaus still want full-time senior professionals, offi- cers who can be there every day to contribute their knowledge: leading interagency processes, responding to urgent requests, running multimillion- dollar programs, and mentoring newer officers and specialists to strengthen the future generations of our diplomatic corps. An optional, needs-based five- year appointment after the final senior threshold review would allow skilled and in-demand officers to meet those needs. It is time to reconsider a Time-in- Service number that is past its useful- ness, is not legislated, and is detrimental both to officers and to the Service itself. The State Department borrowed it from the military, a different institution with distinctly better employment prefer- ences available to its retirees. Let’s address the needs of the future now, with our most critical resource: our people. Let’s retire the 27-year threshold. n

THE FOREIGN SERVICE JOURNAL | SEPTEMBER 2020 23 FOCUS ON ADDRESSING RACE, DIVERSITY & INCLUSION Inclusion Helps Drive Diversity

State’s new initiatives create space for difficult conversations and incorporate accountability. BY MIREMBE NANTONGO

t is said that diversity is being invited to a party, and enables barrier analysis. We are also increasing data trans- inclusion is being asked to dance. Without parency and encouraging workforce discussions around the data. inclusion, in other words, the full power of an At the same time, we are encouraging a newer and much institution’s diversity remains untapped. broader conversation, across the institution, that goes beyond Diversity has long been recognized as the data: a conversation on inclusion. The numbers are impor- not just a laudable goal, but an institutional tant, yes, but there is a story—and an entire culture—behind the imperative. Diversity is about people and often numbers, and it is time to focus on that. In the wake of the brutal involves discussions of data, while inclusion is killing of George Floyd, the department has seen exponential about culture and concerns the way we behave. growth in interest in creating space for difficult conversations on Data are important to our diversity efforts, and inclusion and on how our Black and other minority colleagues the State Department maintains a robust diver- have faced challenges in both personal and professional fora. In sity data collection framework that serves as a progress indicator response, State Department leadership has reaffirmed its com- mitment to shifting our culture to speak up against discrimina- IMirembe Nantongo is a deputy assistant secretary tion and ensure it has no place in our ranks. The diversity and of State in the Bureau of Global Talent Manage- inclusion unit alongside partners in the State Department’s Office ment. A career member of the Senior Foreign Service of Civil Rights are helping to facilitate robust dialogue to change with the rank of Minister Counselor, she served most our institutional culture and to identify concrete steps for those recently as deputy chief of mission at U.S. Embassy interested in being allies on these issues. Nairobi. She joined the Foreign Service in 1995 and has also served Under Secretary for Management Brian Bulatao put it clearly as director of the Office of Southern African Affairs and, before when he launched a task force for the Diversity and Inclusion that, as director of the Mid-Level Division in the Human Resources Strategic Plan (DISP) in January 2020: Diversity and inclusion Bureau’s Office of Career Development and Assignment. Other must go together—you cannot have one without the other. assignments include associate dean in the School of Professional Workplace inclusion at the State Department concerns our and Area Studies at the Foreign Service Institute, deputy chief of culture, how we behave. This can mean everything from whether mission at U.S. Embassy Doha and embassy spokesperson at U.S. we use standardized questions for interviews and the channels Embassy Baghdad. Overseas, she has also served in Bangladesh, we establish for open conversations between leadership and Colombia, Oman and Senegal. She is retiring this fall to spend time staff, to the way we treat each other on a daily basis. An inclusive with her aging mother in the Netherlands. organizational culture sustains the supportive and respectful

24 SEPTEMBER 2020 | THE FOREIGN SERVICE JOURNAL ALEXANDRA BOWMAN environment in which everyone can reach their full potential. Inclusion helps drive diversity by attracting the most qualified It is said that diversity is being applicants from a wide variety of backgrounds and then retaining invited to a party, inclusion is them and maximizing their performance. being asked to dance. Time and time again, research has shown that diverse and inclusive teams are more innovative and cohesive, make better decisions, and provide a competitive edge in recruitment and retention. At the State Department, this means that a diverse The 2020-2022 Diversity and Inclusion workforce and inclusive culture equip us to better advance U.S. Strategic Plan foreign policy interests and deliver results for the American peo- Shifting the organizational culture of America’s oldest, most ple. Embracing and empowering talent from across all walks of geographically dispersed Cabinet agency is no easy task. It life brings creativity to the workplace and strengthens our ability requires a clear road map and buy-in from all corners of the insti- to confront the array of increasingly complex international chal- tution. Recognizing that diversity and inclusion are indispensable lenges we are entrusted to solve. Diversity and inclusion, together, to successfully carrying out our mission at home and overseas, are essential to achieving unity in our workforce in furtherance of senior leaders throughout State have committed to shaping its our mission and supporting our State Department ethos. future through the 2020 DISP, which will be published later this

THE FOREIGN SERVICE JOURNAL | SEPTEMBER 2020 25 Personal Reflections on This Moment at State

As I retire after a 25-year career, I realize that close to half my life has been spent as a State Depart- ment employee. Starting as a Locally Employed staff member in the General Services Office at U.S. Embassy Kampala, I spent the next six years as an Eligible Fam- ily Member before joining the State Deparment as a Foreign Service officer in 1995. I have served and lived in Latin America, the Middle East, Africa and Washing- ton, D.C. Although coned as a political officer, I have worked in all five Foreign Service cones, served twice as a deputy chief of mission and, finally, as a deputy assistant secretary. Both my sons (now 19 and 28) were born under the Foreign Service umbrella and spent their childhoods in

international schools overseas. Influenced by top-notch U.S. EMBASSY DOHA/PAPPU DAKIN Embassy Marine Security Guards at our various assign- Deputy Chief of Mission Mirembe Nantongo greets guests at the July 4 reception in Doha, Qatar, in 2010. ments, both are now U.S. Marines themselves—one on active duty and the other recently graduated from col- lege. It is a source of great pride to me that all three of us have United States as an immigrant in 1987 and was naturalized in taken the oath of office, with its solemn commitment to the 1991 before formally joining the Foreign Service in 1995. After Constitution and to public service. It has been a truly fabulous rather awkwardly straddling my parents’ two very homog- career, and I have enjoyed or learned from every moment. enous cultures all my life, I reveled in the vibrant heterogeneity A child of African and European parents, I was born in of the United States, where any fellow citizen might have any Africa and grew up biculturally between Africa and Europe, at cultural heritage and any appearance, name or accent. home and yet not fully belonging in either place. I came to the My youth in Africa was framed by an unapologetically patri- archal society, over which the ghost of colonialism still hovers; but I learned early on that the Black American experience, and the legacy of slavery, repre- sented a dreadfully distinct and painful universe about which I understood little. Thirty years as an Ameri- can citizen, much self- education and living and working alongside Black friends and colleagues has made me better informed, both intellectually and emotionally, but I know there is still much to learn and understand. The brutal killing of U.S. EMBASSAY DOHA/SUNNY THOLATH DOHA/SUNNY EMBASSAY U.S. Deputy Chief of Mission Nantongo, at center, and Cultural Affairs Officer Erica Chiusano, third George Floyd has horrified from right, with a group of International Visitor Leadership Program alumni in Doha in 2011. us all, and the accompany-

26 SEPTEMBER 2020 | THE FOREIGN SERVICE JOURNAL year. Grounded in clear, actionable milestones and performance indicators, the plan aims to focus the department’s efforts, ensure accountability, and measure outcomes to inform future initiatives. The State Department’s commitment to diver- sity and inclusion is not new; the 2020 DISP is the third of its kind. However, an important lesson from the previous DISP was that we must act col- lectively to achieve our diversity and inclusion goals. As a result, the 2020 DISP, for the first time, incorporates feedback from a department- wide task force of more than 40 bureau repre- sentatives and all employee groups, and it offers COURTESY OF MIREMBE NANTONGO MIREMBE OF COURTESY DCM Mirembe Nantongo, center, with the a cohesive and practical vision to guide our U.S. Embassy Nairobi Marine Security Guard efforts with built-in accountability measures. detachment at the Marine Ball in November Drawing on the wealth of ideas and innova- 2017. (Inset) DCM Nantongo with her sons, Dominic (at left) and Sebastian, when they tive solutions proposed by the DISP task force visited her in Kenya in June 2018. NANTONGO MIREMBE OF COURTESY and our many employee groups, the department aims to achieve a fully integrated, “gold-level” ing national upheaval and introspection have been vividly diversity and inclusion framework, as measured by the Office of reflected within the State Department. In an institution Personnel Management’s “Diversity and Inclusion Framework known for its staid, traditional professionalism, open Matrix” for federal agencies. In aiming for gold, and while retain- conversations around issues affecting diversity and inclu- ing focus on the traditional OPM-defined minority categories, sion are still a new phenomenon, but they are blossoming we are requiring leaders to consciously maximize organizational rapidly. Leaders and colleagues are participating in difficult performance through inclusive practices; we are dedicating discussions across the institution on race and racism, resources to advance diversity and inclusion; and we are acting privilege, unconscious bias, microaggressions and allyship. collectively. These goals frame the three key objectives of the 2020 These exchanges are opening the eyes of many of our DISP, which incorporates critical themes, milestones and action colleagues to the indignities, disrespect and marginaliza- in the three areas that fundamentally drive diversity and inclu- tion suffered routinely by Black colleagues and persons of sion: recruitment, retention and employee advancement. color both inside and outside the workplace. Colleagues The Bureau of Global Talent Management and the Office of are understanding that while rules and policies are Civil Rights will review the plan annually to assess progress, and important, individual action and commitment are just as a full update is scheduled for 2022. We are putting in place a two- important for shifting our culture. The days of standing by year plan rather than the typical four-year plan to better mesh are over. From hour to hour, from minute to minute, is every with the department’s 2018-2022 Joint Strategic Plan’s timeline. one of us walking the walk, opening our hearts, and recog- This will ensure that our diversity and inclusion goals are formally nizing and interrupting bias where we encounter it? Do we embedded in the department’s JSP process so that bureaus and understand privilege, and are we everyday active partners missions have alignment and consistency in how operating units in making our national values of justice and equality a lived execute lines of effort. The DISP will then be updated in align- experience for all? ment and integration with the upcoming 2022-2026 JSP process. Change is hard, and shifting a culture happens one Within the DISP, we have outlined milestones and perfor- person at a time, one action at a time, until a tipping point mance indicators that we will reassess at the end of the year. is reached. As I retire, I am heartened and inspired by my Our goal is to hold each other accountable for the implementa- colleagues’ determined energy around the issue and our tion of the DISP, which is why we will rely on our partnerships collective hunger for change. I know we will get there. with bureau diversity councils, employee affinity groups and —Mirembe L. Nantongo senior leadership.

THE FOREIGN SERVICE JOURNAL | SEPTEMBER 2020 27 An inclusive work environment that ensures employees feel The numbers are important, yes, respected, valued, heard and empowered is crucial to retaining but there is a story—and an entire and developing talent to rise through the ranks. Recognizing that the department has work to do in this regard, Director General of culture—behind the numbers, and the Foreign Service and Director of Global Talent Carol Perez is it is time to focus on that. committed to making this happen. Underscoring the importance of fostering a culture of inclu- sion at the department, DG Perez has introduced new workplace A Workforce That “Looks Like America” flexibilities within her authority, advocated for new ones to The State Department is the face of America overseas, and it Congress and enhanced existing programs to maximize the per- has a unique mandate to fully represent the country and people formance, career development and professional satisfaction of we serve. An important piece of that puzzle is ensuring that employees. These initiatives include an extended Leave Without the department recruits, retains and develops a diverse and Pay pilot program, additional lactation rooms and flexible lunch high-performing workforce. It begins with providing fairness, schedules. Recently, as a result of the COVID-19 pandemic, most transparency and opportunity to all applicants and employees of the workforce has become familiar with telework. It will be throughout the talent life cycle and then ensuring the diversity interesting to see how many telework-eligible employees con- that strengthens us is reflected in our senior ranks. tinue to make use of this option once the pandemic abates. The department emphasizes the search for diverse talent Understanding and mitigating unconscious bias are other through its national talent acquisition platform, which places essential elements in strengthening diversity and inclusion at recruiters around the country to seek competitive candidates all levels of the State Department. Science tells us that uncon- from all backgrounds. Recruiters identify candidates on uni- scious bias is a natural and necessary response to processing the versity campuses, in professional association gatherings and by millions of bits of information we are all exposed to at any given engaging with communities underrepresented at the depart- moment. But this unconscious process can introduce inequities ment. They cultivate internship, fellowship and career candidates into activities such as recruitment, interviewing, performance at Historically Black Colleges and Universities, Hispanic-serving recognition or task assignment. Often, we are unaware that bias institutions, and tribal colleges and universities, among other is affecting our decision-making at all. Yet unconscious bias can places. have a major impact on an employee’s career—from hiring to They recruit skilled professionals through alumni networks, career progression and promotion—as well as on how teams trade organizations and targeted career fairs. They also meet can- and, therefore, our workforce are constituted. didates where they are, online. The State Department has long State takes unconscious bias seriously and has taken several had an online presence and has stepped up its virtual recruit- major steps to raise employees’ awareness of bias and mitigate its ment activities dramatically since March with the cancellation of effects on departmentwide procedures. Institutional actions to most in-person events. tackle unconscious bias, whether in recruitment, hiring, perfor- Thousands of Americans pursue a career in diplomacy each mance evaluation or task allocation, are incorporated through- year, and the State Department has several programs designed out the 2020 DISP. But understanding and mitigating one’s own specifically to make a foreign affairs career accessible to com- biases is also a personal responsibility. Fortunately, employees petitive individuals from historically underrepresented groups. do not have to do it alone—in 2019, the Foreign Service Insti- The Pickering and Rangel Fellowships, the U.S. Foreign Service tute launched a new course on “Mitigating Unconscious Bias” Internship Program and the Foreign Affairs Information Tech- (PT-144), available both in classroom and online versions to nology Fellowship are all important programs that directly and our global workforce. FSI reports that as of early August, 11,500 successfully support the recruitment of diverse talent. employees have taken the course in person or online since Octo- ber 2019. Focus on Retention The Bureau of Global Talent Management and Office of Civil To stand the test of time and translate into a Senior Foreign Rights’ joint initiative called Open Conversations is another bur- Service that looks more like America, however, effective strategic geoning effort. Allowing safe, candid, constructive and voluntary recruitment must be accompanied by internal cultural shifts. conversations on issues that affect inclusion, these facilitated

28 SEPTEMBER 2020 | THE FOREIGN SERVICE JOURNAL sessions can be hosted by bureaus, offices or employee groups. Most recently, dozens of Open Conversations across the depart- Grounded in clear, actionable ment have covered the sensitive topic of race and the professional milestones and performance and personal experiences of Black employees and persons of color. Topics covered previously in Open Conversations include indicators, the 2020 DISP aims “Employment Labels at State,” “I Want to Speak to a Real Ameri- to focus the department’s can” and “Managing Generational Differences.” efforts, ensure accountability, and measure outcomes to inform Everyone Has a Role to Play Diversity and inclusion enhance the performance and future initiatives. effectiveness of organizations. The State Department can reap the proven benefits of diversity and inclusion by maximizing employee and team performance through inclusive practices. of mission overseas and the department’s senior leadership. This Imagine this—tackling global challenges and advancing U.S. not only enhances our performance, but it also reflects the best of interests with stronger institutional cohesiveness, more nuanced our diverse workforce. decision-making and innovative approaches to diplomacy. Change is made possible only by the actions we each choose Embracing diversity and practicing inclusion is a collective to take at work every day. Inclusion is the key to unlocking the responsibility for each and every member of the State Depart- power of diversity. Let’s turn the key together, one decision and ment family—from the newest intern and line manager to chiefs one action at a time. n

THE FOREIGN SERVICE JOURNAL | SEPTEMBER 2020 29 FOCUS ON ADDRESSING RACE, DIVERSITY & INCLUSION Creating a Culture of Inclusion at State

To establish diversity at State, t is imperative to develop a truly diverse workforce it is essential to make inclusion so that the Department of State will be able to devise count—in every promotion, and carry out the most effective foreign policies for our nation. That’s why we joined the Foreign Service. job prospect and assignment. That’s why we competed for the Civil Service. But if BY GINA ABERCROMBIE-WINSTANLEY we’re honest, we know the department has lost too many of us because of bias, quiet discrimination and Iindifference. At the Beginning The January Government Accountability Office report on diversity failures at State doesn’t try to explain causality, but the Ambassador Gina Abercrombie-Winstanley retired numbers speak for themselves. Our problems begin at the begin- in 2018 following 32 years in the Foreign Service. ning, with recruitment. Our rigorous testing process brings in Throughout her career, she has been a steadfast smart, educated and intelligent FSOs, but it has also welcomed proponent of achieving excellence through diver- racists, sexists and those indifferent to both. And this moment in sity in organizations and breaking down barriers America has shown us just how dangerous a culture of indiffer- for women and minorities. She focused on counterterrorism and ence can be. cybersecurity while serving as deputy coordinator for counterterror- A solid start to changing that culture is to require the Board of ism (2008-2012) and as a political adviser to U.S. Cyber Command Examiners, the gatekeepers, to be significantly diverse. A friend of in 2016. She was the first woman to lead a diplomatic mission in mine was recently pulled from being an assessor to take a more Saudi Arabia as consul general in Jeddah (2002-2005), where she prestigious job, which left the assessment team with no African actively supported gender equality. She was the longest-serving U.S. Americans. That lack of diversity among gatekeepers can have a ambassador to the Republic of Malta (2012-2016) and also served huge impact on whether a minority candidate is judged ready to in the White House (1998-2000), the Department of Defense (2001- represent America. Success could rest on whether a candidate 2002) and on Capitol Hill (1997). was asked to speak about Kurt Vonnegut or Ibram X. Kendi. The author based this article on her June 17 testimony before the Once you’re in, the skills the State Department values are House Foreign Affairs Committee Subcommittee on Oversight and clear. We are judged on our success in leadership, management Investigations. and substantive knowledge. Rated highly on these in the Foreign

30 SEPTEMBER 2020 | THE FOREIGN SERVICE JOURNAL ALEXANDRA BOWMAN

Service, you’ll glide smoothly to promotion. Fail to meet the stan- General’s office and individual bureaus. An empowered Direc- dards, and you will be low ranked and eventually removed. tor General could make a difference. But responsibility for increasing diversity is so diffuse that everyone gets to throw up Make Diversity and Inclusion Count their hands and say, “Not me!” No one senior official has the State Department leadership says diversity and inclusion are responsibility or authority to focus on this foundational issue. important, but we know that no one is judged on their ability to Or to hold others to account. help underrepresented officers improve their performance or We know the department programs that are supposed to secure important assignments. No one gets promoted because help level the playing field for underrepresented minorities, they burnished the quality of decision-making by expanding the and we also know they often falter under the burden of being diversity of viewpoints and backgrounds brought to the table. And “affirmative action” programs. When I joined the Foreign no one is held back because their bureau, embassy, office or sec- Service, my A-100 class of 52 had two Black people and 13 tion lacks inclusiveness. women. I remember attending a happy hour as a new FSO and As the GAO report made clear, you can walk into meetings at overhearing a group of guys derisively speculating on which State daily and know instantly that everyone who should be there woman had used the Mustang program to get in because isn’t. The homogeneity of race and gender around the table is the they “couldn’t pass the test.” The Mustang program, a process lived experience of those GAO charts. And the evidence is so stark whereby experienced and qualified Civil Servants transfer into that everyone notices, those who are underrepresented and those the Foreign Service as specialists, is a great program that ben- who are not. We have solvable problems. Where the department efits State by bringing experienced officers into the Service. needs help is in holding itself accountable. Without account- But the stain of “special program,” unfair as it is, harms our ability for those who select, assign and promote employees, it will colleagues and deprives us of badly needed expertise. continue to be easy and acceptable to overlook, leave out and No one wants to undermine the professional Foreign Ser- avoid hiring both women and minority officers. vice by eliminating a healthy ladder to senior positions for any To finally get this right in the Foreign and Civil Service, every FSO, but there is no incentive for departmentwide, bureau- promotion, every job prospect and every assignment must wide or individual efforts to improve representation. Favors depend, in part, on the employee’s ability to ensure inclusion and are paid. Favorites are rewarded. The process is opaque. The development of underrepresented talent. Just as I knew my ability saying in the Civil Service is “women get the training; men get to communicate in Arabic would help my supervisor advocate for the jobs.” my next promotion, today’s diplomats must know that their men- Hurdles for experienced and capable Civil Service employ- toring of underrepresented officers, for example, will strengthen ees to transfer to the Foreign Service are unnecessarily high, as their case for promotion. If you want the workforce to care, make well. This is important because the Civil Service has tradition- it clear that embracing inclusion counts. ally been more diverse than the Foreign Service. Strong candi- dates with experience in foreign affairs and already working at Fixing Responsibility State who are interested in the Foreign Service could help build Unfortunately, shaping the department’s diversity and inclu- diversity. They can be quickly put to work because they come sion performance sits in too many places, including the Director with security clearances and experience in the department.

THE FOREIGN SERVICE JOURNAL | SEPTEMBER 2020 31 The Individual vs. the Building core precepts that are used by selection boards for recommend- Many individual officers place inclusion as a priority. Fortu- ing Foreign Service employees for promotion to the next grade nate ones, like me, benefit from these officers. I was lucky that and the senior ranks. I propose that promotions be based on they saw something in me that pushed them to sponsor me for leadership, management, intellectual and communications skills, jobs and promotions. But “the building” often works against such substantive knowledge, advancing inclusion and interpersonal efforts. skills. When I interviewed to be a deputy chief of mission for a Black 3. Centralized Accountability. Move the position of chief woman ambassador, I was thrilled. There are always so few, and diversity officer to the Deputy Secretary’s office as a direct report, she was dynamic! I was certain that my great interview would get and empower that individual with authority and staff to collect me the job. But she told me she didn’t feel safe having an all-Black and share data on diversity in assignments and promotions and front office; she felt compelled to select a white male to protect to add verbiage to the EERs of officers with authority to make herself. I thanked her for her honesty; I meant it, but when I got assignments. Ensure that that individual can partner with the home, I cried. I felt betrayed by a culture that crushed the courage Director General and bureaus to lay out benchmarks and goal- of even those who knew how important such courage was. posts to guarantee accountability. There is an unspoken presumption in the department, that all 4. Diversity Data by Bureau and Grade. Require an annual white officers took the written exam and are therefore worthy of review and report-out of progress in increasing diversity by being an FSO, and that all Black and Hispanic officers likely did bureau and by grade. The review responsibility would lie with not. It is a damaging assumption that burdens Pickering and Ran- the chief diversity officer, supported by bureau front offices. gel Fellows, who belong to the only category of fellows who must The report would come from the Secretary of State. take the written exam. They, who are often the cream of the crop, 5. Assignment Vetting. Require bureau front offices to vet have been damaged by the ignorant bias of their peers and the their shortlists for chief of mission and deputy assistant secretary indifference of department leadership to correcting the record. positions against equal employment opportunity case logs. The We all know studies have shown that increasing diversity of State Department Office of Civil Rights would provide the needed all kinds among national security professionals improves policy information, which must be taken into account somewhere in the outcomes. I and my success weren’t unique. I wasn’t special. But assignment process. Currently, this does not happen, and prob- too many like me haven’t had the same support. The department lem officers can continue to expand the impact of their biases. must finally institutionalize and expand the successful efforts of 6. Conversion. Reform the mid-career conversion program to individuals, because the department can get this right. The talent allow talented civil servants to more easily use their expertise as is there, the ability is there, and the time is now. members of the Foreign Service. 7. Clarity and Accuracy. Ensure that the department Getting On with It increases accurate understanding of how all of the fellowship We have the opportunity—when all of America is saying programs work. Providing accurate information about Pickering enough! Let’s get on with this!—to make employees at all levels and Rangel Fellows, alone, should improve their standing in the know they must set aside their individual biases for the good of department. the organization. And if they can’t, they will not prosper at State. 8. Recognition. Change the name of the “Equal Employment There is no reason to have this discussion again. We are America. Opportunity Award” to the “Diversity and Inclusion Award.” We can do this. This annual award recognizes outstanding accomplishments by Every State Department employee should be asking when the a Foreign Service or Civil Service employee in furthering the goals following recommendations will be implemented for the good of of the department’s equal employment opportunity program. The the Foreign Service: name change is important because “equal employment opportu- 1. Intake. Ensure that of the four assessors examining new nity” is a legal construct that is intended to prevent overt discrimi- candidates, at least two come from underrepresented communi- nation, but it does not get at the affirmative actions necessary to ties. As incentive to serve with the Board of Examiners, add one truly support minority officers in rising through the ranks. That additional year for time in class for every two years spent as an informal mentorship, guidance and support is the difference examiner. between a successful career and one that stalls for lack of being 2. Promotion Precepts. Add “advancing inclusion” to the truly included among those valued and expected to succeed. n

32 SEPTEMBER 2020 | THE FOREIGN SERVICE JOURNAL FOCUS ON ADDRESSING RACE, DIVERSITY & INCLUSION Living Up to the American Idea

Besides the moral imperative, there are compelling reasons to have a Foreign Service that looks like America. Here are some suggestions for how to get there. BY PETER F. ROMERO

n these unprecedented times, we ask ourselves how But whichever way this goes, let’s remember: We are a piece of we went from a beacon of freedom and justice in the every part of the world. Every foreign leader knows that multitudes world to the faintest glow of an ember. We wax nostal- of their brethren call the United States home. It is not only guns gically about the glory days of U.S. diplomacy, when and dollars that brought us to past heights. It is the American Idea. we were the “Indispensable Power,” and then sink into near despair about what we see today. We may think A Stark Reality about how to get back to the kind of political con- I was always delighted, when walking into the office of a new Isensus and unity of purpose that defined our policies for the 50 contact, that I was regularly mistaken for my Foreign Service years following World War II. With so many daunting challenges, National assistant and the FSN for me because of his fair com- where do we even begin? plexion. This American Idea not only inspires but has provided A first step is to accept responsibility for where we now find me and others with the ability to walk into a foreign authori- ourselves. For a long time, we Americans have seen, but not tarian’s office and demand the release of unjustly imprisoned read, the writing on the wall. Whole swaths of our fellow citizens Americans or people tortured simply for exercising their rights. have been systematically excluded and left behind. The perva- But after more than 40 years of efforts, when it comes to racial, sive politics of victimization, zero-sum thinking and resentment ethnic and gender inclusion throughout the ranks of the Foreign complicates a comeback. As I see it, we have two choices. We can Service, we, as part of the State Department, have not succeeded either recommit to our diversity and inclusiveness as a nation, in making the Service representative of who we are as a nation. the “American Idea”; or we can avert our eyes and hope that The reality is stark. The January GAO report paints a dismal somehow the country will snap back to its senses. picture, with thinning numbers of diversity officers starting at the mid ranks and just three Black and four Hispanic career chiefs of Peter F. Romero, a retired FSO and former mission worldwide. In some cases (read Hispanics) the wheels ambassador, is co-host/producer of the podcast have been thrown into reverse. There are now fewer Hispanic “American Diplomat.” He adapted this article officers in the Foreign Service than when I entered in 1977. testimony he delivered to the Oversight and Bias, discrimination and a callousness toward staff continue Investigations Subcommittee of the House Foreign to plague the State Department. This represents leadership Affairs Committee on June 17. The author can be reached at shortcomings in supervisory ranks. Regrettably, the appoint- amdipstories.org; leave a message. ment of Secretaries of State Madeleine Albright, Colin Powell,

THE FOREIGN SERVICE JOURNAL | SEPTEMBER 2020 33 the success of supervisors in the recruitment, retention, promo- For ground truth, we need to hear tion and professional development of those they manage. Bonus from those on active duty. The pay could be given to those with high rankings. ■ Require rating and reviewing officers of the rated supervisor new approaches will come from to reach out to all (or at least a good representative sampling) them, not from us gray hairs. of her/his employees (via 360-degree assessments, employee satisfaction responses) in evaluating performance and counsel- ing the supervisor, as needed. ■ Raise inclusive and effective leadership to the highest level of core competency for supervising officers; make it an absolute Condoleezza Rice and Hillary Rodham Clinton have not had requirement in the precepts for promotion (at FS-2 and above). the deep and sustained influence on diversity and inclusion ■ Expand the role of representatives of more than a dozen that many had expected. We can either continue to wait for that employee affinity groups in formulating promotion precepts, elusive “Secretary Godot,” or we can kick-start a recommitment volunteering for the panels and as a sounding board for future to diversity and inclusion now. initiatives on diversity and inclusion, particularly in and into the Beyond the moral imperative of having a Foreign Service that senior ranks. looks like America, there are several compelling comparative ■ Select out those officers who show an abusive pattern advantages to reaching this goal. It would give us greater cultural toward staff, regardless of any other personal qualities, influence and linguistic competencies, and arm us with deeper empathy or achievements. and understanding—critical tools to influence friend and foe ■ Develop and implement a system of exit surveys to deter- alike. In addition, it would generate more informed decision- mine why officers resign. Too many racial, ethnic minorities and making, and gain greater public support for the men and women women have resigned in the early and mid-ranks. There has not who daily hazard political and physical threats to keep us safe been even a minimum of follow-up to determine the reasons, let and advance our interests. alone identify systemic patterns to address. We should start by getting our own house in order. That means a recommitment to the principle of inclusion in our Listen to the Active-Duty Ranks Foreign Service. With respect to this last recommendation, a consistent complaint from our non-white officers is that their suggestions Getting There: Practical Proposals for new policy initiatives, tweaks to those that exist, or reforms to Here are a few suggestions for getting there. procedures are often met with silence or demeaning responses ■ Create a “Certificate of Leadership Competency.” This certif- from supervisors: “You’re an FS-3. You need to just listen.” Such icate evaluating an officer’s performance on diversity and inclu- dismissiveness is fairly common at State; it certainly was when I sion would be a requirement for entry into the Senior Foreign was going up through the ranks. Service. Since we will require this of all career officers, a non- Yes, millennials are impatient and cite the private sector as State panel of retired senior FSOs and past political appointees more welcoming to new ideas. They want to make a difference, should examine the leadership “fitness” of nominated political now. This spirit should be nurtured, not shot down. Every chal- appointees and report these findings to the Senate. lenge that our country now faces begs for new approaches and ■ Integrate current equal employment opportunity promo- novel ways of dealing with it. There are several groups of ex-FSOs tion precepts (now just a box to check) into the leadership (in the American Academy of Diplomacy, AFSA and the Harvard principles. Kennedy School, among others) that are currently engaged on ■ Make mid-level officers accountable for developing all the issues of diversity and inclusion and how our Service can those supervised. Beyond leadership training, supervisors, in most effectively meet the challenges of an uncertain future. But conjunction with their rating and reviewing officers, should be for ground truth, we need to hear from those on active duty. The required to set specific diversity and inclusion goals for them- new approaches will come from them, not from us gray hairs. selves, and be evaluated yearly on how well they were achieved. Morale is at a low ebb in the department. One sees more ■ Create a diversity and inclusion “scorecard” that measures slouch than swagger. Let’s turn this around. n

34 SEPTEMBER 2020 | THE FOREIGN SERVICE JOURNAL FOCUS ON ADDRESSING RACE, DIVERSITY & INCLUSION Diversity at State A Dream Deferred and a Collective Responsibility

Two fellowship programs are heralded for bringing people of color into the Foreign Service, but the new employees’ advancement is inhibited by institutional barriers. BY ANA ESCROGIMA, LIA MILLER AND CHRISTINA TILGHMAN

Harlem n the aftermath of nationwide protests following the death of George Floyd, the story of discrimina- What happens to a dream deferred? tion against one of our colleagues—Tianna Spears —horrified us all. Ms. Spears’ account of her treat- Does it dry up ment at the U.S.-Mexico border, and how she coped like a raisin in the sun? for two years, has led many at the State Department to ask how this could be so. By laying bare the lived Or fester like a sore— Irealities of institutionalized racism and bias at the department And then run? that far too many officers experience, but do not discuss outside Does it stink like rotten meat? certain circles, Tianna’s story broke a cultural taboo, sparking an outpouring of concern for officers who have undergone similar Or crust and sugar over— experiences. like a syrupy sweet? We should all be concerned about a State Department living in two worlds: with one set of officers who must cope with such experiences while navigating their careers, and another set who Maybe it just sags are unaware of or indifferent to such hardships. Our hope is that like a heavy load. this moment in American history will inspire an honest con- versation about what it means—and what it will take—to truly value and support diversity in our organization. Or does it explode? The national reckoning has catapulted one of State’s newest —Langston Hughes employee affinity groups, the Pickering and Rangel Fellows Association, to the forefront of advocacy on this issue. Founded in 2010, PRFA encompasses the more than 770 alumni who have joined the Foreign Service through the Thomas R. Pickering

THE FOREIGN SERVICE JOURNAL | SEPTEMBER 2020 35 Ana Escrogima was the Pickering and Rangel Fellows Association president in 2010. Lia Miller was PRFA president in 2015. Christina Tilghman is currently PRFA president. The views expressed in this article are those of the authors and do not represent those of the Department of State or the U.S. government. A 17-year veteran of the Foreign Service, Ana Escrogima is the incoming principal officer at U.S. There is a tendency in department Consulate General Montreal. She served previously as the office director for regional and multilateral culture to dispense automatic affairs in the Near Eastern Affairs Bureau. She served judgment based on inaccurate overseas as deputy chief of mission in the Yemen Affairs Unit in Saudi Arabia, established in 2015 after the closure the information, societal stereotypes U.S. Embassy in Sana’a. A former Rusk Fellow at Georgetown’s Insti- and misconceptions. tute for the Study of Diplomacy, she has served in Algeria, Iraq and Syria. In Washington, D.C., she was the special assistant to former Under Secretary of State for Political Affairs Wendy Sherman, with responsibility for Middle East issues. She served as a Diplomat-in- Residence for the New York Metro area, where she focused on reach- Foreign Affairs Fellowship program, established in 1992, and ing diverse audiences with the department’s recruitment pitch and the Charles B. Rangel Fellowship program, launched in 2002. taught a course on U.S. diplomacy. She graduated from Brown Uni- Once they complete the fellowship requirements, including versity as a Thomas R. Pickering Foreign Affairs Fellow and holds an graduate school and domestic and overseas internships, the M.A. from Columbia’s School of International and Public Affairs. fellows transition into alumni status and enter the Foreign Ser- Lia Miller, a career Foreign Service officer, joined vice through A-100. Department leadership, Congress and the the U.S. Department of State in 2003. She currently American public all praise these programs’ success in recruiting leads the Public Affairs Office at U.S. Embassy Yerevan. She has also served in the Bureau of talented, diverse candidates to join State. Western Hemisphere Affairs, the Operations Center, At the same time, however, a concomitant shift of depart- the Bureau of Global Public Affairs, the Office of ment culture to value and develop the basic competencies all Middle East Transitions, the Bureau of Near Eastern Affairs and in employees need to thrive and progress in a multiracial environ- Bolivia, Tunisia, Nicaragua and Oman. She is a 2001 Thomas R. ment has never taken place. In the Foreign Service, the burden Pickering Graduate Foreign Affairs Fellow, a 2014 Kathryn W. Davis of proving competency falls on the individual junior officers Public Diplomacy Fellow, a 2015 International Career Advancement coming up the ranks, but the additional labor of navigating Program Fellow and a 2016 Excellence in Government Fellow. She diversity at State should not fall on their shoulders alone. Over was named a 2018 Regional Foreign Policy Expert by the Women of the years, the department has taken steps to expand the fel- Color Advancing Peace and Security organization, and was named lowships exponentially, but new fellows will succeed only if a 2018 Black American National Security and Foreign Policy Next the department decides that ensuring their long-term career Generation Leader by the Diversity in National Security Network success—and the project of normalizing diversity at the State and New America. Department—is everyone’s responsibility. Christina Tilghman joined the Department of State as a Foreign Service officer in 2010. Currently, she serves as the senior public diplomacy adviser Confronting Misperceptions for the Global Health Diplomacy Office under the Until now, PRFA focused primarily on networking opportu- Secretary’s Office of the U.S. Global AIDS Coordina- nities, professional development events and support for incom- tor and Health Diplomacy. Her previous overseas ing fellows. At the same time, the association has always been assignments include Canada and South Africa; Washington, D.C., an informal echo chamber for frustrations alumni feel about the assignments include the Secretary’s Office of Global Women’s Issues, challenges they experience in the Foreign Service—in particu- Bureau of International Information Programs, National Security lar, the widely held but wholly uninformed perception that the Council and Bureau of African Affairs. She graduated from Hampton process for candidate selection “lowers the bar” to facilitate University and holds a master’s degree in Public Policy from the Uni- the entry of otherwise unqualified individuals of color. Fellows versity of Maryland, College Park. She is a 2006 Thomas R. Pickering are routinely asked whether they are required to take and pass Undergraduate Foreign Affairs Fellow, a 2018 International Career the Foreign Service Written Exam and the Foreign Service Oral Advancement Program Fellow, Public Diplomacy Council Associate Exam; yes, they are—and that is after they pass a highly selec- Board Member and a Council on Foreign Relations term member. tive application and interview screening process that mirrors the Foreign Service officer’s exam.

36 SEPTEMBER 2020 | THE FOREIGN SERVICE JOURNAL ALEXANDRA BOWMAN

Another common misperception is that all fellows are particular, the department’s inability to retain at the senior levels people of color. In fact, the diversity sought by the fellowships the very talent it works so hard to recruit at entry level. encompasses geographic location in the United States, gender and economic hardship, as well as racial and ethnic back- Taking On Prevailing Cultural Norms ground. Moreover, not all ethnic and racial minorities in the Tianna Spears’ departure left many colleagues asking why Foreign Service were recruited through the Pickering or Rangel those who have suffered traumatic experiences like hers do not programs (Tianna Spears, for example, was a consular fellow). speak up. We all know there are many positive and admirable Unfortunately, due to the misinformation regarding some of the elements in Foreign Service culture, such as esprit de corps, fellowships, recipients often feel compelled to downplay their the ability to rally together to face a common challenge and a background as fellows when it should be a point of pride. In commitment to judging all on the basis of merit. Unfortunately, fact, some minorities in the Foreign Service feel compelled to there is also a dark side to Foreign Service culture, which con- share that they are not Pickering or Rangel Fellows. tributed to Tianna’s silence and that of others who endure hard- This stigma does not exist for other preferential hiring pro- ship and abuse in isolation, and ultimately decide to depart. grams, such as the Presidential Management Fellowship, the Despite ongoing improvements in State’s leadership and Boren Fellowship and Veteran’s Preference. It is less likely for training continuum for managers, there is still scant training alumni of those programs to encounter negative assumptions available to prepare managers, or fellows, for how to commu- about their qualifications to enter the State Department. So, nicate with American colleagues across cultures. Nor does the why is there a negative assumption associated with Pickering department systematically explain the fellowships and their and Rangel alumni? The persistent pathology concerning these purpose to its internal audience. Problems with the quality of fellowships—and diversity, more broadly—affects how fellows management across the department compound the challenges are seen by their peers and supervisors, and often negatively for fellows of color. There is a tendency in department culture to affects their career progression and retention. dispense automatic judgment based on inaccurate information, We welcome 7th-floor interest in increasing the size of the societal stereotypes and misconceptions. Pickering and Rangel Fellowship programs as recognition of the Moreover, a culture of risk aversion buttresses the prevail- talented individuals they bring to the State Department and their ing norm of “enduring” toxic bosses or work environments significant policy contributions, and the diverse perspectives until they move on to greener pastures and being careful not and experiences the programs bring to our organization. But as to “rock the boat” or “make waves” to protect one’s “corridor members of earlier fellowship cohorts who have witnessed the pro- reputation.” The implication that victims of discrimination are gram’s expansion and retention issues since 2000, we believe that responsible for their situations and the insufficient numbers of any future expansion should be accompanied by a concerted effort diverse officers at individual posts also help to perpetuate the to address grave structural problems within the department—in status quo.

THE FOREIGN SERVICE JOURNAL | SEPTEMBER 2020 37 mentors and sponsors for diverse officers navigating the inter- Given the level of investment in section of discrimination and an already-opaque assignments Pickering and Rangel Fellowships, process. Nor can PRFA establish departmentwide training to it seems quite strange that strengthen all employees’ abilities to work fairly and effectively in a multiracial professional environment. the department does so little Employees of color cannot gain a firm foothold and advance to protect its investment by successfully in an organization that does not fully recognize retaining the talent it has them or their contributions. We must be honest and take a hard look at the organization we serve. The department has failed worked so hard to attract. its employees of color by not fully embracing and institutional- izing diversity and inclusion. During this watershed moment, PRFA continues to address systemic racial disparities within the department and looks forward to working with department These challenges isolate many minority officers. Many who leadership and other employee affinity groups to address these ultimately decide to leave the State Department feel they are concerns. dealing with these hardships alone, on top of navigating a chal- lenging career. Fixing these issues goes well beyond increasing Where Do We Go from Here? the number of entry-level fellows. The Diversity and Inclusion Despite these shortcomings, there is space to remain Strategic Plan takes a step in the right direction, but its execu- hopeful. We see positive strides from our leadership. On June tion must be informed by addressing some of the cultural chal- 8, Deputy Secretary of State Stephen Biegun met with three lenges we have outlined here. employee affinity groups representing Black Americans and employees of color. In this meeting PRFA shared a list of rec- Retention: The Elephant in the Room ommendations to cultivate an inclusive workplace, focused on The State Department is an amazing place to work for many three themes: reasons. As such, it will never have to worry about finding • Create accountability mechanisms to curtail toxic and qualified candidates who want to join its prestigious ranks. Yet discriminatory behavior. there is still very limited understanding in broader American • Improve retention by institutionalizing a support system society of what the department is and what a career with State within the Global Talent Management Bureau and coun- might look like. This is one of the primary reasons the Picker- seling services through the Office of Continuity Services to ing and Rangel Fellowship programs were created: to expose support employees of color. Americans who might not otherwise contemplate a career in • Promote diverse officers’ career development to build a foreign affairs to the Department of State. pipeline for mid-level officers to reach the senior ranks. Given the level of investment in these programs, it seems The Deputy Secretary affirmed his commitment to address quite strange that the department does so little to protect its persistent disparities within the department, including regular investment by retaining the talent it has worked so hard to engagement and partnership with these organizations and attract. While diverse officers do receive informal mentoring, other affinity groups. This dialogue was a crucial step in a jour- there is no mechanism by which the department captures and ney that will involve many more steps. The department must understands their experiences and addresses them through take significant steps to shift its organizational culture and training or other support for program alumni. In this gap, genuinely embrace diversity and inclusion. This will require PRFA peer networking has helped foster resilience among offi- adequate staffing and funding resource allocation. cers facing discrimination that they believe cannot be talked Yet it is not solely the State Department’s responsibil- about in the open. But the efforts of an affinity group can- ity or that of the affinity groups to foster a diverse, inclusive not possibly be expected to make up for State’s institutional workplace. Our white colleagues also have a major role in this failures. effort, for allyship is critical to ensure employees of color are The PRFA cannot be a stand-in for the lack of diverse offi- treated equitably, with dignity and respect. Consider this your cers in senior leadership roles who might otherwise serve as call to action. Small changes in behaviors and perspectives

38 SEPTEMBER 2020 | THE FOREIGN SERVICE JOURNAL across the department will translate into systemic change. Here are some basic questions we can all be asking our- PRFA peer networking has helped selves: How am I supporting my colleagues of color? If I am in a foster resilience among officers leadership position or one of influence, am I vocally supporting their work and suggesting their name(s) for career-enhancing facing discrimination. But the opportunities? In meetings, do I ensure employees of color are efforts of an affinity group cannot present at the table and contribute, and do I value their input? possibly be expected to make up When an employee of color engages in a meeting, do I aim for State’s institutional failures. to amplify their ideas and give credit to that person? Do I call out toxic or discriminatory behavior in the workplace? Have I taken time to learn about systemic racism to gain a greater understanding of how it affects our colleagues of color? Does my team reflect racial/ethnic diversity? Am I hiring racially and color—including enduring toxic behaviors in the workplace, ethnically diverse candidates? Are employees of color working such as being second-guessed, undermined, harassed and on priority and substantive policy issues, like white colleagues deemed unqualified—indicates there is a widespread problem on my team? of discriminatory behaviors and perceptions within the State These questions will help to unpack the biases and percep- Department. Only action will combat systemic racial dispari- tions that can lead to a devaluation of employees of color and ties. How will you help turn the tide and achieve our organiza- their contributions. The shared experiences of employees of tion’s dream of diversity and inclusion? n

THE FOREIGN SERVICE JOURNAL | SEPTEMBER 2020 39 FOCUS ON ADDRESSING RACE, DIVERSITY & INCLUSION The Making of a Real American Diplomat

A member of the Senior Foreign Service who immigrated to the United States as a child reflects on her journey. BY JULIE CHUNG

want to talk to a real American.” Here lomat? Many colleagues have shared similar stories about being we go again, I thought. I firmly repeated asked that question and then fumbling over how to respond. why the visa applicant was ineligible to Of course, in addition to being asked whether I am a “real visit the United States and that I really American,” I often get the other popular question, “Where are was a real American. you really from?” For many years, when my answer of California Such interactions must have hap- did not seem to suffice, I would go into my family history. I was pened hundreds of times during my first annoyed by this interrogation, as I couldn’t imagine my white “Itour in Guangzhou. It’s something I’ve often been asked and I've colleagues having to explain that they or their ancestors were asked of myself: Am I a real American? Am I a real American dip- really from Ireland or England. So I would explain “where I was from” to colleagues, to for- Julie Chung currently serves as principal deputy eign counterparts, to the guy at the grocery store and on customs assistant secretary in the Bureau of Western Hemi- forms: I was born in Seoul, Korea. sphere Affairs. She was previously the director for the Japan Desk and acting deputy assistant secretary v for the Bureau of East Asian and Pacific Affairs. A career member of the Senior Foreign Service, with the rank of Min- I recall tears falling like pattering raindrops on my leather ister Counselor, she has served as deputy chief of mission in Cambo- jacket as I boarded an airplane for the first time at the age of 5; I dia and economic counselor in Thailand. Other overseas assign- was immigrating with my parents and sister to the United States. ments include Baghdad, Bogotá, Guangzhou, Tokyo and Hanoi. I really did not understand why I was leaving my friends and While working in the Office of Korean Affairs in Washington, D.C., home, and my ears popped endlessly on the flight until I got a she frequently traveled to North Korea to implement the U.S.–North handful of brightly colored candy to suck on. Korea Agreed Framework. From Huntington Beach, California, she My dad landed a $4.25 hourly wage job on the drafting floor joined the Foreign Service in 1996 in the first cohort of the Thomas of an engineering company, and my mom worked the night shift R. Pickering Fellowship program. as a dishwasher at an Italian restaurant. Twenty-two years later,

40 SEPTEMBER 2020 | THE FOREIGN SERVICE JOURNAL ALEXANDRA BOWMAN

my dad had climbed the ranks to become the CEO and president to bring fairness in the grading system and more after-school of that company, designing a heating system to prevent O-rings activities. My opponent promised chocolate milk in all the water from freezing on space shuttles, which had been the cause of fountains and won by a landslide, although he never did deliver the Challenger tragedy. His invention allowed NASA to restart on that promise. I gave the commencement speech at my middle manned space missions, and he went on to develop the nerve school graduation, speaking of the American dream and convey- system for the robotic arm of the Mars Rover. My mom became ing my parents’ endless optimism in the opportunities that the a senior librarian, community volunteer and active church dea- United States could give us. con. Does this make us real Americans? For our first Thanksgiving in America, my mom had done v her research and cooked a beautiful turkey. The photo of us at the table prominently features the turkey alongside a plate of When I joined the Foreign Service with the very first cohort of unpeeled oranges and broccoli, as we had not yet learned about the Pickering Fellowship (originally called the Woodrow Wilson all the other traditional holiday accoutrements that went with Foreign Affairs Fellowship), my parents were immensely proud. the feast. But by God, that was a beautiful turkey and my mom During my internship abroad at the U.S. embassy in Bonn, I had was so proud. We thought we could be real Americans, and this a kind supervisor who was the economic counselor, but I never was the American dream. once met the ambassador (Richard Holbrooke) or deputy chief School presented a different story. As a young kid trying to of mission (no idea who that was) all summer. learn English, I remember taking a public bus to school where One day I had forgotten my badge. Trying to enter the hous- I was bullied and tripped on the playground. My first-grade ing compound, I was told that Filipino maids went around the teacher lent me extra books from the library to quickly expand back. And in one encounter that particularly shook me, a white my vocabulary. Classmates would taunt me by stretching the male officer told me: “It’s because of people like you that I can’t ends of their eyes into slits and yelling, “Chun King Chicken! get promoted.” He dressed up as Uncle Sam during the embas- Chun King Chicken! Kung fu chicken!” Chun King Chicken was a sy’s Fourth of July picnic, so I felt that, essentially, Uncle Sam popular Chinese canned food at the time. Boy I hated that brand, had just told me I did not belong, and I wondered if what he said and hoped never to eat that horrendous food from a can. were true. I did not want to rock the boat, and I certainly wanted And I never felt more un-American than the times when to be a “real American.” So I decided I needed to work twice as someone yelled, “Go back to China!” Sometimes it came from an hard as others to prove myself. angry kid, other times an adult speeding by our car flipping the During my work on the Korea Desk, I took several trips to the bird because we were driving too slowly. I would slouch down in DPRK where North Korean officials eyed me from across the my seat and think, But we’re not from China! I’ve continued to table and asked me, in Korean, if I were really an American. I hear that taunt well through my adulthood. wondered if they knew that my grandfather was separated from In sixth grade, I thought the best way to be American was his wife and three children during the mayhem of the Korean to run for student council president on an earnest campaign War and was never to be seen again after the DMZ border

THE FOREIGN SERVICE JOURNAL | SEPTEMBER 2020 41 The Chung family, including Julie (at right), celebrate their first Thanksgiving meal in the United States. COURTESY OF JULIE CHUNG

Throughout my career, I found myself subconsciously I gave the commencement counting the number of women and minorities in every meet- speech at my middle school ing I attended. I have no idea why I did this—it just came natu- graduation, speaking of the rally. But it also chipped away at my confidence as I questioned how I could belong if there were not many other people who American dream and conveying looked like me. my parents’ endless optimism Many years ago, on my arrival at post a peer at the same in the opportunities that the grade insisted I was “junior” to him and took over the juicy United States could give us. and supervisory portions of my portfolio, de facto taking over my position in an office where I was the only person of color. My supervisor shrugged it off, and I was afraid to raise my concerns with anyone higher up. Human Resources told me it would be useless to grieve and that it would ruin my corridor closed. And as the granddaughter of that man, I was now an reputation. Again, I didn’t want to rock the boat. I decided to American diplomat representing the “imperialist enemy” they swallow the disappointment and chalk it up to a learning expe- had been riled up about for decades. Over bad Korean soju rience of what not to do in the Foreign Service. liquor and karaoke singing, the North Korean officials would vent about how they felt about “those Americans.” v For years, I hid the fact that I was a Pickering Fellow and did not list it on my résumé to avoid being prejudged about how I Now, as we hear stories about bullying and microaggres- entered the Foreign Service. Sometimes there was office chatter sions, and fears of retaliation that prevent officers from speak- about how “those fellows” were exploiting the system, and I would ing up, I admit I wish I had done more to stand up for myself, not offer up that I was one of them. It wasn’t until I was promoted and I want to do more to help change our culture and create to Minister Counselor that I had the confidence to talk about the safe spaces to speak up. We all have a role to play in this. I’ve fellowship more openly and explain how we had to surpass higher been lucky to meet wonderful mentors, one of whom told me: requirements than normal Foreign Service applicants. “You came to play in the game, not sit on the bench.” I took There were times in my career when I really didn’t think I those words to heart in later assignments and was encouraged belonged. Just a few years ago, a senior government official by my parents, who told me never to view myself as a victim. addressed me as a “little lady” and asked whether I was “tak- Two things that have helped me stay resilient: First, my ing good care of my ambassador,” even though I was there in Christian faith, the prism through which I live and work. The my own right as a senior officer at a Cabinet meeting. I won- values of my work are firmly rooted in the values of my faith dered if he would have addressed a tall white male of my same and family, and despair is not an option. Second, my love of rank in that way. this institution. Despite all our imperfections and mistakes

42 SEPTEMBER 2020 | THE FOREIGN SERVICE JOURNAL and missteps, the institution of diplomacy and our State Department have endured because of our capacity to be faith- ful to our oath and reaffirm our sense of purpose to serve our country. I remind myself of that every day, especially on the challenging ones. Whenever I’m asked now where I’m really from, or if I’m a real American, I no longer get offended. I relish telling my immigrant story, both to foreigners and Americans. My story, and all the stories of my colleagues, make up the diverse fabric of this institution. That diversity doesn’t just make us feel good, or ensure we reflect a “real” America; it also helps us solve problems and negotiate better, and bring different ideas to the table because of our varied experiences. While a public diplomacy officer in Vietnam, I often relayed my immigrant story to young Vietnamese audiences. They related to themes of working hard, persevering, starting from COURTESY OF JULIE CHUNG scratch—my story, and many stories like mine, are what con- The author, second from right, at her swearing-in as a U.S. Foreign Service officer in 1996 at the State Department, stitute America. So am I a real American, they would ask? You with proud parents and sister, Connie Kim. bet I am, I’d say. I’m a real American diplomat. n

THE FOREIGN SERVICE JOURNAL | SEPTEMBER 2020 43 FOCUS ON ADDRESSING RACE, DIVERSITY & INCLUSION It’s Not Just About Intake A New Approach to Advancing Diversity After 30 years, another round of the same measures will not do. It’s time to define the problems and seek new solutions. BY PATRICE JOHNSON

ear after year, for more than 30 years, the Back in 1988, in analyzing State’s 1987 affirmative action plan, State Department has rationalized increas- the Equal Employment Opportunity Commission had indicated ing entrance rates of racial and ethnic that the underrepresentation of minorities and women at middle minorities and women as the appropri- and senior ranks of the Foreign Service was a major problem ate “flow through” mechanism whenever “which could not be directly resolved through entry level hiring the issue of minority representation at the of minorities and women, but rather through the internal move- Senior Foreign Service level is raised. With ment or promotion of the individuals already employed” (as Yhistorically low percentages of minorities in senior positions cited in the General Accounting Office’s June 1989 report, “State today, we see the inadequacy of this approach. Department: Minorities and Women Are Underrepresented in the Foreign Service”). Patrice Johnson has served as a Foreign Service offi- Clearly, subsequent decades of focused recruitment and hir- cer for 14 years and is currently on sabbatical. Her ing efforts of racial and ethnic minorities and women have still previous position was as executive director for the not aligned the Foreign Service to reflect our diverse population, Office of Foreign Missions. Prior to that, she served as required by the Foreign Service Act of 1980. That rationale in various operations roles in Washington, D.C., and process are flawed. Starting from today, it would take 10 full as well as in consular and political roles abroad in El Salvador, years of consistent intake of minorities and women in the pro- Colombia, Iraq, Afghanistan and Spain. The views expressed in portion in which they are represented in the population for their this article are those of the author and do not represent those of the representation in the State Department to be at parity. And that Department of State or the U.S. government. level can only be reached if Congress authorizes hiring surges at

44 SEPTEMBER 2020 | THE FOREIGN SERVICE JOURNAL the same levels as during the terms of former Secretaries of State Bidding: It’s Who You Know Colin Powell and Hillary Rodham Clinton. Bidding is another area where I see that the State Department But the fact is, bringing in large numbers of diverse officers prefers order and past practice to an honest assessment of the will not transform the Foreign Service. For that we must look process and where it goes wrong. The department tells us we are deep into the factors that discourage retention of minorities and “generalists,” yet the Career Development and Assignments divi- women. Coddling bad management, perpetuating a broken bid- sion has never controlled the bidding process to ensure we all ding process and valuing self-promotion over neutral analysis in meet our promotion requirements once we reach mid-level. We the evaluation process have all led to a flawed Foreign Service, are asked to dance around 360s, résumés and employee profiles one that does not look like America. If State is to do better, it in search of that golden handshake. Yet by following this process, must have an honest conversation about these factors. minorities and women frequently encounter closed doors. The bidding process is supposedly transparent and fair. How- Bad Managers ever, it is not exactly based on merit. Instead, assignment selec- At the heart of many State Department problems is bad tion is based on who you know and when you met them. Bureau management and, in particular, a permissive attitude toward chiefs want their friends. And the only way to break into a bureau bad managers. The human psyche where no one knows rarely permits behavior and atti- who you are is by having tudes stemming from one’s own The fact is, bringing in large specialized knowledge. social group to subside. Thus tribal- numbers of diverse officers will Hiring managers rarely ism will crush equity and inclusive offer an assignment to treatment of underrepresented not transform the Foreign Service. someone from another groups if the culture itself is led by skill set who does not the majority. already have the experi- When the first line of defense for this country does not feel ence. So why are we called generalists? supported, valued and empowered, it is a national security con- Calls to reform the bidding process have been heard for cern. Therefore, it is critical that the State Department protect decades. Except for consular-coned officers, there is a practical such groups from the tyranny of emboldened individuals who career disparity—meaning everyone’s experiences vary greatly— seek to extinguish the respect, empowerment and progression of between the various generalist career tracks and how bureaus officers. By remaining quiet, our leadership is complicit. control and manage hiring. This disparity could be mitigated by Like many minority colleagues, I have experienced managers centralizing the bidding process to CDA, so that both officers harassing subordinates to crush dissent without any account- and advisers can truly manage career growth and assignment ability for their actions. These inherently biased leaders, hand- mobility. Because bureaus refuse to relinquish power and posi- picked and enabled by their chain of command, are a sickness tions, we are forced to specialize our skill set to appropriately within the organization. They and their enablers use their power align our careers with the real needs of the Service. But even if to weaponize the corridor reputation and the employee evalua- we simply began specializing, the bidding process still needs tion review process to suppress officers into silence. Those who to change, because the employee experience is a measure of do speak up are met by tone-deaf senior leaders. In rare cases, inclusion, and those who do not have a strong network—mainly these senior leaders reward the loyalty of officers for “sticking minorities, women and third-tour officers—are disproportion- through it quietly,” and offer “nicer” onward assignments instead ately disadvantaged. of reporting to the Office of Employee Relations for punitive While I see advantages in centralizing bidding, I believe actions to disincentivize the perverse practice. a great option would be to launch a matching algorithm that While the Office of the Ombudsman and the Office of Civil considers all the experience, interests and remaining profes- Rights are equipped with tools to support equality in the work- sional requirements of the officer in relation to positions within place, the impact of such processes is not to reduce discrimi- various bureaus. Hiring managers would then receive a short list natory behavior but rather to resolve a particular issue. If no produced by the algorithm and be required to interview everyone responsibility is assumed and punitive efforts are not made, bad on that list. Such a process and system would greatly improve the managers are free to continue their reckless behavior. experience, merit and transparency of the bidding process.

THE FOREIGN SERVICE JOURNAL | SEPTEMBER 2020 45 capacity of officers to lead, inspire and innovate, then the entire At the heart of many State evaluation system needs to reflect that. Department problems is bad Based on the “core precepts,” officers’ evaluations should not focus on knowledge, skills and proficiencies, but rather look to management and, in particular, the future and potential of each officer. The evaluations should a permissive attitude toward address questions such as these: Did the rated employee have a bad managers. chance to develop skills useful for advancement, and use their strengths and talents in the assignment to drive the mission forward? How did the rated employee demonstrate capacity for leadership? In addition, the rating and reviewing officials themselves must be evaluated on how they develop and mentor the officers Employee Evaluation and Self-Promotion they supervise. The evaluation for their sections should address The Foreign Service employee evaluation is an annual exer- questions such as these: How did the rating and reviewing offi- cise of “walking on water,” which benefits white men because cials facilitate growth and development of the rated employee? their culture of entitlement and privilege facilitates self-pro- What substantive and/or institutional knowledge have the motion, while minorities and women are less likely to self- rating and reviewing officials contributed to the development of advocate. Inflexibility in the process is designed to maintain the rated employee? the status quo and not consider gender and cultural differences Managers would need to be trained on how to develop when evaluating performance. The department’s desire to sus- employees and properly assess the leadership and leadership tain what has existed for decades will never progressively move potential of those they supervise. The subtle shift here is in the organization’s culture toward supporting all groups. asking what did the supervisor do with their team, not what To contribute fully, minorities and women must see a pro- did the manager think of the employee. While this requires a portional flow of mobility within the ranks, starting with tenure. cultural shift, doing so increases the effectiveness and value of According to an official I spoke with recently, there is ample and the performance management structure for all, and truly places strong statistical evidence that demonstrates minorities and managers in a position to lead, coach and inspire their staff. women in every category are given tenure at much lower rates That’s what leadership is all about, right? compared to white men. Why is it that minorities and women achieve tenure at much lower rates compared to white men? Where Are the Barriers? Where, exactly, in the tenure review process are minorities and Issues relating to promotion and diversity within the women experiencing greater difficulty? State Department were reviewed in 2019 by the Government In general, self-promotion is extremely important for career Accountability Office. The resulting January GAO report, advancement, whether within the department or externally. The “Additional Steps Are Needed to Identify Potential Barriers to ability to promote oneself skillfully is a learned talent, and I do Diversity,” highlights the statistical relationships between pro- not call for disincentivizing the behavior. I also do not believe motion and minority and gender status and the extent to which anonymizing the evaluation process will greatly overcome the the department has identified any barriers to diversity in its gender and cultural differences in the tone and custom of how workforce. The report documented that the odds of promotion underrepresented groups promote themselves. I do, however, from FS-4 to FS-3 were 12.8 percent lower for minorities than advocate developing a completely new evaluation process and whites. The department commented on GAO’s report, stating system. The current process was established in the 1980s, and that the high Pickering and Rangel attrition rates at FS-4 “skew” its design is antiquated. the promotion statistics to show a lower promotion rate for The evaluation process is designed to look at past contribu- minorities entering the FS-3 rank. tions to determine future success and readiness for promotion. How could minority fellows statistically distort the promo- But research shows people are inconsistent in rating other tion rates from FS-4 to FS-3 if roughly 60 Pickering and Rangel people’s skills, while they are not so inconsistent in rating their Fellows, who are not all minorities but include white men and own actions. If promotion is based on identifying the future women as well, enter A-100 each year? If we look at the attrition

46 SEPTEMBER 2020 | THE FOREIGN SERVICE JOURNAL If promotion is based on identifying the future capacity of officers to lead, inspire and innovate, then the entire evaluation system needs to reflect that.

rate for fellows it is close to 10 percent, while the rate for the entire Foreign Service fluctuates between 2 and 3 percent annu- ally. Although the rate may be three times higher for fellows than non-fellows, do not focus your attention here. Because the total number of fellows is small, exactly two fellows need to leave each year for the fellows’ attrition rate to be greater than the Service’s attrition rate. But for the department’s response to be correct—namely that the fellows’ attrition rate has caused the noise in promotion rates—the number of departed minority fellows would need to be disproportionately higher than the number of departed non-fellow minorities. At a 10 percent attrition rate, six fellows leave a year. In comparison, near the 2 percent attrition rate, exactly 183 officers left the Foreign Service in 2019, of which 43 were minorities (see the EEOC Fiscal Year 2019 Foreign Service Management Directive 715 Work Force Tables). The baseline numbers prove that the department’s assertion is incorrect. As a matter of fact, GAO modeled its data on the total number of employees in the Foreign Service, thus accounting for all gener- alist and specialist minorities and women. The department’s response completely obfuscated a possible real issue—namely, that promotion to FS-3 constitutes a barrier for minorities. The department must take a hard look at the inter- nal factors that truly affect minorities and women in the work- force, and must provide more data and be transparent in commu- nicating correlation anomalies and advancement barriers. By omission, the department has thrown a wrench in the wheel of efforts to sustain diversity gains. After decades without tangible evidence that minorities and women officers in the Service collectively enjoy empowerment and progression, now is the time to officially declare retention a problem and actively address the inadequacies within the culture that do not encour- age us to stay. n

THE FOREIGN SERVICE JOURNAL | SEPTEMBER 2020 47 FOCUS ON ADDRESSING RACE, DIVERSITY & INCLUSION

Diversity in the Foreign Service From the FSJ Archive

Diversity—Not Just a Cause of slavery, outrage and wrong; our manhood has been denied, for the Underrepresented our citizenship blotted out, our souls seared and burned, our Individuals who question how they fit into spirits cowed and crushed, and the hopes of the future of our race a diverse workplace should remember that involved in doubts and darkness. the value of diversity is not in an individual’s “But how the whole aspect of our relations to the white race is race, gender or ethnicity; it is in the experi- changed! Now, therefore, is the most precious moment. Let us rush ences and insights that those attributes often to arms! Fail now, and our race is doomed on this soul of our birth.” bring. Diversity may refer to innate char- That activism proved crucial years later when General Ulysses acteristics, but it can also be acquired. All of us bring unique life Grant won the White House in 1868. The new president was eager experiences to our work, and employees who focus on their lack to reward leaders in the black community like Bassett who had of physical manifestations of diversity will miss valuable opportu- helped preserve the Union. nities to contribute to a diverse team. —Chris Teal, June 2018 I appreciate that my current office leadership prioritized recruiting a diverse team. When we gather for staff meetings, we Diversity in Diplomacy: have a mix of backgrounds, races, genders and ethnicities. With The Mentoring Dimension fewer people at the table like me, I feel like my opinion has more The different perspectives that come from value. Conversations include a rich variety of perspectives. embracing diversity can give the United When I share my thoughts, I must reflect and provide support States a kind of asymmetric advantage— for my positions. This doesn’t just provide our team with a broader the challenge is to leverage that advantage. range of ideas; it forces individuals to ensure their proposals are It is no secret that the Foreign Service well thought out before they bring them to the group. In other needs more diversity. According to the 2014 words, I have to think harder and communicate better in a diverse promotion statistics, gender and racial disparity persists in pro- environment. Diversity makes me a better officer and diplomat. motions and the gaps widen at the Senior Foreign Service level. … —Jay Porter, September 2018 We believe that a robust mentorship program is vital to achiev- ing and sustaining greater diversity in the Foreign Service. The Ebenezer Bassett: State Department’s advancements in recruiting minorities and The Legacy of America’s First ensuring equity across the diversity spectrum should be expanded African-American Diplomat to sustain diversity into the senior ranks. Just days after the Battle of Gettysburg, —Jennifer Zimdahl Galt and Thao Anh Tran, June 2015 Bassett and other black leaders organized a recruiting drive for black soldiers. Bassett Hispanic Representation at had the honor of being the second speaker USAID: Why So Low for So Long? of the night, making his speech immediately Periodically, I am asked to speak to Hispanic preceding [Frederick] Douglass. The following excerpt explains and minority students aspiring to enter why he, too, was considered such an effective orator: the Foreign Service or the U.S. Agency for “Men of color, to arms! Now or never! This is our golden International Development. I can hardly moment. The government of the United States calls for every able- resist the chance to tell my own life story bodied colored man to enter the army for three years of service and describe the places where USAID has and join in fighting the battles of liberty and the Union. A new era sent me. The Foreign Service is a great career, I tell them, and is open to us. For generations we have suffered under the horrors I encourage them to consider taking the plunge.

48 SEPTEMBER 2020 | THE FOREIGN SERVICE JOURNAL One reason I’m tapped to give these speeches is that I’m a and a revised Foreign Service Act. A flurry 25-year veteran of the Foreign Service, and also a member of of programs to recruit minorities into the an endangered species: mid-level Hispanic FSOs. My agency Foreign Service would follow. is sincerely trying to recruit a more diverse workforce, but has con- President Jimmy Carter, backed by sistently failed in terms of Hispanic representation since the late Secretary of State Cyrus Vance, was credited 1970s, when data on ethnicity began to be collected. with increasing the number of black political A great deal of energy has gone into better recruitment, and appointees as ambassadors between 1977 those efforts should continue and be expanded. … and 1981. … But that needs to be accompanied by a broader effort—not During this period, [Terrence] Todman himself was named only on behalf of Hispanics, but to benefit everyone at USAID—to ambassador to Spain. Carter’s appointment of Andrew Young cultivate a diverse Senior Management Group cadre. … If a quali- as U.S. ambassador to the United Nations, the first time a black fied Hispanic (or other minority) has applied for an SMG position, had been named to such a high-profile policymaking level in U.S. there must be a compelling reason not to select that candidate. “I government, became an important milestone for minorities as like this person more” is just not acceptable. well. During the Reagan administration, 11 black career diplomats —José Garzón, March 2014 were named as ambassadors. Fewer black ambassadors were appointed in the Bush administration, although black appointees TLG: Expanding Opportunities fared better during Clinton’s first four years. at State —Francine Modderno, November 1996 In 1973 William B. Davis and Roburt Dumas, African-American employees of the U.S. The Case for Racial Diversity Information Agency, became interested in in the Foreign Service identifying career paths for the advancement Diversity in America’s diplomatic service of African-American employees of USIA, received its first official endorsement in the State and other foreign affairs agencies. 1960s. Concerned with America’s image The duo organized meetings over lunch with likeminded African- abroad, when the Soviet Union was com- American officers on the first Thursday of each month, inspiring peting with the United States in the Third Davis to dub the organization the “Thursday Luncheon Group.” World, President John Kennedy and Secre- TLG, as the group is usually referred to, quickly began to focus tary of State Dean Rusk decided to increase the number of blacks on outreach to senior State Department officials, with the goal of in America’s diplomatic corps. … But there are stronger reasons advancing long-term personnel and management goals. … than cosmetic for promoting diversity in America’s diplomatic Today, the informal mentoring program Davis and Dumas corps. … launched four decades ago has grown into a robust organization, Professionals of the foreign affairs community often complain comprising more than 300 active-duty Foreign Service officers and that the Foreign Service and the State Department—unlike the Civil Service employees, associate members and retired employees agencies of Defense and Agriculture—do not have powerful con- of the Department of State and the U.S. Agency for International stituencies in American society and in Congress. This handicap, Development. It is also the oldest of the 12 State Department which becomes especially painful when Congress takes up the employee affinity groups recognized by the Office of Civil Rights. foreign affairs budget, exists partially because many Americans, —Stacy D. Williams, May 2013 including some members of Congress, view the Foreign Service as elitist and irrelevant to the interests of the common person. The Issue of Race, Ethnicity This unflattering impression of the Foreign Service would Neither blacks nor other minorities made much headway in the change and the State Department would find it easier to earn Service until the U.S. civil rights movement swept the country badly needed congressional support if the Foreign Service in the mid-1960s. When that decade opened, only 17 of 3,732 reflected the diverse communities throughout the country FSOs were black. … and made fuller use of all members of the American family. The year 1964 was a turning point for blacks in the Foreign —Kenneth Longmyer, May 1996 Service, culminating in the passage of the Civil Rights Act

THE FOREIGN SERVICE JOURNAL | SEPTEMBER 2020 49 Building a Representative Do you try to “help her out” by taking over the more challeng- Foreign Service ing assignments, rather than letting her take what comes? … The Foreign Service Act of 1980 reorganized The questions above are not hypothetical. They derive from the Foreign Service, emphasizing that the actual situations in which I have found myself on one occasion Foreign Service should be representative or another. I believe the real loser, in the last analysis, was the of the American people. Specifically, the United States Government, which was not getting the full benefit legislation aimed at strengthening the of the talents it was paying for. Foreign Service by promoting policies and —Ms. Jones, January 1978 procedures—including affirmative action—that would encour- age entry and advancement in the Foreign Service by people Beyond the Call of Duty from all segments of American society, as well as promoting fair It isn’t often that we get an opportunity and equitable treatment for all without regard to political affilia- to submit a performance rating on the tion, race, color, religion, national origin, sex, marital status, age Secretary of State. But there was a quality or handicap. about Secretary Rusk’s recent testimony The Senior Foreign Service may be the last bastion of discrimi- on civil rights [legislation that became the nation in the Foreign Service. I respect and admire those who Civil Rights Act of 1964] before the Senate have worked their way to the top and survived the rigorous train- Committee on Commerce which came ing and hardships. However, I am discouraged by inequality in through clearly in the television reportage and which we thought a system that appears to stack the deck in favor of a select few. … it well to impart to our readers, especially those overseas, who Congress can and will pass legislation and hold oversight were not within camera range. hearings, but it is up to the officials at the State Department to It was certainly within the scope of the Secretary’s responsibili- carry out policies of equal opportunity and equal representation. ties to point out that the failure of the United States to live up in Reports and studies can identify the problems, but the solutions practice to what it preaches in its Constitution and Declaration of can come only from action. Independence is exploited by the communists in their attempts to —Congressman Gerry Sikorski (DFL Party, Minn.), July 1990 belittle the U. S. claim to leadership of the Free World. It was also most appropriate for the Secretary to reveal how difficult it is to The Status of Women carry on correct diplomatic relations with representatives of other I believe the real test of equality is the countries whose color subjects them to the kind of discrimination extent to which a woman is expected to and injury to their personal dignity which some people in this carry her full share of the workload and is country still practice toward more than ten percent of the United actively supported in doing so. I wonder States citizenry. … how many other women have had written Then, quite deliberately, he committed the Department and into their efficiency report that Ms. Jones the Foreign Service in the following passage: “So, let me stress is a capable officer, but unfortunately the again, the interest of the Department of State in this bill reaches work she was assigned to do did not justify a recommendation far beyond obtaining decent treatment for non-white diplomats for promotion. Whose failure was that? and visitors. We are directly and comprehensively concerned If a supervisor really wants to get the most out of a woman with obtaining decent treatment for all human beings, including assigned to the mission—and I suspect some secretly see them- American citizens.” … selves as martyrs doomed to carry an extra burden for the sake This attitude goes to the heart of the problem. Despite the deci- of women’s lib—perhaps he should ask himself a few soul- sions of the courts, the decrees of the Executive Branch, and even searching questions: eventual laws by Congress, the only permanent solution to this Do you assign a woman officer the same workload, both in issue lies in the attitude of the individual to his fellow man. All of substance and volume, that you would assign a male officer of us in the Service who deal constantly and intimately with people the same grade and experience? of all races and colors might well think of these things. Do you find yourself looking around for jobs “suitable for —Editorial, October 1963 n women”?

50 SEPTEMBER 2020 | THE FOREIGN SERVICE JOURNAL COVER STORY THE U.N. AT 75

ISTOCKPHOTO.COM/IAN_TIMBERLAKE U.N. Relevance Depends on U.S. Leadership

A career FSO and veteran ou are like the Secretary United Nations official reflects on this of State for the United unique institution and its value today. Nations,” United Nations Secretary-General Ban BY JEFFREY FELTMAN Ki-moon remarked in July 2012 when swearing me in as United Nations Jeffrey Feltman is the John C. Whitehead Visiting “YUnder-Secretary-General for Political Affairs. A flattering Fellow in Foreign Policy at the Brookings Institution. pretension, yes, but I had no expectations given relative He served as United Nations Under-Secretary-General authorities, funding and staffing levels that my ex-boss for Political Affairs from 2012 to 2018. Before retiring Hillary Rodham Clinton or Russian Foreign Minister Sergei from the State Department with the rank of Career Lavrov would suddenly embrace me as a peer. Minister in 2012, he was the assistant secretary of State for Near Eastern As head of the United Nations Department of Political Affairs affairs (2009-2012). He served as U.S. ambassador to Lebanon (2004- (or DPA, now the Department of Political and Peacebuilding 2008) and had postings in Baghdad, Erbil, Jerusalem, Tel Aviv, Tunis, Affairs), I oversaw the organization’s global political work, Amman, Budapest and Port-au-Prince. all focused on preventing and resolving conflict. DPA provides

THE FOREIGN SERVICE JOURNAL | SEPTEMBER 2020 51 One early epiphany was recognizing that Turtle Bay obsesses about Foggy Bottom, while Foggy Bottom neglects Turtle Bay.

support and instructions to U.N. special envoys and representa- tives who head political missions, and my role included leadership responsibilities in the areas of U.N. electoral assistance, counterter-

rorism and even residual decolonization. Because DPA provides FELTMAN JEFFREY OF COURTESY the administrative and documentary support to the Security Council, I had a ringside seat to council deliberations, often (in Jeffrey Feltman with his wife, Mary Draper, and the Secretary-General’s absence) as the only non-voting person Secretary of State Hillary at its horseshoe table. Yet my entire New York staff, with its global Rodham Clinton following responsibilities, would have filled only a medium-sized American his swearing in as assistant embassy. secretary of State for Near Eastern affairs in 2009. In addition to the resource discrepancies, the role of Under- Secretary-General for Political Affairs differs from a foreign minister in its function: International civil servants are expected sant. One early epiphany COURTESY OF JEFFREY FELTMAN JEFFREY OF COURTESY to represent the values and ideals of the United Nations Charter, was recognizing that Turtle The author briefing the U.N. not serve as advocates for national positions. Now 75 years old Bay obsesses about Foggy and showing its age, the United Nations was the centerpiece of Bottom, while Foggy Bottom neglects Turtle Bay. During my a series of organizations, alliances and partnerships established nearly six-year tenure as the highest-ranking U.S. citizen in the under U.S. leadership in the aftermath of World War II that Secretariat, my colleagues—peers, subordinates and superiors would play a vital role in maintaining peace and progress in the alike—would invariably ponder “What does Washington think?” postwar world. on every conceivable issue. Except perhaps in the State Depart- While it is natural to question the relevance of the organiza- ment’s Bureau of International Organization Affairs, I am not tion in the greatly changed world of today, I come down on the aware of any parallel in Washington. side that the U.N. can remain relevant and a force multiplier for The point of the question was not to signal that the U.N. U.S. interests in global peace, development and human rights— Secretary-General or professional staff should automatically as long as strong U.S. leadership remains in the organization. march in step with the American position. Rather, knowing the At the same time, for reasons ranging from changed global American position or likely U.S. reaction was an essential part power dynamics to U.S. arrears in its dues, Washington cannot of evaluating what the U.N. might do in any situation. Depend- assume the same automatic deference inside the U.N. system ing on the subject, professional staff would also evaluate the that it enjoyed for years. The United States needs to compete positions of other capitals. Discussions on peacekeeping in inside the U.N. for what matters to us, lest we hand over vacu- Francophone Africa included considerable attention to Paris’ ums for the Chinese and Russians to gleefully fill, at the expense perspectives and interests. One could not plan U.N. operations of our interests. in Somalia without considering the roles of Somalia’s neighbors, as well as Turkey, Qatar and the United Arab Emirates. But only Obsession and Neglect Washington’s policies came up in every meeting on peace and What I learned when I began working at the U.N. was that, security matters. This gives the United States astonishing influ- within its Secretariat, the speculation about Washington is inces- ence without even trying to exercise it.

52 SEPTEMBER 2020 | THE FOREIGN SERVICE JOURNAL An American Foreign Service officer assigned to an embassy in a country on the far periphery of Washington’s consciousness To the extent that Washington might see an analogous situation in the locals’ sincere, if mis- wants an informed Secretary- guided, belief that U.S. policymakers had a razor-sharp, constant General, having an American focus on them. But the U.N. was different: the ubiquitous inter- est in what Washington thinks derived from pragmatic consid- “translator” by his side makes eration of options rather than exotic conspiracy theories. And sense over the longer term. instead of calling on the Washington-obsessed locals as a U.S. Foreign Service officer assigned to an embassy abroad would do, I was an insider, seated at the table as one of the U.N. officials discussing U.S. policies. This often felt like an out-of-body expe- An Interpreter of Washington rience, as I listened to myself impartially explaining Washington So, if Washington has an admirable “hands-off” policy once policies rather than promoting and defending them as I had for U.S. citizens are named to high-level U.N. posts, why did the nearly three decades of proud service as an FSO. George W. Bush administration decide to lobby Ban Ki-moon to Neither the Obama nor the Trump administration ever put appoint a U.S. citizen to head DPA? Lynn Pascoe, my immedi- me in a position where my oath of office to the United Nations ate predecessor, was the first U.S. citizen to head DPA in 2007; was tested. I might have been the U.N.’s equivalent of a “political Rosemary DiCarlo, my successor, is the third. appointee,” a noncareer senior official, but Washington never Previously, American nationals typically headed the U.N.’s issued political instructions to me. Soon after assuming her Department of Management, to maintain eagle-eyed scrutiny duties as U.S. Permanent Representative to the U.N., Nikki Haley over the organization’s budget. But in time Washington con- made a point of telling me directly that she understood that I cluded that the Under-Secretary-General for Management inside worked for the U.N., not for her, and asked me to report back if the Secretariat had less sway on budget issues than an active anyone on her staff ever treated me otherwise. Staff at the United member state working through the budget committees that are States Mission to the United Nations (USUN) would deliver part of the General Assembly structures. The Under-Secretary- démarches and non-papers in support of U.S. positions, but General for Political Affairs, on the other hand, is the chief these were neither presented nor accepted as instructions. foreign policy adviser to the Secretary-General and is present Of course, as one of the five permanent members of the Secu- in many, if not most, of the Secretary-General’s meetings on rity Council (the P5) and as the U.N.’s largest contributor both international peace and security issues, while the head of the of assessed (mandatory) contributions and voluntary funding Department of Management is not. That individual frequently (in dollar terms), the United States hardly needs to rely surrepti- travels with the Secretary-General and (at least under Ban Ki- tiously on a U.S. national in an Under-Secretary-General slot to moon) would be patched into the Secretary-General’s calls with have influence or gain understanding of U.N. Secretariat think- foreign leaders. ing. The U.S. ambassador to the United Nations can simply call Thus, an American in that position can provide useful service the Secretary-General on the phone. Occasionally, the American for the Secretary-General in terms of interpreting or translat- respect for my U.N. status seemed to cross the line into curious ing Washington policies and predicting likely Washington indifference. When I returned from Pyongyang in December responses. Depending on the issue, this may or may not serve 2017—after the first U.N. political visit to North Korea in six Washington’s immediate interest directly. But it certainly serves years—at a time when war seemed imminent, many ambassa- the Secretary-General’s interest in understanding the views of dors to the U.N. came to see me for briefings, a standard part of the U.N.’s most powerful member state. To the extent that Wash- the job. USUN never bothered (although Ambassador Haley did ington wants an informed Secretary-General, having an Ameri- attend my consultations with the Security Council). can “translator” by his side makes sense over the longer term. At least I never had to worry about implicit or explicit Wash- A good example of the utility of this “translator” function ington orders. Not all U.N. member states resist the temptation occurred early in my tenure, when the Iranians invited Ban Ki- of using their nationals in U.N. positions to advocate for their moon for a state visit to give the keynote address at the August interests or report back to capitals, despite their nationals’ oaths 2012 Non-Aligned Movement summit in Tehran. Susan Rice, of office as impartial international civil servants. then U.S. Permanent Representative to the United Nations, and

THE FOREIGN SERVICE JOURNAL | SEPTEMBER 2020 53 support from, and membership in, the body? Leadership transi- All of us who have toiled in tions are never easy, and Guterres took office when the sense of Turtle Bay can identify parts an existential threat to the U.N. was palpable among staff and of the U.N. that seem member states alike. An articulate and persuasive communica- tor in multiple languages, Guterres had received the blessing of dysfunctional or irrelevant U.N. member states in October 2016, at which point a different (although we may disagree outcome in the U.S. elections seemed likely. exactly on which parts those are). Perhaps naturally suspicious and prone to micromanage- ment already, Guterres took no chances of a misstep with the unexpected new administration. He quickly centralized as much control as he could of the unwieldy U.N. structures Secretary of State Hillary Rodham Clinton applied tandem pres- (while claiming, and perhaps even believing, he was empower- sure on Ban to say no. Given Iran’s defiance of Security Council ing staff). What senior leaders and mid-level managers could resolutions and the incendiary remarks by Supreme Leader routinely decide on their own under Ban Ki-moon soon became Ali Khamenei and Iranian President Mahmoud Ahmadinejad subject to second-guessing and, ultimately, clearance by the calling for the destruction of Israel, they argued, a state visit Secretariat’s 38th floor, occupied by the offices of Guterres and by the U.N. Secretary-General would reward outrageously bad his inner circle. Career professionals soon got the message that behavior and undermine the importance of U.N. principles and his staff considered them and their ideas untrustworthy, as resolutions. The problem for Ban was that a majority of U.N. potential creators of problems between Guterres and member member states would participate in the summit and expect him states and especially with a now unpredictable U.S. govern- there, a fact he weighed against the unyielding U.S. opposition ment. A Portuguese diplomat once remarked to me that, to and his own revulsion over Khamenei’s anti-Israeli and anti- understand Guterres, one needed to study his political career Semitic rhetoric. in Lisbon: As prime minister (1995-2002) in a minority govern- “Translating” U.S. objections into a U.N. context, I proposed ment, he constantly sought allies, built coalitions and avoided that to offset the risk that a trip exclusively focused on Tehran making enemies. Above all, he wanted to avoid making an would appear to bless Iranian behavior contrary to U.N. norms, enemy of Donald Trump. Ban wedge the Tehran stop between visits to the UAE and Saudi To his credit, Guterres used his considerable political skills Arabia, where he would surely get (and indeed got) earfuls of to form a symbiotic partnership with Nikki Haley over the issue complaints about Iran’s regional meddling. My understanding of of U.N. reform. Haley could burnish her foreign policy creden- U.S. motivations helped Ban find a way to mitigate U.S. concerns, tials and report to her boss that the U.N. was improving under as the additional destinations altered the public image of the his direction; Guterres could fiddle with the U.N.’s bureaucratic trip. One of the most unexpected moments of my entire profes- machinery (telling other member states that reform was essential sional career occurred in Tehran, when I ended up as Ban’s to continued U.S. support) in ways that suited his 38th-floor hyper “plus one” in a restricted meeting with Khamenei. The Supreme control while preserving a relationship with Washington. The list Leader’s hours-long rant against the United States persuaded me grows of U.N. entities and international agreements abandoned that whatever gaps in knowledge we in Washington may have by the Trump administration, and the United States is now had regarding Iran, they paled in comparison to the chasms of behind in its assessed contributions by more than $1 billion, ignorance Khamenei displayed regarding the United States. single-handedly creating a financial crisis in the U.N. But the U.S. (so far) remains inside the United Nations. Not unreasonably, Transition and Trepidation Guterres probably considers that his top accomplishment. With António Guterres taking the oath of office as Ban’s suc- cessor as U.N. Secretary-General just three weeks before Don- 1918 vs. 1945 … and Today ald Trump was sworn in as U.S. president, the question “What But what should the United States think about its U.N. does Washington think?” assumed a more urgent tone in Turtle membership at this point? The relationship between Washing- Bay circles. Would the U.N. inadvertently cross an ill-defined ton and the United Nations has always been somewhat uneasy, American red line, provoking President Trump to withdraw U.S. as it rests on American willingness to constrain some of its

54 SEPTEMBER 2020 | THE FOREIGN SERVICE JOURNAL power in the name of global cooperation that it cannot always control. The “democratic” parts of the U.N. structures—the Gen- eral Assembly, most notably—will always attract attention (and, often, scorn) when the United States “loses” a vote, even though they are nonbinding. There is an obsession in the member state bodies with Israeli unilateral actions toward the Palestinians, while the Chinese mostly get a pass regarding the Uighurs. The Security Council, which alone has the authority to pass binding resolutions, is currently paralyzed on critical issues, and its frozen composition differs shamefully from current politi- cal, demographic, military and economic dynamics. Traditional peacekeeping seems ill-suited for today’s conflicts, with civil wars fusing with transnational terrorism and a resurgence of proxy FELTMAN JEFFREY OF COURTESY wars. With China’s rise and Russian assertiveness, the United The author, at left, with U.N. Special Representative for the Secretary-General Ghassan Salameh in Tripoli in March 2018. States cannot expect the same deference to its leadership in the U.N. that Washington enjoyed in the immediate post–Cold War period. With leaders and citizens looking inward, COVID-19 and Inequality between countries and within countries is growing. the accompanying economic crisis have amplified the sense that These overlapping crises are creating disruptions on a global the U.N. itself and multilateralism more generally are in crisis. scale that should spark action. Yet in the United States, the signs Yet only a few years ago, multilateralism and the United are not encouraging so far. We seem to be following a model Nations showed powerful signs of innovation and relevance: mimicking the post–World War I abdication of responsibility take, for instance, the unprecedented, Security Council– rather than demonstrating 1945-style leadership and creativity. approved mission (2013-2014) to remove the bulk of Syria’s Some lessons of the postwar period can guide us today. After chemical weapons and precursors; the four-country U.N. emer- 1945 the United States fostered a series of overlapping institu- gency Ebola mission (2014-2015); the approval of the U.N. Sus- tions, alliances and partnerships, with varying memberships tainable Development Goals (2015); the agreement on financ- and objectives, all formed by member state governments. Today, ing for development goals and mechanisms (2015); the Paris a layered approach would need to include business and civil Agreement on climate (2015); and the tripartite U.N. Mission in society representatives able to grapple with questions, say, of Colombia overseeing the disarmament of the FARC rebel group political oversight over technological advances or methods to (2016-2017). This is not ancient history. These achievements de-escalate potential cyberwar. Starting such discussions in demonstrate that the United Nations and the multilateral system the United Nations would be frustrating and futile, given global can address collective challenges and act as force multipliers for polarization and the U.N.’s exclusively governmental member- U.S. interests. ship. But once a broad consensus of governments, industry Behind these initiatives was strong U.S. leadership. Even and civil society groups has agreed on acceptable standards of now, despite the disdain the Trump administration too often behavior, the U.N. is the only body that can endorse global appli- demonstrates for multilateralism, no other country comes close cability. We just need to keep our expectations realistic about to the influence the United States has inside the world body. In when and how to use the United Nations. addition, for all its creakiness after 75 years, the United Nations All of us who have toiled in Turtle Bay can identify parts of remains a generally accepted vehicle for burden-sharing and the U.N. that seem dysfunctional or irrelevant (although we cost distribution for shared problems that would be hard to rep- may disagree exactly on which parts those are). I often teased licate in today’s polarized world. (Imagine trying to get the U.N. my DPA staff that the organization made me realize just how Charter drafted today.) nimble and flexible the State Department was—not words I used Today, every country is affected by the coronavirus, and the to describe State while serving there. Also compared to State, International Monetary Fund predicts that 170 countries will be itself not always the most empathetic employer, the U.N. treats significantly poorer at the end of 2020 than they were in January. its own career staff abysmally, neglecting career development Many countries are now coming to terms with systemic racism. and too often ignoring staff welfare. In August 2019, when three

THE FOREIGN SERVICE JOURNAL | SEPTEMBER 2020 55 manages to recruit astonishingly talented and motivated indi- Once a broad consensus of viduals from all over the world, and Guterres deserves credit for governments, industry and civil significant progress in promoting gender parity at all levels.) These are not new problems, although 38th-floor disdain society groups has agreed on for career professionals, combined with the financial crisis pro- acceptable standards of behavior, voked by U.S. arrears, has sunk U.N. staff morale to new lows. the U.N. is the only body that can But if genuine, comprehensive reform often seems out of reach, endorse global applicability. the organization’s replacement or abolition seems worse. More than any other country, the United States shaped the development of the U.N. system and brought about the current operating system of normative values in the Turtle Bay machin- ery. Walking away from where we have, essentially, a home-field U.N. civilian staff members were murdered in Benghazi, Libya, advantage in an increasingly competitive world seems short- the Secretary-General swiftly issued public condemnation; but sighted and foolish: how delighted China and Russia must be neither he nor his office ever called the U.N.’s mission in Libya to when we abandon the playing field and create vacuums they express condolences and offer support. U.N. professionals advo- can fill. But U.N. relevance and value as a force multiplier for our cating respect for human rights are currently viewed as particu- interests and values rest on the United States exercising leader- larly suspect, since human rights advocacy can create tensions ship that simultaneously manages to be thoughtful, with U.N. member states. (So far, however, the organization still forceful and respectful. n

56 SEPTEMBER 2020 | THE FOREIGN SERVICE JOURNAL COVER STORY THE U.N. AT 75

Ralph J. Bunche, U.N.

Ralph J. Bunche inin 19501950 whenwhen Architect he received the Nobel Peace Prize inin recognitionrecognition ofof his work as acting United Nations mediator in Palestine.

UNITED NATIONS

The first Black Nobel laureate alph Bunche was too made unique contributions to busy making history to the establishment of the record it,” Foreign Service Officer Lawrence “Larry” United Nations long before the Finkelstein, who worked peacekeeping achievements for closely with Bunche at the which he is better known. State Department and the BY JAMES DANDRIDGE “RUnited Nations, once stated. Bunche successfully completed negotiations of the first peace treaty between Israel and its four Arab neighbors, the Rhodes Treaty Negotiations, in 1949. A retired Senior Foreign Service officer and U.S. He was awarded the Nobel Peace Prize for this momentous Army pioneer special operations officer, James achievement in 1950, the first Black laureate, and had a long T.L. Dandridge II is vice chairman of the board and distinguished career as a United Nations diplomat. of directors of the Diplomacy Center Foundation Less known are Bunche’s enormous contributions prior to for the establishment of the National Museum of attaining world renown, contributions that were critical to the American Diplomacy. Now vice president of the DACOR board of founding of the United Nations. Fortunately, Bunche’s attention governors and trustees, he served as chair of the board of directors to detail and his excellent drafting skills, as recovered and pub- for the Association for Diplomatic Studies and Training from 2005 lished by his close associates, make it possible to capture these to 2015. He is also the 2008 recipient of The Director General’s Cup contributions. for the Foreign Service for his promotion of the Foreign Service, One of the major challenges of the post–World War I and both as a U.S. diplomat and in retirement. He retired from the U.S. post–World War II eras was colonialism—namely, the status Foreign Service with the rank of Minister Counselor in July 1997. of territories fought over in both wars. Bunche grappled with

THE FOREIGN SERVICE JOURNAL | SEPTEMBER 2020 57 1904 in Detroit, he was raised by his maternal grandmother, Lucy One has only to reflect on Taylor Johnson, who moved the family to Los Angeles in 1919. Bunche’s early academic prowess He graduated with honors from 30th Street Intermediate School, at every level to see how later where his grandmother insisted that he be given academic courses to prepare him for college. He then graduated first in his principles of humanism, freedom class and valedictorian from Jefferson High School, but he was and conflict resolution took not accorded a listing in recognized honor societies because of strong hold in his thinking. his race. Bunche entered the southern branch of the University of Cali- fornia (later to become UCLA) and graduated summa cum laude as class valedictorian in 1927. In his commencement address, this issue from his early academic pursuits through his work Bunche referenced the Great War (as World War I was then at, successively, the Office of Strategic Services (1941-1944) as known), that “supreme catastrophe” that “seared deeply into the head of the Africa Section of the Research and Analysis Branch, heart of humanity the burning realization that the world is in the Department of State (1944-1946) as an adviser on colonial distress.” And he implored fellow students to become “socially matters and the United Nations (1946-1954) as director of the valuable individuals” by developing their personalities—reason, Trusteeship Division. self-consciousness and self-activity—to the fullest and adding a While transitioning from the OSS through State to the United fourth dimension: “bigness,” which he defined as the soulfulness, Nations, Bunche was also a tenured political science professor at spirituality, imagination, altruism and vision enabling one to Howard University (a position he relinquished in 1950). I was a understand and love one’s fellow man. freshman at Howard University in 1949. With our class, Bunche Ralph Bunche’s views were shaped by international events presided over the establishment of the first chapter of Phi Beta as he was growing up. World War I began in 1914 when he was Kappa at Howard University, and we proudly strutted across the 10 years old. The Great War pitted Germany, Austria-Hungary campus sharing the success of our professor’s accomplishments. and the Ottoman Empire against Britain, France, Russia and, As a Bunche “junkie,” I have also been fortunate to have ultimately, the United States, Italy and Japan. The war lasted for known many of those who worked closely with Bunche at vari- four years, 1914 to 1918, and the peace settlement took another ous stages: Benjamin Rivlin, Bunche’s Office of Strategic Services five years—from the 1918 Treaty of Versailles through to the assistant; Lawrence Finkelstein, Bunche’s assistant at State, 1923 Treaty at Lausanne, where peace was finally reestablished. who accompanied him to the 1945 San Francisco Conference to During the subsequent 1924-1930 period, the League of Nations, draft the U.N. Charter and served as his assistant when Bunche established in 1919 under Part I of the Treaty of Versailles and assumed directorship of the U.N. Trusteeship Division in 1946; based in part on President Woodrow Wilson’s “Fourteen Points,” and Sir Brian Urquhart, Bunche’s U.N. colleague, friend and suc- became operational, and programs and practices emerged to cessor U.N. Under-Secretary-General. govern international conduct. With their help, a review of this earlier 1941-1946 period in his Besides calling for establishment of an international orga- career illuminates the unique contributions Ralph Bunche made nization to enforce the peace, Wilson’s “Fourteen Points” dealt to the United Nations long before the peacekeeping achieve- with the disposition of colonial claims, a large and critical aspect ments for which he is better known. These contributions center of the war. Point V, which went some way toward establishing the on Bunche’s deep familiarity with the colonial aspects of the principle of self-determination, called for: “A free, open-minded, post–World War I peace agreements and his development of the and absolutely impartial adjustment of all colonial claims, based basic principle of self-determination as the standard by which to upon a strict observance of the principle that in determining all judge a system of government. such questions of sovereignty the interests of the populations concerned must have equal weight with the equitable claims Academic Underpinnings and Historical Context of the government whose title is to be determined.” (This was a One has only to reflect on Bunche’s early academic prowess most interesting position taken by a president who resegregated at every level to see how later principles of humanism, freedom the federal capital city, but that is another matter.) and conflict resolution took strong hold in his thinking. Born in In the charter of the League of Nations, Wilson’s Point V was

58 SEPTEMBER 2020 | THE FOREIGN SERVICE JOURNAL translated into a system in which direct colonial control was supplanted by “mandates” to “tutor” former colonial territories To understand the principle inhabited by “peoples not yet able to stand by themselves.” Thus, of self-determination is to Article 22 of the League’s charter states: “To those colonies and understand Ralph Bunche’s territories which as a consequence of the late war have ceased to be under the sovereignty of the States which formerly governed later work as chief of the United them and which are inhabited by peoples not yet able to stand by Nations Trusteeship Division. themselves under the strenuous conditions of the modern world, there should be applied the principle that the well-being and development of such peoples form a sacred trust of civilization and that securities for the performance of this trust should be better in one system than the other, and he traveled to Europe embodied in this Covenant. and Africa to conduct research and gather data on French “The best method of giving practical effect to this prin- administration in the two settings. ciple is that the tutelage of such peoples should be entrusted Bunche pored over data in colonial archives in Paris and to advanced nations who by reason of their resources, their London but also collected data on the ground in Africa. He experience or their geographical position can best undertake argued that the most valid data were the native populations’ own this responsibility, and who are willing to accept it, and that this perceptions of their welfare under the two systems. As he wrote tutelage should be exercised by them as Mandatories on behalf in his thesis, he found no significant difference between the two of the League.” systems: “To the Togolese, the French in Togo are merely some Against this background, Ralph Bunche, now 20 years old, more colonial administrators with a new and strange language undertook the study of political and social science, interna- and a knack for collecting taxes. In truth, this new status means tional relations and Africa. After graduating from UCLA in 1927, little to them now and will continue so for many years.” he was off to Harvard, where he received an M.A. in politi- Bunche’s views, vividly reflected in his thesis, were remark- cal science in 1928. He then wrote to William E.B. Dubois at ably like the anticolonial sentiments of the times. In A World Howard University, requesting help in finding an opportunity View of Race, a monograph written in 1936 to amplify the conclu- to perform social service for “his people” before continuing sions of his doctoral research, Bunche observes: “Approximately doctoral studies at Harvard. He was appointed an instructor and one-third of the human race is directly subject to imperialist assistant professor at Howard in 1928 and established Howard domination. … The so-called backward peoples would hold University’s Political Science Department that year, serving as no attraction for the advanced peoples if they possessed no its chairman until 1944. human or material resources which are needed by the industrial Bunche was awarded the Osias Goodwin Fellowship at Har- nations.” As the colonial regimes he investigated closely dem- vard to pursue his doctorate in government and international onstrate, he argues, the many completely unscientific theories relations, which he completed in 1934. The first Black man to of racial superiority and inferiority are employed to maintain a earn a political science doctorate from an American university, social and economic structure in which privilege and wealth is he was awarded the Toppan Prize for outstanding research in enjoyed by the few. social studies. As Larry Finkelstein has noted, Bunche argues that race did not explain imperialism, but had rather been “a convenient Studying Colonialism in Africa device for the imperialist.” Bunche believed that greed was the Bunche’s Ph.D. dissertation, “French Administration in Togo- predominant motive of imperialism, and that colonialism and land and Dahomey,” was a comparative analysis of how colo- imperialism were pure manifestations of racism. He was acutely nized people fared under direct French colonialism (Dahomey) aware of this deep down: It was borne out personally to him as a and under the League of Nations’ mandate system (Togoland, a Negro (a label that he proudly bore) and a direct target of racism, German colony from 1884, was split in half under the Treaty of among other instances, when Secretary of State Cordell Hull had Versailles, with half becoming a French mandate and half a Brit- to intervene to unblock permission for Bunche to visit South ish mandate). Bunche developed a comparative research design Africa on scholarly business—permission that had, until then, to test whether the military, educational and native policies were been denied him.

THE FOREIGN SERVICE JOURNAL | SEPTEMBER 2020 59 and above all, the right to walk with dignity on the world’s great No decision was formally made boulevards.” to authorize the U.S. delegation To understand the principle of self-determination is to under- stand Ralph Bunche’s later work as chief of the United Nations to introduce the document Trusteeship Division. There, he would oversee the establishment Bunche had so diligently drafted of the U.N. Trusteeship Council and guide the work of the Fourth en route to San Francisco. Committee, which was responsible for decolonization matters.

At the State Department There was one more important step in Ralph Bunche’s journey Bunche’s conclusion that the real goals of colonialism were to the United Nations. In 1945, he joined the State Department economic in motivation and had nothing to do with “people as associate chief of the Division of Dependent Area Affairs, not yet able to stand by themselves” (as per League of Nations appointed in a professional position to advise and participate Article 22) strengthened his belief that self-determination was the with the U.S. delegation in the design of the trusteeship man- only legitimate standard for government of the colonial African dates within the U.N. Charter. This was precisely where Bunche’s countries. In his view, colonialism could never meet that stan- preparation and expertise lay, as Larry Finkelstein has said so elo- dard unless the people of a colony, themselves, chose a colonial quently. But as a junior officer dealing with decisions about post– regime as an act of “self-determination.” World War II territories and colonial mandates that had already As Bunche said in a 1942 talk at the Institute of Pacific Rela- been made, he had two arms and a leg tied from the start. tions conference in Mont-Tremblant, Quebec: “Schemes of inter- The British had been adamant about this issue, so there were national organizations … these are all means and not ends. … The firm “understandings” on their role. And there was intermittent real objective must always be the good life for all of the people … warfare going on with the War Office (Department of the Army) peace, bread, a house, adequate clothing, education, good health, and Department of Navy on what to do with the post–World War II South Pacific territories, on which there would be absolutely no movement for the sake of preserving forward military bases. So, in a few words, not only did he not have a blank check, he had no blank slate on which to write. Though serving in a relatively junior posi- tion, he nonetheless had an unusual oppor- tunity as a young diplomat to play a part in stirring events. During Bunche’s first months at State, his immediate supervisor, Benjamin Gerig, attended most of the policymaking meetings. But Bunche served as “assignment secretary” with the American delegation to the Dumbarton Oaks Conference in 1944, where a draft of the United Nations Charter was agreed on. This insider experience served Bunche well for later positions of responsibility undertaking more challenging roles in the absence of his UNITED NATIONS UNITED Ralph J. Bunche of the U.N. Secretariat (at right) and Benjamin Gerig of the overtasked supervisor, Gerig. Here Bunche’s United States (at left) discuss a point at a meeting of a subcommittee of the competence began making its mark, starting United Nations’ Fourth Committee (the Special Political and Decolonization with the negotiations between the State and Committee of the U.N. General Assembly), on Dec. 4, 1946, in Lake Success, New York. Both were members of the Fourth Committee. Interior Departments, on the one hand, and

60 SEPTEMBER 2020 | THE FOREIGN SERVICE JOURNAL the War and Navy Departments, on the other, over whether the United States would make a trusteeship proposal at the San The precedents set by Francisco Conference. Bunche in the design and By the time that Bunche took his job at State, official U.S. policy was that trusteeships should be designed to deal with functioning of the United Nations colonial territories that had been under League of Nations trusteeship system ... decisively mandate, as well as those taken from Axis powers in the war. The advanced the process of American plan did allow for a small, albeit not very effective, decolonization around the world. proviso for extension of the trusteeship system to other terri- tories placed under it voluntarily by the powers administering them. But many “non-self-governing” territories remained in the hands of colonial powers. Bunche slowly became more involved in high-level deci- said, “If Bunche cannot claim paternity, he at least attended at sions. He was listed among the State Department officials who the accouchment.” participated in the ad hoc group dedicated to the International A second opportunity for U.S. contribution to a strong United Committee on Dependent Area Aspects of International Orga- Nations presented itself on Labor Day weekend in 1945 when the nization to deal with Cabinet-level disagreement. And he was new Secretary of State, James Byrnes, was at sea en route to the one of a small group sent to the April-June 1945 San Francisco first Council of Foreign Ministers meeting in London. He needed UNCIO Conference to negotiate and coordinate a proposal. information on how to deal with the Italian territories after the According to Larry Finkelstein, Bunche basically wrote the draft end of the war. Bunche quickly rounded up Larry Finkelstein and single-handedly on the train to San Francisco. In the end, it was Thomas F. Power. Under Bunche’s direction, a plan was drawn not Ralph Bunche but rather his boss Benjamin Gerig who was up, but the Council of Foreign Ministers had already precooked credited with creating the arrangements for non-self-governing a policy position. Some years later, the Philippine delegation territories. successfully introduced a plan that was amazingly like the earlier American delegation’s proposal. An Architect of the United Nations There is little doubt that the precedents set by Bunche in the Of course, the story does not end here, in that no decision design and functioning of the United Nations trusteeship system, was formally made to authorize the U.S. delegation to introduce with objectives that included eventual independence, decisively the document Bunche had so diligently drafted en route to San advanced the process of decolonization around the world. Francisco. The British provided an opening, and the Australians As a government officer dealing with colonialism and man- took the initiative to save the day. The U.N. Charter’s Chapter XI date matters during World War II, Ralph Bunche established a is titled “Declaration Regarding Non-Self-Governing Territories.” reputation that paved the way for his recruitment into the United This chapter, which deals with colonial territories not included Nations after the war. The service that would win him world in the trusteeship system, is based on a weak draft on trusteeship renown, as mediator in Palestine and as United Nations peace- made by the British delegation, designed to counter the stronger maker extraordinaire, resulted from his appointment to the American draft. The draft used language from Article 22 of the U.N. Secretariat in the spring of 1946 as head of the Trusteeship League of Nations Covenant. Division. The State Department circle was completed with the The Australians had been working on colonial issues dur- assignment of Larry Finkelstein to that same U.N. division with ing the war, and their views were closer to those of the Bunche Bunche, and the assignment some years later of another young draft. Bunche took advantage of the opportunity and informally State Department diplomat, Ambassador Terence A. Todman. passed a copy of the draft U.S. declaration to his Australian Ralph J. Bunche skillfully moved from the challenge of the counterpart. The Australians drew on it and introduced an epoch, trusteeship, to the threat of the period, conflict resolu- amendment to the British proposal, which became Article 73 of tion—making the transition from the post–World War I territorial the charter, directing colonial administrations to, among other issues to the post–World War II peacekeeping contributions. He things, “develop self-government” and “take due account of the is rightfully accorded the signature recognition of an accom- political aspirations of the peoples.” As Larry Finkelstein has plished United Nations architect. n

THE FOREIGN SERVICE JOURNAL | SEPTEMBER 2020 61 FEATURE

BRINGING ORDER OUT OF CRISIS Behind the Scenes of a Task Force

Seen through the lens of perhaps the greatest crisis response effort ever— the 2020 Repatriation Task Force—this look into how the State Department organizes emergency responses is an eye-opener. BY CHRIS MEADE, HOLLY ADAMSON, MERLYN SCHULTZ AND FANY COLON DE HAYES

ike everyone else in the world, we in the State from more than 139 countries. Even considering our massive Department Operations Center’s Office of Crisis evacuation conducted in World War II, this State Department– Management and Strategy are asking ourselves: led, whole-of-government effort was unprecedented. For many “What’s next, 2020?” Americans, it was their first exposure to the State Department, Since Dec. 31, 2019, CMS has established, and we’re proud that so many citizens were able to see the tireless managed and contributed our diverse profes- energy, commitment and courage of the countless diplomats sional expertise to four 24/7 task forces: the across the world who worked to get them home. It was an oppor- Lfirst one to respond to violence in the Middle East and the next tunity for State employees to view the department differently, three to deal with the COVID-19 pandemic. These task forces too, by working directly with a task force and seeing firsthand harnessed State’s collective expertise to ensure an efficient and the global effort that ensured the full U.S. government rose to a successful response. historic challenge. As of June 5, more than 102,000 Americans had been repatri- This article pulls back the curtain on CMS’ role managing ated with State Department assistance on more than 1,100 flights crises through the prism of this extraordinary year. For CMS,

Chris Meade is a crisis management officer with Holly Adamson is a crisis management officer with the State Department Operations Center’s Office CMS. She joined the Foreign Service in 2009 and of Crisis Management and Strategy. He joined the switched to Civil Service in 2019. She has served in Foreign Service in 2009 and has served in Kabul, Conakry, Tel Aviv, Bangui, on the Line and with the Sydney, Juba and Addis Ababa. Deputy Secretary for Management and Resources. Merlyn Schultz is a watch officer in the State Major Fany Colon de Hayes is a crisis manage- Department Operations Center. She joined the ment officer with CMS. She joined the U.S. Air Force Foreign Service in 2011 and has served in Mexico, in 1997 and currently serves as a Political and Cameroon and Costa Rica. Strategic Fellow. She has served in Cuba, Colom- bia, Germany, Portugal and Qatar.

62 SEPTEMBER 2020 | THE FOREIGN SERVICE JOURNAL U.S. DEPARTMENT OF STATE OF DEPARTMENT U.S. The Repatriation Task Force created this infographic for Secretary of State Mike Pompeo’s presentation at the April 8 White House Coronavirus press briefing. As it shows, between Jan. 29 and April 8 the task force brought more than 50,000 Americans home from more than 90 countries around the world in an unprecedented effort that involved more than 480 flights. the real story is how we’re able to bring together hundreds of officers—representing more than 130 posts and 30 bureaus and This is a story of thousands of offices—to overcome unexpected technological, logistical and partners, operating around the diplomatic obstacles to ensure a strong department response and clock in every time zone in dozens bring Americans home. This is a story of thousands of partners, operating around the of locations, with information clock in every time zone in dozens of locations, with information moving at light speed. moving at light speed.

When CMS Calls: Activating the Task Force The story began in 1976 in a windowless office on the State With the support of the director of the Operations Center and in Department’s 7th floor. Established as an office within the Opera- conjunction with the lead bureau affected by the crisis, CMS then tions Center, CMS had three officers who transcribed conversa- recommends to the executive secretary that a task force is needed tions of senior principals discussing how to manage emergent to respond effectively. CMS has already done the legwork to make crises. Since then, CMS has grown while taking on new respon- sure that a task force will be operational within 60 minutes of a sibilities in response to crises like the 1998 embassy bombings in decision. Once approved, CMS activates subject-matter experts Dar es Salaam and Nairobi, 9/11 and Benghazi. Today’s 20-person from the department and the interagency to work together, side by office is nearly equally split between Foreign Service officers and side, for a rapid, synchronized and comprehensive response. civil servants. That task force then serves as the department’s central Strategically located down the hall from the Secretary of State coordination and information hub, synthesizing situational and on the 7th floor of the Harry S Truman building, CMS works at operational developments to solve problems, alert and brief the intersection of policy and operations to develop contingency senior-level decision-makers and deploy resources in real time. plans ahead of a crisis and mobilize a response if one is needed. Working with the Watch (our 24/7 counterparts in the Operations 2020 in Perspective Center), we alert senior principals in real time to breaking news By all accounts, 2020 has been an exceptional year. We typi- events. cally activate between one and five task forces a year. But well CMS is perhaps best known for establishing and coordinating before this year was half over, we had already stood up four back- the department’s task forces, which are activated when a crisis to-back task forces—the last one under unprecedented circum- exceeds the ability of an individual post or a bureau to respond. stances.

THE FOREIGN SERVICE JOURNAL | SEPTEMBER 2020 63 U.S. DEPARTMENT OF STATE OF DEPARTMENT U.S. The Wuhan Task Force in action in early February. Clockwise from left to right: Alex Dunoye, Vietnam desk officer; Roger Burton, Crisis Action Team Director, Department of Homeland Security National Operations Center; Sarah Nelson, Consular Section Chief, Consulate General Wuhan; Pamela Kuemmerle, Crisis Management Officer, State Department Operations Center, Office of Crisis Management and Strategy; Holly Adamson, Crisis Management; Rachel Okunubi, Watch Officer, State Department Operations Center; Lindsey Spector, EAP/PD; Michael Cullinan, Watch Officer, State Ops; Valentina Hart, Program Officer, DMD/OM/PM; Stephanie Smit, Branch Chief, Consular Affairs’ Office of Citizen Services/Children’s Issues; Nick Fietzer, Country Officer, CA Office of Citizen Services; and Rob Romanowski, Consular Officer, CA Office of Citizen Services.

On December 31, 2019, we stood up the Middle East Task issues—into something completely new overnight: a complex Force in response to attacks against U.S. Embassy Baghdad and “virtual task force.” escalating Iranian aggression that threatened regional stability. With more than 400 officers serving as part of the Repatriation Less than a day after that task force moved to on-call status on Task Force, and tens of thousands of Americans across the world Jan. 23, we partnered with the Bureau of East Asian and Pacific depending on us, we had to stand up and set into motion a virtual Affairs for the Wuhan Evacuation Task Force to evacuate our task force for the department without missing a beat. It required staff at U.S. Consulate General Wuhan and Americans trapped embracing some new tools quickly, such as information-sharing in China after the city was unexpectedly locked down to contain collaborative technologies and teleconferences, while rapidly the novel coronavirus. creating new techniques to extend our ability to work together in Within just days of standing down that second task force, we real time from dispersed or far-flung environments. formed the Diamond Princess Evacuation Task Force to evacuate Americans from a cruise ship off the port of Yokohama, Japan. Meeting Pandemic Challenges That, too, was a clearly focused mission with specific, measur- At the heart of every task force, however, are the tools that able objectives. each Operations Center officer brings to their job every day: the Then came the biggest, most challenging task force of them ability to work quickly, the willingness to adapt to new challenges all: the Repatriation Task Force. On March 19, with the world- effortlessly, and the tenacity to tackle some of the most difficult wide spread of COVID-19 escalating and its acknowledgment problems. We were able to pivot quickly, amid one of the highest- as a pandemic by the World Health Organization, the Bureau of profile and most complex operational responses that State has Consular Affairs and CMS jointly launched the Repatriation Task ever executed, to implement previously untested tools and Force to facilitate the return of thousands of Americans stranded technologies while ensuring our vital work continued without overseas across the world as a result of the widespread shutdown interruption. of commercial flights. As of June 24, this task force was in on-call The effort was not unlike building an airplane in mid-flight. status. Though most volunteers worked from home, the task force was In 44 years of experience responding to crises throughout the able to provide the same uninterrupted service and high-quality world—including 125 evacuations during the last 10 years—the reporting CMS efforts are known for. CMS developed an on- State Department’s CMS had never faced a scenario where the demand training curriculum to efficiently prepare the more same threat simultaneously affected our colleagues overseas as than 400 volunteers who helped the Repatriation Task Force to well as those charged with responding to it in Washington, D.C. accomplish its mission. That threat uniquely affected establishment of the Repatriation CMS also created an operational planning team, consist- Task Force itself. To set it up, we had to transform the traditional ing of the department’s lead operational and logistics plan- model of a task force—namely, dozens of officers from different ners and regional and functional bureau representatives, to bureaus seated side by side to respond nimbly to ever-emerging review requirements, expedite the identification of potential

64 SEPTEMBER 2020 | THE FOREIGN SERVICE JOURNAL Tips for Serving on a Task Force Stay calm and expect the unexpected. 1 Rephrasing Forrest Gump: “Task forces are like a box of chocolates—you never know what you’re going to get.” In 44 years of experience responding to crises, the State Do not use the word “quiet” when describing Department’s CMS had never 2 the task force’s operational tempo. Vocalizing this observation during a task force might result in faced a scenario where the same an unwelcome immediate uptick in activity. threat simultaneously affected our colleagues overseas as well Sleep when you can. Task forces can be taxing 3 on your body; working 24/7 for months on end as those charged with responding with 8- to 12-hour shifts takes a toll. to it in Washington, D.C.

The legendary “trough” is hard to resist despite 4 your best intentions to maintain a nutritious diet. You’ll find a spread of donuts, pizza, baked goods and with the Centers for Disease Control and Prevention and the refined sugars brought in by co-workers. Make sure Department of Health and Human Services. you know when items were brought in to weed out Insight into the complexity and unique challenges of the repa- expired treats! triation mission can be gained from considering what’s involved in flight clearances. During a Wuhan evacuation, hundreds of You will rise to the occasion! It will be challeng- Americans were set to depart on our evacuation flight. After sud- 5 ing; however, the reward will be one that you will denly learning that a bureaucratic snafu—somewhere between always remember. A task force is an opportunity to Washington, Beijing and Wuhan—was about to derail the live through history and carry out the Department flight, with a customs approval spiraling into a flight clearance of State’s core mission to protect and assist Ameri- issue amid the cacophony of babies crying and officials argu- can citizens overseas. ing at increasing volume, the task force room grew anxious, and —CM, HA, MS, FCdH animated. As the minutes ticked down, our tarmac slot, with a plane full of Americans that needed to take off, was due to expire; the Washington Task Force then leapt into action. We rapidly air assets and streamline the request for and approval of U.S. identified senior government officials in China and D.C., initiated government funds to carry out repatriation missions. This new contingency and escalation scenarios, and began putting a new process—robust, replicable and transparent—reduced the plan—and calls at the highest level—into motion. approval time from days to a few short hours or even minutes, In the end, the situation was luckily sorted on the ground after enabling multiple missions to be planned and executed in intervention from U.S. Embassy Beijing. For us in Washington, rapid succession. clustered on the 7th floor and in teleconferences in operations COVID-19 also required outstanding and sustained inter- centers and points across the city, it was a moment of high ten- agency coordination, including collaboration with domestic sion and drama that demonstrated how vital it was to have medi- agencies across multidimensional problems, some of whom cal, logistical, diplomatic and operational experts seated side by are not State’s usual partners. Working with the Federal Avia- side, when minutes matter and outcomes are on the line. The tion Administration, Transportation Security Administration Repatriation Task Force marshaled and coordinated this effort, and Customs and Border Protection, we facilitated more than continually synchronizing with interagency partners, govern- 1,000 flights landing in the United States, while the Depart- ments, medical professionals and others to ensure a seamless, ment of Health and Human Services and Federal Emergency whole-of-government response in real time. Many task forces Management Agency coordinated with state governors and aren’t quite this pressurized—but, increasingly, many are, with local emergency management offices to receive evacuees. moments made difficult by virtue of multidimensional or multi- The Department of Defense hosted more than 800 evacuees geographic complexity that demand cohesion and performance from Wuhan and the Diamond Princess, in close collaboration from the department and the interagency.

THE FOREIGN SERVICE JOURNAL | SEPTEMBER 2020 65 tion while thousands more Peruvians in the United States wished Given the global scope of the to return. Meanwhile, private citizens from both countries, along operation, CMS had to rapidly with multiple authorities within the U.S. and Peruvian govern- establish a worldwide process ments, overwhelmed commercial airlines with requests for infor- mation. The task force sought high-level department intervention to collect and synthesize data. to harmonize efforts toward a common solution.

Better Prepared to Face Future Challenges Big Problems, Big Data and More Task forces serve as incubators of best practices and better pre- As COVID-19 spread, conditions changed quickly across the pare the State Department for future crises. For instance, from the globe—new restrictions and closures were imposed by national response to H1N1 and Ebola in 2014, we learned that a pandemic governments, airports suspended operations and borders were response is often a long-term endeavor that requires a focused tightened. The data multiplied fast, as did demands for that infor- engagement that cannot be managed by people still performing mation by senior leadership, the interagency and posts world- their original day jobs; it must extend beyond the operational wide. Effectively mobilizing resources—not to mention getting scope of a task force. In 2020 we acted on those lessons, quickly people to the right place at the right time, or just in time—hinged recognizing that our international response to the coronavirus on the department’s ability to see the world swiftly, accurately would need a full-scale coordinated diplomatic, consular, sci- and comprehensively. entific and political response and recovery. CMS proposed and Given the global scope of the operation, CMS had to rapidly established the Coronavirus Global Response Coordination Unit establish a worldwide process to collect and synthesize data. To as a standalone office responsible for the department’s long-term do this, we collaborated with the Under Secretary for Manage- policy and COVID-19 coordination efforts. ment’s Office of Management Strategy and Solutions (M/SS) to As State’s institutional repository of crisis practices, CMS, part- create the COVID-19 Data Analytics Team (CDAT), which would nering with M/SS, has already begun convening stakeholders across serve as the department’s central hub for all coronavirus-related the building, our embassies and consulates, and the interagency data. CMS and CDAT worked closely to help decision-makers to identify which innovations, systems and approaches pioneered understand where progress was made and determine where during the COVID-19 response can be carried into the future. resources should be deployed next. Task forces also build expertise and relationships. Before This common operating picture ensured we could coordinate 2020, many diplomats may never have directly confronted or flight missions on a short timeline to meet demand. With thou- responded to a crisis in their respective countries, nor had so sands stuck overseas, some with serious health conditions, strik- much of Washington ever collaborated so widely and extensively ing a balance among posts with extraordinarily high demand and at the same time. As the department’s crisis management experts, our responsibility to smaller posts was tough. Despite the chal- we’ve witnessed the transformative impact of that. Now, more lenges from reduced staffing and suspended operations, embas- than ever before, new muscle memory has been formed, shared sies and consulates worked tirelessly with the task force to ensure and spread globally across dozens of bureaus, offices and posts. all Americans who needed repatriation assistance were helped. The relationships built, tested and reinforced over the past several On a daily basis, the Repatriation Task Force managed the months within the department, through the interagency, across equivalent of diplomatic gymnastics—gaining flight clearances and Capitol Hill and among hundreds of partners and governments, maneuvering through locked-down borders, coordinating transport will benefit the American people for generations. out of remote locations, and keeping track of fluid travel restric- Those of us in CMS know the department learns invaluable tions—in lockstep coordination with officers from around the world. lessons from each crisis we face. We emerge stronger, better pre- Identifying and relieving bottlenecks in the process of get- pared and more ready. Responding to the inevitable crises that ting Americans home was a constant challenge, especially in the will emerge over the next year and decade will require not only beginning. On one particular task force shift, department logisti- everything we’ve learned so far, but more. We know our work cians requested help from U.S. commercial airlines for flights from over the last year, and the 44 years before it, has helped ensure Peru, which closed its borders with little notice. Thousands of that the department can meet the challenges of tomorrow. Americans saw their return flights canceled and sought repatria- We can all be proud of that. n

66 SEPTEMBER 2020 | THE FOREIGN SERVICE JOURNAL AFSA NEWS THE OFFICIAL RECORD OF THE AMERICAN FOREIGN SERVICE ASSOCIATIONAFSA NEWS

AFSA Hosts Town Hall Series CALENDAR on COVID-19, Diversity

With the goal of addressing We have recommended to State Due to the evolving nature member concerns about the of the COVID-19 pandemic, management that “inclusion promotion” please check www.afsa. COVID-19 pandemic and diver- be part of the Employee Evaluation Report org for the most up-to-date sity issues, AFSA held a series core precepts, which will be renegotiated information. All events are of five virtual town hall meet- subject to cancellation ings in late June and early July. with AFSA in 2021. and/or rescheduling. Following are excerpts of AFSA —AFSA President Eric Rubin President Eric Rubin’s remarks September 7 during the meetings. Labor Day: AFSA Offices Closed I wanted to reach out to community about their own I am proud of this work you today to let you know that experiences with discrimina- and we will make sure AFSA September 16 AFSA is with you as you are tion and systemic racism, helps push our agencies 12-2 p.m. dealing with so much uncer- both within and outside of our toward a more representative AFSA Governing tainty and so many unsettling agencies. Foreign Service, especially at Board Meeting developments in your Foreign AFSA’s history on these the senior levels. Service lives at this moment. issues is checkered. However, We are concerned about September 18: Our nation is in an we have done much better what we are hearing of res- CANCELED Fifth Annual unprecedented situation. The in recent years to advocate ignations of Foreign Service Foreign Service Night COVID-19 global pandemic for the Foreign Service Act’s members who did not think it at Nationals Park has disrupted all our lives, mandate for “entry into and was worth staying in. both personally and profes- advancement in the Foreign If you are discouraged, September 22 sionally. Service by persons from please reach out to us. If 1-2 p.m. And now, we bear wit- all segments of American you feel that you have been Virtual Panel ness to the understandable society.” treated unfairly, please let us “Foreign Service on the Front Lines: sadness and rage over yet Today AFSA is strongly know. We don’t want Foreign Bringing Americans Home” more unnecessary deaths of devoted to equality and diver- Service talent to walk out the Co-hosted with National African Americans—George sity in all aspects. We push door if we can do something Museum of American Floyd, Rayshard Brooks, the management of all foreign to stop it. Diplomacy Ahmaud Arbery, Breonna affairs agencies to do more Taylor and so many others. and to do better. AFSA’s Current October 14 As American diplomats, it We have worked to address Priorities: COVID- 4-6 p.m. Tentative: Annual AFSA is our job to explain America unconscious bias and will related Concerns Awards Ceremony to the world. We have always continue to raise the issue, More than 1,800 of you pointed to our story as being especially when it comes to responded to AFSA’s recent October 19 worthy of emulation. But in bidding. We have strong and survey on agency and post Columbus Day: these times, we have been long-standing relationships action regarding the COVID- AFSA Offices Closed forcefully reminded that we with minority employee affin- 19 pandemic. In addition, we still have a long way to go as ity groups. have heard from members October 21 a nation. We have recommended directly in our structured 12-2 p.m. AFSA Governing to State management that conversations and in emails Board Meeting Where AFSA Stands “inclusion promotion” be part you have sent to us on issues on Racism and of the Employee Evaluation related to the pandemic. Discrimination Report core precepts, which Your concerns in the survey We have heard from many will be renegotiated with AFSA focused overwhelmingly on within the Foreign Service in 2021. Continued on page 78

THE FOREIGN SERVICE JOURNAL | SEPTEMBER 2020 67 STATE VP VOICE | BY TOM YAZDGERDI AFSA NEWS

Contact: [email protected] | (202) 647-8160

Diversity and Inclusion: The Time to Act Is Now

The murder of George Floyd and women, particularly in intention is to rectify the clear gender to lessen the chance and the many other disturb- and into the senior ranks. retention problems that the for unintended bias. We know ing examples of police vio- • Include more minorities department has with African- that this can work because lence against people of color on the assessment boards American FSOs, in particular, the pilot MSI awards process have awakened a renewed and promotion panels. having that new intake would now uses this format. desire in our country to • Add “advancing diversity likely create even more of a Core Precepts and Pro- address the continuing legacy inclusion” to the highest level bulge at the mid-level than is cedural Precepts. The Core of racial and social injustice. of core competencies for currently the case. Precepts are reviewed every This tragic event has supervising officers, and make What might make more three years and are familiar to also provided new impetus it an absolute requirement sense is to expand the those who have gone through for looking at the issues of for promotion (at FS-2 and Pickering and Rangel Fellows the employee evaluation racial bias, diversity and above). programs, which have proven review (EER) process. The inclusion in the department • Require the depart- themselves over the course Procedural Precepts gov- with an eye toward concrete ment to ensure accurate of time. ern the work of the Foreign action. The result we all want understanding of how all the Another way to attract Service selection boards and is a department that truly fellowships work, especially underrepresented communi- are negotiated annually with reflects the rich diversity of Pickering and Rangel Fellow- ties to the Foreign Service AFSA. We will push for strong America, where no one feels ships, which should improve might be to have paid sum- diversity and inclusion indica- left out or less than valued. the standing of the fellows in mer internships generally tors in both precepts. the department. for college and graduate Revamping the exit Possible Ideas… • Formalize a leadership students at our embassies interview process. For too AFSA is closely following program for FS-3 employees abroad and at Main State. long the exit interview was not the ideas that people are of color, administered by FSI, Right now, these internships taken seriously—either by the bringing forward on what can to provide career guidance are unpaid and, as such, tend department or by employ- be done to promote diversity and hone their managerial to cater to students who do ees—and the questions at State. and supervisory skills. Doing not have to earn money dur- themselves were too broad to Recent congressional so might create a stronger ing the summer. yield any significant data. testimony by two former pipeline of officers who are At AFSA’s urging, the ambassadors, as well as prepared for future chief of AFSA Initiatives department revamped the initiatives from the employee mission and DCM positions. Aside from assessing the process in April to include affinity groups Blacks in creative ideas that are out more specific questions Government, Pickering and … That Need Careful there at present, AFSA has that could shed light on, for Rangel Fellows Association, Vetting taken the following initiatives: example, why mid-level FSOs and Thursday Lunch Group AFSA is working with Racial bias survey. of color appear to be leaving have set forth several pro- the Bureau of Global Talent In mid-July we sent out a the Foreign Service (see 20 posals worthy of discussion Management, EAGs, Con- survey to all our members STATE 40554). and consideration. gress and other stakeholders asking them to let us know if We expect to see the first • Mandate the inclusion to make sure these and other they had been the subject of results of this department- of, or at least more thor- ideas are carefully vetted, racial (or other) discrimina- level data quarterly beginning oughly utilize, the represen- including for any negative tion. The Journal will report in the fourth quarter of 2020. tatives of the 14 employee unintended consequences. on the survey in October. Supporting Pickering affinity groups (EAGs) in One idea that has gained Gender and Race/ and Rangel Fellows. We have formulating promotion pre- some traction in Congress is Ethnicity-Neutral EERs. advocated greater flexibility cepts, and use these groups to establish a mid-level entry For some time, AFSA has on the part of the department as a sounding board for program at the FS-3 to FS-1 argued in favor of Employee to provide for the needs of future initiatives on diversity levels for members of minority Evaluation Reports that are Pickering and Rangel Fellows. and inclusion of minorities communities. While the good not identifiable by name or Continued on page 79

68 SEPTEMBER 2020 | THE FOREIGN SERVICE JOURNAL USAID VP VOICE | BY JASON SINGER AFSA NEWS

Contact: [email protected] | (202) 712-5267

The (GAO) Report Is In on Diversity at USAID

On June 23, the Government historic staffing shortages in 54 percent, higher than in ethnic minority employees Accountability Office pub- that office, noting: “Vacancy the federal workforce overall. for promotions from Class lished its report on USAID rates in most OCRD divisions Specifically, the proportion 4 and higher ranks for 11 of and diversity. were 50 percent or higher in in the CS decreased from 66 the 20 possible year-rank With the (not) catchy title, November 2019 and, despite percent to 61 percent, while combinations. In that same “USAID: Mixed Progress in attempts to hire more staff, the proportion in the FS period, men were promoted Increasing Diversity, and remained at 30 to 50 percent increased from 38 percent to at higher rates than women Actions Needed to Consis- as of April 2020.” 49 percent. from Class 4 and higher tently Meet EEO Require- It further notes that “a • The proportion of ranks for 12 of the 20 pos- ments,” the 160-page report lack of senior USAID leader- African Americans and Asian sible year-rank combina- looks at USAID’s diversity ship attention to diversity” Americans was higher at tions. numbers over the years, and is one contributor to these USAID in FY2018 than in the • Analyses of USAID data calls out the agency on the staffing shortages. In sum: federal workforce in FY2017, on promotions in FY2002 historical and real challenges “Without the capacity to but the proportion of His- through FY2017 also found facing its Office of Civil perform self-analysis, USAID panic Americans was lower differences between promo- Rights and Diversity. is unable to proactively iden- at USAID than in the federal tion outcomes for women The report is a good read, tify and address barriers to workforce for those years. relative to men, but these dif- and I encourage all to take diversity in its workforce.” On promotion analysis, ferences were generally not a look. I want to share some To its credit, USAID it gets a bit complicated. statistically significant. reactions to it and point to a agreed with the findings, The report conducts both There are some short- few relatively fast actions the and is allocating additional a descriptive analysis and comings to the report. It agency might take. resources to OCRD. On a an adjusted analysis (that does not explore the causes A word on the scope. The personal note, in my time accounted for individual and behind promotion differ- report looked at USAID’s as AFSA VP, I have worked occupational factors other ences or diversity stats. Nor permanent workforce in Fis- with the outstanding OCRD than racial or ethnic minority does it analyze the demo- cal Years 2002 through 2018 leadership team and staff status and gender that could graphics of the agency’s by racial or ethnic group and and am hopeful we will see a influence promotion). more than 1,000 personal by gender. Data and analysis true OCRD renaissance. • For USAID’s Foreign Ser- service contractors or more include differences between Data analysis reveals vice, the rate of promotion than 1,600 institutional sup- promotion outcomes and the some interesting findings on was generally lower for racial port contractor or Foreign extent to which USAID has diversity, particularly in the or ethnic minorities than for Service Limited colleagues. identified workforce diversity FS: whites. The adjusted analy- Further, the report does issues and addressed them. • From FY2002 to FY2018, sis also found differences not analyze the numbers and The report does a nice the proportion of racial or between the promotion rates percentages of employees job of separately analyzing ethnic minorities among for racial or ethnic minorities with disabilities. the Foreign Service (1,689 USAID’s full-time, perma- and those for whites that In addition, due to a lack employees) and Civil Service nent, career employees were statistically significant of data, the report has no (1,313 employees). increased from 33 to 37 for promotions from Class analysis related to sexual Formal findings focus pri- percent. Breaking it out, 3 to Class 2 but not statisti- orientation. marily on the Office of Civil this proportion in the CS cally significant for promo- There is no examination of Rights and Diversity. OCRD is decreased slightly, from 49 tions from Class 4 to 3, from compensation, although we the agency’s locus for aware- to 48 percent; the proportion Class 2 to 1, or from Class 1 know that within the FS and ness and guidance on equal in the FS increased from 18 to the executive rank. General Service structures employment opportunity, to 27 percent. From FY2013 through there are disparities among diversity, inclusion and rea- • During the same period, 2017, promotion rates the steps, even if employees sonable accommodations. the proportion of women at for white FS employees are at the same rank. The report points to the USAID increased from 51 to exceeded those for racial or Continued on page 75

THE FOREIGN SERVICE JOURNAL | SEPTEMBER 2020 69 FCS VP VOICE | BY JAY CARREIRO AFSA NEWS

Contact: [email protected]

You Can’t Really Ever Go Back, Only Forward…

Last November, I wrote There’s not enough space Abolishing US&FCS and moving its about the upcoming 40th here to offer a comprehen- functions to the State Department anniversary of the Commer- sive review of this proposed would push U.S. businesses into an cial Service. This important merger, but I think it’s milestone, however, is really important to highlight why agency traditionally focused on about the modern U.S. and US&FCS and its forerun- foreign policy and not necessarily trade. Foreign Commercial Service ners have been rooted in the that we know today. Commerce Department and Our roots actually stretch not the State Department. back to the early 1900s. Trade For the past 40 years, specialists at U.S. Export US&FCS has had a tightly submitted to the Office of The functions of a State Assistance Centers and our focused mission. We help Management and Budget on Department economic offi- forebears at embassies and U.S. companies (especially an annual basis. The figures cer and Commerce Depart- consulates overseas have small- and medium-sized more than justify our mis- ment commercial officer are been helping U.S. companies enterprises, or SMEs) export sion and truly represent out- different but complemen- compete and win in foreign to foreign markets, and we sized value for the American tary. We often work together, markets for more than 100 work to attract job-creating taxpayer. but tackle problems from years. foreign direct investment One real danger of a different angles. In July, however, a bill to into the United States. merger would be confusion At a very basic level, abolish the U.S. and Foreign Our Foreign Commercial in the business community. commercial officers will get Commercial Service was Service officers and locally Abolishing US&FCS and a company into a market, introduced in the House of employed staff abroad help moving its functions to the kick down barriers and Representatives. The aim of thousands of companies State Department would help establish partnerships the legislation is to move both each year gain access to new push U.S. businesses into an on the ground. Economic the foreign and domestic markets for their products agency traditionally focused officers will work the longer parts of US&FCS from the and services. With offices in on foreign policy and not view of economic liberaliza- Commerce Department to more than 75 countries, we necessarily trade. tion in those markets and the State Department. cover territory that accounts The fact that the vast push for high-level policy The legislation’s unam- for 95 percent of global GDP majority of the more than changes. It’s a relationship biguous language “to abolish” and 97 percent of all export 1,500 economic-coned that works on different levels was surprising; but that is, markets for U.S. goods. officers are not serving in but works well. in effect, exactly what would In the past three years, economic positions overseas So, what will the future happen if US&FCS were US&FCS has assisted more seems to demonstrate that of trade promotion look absorbed by the Bureau than 77,000 U.S. export- trade is not a core priority of like, notwithstanding this of Economic Affairs, which ers (more than 90 percent the State Department. The proposed legislation? That’s seems to be the thinking. That of them SMEs), facilitated business community knows a great question, and I think bureau, itself, is nearly six $296 billion in U.S. exports US&FCS well, and it knows it’s a conversation worth times the size of US&FCS. and inward foreign direct the value the Commercial having. There’s always room Any merger, no matter investment, supported 1.3 Service provides. for improvement. how balanced or seemingly million American jobs and In fact, the number-one But whichever direction logical, is difficult. Unantici- returned more than $300 complaint we hear from the we go in, let’s be sure to pated problems always come to the U.S. economy for business community and think it through. Above all, up, and opportunity costs are every $1 appropriated to the even our chiefs of mission let’s make sure our main a real thing. These and other agency. abroad is that there aren’t stakeholder, the U.S. busi- issues need to be thought Thanks to a metrics- enough Foreign Commercial ness community, is part of through carefully and delib- driven culture, these Service officers. They want the conversation. n erately. numbers are verified and more! Not fewer.

70 SEPTEMBER 2020 | THE FOREIGN SERVICE JOURNAL AFSA NEWS

AFSA Congratulates Kennan Award Winners

Each year, AFSA is proud to the National War College present the George Kennan (national security studies). Writing Award to Foreign She and her husband, Ethan, Service graduates of the have two children. National War College whose Nancy Leou’s thesis, research projects and writing “Promoting a Free and Open have demonstrated excel- Indo-Pacific Region Through lence throughout the year. a Strong U.S.-India Partner- This year, the Kennan ship,” argues that China’s Writing Award was presented expansionist policies are in a virtual ceremony on harmful to both the United June 5 to two Foreign Service States and India. officers, Nancy Leou and “My year at the National Nancy Leou Debra Mosel Debra Mosel, both from the War College was wonderful,” college’s class of 2020. Leou says. “I am so apprecia- Nancy Leou currently tive of the opportunity I had The award is named for George F. Kennan, serves as deputy director of to study with some of the who was the first Deputy Commandant of the Office of Korean Affairs in leading strategic thinkers the National War College, where he wrote the State Department. Prior on national security. As an his famous 1947 article, “The Sources FSO and an AFSA member, it to her time at the National of Soviet Conduct.” AFSA is proud to War College, she served as was especially meaningful to political and economic sec- receive the Kennan Writing recognize the important skill of excellent tion chief at U.S. Consulate Award.” writing, in the tradition of Mr. Kennan. General Shanghai and as Debra Mosel is a Foreign the director for China and Service officer with the U.S. Originally from Louisville, ultimately lead to a reduction Asian economic affairs at the Agency for International Kentucky, Debra earned her in illegal migration. National Security Council. Development. Her next bachelor’s degree in inter- Congratulations to Nancy Leou has served at U.S. assignment is as deputy national relations from the and Debra! They join the 15 Embassy Beijing and the mission director for Sri Lanka University of Delaware and her previous awardees recog- U.S. consulates in Hong and Maldives. She has also MBA from the Monterey Insti- nized since the inception of Kong and Ho Chi Minh City. served as director of the tute of International Studies. the Kennan Award in 2004. Her domestic assignments Office of Strategic Planning Her National War College They each also receive a include South Korea unit and Operations in the Middle thesis, “Decreasing Migra- $1,000 award. chief in the Office of Korean East Bureau and as director tion from Central America to The award is named for Affairs, special assistant of the USAID program offices the United States through George F. Kennan, who was to the under secretary for in Zambia, Namibia and Addressing Violence against the first Deputy Commandant political affairs and staff Romania. Women and Children,” of the National War College, assistant to the assistant Before joining the For- establishes violence against where he wrote his famous secretary of State for East eign Service in 2000, Mosel women and children as a key 1947 article, “The Sources Asian and Pacific Affairs. worked as a personal factor driving immigration. of Soviet Conduct.” AFSA is She received her bach- services contractor for In the paper, she argues proud to recognize the impor- elor’s degree in history and USAID in the Caucasus and that restarting bilateral assis- tant skill of excellent writing, Asian studies from the Uni- Washington, D.C. Earlier, she tance to countries in need, in the tradition of Mr. Kennan. versity of California, Berkeley. was a Peace Corps volunteer creating ways to measure To learn more about the She holds master’s degrees in the Czech Republic and protection from violence Kennan Award and other from Georgetown University worked in the private sector and establishing a new body AFSA awards, visit afsa.org/ (international relations) and in California. of international law would awards. n

THE FOREIGN SERVICE JOURNAL | SEPTEMBER 2020 71 AFSA NEWS

FSJ Wins Two TRENDY Awards for Publishing Excellence

At the July 8 Association J.D. Bindenagel and retired TRENDS 41st annual “Salute FSO Louis Sell. Almost all of to Association Excellence,” the authors were involved The Foreign Service Jour- directly in the events. nal received two TRENDY The FSJ also earned a awards for publishing excel- Bronze in the “Monthly Pro- lence. fessional Society” category The FSJ earned a Silver in for its May 2019 issue, which the “Commemoration/Trib- looked at the Foreign Service ute” category for the Novem- as a career, and discussed ber 2019 edition’s focus on the challenges and lessons The May 2019 FSJ. The November 2019 FSJ. the fall of the Berlin Wall. that come with this compli- The issue featured first- cated, difficult and exciting Kanishka Gangopadhyay; Jonathan Rickert. hand accounts by nearly life of public service. “Treating PTSD” by James The annual Association 50 members of the Foreign The issue featured an Eusanio; “My Parkinson’s TRENDS event is ordinarily Service community about interview with William Burns Story—Managing Medical attended by more than 500 the sweeping changes and several articles on Challenges in the FS” by Paul association professionals brought about by the fall the topic, including “Role Rohrlich; “Dual Identity and to honor stars within the of the Berlin Wall, as well Models—Lessons for Today Diplomacy” by Sandya Das; association community. This as longer articles by AFSA from AFSA’s Past” by Harry “From Generation to Genera- year, due to the pandemic, President Ambassador Eric Kopp; “Serving in Tandem for tion” by Alexis Ludwig; and the ceremony was held Rubin, Ambassador (ret.) State” by Kathryn Fitrell and “If You Mess Up, Fess Up” by virtually. n

How LWOP Affects Your AFSA Membership

Since the State Depart- 90 percent of members do. is easy, and membership will individuals who have been ment changed regulations This means that all AFSA continue without interrup- AFSA members for the pre- on taking leave without pay membership benefits will tion. vious six months are able to (LWOP), AFSA has seen end as well—including the Why is this important? request such assistance. an increased number of daily media digest, The There are many reasons, An interruption in mem- employees taking advantage Foreign Service Journal and including that only mem- bership during LWOP might of this option. access to labor manage- bers in good standing may therefore make it chal- AFSA has advocated for ment lawyers and counsel- participate in AFSA Govern- lenging for a member who making LWOP easily avail- ors. ing Board elections as either rejoins the rolls following able to employees, but we When you alert AFSA that candidates or voters. But LWOP to seek labor man- want to make sure that all you are going on LWOP, we most importantly, it ensures agement assistance until members understand what will offer the option of tem- that a member will always six months after his or her LWOP means for their AFSA porarily switching to annual have access to our labor return. membership. payments via credit card management staff for advice If you are considering the When your LWOP begins, or check. This will ensure and counseling. LWOP option, please contact your AFSA membership will that a person on LWOP will Some years ago, the AFSA at [email protected] end almost immediately if remain an AFSA member in AFSA Governing Board to let us know and request you have selected the pay- good standing. Once return- clarified rules on AFSA labor assistance in switching to roll dues deduction option, ing from LWOP, switching management assistance annual payments during something that more than back to payroll deductions to make it clear that only your absence. n

72 SEPTEMBER 2020 | THE FOREIGN SERVICE JOURNAL AFSA NEWS

AFSA Seeks Your Help with Outreach Efforts

The Foreign Service plays a lic outreach efforts. But we We need your help, especially our retired critical role in our national still have plenty of work to members in your home communities, security. AFSA’s 2020 public do in advance of this public to achieve our goal of reaching new outreach campaign aims to launch. We want to make reach new audiences with sure that you, our mem- audiences across the United States. this message to broaden the bers and messengers, are domestic constituency for engaged with this campaign the Foreign Service. and have all the tools you role of the Foreign Service you can get involved. If you The theme of the need to be successful. in cybersecurity, available at haven’t yet signed up, please campaign, the Foreign As we stated in the July/ amdipstories.org. do so by contacting Nadja Service as our “First Line of August issue of the Journal, We have also fleshed Ruzica at ruzica@afsa. Defense,” should resonate we had to delay the official out our materials, collected org. We will go over the key with many Americans in launch of the campaign examples of the Foreign objectives of this campaign these uncertain times. because of the new realities Service as the first line of and walk you through all the On Sept. 22 we will co- available tools, including the host a virtual panel, “For- virtual platforms we will use. eign Service on the Front We need your help, espe- Lines: Bringing Americans cially our retired members in Home,” with the National your home communities, to Museum of American Diplo- achieve our goal of reaching macy. The panel will feature new audiences across the Foreign Service members of the pandemic. But we did defense, tested our messag- United States and to ensure who worked on the front not stop telling the story of ing and collaborated with broader support for the For- lines to evacuate Americans the Foreign Service’s role in partners on ways to reach eign Service. This is always during the early days of the protecting Americans. new audiences. a worthy endeavor, but it is COVID-19 pandemic. The AFSA has been work- Our membership activa- especially important in the panel will demonstrate the ing diligently to gather and tion webinar describes the current climate. n work and commitment of share the stories of the campaign and details how members of the Foreign Foreign Service response to Service during a crisis of the spread of coronavirus unprecedented magnitude. around the world. Read the The Sept. 22 panel will be pandemic diplomacy stories hosted on NMAD’s Diplo- in the July/August issue of Things you can do: macy Classroom platform the Journal; listen to the for digital programs begin- American Diplomat podcast • Join the roster of messengers by contacting Nadja ning at 1 p.m. EST. With this “Get Me Out of Here!” at Ruzica at [email protected]. program, we hope to reach bit.ly/get-me-out-of-here. • Familiarize yourself with the materials on our member new, younger audiences And visit afsa.org/videos to page at afsa.org/first-line-defense. from universities and com- watch our new short video • Reach out to your local community college and other munity colleges who are not on the COVID response. community organizations to explore virtual opportuni- familiar with the work of the We also have been gath- ties to share AFSA’s message. Foreign Service. AFSA will ering stories of the various • Follow AFSA on social media and share the tweets and provide information on how and complex ways that the posts with your community, friends and family. to join the panel in early Foreign Service protects September. Americans. To that end, This virtual event marks we have collaborated on a the official start of our pub- podcast about the critical

THE FOREIGN SERVICE JOURNAL | SEPTEMBER 2020 73 AFSA NEWS

This Is Not Your Father’s DACOR BY JOHN BRADSHAW

John Bradshaw, a former among those who have Foreign Service officer, is dedicated their career to the executive director of DACOR. foreign affairs of the United He earlier worked as a think States through the Foreign tank executive and Capitol Hill Service and other interna- staffer. tional engagement. DACOR’s sister organiza- Many Foreign Service tion, the DACOR Bacon House Journal readers have heard Foundation, promotes public of DACOR, but some may understanding of international have an outdated view of the affairs and diplomacy through organization and may not be scholarships, lectures and COURTESY OF DACOR OF COURTESY aware of all the changes at conferences. The DACOR Bacon House in Washington, D.C. DACOR in recent years. The foundation is also Myth: DACOR is an organi- dedicated to preserving the Rubenstein gave private dent members can enjoy the zation only for retired Foreign historic DACOR Bacon House, recitals for his friend, Virginia reciprocal club arrangements Service officers. an architectural treasure two Bacon, who would bequeath we have with 10 clubs in the Fact: All foreign affairs blocks from the White House the house to DACOR. United States and 12 more professionals, retired and that will celebrate its 200th Members can host private clubs around the world. We active-duty, are welcome as anniversary in 2025. The events, such as weddings, also have guest rooms in DACOR members. house has a rich history as birthdays and retirement Bacon House that members It is true that DACOR was a center of America’s diplo- celebrations, in the house and can use whenever they are in founded in 1952 as “Diplo- matic heritage and a hub for its beautiful garden. D.C. matic and Consular Officers, two centuries of Washington’s One of the best things In response to the pan- Retired” and was open only to social and cultural life. about being a DACOR mem- demic, we have developed retired FSOs. But since 2012, DACOR members get ber is the opportunity to share virtual programming, featur- we have used only the acro- to enjoy this historic house in the camaraderie of people ing speakers on a variety of nym DACOR and have opened during a large variety of who have a common affinity international and cultural membership to anyone who programs and activities. Many for international affairs. At subjects. has had significant experience organizations in the district lunches, dinners and other If you or someone you in foreign affairs and can be offer programs and lectures events, new and old members know might be interested considered a “foreign affairs on foreign affairs, but none of are eager to participate in in DACOR, please visit our professional.” them have the Bacon House discussions of international website at dacorbacon.org, DACOR now has many as their setting. affairs, travel and the experi- and contact us so we can have members who are still work- At Bacon House you can ence of living outside the you come look at the house or ing, including active Civil sit in the South Drawing Room United States. join one of our events that are Service and Foreign Service listening to a speaker, knowing This common bond of open to prospective members. colleagues. DACOR has you are sitting in the same internationalism, which Please help DACOR con- also welcomed academics, room where Chief Justice includes some members with tinue to build our membership journalists, NGO profession- John Marshall, a resident foreign affairs experience who and shed our previous reputa- als and returned Peace Corps in the House from 1831 to have not worked abroad, is tion for being exclusively for volunteers, as well as people 1832, regularly convened the what makes DACOR the home retired FSOs. We are making with international military and Supreme Court justices to of the foreign affairs family. DACOR a more inclusive, more business backgrounds. discuss cases. Even if you don’t live in diverse and yes, less stuffy DACOR fosters com- Or you can sit in the North Washington, D.C., DACOR has place. Join us, and bring your munity, learning and service Drawing Room where Arthur much to offer. Our nonresi- friends! n

74 SEPTEMBER 2020 | THE FOREIGN SERVICE JOURNAL AFSA NEWS

USAID VP ment and dedicated focus; updating Senior Leadership we can collectively advance Continued from p. 69 let’s hope we are heading in Group diversity statistics, shared goals. the right direction. exploring possible barri- There are so many The good news is that Meanwhile, USAID can ers during the application opportunities at this unique these areas and related data take some relatively easy process (in particular, 360 moment to make real could be reviewed by the steps to help advance diver- feedback), and ensuring progress on diversity and agency as part of its own sity. The agency has already equitable and measured inclusion. We must all ask effort to advance diversity. acknowledged the report’s treatment during the large ourselves if we are following Finally, though not in the findings and is engaging with and small group selection the tenet of USAID’s lead- scope, perhaps the great- employees; this is great. process. ership philosophy to hold est shortcoming is that the USAID could make Human Capital and Talent ourselves, colleagues and report does not touch on publicly available a broader Management and OCRD, teams accountable for what inclusion, a critical element range of data and analy- with senior leadership, could we say we will do. to USAID’s institutional sis on diversity. We are a host regular webinars and The report is available strength. leader in programmatic data sessions to present data, at www.gao.gov/products/ Rebuilding OCRD, chang- transparency; now let’s be analyze data and proposals, GAO-20-477. n ing agency culture and a leader in diversity data and hold open discussions addressing unconscious (not transparency. about diversity, including to mention conscious) bias The agency could raise crowdsourcing ideas on how will take leadership, commit- awareness by publishing and

THE FOREIGN SERVICE JOURNAL | SEPTEMBER 2020 75 AFSA NEWS

AFSA Lauds Supreme Court Decision on Workplace Discrimination

AFSA welcomes the Supreme Our diplomatic corps tections are now enshrined in Court’s June 15 decision in should be representative of law. This is major progress. Bostock v. Clayton County, the melting pot that is our While our history on this Georgia, declaring that Title nation, and that is impossible is not perfect, AFSA is proud VII of the Civil Rights Act without the contributions to be a longtime supporter of of 1964 protects gay and of LGBT+ members of the LGBT+ rights in the Foreign sel Sharon Papp received transgender employees from Foreign Service. Service. As an association, glifaa’s Equality Award in rec- workplace discrimination. Until the June 15 decision, we have long-standing ties ognition of her, and AFSA’s, AFSA believes in equal those colleagues had been with glifaa, the largest LGBT+ strong allyship. civil rights for all Americans, uniformly protected only by employee affinity group for We celebrate this land- and this brings us a step Executive Orders 13087 and the foreign affairs agencies. mark victory with our LGBT+ closer to that goal. 13672. Their workplace pro- In 2014, AFSA General Coun- members and colleagues. n

AFSA Welcomes New Members of the U.S. Foreign Service

With the ongoing pandemic the 156th specialist class. and talk to other Foreign Ser- “I like to think that each necessitating social distanc- The first-ever joint generalist- vice members,” AFSA State generation of Foreign Service ing, AFSA welcomed the specialist orientation class Vice President Tom Yazdgerdi members brings a different newest members of the U.S. was onboarded virtually by told the new Foreign Service set of skills and a new vision Foreign Service virtually in the State Department. members by video. to make the Foreign Service June and July. “Normally, we would be “Given these extraordinary stronger. I am certain that On June 12, AFSA sent hosting you for lunch at our circumstances, we are glad your group is no exception. a welcome letter featuring headquarters building, just to have the opportunity to Already you are breaking new links to videos describing across the street from Main introduce AFSA virtually. We ground in being onboarded membership benefits to 72 State, where we can share are so happy to see you on virtually,” he said. members of the 202nd A-100 the work we do and you can board, and I want you to know AFSA President Eric Rubin class and to 85 members of have the opportunity to meet how hard AFSA pushed for hosted an online meeting this virtual onboard- about dissent in the For- ing,” he continued. eign Service (a topic he has On July 8, AFSA often presented to incom- also welcomed the 24 ing classes in the past) with members of the C3 about 20 members of the USAID class via video. new FSO class. We look for- “We often speak ward to offering more online of ourselves as not discussion sessions with just members of incoming Foreign Service the Foreign Service members. but as stewards of Ordinarily, AFSA invites it—responsible for incoming classes to its the strength of the headquarters for a welcoming institution,” AFSA lunch, and plans to resume STATE DEPARTMENT STATE Members of a joint generalist and specialist orientation class were onboarded virtually President Eric Rubin those lunches when condi- into the Foreign Service on June 12. told the USAID class. tions allow. n

76 SEPTEMBER 2020 | THE FOREIGN SERVICE JOURNAL AFSA NEWS

Seminar: How the SECURE and CARES Acts AFSA Governing Board Meeting, June 17, 2020 Affect Retirement Grievance Board: The board voted to appoint a person AFSA invited noted to serve in the Foreign Service annuitant position on the federal benefits expert Foreign Services Grievance Board. The appointment is Edward A. Zurndorfer subject to ratification by the Secretary of State. to give a presentation over Zoom, “How the New USAID Rep: The board accepted Lorraine Sher- SECURE Act and the man’s resignation as USAID AFSA board representative, CARES Act Are Affecting effective June 30, pending her assignment overseas. The the TSP, Other Qualified board appointed Trevor Hublin as successor to serve the Retirement Plans and remainder of Ms. Sherman’s term as the USAID AFSA IRAs,” on June 23. Board Representative, effective July 1.

AFSA members can WOODWORTH AFSA/CAMERON Awards and Plaques: The board identified awardees for view the two-hour video Edward Zurndorfer speaks at a September the 2020 AFSA Achievement and Contributions award 2019 event at AFSA headquarters. of the event at afsa.org/ and a one-time AFSA Special Achievement award. The video. 2020 from qualified retire- board also authorized inscribing the names of 17 people Zurndorfer told partici- ment accounts without having on the AFSA Memorial Plaques at Main State when fund- pants that the Setting Every to pay a 10 percent penalty on ing becomes available. Community Up for Retirement early distribution, if the dis- Legal Defense Fund: The board approved payment of Enhancement (SECURE) Act tribution is related to adverse $1,182 in legal fees for AFSA members who filed an equal of 2020 changes the most financial consequences pay complaint against USAID with the agency’s Office of popular retirement plans used resulting from contracting Civil Rights and Diversity. in the United States and is the COVID-19 or related factors. first major retirement-related Zurndorfer, a noted federal Committee on Elections: The board approved three legislation enacted since the benefits expert who has been members—Morton Dworken (reappointment), Marcia 2006 Pension Protection Act. a regular speaker at AFSA, is Friedman and Rodney LeGrand—to serve on the AFSA Among other things, the a certified financial planner, Committee on Elections. n SECURE Act raises the age a chartered financial consul- for starting required mini- tant, a chartered life under- mum distributions to 72 for writer, a certified employee all accounts subject to RMDs. benefits specialist and the People born before July 1, owner of EZ Accounting AFSA Governing Board 1949, however, still have an and Financial Services—an RMD beginning age of 70.5, accounting, tax preparation Meeting, July 15, 2020 he said. and financial planning firm. Under the Coronavirus Aid, He is a seminar speaker AFSA 2020 Awards: The board approved four dissent Relief, and Economic Secu- at federal employee retire- and four performance award winners. rity (CARES) Act—passed by ment seminars throughout Legal Defense Fund: The board approved payment of Congress in March—people the country and has written $1,500 for a retainer paid to an AFSA member’s attorneys who are subject to mandatory for numerous publications on related to the impeachment proceedings; disbursement RMDs from their qualified federal retirement topics. of $3,645 to attorneys representing AFSA members at retirement accounts do not AFSA presented the USAID in an EEOC proceeding; and disbursement of have to take their required program in response to $3,570 to a member as part of impeachment and U.S. RMDs in 2020, he said. the many inquiries we have Attorney’s Office for the Southern District of New York Individuals, he added, are received on these acts and legal proceedings. n also allowed to take distribu- their ramifications for retire- tions of up to $100,000 in ment planning. n

THE FOREIGN SERVICE JOURNAL | SEPTEMBER 2020 77 AFSA NEWS

AFSA Town Halls It’s also how we got EER at every opportunity that your concerns with Diplo- Continued from p. 67 deadline extensions, and how Foreign Service positions matic Security management we persuaded management should be filled by Foreign about security clearance the challenges of the upcom- that virtual onboarding of Service members. The wait times and the backlog ing transfer season, the health new Foreign Service entrants erosion of FS positions is in adjudicating discipline and safety of the workforce, was not only possible, but the a constant battle in all our cases. We have made and questions surrounding responsible thing to do. agencies. progress on the disciplinary the status of Authorized or Right now, we are receiv- On assignment restric- cases, and we will keep rais- Ordered Departure. ing many questions from you tions, our State Labor Man- ing concerns over security We know that you are about how the Diplomacy agement office has written clearance times. worried about possible family Strong–phased approach will to the State Department In addition to these separation, health issues work on a practical basis in seeking data surrounding operational concerns, we when transiting, home leave the summer transfer season. the apparent increase in are also attempting to keep and R&R, international school- Another issue many of you assignment restrictions intact as much of our other ing and allowances. are worried about is interna- affecting employees over work as we can. We have brought your tional schooling and, specifi- the past three years. For the foreseeable questions to the awareness cally, the department’s pay- We have shared the con- future, we will continue to of agency management in our ment of tuition deposits when cerns of our colleagues in bring you programs of inter- regular meetings with them. Foreign Service members and the Asian American Foreign est via virtual platforms and We have pushed for them to dependents cannot yet be in- Affairs Association about to offer you ways to connect adopt policies with maximum country for health and safety the disproportionate impact with us virtually. flexibility. reasons. We have engaged on their members and oth- Please know that AFSA is Thank you for sending your with the department, but we ers. here for you. We are doing questions—they help. Raising are encountering resistance. AFSA believes there our best to continue the full these issues, backed by real We will continue to push. is room for improvement span of our operations— stories and actual comments in terms of transparency minus our in-person happy from our members, was how Non-Pandemic and fairness in arriving hours, but we’re considering we convinced management to Concerns at decisions that restrict some virtual alternatives to add administrative leave for On FS positions, AFSA an employee from certain them! Please let us know those who had to care for fam- reminds the management of assignments. how we are doing and what ily members while on AD. all our constituent agencies AFSA has also raised we could do better. n

FSI RELEASES NEW GUIDED JOURNAL FOR FS CHILDREN

The Transition Center at the Foreign Service Institute has released a guided journal for elementary school-aged children of foreign affairs families moving overseas. The Amazing Adventures of (Me): A Guided Journal to My International Move is a fun new tool for helping your kids start their transition. The activities-filled pages of this free publication facilitate discussion as children process and prepare for an upcoming international move. An accompanying parent NEWS BRIEF companion guide provides context to help formulate discussion and understanding of the child’s emotional journey. Through the guide, children can explore the various stages of an international move and discover how they are feeling about the upcoming transition. Download this new Transition Center resource at https://fsitraining.state.gov/Home/ Index/7605. n

78 SEPTEMBER 2020 | THE FOREIGN SERVICE JOURNAL AFSA NEWS

Tomoko Morinaga Joins AFSA as Membership Operations Coordinator

Tomoko Morinaga, AFSA’s new membership opera- tions coordinator, was born and raised in Tokyo, not too far from the U.S. embassy there. When she was 13 years old, Tomoko and her mother visited her mother’s child- hood friend in Southern Tomoko Morinaga California. Although she could not communicate in to congressional hearings English, her week in Califor- and writing reports. She nia changed her vision for worked for 16 years for the the future. Tomoko decided National Trust for Historic to travel to the United Preservation, where she States to study. managed membership infor- She enrolled in Elmira mation, payments and data College in New York as analytics, as well as vendors. an exchange student and She looks forward to assist- decided to stay to earn a ing AFSA members. bachelor’s degree in com- Tomoko enjoys swim- munications. She then ming, walking, yoga, jazz pursued a graduate degree and classical music. She is in communications at Cor- a life member of the Cornell nell University and moved to University Council and is Washington, D.C., to earn an involved with several Cornell MBA in international busi- alumni groups. She is also a ness at American University. board member of American Tomoko worked for the University’s Asian Pacific Bank of Tokyo–Mitsubishi Islanders Alumni Network. as a research analyst. In She lives in Chevy Chase, that job, she enjoyed going Maryland. n

State VP Continued from p. 68

As the main contributor to Please let us know at diversity in the department, [email protected] what you these programs are too think should be done to pro- important to be potentially mote diversity and inclusion derailed by these unprec- in our Service. n edented times.

THE FOREIGN SERVICE JOURNAL | SEPTEMBER 2020 79 IN MEMORY

n Jose G. Armilla Jr., 81, a retired For- with the U.S. Information Agency. His A student of Feng Shui since 1980, he eign Service officer with the U.S. Informa- 25-year career with USIA focused on published his first book, Negotiate with tion Agency, died unexpectedly of a heart public opinion research, with extensive Feng-Shui, in 2001. He was a frequent attack on April 8, 2016, in Vienna, Va. travels in East Asia and overseas postings contributor to The Foreign Service Journal Born in Cebu City in the Philippines to Vietnam and Chile. and wrote for NPR’s Story Corps and other in 1934, Mr. Armilla was raised in a large, After three years as a social science professional publications. close-knit Catholic family during World analyst in USIA’s Office of Research, Mr. In 2002, he testified at a policy briefing War II. He excelled academically, graduat- Armilla and his family were posted to for the Virginia General Assembly’s House ing in 1951 at age 16 as valedictorian from Saigon in 1973. There he had many roles: of Delegates on Filipino-American political the Malayan Academy in Cebu City. USIA policy and research officer, U.S. participation in America. He maintained After a year at the University of the embassy expert on Cao Dai, Vien Hoa ties with the Thai and Philippine embas- Philippines, he won an academic scholar- Dao Buddhist and Catholic churches in sies in D.C., as well as with the Filipino and ship to the University of Oregon. There he South Vietnam, and chief embassy liai- Vietnamese communities, and partici- earned a bachelor’s degree in psychology son to the Chinese business community pated in Toastmasters International. in 1955, and then began graduate studies in Cholon. He was a member of the American For- at the University of Michigan’s Rackham Family members recall that he most eign Service Association and the American Graduate School of Psychology. enjoyed serving as embassy spokes- Psychological Association. He also served In 1960 Mr. Armilla received his person for U.S. policy to Vietnamese on the board of directors of PRS, Inc., a Ph.D. in social psychology and began his elites, among whom he developed close mental health nonprofit, and the National academic career as assistant professor of friendships that he maintained even after Alliance for Mental Illness, where he was psychology and department chairman leaving the country. active with the local and lobbying groups. at Inter-American University of Puerto In 1974 Mr. Armilla was transferred to Family members and friends recall Rico. There he met his wife, Ruth Daniel of Chile as U.S. Embassy Santiago’s principal Mr. Armilla’s humility and his devotion Charlotte Amalie in St. Thomas, U.S. Virgin officer in southern Chile, based in Con- to his family. They recall Mrs. Armilla’s Islands. The couple wed in October 1961 cepción. There he served as branch public gourmet cooking, her interior design tal- and would share a lifelong affinity for their affairs officer and director of the Instituto ent and her lifelong dedication to civic island heritage. Chileno-Norteamericano. responsibilities. In 1962 the Armillas moved to Green- Mr. Armilla returned with his family They remember especially the couple’s ville, Pa., where he was department chair to Washington, D.C., in 1976 and served enjoyment of travel and time with their and associate professor of psychology at for the rest of his career as the senior son, who suffered a severe and persisting Thiel College. Three years later he made a analyst for Southeast Asia in the USIA’s mental disability in his early 20s, and with career pivot to research, moving to Alexan- Office of Research, with temporary duty their grandsons. dria, Va., and a position as senior scientist and travel to Japan, South Korea and the Mr. Armilla’s wife of 55 years, Ruth, died at The George Washington University’s Philippines. in November 2016, following a two-year Human Resources Research Office. He negotiated and managed contrac- battle with cancer. Mr. Armilla’s work for that office in tual agreements with market research Mr. and Mrs. Armilla are survived by Bangkok in 1968, where he was attached executives in Japan, South Korea, Hong their daughter, Arlene (and husband Pat) to the Defense Department’s Advanced Kong, Thailand and the Philippines to con- Campbell of Charlottesville, Va.; their son, Research Projects Agency, led to subse- duct USIA-commissioned public opinion Alex, of Annandale, Va.; two grandsons; quent work as a consultant for rural atti- polling in those countries. his sister, Carmen, and niece, Rachel, and tude surveys as part of the Civil Operations In the Philippines he worked closely nephew, Shane, of California; and relatives and Revolutionary Development Support with respected local polling organizations in Cebu and St. Thomas. (CORDS) program in Vietnam. and, during the Philippine-U.S. bases Memorial contributions may be made After returning to the United States negotiations, was a consultant for two U.S. in Jose Armilla’s memory to NAMI-Reston, in 1970, Mr. Armilla, now a naturalized ambassadors. He retired in 1994. VA chapter; and in Ruth C. Armilla’s U.S. citizen, joined the Foreign Service Mr. Armilla was active in retirement. memory to Cancer Research Institute, Inc.

80 SEPTEMBER 2020 | THE FOREIGN SERVICE JOURNAL n Jane Ellen Becker, 69, a retired n Pierce Kendall Bullen, 85, a retired approach to his work, his extensive Foreign Service officer, died on April 6 of Foreign Service officer, died peacefully, knowledge, his ability to explain complex cardiac failure in Washington, D.C. surrounded by his family, on May 4 in the economic concepts, and his dry wit. Ms. Becker was born in Milwaukee, Springmoor Life Care Retirement Commu- Mr. Bullen is survived by his wife of Wis., and spent her childhood in Wau- nity in Raleigh, N.C. 65 years, Helene; children Grace, Peter, watosa, a Milwaukee suburb. She was Mr. Bullen was born in 1935 to Ripley Philip and Kendall, and their spouses; valedictorian of her high school class and and Adelaide Bullen. After attending Phil- and grandchildren Sara, Eliana, Zachary, went on to graduate with highest honors lips Academy (Andover), he earned his Fionnuala and Elyse. He was predeceased from Michigan State University with a dual bachelor’s, with high honors, and master’s by his brother and sister-in-law, Dana and major in biology and Latin American stud- in political science at the University of Joyce Bullen. ies. She was a member of Phi Beta Kappa. Florida. He was a member of Phi Beta In lieu of flowers, donations may be In 1972 Ms. Becker joined the Foreign Kappa. He later studied in Switzerland and made to the Senior Living Foundation, Service. Her 29-year career included over- took the advanced economic course in the or to the Michael J. Fox Foundation for seas postings in Lisbon, Moscow, Geneva State Department. Parkinson’s Research. and Vienna, as well as assignments in After joining the Foreign Service in Washington, D.C. 1958, Mr. Bullen served in Beirut at the n Tamar Alicia Donovan, 54, wife of Her first overseas post was Lisbon; dur- Foreign Service Institute; Dhahran; Cairo; Diplomatic Security Special Agent Andriy ing her tour, the 1974 Carnation Revolution Rabat; Ouagadougou, where he was Koropeckyj, died on March 1 from injuries occurred. Later, in the early 1980s during deputy chief of mission; Caracas, where he sustained in a vehicle accident in eastern the height of the Cold War, she served in was also the school board president of an France. Moscow as a general services officer. American school; and Madrid. In Cara- Ms. Donovan was born in Baltimore, Her final overseas post was as ambas- cas and Madrid, he served as economic Md., on July 26, 1965, the youngest daugh- sador to the international organizations in counselor. ter of Murtha V. Donovan Jr. and Olga V. Vienna in the early 1990s. In Washington, D.C., Mr. Bullen served Donovan. She was the youngest sister of Ambassador Becker’s domestic as director of Arab-language broadcasts Leah Rose Donovan and Murtha “Trip” V. assignments included the State Depart- at the Voice of America; a member of Donovan III. ment Operations Center as senior watch two bilateral negotiations on natural gas In her childhood, she moved with her officer, the Bureau of International Nar- imports (Mexico and France); U.S. repre- family to the Heidelberg/Waldorf area cotics and Law Enforcement as principal sentative to the international meetings on of Germany, where her father was an deputy assistant secretary, and both the issues of energy-consuming countries; and engineer for IBM. From this experience, Foreign Service Institute and the National lead economics professor at the National Ms. Donovan developed a lifelong pas- War College where she taught relevant War College (Fort McNair), where he sion for international travel and cultural topics based on career experiences. also taught international relations and exploration. In 2001 Amb. Becker retired from U.S. political and governmental systems. On returning to the United States, Ms. the Foreign Service. In retirement, she Through the NWC, he especially enjoyed Donovan spent her youth in Maryland, worked with the Bureau of International accompanying a group of students to East- and was selected for the Johns Hopkins Narcotics and Law Enforcement. ern Europe each year. University’s Center for Talented Youth Pro- Ms. Becker loved to travel but was also After a 37-year diplomatic career, gram. In 1982 she graduated one year early the ultimate travel guide. People who vis- Mr. Bullen retired in 1995. He went on from Archbishop Keough High School. ited her in Washington or overseas would to teach economics at Georgetown Uni- She began her undergraduate studies always be in for an incredible tour, friends versity’s Continuing Education Depart- at the University of Dallas and, in 1986, and relatives recall. She would show them ment, run his real estate business and graduated Phi Beta Kappa from the Johns not only the typical sites but also places travel. Other interests included current Hopkins University with a bachelor’s virtually no one knew about. events, music, bridge and reading about degree in classics. Ms. Becker is survived by her brother, all aspects of the world. Ms. Donovan then attended Indiana Robert, and extended family. He was known for his calm, reasoned University where she focused on Hungar-

THE FOREIGN SERVICE JOURNAL | SEPTEMBER 2020 81 ian, Georgian and Russian languages activities. She visited nearly 60 countries ness was for chocolate cake and ice cream. and cultures in the Department of Uralic and always worked to convey her cultural Mr. Houston was predeceased by his and Altaic Studies. In 2005 her systematic experience to others, especially sharing wife of 68 years, Ellen Rae “Suzy” Houston. approach to such disciplines resulted in that with her husband and passing it on He is survived by his children, retired FSO a master’s degree in library and informa- to their sons. Her priorities were those of Robert Bruce Houston III of Centreville, tion science from the University of Mary- a loving mother and wife. Va., Pamela Turner Houston of Arlington, land. During that time, she worked as a Ms. Donovan is survived by her Va., and Martha Carroll of Salt Lake City, librarian at the Johns Hopkins University husband, Andriy Koropeckyj; children Utah; five grandchildren; and one great- Applied Physics Laboratory. Damian, Darius and Victor; sister Leah; grandchild. On Jan. 21, 1989, she married Andriy and brother Trip. Koropeckyj of Baltimore. In 1991 he joined n John Anthony Matel, 65, a retired the Diplomatic Security Service with the n Robert Bruce “Bob” Houston Jr., Foreign Service officer, died unexpectedly State Department. The couple served in 96, a retired Foreign Service officer, died at on June 22. Kyiv, Ankara, Vladivostok, Tashkent, Cairo, the Westminster at Lake Ridge retirement Mr. Matel was born in Milwaukee, Wis., Moscow and Paris. Their three sons were community in Lake Ridge, Va., on May 4. in 1955. He attended the Universities of born overseas: Damian (1994), Darius Mr. Houston was born on July 29, 1923, Wisconsin and Minnesota and earned a (2000) and Victor (2005). to Robert Bruce Houston Sr. and Kate master’s degree in history and an MBA. Abroad, Ms. Donovan first worked as a Nelson in Kansas City, Mo. In high school, In 1984 he joined the U.S. Information consular associate. With her skills in library he won a scholarship to Harvard Univer- Agency as a public diplomacy officer, and science and information architecture, she sity, where he went on to earn a bachelor’s served in Brazil, Norway, Poland, Iraq and worked remotely on records management degree in physics, summa cum laude, in Washington, D.C. projects starting in 2005, including the May 1943 at the age of 19. His proudest work included helping World Trade Center Memorial. After graduation, during World War Iraqis rebuild their communities after the When based in the United States, she II, he worked as a radio engineer on the ousting of al-Qaida in Anbar Province, worked on similar projects at varied orga- LORAN navigation system at the Naval and sending more than 30,000 Brazil- nizations, including the National Archives, Research Laboratory in Anacostia, D.C. ian students to study STEM fields in top and returned to the Johns Hopkins Center In 1945 Mr. Houston joined the For- American universities. for Talented Youth to design and imple- eign Service. He served as deputy chief of Mr. Matel was also president of the ment a records and archiving system. mission in Bulgaria (his second posting Fulbright Commission in Brazil, senior With a passion for writing and liter- there) and in Finland, and was science international adviser at the Smithsonian ary skill, she published numerous works, counselor in the USSR. Institution, and a State Department fellow many of them influenced by her experi- Although his first post was the Gold at Tufts University’s Fletcher School of Law ence abroad. This included fiction and Coast (now Ghana), he specialized in and Diplomacy. nonfiction writing in the Baltimore Sun, European affairs, serving also in Germany, After 32 years of service, he retired in Happy, The Foreign Service Journal, the Austria, Scotland and Poland. 2016 and pursued his passion for forestry blog “Tales from a Small Planet” and the Mr. Houston spoke French, Russian, and conservation. In 2005 he had pur- anthology Freedom’s Just Another Word. Finnish, Bulgarian, Polish and German. chased his first forest land in Brunswick Ms. Donovan also wrote, edited and In 1962 he earned a master’s degree in County, Va. As a landowner, certified tree published newsletters for the embassy government and a certificate in Eastern farmer and naturalist, he actively man- communities in Kyiv and Cairo. In Mos- European studies from Indiana University. aged nearly 500 acres of Virginia forest for cow, she researched, compiled and pub- After 37 years in the Foreign Service, timber, wildlife and water quality. lished an official history of the diplomatic Mr. Houston retired in 1982. Mr. Matel served on the boards of the mission’s place in the bilateral relationship In retirement, he worked for several Virginia Tree Farm Foundation and the of the United States and Russia. years in declassification reviews. His hob- Forest History Society, and promoted She had enormous compassion and bies included improving his computer southern pine ecology and working land- participated in numerous charitable skills and genealogy, and his special fond- scapes. He led by example, and worked to

82 SEPTEMBER 2020 | THE FOREIGN SERVICE JOURNAL restore longleaf and shortleaf pine ecosys- she sought to make peace between the She is survived by her husband, Hen- tems on dedicated parcels of his land. warring Hutu and Tutsi factions. derson; two children, Lauren Patrick and He is survived by his wife of nearly 38 In Johannesburg, South Africa, she Ibrahima Patrick; her mother, Mildred years, Christine M. Johnson, of Vienna, was the first woman to serve as the U.S. Ford Carter; aunts Dorothy Sue Peterson Va.; his daughter, Mariza Matel (and her consul general. At the Pentagon, fol- (George) and Ruby Kitchen; uncles Ned husband, Brendan Williams) of Ellicott lowing the collapse of the Soviet Union Hunter, Forest Hunter and Moses Hunter City, Md.; his sons, Alex and Espen Matel, in 1991, her efforts played a key role in Jr.; cousins Christine Sampson, Barry of Vienna, Va.; and his sister, Christine shepherding former Warsaw Pact coun- Johnson, Johnny Frank Kitchen, Renard Matel Milewski (and her husband, Greg tries into the orbit of NATO and Western Kitchen, Travia Cooper and other relatives Milewski) of Oak Creek, Wis. democracy. and friends from across the globe. Then, as diplomat-in-residence at n Sue Ford Patrick, 73, a retired Morehouse and Spelman colleges in n George E. Scholz, 68, a retired Senior Foreign Service officer, died on Atlanta, she led the State Department’s Foreign Service officer, died peacefully on July 6 in Pompano Beach, Fla., after a brief efforts to recruit talented college graduates Sept. 16, 2019, at his home in Tucson, Ariz., struggle with pancreatic cancer. to join the Foreign Service while teaching a from gastric cancer. Born on Nov. 9, 1946, in Montgomery, course in U.S. diplomacy. Mr. Scholz was born in Chicago, the Ala., Ms. Patrick was the eldest of three After she retired, Ms. Patrick undertook first child and only son of Daniel and children born to Oscar and Mildred Ford. an assignment as adviser to help negotiate Alice. The family lived in the city before In Montgomery, she attended Chisholm a peace agreement between the govern- moving to Orland Park, Ill., where Mr. Elementary, St. John the Baptist Elemen- ment of Senegal and warring factions in its Scholz graduated from Carl Sandburg tary and St. Jude College Preparatory Casamance region. High School. School before transferring to Madonna She was recognized by the State He went on to receive a bachelor’s Academy, a private Marianist high school Department with several Superior Honor degree in political science from Law- in Hollywood, Fla. In 1963 she graduated Awards. She was a member of the Phi Beta rence University in Appleton, Wis., and from Madonna Academy as valedictorian. Delta honor society of international schol- then joined the Peace Corps as a volun- In 1967 Ms. Patrick graduated from the ars, a member of the International Honor teer teaching English in Morocco from College of Notre Dame of Maryland with a Society in history, and recognized as a 1973 to 1976. bachelor’s degree in history. After pursuing distinguished alumna of her alma mater, Mr. Scholz earned a master’s degree graduate studies in U.S. diplomatic history College of Notre Dame of Maryland. in teaching English as a Second Lan- at the University of Virginia, she joined the In 2019 she was recognized by the guage from Southern Illinois University in Foreign Service in 1972. Chaminade-Madonna College Preparatory Carbondale, Ill., where he met his wife of During a 32-year diplomatic career, Ms. School with the Founder’s Award, given 42 years, Celeste. They taught abroad in Patrick was posted overseas to Thailand, to those who embody the school’s motto, Algeria, Portugal, China and Saudi Arabia Kenya, Côte d’Ivoire, Rwanda, Haiti and “Toward a Better World.” before Mr. Scholz joined the U.S. Informa- South Africa, in addition to assignments in In retirement, Ms. Patrick turned her tion Service as a regional English language Washington, D.C. She spoke Thai, Swahili, focus to her local community of Pom- officer (RELO) in 1990. French and Afrikaans. pano Beach. She founded the Palm Aire Mr. Scholz served as a RELO in Indo- In addition to her earlier graduate stud- Student Enrichment Group, a group of 40 nesia (1992-1996, 2008-2011), Malaysia ies at the University of Virginia, she later volunteers who tutor children weekly to (1996-2000), South Africa (2000-2004), received a master’s degree in African stud- help them reach grade-level proficiency. Egypt (2004-2008) and South Korea (2011- ies from Boston University and a master’s A member of the city commission’s 2012) before retiring. degree in national security studies from Educational Advisory Committee, she Mr. Scholz’s ability to build bridges was the National War College. provided counsel on public education demonstrated in two projects: the creation In the years preceding the Rwandan matters and monitored the actions of the of materials for the Officer Training Pro- genocide, Ms. Patrick served as deputy Broward County School Board on behalf gram for the Indonesian National Security chief of mission in Kigali, Rwanda, where of city residents. Police Training Center, and the establish-

THE FOREIGN SERVICE JOURNAL | SEPTEMBER 2020 83 ment of the Al-Azhar English Language of Latter-day Saints as a special represen- of Francis Gary Powers, the pilot of a Resource Center in Cairo. tative for international issues. Between downed U-2 spy plane, and the experi- In retirement, Mr. Scholz continued 1993 and 1996, as mission president in ence kindled his interest in further study to support RELOs in the field and took on the Greece Athens Mission, he helped of the Soviet Union. short-term projects in Panama, Israel and congregations and church members in Graduating from Brown in 1961, Mr. Eritrea. He also traveled for leisure, which Greece, Cyprus, Turkey, Jordan, Egypt Wenick joined the Foreign Service the included visiting Mongolia, a lifelong goal and Albania. following year. He served overseas in of his. He read novels, histories, the daily Kabul, Prague (two tours), Moscow and He is survived by his wife, Celeste; his newspaper and magazines. Wherever Rome. daughters, Kristina (and her husband, J.R. he lived, he knew where the library was. Assigned to Washington from 1978 Dodge) and Liz (and her husband, Mike He was also a tenor in choirs, and for his to 1980, he met Alice Tetelman in 1979, Mommsen); sisters, Georgianne and April 80th birthday, he sang with the famed when she was working as chief of staff (and her partner, Christine DeCosmo); Mormon Tabernacle Choir. for a New York congressman; they mar- and in-laws, nieces and nephews, cousins His wife, Jean Marie, preceded him in ried a year later. and friends worldwide. death on Aug. 14, 2019. Mr. Wenick’s diplomatic career Mr. Tueller is survived by his sister, included a teaching stint at the National n Blaine Carlson Tueller, 90, a retired Diane Tueller Bickmore; his brothers, War College and service as deputy chief Foreign Service officer, died on June 7 in Bennion Lamont Tueller and Rodney of mission in Prague, director of the Lehi, Utah. Edwin Tueller; his children, Jan Tueller Office of Northern European Affairs, Mr. Tueller was born on June 1, 1930, Lowman, Anna Tueller Stone, Matthew director of the Office of Eastern Euro- in Logan, Utah, the first child of Elva Heywood Tueller, Marie Tueller Emmett, pean and Yugoslav Affairs and deputy Geneva Carlson and Lamont Edwin Diane Tueller Pritchett, Martha Tueller assistant secretary of the Bureau of Tueller. The family moved to Cedar City, Barrett, Elisabeth Tueller Dearden, James Intelligence and Research for Coordina- Utah, in 1932. Other than his junior year Blaine Tueller, Rachel Tueller and Jeanne tion. He retired from the State Depart- of education at Logan High School, he Tueller Krumperman; 30 grandchildren; ment in 1989. attended public schools in Cedar City. He and 20 great-grandchildren. From 1989 to 1992, Mr. Wenick served met his future wife, Jean Marie Heywood, In lieu of flowers, donations may be as executive director of the National Con- in the ninth grade. made to the Blaine Carlson and Jean ference on Soviet Jewry before joining After serving as a missionary in Marie Heywood Tueller Scholarship at HIAS, an international Jewish nonprofit the Netherlands from 1950 to 1953, he Utah Valley University. agency that assists refugees. He was enlisted for two years in the U.S. Army executive director there until 1998. and was assigned to Fort Meade, Md. n Martin Wenick, 80, a retired For- In his later years, Mr. Wenick and his After discharge, he earned his bachelor’s eign Service officer, died on May 7 wife lived in the Washington, D.C., area degree in history and political science, at Sibley Memorial Hospital in Wash- and rented out vacation homes in Italy, with summa cum laude honors, at Utah ington, D.C., due to complications from a home-based business driven by their State University. COVID-19. passion for travel. In 1957 Mr. Tueller joined the U.S. For- Born in 1939 in Jersey City, N.J., Mr. Colleagues and friends recall Mr. eign Service. His first posting was Ireland, Wenick grew up in Caldwell, N.J., and Wenick’s work on behalf of Jewish followed by an assignment in Austria. graduated from Grover Cleveland High refuseniks in the Soviet Union, who were He subsequently served in Morocco, School in 1957. He then attended Brown barred from emigrating, and his work Venezuela, Panama, the Philippines and University, majoring in history. with dissidents in Prague. Many remem- Spain. He retired in 1986 as a member In the summer of 1960, Mr. Wenick ber his dry wit and warmth, his genuine- of the Senior Foreign Service with more received a partial Carnegie Mellon grant ness and kind spirit, and his care and than 30 years of government service. for a summer Russian language study concern for others. In retirement, Mr. Tueller worked for program that included four weeks in Mr. Wenick is survived by his wife of many years for the Church of Jesus Christ Moscow. He was there during the trial 40 years, Alice. n

84 SEPTEMBER 2020 | THE FOREIGN SERVICE JOURNAL BOOKS

Witness to the Descent all the key ment in Saudi Arabia and fueled the rise positions in of al-Qaida. From Sadat to Saddam: the bureau. “Baker thought that regional bureaus The Decline of American Diplomacy Assistant showed too much initiative,” he writes, in the Middle East Secretary “and was particularly concerned about David J. Dunford, Potomac Books, 2019, Richard NEA’s reputation as having too many $29.95/hardcover, $29.95/e-book, Murphy had Arabists and being insufficiently sup- 248 pages. been chief portive of Israel.” Baker replaced the entire of mission NEA front office, and “in my opinion, the Reviewed by Harry Kopp in Syria and bureau never really recovered.” Saudi Arabia. His principal deputy, Arnie Washington hands say that where you There is no shortage of material on the Raphel, had served in Tehran and Islam- stand is where you sit. During Baker’s decline of American diplomacy—Bill abad. Dunford’s immediate boss, Deputy term as Secretary, Dunford sat in the Burns’ memoir The Back Channel and Assistant Secretary Bob Pelletreau, had U.S. embassy in Riyadh, as deputy to the Ronan Farrow’s War on Peace come to been chief of mission in Bahrain and whip-smart and exuberantly opinionated mind—but David Dunford’s bottom-up deputy chief of mission in Damascus. Ambassador Charles (Chas) Freeman Jr. perspective is unique. “I want to give Diplomats, for all their skill and sub- They believed, in Dunford’s telling, the reader a sense of what the decline in tlety, are often at the mercy of events, and that unless Israel was directly involved, diplomatic performance looked like to even this all-star team struggled to shape Washington was indifferent to events in a practitioner,” he writes in the intro- U.S.-Egypt relations. The good news was the Middle East. Even as Iraq massed duction to From Sadat to Saddam. His that on their watch nothing bad hap- troops along the Kuwait border in July memoir covers 25 years of service in the pened: Egyptian politics stabilized under 1990, U.S. policy remained on autopilot. Middle East, during which the United President Hosni Mubarak, and the peace The embassy in Riyadh, like Ambassador States spent heavily in blood and trea- treaty with Israel, signed by Mubarak’s April Glaspie’s embassy in Baghdad, was sure, only to end up strategically weaker, predecessor, the assassinated president without instructions. with fewer allies and less influence. Anwar Sadat, remained in place. “There During operations Desert Shield and Dunford’s career was one to which wasn’t much else the Reagan administra- Desert Storm (August 1990 to February any Foreign Service officer might aspire. tion could brag about,” Dunford writes. 1991), the U.S.-led military campaign He started at the bottom and rose in Despite enormous financial leverage, the that expelled Iraqi forces from Kuwait, 14 years to the senior ranks, where this United States failed to induce Mubarak to Dunford’s main concern was protec- memoir begins. He had challenging adopt the economic reforms the country tion of American civilians in the region. assignments in fascinating places with desperately needed. He sought guidance from Washington exceptional colleagues, and he retired as These years were the high point. The but received none. “The lack of use- a chief of mission. Not quite a superstar long decline in Dunford’s account begins ful guidance reflected disagreement and never a dissenter, he persevered and with a surprising protagonist: James A. in Washington about the nature of the performed with excellence, but also with Baker, Secretary of State from 1989 to threat and indifference to the issue by rising levels of frustration and dismay. 1992, in the administration of President Baker’s inner circle, along with a refusal Every story of decline must look George H.W. Bush. Dunford faults Baker to delegate the response to a now tooth- back to a better time, before the rot set for operating with a small, closed circle less NEA Bureau.” The embassy, with in. In Dunford’s telling, the “golden age of aides, largely cutting out or ignoring support from U.S. Central Command of professionalism in the State Depart- the State Department’s bureaus and (CENTCOM), managed on its own. ment” was 1984 to 1986, when he was embassies; for failing to provide guidance Ambassador Freeman urged Wash- director of the Office of Egyptian Affairs for the protection of American civilians ington to clarify American war aims: in the Bureau of Near Eastern Affairs. At during the 1990-1991 war with Iraq; and What outcome were we looking for? the time, career Foreign Service officers for pursuing, against embassy advice, His own ideas were not welcomed. with deep experience in the region held financial demands that provoked resent- Because we were never clear about

THE FOREIGN SERVICE JOURNAL | SEPTEMBER 2020 85 what we wanted, “no political solution for a Middle East–North Africa regional Around the Continent emerged from the end of the war … and, development bank, and again in 2003 in 80 Years consequently, the war continued and to take charge of restructuring the Iraqi arguably continues to this day.” foreign ministry after the fall of Saddam US Policy Toward Africa: Eight Decades After the war, Dunford on instruction Hussein. of Realpolitik (An ADST-DACOR presented the Saudi government with In Iraq, Dunford had to deal with Diplomats and Diplomacy Book) an invoice for $16.3 billion, payable to State-Defense rivalries and chaotic, Herman J. Cohen, Lynne Rienner the United States for services rendered. politicized decision-making, amid wide- Publishers, 2020, $95/hardcover, $35/ (Kuwait was billed a similar amount.) spread, uncontained looting and rapidly paperback, $35/e-book, 280 pages. When the embassy argued against the rising levels of violence. He managed policy, Baker “accused Chas of ‘clientitis’ to organize a “steering committee” of Reviewed by Steven Alan Honley [a focus more on good relations than Iraqis prepared to work with the United U.S. interests].” A resentful Kingdom States to build a post-Saddam foreign The author of US Policy Toward Africa: made the payment, but “the seeds for ministry; by 2004, insurgents had mur- Eight Decades of Realpolitik, Ambassador the rise of bin Laden and al-Qaeda dered three of its six members. (Dunford Herman J. Cohen (universally known as were planted and we eventually found and one of the survivors, Hussein Ghas- Hank), needs no introduction for most ourselves in wars that cost us trillions of san Muhsin, are co-authors of Talking to Foreign Service Journal readers. Suffice dollars.” Strangers: The Struggle to Rebuild Iraq’s to say, as someone who spent virtually These are startling accusations. Bill Foreign Ministry.) When Dunford fin- his entire 38-year Foreign Service career Burns, who served in Baker’s policy ished his assignment and came home, either serving in Africa or helping to planning office, had quite a different no one from State or Defense bothered direct our relations with the continent, view of Baker’s stewardship. Burns in his to debrief him. Amb. Cohen is an Africa hand par excel- memoir acknowledged that Baker’s reli- From Sadat to Saddam is marred lence. ance on a small staff caused “predictable by an excess of detail. The strictly Neither an academic study nor a grumbling,” but over time, “career pro- chronological narrative moves, from one memoir, the book reflects both the fessionals were drawn in and exhilarated paragraph to the next, between events author’s command of the documentary by Baker’s clout and success, which put that shape history, events that shape a record and decades of on-the-ground State at the center of American diplo- career and events that shape a weekend. experience. Setting the tone are a brief macy.” The war aims of Desert Storm, A tighter focus would have helped. preface, in which Cohen explains why according to Burns, were the removal The final chapter, however, is a he decided to specialize in U.S.-Africa of Iraq from Kuwait and the restoration strong essay on the importance of diplo- relations almost as soon as he joined of Kuwait’s legitimate government, in macy. Here, Dunford and Bill Burns the Foreign Service in 1955, and the first accordance with United Nations resolu- agree: Burns calls diplomacy “America’s chapter, “The United States and Africa: A tions. The seeds for the rise of al-Qaida tool of first resort”; Dunford calls it Historical Perspective.” were planted not in 1991 but in 1979, the “the first tool out of the toolbox.” Both The author then employs a chrono- year of the Iranian revolution, the Soviet of these descriptions are now merely logical approach, but with a twist: Each invasion of Afghanistan and the seizure aspirational. Until the Department of chapter, starting in 1941 as Franklin of the Grand Mosque in Mecca by ultra- State, its Foreign Service and its Civil Delano Roosevelt begins his third term, conservative Islamists. Service, recover from the ruinations assesses a U.S. president’s record in deal- Dunford went on from Riyadh to lately visited upon them, the aspiration ing with Africa. This approach works well, serve, relatively uneventfully, as ambas- will remain unfulfilled. with a couple of caveats. Developments sador to Oman, his last post. He retired in certain countries are harder to follow in 1995, but the State Department kept Former Foreign Service Officer Harry Kopp because they are spread out over several bringing him back. He returned to duty is a frequent contributor to The Foreign chapters. And many countries and issues in 1997 to lead a multilateral team in Service Journal and a member of its don’t come up at all, due to the focus on an unsuccessful effort to build support editorial board. major events and leaders.

86 SEPTEMBER 2020 | THE FOREIGN SERVICE JOURNAL Cohen does a master- unique for beginning ful job of briskly summing and ending with a scath- up each administration’s ing verdict on his perfor- record regarding Africa and mance. As it happens, the placing it in a larger context. first two of my three years In the 1940s and 1950s, as Cameroon desk officer before most African nations (1991-1994) overlapped attained their indepen- with the final two years of dence, FDR, Harry Truman Cohen’s tenure as assistant and Dwight Eisenhower secretary for African affairs mainly dealt with the (1989-1993), so I hope I European powers that had may be forgiven for chal- retained their colonies following World lenging his assessment. War II. He is, of course, correct that the During the 1960s, John F. Kennedy Clinton administration botched its and Lyndon B. Johnson cultivated response to deteriorating conditions in relationships with the emerging nations Somalia and Rwanda. But on the other themselves, against the backdrop of the side of the ledger, he omits all mention of Cold War. One useful service Cohen a central plank of U.S. policy during the renders here is to push back against the 1990s: the promotion of democratization assumption that Washington always in the developing world. Astonishingly, backed African leaders simply for being the book’s index contains not a single anticommunist, regardless of their reference to democracy, democratiza- human rights and governance records. tion, elections or human rights. It does That global contest would, however, not seem fair to withhold credit where it overshadow the decisions Richard Nixon, is due. Gerald Ford, Jimmy Carter and Ronald Overall, however, US Policy Toward Reagan made regarding relations with Africa is a valuable addition to the litera- the continent in the 1970s and 1980s. ture, with much to offer both seasoned Then George H.W. Bush and Bill Clinton Africa hands and general readers. n managed the transition to more country- specific, fraternal dealings with African Steven Alan Honley, a State Department capitals, while George W. Bush and Foreign Service officer from 1985 to 1997, Barack Obama adapted that approach to worked in the Bureau of Central African the post-9/11 era. Affairs from 1991 to 1994. He went on to Cohen also examines Donald Trump’s serve as editor-in-chief of The Foreign record vis-à-vis Africa, but because he Service Journal from 2001 to 2014, and finished writing the book in early 2019, is the author of Future Forward: FSI at 70 that chapter is too thin to draw any —A History of the Foreign Service Institute meaningful conclusions. (Still, I was (Arlington Hall Press, 2017). surprised to see no allusion to Trump’s racially charged utterances about Africa.) The book then concludes with a set of “Reflections on Successes and Failures.” The only chapter I found disappoint- ing is the one on Bill Clinton, which is

THE FOREIGN SERVICE JOURNAL | SEPTEMBER 2020 87 REAL ESTATE & PROPERTY MANAGEMENT

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THE FOREIGN SERVICE JOURNAL | SEPTEMBER 2020 91 REFLECTIONS

History of a Handshake: Ground-Level Public Diplomacy in Belarus

BY GEORGE KROL

ome readers may recognize the Many times Silvashko said if only the photo of an American and a comradeship … had endured, what a different Soviet soldier embracing after and better world it might have been. Smeeting in April 1945 at the Elbe River in Germany. They represented the historic coming together of American and the Belarusian assistant and me—hours also reached the bridge on the Elbe’s Soviet armies that culminated in Ger- down tiny dirt roads to reach the little eastern side. He saw a group of soldiers many’s surrender weeks later. village of Morach and Silvashko’s mod- in strange uniforms on the other bank In 2005, as U.S. ambassador to the est apartment. waving a white sheet painted with red former Soviet republic of Belarus, I was Mr. Silvashko warmly welcomed us. stripes and a blue smudge. looking for ways to commemorate the He lived alone. His wife had died a few Never having seen an American flag 60th anniversary of the end of World years before, and he had long retired as or American soldiers, he thought the War II, a war that left its tragic mark on director of the village school where he group could be Germans attempting to practically every family in Belarus. I also also taught history. Over tea, Silvashko entice his unit across the half-destroyed wanted to improve America’s image vividly recalled his meeting with the bridge into an ambush. Silvashko among Belarusians in the midst of a hos- American soldier in the photo, Lieuten- ordered his men to lob a couple shells at tile state media environment. Perusing ant Bill Robertson. the group, scattering them. a local newspaper, I found tucked away After a few minutes, one of the group, in the back pages a small item about s Robertson, returned to the bridge the famous photograph, noting that the As the U.S. Army advanced through unarmed and, with hand signals, urged Soviet soldier, Alexander Silvashko, lived Germany from the West, Silvashko Silvashko to come across and meet in a remote village in Belarus. I immedi- recounted, Robertson’s commander him halfway. Silvashko did so, climb- ately determined to meet him. had tasked his unit to find the Soviet ing across the fractured beams until he armies then moving in from the East. reached Robertson. Although neither s Hoping to be the first American to meet could understand the other’s language, With the quiet help of the Belarusian the Soviets, Robertson defied orders and through gestures each finally made out veterans’ association, my intrepid Belar- drove beyond his authorized perimeter who the other was. The Allies had finally usian assistant was able to contact Mr. to reach a bridge spanning the Elbe united! Silvashko and set up a visit. My driver River in the town of Torgau. Silvashko, Robertson then invited Silvashko to then took us—the U.S. defense attaché, a lieutenant in the Soviet army, had come with him to American headquar- ters. When Silvashko, along with his two George Krol retired to Middletown, Rhode Island, in 2018 after 36 years superior officers, arrived, the Ameri- in the Foreign Service, during which he served in Poland, India, Russia cans feted them with food, drink and and Ukraine, and as ambassador to Belarus, Uzbekistan and Kazakhstan. exchanges of insignia and wrist watches. Domestically, he held positions of, inter alia, deputy assistant secretary of It was then that a photographer snapped State for Central Asia and director of the Office of Russian Affairs. Ambassador the famous photo. Krol teaches an elective course on the former Soviet world as an adjunct professor at the The next morning, the Soviets U.S. Naval War College in Newport, Rhode Island, lectures locally on foreign policy topics returned to their lines where the two and is an associate of Harvard University’s Davis Center for Russian and Eurasian Studies. senior officers were promptly arrested,

92 SEPTEMBER 2020 | THE FOREIGN SERVICE JOURNAL sent home and stripped of their party membership. (They were no doubt lucky that was the extent of their punishment.) Silvashko said he was too young and stupid to be punished; and besides, his unit was moving on to engage the Germans in more bloody fighting in Czechoslovakia. Robertson, too, was arrested for disobeying orders, but he was quickly released under General Dwight Eisenhower’s personal order. After the war, Silvashko returned to his native Ukraine to find his family and his village wiped out. Army comrades from Belarus encouraged him to settle there in the small village of Morach where he would spend the rest of his life.

Robertson went on to study medicine ADMINISTRATION RECORDS AND ARCHIVES NATIONAL U.S. and became a noted neurosurgeon in Above: Lieutenant Bill Robertson (at left) and Lieutenant Alexander Los Angeles. Silvashko, Germany, 1945. Right: Silvashko and Robertson did not Robertson and Silvashko meet see each other again until 1975, when after 30 years in Moscow in 1975. détente between the United States and the Soviet Union brought them back best of terms, indicated tacit approval. together in Moscow to commemorate Watching the film brought tears to the UNIVERSITY HARVARD CENTER, DAVIS the 30th anniversary of their meeting on eyes of many viewers. It still brings tears the Elbe. Silvashko showed us a photo to mine. In subsequent ambassadorships, Although Bill Robertson died in album of a subsequent time when Rob- I gave copies of the film to my Belarusian, 1999, Alexander Silvashko never forgot ertson, and other Americans who were local and even Russian counterparts, his friend. And I will never forget Mr. at Torgau, visited Silvashko in Morach some of whom told me how they and Silvashko. He survived a brutal war and a together with their spouses. their staffs wept while viewing it. harsh postwar life. Many times he said that A few months after we made the film, if only the comradeship American and s we invited Silvashko to the Belarusian Soviet GIs enjoyed during those fleeting Shortly after our visit, the embassy capital of Minsk to retell his personal days in 1945 had endured, what a different public affairs section sent a team down tale to a group of visiting West Point and better world it might have been. to Morach to film an interview with cadets along with their Belarusian Alexander Silvashko died a few years Alexander Silvashko. It would become counterparts. He overwhelmed them. ago. May he rest in peace along with his the centerpiece of a film the section To top it off, the Belarusian Defense friend Bill Robertson. As we mark the produced titled “The History of a Hand- Ministry gave Silvashko, who up till 75th anniversary of the end of World shake.” We were able to unveil the film then had lived largely in obscurity, full War II, the story of Silvashko and Rob- to the Belarusian public in time for the military honors when he laid flowers at ertson’s historic meeting on the bridge Victory Day commemorations (the Rus- Minsk’s Victory Monument. The Defense at Torgau should inspire us. We should sian language version can still be viewed Ministry later told our defense attaché also draw inspiration from Embassy online). Public reaction was overwhelm- how much our embassy’s respect and Minsk’s public affairs effort to bridge ingly positive. Even the Belarusian gov- attention to this simple veteran had diplomatic divisions through shared ernment, with which we were not on the impressed them. memory. n

THE FOREIGN SERVICE JOURNAL | SEPTEMBER 2020 93 LOCAL LENS BY BRIAN AGGELER n ANNECY, FRANCE

he town of Annecy, France, is situated on crystal-clear Lake Annecy, about 35 kilometers Please submit your favorite, recent south of Geneva. The town is sometimes called the “Venice of the Alps” for the canals that photograph to be considered for Local Lens. Images must be high run through its old section. The area is naturally picturesque, and usually (when there’s resolution (at least 300 dpi at 8” not a global pandemic) loaded with tourists. Art and sculpture are everywhere, such as x 10”, or 1 MB or larger) and must T not be in print elsewhere. Include the six kaleidoscopic spheres created by artist Elsa Tomkowiak that bob on Lake Annecy. Inflatable a short description of the scene/ and 15 feet in diameter, the floating rainbow-colored installation presents a stunning view, drawing event, as well as your name, brief visitors’ eye to the panorama of the lake as they stroll along Albigny Promenade. n biodata and the type of camera used. Send to [email protected]. Brian Aggeler and his wife, Angela, are a tandem couple on their first assignments to separate posts, he as deputy chief of mission in Paris and she as deputy chief of mission in Islamabad. Brian took this picture with his iPhone in July, on one of their last trips before Angela left for Pakistan.

94 SEPTEMBER 2020 | THE FOREIGN SERVICE JOURNAL