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Are Diplomats Patriotic? by David D. Ne

Short-order intelligence by Frank McNeil

Plus: Farewell interview with George P. Shultz t?j2 mm

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Governing Board President: PERRY SHANKLE State Vice President: CHARLES SCHMITZ AID Vice President: Vacant The McNeil—Abrams Debate USIA Vice President: WILLIAM JACOBSEN Secretary: TED WILKINSON Treasurer: SAMUEL MOK his issue of the FOREIGN SERVICE JOURNAL contains two conten¬ State Representatives: MICHAEL COTTER BILL DUFFY tious contributions by former Ambassador to Costa Rica Frank JONATHAN FARRAR ROSS QUAN McNeil and former Assistant Secretary for Inter-American Affairs AID Representative: CHARLES UPHAUS Elliott Abrams. Both deal with the circumstances surrounding Ambassa¬ USIA Representative: VANCE PACE USDA Representative: ALVIN K. CHOCK dor McNeil’s service in Costa Rica and the Intelligence and Research Retired Representatives: I.. BRUCE LAINGEN DAVID SCHNEIDER Bureau as well as the service in Central America of other officers who JOHN THOMAS were caught up in the maelstrom of events in that conflictive region of Staff the world. The Editorial Board of the JOURNAL decided that excerpts Director for Administration: SABINE SISK from the McNeil book would be of broad interest to the Foreign Service, General Counsel: SUSAN Z. HOLIK Controller: ELLEN TENN particularly those serving abroad without access to the book itself, as Membership Coordinator: MARI RADFORD Membership Assistant: JENNIFER EVANS would comments on those excerpts from Assistant Secretary Abrams. We Director for reached this judgment after considerable discussion of the issues raised, Member Services: CHRIS BAZAR Member Services particularly those relating to the political loyalties and integrity of Foreign Representatives: BRUCE A. HENOCH JANET SCHOUMACHER Sendee officers working on Central American affairs. Many members of Ixqal Assistant: CHRISTOPHER PERINE the Foreign Service have expressed concern about what they perceive to Law Clerks: ELLEN SILVER ADAM G. SPIEGEL be the politicization of the Sendee. Similarly, we believe the broad ques¬ Administrative Assistant: KAREN J. DENT Executive Assistant: ASHLEY NEY tion of what is expected of a diplomat in the context of policies as contro¬ Professional Issues versial and emotional as those in Central America needs to be addressed RICHARD S. THOMPSON in frank and open discussion. These articles are contributions to the dia¬ Congressional Liaison ROBERT M. BEERS, RICK WEISS logue. In deciding to publish both contributions, the Editorial Board is Scholarship Programs not endorsing the views of either author. It does, however, hope that CRISTIN K. SPRINGET readers will share their comments and perspectives about the substance The American Foreign Service Association, founded of this debate. in 1924, is the professional association of the Foreign Service and the official representative of all Foreign Service employees in the Department of State and the The Editorial Board Agency’ for International Development under the terms of the Foreign Service Act of 1980. Active or Retired membership in AFSA is open to all current or retired employees of the LIS. foreign affairs agencies. Asso¬ ciate membership is open to persons having an interest in or close association with the Foreign Service. Annual dues: Active Members—S65-143; Retired Members— $30-45; Associate Members—$35. All AFSA members are members of the Foreign Service Club. Please note: AFSA dues and Legislative Action Fund donations may be deductible as an ordinary and necessary business expense for federal income tax purposes. Scholarship and AFSA Fund donations may be deductible as chari¬ table contributions. • AMERICAN FOREIGN SERVICE ASSOCIATION 2101 E Street NW, Washington, D.C. 20037. Mem¬ bership inquiries, controller, professional issues, schol¬ arship programs, insurance programs, JOURNAL offices: (202)338-4045. Governing Board, standing commit¬ tees, general counsel, labor-management relations, mem¬ ber services, grievances: (202)647-8160. • Foreign Service Club (202)338-5730.

2 Editorial Board Chairman ANTHONY C.E. QUAINTON Vice Chairman FOREIGNSEKVICE PHIL1P-MICHAEL GARY JIM ANDERSON LAWRENCE FUCHSBERG JOHN E. LANGE PATRICIA MALLON JOHN D. PIELEMEIER BERNARD REICH LYNN SEVER PERRY SHANKLE DAVID E. ZWEIFEL “The Independent Voice of the Foreign Service”

Editor ANN LUPPI Managing Editor NANCY JOHNSON Assistant Editori Advertising Manager David D. Newsom PATTY J. MEIER

The FOREIGN SERVICE JOURNAL is pub¬ lished monthly except August by the Ameri¬ Short-order Intelligence 36 can Foreign Serv ice Association, a private non-profit organization. Material appear¬ ing herein represents the opinions of the Frank McNeil writers and does not necessarily represent the views of AFSA or the JOURNAL. Writer queries invited. JOURNAL subscriptions: AFSA Mem¬ ber -included in annual dues; Others, S20. Response to Frank McNeil 43 Overseas subscriptions (except (Canada), add $3 per year. Airmail not available. Elliott Abrams Second-class postage paid at Washington, D.C., and at additional post office. Postmas¬ ter: Send address changes to AFSA, 2101 E Street NW, Washington, D C. 20037. Microfilm copies: University Microfilm Library' Services, Ann Arbor Michigan Journal: Virginia James Byerly 44 48106 (October 1967 to present). Indexed bv Public Affairs Information Service (PAIS). Robert L. Barry Advertising inquiries invited. The ap¬ pearance of advertisements herein does not imply AFSA endorsement of the services or goods offered.

4‘ American Foreign Service Departments Association, 1989 ISSN 0015-7279 March 1989, Vol. 66, no. 3 Letters 6 Books 14 Cover art by Clippings 20 Ruth Sofaer Ketler 10-25-50 25 In Memory 47 AFSA Bylaws and Amendments 52 AFSA News 55

MARCH 1989 3

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Significant others for security reasons. This happened to there is no ‘unmarried dilemma.’ me and my family, although I stayed Foreign Service marriages, and the The brief article in the January JOUR¬ at post, some years ago. If something associated overseas benefits and/or lack NAL regarding “significant others” was like that happened to such a couple, thereof, are related to a natural life proc¬ more than interesting. In my 20 plus one can imagine the brave Foreign Serv¬ ess, i.e., making decisions and accept¬ years in die Foreign Service I have never ice officer, smiling through his/her tears ing the consequences. Those who had personal experience with such a as the choppers carried away a lover choose to marry, and those who choose situation but the disadvantages de¬ who couldn’t decide about the horren¬ not to marry, should be willing to ac¬ scribed seem to me to be significant. dous state of being married. cept the results of their choice. There One asks oneself, “Why should the For¬ As you can infer from the above, I is a need for all of us to realize that eign Service be used as a proving think bringing a boy/girlfriend to a for¬ decisions carry consequences. ground for people who might not be eign post is not a good idea and should Specifically for Foreign Service per¬ ready to make that total commitment?” be discouraged by the department. sonnel, local attitudes constitute part Why don’t they get jobs with Club Med Eugene W. Moore of the culture shock we all must antici¬ and become GOs [activity organizers] McLean, VA pate as U.S. citizens living abroad. instead of FSOs? Those of us who choose to live together Such an arrangement, in addition to As a retired FSO, married to and ac¬ without marriage in a foreign environ¬ possibly insulting the host country (not companying my FSO spouse on her ment should be willing to accept the the real aim of the Foreign Sendee), assignments, I found the article, “Sig¬ results of that choice and should not and having no support from the em¬ nificant Others: the unmarried di¬ expect the U.S. government to some¬ bassy, is not to be treated lightly. One lemma” rather disgusting. I do not how compensate. other eventuality not mentioned in the know what the author intended to re¬ John C. Stephens article is the possibility of evacuation veal, correct, or otherwise address, but Toronto, Canada

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6 FOREIGN SERVICE JOURNAL Reading about Claire, Jackie and Mike, ried. Of course since the new morality first “unhitched tandem couple”? and “Nick and his partner braving it has done away widi sin, there natu¬ John St. Denis out at post,” makes me wonder what rally can be no such thing as “living Fairfax, VA the Foreign Service will be when these in sin.” That’s logical enough. stalwarts are the senior officers direct¬ But one wonders what kind of man It is clear from the “significant others” ing our foreign relations. Mike thinks would take a woman he professes to article that unmarried couples are seri¬ “there are a lot of people being forced love (we haven’t yet done away with ous and responsible people who have into marriage” so they can live together. love as a preamble to marriage, have thought through the pros and cons of I have always thought that was the way we?) into a situation where their life marriage. They know the differences the system was supposed to work! At style is certain to earn his beloved so¬ and have freely chosen to live together, the very least, one would have to ques¬ cial ostracism. Somehow none of them but unmarried. No problem. tion their maturity and judgment. impress me as very sympathetic char¬ Why then complain when the regu¬ One question that immediately leaps acters. Could it be that the department’s lations governing allowances and bene¬ to mind is if these people are so insen¬ Polyester Platoon of the seventies has fits also make a distinction between mar¬ sitive as to misread so completely the been replaced by the Wimp Brigade ried and unmarried? There is a dif¬ mores of Mexico and are surprised at of the eighties? ference; the difference is important to foreign reaction to diplomats doing The article describes how Claire the couples, and it’s also important to what was formerly described as “living solved the problem. She joined the For¬ the government in determining its own in sin,” one wonders what kind of re¬ eign Service herself. I have one last ques¬ obligations and the liability and cost porting they will do or how they will tion. If Claire and her partner with to taxpayers, and in balancing obliga¬ interpret the consular regulations for whom she went to Mexico now arrange tions widi competing interests. It’s all reporting an American birth abroad, for assignments at the same post, will part of what couples have to know and which require the parents to be mar¬ that make them the Foreign Service’s take into account in deciding whether

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MARCH 1989 7 Letters

or not to get married. I don’t think cluding comment, that “AID should an important point. An officer who it’s discriminatory or unfair. be free to help as needed,” is that di¬ makes it through today’s careful screen¬ Lawrence B. Lesser rectly or indirectly (resources are fun¬ ing for the Senior Service and then wins New York, NY gible), U.S. government support for an early promotion to the MC level is abortions abroad is in order. However someone whom the deprtment should Although statistics tell us that unmar¬ much it may be regretted in some quar¬ not want to discard after a short five ried liaisons are increasing in diis coun¬ ters, the fact is that the American peo¬ years. The current TIC penalizes such try, the fact remains that these rela¬ ple are deeply divided on the legal as¬ an officer for success and deprives the tionships represent a lack of total com¬ pects of abortion, with many—on both department of a good officer. mitment on the part of those involved. sides of the question—standing in But while Mr. Barmon’s and Mrs. The total commitment—marriage—is moral horror at the “harvesting” of Monroe’s suggestion solves the prob¬ two people sharing lives and all that some 1,500,000 fetuses each year in lem for that officer, it creates another which follows! our own country. In this sense the one for the Service as a whole. Do we Life in the Foreign Service is a Planned Parenthood Federation of Amer¬ really want to allow an OC who fails unique experience, not “just another ica’s poster (“Because they know she to win a promotion to MC within a job.” Professional competency is but can’t fight back”) takes on quite an¬ reasonable period of time the right to one requirement for a way of life which other meaning. At any rate, this is a remain in the Senior Service as an OC demands, above all, adaptability to cir¬ grave problem which few taxpayers for 12-15 years, blocking promotion cumstances often beyond one’s control. would wish to see exported, or com¬ opportunities for younger, better offi¬ If one is not committed to the Foreign pounded, abroad. cers? We had a multi-year TIC for sen¬ Service, then how can that person suc¬ But that AID has done precisely this ior oficers in die latter part of the 1970s, cessfully represent the interests of our in the past is certain. The 1979 annual and this was its result. country abroad? Foreign Service per¬ report of the Tunisian recipient of U.S. The senior threshold panels recom¬ sonnel and their families are represen¬ population control assistance claimed mend for promotion FS- Is whom they tatives of the United States and as such a certain number of “births prevented.” believe are capable of assuming the are expected to behave in a manner Only in a remote footnote did one learn most important positions in the For¬ which gives credit to the country. These that folly half of the total claimed was eign Service. Once brought into the partners want all the rights accorded achieved by means of abortion. This Senior Service, an OC has seven years Foreign Service spouses, but they are depressing fact was made yet more and two or more senior assignments not interested in the accompanying re¬ poignant by situating a “family plan¬ to prove that the panel was right. If sponsibilities! ning” clinic in the affluent Tunis sub¬ an OC cannot win promotion within Teresa Banyas urb of Carthage—in apt proximity to those seven years, then perhaps it is Keysville, VA the Sanctuary of Tanit where, over a time to go, and leave the way open period of 700 years, some 70,000 Phoe¬ for fresh blood to move up. Population funding nician infants were sacrificed to the I therefore believe that we should gods—theirs to Tanit and Baal Hamon, keep the seven-year TIC for OCs. But “The Funding Controversy” (JOUR¬ ours to Per Capita National Income. if an officer wins earlier promotion to NAL, January 1989) suggests that par¬ Regrettably, the humbling perspective MC, then he or she should be allowed tisan politics, the Helms Amendment of history is sometimes obscured for to “carry” the years remaining on their and current policy guidelines have se¬ those who view the whole of life dimly, OC TIC with them as a bonus. For riously hobbled U.S. international fam¬ through the end of a condom. example, an officer who is promoted ily planning. Yet AID officials who ad¬ John O. Grimes after four years as an OC would get minister those efforts are quoted as say¬ Arlington, VA an extra three years added on to the ing that 800 family planning insti¬ five-year TIC for MCs. In other words, tutions in 70 countries have forsworn Time-in-class issues a multi-year TIC for senior officers all abortion activity as a condition for would come into effect only after the the receipt of U.S. funds. Further, they As an OC, I read with interest Ward officer is promoted to MC. An out¬ reportedly pointed out that the Reagan Barmon’s letter and Evangeline standing officer therefore would not administration has spent more on vol¬ Monroe’s report in die December JOUR¬ face early retirement as the penalty of untary family planning than the NAL, both of which raised the possibil¬ his or her success. Even though I could Johnson through Carter administrations ity of establishing a combined time-in¬ be affected adversely by my own pro¬ combined. Hobbled? class (TIC) requirement of 12 to 15 posal, I believe that this suggestion In context the only interpretation years for senior officers. would solve the problem of the “water¬ which can be put on the article’s con¬ Joe Winder, in an earlier letter, raises walking” MC but not create another

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one for the Sendee as a whole. time of some 32 years, raising four sons Dear Mr. Secretary John R. Malott in far-flung corners of the world rang¬ Osaka-Kobe, Japan ing from Afghanistan to South Africa, In response to the offer to share “two “showing the flag,” and actively dem¬ minutes” with the new Secretary' of Are spouses “guests”? onstrating a commitment to family State, herewith are mine: unity. In order to fulfill this role she What’s to be done about the em¬ I received an invitation from the Of¬ has had to forfeit her own successful bassy structures in Moscow and Wash¬ fice of Career Transition to attend a career as an editor of educational text¬ ington? Tty this: Leave the bugs where reception given by Secretary of State books. Therefore, it is shocking to me they are. Make the buildings available and Mrs. Shultz on January 12, 1989, and to her that die Foreign Sendee does to some private-enterprise entrepreneur in the Benjamin Franklin Room. I did not respect or appreciate her enough who doesn’t care whether someone lis¬ not attend, and I would like to share to include her in the invitation to a tens to his phone conversations. The my reason for declining the invitation reception honoring the completion of buildings might be sold, leased, rented. to this reception. my “career of dedicated service to the Seems we and the Russians could un¬ I feel that the omission of my wife’s United States.” What about her career? load our albatrosses without too much name from the invitation is symbolic I think it would have been insulting of a loss, and have enough left on hand of the department’s almost total lack for me to bring as my “guest” some¬ to start over. The term “private enter¬ of commitment to or appreciation for one who has been my constant com¬ prise entrepreneur” may call for differ¬ the service rendered the United States, panion and helpmate for the entirety ent definitions between here and the department, and the Foreign Serv¬ of my Foreign Service career. Moscow. Your move, Mr. Secretary. ice by Foreign Sendee spouses. My wife William E. Ran John M. Anspacher has shared with me a professional life¬ Falls Church, VA Naples, FL r/ Call , for any l\ book • Immediate shipment worldwide • Credit cards or check • Ask about our overnight gift delivery nationwide • Free monthly new title forecast • Mail orders welcome • Open 24 hours every day • Write or phone for free holiday gift catalog

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10 FOREIGN SERVICE JOURNAL VOLUME 9, NUMBER 1 SAIS WINTER-SPRING 1989 REVEW A JOURNAL OF INTERNATIONAL AFFAIRS NECESSITY AND CHOICE FOR A NEW ADMINISTRATION BUILDING A NEW CONSENSUS David Abshire, Michael Blumenthal, Harold Brown, Andrew Goodpaster, Alexander Haig, David Jones, Melvin Laird, Edmund Muskie, Rudolph Penner, Peter Peterson, Alice Rivlin, Bernard Rogers, Felix Rohatyn, Dean Rusk, James Schlesinger, Brent Scowcroft, William Simon, Harry Train, Cyrus Vance, and Paul Volcker FAREWELL TO REAGAN: NEW BEGINNINGS ARE NOT NEEDED Simon Serfaty 1989: A TRULY PRESIDENTIAL AGENDA George Liska SPEAKING WITH A SINGLE VOICE: BIPARTISANSHIP IN FOREIGN POLICY David L. Boren SLAYING THE DRUG HYDRA Scott B. MacDonald MORE_ THAN_A JOURNALz A_ RESOURCE/ SUBSCRIPTION RATES— Institutions/Libraries Students □ one year . .$28 □ one year .... $12 □ two years . .$44 □ two years .... $21 □ three years . .$60 □ three years. . . $28

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Bylaws Question AFSA’s governing board, whose du¬ tent of our professional magazine. Cer¬ ties are often political or have political tainly, this can be the general perception In this 65th year of the JOURNAL’S publi¬ connotations. The members of the edi¬ of the department, the executive branch cation, I draw attention to a subtle and torial board are approved by the gov¬ generally, Congress, and the public. All disturbing change that threatens to un¬ erning board, but barring egregious be¬ will wonder whether thoughts, ideas, dermine its mission to enhance the pro¬ havior have the same freedom to act and positions with which the govern¬ fessionalism of our diplomatic and con¬ in accordance with their best judgment ing board disagrees can be ventilated sular service. as the governing board. in the JOURNAL and, contrariwise, Like the magazines of other profes¬ Recendy, two seemingly related devel¬ whether a given article reflects the sions, such as law and medicine, the opments have taken place that should consensus of the governing board. We JOURNAL must serve as a forum of de¬ concern those of us who believe that are left with the uneasy conclusion that bate on issues that are as many-sided a vigorous and autonomous profes¬ all material, including letters to the edi¬ as they are varied. In most cases, there sional magazine is vital to a vigorous tor, must pass some kind of a govern¬ simply are no “right” answers on diffi¬ and healthy profession. For the first ing board litmus test of acceptability. cult issues, which is one of the things time in its long history, the editorial Possibly, these fears are groundless. distinguishing a profession from a craft board includes the president of AFSA. But as we know full well, appearances or trade. One cannot imagine much Second, the statement that “the edi¬ and perceptions count for a lot. As long disagreement over the right way to weld torial board is responsible for general as it appears that the governing board a seam, nail a board, or lay brick. content” of the magazine (excepting is in charge of the magazine’s content, In recognition of this, the JOURNAL the AFSA News insert) has disappeared its influence as an autonomous, pro¬ was established in 1924 with a sepa¬ from the masthead of the magazine. fessional magazine will be in serious rate and autonomous editorial board Taken together, these developments question. to serve as a mechanism for peer re¬ lead one to conclude that the govern¬ The editorial board should be reaf¬ view of submitted material and, per¬ ing board has taken over the JOURNAL firmed on the masthead as being in haps more important, as a cushion from and is in charge of the editorial con¬ charge of the magazine’s content and

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War and Peace in the 1980s, of which McNeil was a vic¬ skills and knowledge” rather than the Central America tim. McNeil was one career officer who belief that “foreigners could be expected By Frank McNeil. Charles Scribner’s fought back when slandered by the kind to reconstruct their reality to comply Sons, 1988. of political appointee who regards as with our rhetoric.” near-treason any judgment, however His treatment of Central America Do we need yet another book about competent, that questions the revealed as the “fantasy isthmus” is first rate. Central America? That would be the truth of an ideological bias. After a se¬ Any account of current Central Ameri¬ normal reaction from those who fol¬ curity investigation cleared McNeil of can problems must bring in relevant low this over-reported field. In the case the charge of leaking to the press (al¬ portions of the area’s own history and of Frank McNeil’s book, the answer though the underlying complaint was of U.S. involvement in it. McNeil has to be “yes,” especially for those in more akin to heresy), he sent a com¬ makes the right choices of such mate¬ or headed for the Foreign Sendee. plete account of the matter to Secre¬ rial. He emphasizes the Latin Ameri¬ The book is a superb chronicle of a tary Shultz with his resignation. He can perspective, so often missing in hopelessly muddled policy, seen from also sent a second letter: “I wrote [El¬ Washington’s view, of Contadora and the inside by a brilliant Foreign Serv- liott] Abrams that I was quitting be¬ Esquipulus II (the Arias plan), and the ice officer who has been recognized cause of his exercise in McCarthyism. interaction between North and South. with the department’s Distinguished Abrams, who never had the guts to The book is a powerful argument Honor Award and AFSA’s Christian face me with his charges, didn’t reply.” for the reconstruction of a strong, pro¬ Herter Award. One of the first priori¬ McNeil does not simply go to bat fessional Foreign Service, now battered ties of the Bush administration will be for himself, but for a whole string of “not only by ideologues but by budget to bring some order to the tangled mess career officers in Central America in cuts.” McNeil does not argue against he describes so well. the Reagan administration, from Tho¬ qualified political appointments, but More than that, the book is the un¬ mas Enders to John Ferch, who were more against disqualifying loyal career varnished record of McCarthyism in savaged for relying on their “expert professionals on partisan grounds.

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McNeil does not attempt to pussy¬ revolutions? Almost everything, says This, the author states, plus our ig¬ foot around his views of a failed Cen¬ James Bill in The Eagle and the Lion. norance of Iranian culture, our eco¬ tral American policy. He uses witty, He makes a good case in this well organ¬ nomic-commercial focus, and our ob¬ salty language rarely seen in an FSO’s ized, plainly stated and well docu¬ sessive “Soviet-centric” view of events memoirs. His scorn for his tormentor, mented historical account of American in Iran led the United States to dis¬ Abrams, is undisguised: “A General Cus¬ errors throughout two generations of count the role of Shia Islam and the ter in diplomatic drag, supremely con¬ postwar U.S. — Iranian relations. clergy' in Iran. My own Iranian connec¬ fident, and often wrong.” Beginning with its role in the over¬ tion dates from 1953-57, when the mul¬ McNeil’s book is not only a timely throw of Mosadeq in 1953, the United lahs were assumed to be an antedilu¬ and important contribution to the field, States lost its image in the eyes of Ira¬ vian troop of relics, and I shared in but it can rightly be described as nec¬ nian nationalists “as an external liber¬ the error of undervaluing their poten¬ essary to have been written. ating force, whose influence would pro¬ tial. For this reason, I wish Bill had Ambler H. Moss, Jr. tect Iran from its traditional enemies, matched his account of how Pahlav- Britain and Russia. Instead, the pro¬ ism led to tyranny and corruption with The Eagle and the Lion: tector had become die exploiter.” The a description of the anatomy of Ira¬ The Tragedy of American- basic error of the United States, one nian Shiism and how it led to the ob¬ Iranian Relations. understands from Bill, was to align its scenities of the 1980s. What will be By James A. Bill. Tale University Press, interests and policies solely with the the reckoning for the Shia state? 1988. course taken by Shah Mohammed Reza But sufficient unto the day are the Pahlavi. So important does the author lessons thereof. Professor Bill has taught What did the United States do in Iran regard this alliance as the leitmotif of us a big lesson in The Eagle and the that was wrong and that contributed the U.S. role in Iran that he invests it Lion. to an internal upheaval as fundamental with a corporate identity' named “Pahlav- Norman B. Hannah as the French, Russian, and Chinese ism” and its apostles “Pahlavites.”

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16 FOREIGN SERVICE JOURNAL WELCOME NEW ARRIVALS WITH Iran and the United States— tionalist support led to his downfall— A Cold War Case Study. an event which he concludes might have By Richard W. Cottam. University of been avoided by timely and consistent Pittsburgh Press, 1988. use of coercion. (Cottam does not even mention the effect of incipient cancer This new book by the author of Na¬ on the shah’s ability to deal with the tionalism in Iran is an excellent, schol¬ crisis of confidence.) arly overview of U.S. — Iranian relations Cottam subjects Khomeini’s regime from the nineteenth century to today. to the same rigorous assessment as he It gives sufficient background informa¬ does the shah’s. He notes four vulner¬ tion to be understandable to the reader abilities: Khomeini has no named suc¬ with only a general knowledge of Iran, cessor capable of mobilizing popular yet it has new insights into both Ameri¬ support; there is no centralized direc¬ WELCOME KIT™ Contains can and Iranian perceptions and inter¬ tion to provide for an easy transition; over 200 essential ests to make it valuable to the expert there is no effective institutional base; household items to set up as well. Compared to the negative as¬ and the regime has not recruited and housekeeping while sessment of the shah in Cottam’s ear¬ indoctrinated a new generation of tech¬ awaiting personal effects. lier book, this time the view is much nocrats. The reader might well note more objective. He credits the shah the irony of the fact that despite their CREATE A with skillful use of the levers of power hatred for each other, die shah and FAVORABLE FIRST during what he calls the “decade of sta¬ Khomeini had in common a commit¬ bility” (1964-74) and then goes on to ment to absolute authority that did not IMPRESSION WITH analyze how the shah’s failure to allow permit the institutional development WELCOME KIT™ political participation or to gain na¬ needed for stability. BRAND NAME AND QUALITY ITEMS In Amsterdam, Munich, WELCOME KIT™ contains Bath, Istanbul and Seville, linens, towels, dinnerware, the Foreign Service made glassware, flatware, cooking plans for your assignment. utensils, standard tools, and In Washington, D.C., light cleaning aids. OVER 200 NON-BREAKABLE brand BARBARA HELD/CITY SITES name items essential to run a REAL ESTATE, INCORPORATED, household of 4 persons are BARBARA HELD / CITY SITES will pave the way for carefully packed in REAL ESTATE INCORPORATED WELCOME KIT. your arrival. ™

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One looks in vain for Cottam’s guid¬ to reconstruct the history of modern recounting of the rise and fall not only ance on future policy toward Iran. In Egypt, he touches repeatedly on a great of Nasser and Sadat, but also of lesser the penultimate chapter he concludes, driving tension in the Egyptian soul illuminaries as well. The total book is “Not only is the era of American in¬ and body politic: the devotion to an a concise sketch of Egypt’s evolution volvement in Iran coming to an end, Islamic past at war with alien secular since the infuriatingly meddlesome but also die much longer period of Euro¬ seductions; the yearning to obtain the West broke through its rotting Otto¬ pean involvement as well.” Presumably, powerful technology and skills of the man barricades. Goldschmidt’s book he does not mean that involvement has West in order to vanquish Western in¬ will be useful and indeed essential to ended, but rather dominance. Despite truders; beliefs about liberal democracy anyone concerned with this pivotal coun¬ the lack of policy prescriptions for the and its institutions, battered by Euro¬ try of the Arab world. future, Cottam’s book joins James Bill’s pean doublespeak and double dealing Sue Ann Dangler The Eagle and the Lion on my list of and unable to survive a nostalgic at¬ must reading for anyone who would tachment to the golden age of caliphs, American Propaganda Abroad understand the ups and downs of U.S.- sultans, and khedives; and notions of from Benjamin Franklin Iran relations. selfless public sendee and sexual equal¬ to Ronald Reagan. Archie M. Bolster ity crashing up against entrenched re¬ By Fitzhugh Green. Hippocrene Books, ligious traditions, patriarchy, and 1988. Modern Egypt: The baksheesh. Formation of a Nation-State. Goldschmidt has clearly invested Most Americans consider “propaganda” By Arthur Goldschmidt, Jr. Westviewl much time and effort in his excellent the longest four-letter word in the lan¬ Hutchinson, 1988. book, gathering, sifting, synthesizing, guage and certainly one which should and summarizing a vast amount of ma¬ not describe a legitimate government When Professor Goldschmidt sets out terial. The author gives a meticulous activity. As Fitzhugh Green observes

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Personnel findings ous functions of the system, “recruit¬ tions but to praise him, and the com¬ ment, training, assignment, promotion pliments flowed back and forth. . . . Federal Times, Jan. 23, 1989 and retirement,” are carried out He gave an object lesson, as the day The 1980 law that was supposed to independendy with little regard for the wore on, in how to massage senatorial create a streamlined, more professional Service’s mission. egos. Every word floated out, in his Foreign Service has instead caused se¬ Although the report is only in its soft Texas drawl, as if it were borne rious morale problems in the U.S. dip¬ interim stages, Evangeline Monroe of on a little pillow of reasonableness and lomatic corps. But the problem is not AFSA said the commission has so far courtesy. . . . “It would be premature yet severe enough to cause an exodus added little to the growing debate on to try and outline a policy” on dais ques¬ by officers, according to an interim re¬ the need for reform. “Obviously dieir tion, and that question “may be less port by the Commission on the For¬ mandate is to judge. What I find frus¬ of a problem than you arc suggesting.” eign Service Personnel System. trating is the lack of judging,” Monroe He would be “happy to respond to that ‘There is widespread uncertainty and said. “It is an extremely bland report— in writing, Senator, after I have been apprehension among employees at all it’s round, it has no edges.” in office for 90 days,” and he would levels as to . . . what kind of a career Monroe disputed the finding that study another idea “and get right back the Service now offers,” said the com¬ a real morale problem would be re¬ to you.” mission. The five-member panel, flected in a higher attrition rate among Helene van Damm, President Re¬ chaired by former Assistant Secretary employees. “. . . I’m afraid the com¬ agan’s former secretary, writes in her of State John Thomas, was created by mission will conclude that we really new book, “At Reagan’s Side,” that Congress last year to examine prob¬ don’t have to worry about the officer she would often call Mr. Baker, then lems in the Foreign Service personnel corps because they love their jobs and the White House chief of staff, with system. Among the findings: will stay on anyway.” what seemed like an earthshaking ques¬ • Service personnel rules are inade¬ Leslie Aun tion, only to wonder, after a few sooth¬ quate to deal with such pressures as ing phrases from the Texan, why she dual-career families, single parent fami¬ Public service in America had been so agitated. It was like that lies, and the growing tendency among today as Mr. Baker plied his emollient Americans to change jobs frequently. Current Policy No. 1140 trade. R. W. Apple, Jr. • The concept of a Foreign Service Dept, of State, Jan. 9, 1989 officer’s worldwide availability has been When I speak of public sendee, I must Day One largely eroded by an assignment pro¬ put at the center the Foreign Service. cedure that takes into account the offi¬ These talented and brave Americans are The Washington Post, Jan. 28, 1989 cer’s preferences rather than abilities. on the front lines of American inter¬ Baker took time yesterday to send a ‘The integrity' of the formal assign¬ ests every day. It’s no tea party. Every message to the department’s 23,000 em¬ ments system is widely questioned, as time you enter the State Department ployees here and in overseas posts. He is its capacity to deliver the most quali¬ lobby, take a look at the two plaques saluted “the foreign policy profession¬ fied officers where their skills are most erected in memory of Foreign Sendee als whose knowledge, dedication and needed,” the commission said. officers who lost their lives. One plaque judgment are the very embodiment of • Officers with managerial experi¬ covers the period up to about 1965. service in the public interest.” ence usually advance more quickly than It took nvo centuries to fill up, and He added that “an important lesson those with in-depth expertise, despite most of the people listed on it died of recent years is the need for diversity the increasing need for very specialized from injury and disease. We’ve now and openness. America’s greatness rests skills in international diplomacy. . . . just about filled up another plaque in on the foundations of opportunity for • The “up or out” policy, which only 20 years. Most of those were vic¬ all and a fair hearing for all. I believe forces officers who fail to be promoted tims of terrorism. The Foreign Sendee these are the characteristics of a great within a certain time frame into retire¬ exemplifies public service. foreign policy as well.” ment, is very controversial among em¬ Secretary Shultz The New Regime column ployees, who may suddenly find them¬ selves out of work after 20 or 25 years The Baker hearings Professionals needed of service. Overall, the commission found that The New York Times, Jan. 17, 1989 Letters to The New York Times, the personnel system does not seem They had obviously gathered, these emi¬ Dec. 27, 1988 “to function as a coherent, integrated nent senators, not to bun' James A. It is ironic and sad that many observ¬ whole.” The commission said the vari¬ Baker 3rd under a heap of hostile ques¬ ers see the appointment of Thomas R.

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Pickering, a career Foreign Service of¬ important to our national interests than fer a word of advice to the new secre¬ ficer, as chief United States represen¬ the United Nations, but our represen¬ tary, James Baker. One advised him tative to the United Nations as a signal tative in New York should no more to take the public elevator just once that die incoming administration places be a cabinet officer than should envoys to see what it’s like to be stuck between little faith in either the United Nations to the North Atlantic Treat}' Organi¬ floors when rushing to a meeting. or the Foreign Service. . . . zation, Japan, France, the Soviet Un¬ “Employees here are so idealistic that What is uniquely American is the ion, or Mexico. The Foreign Service no one deals with administration or practice perfected by [the Reagan] ad¬ must be fully responsive to United paperwork. Nothing works,” explains ministration of assigning political and States political leadership, while keep¬ one very-high-level appointee. “Mail is ideological allies to the most demand¬ ing its distance from the political proc¬ backed up for weeks. It’s not unusual ing diplomatic posts, i.e., those most ess, a situation that best meshes with for those at the top levels to receive in need of an experienced, proved pro¬ the diplomat’s twin duties of pressing invitations weeks after an event. Com¬ fessional. The notion that foreign gov¬ on his government his nonpartisan, ex¬ plaints center on lack of supplies and ernments (or international organiza¬ pert advice and fully carrying out the commissaries in certain countries.” tions) welcome political appointees as policies laid down in response. George Karen’s Column evidence of special White House inter¬ Bush would be doing himself and the est is for Washington consumption nation a great favor by returning die Strictly for export only; while other governments are not profession to the professionals. unfamiliar with the political payoff sys¬ from Alan Berlind (FSO ret.) The Des Moines Register, Jan. 4,1989 tem, they rarely risk plunging neophytes Guess which nation still refuses to let into international diplomacy, and they Shortfalls spawn idealism its people find out what sort of infor¬ rarely welcome (kind words aside) mation the United States Information American innocents abroad. The Washington Times, Jan. 5, 1989 Agency is disseminating everywhere There is no diplomatic post more Outgoing State Department officials of¬ else?

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24 FOREIGN SERVICE JOURNAL 10 • 25 • 50

FSJ, March 1979: ences are not superficial ones; they are us, and the rest of the world, who we the bread and butter, the gut-level dif¬ are. In all probability, the political pundits ferences. . . . Elephants in South Dakota: of Washington are quite right about In looking for an America I found The Search for America,” what is good for America. What is also only three nationwide common denomi¬ by Robert F. Miller apparent, I discovered, is that what is nators—the language, the passion for good for America may be irrelevant. sporting events, and television. The first FSJ, March 1964: In fact, 12,000 miles of travel through¬ of these is suspect—die language as writ¬ out this country leaves me with one ten may be uniform but it just doesn’t Secretary Dean Rusk: I would say . . . overwhelming conclusion—the concept sound the same. As far as sporting that inside the department our princi¬ of America is a myth. The idea of one events go, Americans will play anything ple problem is layering. For example, nation with definable characteristics, with enormous enthusiasm, particuarly when I read a telegram coming in in needs and dreams may be a theoretical from the spectators. . . . The role of the morning, it poses a very specific possibility but, in practice, America television in the United States cannot question, and the moment I read it, I does not exist, there is far too much be overestimated. The majority of Ameri¬ know myself what the answer must be. diversity. cans work hard and long hours in parts But that telegram goes on its appointed It is not just that Norman, Okla¬ of the country which offer little except course into the Bureau, and through homa, is different from Washington, television for recreation, amusement, the office and down to the desk. If it D.C. and a handful of other metro¬ or escape. It is that image of a nation doesn’t go down there somebody feels politan centers. Norman is different created in Hollywood that is zapped that he is being deprived of his partici¬ from everywhere else. The regional, into every home in America and con¬ pation in a matter of his responsibility. even the local, variations in this coun¬ sumed by a population hungry for glam¬ Then it goes from the action officer try are truly incredible. And the differ¬ our, excitement, and fantasy, that tells back up through the department to me

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MARCH 1989 25 10* 25* 50 a week or ten days later, and if it isn’t cer level. It seems to me that the man of the specialized advice that he needs the answer that I knew had to be the in Washington who spends all of his and that we can’t afford country by answer, then I change it at that point, time brooding about a country like Bra¬ country. There would be an econom¬ having taken into account the advice zil ought to be a man comparable in ics man, a labor man, and so forth. that came from below. But usually it competence to the man who is ambas¬ A desk officer would typically be an is the answer that everybody knew had sador to Brazil. We then clear the way FSO-3 or a 4 at the present time, but to be the answer. for him to get quickly to the assistant clearly an able man on the way up. I I think we do need to do something secretary or the secretary. . . . Have think that we might use FSO-ls or ca¬ about layering, and one of the ways the assistant secretary staffed to pro¬ reer ministers on the desks and see what to do this is to upgrade the desk offi¬ vide that desk officer with a good deal the effect would be on the quality of the job done. from the hearings of the Senate Export Electronics, Inc. Subcommittee on National Security 110/220 Volt Stereo - Video - T.V. - Appliances Staffing and Operations, Dec. 11, 1963 1719 Connecticut Ave., N.W. (Near Dupont Cr.) Washington, D.C. 20009 Phone (202) 232-2244 FSJ, March 1939: FAX (202) 265-2435

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26 FOREIGN SERVICE IOURNAL On January 12, 1988, outgoing Secretary of State George I had the experience of working in the Office of P. Shultz shared some of his thoughts about the Foreign Management and Budget. The Office of Management Service with the FOREIGN SERVICE JOURNAL. and Budget regards itself as the “president’s bureau¬ cracy.” Whatever president there is, they belong to QMr. Secretary, there are responsible Ameri- the presidency, and to a degree it has seemed to me • cans who question the commitment and the Foreign Service has that kind of attitude. loyalty of the Foreign Service to die policies of our elected leaders. How have you answered such ques¬ Q We’re sure that in your six and a half years tions? • as secretary of state, you’ve developed some ideas about the Foreign Service—what are some of its A I have never heard loyalty questioned in any weak points? • meaningful way, and my own experience has been that Foreign Service people are talented and en¬ A I think the weaknesses of the Foreign Serv- ergetic. If you’re willing to work on die problems, • ice are that we haven’t been able to reach they’re willing to work with you right on into the out and get enough talented minorities—blacks in par¬ night and over the weekend. It’s a great group of peo¬ ticular—into strong, up-and-coming top positions, and ple to work with. to have them trained—and experienced—so that they should be there. There are some outstanding individuals, QWhat about the Foreign Service’s commit- but not enough. And the same is true with women, • ment to the policies of our elected leaders? although I think that is remedying itself very rapidly and is not as much of a problem as it was. A Well, I believe there is a good sense of the I think that our entry process is too cumbersome. • fact that when somebody gets elected presi¬ By the time a person decides he or she wants to be dent, he gets to make die basic decisions and set the in the Foreign Service, and finally gets a decision, a tone. Our job is to help the president make foreign lot of time has elapsed. It must be that some good policy and get it carried out. That means working people are lost in that process. One of the things that widi all the different constituent groups. Everybody we’ve been trying to do is to shorten it so that a more wants to be in the act. Of course, there is a strong decisive approach is taken. congressional thrust, and we have to work with that. It’s important that people’s careers are drought about But, by and large, people understand they’re working carefully. One of the things I’ve been very impressed for the president. with in George Vest’s tenure as director general of

MARCH 1989 the Foreign Service is that there has been a nical skills, people have to do more than one lot of effort to think in career terms about thing in order for a post to operate. what’s happening to people. I know when I was in business—I was in You never want to find yourself saying that the construction business—we had lots of very, you shouldn’t put somebody in another prom¬ very big jobs. That meant that a person was ising job because that person is doing such a assigned to a relatively narrow slice of that good job where he or she is. That’s the worst job, because of the way you had to organize reason not to move somebody. When you get something big. But we liked to get small jobs into that mentality, you know you’re going and have people, who on a big job were con¬ to stifle people’s careers, not because they’re fined to a certain area, go and manage a small bad, but because they’re good. They have to job. Because on the small job you had to do have a chance to broaden their experience. everything, you had to know about everything; Those are some things that it seems to me you had to be, in your words, a generalist. need working on. That’s how you can see how a person does I also think that the fitness reports, from and whether they like it and are good at it. what I know of them, don’t mean as much By the same token, I think a small post, as they ought to mean, because they seldom in managing one or being DCM of one, is a say anything critical about anybody, as I un¬ good way of exercising general skills and learn¬ derstand it. So I guess there’s a whole mythol¬ ing how you do and how well you like that, ogy of reading between lines and so on. But as distinct from something more specialized. it’s better to be candid, and then counsel peo¬ ple candidly about what they can do to im¬ QIn what areas within the Foreign prove themselves. • Service do you believe diere’s a need to emphasize training? QOne of the concerns today in the • Foreign Service is the issue of gen¬ A I think the natural and, I suppose, eralists versus specialists. This drives assign¬ • historic orientation in the Foreign ments and promotions. What are your views? Service is that you are analysts, and you gather information, and you write a report. Every¬ A The problem of generalists and spe- body wants to write the Mr. X cable or docu¬ • cialists is not a problem restricted ment, and diat’s tops. Those are individual to the Foreign Service. That’s a classical prob¬ skills, and people tend to exalt them. But man¬ lem in all organizations that have professional aging these larger embassies is a big manage¬ aspects to them. ment job, and to get things accomplished, there You have to have people who are ready to has to be teamwork. make a career in a specialty, and be willing I think people are realizing that in the For¬ to reward that. At the same time, your top eign Service. At the Foreign Service Institute positions are by and large going to go to peo¬ there are courses that emphasize teamwork ple who are willing to undertake general re¬ and leadership, what it means and why it’s sponsibility. That’s almost a definition of the necessary. There’s also a general realization job description. Often a person who is really throughout the building. We’re letting peo¬ in love with a specialty may say, yes, Fd love ple see how important these tasks are that to be in that top position, but the actual exer¬ go beyond an individual’s capability to size cise of the responsibilities is not that interest¬ up something and analyze it and write a big ing to that kind of person. report. So I think there is a broadening of So I think you have to exercise care in the horizons of that sort, and I would put a lot process of moving people that way. But cer¬ of emphasis on that in training. tainly there are lots of people in the top man¬ agement of the Foreign Service and in any QYour decision against the polygraph major organization who have distinguished • was widely supported in the For¬ themselves in some particular and specialized eign Sendee. How can the Foreign Service aspect of the organization’s work and also have respond to this and other inappropriate test¬ the capacity for working in a position where ing such as psychological testing? you have to be broader and deal with a great many things—a so-called generalist. Ain every selection process you’re try- Of course when a post is medium-sized to • ing to select the people who are go¬ small and you’re there, you almost have to ing to do the best. There’s nothing wrong be a generalist, because, other than highly tech¬ with a selection process that tries to pick out

28 FOREIGN SERVICE JOURNAL who’s going to be best suited, who’s going way overblown. The Marines didn’t do what to be most capable, who’s going to be reli¬ was alleged that they did. able, and so on. Those are things that you Nevertheless, the outcome of all the stew want and you seek. about it has been to produce stronger and There are certain ways of going about it better procedures. We have applied them that, in my opinion, can be deceptive, can broadly, and I think fairly and properly, and be unfair, and tend to emphasize, as I see it it seems to me we’re in a stronger position anyway, the wrong approach to management. than we were when it all started. That is, management by intimidation of the lie detector test. That’s the main rationale for QThe foreign policy agenda has it—it intimidates people. I think we need to • changed radically since World War go about our task of motivating people in a II. It now focuses primarily on political/ much more positive way than that. military issues. What is the role for diplomacy I think the way you avoid such things is and diplomats in a changing world? by doing a good job of selection, getting able people and having them work well and look A I don’t know that I agree with the to the proper observance of the rules. And I • premise of the question. There’s a think the record of the Foreign Service is quite big economic world out there that people think good in that regard. But I think we have to about a great deal. I don’t know whether the take the problems of security and counter¬ drug trafficking problem is included in what intelligence very seriously and work at them. you mean by military things, or that terrorism The answer to these things that are very in¬ is included in that. We have to worry about trusive, which are based on concerns in that those things. area, is to do the job properly ourselves in So I think the breadth of concern is there, our own way, and I think by and large we do. and at least it seems to me there is a big change taking place in the nature of the world econ¬ Q Would psychological testing for East- omy and the world political and strategic situ¬ • ern European posts in particular ation. We need to analyze that and think help create the right approach? through what it means to us and act accord¬ ingly. But I don’t think the focus has become A I don’t think so. I think that the narrower. It’s a very broad scene out there • managerial problem is similar. that we need to operate against. Obviously, in posts where you know that it’s a hostile environment, and you’re going to Q There’s the perception that often be subjected to counter-intelligence efforts, peo¬ • discussions of military policy take ple have to be alert to it, be briefed on it and the place of approaching issues from a diplo¬ be kept posted, and take precautions. matic point of view. There are some things we are doing that involve the way we manage those embassies A Well, it is often said, “Are you go- that should tighten up our security. But we • ing to go the military route or the should go at it directly and expect people to diplomatic route?” Again, I think that’s a very understand its importance. false statement. Strength, whether it’s economic strength or military strength, is usually a nec¬ QThe Foreign Service feels that it essary handmaiden of effective diplomacy. The • was unfairly singled out for public two things are not alternatives; they’re com¬ and congressional criticism following the plementary. So I think one of the reasons why Moscow embassy revelations. It is an issue we have had some pretty good strides is that that refuses to blow over. Do you have any our country has strengthened itself. parting thoughts on this? QWhat do you consider your big- A Oh, I don’t know that the Foreign • gest accomplishment, your biggest • Service was singled out. As people disappointment, your biggest frustration? looked into it, it was felt the department was too casual about some of the security matters A that people should be taking seriously. I think JL I can’t handle such questions! □ that the Moscow thing was, as it turned out.

MARCH 1989 29 DIPLOMATS PATRIOTIC?

DAVID D. NEWSOM

rc diplomats patriotic? fidence in the State Department. Its person¬ Since the time of Franklin nel had no loyalty to him; the Foreign Service Roosevelt, every American presi¬ had disdained him as vice president and ig¬ dent has, in one way or another, nored him the moment he was out of office.” voiced his doubts about the loyalty of the Ameri¬ Negative presidential attitudes were not con¬ can diplomat—cither to the country or to an fined to the career Foreign Sendee. They ap¬ administration. President Bush, in a welcome plied to the entire foreign policy establish¬ statement at his initial press conference after ment as represented in the State Department— the elections, expressed his respect for the men to presidential appointees as well as career offi¬ and women of the Foreign Sendee. Even his cers. Franklin Roosevelt left Cordell Hull out positive attitude, however, may not eliminate of some of the most critical foreign policy the problems in communication between the decisions of his administration. John Kennedy domestically oriented politician and those who treated Dean Rusk as a secondary member live in and report on other lands. of his inner circle. The coolness between Rich¬ Harr)' Hopkins, Roosevelt’s right-hand ard Nixon and his first secretary of state, Wil¬ man, coined the term “cookie pusher,” reflect¬ liam Rogers, was apparent to everyone. In ing both on the character and the life style the Reagan administration, both career and of the diplomat. The activist Truman voiced non-career diplomats suffered when their ob¬ his impatience with the State Department and servations ran contrary' to the administration’s overrode recommendations of his diplomats. ideology'. Eisenhower and Dulles did little to rescue the This attitude is not confined to the United diplomats from the vituperative charges of Sena¬ States. The Economist of July 16, 1988, spoke tor McCarthy. of Mrs. Thatcher’s suspicion of diplomats and Richard Nixon entered the White House commented, “Suspicion of diplomats by strong with a deep suspicion of the Foreign Service, heads of government is a common trait.” In arising, apparently, from personal experience. contacts with other European diplomats, I have Henry Kissinger speaks of this in The White heard them voice similar complaints. House Tears: “He (Nixon) had very little con- We who are diplomats have asked ourselves why these negative attitudes and suspicions David D. Newsom was Under Secretary for Po¬ exist. We resent deeply the charges of a lack litical Affairs, 1978-81. An earlier version of this of dedication to the national interest and a essay was delivered as the 1988 Oscar I den Lec¬ lack of patriotism—charges that are both un¬ ture at the School of Foreign Service, George¬ just and untrue. As a group we have suffered town University, where he is dean of the too much in dislocation, illness, and the death Institute for the Study of Diplomacy. of colleagues to be so summarily excluded from

30 FOREIGN SERVICE JOURNAL the ranks of true Americans. But we must ac¬ and, with him, many who have not previously knowledge that many doubt our sincere at¬ served in government. This happened in 1952 tachment to the national spirit. with the election of Dwight Eisenhower. In 1976, the Democrats returned under Jimmy A satisfactory working relationship Carter after an eight-year absence and brought between the diplomat and the poli¬ not only new people but also an ideological tician is vital to the national inter¬ departure from the previous eight years. est. The problem exists both within The ideological factor was even greater and the executive branch and between diplomats the neophytes to government even more nu¬ and Congress. merous in the first Reagan administration. The Within the executive branch, the attitude diplomats were objects of special suspicion, of doubt about the loyalty—and even the util¬ particularly those who had served in Central ity—of diplomats goes back to the early days America. The attitude was symbolized in the of the republic. Diplomats were seen by the recommendations of The Heritage Founda¬ fierce democrats of our early years as vestiges tion that presidents must make a wider use of European royalty. They were part of the of political appointees if they are to gain ade¬ establishment whose machinations resulted in quate support within the executive branch for both entanglements and wars. Because Ameri¬ their foreign policies. cans wanted to be removed from the tradi¬ Diplomats see their task not so much as tional intrigues of the old world, they har¬ complementing the political agenda of an bored a suspicion of those public servants who, administration as bringing to the leadership by choice and the needs of the service, spent the most accurate picture possible of the world much of their lives abroad. That suspicion has outside and using that to advance the national not wholly disappeared. interest through negotiation. This often means The doubt is heightened by the experience explaining to domestically oriented officials of political campaigns and transitions. To be¬ the realities and limitations of other political gin with, the diplomat often manifests an un¬ systems and giving sometimes unpalatable as¬ welcome skepticism toward rhetoric—the life sessments of circumstances abroad. These some¬ blood of politics. Diplomats will, during their times contrary assessments are ill received when career, hear volumes of highflying words. In¬ they challenge existing policies. evitably, they will tend to ask what they mean, Many in the political world do not accept what commitments they convey, what prob¬ this function of the diplomat. In our assertive lems they will create. But the political leader society, diplomats are expected to be sales¬ prefers unvarnished expressions—of promises, men rather than assessors. They arc to be ad¬ of friendship, or of denigrating enmity. vocates. Their task is not to survey the mar¬ Further, presidents and those who serve ket, but to sell the product. To a number of them come to office after campaigns in which American politicians, the purpose of a diplo¬ the loyalty and subservience of the staff to the matic encounter is to persuade a foreign leader decisions and declarations of the candidate are or government of the correctness of the U.S. absolute. Those expectations are carried over view of an issue. The officials hope to curb into government by the victor—especially in what they sec as unwarranted foreign opposi¬ foreign affairs, an area seen by all recent presi¬ tion to U.S. policies. In their minds, such poli¬ dents as uniquely theirs. Candidates have a cies have been devised on the basis of their vested interest in the policies and initiatives best judgment of the domestic climate. If ob¬ they have promoted. They fear that any back¬ stacles to implementation exist, the good dip¬ ing away from such commitments will make lomat surely must know how to overcome them seem weak or uncertain. As these poli¬ them. The reservations of the diplomat arc cies are developed the president naturally fa¬ seen not as evidence of the diplomat’s concern vors those who render support without ques¬ for the national interest but as signs of the tion, both within the circles of the executive diplomat’s lack of will, inadequate persuasive and outside. Along comes die diplomat at tran¬ power, or—most damaging of all—subservi¬ sition who loyally supported policies of the ence to the views of a foreign government. previous president and who now raises ques¬ tions about the new policy. How can the poli¬ Washington wants the diplomat tician trust someone who served a previous to “talk tough,” to argue the administration and was not part of the cam¬ point, to “carry the day.” Those paign team? who have worked at the ex¬ This mistrust is greatest when an election ecutive levels of the State Department can re¬ brings in the candidate of the opposite party call cases of profane blasts from the White

MARCH 1989 31 over procedures or strategy. They often rep¬ resent basic differences over policy. Zbigniew Brzczinski expresses this view in his book, Power and Principle: Secretaries of state only too often (espe¬ cially with the passage of time), and their State Department professionals almost al¬ ways, tend to confuse diplomacy with for¬ eign policy. What they forget is that di¬ plomacy' is a technique for promoting na¬ tional objectives abroad and not an end in itself. This is why most recent presi¬ dents have tended to become disillusioned and frustrated by T'oggy Bottom,’ gradu¬ ally concentrating foreign policy decision¬ making more and more in the White House where it is likely to recoil less from the occasional need to employ compul¬ sion and where it is likely to be more responsive to sensitive domestic economic and other concerns.

What The Economist said about Mrs. Thatcher is also true in Washington: The FCO (Foreign and Commonwealth Office) sees its primary' task as to keep open lines of communication with as many countries as possible. It is pragmatic, con¬ ciliatory', fonder of compromise than com¬ bat. ‘To threaten is to fail’ is a Foreign Office dictum. So a combative prime min¬ ister like Mrs. Thatcher often thinks dip¬ lomats lily-livered, willing to sacrifice Brit¬ ain’s interest for a peaceful life. elements is discouraged. In Washington, on the contrary, policymakers want the embassy The political leadership in Washington is to predict political change and to persuade also frequently more attracted to force or to even known opponents to accept U.S. poli¬ covert action than the diplomat, who may sec cies. At the same time, those in the White perils in such actions not perceived at home. House do not wish a diplomat’s encounters Presidents must balance foreign policy considera¬ to be embarrassing to an administration. The tions with the demands and attitudes of the contacts of U.S. diplomats in China with the domestic constituency. In many cases, the do¬ Communists of Yenan were exploited by Re¬ mestic considerations will prevail: the need publicans to die political disadvantage of Demo¬ to show strength; the need to react to per¬ crats in the late 1940s. Quiet, direct contact ceived provocations; the need to respond to in the field between American diplomats and the feelings of an important constituency. representatives of the Palestine Liberation Diplomats have no problems with such de¬ Organization in the Middle East has in the cisions—provided they feel that their observa¬ past been useful, both in furthering the secu¬ tions and recommendations have been seri¬ rity of individual diplomats and in gaining a ously considered. They have the right to ex¬ better understanding of the attitudes of that pect, however, that honest challenges to con¬ movement. Yet, in the U.S. domestic political ventional wisdom will not result in pejorative atmosphere of the past decade, publicized con¬ labeling as “wimps”—or “traitors.” It is the tacts have been embarrassments to admini¬ nature of the diplomat’s job often to bring strations. bad news. But the nation would not be served Those examples are more than differences if diplomats first tested the political waters

32 FOREIGN SERVICE IOURNAL at home and then tailored their assessment ment and its diplomats. to fit that test. Diplomats and the State Department arc thus seen as synonymous. Together they suf¬ Problems also exist—often serious fer from the lack of a strong domestic con¬ problems—in communication be¬ stituency and must make strenuous efforts to tween diplomats and Congress. As gain adequate appropriations for the conduct a young diplomat in the early 1950s, of diplomacy—even though the State Depart¬ I experienced the searing opprobrium of the ment budget is one of the smallest of all the McCarthy period. Senator McCarthy’s un¬ executive departments. Diplomats bear the founded charges were widely accepted at the brunt of congressional ire and rhetoric over time; even some of my friends in California security breaches—such as the recent ones in wondered about my orientation and loyalty. Moscow—even though other agencies of the The careers of those officers who reported on government may also be involved. Harsh criti¬ China were permanently damaged. That pe¬ cism of diplomats plays to a domestic audi¬ riod firmly established—if it did not create— ence already conditioned to believe that dip¬ an image of the diplomat that still exists today lomats are failing to protect the national in¬ on Capitol Hill and beyond. If the image was terest. not one of disloyalty, it was one of an effete elite, out of touch with the main currents of Another problem: politicians in Con¬ American life and demanding a life style, in¬ gress and diplomats do not speak cluding a “whiskey allowance,” incompatible the same language. In presenting with the interests of the taxpayer. a government position to Congress, Since my retirement, I have worked with diplomats become cautious—perhaps too cau¬ a group of fellow former diplomats to assist tious—in speech. They have learned that what¬ members of the Senate in the evaluation of ever is said will be heard at home and by both nominees for ambassadorial appointments. We friends and adversaries abroad. This consid¬ found many members of the Senate Foreign eration inhibits the kind of direct “telling it Relations Committee sincerely responsive to like it is” that Congress likes. When represen¬ our efforts—although during this time only tatives of other government agencies go be¬ one presidential appointee was formally re¬ fore congressional committees or speak indi¬ jected. I was not prepared, however, for the vidually to members of Congress, they appear constant reminders of the negative image of less circumspect. One day, shortly after the the diplomat on the Hill. American hostages were seized in Iran in 1979, One staff member who had once been in Henry Prccht, then country director for Iran, the Foreign Service told me he never men¬ listened impatiently to a tirade of America’s tioned this fact to fellow staff members; his sins from the Iranian charge d’affaires. Fed credentials would be damaged. Another, up with the tirade, Henry responded with a friendly to the Foreign Service, advised me well known American word, “Bullshit.” When never to use die word “professional” in dis¬ this was reported in the press, his stock went cussing diplomacy in Congress. The con¬ up substantially on Capitol Hill. notation, he explained, was that of a self- Members of Congress, quite naturally, have interested diplomatic elite, less interested in their eyes on their constituents and the prob¬ the national goals than in preserving its own lems of their districts. With few exceptions, prerogatives. Senator Jesse Helms has, by his they do not like to be given the impression parliamentary maneuvers, frequently ques¬ that the problems of Zaire, for example, are tioned the intentions of individual diplomats. as serious as the problems of their district. The problem arises in part because the dip¬ In fact, when the diplomat insists on talking lomats of the State Department arc called upon to them about Zaire—or most other coun¬ publicly to present policies that represent the tries, for that matter—they may not be inter¬ broader views of an administration. Constitu¬ ested at all. tionally, the State Department is responsible Many in Congress are also predisposed to for presenting the foreign policy of an ad¬ see the testimony of diplomats more as repre¬ ministration to Congress. Even though a de¬ senting foreign interests than those of the partmental official may be presenting a fully United States. Vice President Quayle began considered executive position to Congress, it his election campaign by stating that, in the is seen—and attacked—as a State Department matter of the sale of U.S. agricultural prod¬ position. Those in an administration not in ucts abroad, U.S. diplomats did not “protect sympathy with the president’s decision will the nation’s interest.” be quick to join in this attack on the depart¬ Moreover, diplomats are associated with ne-

MARCH 1989 gotiation and compromise. Although compro¬ of hostages warned against it. They were not mise is essential in our democratic political wrong in regard to either Lebanon or Iran. system, it seems to be less tolerated in politi¬ cal transactions with foreigners. The public Many of the criticisms against seems to understand the need for compro¬ the Department of State and mise in trade and economic negotiations; the the diplomats who serve it are understanding is less when political and secu¬ valid. The department is often rity issues are at stake. In the late 1970s, the too slow in its responses to events—too bound very complex trade agreement negotiated in up by the cautions and processes of bureauc¬ the Tokyo Round—one frill of compromises— racy. Diplomats are often parochial; this re¬ sailed dirough the Senate with only three nega¬ duces their credibility, even if, in regions of tive votes; in the same period the Panama conflict, the parochialism of one is often off¬ Canal treaty barely gained ratification and the set by that of the colleague in the opposite SALT II treaty was rejected. capital. Charges that diplomats cling too strongly Professionalism is recognized in the to past decisions and experience may be valid. military services and in the scientific Such tendencies spring from an awareness, and technical fields. Far fewer, how¬ based on history and tradecraft, that dramatic ever, see the special talents of per¬ initiatives that fail to take account of past events ception, cultural sensitivity, analysis, and area can bring disaster. U.S. policy initiatives in knowledge required of diplomats as consti¬ Central America cannot ignore the deep resi¬ tuting an occupation diat cannot be easily du¬ due of suspicion toward the North American plicated by any educated citizen. giant that remains from other U.S. interven¬ The assessment of the diplomat will not tions. Those diplomats who raised questions always be correct. Parochialism and emotion about policies that ran counter to this histori¬ can color such assess¬ cal perspective were removed to other fields ments. But a look at and, I would submit, the position of the United the post-World War States in the region suffered. II years suggests At times, it is true, diplomats are insuffi¬ that diplomats may ciently respectful of political leadership, too not always have reluctant to accept decisions, too cloistered been wrong. Had in their own world. Robert Murphy, one of we as a nation ac¬ die great diplomats of the World War II pe¬ cepted the view that riod, writing in his book, Diplomat Among the Kuomindang in Warriors, noted that “Not all the troubles of China was fatally our career officers come from without. There flawed and die Com¬ is at times a cloistered attitude in the Depart¬ munists would pre¬ ment of State, a detachment from daily Ameri¬ vail—but would eventually divide from the can realities, an expectation that a vague some¬ Soviets—the history of our relations with Asia one will fight the battles of the Foreign Serv¬ would have been different. ice.” Those African hands who predicted the ul¬ Elliot Richardson, veteran of many cabinet timate end of colonialism in the Portuguese wars, wrote of this political-diplomatic rela¬ territories were criticized as in league with tionship in the FOREIGN SERVICE JOURNAL “terrorists.” Yet, following their advice might in September 1981, advising the Foreign Serv¬ have put us in a more favorable position to ice that “The first step (in establishing the deal with the political changes in Angola and influence of the Foreign Service) must be the Mozambique. whole-hearted acceptance, both inside and out¬ Many U.S. diplomats warned of the weak¬ side the State Department, of the fact that ness of the shah, of Marcos, and of Somoza the president should be the leading spokes¬ and faced criticism that they were “undermin¬ man for, and executor of, U.S. foreign policy. ing” friends of the United States. U.S. diplo¬ Such acceptance is not now universal. Most mats in the Middle East pressed for a stronger foreign policy professionals harbor a propen¬ U.S. position against the Israeli invasion of sity to regard the president as an interloper Lebanon and warned against efforts to sup¬ who, in relation to the secretary of state and port a peace treaty between Israel and the Chris¬ the department, needs to be cut down to size. tian leadership of Lebanon. Those few in the This is a dangerous fallacy.” State Department aware of the efforts to sell These criticisms may be valid, but that of arms to Iran in connection with the release

34 FOREIGN SERVICE JOURNAL a lack of patriotism is not. As we have seen, ist. As the tragedies of recent years have shown, patriotism is a highly emotional subject in the the lives of diplomats as well as odier Ameri¬ United States. It means not only the pledge cans can be at stake. of allegiance, but the lump in the throat when My comments are not intended as special the flag passes by, the tingle of the spine when pleading for the Foreign Service or for the the national anthem is played, the feeling of Department of State. We of the Foreign Serv¬ pride when the returning American first steps ice have, perhaps, damaged our credibility in onto native soil. If these are the measures of the political arena by our complaints about patriotism—and loyalty—no one feels them political appointees—without a correspond¬ more than the diplomat. We all have intense ing emphasis on the quality of all appointees. recollections of moments when we have seen The perils of the diplomat apply to those who the flag hoisted in a foreign land, when a U.S. enter this field from whatever route. In the Navy vessel moves slowly into a distant port, eyes of the political leadership they, too, are or when, returning home after several years diplomats. They have been since Benjamin Fran¬ way, we have sighted the Statue of Liberty. klin was appointed to Paris. But the diplomat’s patriotism and loyalty are My plea is that the relationship between deeper than this. diplomats and the political leadership be put on a different footing. We face today and will The task of a diplomat is more than face in the future complex and significant prob¬ a job, or should be. Each country’s lems and opportunities in our foreign rela¬ representatives abroad should have tions. Our margin of superiority over our a sense of mission in the further¬ friends and enemies is no longer what it was ance of die interests as well as the principles in the 25 years after World War II. Skilled of their country. In the case of the United practitioners of diplomacy may be more im¬ States, that mission has special meaning. portant to our nation than at any other time We hear others talking with deep respect in our history. and knowledge of our founding fathers and I would suggest three brief guidelines for how much the writings of a Jefferson or a this relationship. First, American diplomats Madison have meant to them. We sense how must accept that they are part of the staff of many in other lands look to us in hope. We a president and responsible to that president. cannot help but be proud. But with that pride They are not part of an external body trans¬ goes an awareness of how others see contra¬ mitting wisdom to benighted politicians from dictions between our declared principles and above. Secondly, the diplomat, to be effec¬ many of our actions. Living as we do among tive, must respect—perhaps more than in the others, we see our country as they do. The past—the particular pressures, perspectives, and sight is not always favorable. But when we interests of attempt to convey how we are seen abroad the political to those at home, we encounter one of the leadership if most sensitive nerves of Americans. As a peo¬ he or she is to ple we do not like to learn that our image is, speak effec¬ We all have intense in some places, unfavorable. In the 1980 elec¬ tively to that recollections of moments tion, the Republicans successfully exploited leadership. when we have seen the flag President Carter’s efforts to portray the limi¬ Thirdly, the hoisted in a foreign land. tations of our acceptance abroad, characteriz¬ politician, ing it as “blaming America first.” must, at the We have made mistakes as a nation. We same time, be have missed opportunities and courted disas¬ prepared to ac¬ ters because we have seen other societies in cept diplomats also as dedicated Americans our own image, rather than theirs. What we even when they are conveying unpalatable mes¬ have seen as demonstrations of strength have sages and, occasionally, to recognize that a been seen by others as neo-imperialism. We careful listening to those messages may save have tended to speak more and listen less. them from grave mistakes. Diplomats live daily with these mistakes, The nation will be served if the basic differ¬ explaining why they happen, softening the ef¬ ences in perception between these players in fect of the political rhetoric of our leaders, the making of foreign policy are recognized and seeking the means to create a better un¬ and respected. The nation is not served if the derstanding of U.S. actions. But, if diplomats diplomat who seeks to warn of dangers abroad, are honest, they must also make their govern¬ weaknesses in friends, or the nature of ene¬ ment aware that the images and problems ex¬ mies is pilloried as unpatriotic or disloyal. □

MARCH 1989 35 S3

w Short-or de

In the McCarthy period, turncoats and inherited, the other self-inflicted. The first was a very difficult situation, in which Soviet bloc- FRANK MCNEIL spies such as the Rosenbergs existed as they do today; witness the Pelton, Walker, supported insurgencies had taken over Nica¬ and Wilson cases. But the hysteria whipped ragua, were active in El Salvador, and, to a up by lying politicians against loyal Ameri¬ lesser extent, Guatemala, and aimed, in the cans constituted not just a moral offense but incandescent rhetoric of their leaders, to take an assault on due process and the political over the isthmus. The second stemmed from system. Not coincidentally, the witch hunt dam¬ the rhetoric of the administration’s most zeal¬ aged national security. We lost honorable and ous supporters. In the long run, the second talented people from the Foreign Service and proved the greater, leading to the eventual chilled public and private discourse about the ascendancy of a frame of reference removed world outside. from Central American realities, which saw In depriving the “China hands” of their ca¬ the region solely in East-West terms. reers and, for a time, their reputations, Mc¬ With respect to China and strategic arms Carthy and his allies were the true subver¬ limitations with die Soviets, the Reagan ad¬ sives. The accused were middle-of-the-road- ministration went through a learning curve, ers, ran over in the madness. We lost the na¬ shuffling off rhetoric to pursue national inter¬ tion’s best minds on China, not for sym¬ ests. The Central American learning curve, how¬ pathizing with communism, but for being cor¬ ever, was bell-shaped, a time of learning fol¬ rect, for foreseeing that Mao would bring down lowed by a period of unlearning, a regression Chiang Kai-shek’s ineffectual government. I to a rhetoric that held the Soviets responsible recall Jack Sendee saying that he never doubted for all evil in the region, with no sense that he would be vindicated. In the end, the China the underlying cause of strife lay in North- hands were rehabilitated, ironically, by Rich¬ Soudi issues, poverty, and oppression, the in¬ ard Nixon’s opening to China. But the cost heritance of a century of conflict. to the republic was high; had they remained In this view, if the United States mucked on duty, their knowledge and diplomatic skills up, it could only be the consequence of con¬ might have helped avert or shorten Chinese spiracy. There was no sense of original sin, involvement in the Korean War. no room for well-intentioned error. The State Department was a particular “bete noir.” Central American Blacklist? In 1981, Secretary of State Alexander Haig dismissed the controversial State Department transition team, but their personnel hit list In the 1980s, the Reagan administration in Latin America was largely honored. Assis¬ faced two problems in Central America, one tant Secretary William Bowdler was adjudged guilty of the very thing he had warned against, Frank McNeil was ambassador to Costa Rica the likelihood of another Cuba should die San- and senior deputy in State’s INR bureau.This dinista National Liberation Front (FSLN) win article has been adapted by the author from War military victory over Somoza. He was forced and Peace in Central America, copyright 1988. into immediate retirement with no thought Reprinted by permission of Charles Scribner’s for his years of loyal and effective nonpartisan Sons, an imprint of Macmillan Publishing Co.

36 FOREIGN SERVICE JOURNAL Intelligence

service to both parties. Even Haig’s choice as he saw them, giving in-house warning, in for assistant secretary, Tom Enders, ran into prescient terms, of the dangers inherent in a long confirmation holdup, not from liberals the contra program. Blacklisted for ambassa¬ who didn’t care for him because of his service dorial positions anywhere, Binns returned to in Cambodia, but from Senator Jesse Helms. European affairs, where he finished his career In the meantime, two other FSOs, John as deputy chief of mission in Madrid. Bushnell and James Cheek, respectively act¬ ing assistant secretary for inter-American af¬ Any administration has the right to pick fairs and deputy assistant secretary for Central key personnel. And if it intends a ma¬ America, carried administration freight in pub¬ jor change in policy, it will want to put new lic and on the Hill on such matters as assis¬ people in at the policymaking level in Wash¬ tance for El Salvador, then highly controversial. ington and in key places abroad. What hap¬ Bushnell, in particular, drew great fire from pened was morally wrong and policy stupid liberals. Both were blacklisted, nonetheless, for other reasons: the McCarthyite imputa¬ for ambassadorships anywhere in the world. tion of disloyalty to able and dedicated pro¬ They had served the Carter administration in fessionals, the savaging of FSOs for a policy policy jobs in Latin America and that was in Nicaragua which they had tried to alter, enough. Bushnell, a brilliant economist, headed and the underlying presumption that expert out as deputy chief of mission in Buenos Aires. knowledge and skills were meaningless inas¬ Cheek later served with distinction as charge much as foreigners could be expected to re¬ d’affaires in Ethiopia. construct their reality to comply with our rheto¬ In Central America, ambassadors were on ric. Contrast this with the approach to Africa, the hit list. Larry Pezzullo in Managua and where despite a major policy change, person¬ Bob White in El Salvador were given a back¬ nel were not sacrificed to the true believers ground savaging in the press, from sources and the administration made use of its Afri¬ in the incoming administration. Shortly after¬ canists. wards, I got a call from White asking me to The essence of a working Foreign Service call Pezzullo and urge him not to quit, but is knowledge, intellectual honesty, and disci¬ to do the Foreign Service thing and wait to pline. The blacklist served none of these. No see what the administration wanted. Ironi¬ professional should be blacklisted for having cally, Pezzullo stayed for a time at Haig’s re¬ worked hard, as the oath of office requires, quest. It was White who retired after a highly for any administration’s policy. There has to publicized blowup. be accountability. If an officer broke the law, Jack Binns, just arrived in Honduras, was or deliberately deceived Congress, that is dif¬ close to Bowdler and marked for extinction. ferent. But if you punish good people by black¬ Delay in naming Binns’ replacement, John Ne- listing them for doing their jobs, you will en¬ groponte, who had raised White House eye¬ sure a practice of telling political leaders what brows because he once worked for Kissinger, they want to hear, a recipe for foreign policy kept Binns on until the end of October. Throw¬ disasters. ing away a modest opportunity to ingratiate None of this is an argument against quali¬ himself with the new crowd, Binns called them fied political appointees. Every administration,

MARCH 1989 including Reagan’s, has made such appoint¬ briefings, quickly sourced to Assistant Secre¬ ments, and the Foreign Sendee is the only tary Elliott Abrams. A good profession I know which welcomes knowledge¬ From summer 1984, until February 1987, ambassador with able people not of the guild into its labors. I served as senior deputy in the Bureau of a good staff tends The argument is against disqualifying profes¬ Intelligence and Research (INR). The leaders to provide sionals on partisan grounds and for disquali¬ of the bureau, successively Director Hugh considerably fying the unqualified, whose sole virtue is po¬ Montgomery and Assistant Secretary Morton better analysis of litical activism, from foreign policy positions. I. Abramowitz, were intensively involved in a particular the substance of the bureau’s analysis. They The Nicaragua Obsession found it useful to delegate operational man¬ country than agement to me. I spent no more than 10 to analysts who work 15 percent of my time in oversight of INR’s in Washington In 1980, the Reagan administration entered on a five-year war with itself over policy, analysis and intelligence coordination with re¬ marked by the eventual triumph of the single spect to Latin America. For substantial peri¬ track in respect to Nicaragua, an all-consum¬ ods, I did more on Asia, particularly the Phil¬ ing obsession by mid-1985. It was not, as ippines. I make the point because Abrams, frequently portrayed by publicists of the new his spokesmen, and, apparently, North, saw right, a war between State Department liber¬ me as a brooding spirit, incessantly “leaking” als vs. Reagan loyalists. That portrayal, how¬ and hurling thunderbolts against policy. ever, defines the nature of the conflict, a strug¬ There are many organizations with analytic gle between those who saw policy as the expres¬ expertise: the regional and functional bureaus sion of revealed truth and those mostly con¬ of the Department of State, which INR rep¬ servative pragmatists, including devout Re¬ resents in the intelligence community, the publican appointees like Tony Motley (am¬ CIA’s directorate of intelligence, and in mat¬ bassador to Brazil and then assistant secretary ters military, die Defense Intelligence Agency of state), who thought you had to deal with (DIA). In my experience, a good ambassador reality, not invent it. with a good staff tends to provide consider¬ At the outset the learning curve forced con¬ ably better analysis of what is going on inside tinuities in policy from the Carter admini¬ a particular country dian analysts who work stration: support for democratic elections, sup¬ in Washington. Foreign Service reporting, even port for Duarte in El Salvador, and a degree in an era of budget stringency for the State of concern for human rights. There were new Department, still remains the first line of in¬ initiatives: a major assistance program for the telligence in foreign affairs. region at levels undreamed of in the Carter administration, and the innovative Caribbean No one, including our ambassadors, Basin Initiative, in which for the first time some less talented than others, is in¬ ever the United States provided a system of fallible. The operative doctrine is competitive trade preferences for its near neighbors. analysis, to make sure that no administration For a time this provided common ground becomes the prisoner of a single analytic point with Democrats disposed to cooperate in sup¬ of view. No intelligence agency is supposed port of democratic political and economic devel¬ to make policy. Unfortunately, the director opment. It was not to last. The treatment of of the CIA and some of his staff went way Mike Barnes, then-chairman of the House Sub¬ over the line. Secretary Shultz insisted that committee on Inter-American Affairs, became INR stay away from policy and whacked us a metaphor for savaging Democrats who dis¬ if he thought we strayed (I recall no such ad¬ agreed with the contra program but had been monitions on Central America). The secre¬ responsive to overtures to work toward bi¬ tary had enough polity advisers. He wanted partisanship in the region. In the 1986 con¬ INR to follow the rules and maintain distance gressional campaign, TV spots, stimulated by from the contention over policy around the Lieutenant Colonel Oliver North, smeared Bar¬ globe. If someone was interested in my per¬ nes and other opponents of the contras as dupes sonal views on policy, I gave them privately of communism. Later, the speaker of the and quite apart from the flow of analysis. House, Texas Democrat Jim Wright, joined The analysis most useful to policymakers the president in a bipartisan peace initiative is that which crisply reflects, rather than ho¬ in the summer of 1987. When Wright per¬ mogenizes, disagreement. Today’s conventional sisted in taking peace seriously and gave ac¬ wisdom can become tomorrow’s misjudgment. tive support to the August 1987, Guatemala When I came to INR I shared die concerns, Accords, he was savaged in faceless background later publicly expressed by Senator David

38 FOREIGN SERVICE JOURNAL Durenburger (R-MN) and by John Horton, INR refused to go along with a modern day a retired CIA officer who had held the job version of Hans Christian Andersen, a fable of national intelligence officer for Latin Amer¬ of the contras’ new uniforms. ica, about efforts within the CIA to tailor for On January 28, 1985, North wrote to Na¬ political purposes the analysis about what was tional Security Adviser John Poindexter, again going on in Central America. attacking INR’s views about an SNIE on the Nicaraguan resistance. He asserted that “with The records of the congressional Select adequate support the resistance could be in Committees that investigated the Iran- Managua by the end of 1985.” In April 1985, contra affair show that on November 2,1984, North wrote that the Nicaraguan Democratic North and Alan Fiers, the new chairman of Forces (FDN) “has become an effective guer¬ the CIA’s Central American Task Force, were rilla army in less than a year.” On May 31, pushing a Special National Intelligence Esti¬ 1985, he further asserted that, “In short, the mate (an SNIE in intelligence jargon) toward political and military situation for the resis¬ an optimistic view of the contras’ prospects. tance now appears better than any point in North’s computer memos portray him in a the last 12 months.” characteristic mood, complaining to Fiers about Contrast North’s views with those of Gen¬ the State Department, really INR. North took eral Paul Gorman, who had just retired at that exception to our view that the contras “had time as commander of the U.S. Southern Com¬ become largely ineffective since the funding mand in Panama. Gorman told the Select Com¬ had run out in May of 1984.” North and Fi¬ mittees: “What I was saying in those days ers, new to the region and on the job two was that I did not see in the Nicaraguan resis¬ months, “agreed diat the opposite was true.” tance a combination of forces that could lead No one else, including the contras them¬ to the overthrow of the government or the selves, thought they were then doing well. unseating of the Sandinistas. . . . The Sandin- They were surviving, a feat in itself. A million istas could wipe them out.” dollars a month, supposedly from private do¬ nors (we now know the donation came from During Easter Week of 1986, the Nicara¬ a friendly country), kept the contras together guan military' mounted a major incur¬ and base camps operating. The money kept sion just across the Honduran border into the one unit, the Jorge Salazar command, in cen¬ so-called Las Vegas salient, a bump in the tral Nicaragua under conditions that in 1985 map produced by a bend in a river. The move became reminiscent of Valley Forge without was aimed at disrupting contra infiltration from the snow. Honduras into Nicaragua. Minor incursions The intelligence process was prostituted to were fairly common. Larger ones into this Cen¬ a desire to convince Congress to renew assis¬ tral American version of Cambodia’s Parrot’s tance to the contras. If memory serves me Beak came about once every year or so. (The right, the estimate North talked about was year before, the contras had beaten back a the first of four dealing with Nicaragua which similar incursion.) As always, the initial intelli¬ the intelligence community produced in less gence was incomplete, leading to dispute than a year, attention worthy of a superpower. within the intelligence community over the We called it the “rain of SNIEs,” though not size of the incursion, with analysts in DIA all were so titled. With the help of colleagues and INR arguing for a lower but sizable fig¬ in the CIA, the paper mill eventually got turned ure in opposition to higher figures pushed off; there was nothing new to say that could by North, Fiers, and Abrams. fit under the rubric of an estimate and the At one point in this exercise in Kentucky Hill was smelling a rat. windage (there are no turnstiles through which Less funny were the echoes of Vietnam, Sandinistas go to provide an exact count), the efforts to steamroll optimistic judgments, this CIA’s national intelligence officer for Latin time about the contras, into the estimates— America called, in some desperation, to say against the views of most working-level ana¬ that the NSC (North and Poindexter) wanted lysts in DIA, CIA, and INR. In the case of an intelligence community consensus right the estimate discussed by North and Fiers, away. He and I agreed on a rational (and they succeeded. As a consequence, Hugh traditional) procedure, an estimated range of Montgomery and I agreed with our analysts Sandinista troops involved, and concluded that that INR had to take vigorous written dissent 800-1,500 troops had actually crossed the bor¬ from the key judgments of this SNIE. We did der into Honduras. In a later conversation so, the first of a series of incidents in which he told me the range hadn’t been “satisfac-

MARCH 1989 tory” (meaning high enough) for the NSC. received at the hands of faceless sources from In the meantime, Abrams went public with Abrams’ bureau and the Defense Department. presumably satisfactory numbers, 2,400 as I These sources claimed Ferch didn’t support recall, higher than what the analytic commu¬ the contras and was undermining American nity thought possible. Poindexter provided frost¬ policy. Ferch was also charged with the crime ing on the cake, by calling Under Secretary of being nice to Hondurans. of State Michael Armacost to complain about In the case of Ferch the “cabal of the zeal¬ INR’s views. The hype was necessary to jus¬ ots” had transformed one of the lesser risks tify $20 million in “emergency” military assis¬ of diplomatic service, that somebody might tance for Honduras, assistance which took a fire you, into an ideological purge. Ferch could long time in getting there, according to a re¬ not have accepted the embassy in Honduras cent GAO report. if he hadn’t supported administration policy The Select Committees’ report, which called to pressure Nicaragua to change, including this episode “intelligence misrepresentation for its off-proclaimed rationale for the contras. policy purposes,” fills in the story. It notes Ferch had heard via the grapevine in late that “the Sandinista raid was considered rou¬ 1985 that Abrams was dissatisfied and asked tine by the CIA intelligence directorate,” (DDI) him about it. Abrams sloughed it off with a but Mr. Casey nonetheless instructed DDI “to generality: Ferch wasn’t enough of a procon¬ alert the world that the Sandinistas were pre¬ sul (so much for the Good Neighbor Policy). paring and trying to knock the contras out This was soft stuff; the hard reason appar¬ while we debated in the United States.” DDI ently had to do with the contras. Abrams told replied to Casey’s note the same day. “Pursu¬ Ferch people in Washington were saying he ant to your note this a.m. [DDI] redrafted wasn’t loyal to the president’s policy. Abrams the blind memo on Sandinista military actions apparently was softening up Ferch. Later, at and intentions. DIA wanted to prepare a dis¬ a meeting attended by North, among others, sent. . . . We have been led to understand Abrams asked Ferch to do more for the con¬ that its approach will be that the incident rep¬ tras. Ferch, mindful of the Boland amendment, resented more a target of opportunity for the asked for instructions in writing. The instruc¬ Sandinistas rather than being representative tions never came, but in asking for them, Ferch of any clear strategy. Also, you should know lit the fuse on his job. that in the past we have had some difficulty The flap over Nicaragua’s Easter Week bor¬ in coordinating pieces on the fighting with der incursion tore things. North and Abrams, INR, which has estimated lower numbers of the Select Committees noted, wanted Hondu¬ troops involved in recent operations.” ras to confirm instantly Washington’s version Casey finally gave up on his analysts and of events and make an emergency request for directed Fiers to write an intelligence per¬ military aid. (Abrams offered aid before the spective incorporating Casey’s views for use incursion, but no funds were available except with Latin American leaders to get them “to under emergency procedures.) Honduras had be supportive of the contras,” a task which closed down for the holidays. A spokesman has so far exceeded the capacity of any word downplayed the incursion; the press dutifully processor in use by the U.S. government. Fi¬ recorded Honduran calm alongside American nally, Casey told Fiers to get the memo into alarm. In the end, Ferch persuaded the Hon¬ the hands of “Ollie North, Pat Buchanan, and durans but got blamed by the long-distance Elliott Abrams for their purposes.” proconsuls for a flap of their creation. He left not long after. Blame the Messenger My turn at the game of “blame the John Ferch, a career officer who had earned messenger” had begun in the sum¬ a fine reputation over the years, was ambas¬ mer of 1985, about the time Abrams became sador to Honduras. Not long after Nicara¬ assistant secretary. I took my first trip to Cen¬ gua’s 1986 Easter Week incursion into Hon¬ tral America since leaving Costa Rica. Nei¬ duras, Abrams succeeded in getting Ferch fired. ther Abramowitz nor I wrote much—that is As I learned during the Carter administration, the analysts’ job—but I did a short trip report getting sacked is unpleasant but not the end for Secretary Shultz. I found reason for opti¬ of the world. Sometimes nothing more than mism about the electoral process underway a personality conflict moves senior officers out in Guatemala and voiced concern that Amer¬ with little ceremony. What sets Ferch’s re¬ ica was not providing resources to support a moval apart is the savaging in the press he democratic transition there. I also supported

FOREIGN SERVICE JOURNAL the warnings of INR’s analysts and the views origins of the individual military command¬ of our diplomatic, military, and intelligence ers. It did not attempt to describe their politi¬ personnel in the region that the contras were cal attitudes. not doing at all well, politically or militarily, Before the Select Committees, Abrams dis¬ The slandering of and explained why. This was not a big discov¬ puted having a problem with INR; rather it FSOs is about as ery, but I was told it bothered Abrams, to was only with me. I had, he said, a “bias” newsworthy as a whose attention Secretary Shultz had called against the policy, a nicer word than disloy¬ dog bite my trip report. alty, more suitable for daytime television. Most About that time, a draft Abrams memo interesting were Abrams’s responses to Spe¬ leaked to The Washington Post. Someone fin¬ cial Counsel Robert Bclnick regarding a memo gered me as the culprit to State Department concerning a mid-1986 Miami Herald article security and also flatly asserted drat I had ear¬ about North’s activities in support of the con¬ lier “leaked” defamatory information about tras: “It was a complaint about the fact a State Otto Reich’s appointment as ambassador to Department intelligence analyst, that is, an Venezuela to Larry Birns of the Council on employee of his, was cited in the article, not Hemispheric Affairs, in an effort to get the for the first time. Here was an example of Caracas post for myself. I had done neither. someone who did not work for me, who ap¬ Abrams associated himself with these parently worked for Ambassador Abramow¬ charges. (Ambassador Reich played no part itz, who was engaging in the same kind of in this scurvy business.) I was subsequently thing, taking what I would consider cheap told North believed I was out to sabotage the shots, inaccurate shots at the program. It was president’s Central American policy; the re¬ not the first time that had happened; I recall cord shows he was flustered by INR’s analysis other instances of newspaper articles, or of of the difficulties facing the contras. hearing from people outside of newspaper ar¬ (In early 1986, security exonerated me. Later ticles, that people in INR had said something I received my security file, with the name of or other.” my accuser(s) blacked out. A senior security Belnick asked if Abrams’s memo was say¬ official, after reading the file, told me that ing “somebody in your bureau is leaking” and while he could not comment on who had fin¬ Abrams said, “Essentially that is a fair sum¬ gered me, he now understood why I was so mary. Leaking is frequently accurate, and this angry.) seemed to be inaccurate. It seemed to be an attack on the program and a really unfair one.” During the fall of 1985, Abrams, with¬ Belnick asked, “Is there anything in your memo out saying anything to Abramowitz that says what was contained was inaccurate or me, complained several times to the sev¬ or false in any way?” Abrams said, “No.” enth floor that INR sought to undercut the The Miami Herald story, rather than “inac¬ president’s policy. Told to take his complaints curate,” as Abrams wrongly characterized it to INR, Abrams wrote in early 1986 a three- to the Select Committees, we now know to page screed attacking a single sentence in an have been true. The article had 10 sources, only analyst’s paper, sending copies to Secretary one from the State Department, but Abrams Shultz and his principal deputies. The sen¬ blamed me. I never spoke with Alfonso Chardy, tence observed, correctly, that we didn’t know the author, until after I quit, when a congres¬ the political attitudes of the contra military sional staff member invited us to lunch so that commanders. Chardy could finally meet the man Abrams As I remember, Abrams claimed his “pol¬ accused of being his source. icy” was to take up disagreements with those Chardy, with the authorization of his edi¬ with whom he disagreed. (His new policy, tors, confirmed that no one in INR was a source. he should have said.) Among other pleasantries Abrams’ accusation was on a par with the alle¬ he said that the analyst’s paper was neither gation that had led to the 1985 security inves¬ intelligence nor analysis, indistinguishable from tigation, a leak of a document I had not read the views of administration critics, and asserted to two Washington Post reporters with whom the CIA knew everything—which was inter¬ I had never spoken. All the while, as I subse¬ esting in that the CIA had just told us that quently learned, Abrams’ faceless spokesper¬ it didn’t know much at all about political atti¬ sons were occasionally blaming me for unwel¬ tudes of the contra military commanders. So come newspaper stories. In his testimony, little was known that it subsequently took Abrams recalled “other instances” of INR leaks Abrams’ staff six weeks to produce a paper about Central America but gave no examples, for public distribution accurately outlining the for good reason. They did not exist.

MARCH 1989 41 During Motley’s stewardship of ARA tween me and his staff, it was not delivered Secretary Shultz had proposed until after the Iceland summit. I respected the me to the White House succes¬ secretary; he had not told us to trim our analy¬ sively for ambassador to sis and I disliked adding to his burdens. Jamaica and to I wrote Abrams that I was quitting because Venezuela. Oth¬ of his exercise in McCarthyism. Abrams, who ers got the never had the guts to face me with his charges, jobs and I didn’t reply. (In contrast, the secretary' called didn’t quit. By the me in to hear my concerns.) In response to time Peru came around, at the end Senator Sarbanes’s question about why Abrams of 1985,1 would have said ‘hell had not replied to my letter, Abrams called no,’ had anyone had sense my note “character assassination.” He even enough to ask, which no alleged that I was a well-known “leaker” while one did. Peru is fascinat¬ ambassador to Costa Rica. But the only time ing, but working with I said something startling to the press in my Abrams was out of the question after his per¬ lengthy tour in San Jose, I went on the record sonal attacks. When I returned from vacation to defend Deane Hinton and Tom Endcrs af¬ in January 1986, I heard from senior officials ter their dedication had been called into ques¬ that they had proposed me for Peru and that tion, practice, as it turned out, for defending Abrams had exploded. Accounts agree that myself. he characterized me as untrustworthy, a Ferch and I were not the only ones. I know “leaker,” and blacklisted by the NSC, which of two others to whom Abrams objected on meant North. When I quit, Abrams at first ideological grounds. One was interesting in refused public comment but his faceless spokes¬ that Abrams’ objection was founded on the men didn’t, firing volleys all around. The Wash¬ individual’s service to the Carter administra¬ ington Post quoted one as saying that “several tion in Africa. If all this is not McCarthyism, persons in the State Department besides I don’t know what is. Abrams had suspected McNeil of leaking sen¬ The oath of office, in requiring support of sitive information to reporters.” The best quote die Constitution and laws of die United States, from Mr. Anonymous comes from Newsday. is understood to require officers to support “The source close to Abrams did not deny policy in public and not ventilate disagrec- he had used those words” (“untrustworthy, ccmcnt to the outside world. If an FSO can’t disloyal, and a leaker”) “but said his decision hew to that discipline, he or she ought to was based on the advice of Foreign Service leave. By and large, however, diat sort of “leak” officers who knew Peru and McNeil. They comes from political appointees, giving life advised that McNeil was a really bad choice to Henry Kissinger’s adage about the ship of for Peru. ... As for leaks, Frank’s reputation state leaking from the top. as a leaker is extremely widely known, this Loyalty, to the average American, means source said.” loyalty' to country. In particular circumstances In response to Congressman Steve Solarz’s FSOs may be stupid or plain wrong (I plead question in the House Foreign Affairs Com¬ guilty' to both) or too uncomfortable with a mittee, Abrams said I quit out of bitterness particular policy to be point man for it. In at not getting an ambassadorship to Peru and the latter case, the officer ought to be the first blamed a bad personnel system for throwing to ask for a shift in responsibilities or to re¬ up my name. Before the Senate Foreign Rela¬ sign. But FSOs do risk themselves for Amer¬ tions Committee, he acknowledged to Sena¬ ica. Disloyalty' should be a fighting word. Stoi¬ tor Sarbanes that security had not linked me cism in the expectation of vindication from a to leaks, but added, “Well, they never dis¬ nonexistent “system” is fruitless, a stimulus cover any leaker,” implying that if security to further bullying. Nor should we expect the had looked hard it would have found me. media to defend our honor; the slandering Instinct told me to fight back. My decision of FSOs is as newsworthy as a dog bite. No to quit, taken in the spring of 1986, was a one will fight for you unless you fight for family one. I was tired of coming home ali¬ yourself. I don’t suggest FSOs become thin- gn', and there was no need to take this crap. skinned. Some insults are likely to be merited; I waited until it was clear that contra funding others the product of give and take about se¬ would be approved, lest my resignation be rious issues, worth laughing about when the seen as a partisan gesture. In late September, argument cools. But allegations touching loy- I wrote Secretary Shultz; bv agreement be¬ altv and honor are another matter. □

42 FOREIGN SERVICE JOURNAL Response to Frank McNeil from Elliott Abrams

Frank McNeil’s “book,” from which with respect to me, followed this event. of course, the messenger carrying the you have reprinted an excerpt, is a new I feel obliged to add that instead of very bad news to Ferch, and for all I literary form: hate mail between hard McNeil we sent Alexander Watson, a know he blames me for the decision. covers. As contemporary history it fails career diplomat, to Peru, and that in (It is ironic that this section of his dismally, and perhaps on that point I retrospect it was clearly the right deci¬ screed is tided “Blaming The Mes¬ need only note that McNeil, a self- sion. The advice I got from FSOs in senger.”) If anyone cares to look into proclaimed expert on Central Amer¬ the bureau was correct. it carefully, the argument that it was ica, cannot get right the names of the McNeil’s complaints about McCar- political will not stand. Carter administration-era U.S. ambas¬ thyism must lie uncomfortably on his As to arguments that there was an sador to Nicaragua, the former inter- tongue, for he indulges in the practice effort to twist evidence, they are false American affairs (ABA) senior deputy himself: Witness his statement that “I and, as McNeil no doubt knows, ex¬ assistant secretary and current U.S. know of two others to whom Abrams tremely difficult to prove or disprove ambassador to Guatemala, or the most objected on ideological grounds. One without an exhaustive review of evi¬ significant drug trafficker in all of Cen¬ was interesting in that Abrams’ objec¬ dence, for which there is insufficient tral America. tion was founded on the individual’s space here and which is, in any event, Still, the book is noteworthy and service to the Carter administration in largely still classified. And finally, as sad, obviously the product of immense Africa.” This deserves comment. First, to the notion that we in Washington bitterness trying to find an outlet. Read¬ note that no facts are presented, only tried to force Tegucigalpa into request¬ ers need to know a bit of background. innuendo; nothing to allow the reader ing help it neither wanted nor needed, In my capacity as assistant secretary to make his own judgment. Second, that version is Ferch’s and reflects the for human rights, I believe I had met I’d love to know which two cases fact that he was out of commission McNeil only once, and had a very faint McNeil is referring to. The only rele¬ with flu during the relevant moments. but nevertheless positive impression vant possibility is the time we needed In fact, the president of Honduras had of him. When I arrived in ARA, I had to appoint an ambassador to Brazil, already requested help in direct tele¬ the unhappy experience of having sev¬ obviously, along with Mexico, the plum phone contacts with Washington, but eral of the most senior and experi¬ ARA embassy. The Whitehead Com¬ out of prudence we insisted that this enced career diplomats handling Cen¬ mittee settled on a fine career dip¬ be done formally and in writing. Ferch’s tral American affairs warn me of their lomat who had done a good job in an job was to get it in writing fast, and if experiences with him. To repeat: FSOs important African country, but who he told McNeil anything else, he still all, with much relevant area experi¬ had little seniority or experience in doesn’t know what was happening in ence, who knew McNeil. This put me Latin America. Again, the FSOs work¬ a moment of crisis. on my guard, as it was my practice in ing for me on South America strongly In eight years as an assistant secre¬ eight years as an assistant secretary to urged me to stop it, and I didn’t need tary, I was proud of the closest possi¬ trust the Foreign Service, not least much urging. Also available, and now ble relationships with the Foreign Serv¬ when Foreign Service officers warned ambassador, was Harry Shlaudeman, ice. My deputies in three bureaus (In¬ me of what they viewed as biased and a former assistant secretary for ARA ternational Organizations Affairs, Hu¬ unprofessional behavior by a colleague and clearly a far better choice. For man Rights and Humanitarian Affairs, of theirs. McNeil to try to mislead readers into and Inter-American Affairs) included But what embittered McNeil had thinking this a political or ideological FSOs such as Nick Platt, Mel Levitsky, nothing whatsoever to do with Cen¬ move is pretty low. Marion Crcekmore, Bob Gelbard, Bill tral America. It was simply this: The I ought also to add a word about Walker, Gary Matthews, Richard Mel¬ Whitehead Committee picked him for John Ferch. In my view, he did a bad ton, Paul Taylor, and career civil ser¬ Peru, and I said no. Why did I do so? job in Honduras. Visitors, including vants such as Mike Kozak, Luigi Ein- Simple again: Because the FSOs who inspectors and career officials of the audi and Jim Michel—every one of handled South America in ARA strenu¬ department, agreed with that opinion. whom is still a personal friend. They ously objected, and told me it was a No assistant secretary can decide to are men of varying party loyalties but very bad choice. My initial inclination remove an ambassador to an impor¬ of consummate professionalism, and I was to go along; after all, it would get tant country such as Honduras, and I made a point of soliciting and follow¬ McNeil out of town. But so strong didn’t; the secretary did, after hearing ing their advice. McNeil’s evidendy were the urgings of those I viewed as complaints about his stewardship. Ferch consuming bitterness must be a source true experts on South America, men has said he was totally loyal to and of sadness to his friends, but if this is who knew McNeil better than I did supportive of U.S. policy in Central indeed his spirit it is good news that and were his colleagues in the Service, America, and I not only believe his he is out of the Service. I reject his that I decided to use my prerogative assurance but saw with my own eyes charges entirely, as do the career dip¬ and reject the choice. All the bitterness that it is accurate. Politics was not lomats who actually know the facts. McNeil feels, and all he writes about involved here; management was. I was,

MARCH 1989 43 Journal

Virginia James Byerly: Human Rights Bulldog

ecently, listening to Gor¬ records of hundreds of U.S. citizens R ROBERT L. BARRY bachev and other Soviet lead¬ who wanted to leave the USSR and ers attempt a public defense Soviet citizens, many of them Jewish pf the Soviet human rights A State Department employee or Armenian, wanting to emigrate. record on U.S. television, I thought When Vice President Nixon first vis¬ of my introduction to Soviet affairs is remembered for ited Russia to open the U.S. national 25 years ago as the junior officer on her years of exhibit in Moscow (and held die the Soviet desk. Even though most of “kitchen debate” with Nikita the “old hands” dien had little use for human rights service Khrushchev) he handed over lists to the totalitarian Soviet regime, they Soviet officials of those wishing to looked on human rights as a nuisance emigrate. The turnover of such lists issue, not a subject to be raised at the I served with her, she was deeply in¬ became a regular fixture of all summits government-to-government level. To volved with the case of Newcomb and high-level meetings, and Virginia the degree that the State Department Mott, a young American who had ac¬ was responsible for preparing them. had to respond to public pressures to cidentally wandered across the Norwe¬ She also maintained contact with those raise questions such as religion and gian-Soviet border and later died un¬ who had left, and with the families of emigration, diey preferred to “let some¬ der still unexplained circumstances on those seeking exit permission. She was one else do it.” a prison train en route to serve a sen¬ a one-person bureau of human rights That “someone else” was Virginia tence in a labor camp. At the same and humanitarian affairs. James, then nearing retirement after time she was advising American rabbis nearly 50 years with the federal gov¬ on tactics for preserving Jewish ceme¬ Virginia James Byerly, a lively ernment. Virginia first became involved teries in the Soviet Union, advising 88, today lives alone in the in Soviet affairs in 1932, before United Christian and Jewish clergy and lay house she moved to as a States recognition of the Soviet Un¬ people on how they might advance the child of ten in Frederick, ion. By 1965 she was the custodian of interests of their co-religionists in Rus¬ Maryland. Her memories of her in¬ serried ranks of tile drawers represent¬ sia, and trying to persuade a recalci¬ volvement with the events and figures ing the entire his tor}' of U.S. involve¬ trant Soviet government to permit in¬ in U.S.-Soviet relations going back ment in Soviet human rights issues creased emigration. more than half a century remain un¬ over more than three decades. When Virginia’s files were crammed with dimmed.

44 FOREIGN SERVICE JOURNAL Virginia got her start in govern¬ the great spiral staircase, complaining onment and detention of U.S. citi¬ ment in 1918, when she went to work loudly of “betrayal.” Loy Henderson, zens, family reunification—in short, for the Office of Military Intelligence then serving in the office and later one today’s human rights agenda. The old- in the War Department after finishing of the key figures in U.S.-Soviet rela¬ school Foreign Sendee officers often high school. In 1922, she joined the tions, pursued her with calming words. looked at “consular matters” as be¬ U.S. Mexican Claims Commisssion. One of his key arguments for recogni¬ neath them, but Virginia appreciated Virginia wanted to work at the State tion was that American citizens in the the human dimension of the issues Department because of her interest in Soviet Union would no longer be de¬ involved. And her energy and stub¬ the world beyond our borders and her nied access to their country’s diplo¬ bornness turned out to be just the love for the stately State-War-Navy matic and consular representatives—a qualities needed for dealing with the building (now the Old Executive Of¬ situation which Stalin’s terror increas¬ Soviet bureaucracy. “She was a bull¬ fice Building). She succeeded in land¬ ingly rendered desirable. dog,” a former colleague commented; ing a $1,440 a year clerical post—not Ambassador Bullitt came to accept once she adopted a case or a cause she without difficulty, despite her 14 years the hardheaded anti-communist advice pursued it—and the Soviets—relent¬ experience, a college degree, and a of Robert Kelley and the Foreign Serv¬ lessly, regardless of the odds against previous salary of $2,600. Someone ice specialists, who believed in dealing success. who had offered her a better job with the Soviets on the basis of strength scoffed, “This little girl thinks she can and strict reciprocity. But Bullitt’s succ¬ Meanwhile, she listened and get ahead at State by working hard.” essor, Joseph P. Davies, looked with learned from a string of The fact that she did get ahead in the suspicion on his staff and the State future top professionals all-male club that was the pre-World Department, believing that they were in the Soviet field—Loy War II State Department was in fact trying to sabotage Roosevelt1 s policy Henderson, Chip Bohlen, “Tommy” a tribute to hard work, but it was also of “getting along with the Russians.” Thompson, Walter Stoessel, Bill because she had her heart in what she At the same time the Soviets became Crawford, Elbridge Durbrow, Jake was doing. increasingly critical of Kelley’s Eastern Beam, Mac Toon—and on and on the She had hoped for something to European Division as implacably anti- list goes. One day late in her career, do with Latin America because of her Soviet. In 1937, possibly in response she was called to the office of the experience with Mexico, but instead to a complaint by Soviet Ambassador then-chief of Soviet affairs. He told was assigned to the Division of East¬ (and former Foreign Minister) Maxim her she deserved a promotion to GS- ern European Affairs, headed by Robert Litvinov to Roosevelt, the State De¬ 14, but that with so much rank she F. Kelley. Over the years, Virginia partment disbanded the Division of should be deputy chief of her office—a worked with and learned from nearly Eastern European Affairs. Responsi¬ position “reserved” for the men com¬ all of the Soviet experts in the U.S. bility for the USSR was turned over ing and going to Moscow and other Foreign Sendee. By the 1960s, most to the European Division. Kelley’s price¬ overseas posts. She eventually got the of her old associates were ambassa¬ less library and files were scattered and promotion anyhow, but without su¬ dors, who listened when their former he was shipped oft'to Ankara. Virginia pervisory responsibilities. “That was colleague had something to tell them. James ended up in the Office of Coor¬ the old Foreign Service,” Virginia says In the days before recognition of dination and Review, the watchdog with a twinkle in her eye, “and no one the USSR, Virginia recalls that the of official prose destined for the world then thought it would ever change.” Division of Eastern European Affairs outside. By 1947, Virginia got her first op¬ was chiefly preoccupied with the dan¬ In fact, Roosevelt’s suspicion that portunity to visit the country she had ger of the spread of communism and the State Department bureaucracy been involved with for 15 years. She the plight of American citizens stuck would undermine his policies toward was on Secretary of State George Mar¬ in Russia. Then came Roosevelt1 s de¬ the Soviet Union was strong enough shall’s delegation to the Moscow For¬ cision to recognize the USSR in 1933. to cause senior department officials to eign Ministers Conference—a lengthy On the eve of the event, Virginia and be wary of assembling too many of the and futile effort to lay the groundwork others in the division typed the final “Kelley crowd” under a single roof for a German peace settlement and exchange of diplomatic notes, with Wil¬ again. Nevertheless, Chip Bohlen halt the deterioration of East-West re¬ liam R. Bullitt, soon to be named brought Virginia back to the Soviet lations. However frustrating for Mar¬ ambassador to Moscow, looking over desk of the European Division in 1940. shall, spending several weeks in their shoulders. Sweeping up the docu¬ It was under Bohlen that Virginia be¬ Moscow—living in the Moskva Hotel ments, he was off to FDR with the gan to take on increasingly substantive across from the Kremlin, working in finished product for signature. responsibilities. “He gave you free rein,” Spaso House, the embassy residence, Recognition came as an unpleasant she recalls, “and allowed me to do a and seeing Ulyanova dance at the Bol¬ shock to some. When she heard of the lot.” Besides, the men were quite con¬ shoi Ballet—was a real opportunity for decision, Jane Bassett, a New England tent to let the only woman on the desk Virginia. patriot who supervised the file room, handle what they saw as the “routine, However, she remained committed ran out of the third floor suite of the frustrating, and unrewarding” cases— to her human rights agenda and pur¬ State-War-Navy Building and down emigration, religious freedom, impris¬ sued it with a persistence that her male

MARCH 1989 45 colleagues genuinely admired. Charles part of Virginia’s personal archive. With God in Russia to Virginia with Stefan, whose first tour to Moscow gratitude for all her efforts. was in 1948-49, recalls that she was a Among the American citizens John Noble was another American “pillar of strength for young officers held in Soviet prison camps swept up in the KGB’s net after the coming into the Soviet field.” Stefan’s at that time were a number war. He and his parents had been assignment in the Moscow consular of individuals who survived caught in Germany during the war, section was to look after the welfare their ordeals and were finally released and he was arrested as an American of American citizens—including the after Stalin’s death to tell the tales of spy when the Soviets occupied Dres¬ thousands being held in prison or other¬ their captivity. After the Molotov- den. Like the others, he spent the next wise being denied permission to leave Ribbentrop partition of Poland in 20 years in Soviet prisons and labor the Soviet Union. “Since Stalin had 1939, Father Walter Ciszek, an Ameri¬ camps under terrible conditions and then, for practical purposes, really rung can Jesuit, decided to join the stream finally was released to the West in down the iron curtain around his em¬ of refugees seeking jobs in the Soviet 1963. It was Virginia who kept track pire, most of my efforts (on behalf of interior so that he could spread his of reports of Noble’s imprisonment American citizens) were fruitless.” faith. Following the German invasion and kept including his name on lists Stefan goes on to recall that “by mid- he was arrested for espionage and spent to be handed over to the Soviets. 1949, notes to the Foreign Ministry the next two decades in prisons and With the exception of Father Ciszek, on individual cases were being ignored, Virginia got little credit from those for and an increasing number of letters to whom she had tried so hard. In part persons wishing to establish their Ameri¬ because of the standard Soviet in¬ can citizenship were being returned, terrogation technique of telling prison¬ stamped with the chilling assertion that ers that they had been abandoned by the addressees had departed, addresses their government and in part because unknown. This was particularly true State Department bashing was an es¬ of persons in the Baltic states.” pecially popular sport during the Mc¬ Using the material collected by Vir¬ Carthy era, outsiders consistently ginia in Washington and by the em¬ downplayed the efforts that had been bassy consular section, Stefan prepared made over the years and gave credit two documents for transmission to the instead to prominent political figures Soviet government. A note transmit¬ who raised some of the celebrated cases ted on October 4, 1949, to Acting publicly. One critic went so far as to Foreign Minister Andrei Gromyko accuse Virginia of intentionally suppress¬ (even then known as “Grim Grom” to ing information on prisoners in the the U.S. embassy) listed 31 American Soviet Union. Nothing could be fur¬ citizens, “most of them women, who ther from the truth; it was persistence were transported under duress to the that caused the Soviets to reverse them¬ Soviet Union by the Soviet military selves and let Americans leave after forces during or shortly after the con¬ years of trying, and persistence was clusion of active hostilities in Eastern the element that Virginia personified. Virginia James Byerly Europe,” believed to be confined in Human rights is now firmly estab¬ the Soviet gulag. A longer aide- labor camps. By 1947 he was declared lished as a central theme of American memoire of December 12,1949, listed legally dead, but Virginia clung to foreign policy, and it is institutionalized American citizens unable to get Soviet rumors from the prison grapevine that in the State Department and Con¬ permission to leave the country for the he was still alive. It was she who made gress. Pursuit of these issues no longer United States. sure his name was included on lists depends on having the right person in Virginia was determined to prod presented to the Soviet government the right place. However, from 1932 the Soviets into taking some action and she who paid attention when until 1965 it was Virginia James Byerly on the U.S. demarche, and the depart¬ Ciszek’s family called for special ef¬ who provided the human face of our ment “reminded” the Soviet ambassa¬ forts. She remembers attending a meet¬ Soviet policy and helped countless in¬ dor in Washington of the issue on ing of State Department colleagues at dividuals—Soviet and American citi¬ January 18, 1950. Finally, the Soviet which she proposed another note to zens—to pursue the cause of freedom. Foreign Ministry deigned to reply in the Soviets on Father Ciszek; one of It was an honor to have worked with a dismissive note to the embassy on the senior officers there advised her to her. □ February 28, 1950. Charles Stefan’s give up since the man was undoubt¬ recollection is that Virginia played an edly dead. She returned to her office, important role in the decision to pub¬ drafted the note, and got it approved. licize the entire exchange, which was In 1964, Father Ciszek was released Robert L. Barry, former ambassador to done in a State Department press re¬ after nearly 25 years of prison and Bulgaria, is detailed to USIA’s Voice of lease of March 3, 1950—still a valued exile. He inscribed a copy of his book America.

46 FOREIGN SERVICE JOURNAL In Memory

JOHN R. LTDEN, a retired Foreign Serv¬ TINA BROCKWAT LAWRENCE, wife of JOHN PARKER ROBINSON, retired AID ice officer, died Christmas day at his retired Foreign Service officer Myron employee, died of heart failure on De¬ home in Kelseyville, California, after Lawrence, died at Loches, France, De¬ cember 8 on a cruise en route to Hong a brief illness. He was 73. cember 31, 1988. She was 70. Kong. He was 68. A native of Pittsburgh, Pennsylva¬ Born in Cleveland, Ohio, Mrs. Law¬ Born in Northampton, Massachu¬ nia, Mr. Lyden studied journalism at rence received a B.A. degree from Our- setts, he attended the Industrial Col¬ the University' of Pittsburgh. He served Lady-of-Good-Counsel College and an lege of the Armed Forces from 1960- in the Merchant Marine during World M.A. in Education from City College 61, after discharge from the U.S. Navy. War II and was a licensed master mari¬ of New York. Before her marriage she He worked in the Marshall Plan and ner. Commissioned in the U.S. Naval worked as a research analyst for the in bilateral U.S. economic assistance Reserve in 1942, he rose to the rank National Security Agency. She served programs, including assignments in of commander and also served during with her husband in Brazil, Haiti, It¬ Paris and Madrid. From 1961-63 he the Korean conflict. aly, France, Morocco, Zaire, and Wash¬ served in AID AVashington, Latin Ameri¬ In 1956, Mr. Lyden joined the For¬ ington, and taught at American schools can Bureau. He was director of AID/ eign Sendee and served as procurement at several of those posts. Santiago from 1963-67, deputy direc¬ and contracting officer in Korea, Laos, Along with her husband, survivors tor of AID/Saigon from 1967-68, di¬ and Thailand, and as port adviser in include a sister, Mrs. James Scott; a rector, AID/Santo Domingo from 1968- Vietnam. brother, Mr. John Sanfilippo; a sister- 73, and director, AID/Saigon from He is survived by his wife, Estelle; in-law, Mrs. John H. Sander; two sons, 1973-75. a son, David, of Marysville, Califor¬ Philip Myron Lawrence in West Ger¬ Survivors include his wife, Jayne nia; two grandchildren and three great many and Joseph Myron Lawrence in Hughes Robinson; three sons and three grandchildren. Massachusetts; a daughter, Mrs. David grandchildren. Stegell in California; and two grand¬ sons.

Foreign Exchange

SHANNON & LUCH’s FREE es¬ PEAKE PROPERTIES LTD.: Bro¬ 2-1/2 baths, washer, dryer, TV, hi- REAL ESTATE timate of the market value of your ker with experience in overseas liv¬ fi, double garage. Seven acres of property', reflecting recent sales in ing will give careful attention to the woods and fields in sight of Mt. Mon- NEED A HOME BASE? Lake of your neighborhood. Just state your management of your home. Special¬ adnock. Historic village and three the Woods, between Fredericksburg home address and tell us what you izing in McLean, Vienna, N. Arling¬ lakes nearby. Two hours from Bos¬ and Culpeper, 50 miles from D.C., have in mind. Act now and also re¬ ton, etc. 220B, 1350 Beverly Road, ton. Well-behaved children very wel¬ offers lake front, golf course, off¬ ceive a FREE copy of the Northern McLean, VA 22101. Tel: 448- come, but no pets. $275/week, but shore homes in community with 24- Virginia Board of Realtors’ FOCUS 0212. tenant must rent whole period. $500 hour security, marina, beaches, report on recent market activity— security deposit. Write James Cur¬ WASHINGTON MANAGE¬ pools, and more. Call Sylvia Bibby, sure to interest D.C. and Maryland ran, RFD 1 Box 738, Hancock, MENT SERVICES: Use our Century 21 Johnson and Glaze- home owners as well. Richard J. Met¬ New Hampshire 03449 or phone TELEX service to inquire about pro¬ brooks, (703)972-1234. calfe, REALTOR; SHANNON & (603)525-6672. Photos on request. LUCHS, 950 HERNDON PARK¬ fessional services for the FS com¬ GOING ABROAD? FSO and wife WAY, HERNDON, VA., 22070. munity serving overseas. Immediate ROSSLYN/WARRENTON Short/ rctuming to die Department this sum¬ OFFICE (703)481-3200; HOME response to your property' manage- Long Term apts. or houses. Fully mer for minimum of two years (703)860-8663. mentneeds. Residential property man¬ furnished, all sizes, all lovely, all con¬ would like to rent your condo or agement is our only business. Call, venient. Lots of high-tech extras. 1 small house in N. Virginia or Mary¬ THINKING OF A VACATION- write, or TELEX Man Beth Otto, Write for reservations & details. S. land. No children, non-smokers; or retirement home in South Caro¬ Washington Management Services, Oper, 9 Laurel Dr., Port Jefferson, we’ll take good care of your home. lina? Call or write ERA Dozier Re¬ 2015 Q St. NW, Washington, DC NY 11777; (516)473-6774; or DC Contact Craig Davidson, Political alty, 442 Main St. North Myrtle 20009, (202)462-7212. TELEX area (703)922-5846 Section, Embassy Stockholm. Beach, S.C. 29582. (803)249- 350136. 4043. WILL YOU NEED A FULLY HILTON HEAD ISLAND—Af¬ FURNISHED apartment five min¬ fordable vacation and/or retirement SHORT TERM RENTALS utes walk from ESI and Rosslyn sub¬ homes. Call Dick Smith toll-free (in PROPERTY MANAGEMENT way? We have first class efficiencies, U.S.), 1-800-247-8147, or write CHARTER MY DUFOUR ’39 IN 1 bedrooms and some 2 bedrooms him in care of ERA Prestige Prop¬ MARKET HOMES PROPERTY THE MED. Call or write J. Sim- and penthouses in River Place. They are completely furnished including erties of Hilton Head, P.O. Box MGMT.: Expertise and personal monds (703)533-9056.3521N Ken¬ cable TV, telephone, all utilities, lin¬ 7426, Hilton Head Island, SC attention to detail are the hallmarks sington St., Arlington, VA 22207. 29938 of our established Northern Virginia ens and parking. Short term leases HOME LEAVE IN NEW HAMP¬ of 1 to 6 months available. Write WASHINGTON AREA HOME firm. Call or write for a description of our professional services. Refer¬ SHIRE WOODS! Fully furnished Foreign Service Associates, P.O. Box OWNERS. Considering selling and equipped private residence of 12855, Arlington, VA 22209- your present home? Time to move ences provided. Jim Fahey, 425 West Maple Ave., Vienna, VA retired FSO available June 15 to 8855. Children welcome. Please up? Or just curious? Chances are August 15, 1989. Four bedrooms, send us dates. you’ll be pleasantly surprised by 22180. MARCH 1989 47 Foreign Exchange

MAINE GETAWAY - Consider a ances parts and repairs, etc. Buy at Castine, ME headquarters for home TAX RETURNS retail plus shipping and handling. PROFESSIONAL SERVICES leave. Rent one or both sides of our Fast and reliable sendee. Just one fully-furnished Penobscot Bay Du¬ FREE TAX CONSULTATIONfor place to contact. Write to us for SCHOLARSHIPS AVAILABLE. plex. Waterviews. Accessible to overseas personnel. We process re¬ prices: U.S. Military Buying Serv¬ Details: “EARS,” Box 1664, Manas¬ Camden, Bar Harbor. Off-Season turns as received, without delay. ice, P.O. Box 7205, Gaithersburg, sas, VA 22110 rates May-June. Two-week mini¬ Preparation and representation by MD 20898-7205, Dave Wallace, mum. Call (202)364-0813 (eves.) Enrolled Agents, avg. fee $195 in¬ Mgr; Ret’d US Park Police officer. Melinda Kimble. cludes return and TAX Trax‘, STUDENT SERVICES unique mini-financial planning re¬ KEY LARGO - Luxury bavfront con¬ view with recommendations. Full INVESTMENTS HOST FAMILIES WANTED •For¬ dominium near Pennekamp Under¬ planning available. Milton E. Carb, eign Students preparing for U.S. col¬ water Park. Private marina, heated E.A., and Barr)' B. De Marr, E.A. INVESTMENTS, ANNUITIES, leges •Washington, D.C. area fami¬ pools, tennis. Fully furnished. $550/ CFP, FINANCIAL FORECASTS, RESIDENTIAL AND INVEST¬ lies *Weekly stipend paid to fami¬ week. Inquire about unit B-306. metro location 933 N. Kenmore St. MENT REAL ESTATE, TAX lies •Homestays of four weeks and Freelancer, Ltd., 103100 Overseas #217 Arlington, VA 22201 PREPARATION, FINANCIAL longer •( ’all (202)362-2505, Inter¬ Highway, Key Largo, FL 33037. (703)841-1040. PLANNING. Free Initial Consul¬ national Language Institute. (305)451-0349. tation. Long Distance Management AFSA TAX COUNSELING: Prob¬ EXECUTIVE CLUB ARLING¬ Services Available. Ex-FSO Mark lems of Tax and Finance: Never a TON AND OLD TOWN ALEX¬ Waldman, PhD, CFP. Investment VIDEO ENTERTAINMENT charge to AFSA members for tele¬ ANDRIA. Immaculate and beauti¬ Planning Services, Fairfax, VA. phone guidance. R.N. ‘Bob' Dus- fully furnished apartments with full (703)352-9100. I WILL TAPE TV programs for sell (ex-AID) enrolled since 1973 hotel services. One-two bedrooms, you. VHS only. Free information. to Tax Practice. At tax work since INVESTMENTS, FINANCIAL some with dens, all with equipped BRITTON, 8703 S.E. Jardin, Hobe 1937 and now still in practice solely PLANNING, Long Distance Man¬ kitchens. Complimentary shuttle to Sound, FL 33455. to assist Foreign Sendee employees agement when necessary. Margaret metro, Rosslyn and Pentagon. and their families. Also lecture M. Winkler, CFP, Assoc. V.P., Legg Health Club and outdoor pool. ‘Taxes' monthly at FSI in Rosslyn, Mason Wood Walker, Inc., 1747 Many extras. Rates within your per AWARDS VA. Office located across from Vir¬ Pennsylvania Ave. NW, Washing¬ diem. Shorter or longer terms avail¬ ginia Square Metro Station, 3601 ton, DC 20006. (202)452-4000, in able. Executive Clubs, 610 Bashford INFORMATION AVAILABLE N. Fairfax Dr., Arlington, VA U.S., (800)792-4411. Lane, Alexandria (703)739-2582, ON ORDERS, MEDALS, DECO¬ 22201. (703)841-0158. (800)525-2582. RATIONS. Write to Association of ATTORNEYS specializing in tax BOOKS St. George, Sylvester, WV 25193. OLD TOWN ALEXANDRIA Vic¬ planning and return preparation for torian Townhouse—completely fur- tire Foreign Sendee Community avail¬ INTERNATIONAL LAW. 17th nished with antiques, modern able for consultation on the tax im¬ through early 20th century books EXCHANGE RATES kitchen and baths. 2 BR; 2 Baths; plications of investment decisions, purchased, sold. Inquiries: Profes¬ Jacuzzi; Off-Street Parking. Avail¬ business related deductions, separate sor Edward Gordon, 80 New Scot¬ CLASSIFIED ADVERTISING IN able by weekend or week. (703)548- maintenance allowances, real estate land Avenue, Albany, NY 12208. THE FOREIGN EXCHANGE is 9654.' purchases and rentals, home leave Telephone inquiries: (518)445- open to any person who wishes to BACK FOR TRAINING? HOME deductions, audits, etc. Contact 2311 or (202)462-4959 (answer¬ reach the professional diplomatic com¬ LEAVE? D.C. TOUR? We are Susan Sanders or Paul Clifford— ing machine). munity. The rate is $1.00 per word THE Washington Metro Area Short- Clifford, Farha, Stanley, & Sanders, per insertion. Telephone numbers YOUR PERSONAL BOOK¬ Term Rental Specialists. Excellent 1606 New Hampshire Ave., NW, and zip codes count as one word STORE AWAY FROM HOME: locations. Wide price range. In Vir¬ Washington, D.C. 20009 (202)667- each. To place a classified ad or to Order any U.S. book in print. Store ginia walk to FSI. In D.C. and Mary¬ 5111 receive information concerning regu¬ credit available. Salmagundi Books land walk to metro. Large selection lar display advertising, write or call TAX PREPARATION BY AN AT¬ Ltd. 66 Main Street, Cold Spring, of furnished and equipped efficien¬ the Foreign Sendee Journal, 2101 TORNEY who is a retired Foreign NY 10516. cies, 1-bedrooms, 2-bedrooms and E Street, NW, Washington, DC Sendee officer and is familiar with some furnished houses. Many wel¬ 20037, (202)338-4045. Deadlines Foreign Service problems. M. Bruce come pets. are approximately 5 weeks before Hirshom, Esquire, Suite E, 307 Ma¬ ATTORNEYS EXECUTIVE HOUSING CON¬ publication date. ple Ave. West, Vienna, VA 22180. SULTANTS, INC., Short Term (703)281-2161. Rex. R. Krakauer, Esq. SEE MY Rental, 7315 Wisconsin Avc., Suite NOTICE ON PAGE 10. WILLS 1020 East, Bethcsda, MD 20814. TAX PREPARATION AND AD¬ (301)951-4111. Reserve early! VICE by T.R. McCartney E.A., (ex- HAVE YOUR WILL REVIEWED- Avoid disappointment! GRIEVANCE COUNSELING: Re¬ FS) and staff. Enrolled to practice and updated by an attorney who is before the IRS. Business Data Corp., tired Senior Foreign Service Offi¬ WASHINGTON D.C. APART¬ a retired FSO. M. Bruce Hirshorn, P.O. Box 1040, Lanham, MD cer attorney who served on Griev¬ MENTS. Short or long term. Decora¬ Esquire, Suite E, 307 Maple Ave. 20706-1040. (301)731-4114. ance Board staff, will assist griev¬ tor furnished, fully equipped: micro- ance presentation. Richard Greene, West, Vienna, VA 22180. (703)281- wave, cable, phone, pool, spa. Two 130 Spruce St., Princeton, NJ 2161. blocks FSI and Metro, 5 min. State, SHOPPING SERVICE 08540. (609)924-3765. Georgetown. Photos. (703)522- 2588 or write Adrian B.B. Templar, Sendng US gov’t employees assigned 1021 Arlington Blvd., PH1214, Ar¬ overseas. Whatever you want, let us lington, VA 22209. Member AFSA. find it for you.Automotive parts and supplies, household goods, hard¬ ware, cosmetics, toys, small appli¬ 48 FOREIGN SERVICE JOURNAL Domestic Postings

Sales, Rentals, Investments and Careful, Expert Property Management D.C., Maryland, and Virginia

BARBARA ABEILLE PATRICIA GARRISON BOORMAN KEVIN CAULFIELD BETTY GELDARD ♦CHRISTINA GRIFFIN WENDY GUILLOU MARY HANSTAD CAROLE B. HERS .MAN ♦JOSEPHINE HOLLIDAY ♦MARIELLA LEHFELDT ISABELLE MACKIE ♦LYNN MOFFLY MAGRUDER MARILYN J. MAN GAN ♦JOHN Y. MILLAR A professional and personal service tailored MARGARET MOSELEY DIANE NOBLE to meet your needs in: JOHN ALDRICH NOBLE SUZY H. NORTH • Property Management SUSAN RAEHN CAROLINE RAYFIELD • Sales and Rentals DOUG SCHOCKE • Multiple Listings ♦ROBERT W. SKIFF ♦JOHN TURNER • Real Estate Investment Counseling ALEX ULLRICH RICHARD S. WILLIAMS VERA WILLIAMS Our staff includes: Donna Courtney, Sales Manager Fran Palmeri, Property Manager MGMB, inc. Realtors Donna Linton Bill Meeks Barbara Ratigan Randy Reed 362-4480 All presently or formerly associated Foxhall Square • 3301 New Mexico Avenue with the Foreign Service. Washington D.C. 20016 4600-D Lee Highway Arlington, Virginia 22207

'Foreign Service (703) 525-7010 (703) 247-3350 Serving Virginia, Maryland and D.C.

RELOCATING? To the Washington, D.C. Metro area or any¬ where in the USA? We can provide you with complete information about your new commu¬ nity. Ask our relocation department for a free relocation package. RENTAL MANAGEMENT? FARAH McCARD We can find the best tenants for your home COMING HOME? and provide a variety of management services Let our experience work for you. We are vet¬ tailored to your needs. Ask our property man¬ erans of numerous international relocations agement department for an information pack¬ and appreciate your special housing needs. age. Call Farah or Ann or write to Attn of Trust all your housing needs to “STATERELO” for a FREE HOUSING KIT. the real estate team backed by Better Homes and Gardens. Merrill Lynch Realty

FRAZEE,/ 1 Real Estate Division REALTORS® ' A -*-and Gardens® 6045-1 Burke Centre Parkway Sales • Rentals • Property Management • Relocation Burke, Virginia 22015 1801 Rockville Pike Rockville, MD 20852 (300881-9000 (703) 250-1800 CALL TOLL FREE 1-800-842-MOVE Toll Free: 1-800-627-3546 Domestic Postings

Returning to Notes Washington can be on quite a shock. Prices have risen Real Estate considerably over By John Clunan the past two years and finding an af¬ What Is Buyer fordable adequate Brokering? home can be a troublesome affair. Most buyers in the Washington area enlist a real estate agent to assist them in this endeavor. What a lot of buyers do not realize is that “their” agent typically represents the seller. Both the listing and selling real estate agents have a fiduciary responsibility to the seller be¬ cause s/he pays the commissions. How¬ ever, this circumstance also leaves the buyer without representation when a suit¬ able property is located. These conditions in the real estate industry have created a demand for real estate agents who will represent and be paid by the purchaser. This is called buyer brokering. Buyer brokering, while commonplace in the commercial arena and other residential markets, is just beginning to take hold in the Washington area though there are many benefits to the buyer. Among these are: 1) a knowledgeable representative 2) a motivated representative 3) a larger market (because it includes houses that are for sale by owner and unlisted properties) 4) a fiduciary responsibility from the buy¬ ers’ representative. The major drawback is that the pur¬ chaser must pay the broker a commission. Depending on how effectively the broker represents the buyer, the broker’s com¬ mission is usually by a reduction in the ATTENTION: REALTORS sales price equal to if not greater than the An ad in the Foreign Service Journal is an effective way broker’s commission. to reach a mobile audience that needs your services. 60% of our readers invest in real estate other than primaiy residence Read the next edition of Notes on Real 62% are homeowners 75% of those own a home worth over $100,000 Estate to find out how to select a good ID the last five years broker. 61% have used the services of a real estate agent 49% have rented temporary living accommodations 55% have rented holiday accommodations You can make a direct and profitable approach to the Foreign Service market by advertising in its own journal. LewtSi' , JOANNE PERNICK Publishers Notice: All real estate advertised herein is subject to the Federal Fair Housing Act of 1968 which makes it illegal to advertise any preference, limitations, Silverman. I or discrimination based on race, color, religion, sex, or national origin, or intention ■!AITO*S 4801 Massachusetts Ave., N.W. to make any such preferences, limitation or discrimination. We will not knowingly accept any advertising for real estate which is in violation Washington, D.C. 20016 _ . of the law. All persons are hereby informed that all dwellings advertised are Tel. 202-363-9100 available on an equal opportunity basis. Domestic Postings

LONG & FOSTER, REALTORS® Let e?(perience zvortifor you ANNE M. CORRERI AMC Let the experience of dedicated, REALTOR® knowledgeable realtors work Licensed in D.C. and Virginia for you, whether you are buying or selling. LONG & FOSTER, REALTORS® Gordon or Loretta Noffsinger 7010 Little River Turnpike D.C. Office: 363-9700 Annandale, VA 22003 VA Office: 750-2800 Better Homes Realty CERTIFIED RESIDENTIAL SPECIALISTS Home: 256-9248 6045 Wilson Blvd., Members: Better Homes Chiefs Club Arlington, VA 22205 NVBR Million Dollar Sales Club Former Foreign Service and Foreign Service Spouse Top Producer Consultant on residential and investment properties The largest Realtor exclusively serving No. Virginia 03 ® Off: (703) 532-5100 Ho: (703) 243-7889

LEASING AND PROPERTY MANAGEMENT BY Stuart & Maury, Inc. A Veteran Realtors Results since 1956 Foreign Service Officer and Professional Realtor For over 30 years we have professionally ready to assist with your MANAGED AND LEASED real estate needs and pro¬ thousands of residential & condominium properties. jects. Call or write — no ob¬ Our experience—Personal Inspections, ligation. Monthly Statements and In-house Guidance— TAKE THE WORRY OUT OF RENTING WILLIAM W. STRUCK If you are considering renting your 1311 Dolley Madison Boulevard HOME OR APARTMENT McLean, Virginia 22101 [SHANNON & LUCHS| Call Susan Bader today for more information Office: (703) 893-1500 (202) 244-1000 Residence: (703) 356-7635 □ tgi (uz* 5010 Wisconsin Avenue, N.W. Excellent„ ,, . references, upon request Washington, D.C. 20016

ASK ANYTHING YOU WANT TO KNOW ABOUT MOVING WITH 14 MOVES IN 27 YEARS AS A RALPH E. LINDSTROM FOREIGN SERVICE WIFE BETTY M. MATTHEWS Experienced Realtor, FSO Retired REALTOR® understands your needs WASHINGTON BOUND? Ask me for a free _ Write to her at: advance survey of available MD/VA/DC housing suited to your needs and financial capabilities. Mount Vernon MOVING? Call me about prospects for sale of your E A L T Y INC. present house, purchase of other housing locally or 4420 NORTH FAIRFAX DRIVE ARLINGTON, VIRGINIA 22203 nationwide. OFF: (703) 527-3300 RES: (202) 338-1722 BEGG Inc. Guaranteed Sales Program Home Warranty Protection Plan 5101 Wisconsin Ave. NW Office: (202)686-9556 America’s No. 1 Relocation Network Washington, D.C. 20016 Home: (202)686-7340

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As an Associate Broker and wife of a McGrath Management Corp. Anne Gomez P 0. BOX 3065. OAKTON. VIRGINIA 22124 • (703) 2816700 Foreign Service Officer, Anne can better Experienced Staff Providing Personalized Service assist you with buying a home or investment property Specializing in the NORTHERN VIRGINIA AREA or in the marketing of a property you already own. Property Management /"CACALLUS Residential Sales DAY OR NIGHT WRITE TO: Investment Properties M.B. KIRN Real Estate Assoc., Inc. 2970A Chain Bridge Rd. Oakton Virginia 22124 Attn: Anne Gomez Property Management (703) 281-6700 4620 Lee Highway • Suite 210 • Arlington, VA 22207 Residential Sales (703) 938-5050 (703) 527-8500 or (703) 979-1040 Fax Machine# (281)281-4196 Proposed AFSA bylaw amendments president. These proposed amendments to the AFSA Draft Amendment C: Article IV Draft Amendment B: Article IV bylaws will be referred to the member¬ of the Bylaws is amended by amend¬ of the Bylaws is amended by adding ship along with the ballots which will ing the first sentence of paragraph be sent to members in mid-May. AFSA the following new paragraph 11: 4 to read: “The constituency vice members will be asked to vote for or “Board members shall be resident presidents and representatives shall against each of the proposed amendments. in the Washington area within 60 be elected from constituencies com¬ Daniel O. Newberry days of appointment to Board office posed of the members of the For¬ Chairman, AFSA Elections Committee and shall remain resident in the Wash¬ eign Service in each of the depart¬ ington area throughout their term ments or agencies to which Chapter The Governing Board of the Ameri¬ in office. Board members who cease 10 of the Foreign Service Act of can Foreign Service Association to be resident in the Washington 1980 applies, pursuant to section hereby proposes the following amend¬ area during their term of office shall 1003(a); provided that chiefs of mis¬ ments to the Bylaws. submit their resignation to the Gov¬ sion and ambassadors at large shall Draft Amendment A: Article IV erning Board.” be members of the Department of of the Bylaws is amended by amend¬ Statement of Explanation: This State constituency, and all former ing the third sentence of paragraph amendment guarantees efficient op¬ members of the Service shall be mem¬ 4 to read: “Each constituency having eration of the Governing Board by bers of the retired constituency.” a minimum of 100 members as of requiring that Board members reside Statement of Explanation: This the last working day of the calendar in the Washington area. Requiring amendment serves to clarify incon¬ year before the election shall be enti- that Board members maintain resi¬ sistencies between paragraph 3 and ded to a constituency vice president.” dence in the Washington area makes 4 of the Bylaws. Paragraph 3 states Statement of Explanation: This it possible for Governing Board Mem¬ that constituency vice presidents are amendment allows for the election bers to attend Board meetings and elected by the entire membership, of a retired constituency vice presi¬ other AFSA functions on a regular while paragraph 4 currently states dent, giving a more active voice in basis. The Washington area is de¬ that constituency vice presidents are AFSA to a growing constituency of fined in Article V, paragraph 4 of elected only by members of that con¬ retired members. Due to the evolv¬ the Bylaws as the District of Colum¬ stituency to which they belong. In ing structure of the Foreign Sendee, bia, Maryland, Virginia and West practice, constituency vice presidents the number of members who retire Virginia. Members may run for Board are elected by the entire member¬ early has increased dramatically. The membership while resident elsewhere, ship. Therefore this amendment elimi¬ needs of these members can be more as long as they relocate to the Wash¬ nates the inconsistency in the Bylaws effectively addressed with the addi¬ ington area within 60 days from the and reflects actual practice. tion of a retired constituency vice time they assume Board office.

The American Foreign Service Association bylaws as amended July 1985

Article I, Purposes and Objectives vises, bequests, and funds as otherwise Association and its Members. 1. To further the interests and well being donated to this Association by any per¬ Article II, Membership of the Members of the Association; son or persons, group or groups, and 1. American citizens who are or were 2. To represent the Members of the to utilize or dispose of the same for the Members of the Foreign Service as de¬ Foreign Service in labor-management rela¬ purposes of this Association, or, as di¬ fined by Section 103, paragraphs (1) tions and grievances; rected by said other associations or said through (5), of the Foreign Service Act 3. To work closely with the foreign other donors; of 1980, or predecessor or successor affairs agencies, other interested in¬ 5. To publish the FOREIGN SERVICE legislation, are eligible to become Mem¬ stitutions, and individuals to strengthen JOURNAL and ASSOCIATION NEWS as the bers of the Association. the ability of the foreign affairs commu¬ official organs of the Association; 2. Any person eligible for Membership nity to contribute to effective foreign 6. To maintain and operate a scholarship may be so admitted upon application policies; fund or funds or such other funds as are and payment of dues, and shall be per¬ 4. To accept and receive gifts, grants, commensurate with the purposes and mitted to maintain Membership so long devises, bequests, and funds from such objectives of this Association; as he or she remains eligible and main¬ other voluntary associations as may be 7. To carry on such other activities as tains current dues payment; only Mem¬ created by Foreign Service personnel or the Association may deem practicable bers shall have voting and other rights to accept and receive gifts, grants, de¬ in order to serve the interests of the regarding the conduct of the affairs of

52 FOREIGN SERVICE JOURNAL the Association. entire Membership. They shall have the fore making decisions, and inform the 3. The board shall establish terms and power and duties specifically conferred Membership of its decisions on important conditions for affiliation with the Asso¬ on them by applicable law and regula¬ matters affecting the Membership, the ciation, other than Membership, for per¬ tion, these bylaws, and the Governing Foreign Service, and the Association. sons not eligible for Membership. Indi¬ Board. The board shall report to the Member¬ viduals closely associated with or inter¬ 4. The constituency vice presidents and ship annually on its management of the ested in the foreign affairs of the United representatives shall be elected by and Association affairs and the Association’s States may become associates upon the from constituencies composed of the Mem¬ financial position, and its plans and acceptance of their applications by the bers of the Foreign Service in each of budget for the succeeding year. The board board and the payment of dues. the departments or agencies to which shall also facilitate communication from 4. The board may invite to become Chapter 10 of the Foreign Service Act any member(s) to the Membership, or honorary Members for specified periods of 1980 applies, pursuant to Sec. 1003(a); any practicable portion thereof, on As¬ such representative American citizens as provided that chiefs of mission and sociation business, at the expense of the they deem proper. Honorary Members ambassadors at large shall be Members member(s) initiating the communication. shall be exempt from the payment of of the Department of State constituency, 7. The board shall meet at least once dues. and all former Members of the Service each month. The board shall also meet 5. The rates of dues shall be set by the shall be Members of the retired constitu¬ to consider a particular subject or sub¬ board provided that the dues shall not ency. Representatives shall be elected jects upon the written request of the be increased, or an assessment levied, by the appropriate constituency Mem¬ president, one-third of the Members of except after approval by a majority of bers. Each constituency, with the excep¬ the board, or chapter or 25 Members, those Members voting in a secret ballot tion of the retired constituency, having submitted at least five days prior to the referendum. a minimum of 100 Members as of the date of the proposed meeting. Meetings 6. Members may be expelled or oth¬ last working day of the calendar year shall be announced and open to Mem¬ erwise disciplined by the Association for before die election shall be entided to a bers and associates; provided that the engaging in conduct which discredits constituency vice president. Each con¬ board may adopt regulations to preserve or brings into disrepute the Association stituency shall be entided to one repre¬ good order, and may go into executive or the Foreign Service, or taking court sentative for each 1000 Members or session. Minutes, except of executive ses¬ or administrative agency action against fraction thereof as of the last working sions, shall be available to Members and the Association without exhausting all day of the calendar year before the elec¬ associates. reasonable internal administrative proce¬ tion year, provided that any constitu¬ 8. The board shall assure that persons dures which the board shall establish. ency which for three consecutive months affiliated with communist or other totalitar¬ However, no member may be disciplined has a Membership which would on the ian movements, and persons identified by the Association unless such member above date have entided it to an addi¬ with corrupt influences, are excluded from has been served with written specific tional representative shall have an addi¬ any position of authority at any level of charges, given a reasonable time to pre¬ tional representative, who shall be ap¬ the Association. pare a defense, and afforded a full and pointed by the Governing Board. If subse¬ 9. The board shall assure that persons fair hearing. The board shall establish quently during that board’s term that in any position of authority at any level procedures for such disciplinary actions. constituency has for three consecutive of the Association are prohibited from Article III, Rights of Members months a Membership which no longer business or financial interests or activi¬ Every member shall have equal rights would entitle it to an additional repre¬ ties which conflict with their duties to and privileges within the Association, sentative, that constituency will lose such the Association and its Members. freedom of speech and assembly, and all additional representative, who shall be 10. The board shall maintain fiscal integ¬ other rights guaranteed by law, execu¬ the representative most recendy appointed rity in the conduct of the affairs of the tive order, and regulation. by the board. Association, including provisions for ac¬ Article IV, The Governing Board 5. The Membership has the right to counting and financial controls, and regu¬ 1. The property and affairs of this Associa¬ recall any officer, and the Membership lar financial reports or summaries to tion shall be managed by a Governing of any constituency has the right to Members. Board composed of officers and repre¬ recall any representative in whom said Article V, Internal Organization sentatives who shall be elected biennially Membership has no confidence. Two- 1. There shall be a Standing Committee for terms of two years in the manner thirds of the Governing Board Members on Elections which shall have full power prescribed in Article VI from among the or five percent of the Membership con¬ within the Association, subject to appli¬ Association’s Members. Each board mem¬ cerned may recommend such recdl by cable law and regulation, these bylaws, ber shall have one vote. written request and supporting state¬ and the Association budget, to conduct 2. Vacancies occurring during the term ment to the Standing Committee on regular elections for Governing Board of the board shall be filled by the board Elections. The committee shall submit Members, any election for the recall of by appointment from the Membership, the recall proposal, accompanied by such a Governing Board member, any refer¬ provided that constituency vice presi¬ supporting statement and by statements, endum, and any vote on amendments dents and representatives shall be chosen if any, submitted in favor of the board to these bylaws. The committee shall from the constituency of the vacancy as member in question, to the Membership establish regulations for these procedures defined in Article IV(4). concerned for secret ballot election. and interpret relevant sections of the 3. The officers shall be a president, con¬ 6. The Governing Board shall, to the bylaws, resolve disputes, and determine stituency vice presidents, a secretary, and extent practicable, keep the Membership and declare results. The committee shall a treasurer, elected by and from the currently informed, seek its advice be¬ be composed of at least five Members,

MARCH 1989 53 A E O N 19 8 9

including a chairperson and including 2. Candidates may make known their Article VII, Referendum at least one member from each constitu¬ candidacies or Members may nominate The Membership may', by majority vote ency. The Governing Board shall ap¬ candidates in writing to the Standing in a referendum, determine the Associa¬ point the chairperson and Members of Committee on Elections not later than tion’s policy on any matter within the the committee for two-year terms begin¬ 30 days following the date of the elec¬ board’s authority. One-third of the board, ning July 15 of each even-numbered tion call for officer or representative po¬ 10 chapters, or 100 Members may initi¬ year, and shall fill vacancies occurring sitions. Candidacies may be filed for ate a referendum by' submitting a spe¬ during such term, but may not remove individually or in slates. Candidacies must cific proposal to the Standing Commit¬ committee Members except on recom¬ be accompanied by evidence of eligibil¬ tee on Elections. If the committee deter¬ mendation of the committee, or in ac¬ ity as of June 30 of the year of the mines that the proposal is within the cordance with disciplinary procedures. election. authority of the board, it shall submit Committee Members shall be impartial 3. The Standing Committee on Elec¬ the proposal, accompanied by' statements, in the performance of their duties. While tions shall verity the eligibility of candi¬ if any, from the proponents and oppo¬ serving on die committee, and for six dates for each position, and announce nents of such proposal, to the Member¬ months thereafter, they shall not be board publicly the names of the candidates on ship in a referendum. Members, or candidates or nominators or about April 1. Article VIII, Amendments thereof, or accept appointment to the 4. Pursuant to such regulations as it 1. One hundred Members or the board chair of any odier committee. shall prescribe, the committee shall re¬ may propose an amendment to these 2. Standing committees for each of the ceive campaign statements from can¬ bylaws by submission to the Standing constituencies shall have primary respon¬ didates and/or slates and distribute them Committee on Elections. Each such pro¬ sibility, subject to the overall direction to the concerned Membership at Asso¬ posal shall be accompanied by a short of the Governing Board, for the interests ciation expense, and shall, during a cam¬ statement of explanation. of Members of said constituencies. The paign period of not less than 30 days, 2. The committee shall promptly cir¬ chairperson and Members of each such facilitate die distribution of additional culate to the Membership each such pro¬ committee shall be appointed by the material related to the election which posed amendment and statement in ex¬ Governing Board from among the Mem¬ candidates and/or slates and/or other Mem¬ planation by publication in the FOREIGN bers within each such constituency. bers wish to distribute at their own SERVICE JOURNAL or ASSOCIATION 3. The Governing Board shall appoint expense. Those initiating such material NEWS. For 45 days following the date the chairman and Members of the JOUR¬ shall assume full legal responsibility for of publication of the proposal the com¬ NAL Editorial Board, who shall serve at its contents. mittee shall accept statements of appro¬ the pleasure of the board, and who, 5. The official ballot bearing the names priate length submitted in opposition under the general direction of the board, of all qualified candidates, slate identifica¬ thereto, provided each statement is signed shall be specifically responsible for die tions when applicable, and voting in¬ by not less than 10 Members, and no publication of the FOREIGN SERVICE structions shall be mailed to each mem¬ two statements shall be signed by the JOURNAL. The yearly dues shall include ber on or about May 15. same member. Further, die committee a payment of at least $5.00 for a subscrip¬ 6. Each member may cast one vote for shall commence within 90 day's follow¬ tion to the FOREIGN SERVICE JOURNAL. each officer position and, in addition, ing the date of publication of the pro¬ 4. The Washington Membership shall each member may cast one vote for each posal, and shall conclude within 45 days consist of all Members resident in or representative position available in the thereafter, polling the Membership on assigned to the Washington area (the member’s constituency'. Members may the proposal. The committee shall pro¬ District of Columbia, Maryland, Vir¬ vote for candidates as individuals or as vide to the Membership, together with ginia, and West Virginia). The Govern¬ a slate, or may write in the name(s) of the ballots, the statements in opposition ing Board shall call a meeting to deal any member(s) who fulfills the eligibility accepted by it in accordance with this with a specified agenda at the written requirements as of June 30 of the elec¬ article, as well as statements to be fur¬ request of one-fourth of the board, or tion year. nished by the proponents. 100 Washington Members. Such a meet¬ 7. The secrecy of each member’s vote 3. Should Members wish to distribute, ing may make recommendations to the shall be guaranteed. at their own expense, additional state¬ board on any matter within the board’s 8. The Standing Committee on Elec¬ ments regarding a proposed amendment, authority. tions shall count on or about July 1 all the Association shall make available to 5. Members may organize chapters, sub¬ ballots received at the Association as of them on request the Membership list or ject to regulations to be issued by the the close of business the last working address labels. In such case, Members board, to carry out the purposes of the day of June. Candidates or their repre¬ will reimburse the Association for all Association. Chapters shall adopt by¬ sentatives may be present at the count¬ related expenses. 4. The adoption of a laws, subject to the approval of the board. ing and challenge the validity of any proposed amendment will require the The board shall delegate such authority vote or the eligibility of any voter. affirmative votes of not less than two- to such chapters as it deems necessary. 9. The Standing Committee on Elec¬ thirds of the valid votes received. Article VI, Elections tions shall decide all questions of eligi¬ Article IX, Parliamentary Authority 1. The standingbility andCommittee declare electedon Elections the candidates The Association’s parliamentary author¬ shall issue an election call to all Members receiving the greatest number of votes ity shall be the most recent edition of in the February FOREIGN SERVICE JOUR¬ for each position. Robert’s Rules of Order Newly Revised; NAL and/or ASSOCIATION NEWS, pre¬ 10. The new officers and representatives except as otherwise provided by applica¬ scribing the terms and conditions of the shall take office on July 15. ble law and regulation, these bylaws, and election and soliciting candidacies. the Governing Board.

54 FOREIGN SERVICE JOURNAL A F S A ♦ NEWS

AFSA discusses Polygraph regulations finalized

'Fly America' Negotiations were recently com¬ Then-Secretary of State Shultz pleted with the department on the made specific changes to the pro¬ AFSA has initiated discussions proposed polygraph testing program. posed plans that further limit the use with the department and Congress As reported in the February AFSA of polygraph testing by requiring on the Fly America Act, which re¬ News, the program will have an ex¬ that a test used for the purpose of quires U.S. government personnel tremely limited scope that would cur¬ exoneration be requested by the em¬ to use American carriers when trav¬ rently include no more than 13 ployee rather than offered by a de¬ eling abroad. Renewed concern over department employees. The de¬ partment official. this legislation was prompted by the partment would authorize polygraph During the negotiations AFSA recent crash of Pan Am flight 103. testing under three specific circum¬ asked on more than one occasion Many posts have cabled AFSA stances. whether the program proposed by on this issue, arguing that Fly Amer¬ The first is during a criminal, coun¬ the department would be likely to ica restrictions are too stringent and terintelligence, or personnel investi¬ include communications personnel or needlessly jeopardize the lives of U.S. gation “after all other reasonable in¬ personnel from the Bureau of Intelli¬ government employees, in that U.S. vestigative steps had been taken.” gence and Research or the Bureau carriers are among the most frequent The second is when an employee of Management. AFSA was repeat¬ targets of terrorist attacks. requests the test in order to exoner¬ edly assured that there were no plans AFSA continues to discuss this ate himself from alleged actions for to extend the program to the offices matter with department officials, and which he is being investigated. The listed above. AFSA continues to dis¬ is in the process of bringing it before third is when an employee volun¬ agree with the need for polygraph the appropriate congressional com¬ teers to work for an intelligence testing, but agreed to the regulations mittees. It is difficult to assess at this agency that requires polygraph test¬ because the limited scope of the pro¬ point whether it will be productive ing or volunteers to participate in gram will provide employees and to seek amendment of the Fly Amer¬ programs carried out jointly with AFSA a basis on which to challenge ica Act, but at a minimum we expect employees of the intelligence com¬ any attempt to extend the program Congress to be receptive to a less munity. in the future. rigid determination of when it is permissible—due to security threats— to allow temporary suspensions of Negotiations near close Fly America regulations. AFSA spoke recently with As¬ AFSA is nearing the close of nego¬ board investigations. We have suc¬ sistant Secretary' for Diplomatic Se¬ tiations with the department on cessfully gained concessions from curity Robert Lamb, who said that regulations governing accountabil¬ the department in providing ade¬ his office is reviewing the security ity review boards. As reported in quate time for witnesses to obtain measures taken by American carriers. the December AFSA News, the representation prior to question¬ He also stated that the procedures department recently recognized ing and expediting any necessary for alerting posts to specific terrorist AFSA’s right to negotiate these security clearances for these repre¬ threats are being reviewed. Mean¬ regulations following an institu¬ sentatives. We are also working time, the Bureau of Economic Af¬ tional grievance decision in AFSA’s toward agreement on the issue fairs will continue to inform eco¬ favor. of reasonable time limits between nomic officers at posts about terror¬ The focus of AFSA’s efforts in the occurrence of an incident and ist threats to be relayed to local civil these negotiations has been pro¬ the decision whether to convene aviation and security officials. tecting the rights of individuals a board investigation. Negotia¬ Individual posts already have a questioned as witnesses during the tions should be concluded within certain degree of discretion in waiv¬ course of accountability review the next month. ing the Fly America requirements. The department’s position is that in flag carriers between two points disembark at the nearest interchange cases where there is a specific terror¬ abroad. However, use of foreign car¬ to the point of origin and continue ist threat, individual posts have the riers is limited to travel between those the journey to the United States authority to approve use of foreign two points, and the traveller must aboard an American flag carrier.

MARCH 1989 55 Tax allowance for USUN employees Junk mail hinders pouch delivery Junk mail is a problem which The Direct Mail Marketing As¬ The tax burden facing many depart¬ continues to impede pouch serv¬ sociation (DMA) can excise names ment employees posted at USUN ice. Although State’s mail room from a list of over 3,500 compa¬ will be partially cased as a result of has implemented a policy of throw¬ nies and distributors. This is a a new housing tax allowance plan. ing out clearly unsolicited mail, service provided free of charge As reported in the September AFSA large quantities are still sorted and by die DMA. DMA can be contact¬ News, the IRS recently ruled that the distributed. Unfortunately, there ed at: Direct Mail Marketing allowance received by many employ¬ are several impediments to clean¬ Association, 6 East 43rd Street, ees at this crucial mission is taxable ing up the system, most notably New York, NY 10017, ATTN: income. Because of the high cost of the fact that some people enjoy Mail Preference Sendee. Alterna¬ housing in the New York metropo¬ receiving unsolicited catalogs and tively, the DMA can be contacted lian area, this ruling places a severe flyers. Moreover, it is often diffi¬ by phone at (212) 689-4977. burden on many individuals. cult to determine the difference The department also suggested In response to the department’s between solicited and unsolicited that employees leaving post ad¬ refusal to negotiate the regulations mail. Some junk mail does slip vise mail order companies of their concerning this issue, AFSA filed through, especially to posts with forthcoming change of address. an institutional grievance against the APO drop boxes. It was also suggested that com¬ department asserting its right to bar¬ AFSA has consulted on this munication program officers send gain. Subsequently, the department issue with the chief of pouch op¬ form letters to bulk mailers once decided to adopt an allowance plan erations, who suggested several an employee has left post. that incorporates most of AFSA’s ways in which employees overseas AFSA will continue to push concerns. The department plan will could facilitate the effort to re¬ the department to improve the grant an allotment to employees who duce junk mail. First, employees pouch system, and would appreci¬ use the housing allowance to offset should try to have their names ate any suggestions employees may the increased tax burden resulting removed from junk mailing lists. have. from the recent IRS ruling.

Membership Your AFSA post representative Mari Radford Membership Coordinator

Last month, all grievance guidelines and more. responsibility is also enclosed. AFSA posts We’ve included a copy of the 1988 For all of our chapters that don’t should have re¬ Annual Report (reprinted from the have a current post representative • ceived an up¬ November issue of the JOURNAL). (we currently have only 119 certified dated copy of Take a look at the issues we dealt post reps out of 246 posts), AFSA the AFSA Chap¬ with, how your dues were spent and needs some help! All we ask is that ter Manual. This new programs developed for AFSA AFSA members at post call an elec¬ grey and blue members. You will also find reprints tion, and after selecting a representa¬ folder, held by the post representative, of our 1988 Tax Guide and guide¬ tive, write or cable AFSA Washing¬ contains vital information and is avail¬ lines for terrorism compensation. ton with the results so that we can able to all AFSA members. Do you have a question about begin the certification process. The In addition to historical and or¬ AFSA insurance plans or your other post representative must be from ganizational background, the chap¬ membership benefits? Consult your State or AID (because negotiating ter manual contains descriptive pro¬ AFSA post representative and the issues will be involved and AFSA gram information, such as how to chapter manual. Extra brochures and currently is sole representative for form a chapter, a model charter, regu¬ applications are available there. Still only these two entities of the For¬ lations governing chapters, post rep¬ have questions? Call AFSA directly— eign Service), and cannot hold a resentative responsibilities, AFSA a complete staffing list with program confidential or management position.

56 FOREIGN SERVICE JOURNAL State Standing Committee A new State vice president

Evangeline Monroe the early 1970s, he was among a department to encourage a broader group of younger officers who helped approach to personnel issues. The Life in the For¬ turn AFSA into an effective repre¬ Precepts for Promotion Agreement eign Service does sentative and bargaining agent for was strengthened because the com¬ not roll along the Foreign Service. More recently mittee included members who smoothly, rather he found time along with his duties brought a perspective that was unique it proceeds in as an office director in the Bureau to their skill group. I am particularly bits and chunks of East Asian and Pacific Affairs to pleased that we have begun the proc¬ with oftentimes monitor the many ongoing negotia¬ ess of bringing greater flexibility into abrupt transi¬ tions and professional interests of the cone system through the Skill tions from one post or assignment AFSA. Code Change Agreement. The open to another. One bit has drawn to a As State vice president, Mr. assignments process has not changed close for me somewhat earlier than Schmitz will help lead a first rate substantially, but this year at our expected. An ongoing assignment re¬ AFSA staff. AFSA is fortunate in request the department has provided quires that I resign as State vice being able to attract a dedicated more detailed information to em¬ president before the end of my term. group of employees, most of them ployees on how assignments are Fortunately for AFSA, the transition young and with no previous rela¬ made. We concluded an agreement from one vice president to another tionship to the Foreign Service, who that will limit the use of polygraph should be eased by the experience have made our interests theirs and tests to the bare minimum. and dedication of Charles Schmitz, who work long and hard to protect Changes in the department’s man¬ who has accepted the AFSA govern¬ those interests. I am also pleased to agement team will provide new op¬ ing board’s appointment as State vice turn over to Mr. Schmitz the ste¬ portunities and challenges to expand president effective February 27, 1989. wardship of a growing AFSA State consultations so that the Foreign Serv¬ He will serve until July 15, when the membership. ice can have a stronger voice in its new governing board takes office. Mr. Schmitz will have an active own management. The State Stand¬ Charles Schmitz, an MC on tem¬ State Standing Committee that in¬ ing Committee has begun, in consul¬ porary detail to the United States cludes specialists and generalists rang¬ tation with AFSA members, the de¬ Mission to the United Nations, has ing in grade from FP-6 to MC. I velopment of a basic personnel pro¬ been an active member of the State owe the State Standing Committee posal. The personnel proposal and Standing Committee since July 1987, a vote of thanks for its production the implementation of a broader pub¬ and a State representative to the gov¬ of articles and position papers that lic relations campaign will be among erning board since September 1987. helped AFSA convince Congress not the items of unfinished business that His interest in and willingness to to cut the State budget in 1988. The I leave to Mr. Schmitz. serve AFSA predates this board. In committee has also worked with the Scholarships Investing in the future Cristin K. Springet Mrs. Shultz, who have made many AFSA/AAFSW Merit Award win¬ Scholarship Administrator contributions to the Scholarship Fund ners in 1976, and his donation is “to throughout the years. As a result, the program which helped fund my I would like to we have been able to establish the college studies.” From this gift, we take this oppor¬ George and Helena Shultz Scholar¬ are able to award a scholarship this tunity to thank ship Award, the first recipient of year in the name of Dwight’s grandfa¬ all those who con¬ which will be named this year. Their ther, Ambassador Sheldon Mills. tributed to the support is an investment in the fu¬ Dwight has made a contribution in AFSA/AAFSW ture of Foreign Service juniors and the tradition of public service which Scholarship we hope that Secretary and Mrs. is integral to the Foreign Service. Fund in 1988. Shultz have established a precedent Each person who has contributed In this column, however, I am hon¬ which will be repeated in years to to the Scholarship Fund is making ored to recognize two donors whose come. an investment in our young people. gifts to the Scholarship Fund have Special thanks also go to Dwight It is sincerely appreciated and all of special significance. Sipperclle. Dwight was in the first us involved in the educating of our Our thanks go to Secretary and group of 20 students to be named students thank you.

MARCH 1989 57 Professional Issues Vest sees personnel system entering period of stability

Richard S. Thompson Professional Issues Coordinator

Speaking at one of AFSA’s regu¬ lar professional is¬ sues luncheons, Director General of the Foreign Service George Director General of S. Vest gave a frank account of key the Foreign Service personnel issues as he sees them to George S. Vest addresses a standing-room-only crowd January an AFSA Professional 24 in the East-West Room of the Issues audience. Foreign Service Club. In her intro¬ duction of Ambassador Vest, AFSA 42 involuntary retirements in 1987 onciling the individual’s wishes with State Vice President Evangeline and 40 LCEs and 32 retirements in the need to fill jobs, and advocated Monroe noted that the AFSA lead¬ 1988. The Senior Service is being sendee in personnel as a valuable ership found him to be the consum¬ affected along with the FSO-ls, and experience. mate diplomat—tough in defense of those being retired are good: ambas¬ Looking to the future, Vest saw his positions, but always courteous sadors and DCMs are among their a continuing up-or-out system with and available to discuss professional number. Recalling that the number the need to balance intake and pro¬ or union matters. of persons promoted has varied motions. The system is intentionally Vest noted his four years as di¬ sharply over the years, Vest reported rigid, so even secretaries of state rector general “were not always easy” the number has been steady for gen¬ cannot fiddle with it, but some flexi¬ since he had to work in a context eralists for the past three years: 599 bility' has been introduced with the which included digesting the 1980 in 1988, 596 in 1987, and 585 in “stop-the-clock” provision for lan¬ Foreign Sendee Act, budget crises, 1986. guage training. Fie would personally and societal changes such as terror¬ Asserting that there is a myth that like to see similar flexibility for other ism, working spouses, tandem cou¬ one has to be a DCM to get pro¬ assignments which would be benefi¬ ples, and now even unmarried part¬ moted, Vest stated that many of cial to the Sendee. The introduction ners. Additional elements were vari¬ those promoted were counselors/ of multifunctional promotion has re¬ ous class action suits, a sharp upturn section chiefs in embassies. More sig¬ duced some of the rigidity of the in the number of formal grievances, nificant is the importance of the job, cone system, and will have a benefi¬ new security programs and a new and its relationship to other posi¬ cial effect. inspector general with a role man¬ tions held, showing adaptability. “Be¬ In concluding his prepared re¬ dated by Congress. ing a DCM is a good thing, but not marks, Vest stressed that the new Weighing key developments dur¬ the only thing.” administration is coming in with a ing his tenure, Vest saw the up-or- Vest noted that, contrary to some genuine appreciation of the Foreign out nature of the Foreign Service predictions, the attrition rate has not Sendee. Although he has no knowl¬ personnel system for generalists con¬ gone up, although he expects it will edge of what appointments the ad¬ tinuing. The system has continued do so in the future, not because of ministration has in mind, he is confi¬ to bring in 200 new officers each personnel policies but because of the dent that it will, over time, demon¬ year, who know that only about 80 working spouse problem. strate increasing trust in the Foreign of them are expected to attain senior Referring to the recent articles in Service. rank. The “agonizing problem” of the JOURNAL on personnel issues, In the question and answer pe¬ the six-year window is lessening as he asserted the Sendee needs both riod, Vest strongly rejected a sugges¬ shown by the numbers of FSO-ls management ability' and expertise. tion that promotion boards should identified for involuntary retirement: Some experts are “fantastic” in their give greater weight to length of time 102 in 1986, 71 in 1987, and 45 in area of specialization, but are not in class in making recommendations. 1988. Vest also commented that a ready to run a large embassy where He noted that boards are asked to sizable number of the officers pro¬ only a third of the personnel are of rank order candidates based on their moted over the senior threshhold the State Department. ability and usefulness to the Service, were in the sixth year of their win¬ Vest defended the “heros and hero¬ and that one aim of the system is to dow. Taking OCs and MCs together, ines” who carry' out the assignment move “water walkers” upward rap¬ the Senior Service saw 46 LCEs and process in an objective manner, rec- idly. Vest defended the practice of

58 FOREIGN SERVICE JOURNAL AFSA acts on

granting LCEs to all career minis¬ ing, and noted that FSI is looking Senate hold-up ters, noting that these are the very at the problem. A recent step was best officers in the Service and it abolition of the shorthand require¬ During the last session of Con¬ makes no sense to force them out, ment for new secretaries. gress two names were deleted since voluntary retirement provides In response to the observation of from die State Department sen¬ an appropriate level of attrition. one participant that the intake of ior promotion list at the re¬ In response to a question Vest 200 new officers each year is the quest of Senator Christopher stated the Office of Career Tran¬ same as 25 years ago, Vest remarked Dodd. AFSA objected to this sition was designed mainly to train that the Foreign Service has been action and asked Senator Dodd retiring officers on how to find jobs, stable since the late 1950s, and that and other members of the Sen¬ but is doing more and more actual intake is geared to an equation re¬ ate Foreign Relations Commit¬ placement. lated to needs. We would have been tee to honor the integrity of Vest agreed that it is difficult for better off with a level of 220 over the Foreign Service promotion promotion boards to know which the years, and when we get below system. officers should be considered as mul¬ 185 we are in trouble. He has rec¬ We arc pleased to report that tifunctional, and suggested this could ommended 232 for this calendar year. we have received assurance be clarified as precepts are negoti¬ In closing, Vest suggested that from Senator Dodd’s staff that ated with AFSA. In any case multi¬ any further ideas on improving the the senator has withdrawn his functional promotions are here to 1980 Foreign Service Act are wel¬ objection to the promotions. stay at the FSO-1, 2 and 3 level. come and “could be given—to my The two names should there¬ Another exchange involved die role successor.” fore be approved on a routine of secretaries. Vest agreed it is chang¬ basis without difficulty'. Experts or generalists?

The perennial question of whether itially to their areas of specialization identified as generalists and trained the Foreign Service has greater need rather than using them to staff con¬ for leadership positions. of experts or generalists was dis¬ sular positions, provide more train¬ There was a consensus among the cussed vigorously January 10 in the ing, and extend tours of duty. Such participants that the Foreign Service Foreign Service Club library. Senior an approach would not require more personnel system does not have clearly officers Leo Reddy and Lannon funds, since quantity would be traded defined goals and that an overall Walker led off with brief presenta¬ for quality. strategy is lacking, with the func¬ tions of their partially differing views Walker likewise stressed the need tions of recruitment, training, as¬ as stated in the January JOURNAL. for a personnel strategy, including a signments, and promotion taking In his opening remarks, Reddy systematic way of defining needs. place as separate elements rather than emphasized that he agreed with While experts as defined by Reddy as part of an overall plan. It was also Walker’s assertion that we need a are needed, officers who can see noted that the department has no consensus on career strategy, but dis¬ clearly the interagency nature of man¬ catalog of skills that are needed, nor agreed with Walker’s concept of a aging foreign affairs are also neces¬ a detailed skills’ inventory' of its per¬ generalist career track. Reddy urged sary. That goal might be achieved sonnel. A clear definition of needs that area and functional expertise is by establishing an interagency Sen¬ and qualifications, especially at sen¬ the essence of the Foreign Service ior Foreign Service. The department ior levels, is required to give a co¬ and defines the “service” which it has not forced officers to make a herent pattern to the rest of the offers to the president, the secretary, choice in competition for promotion system. and the nation. It also strengthens between cones and the multifunc¬ There was also general support the professionals’ case against ill- tional track, thus giving the individ¬ for the view that the Foreign Service prepared political appointees and ual no incentive to pursue a serious must find a way to give greater em¬ helps Foreign Service personnel de¬ professional development program. phasis to professional training and velop credentials for second careers. In further discussion, Reddy sug¬ development, including languages. He named a number of distinguished gested that officers naturally devel¬ Relevant training, and assignments officers who were experts, and de¬ ops the capability to manage as they outside the department should be clared that the traditional concept are promoted and their responsibili¬ considered positive elements for ad¬ of a Foreign Service officer as a ties increase, although broader manage¬ vancement, rather than avoided. “gentleman who speaks French and ment training also would be helpful, AFSA President Perry Shankle noted fraternizes with elites” is outmoded. for example, a DCM course. Walker this is the position AFSA has been The Foreign Service should recruit strongly defended his view that offi¬ taking. for expertise, send junior officers in¬ cers who show promise should be

MARCH 1989 59 Congressional Issues Health Insurance: more questions than answers

Robert Beers prescribed method of financing the points. First, might the financing of Congressional Liaison expanded hospital care benefits un¬ a government social benefit based der Medicare “A.” The law imposes upon an individual’s ability to pay One of the per¬ an obligatory, graduated Medicare presage the extension of this princi¬ plexing ques¬ “A” premium on all Medicare- ple to other areas, such as the impo¬ tions confronting eligible persons with a federal in¬ sition of a means test on social secu¬ the new admini¬ come tax liability for 1989 of $150 rity beneficiaries? Second, the truly stration and the or more, up to a limit of $800 per catastrophic medical expense which 101st Congress person, or $1,600 for a couple. $ome most older Americans fear most— is how to deal estimates indicate, however, that as long-term nursing home or home- with the coverage inadequacies and many as 5 percent of all Medicare- health care—is not included in the the escalating costs of the federal eligible persons, about 1.5 million, catastrophic care legislation. With this government’s two principal health may be required to pay the maxi¬ law having just become effective, the insurance programs: Medicare and mum, which by 1993 is scheduled concern is that it may prove politi¬ the Federal Employees Health Bene¬ to rise to $1,050 per person. cally very difficult to enact legisla¬ fits Program (FEHBP). Predictably, as the news of this tion that would expand Medicare One legacy left by the 100th Con¬ premium spread diroughout the Medi¬ coverage to provide for long-term gress was the Catastrophic Care Cov¬ care-eligible community, it began gen¬ care outside of a hospital. erage Act of 1988, of which the erating heated opposition, which ap¬ As for the chances of revising the most controversial provision is the peared to center around two basic catastrophic care bill to modify the Medicare “A” premium provision, two of the key players in Congress, The last Reagan budget Senator Lloyd Bentsen, chairman of the Senate Finance Committee, and On January 9, 11 days before relin¬ option of withdrawing contributions Representative Dan Rostenkowski, quishing the Oval Office to George to the retirement system as a lump¬ chairman of the House Ways and Bush, Ronald Reagan submitted his sum at the time of retirement. Means Committee, are on record as final budget to Congress. While char¬ Health Benefits: The budget pro¬ opposing any such change. Thus, acterized by some lawmakers as “irrele¬ poses a revision in the method used any rollback effort would face formida¬ vant” on the assumption that Presi¬ to calculate the government’s contri¬ ble opposition in both houses. dent Bush may have in mind a dif¬ bution to the premiums of those In a related matter, Congress is ferent set of budget priorities, Presi¬ enrolled in the Federal Employee preparing to consider measures to dent Reagan’s final proposals may Health Benefits Program (FEHBP). revise the present structure of the provide some clues to the thinking At present, the government’s con¬ FEHBP. There are more than 400 of the administration in certain areas tribution is calculated against a sim¬ options included under the program, of personal concern to federal civil¬ ple average of the high-option pre¬ with high-risk beneficiaries—the eld¬ ian employees and retirees. miums of the six largest plans in the erly and those with chronic illnesses— Federal Pay: Effective in January program. This formula would be concentrated in relatively few plans. 1990, the budget provides a 2 per¬ changed to a government-wide The new Congress is awaiting re¬ cent pay increase for federal civilian weighted average of all FEHBP plans ports from the Congressional Re¬ employees, with employing agencies and the distribution of enrollees search Service and recommendations absorbing 75 percent of the cost. among those plans. The argument from the Office of Personnel Manage¬ The budget assumes that in January for this proposal is that it permits ment before holding hearings on re¬ 1991 and 1992, federal employees will the government’s contribution to re¬ vising the FEHBP legislation. receive pay raises of 3 percent and flect the increase in the number of Although hearings may be sched¬ 2.8 percent respectively. FEHBP plans as well as the increas¬ uled as early as April, informed con¬ Retirement: There is no provi¬ ing shift of enrollees from high- gressional staffers predict that it may sion for a cost-of-living-adjustment option to low-option plans. take both sessions of the 101st Con¬ (COLA) in 1990 for federal retirees, Assuming that these proposals are gress, i.e., two years, to legislate the although the COLA for social secu¬ not revised in amendments proposed changes in the FEHBP which, over¬ rity recipients is not affected. After by President Bush, they still must all, will provide more effective cov¬ 1990, federal retirees would receive be cleared by the House Committee erage at lower cost and which also an annual COLA based upon the on the Post Office and Civil Service will coordinate FEHBP coverage with rise in the consumer price index (CPI) and the Senate Committee on Gov¬ Medicare for those retired federal minus 1 percent. The budget also ernmental Affairs. It is thus too early employees eligible to participate in proposes to terminate the present to predict their chances of enactment. both systems.

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