Your best buy in overseas personal effects and liability travel-pak insurance

TRAVEL-PAK is a comprehensive personal effects and lia¬ WHY DO YOU NEED TRAVEL-PAK? bility insurance plan specially designed for businessmen, govern¬ You need specialized insurance coverage while living over¬ ment employees, students, servicemen and others living overseas. seas because: • Your property is exposed to hazards not normally en¬ countered at home. The ordinary marine or residence policy is not adequate and may leave significant perils CONFIDENCE —Travel-Pak is underwritten by Lloyd’s of uninsured. London and administered by the James W. Barrett Company • You will find it very difficult, if not impossible, to which has insured more than 10,000 Americans and other for¬ understand the various laws of liability in each of the over¬ seas areas where you may reside. Further, each country’s eign nationals living in more than 75 countries. liability laws are quite different and ordinary personal liability policies may not cover certain events which could easily occur while you are overseas. COMPREHENSIVE —Travel-Pak insures your personal prop¬ • You want the peace-of-mind that comes with the type erty against “All Risks” of physical loss or damage anywhere in of policies you would ordinarily have at home. Local poli¬ cies quite often have exclusions which do not appear in the world and protects you against personal liability judgments. policies you are familiar with and, in many countries, United States Dollar policies are not available. • Travel-Pak provides the broad coverage and flexibility CONVENIENCE —Travel-Pak provides the simplicity of deal¬ which produces the security to help you better fulfill your ing with one experienced firm and Lloyd’s for all your property mission. and liability insurance needs; one easy-to-understand application and package policy. HOW DOES TRAVEL-PAK WORK?

COST —Travel-Pak premiums are low because the savings from • You are protected immediately by mailing your com¬ volume sales, the package insurance concept, and special pre¬ pleted application and premium payment. mium discounts are passed on to you. • By declaring all of your personal effects for their full value when you apply you will be assured of full coverage. • $25,000 liability coverage is automatically included in your Travel-Pak policy. Larger amounts are available for CLAIMS —Travel-Pak claims are handled by the world’s largest small additional cost. personal insurance claims network with representatives in more • Substantial savings are available if you buy Travel-Pak than 200 cities throughout the world, including Eastern Europe. for two or three years. • Underwriters cannot cancel your Travel-Pak policy dur¬ ing the policy term. • Since it is not the purpose of Travel-Pak to pay for the inconsequential loss, but rather to cover the large loss, JAMES W. BARRETT CO., INC. every claim is subject to a $50 deductible. 1140 Connecticut Ave. • Travel-Pak covers shipment of baggage and household Washington, D.C. 20036 goods. You get a renewal credit for each year this coverage isn’t used: 1-year policy—20% credit of original premium; 2-year policy—10% per year; 3-year policy—IVi % per year. FOREIGN SERVICEjgi|p]g|

AMERICAN FOREIGN SERVICE ASSOCIATION THEODORE L. ELIOT, JR., President CONTENTS: JULY, 1970, Volume 47, No. 7 JOHN E. REINHARDT, First Vice President C. WILLIAM KONTOS, Second Vice President

BOARD OF DIRECTORS 18 An American Foreign Policy Imperative CHARLES W. BRAY, III, Chairman Marshall Wright RICHARD T. DAVIES, Vice Chairman WILLIAM G. BRADFORD, Secretary-Treasurer 23 Return to Egypt BARBARA GOOD, Assistant Secretary-Treasurer DONALD EASUM David G. Nes WILLIAM HARROP ERLAND HEGINBOTHAM 30 Exorcising the Hobgoblin of Conformity GEORGE B. LAMBRAKIS PRINCETON LYMAN Ditto J. Caterini ROBERT NEVITT MICHAEL PISTOR 34 The Crisis of Development Lester B. Pearson STAFF THOMAS S. ESTES, Executive Director 37 Performance Appraisal and Promotions in the MARGARET S. TURKEL, Executive Secretary Foreign Service CLARKE SLADE, Educational Consultant LOUISE H. FEISSNER, Personal Purchases Donald P. Warwick

JOURNAL EDITORIAL BOARD DAVID T. SCHNEIDER, Chairman OTHER FEATURES: Soliloquy on the Settebello, by P.B., page 10: ARCHIE BOLSTER, Vice Chairman CHARLES A. KENNEDY Communication re: Mr. Alsop’s FSO, by Glen Fisher, page 12; AMBLER MOSS The Duncan Report, from the Manchester GUARDIAN, page 17. CUNT E. SMITH M. TERESITA CURRIE

JOURNAL DEPARTMENTS SHIRLEY R. NEWHALL, Editor DONALD DRESDEN, Editorial Consultant 4 Washington Letter MCIVER ART & PUBLICATIONS, INC.. Art Direction Ted Olson

ADVERTISING REPRESENTATIVES 25 AFSA News SASMOR AND GUCK, 295 Madison Ave., New York. N.Y. 10017 (212) 532-6230 42 The Bookshelf ALBERT D. SHONK CO., 681 Market St., San Francisco Calif. 94105 (415) 392-7144 49 Letters to the Editor JOSHUA B. POWERS, LTD., 5 Winsley Street, London W.l. 01-580 6594/8. International Representatives.

©American Foreign Service Association, 1970. The PHOTOGRAPHS AND ILLUSTRATIONS: Marie Skora, woodcut, cover Foreign Service Journal is published twelve times a and etching, page 43; Henry Paoli, cartoon, page 8; David G. year by the American Foreign Service Association, Nes, photographs, pages 23, 24 and 25; CENTURY Magazine 2101 E Street, N.W., Washington, D. C. 20037. (July, 1905), photograph, page 37; The Peabody Museum, Second-class postage paid at Washington, D. C. Salem, Mass., illustrations, pages 39 and 41; S. I. Nadler. "Life Printed by Monumental Printing Co., Baltimore. and Love in the Foreign Service,” page 50.

I HE FOREIGN SERVICE JOURNAL is the journal of professionals in foreign affairs, published twelve times a year by the American Foreign Service Association, a non-profit organization. Material appearing herein represents the opinions of the writers and is not intended to indicate the official views of the Department of State, the United States Information Agency, the Agency for International Development or the United States Government as a whole. Membership in the AMERICAN FOREIGN SERVICE ASSOCIATION is open to the professionals in foreign affairs serving overseas or in Washington, as well as to persons having an active interest in, or close association with, foreign affairs. Dues are $30 annually for members earning over $15,000; for those earning less, dues are $15.00. For subscription to the JOURNAL, one year (12 issues); $6.00; two years, $10.00, For subscriptions going abroad, except Canada, add $1.00 annually for over¬ seas postage. will be thousands of young people cross-examining candidates and ring¬ ing doorbells this summer. They’ve already set up shop in Washington, with computers and everything. The Washington demonstrations showed what they can do when they put mind and muscle into a cause. It was an impressive job of improvisation. In a week or less the ad hoc leadership set As we have remarked before, writ¬ of colleges and universities; by con¬ up an organization for managing the ing a letter that won’t reach the ad¬ cern over our suddenly widened in¬ crowds and controlling potential trou¬ dressee for a month or six weeks volvement in Southeast Asia, after the ble-makers that was almost as involves problems. They are problems soothing assurances that withdrawal efficient, if not as tidily “structured,” that didn’t plague our ancestors; never was proceeding according to plan. All as that put together over a much having enjoyed the convenience of these, plus the failure of the economy longer period for the November 15 overnight or near-instant communica¬ to respond to the regimen and medi¬ “Mobe.” tion, or even conceived of the possibil¬ cation now in use, have given many Our society should be able to use ity, they got along quite nicely without persons a queasy feeling that some¬ it. Diplomats had more elbow-room; how things are falling apart. people like that. It’s heartening that so many of them have determined now their elbows were not being jogged by Washington and its satellite areas to work within the society, trying to a daily avalanche of NIACTs and have—as of this writing—happily es¬ improve it, instead of repudiating it EYES ONLYs. Wasn’t it our Minister caped any tragic confrontations. No¬ and trying to tear it down. to Spain who once received a letter body has been shot. No buildings have from the Secretary of State noting been burned down. Property damage Postscript, in a Lighter Vein that they hadn’t heard from him for a has not been heavy. The demonstra¬ couple of years; how were things tion on the Ellipse, where 75,000 to In one flurry at American Universi¬ going down there? 100,000 protestants congregated on ty, we see by the papers, “rocks and As we sit down to write this in May 9, had a picnic quality, except marshmallows were thrown.” Marsh¬ mid-May—earlier than usual, because for a serious shortage of victuals and mallows, yet! Raw or toasted? Any¬ we are copping out for a couple of potables. The only violence was rheto¬ way, there’s an idea: missiles that months—the events of the last few rical. The only arrests were for inde¬ express displeasure but inflict little weeks dominate headlines, commen¬ cent exposure; it was a very hot day, damage. Edible too, if deftly fielded. tary and conversation so completely and the fountains and the Reflecting We were reminded of a foreign that it’s difficult to believe that by the Pool were too tempting to resist. capital in which we were once sta¬ Fourth of July they may have faded Trouble broke out afterward, and tioned, where, we learned, there were into the background, to be replaced continued sporadically for more than two varieties of oranges—eating and by other events still unpredictable. a week, particularly at American Uni¬ throwing. When a demonstration was Wherever you are you’ve heard and versity, where students blocking rush- expected the police turned out before read about them, and probably been hour traffic at Ward Circle scrimmaged dawn and picked all the little hard instructed to report local reaction, with police, and at Maryland U., oranges along the expected line of soonest. where sitdowns on Route 1 brought march so that they wouldn’t be avail¬ If those incoming evaluations have out the militia. A good many home¬ able for window-smashing. matched the press reports, they must ward-bound commuters got their first No Summer Symphony Season be pretty grim. Not all so devastat¬ whiff of tear gas. The press consensus ing, we hope as Arnold Toynbee’s is that the D.C. police for the most For a spell it looked as if our characteristically magisterial verdict part behaved well, showing remark¬ National Symphony might be going in response to a query from the New able patience, forbearance and good under. Now it seems to have scraped York TIMES: “TO most Europeans, I humor. Chicago and other cities might together enough money and pledges to guess, America now looks like the well ask Chief Jerry Wilson for ensure the 1970-71 season, with Antal most dangerous country in the lessons. Dorati as the new conductor. But the world.” In this dark and frightening time summer schedule had to be scratched. Back here, too, the reaction has one can nevertheless find glimmers of The Fiesta in air-conditioned Consti¬ been profound, a mixture of dismay, encouragement. The extent and inten¬ tution Hall inaugurated last year is disbelief, indignation and, for some, sity of the protest seems to have not to be repeated, and unless there’s despair. Pundits write soberly of “the astonished those at whom it was di¬ a desperate eleventh-hour salvage op¬ worst crisis since the Civil War.” That rected. Disaffection, they discovered, eration, the customary programs at seems a little extreme when one looks was not limited to spoiled juveniles Columbia’s Merriweather Post Pav¬ back over 100 years of history, some and crackpot intellectuals. It had ilion are cancelled out too. of it fairly recent: the Haymarket spread to all ages and classes; it had The musicians are bitter, and no riots, the May Day massacre, the even penetrated the governmental es¬ wonder. They’ve written Senator Tyd- near-collapse of the economic system tablishment. The shock of this discov¬ ings, chairman of the Senate District in the quadrennium 1929-33, the ery was salutary. There has been an Committee, complaining that the months immediately after Pearl Har¬ attempt to reopen channels of com¬ cancellation constitutes not only a bor, the McCarthy terror of the early munication, a disposition to listen and breach of the contract that ended the ’50s. But beyond question the country try to understand. strike last fall—it provided for 46 has been deeply shaken—by the Encouraging also is the apparent weeks of paid employment—but “a slaughter of a dozen young people, for disposition of a significant number of violation of public trust and a sheer no adequate reason, so far as anyone the young dissenters to move from the disregard of civic responsibility.” They has yet demonstrated; by the disrup¬ streets to Congressional ante-rooms estimate it will cost each member a tion of higher education at hundreds and the doorsteps of voters. There loss of $2,200 or more in salary.

4 FOREIGN SERVICE JOURNAL, July, 1970 AMERICA ON $1.17 A DAY.

Or America on $1.63 a day with collision. Do it now so not even a minute of your leave is wasted. That’s all it has to cost for the auto insurance you need A.I.U. claims facilities will be at your service 24 to drive through your beautiful country when you’re home hours a day and, if you should have to collect on a claim, on leave. And for the same prices, you get Canada, too. we won’t keep you waiting. Add a little more to cover shipping insurance if you’re America on $1.17 a day is based on a 60-day leave. taking your car over with you. Thirty days and the price goes up a little to $1.73. How little it costs is only outdone by how easy we If somehow you’ve managed to accumulate three make it to get. whole months, we give you America on $1.00 a day. All you have to do is ask your Post Administrative American International Underwriters, 1511 K Street, Officer for an A.I.U. application, send it to us with your N.W., Washington, D.C. 20005, U.S.A., Telephone: (202) check, and we’ll mail you your policy. 737-6855. AMERICAN INTERNATIONAL UNDERWRITERS Meanwhile, the POST’S Paul Hume Smokey Robinson and the Miracles; as acting director of the Corcoran, the writes, some may have to eke out a Aug. 3-9—Ray Charles and the Su- innovative Walter Hopps has the job livelihood delivering milk or mending premes; Aug. 10-16—The Tempta¬ and the title for keeps. tions; Aug. 10-16—Judy Collins and cars. What's Happening to Our Nats? Most symphony orchestras in Arlo Guthrie. [Your hopelessly square America suffer chronically from finan¬ correspondent hopes that he copied We can only hope that by the time cial trouble. This year it’s worse, be¬ those names correctly, and that they you read this our Senators will have cause of the financial pinch every¬ will mean something to some of you. hit their stride, if they have one. where. The plight of ours is particu¬ He never heard of most of them be¬ Through most of May it was hard to larly grave. It’s sad, just when in one fore.] decide which part of the morning more year it is to have a proper Olney Theatre: Through July 12— paper was more depressing, the sports auditorium to play in for the first time “Madigan’s Lock,” by Hugh Leonard; pages or the financial section; the Nats in its history. July 14-Aug. 2—“Little Murders,” by were sliding downhill as fast as the Summer entertainment in the capi¬ Jules Feiffer; Aug. 4-23—“Enter a Dow-Jones averages. Nine straight tal area will be mostly lighter stuff. Free Man,” by Tom Stoppard (he lickings, the worst streak since 1963, Here’s a partial schedule: wrote “Rosencrantz and Guildenstern when, you may recall, they finished Ford's Theatre: Through Labor Are Dead;”) Aug. 23-Sept. 13—“The tenth. One comfort: with the league Day—“The Fantasticks,” returning Price,” by Arthur Miller. split into two divisions they can’t do “by popular demand” to keep the Shady Grove Music Fair: Through worse than sixth. historic playhouse open through the July 5—“The Sound of Music,” with A couple of months ago we wrote summer, perhaps for the first time Barbara Eden; July 6-11—Engelbert that the trouble was poor pitching. It’s since 1865. Humperdinck; July 24-26 — "Caba¬ still shaky, but what’s worse is the dismal spectacle of our mightiest hit¬ Arena: Through July 5—The Pu¬ ret,” with Leslie Uggams; July 28- ters stepping to the plate in the ninth litzer Prize play, “No Place to be Aug. 9 — “George M!” with Mick¬ Somebody,” by Charles Gordone. ey Rooney; Aug. 11-16—The Debbie inning, with the potential tying and winning runs on base, and either Carter Barron Amphitheatre: Reynolds Show; Aug. 18-23—“I Do! I grounding into a double play or through July 5—Jerry Butler and the Do!” with Carol Lawrence and Robert whiffing out. Edwin Hawkins Singers; July 6-July Goulet; Aug. 25-Sept. 13—“Man of Ted Williams swears he’s not dis¬ 12—Brook Benton, “Cannonball” Ad- La Mancha,” with Howard Keel; couraged, so we’ll try not to be. derly, King Curtis & the Kingpins, the Sept. 15-20—“Irma la Douce,” with O’Jays; July 13-19—The Diana Ross Elke Sommer; Sept. 22-27—“This Is We must report also that the Caps Show; July 20-26—13. B. King, The Burlesque,” with Ann Corio (who didn't retain the basketball title they Ides of March, 5 Stairsteps, Chair¬ else?) won a year ago when they were the men of the Board; July 27-Aug. 2— Further cultural note: After a year Oakland Oaks. And next season we "Happily lam a homeowner after many years ofwancteriny around

6 FOREIGN SERVICE JOURNAL, July, 1970 World favorite Old Grand-Dad Bourbon whiskey is the world's most popular prestige whiskey. It s a distinctive American whiskey, with smooth character, non¬ smoky taste and dry, delicious flavor.

mmmnmw Old Grand-Dad Head of the Bouvion Family

FOREIGN SKBVIOE JOURNAL, July, 1970 7 may not have a basketball team. If the again, though for how long we two leagues merge, as is now contem¬ wouldn’t predict. plated, the Caps will probably be On the latter subject, we’ve been moved somewhere else and rechrist¬ wondering why publications that are ened. hawked openly in the streets, have listed phone numbers and maintain a Property Levy Down, Income Tax Up Have it nation-wide press service, call them¬ To an economic illiterate, it was a selves “underground” papers. We tend bit confusing at first. One day Mont¬ to feel that term belongs by some sort gomery County announced: Goody, of moral copyright to the anti-Nazi waiting goody! Money’s coming in faster than resistance forces with whom it origi¬ we figured, so we’re going to cut your nated. They actually did operate un¬ property tax. Next day: Sorry, but derground, in cellars and mountain we’ll have to raise the income tax. It hideouts; they distributed their mime¬ for you goes up from 45 per cent to 50 per ographed sheets by stealth, knowing cent of the state levy, which is the that detection meant torture and pos¬ The European car of your choice at maximum permitted by law. The idea sibly death. And they didn’t feel it special factory prices where you want it, is to shift the burden from property to necessary to use obscenities. What when you want it, serviced and ready to income, which is generally regarded as could you call your enemy that would go on your return stateside or in Europe. more equitable. be more insulting than Nazi? Save up to 30% over U.S. prices. We Simultaneously, though there was arrange all details just like we’ve been Oddments doing for 54 years. Send for your free no causal relationship, PEPCO was master catalog, it contains 60 pages, over authorized to raise its rates by 13 per • More on the Age of Nostalgia: 150 illustrations, low factory prices, cent. And newspaper subscriptions There’s a new bimonthly magazine options, colors, complete specifications. went up again. called THE ROARING TWENTIES. TWO lames Branch Cabell novels (remem¬ “Sorry About That” Department Nemet Auto International ber him?) have turned up on the 153-03 Hillside Avenue Jamaica. New York 11432 It’s getting embarrassing, the fre¬ paperback bookracks—“Figures of (near J.F.K. International Airport) quency with which we have to apolo¬ World’s Largest Distributor of Earth” and “The High Place.” On the European Cars at Factory Prices gize. We write a baseball piece, boast¬ other hand, the TV columns report ing about that wonderful Senator that Lawrence Welk is getting ready infield, and Ted Williams lets us down to retire. by trading off Ken McMullen. We • The POST says Washington may report dutifully that the Young Left be the only city in the world with still has a Washington outlet, and next more telephones than people. May be, thing we know the QUICKSILVER TIMES you notice. AT&T lists 859,326 tele¬ is no more—blown apart by internal phones, and the last Census Bureau stresses, like Apollo XIII. And by the estimate—before the decennial count time we get that in type, one of the was completed—was that the District warring factions has the paper going had 798,000 residents.

Nemet Auto International FSJ-3 153-03 Hillside Ave.. Jamaica, N.V. 11432 Please send me a FREE copy of your 60 page Master catalog. I am interested in: □ VOLVO □ AUSTIN □ VOLKSWAGEN □PORSCHE □ MERCEDES □ ROVER □ PEUGEOT □ALFA □ TRIUMPH □MG □ JAGUAR nSlMCA □ SUNBEAM □ RENAULT Name Rank

8 FOREIGN SERVICE JOURNAL, July, 1970 Qanvpleie line oj Qe+teSvcU ZlecpUc appliance^ jpsi

MAJOR AVAILABLE FOR APPLIANCES 220 VOLTS AND ALSO FOR 50 OR 60 CYCLE IMMEDIATE DELIVERY OPERATION

DELUXE AUTOMATIC Large bouffant with convenient reach-in top fits easily over the largest rollers BLENDER BL2D Convenient "spot curl” attachment for quick touch-up curling MAKES A GREAT GIFT, TOO! Beige color dryer operates in or Glass decanter has 32 ounce out of its richly designed carry capacity — ideal for malted and storage case milks to party drinks Waist or shoulder strap allows $39 go freedom of movement $ HAIR DRYER 3 heat selections plus cool $ 35 A 24°° HD2-D ^ei 13 A CANISTER DELUXE SPRAY, w CLEANER * A PORTABLE MAKES A GREAT GIFT. TOO! STEAM, AND DRY C10F / w MIXER AUTOMATIC MAKES A GREAT GIFT, TOO! M19-F TRAVEL IR0NF49 Features highly acclaimed double action cleaning tool — MAKES A GREAT GIFT, TOO! TOASTER for rugs and bare floors MAKES A GREAT GIFT, TOO! Works on 120 volts A.C. or D.C. • Has extra high toast lift _ Weighs only 3 lbs.—but mixes 80 heaviest of batters, as well as -no more burned fingers lightest of sauces $11 $!4°0 T-102F 0

NEW! DELUXE , AUTOMATIC "i IMMERSIBLE $1625 AUTOMATIC CAN h ICOFFEEMAKER OPENER/KNIFE 1 P-15D SHARPENER 9 w MAKES A GREAT GIFT, TOO! $16 °1 It’s completely immersible — percolator gets cleaner, AUTOMATIC coffee tastes better TOOTHBRUSH 5ii8G $16oo MAKES A GREAT GIFT, TOO!

• Proved to provide cleaner teeth MAKES A GREAT GIFT, TOO! CUSTOM ELECTRIC than ordinary hand brushing • Four personal snap-in brushes SLICING KNIFE • Cordless, contoured power handle with convenient W DELUXE $ 9 push button switch 29 MAKES A GREAT GIFT, TOO! • Convenient charger base- ALL-PURPOSE Electric slicing does better job may be wall mounted on meats, poultry, vegetables. fish, breads, etc.— slices thick ^ A 50 MIXER M3,F or thin — all you do is guide it! ^ I I MAKES A GREAT GIFT, TOO! i a portable or a si depending on you | STEAM AND $2680 1 DRY IRON W k MAKES A GREAT GIFT, TOO! WJP New Perm-Press temperature W) setting for best !■ results ? 5 HARDTOP HAIR DRYER- F76F 12 ° CUSTOM AUTOMATIC DELUXE MODEL HD-51C, HD-51G This semi-professional Hair DOUBLE NON-STICK Dryer is attractively styled in TOAST-R-OVEN tawny beige and off-white AUTOMATIC COATED SKILLET! 2 appliances in one—it's an with a silver color trim. The C-126TD automatic toaster, it's an oven. lightweight, compact design GRILL & When toasting, it pops open allows for true portability. TEFLON COATED automatically when done. 230 Volt, 50/60 Cycles, Slide out crumb tray for WAFFLE BAKER Non-sticking and non-scouring- easy cleaning. 750 Watts. HD-51 C: 120 Volt, 50/60 Cycles, 750 Watts. It grills cheese and tomato wiches, fries bacor —* MAKES A GREAT GIFT, TOO! 50 , and bakes waffle $2150 T93F 50 S24 $28 $1890 MAKES A GREAT GIFT, TOO! GENERAL ELECTRONICS, INC. Sxfuvitvi (S&ah ApjUiAKce*—& S*KUI

4513 WISCONSIN AVENUE, N.W. (OPPOSITE SEARS), WASHINGTON, D.C.

Orders for APO & FPO - Add $2.00 per item for Parcel Post, Insurance and Handling Charges

FOREIGN SERVICE JOURNAL, July, 1970 9 An essential new book by a distinguished American diplomat Soliloquy on the Settebello

SEVEN of Foy D. Koh¬ ler’s thirty-six years in the U.S. Foreign Service On a night train in Tuscany under snow, rare sight were spent in the Soviet Dozing at the day’s end and Union, as our Ambassador Rome and my children to Moscow. Now he shares Rome and my tedium of scribbling in dry embassies his remarkable firsthand Rome left behind me, knowledge of Russia and the I dreamed of Verdun in June Russians in a survey that is That sunny day we walked to the farm below the hill as extensive as it is lively My wife pregnant and we in young powers and immediate. Watching the geese and ducks, Ambassador Kohler throws How we dreamed of a pastoral life in Lorraine new light on the apparatus Living by soft poplars and the grass above old bones of international commu¬ nism; Soviet ambitions and All the years we should live as beauty bloomed back methods; U.S.-U.S.S.R. re¬ Like the girl out of prison, laughing in the park. lationships; the policies he helped to formulate in the And instead we went dutifully to cities, 1960’s. He provides fresh in¬ Duly to sere streets and smog sights into the U-2 incident, Embassy to embassy, tightness to tightness a perceptive analysis of the Spilling our life among the commissaries: Middle East as an area of From Moscow to Paris—France again, green again— potential confrontation and En route to Bangui. And we drove to Verdun an enlightening view of Rus- sian-Chinese antipathies. Through wind-whipped vineyards Equally valuable, and fasci¬ Into our lovely Meuseland. nating, are his many anec¬ Arrived there, something dim stirred my mind, dotes about encounters with We watched the quiet barges. Soviet leaders and average Soviet citizens. But my wife went to the beauty-shop So I bought the children ice cream A BOOK And on to Africa.

$10.00 at all bookstores, Now in Tuscany, too late or from As we scream through the night \f-\ Harper &) Row I think of the goose farm 1817 49 East 33d Street And vanished green poplars. New York, N.Y. 10016 P.B.

10 FOREIGN SERVICE JOURNAL, July, 1970 New Zenith TRANSOCEANIC obsolete* would-be imitation^ with the most ingenious integration of power, tuning ease, and professional features eveijdesigned into the world's most famous portable radio!

It’s powered to tune the listening Shore transmissions . . .Time Signals, No wonder the list of owners of this posts of the world ... and more! FAA Weather Navigation ... Amateur, world-famous series of Trans-Oceanic Tunes bandspread on the most pop¬ CW, and SSB signals. portable radios reads like an Inter¬ ular 31, 25, 19, 16 and 13 meter Inter¬ And it comes equipped to receive the national “Who’s Who.” national Shortwave bands ... also local new, crystal-tuned VHF weather band Check now and see for yourself why broadcasts on medium, FM, and broadcasts on 162.55 MHz. Plug-in re¬ you’ll want to be among the proud European longwave. placement crystals for receiving VHF owners of this newest, finest, even more In addition, this new Zenith Trans¬ weather band broadcasts on either distinguishing Zenith Trans-Oceanic. oceanic Royal 7000-1 receives Marine, 162.45 MHz, 163.275 MHz, 161.85 Weather, Ship-to-Ship and Ship-to- MHz, or 161.65 MHz are also available. Model Royal 7000-1

New chassis! New styling! New features! M/,41 < '"iff/* Better performance than ever before from a radio already world-famous for its year-after-year dependability!

New Beat Frequency Oscillator (BFO) Control for intelligible CW and SSB transmissions... Consol and Consolan bearings. ZENITH, New "Norm-Sharp” IF Switch helps eliminate adjacent channel interference on SSB as well as AM, SW, and CW. New RF Gain Control functions automatically in “Normal" setting. Adjustable to insure maximum sensitivity for SSB and CW and to permit navigational direction finding. New Tuner Output Jack, readily accessible, feeds tape recorder or external amplifier speaker system. New AC Power Supply built-in permits operation on either 115V or 230V with batteries automatically disconnected. Up to 300 hours of listening pleasure with “D" type flashlight batteries available anywhere. New Tuning Meter lets you tune visually to maximum signal strength. Also determines a station’s null for RDF. Serves as a Battery Level Indicator, too. New solid-state chassis with carefully hand-wired and hand-soldered connections. No production shortcuts.

The new Zenith Trans-Oceanic Royal 7000-1 is available at Post Exchanges overseas. fkM/TH Write now for free, full-color literature

The Quality Goes In Before The Name Goes On®

Zenith Radio Corporation, International Division. Chicago 60639, U.S.A. The Royalty of television, stereophonic high fidelity instruments, phonographs, and radios.

Rotary Slide-Rule Dial with large, easy-to-read numerals for quick, easy band and station selection. Plug-In earphone for private listening. Adjustable hair-line for most accurate indexing of calibrated logging scale. Telescopic Waverod Antenna. 21 Tuned Circuits (11 on FM, 10 on AM, SW, LW) including 3 stages of IF amplification on all bands and Tuned RF Stage with 3-gang tuning on AM/SW/LW. Time Dial. Azimuth Bearing Indicator. On-Off Dial Light. Tilt-Out Chart Light. Tone Control. Log Book. | Operating Guide. New Ebony color cabinet of diecast zinc, high-impact Cycolac®, with padded vinyl sides. 9-3/8" high; 13-3/4" wide; 6-1/4" deep.

FOREIGN SERVICE JOURNAL, July, 1970 COMMUNICATION Calvert The School that RE: comes to your child Our classroom is anywhere in the world. Mr. Alsop’s FSO

Your living room becomes your child's Learning Lab when his educa¬ tion comes by mail from Calvert School. He's a class by himself— working at his own speed without pressure. You become his teacher with the help of clear step-by-step instructions developed in Calvert's GLEN H. FISHER Laboratory Day School by certified teachers. You participate in the excitement of your child's intellectual growth. Give him a sound IN early October, Stewart Alsop, writing in NEWSWEEK American education wherever you live or travel. Or the gift of en¬ richment if his present school curriculum leaves his potential un¬ (Oct. 6), discussed the sometimes less than prominent role challenged. 125,000 children have used Calvert's kindergarten- through-8th grade Home Study Courses at home and abroad over the played by the Foreign Service officer in foreign affairs past 65 years. Children may start any time, transfer to other schools. decision making. He suggested that one of the lessons to be Non-profit. Phone 301—243-6030 or write for catalog: learned through US experience in the ’60s is that the professional FSO’s favorite phrase "have you considered all if ^ the possible consequences, sir?" often has considerable mer¬ it. He noted that in critical decision making, such caution Calvert S (j} School might be more the path of wisdom than the more confident wSr wm “can do, sir” of the military. Alsop’s commentary did not—in one page—completely exonerate the FSO from Box 7F, Tuscany Rd. Baltimore, Md. 21210 overcaution or lack of imagination; he even said that many t FSOs are pretty stodgy. But at least he drew public attention Parent’s name to one of the core aspects of professionalism in the Foreign Address Service, that is, the FSO’s habit, as a matter of professional practice based on hard experience, of evaluating policy City State Zip... alternatives in the perspective of a real world where a Child's Age Grade complex of both obvious and less obvious factors impinge on the outcome of a given policy, and his habit of seeking out the unanticipated consequences of any projected action. Mr. Alsop’s commentary poses still another occasion for us to consider the nature of our professionalism, if indeed the occasion is not already sufficiently prompted by the current reduction in force across various agencies in our FOREIGN SERVICE PERSONNEL official overseas community, and by the continuing deliber¬ ations of the American Foreign Service Association re¬ garding the kind of Foreign Service we need for modern IF YOU'RE SURE YOU DON'T NEED ADDITIONAL INSURANCE TO PRO¬ TECT YOUR FAMILY, DON'T BOTHER TO READ THIS AD; diplomacy. Actually, Alsop’s frame of reference may serve BUT as a healthy reminder that AFSA’s discussion may lose relevance if it is directed too much toward the bureaucratic WAEPA stands for Worldwide Assurance for Employees of Public Agen¬ problems of that larger collectivity of people who in one cies, Inc., a mutual non-profit corporation whose sole purpose is to pro¬ way or another earns its living by dealing with foreign affairs vide life insurance at the lowest possible cost to its members. activities rather than focus on the objective of Foreign WAEPA insures exclusively civilian federal employees serving abroad or Service—i.e. bringing a competent Foreign Service profes¬ in the U.S. in overseas related operations. sionalism to bear on the policy problems of our Govern¬ If you are under 41, you may qualify for $30,000 group life insurance ment. and an additional $25,000 AD & D coverage for $100 per year. If you In advancing the concept of a “united foreign service,” are over 41 but under 60, you can be covered at higher but still rea¬ there may be a real danger that such definition of our FSO sonable rates. WAEPA is underwritten by the Equitable Life Assurance Society of the U.S. and Mutual of Omaha and administered by Govern¬ professionalism as remains may become even less distinct, ment officials who serve without compensation. especially given the play of semantics to which it has been

WAEPA has no “war clause.’’ We also provide dependent cover¬ subjected in the course of many debates and introspections. age for a small additional cost. For full details without obligation, As it is now, the question remains insistent for the FSO and write or call John D. Noble, General Manager 667-8955 for some of his nearer relatives engaged in the substance of foreign affairs; is there a special professional status in our diplomatic establishment, or is the FSO just another sub¬ division in the “unified foreign service?” The answer to this question is important to the FSO who is concerned with his self image and career expectations. It is even more important to the US public and its Govern¬ ment. In today’s increasingly complex, specialized, and often compartmentalized international relations activities, we have tended more and more to depend on the specialized techni¬ 1720 Massachusetts Avenue, N.W. cian to attend to the many separate components of our Washington, D.C. 20026 foreign affairs, and less, perhaps, on the professionals in diplomacy whose competence and experience encompasses the broader field and the more far reaching implications and

12 FOREIGN SERVICE JOURNAL, July, 1970 GIVE YOURSELF A BREAK... A quiet break in the 1970 Ford at a price break with your diplomatic discount. It’s a different world inside the luxurious new LTD. A quiet place. Somewhere to gather your thoughts and lose yourself. Noise is out. Designed out through a computerized system of engineering. Quiet running. Quiet riding. LTD for 1970. Quite possibly the quietest car you’ll ever drive. Take a little sound advice. Order now. Get a break on any American- made Ford Motor Company car you purchase on your diplomatic discount, and pay no U.S. excise tax when it’s shipped abroad. For full information: • In the Washington area, contact Diplomatic Sales, Ford Motor Company, 9th Floor, 815 Connecticut Ave. N.W., Washington, D.C. 20006, phone-298-7419 • In the New York area, contact Diplomatic Sales, Overseas Distribution Operations, Ford Motor Company, 153 Halsey Street, Newark N.J. 07102, phone—643-1900 • From New York, phone—964-7883

1970 LTD 4-Door Hardtop

FORD • TORINO • THUNDERBIRD • MUSTANG • MAVERICK • MERCURY • MONTEGO • COUGAR • LINCOLN CONTINENTAL • CONTINENTAL MARK III

FOREIGN SERVICE JOURNAL, July, 1970 consequences of our actions. We need to press the question: Is foreign policy serious enough, complicated enough, with ramifications far enough removed from the common experi¬ auto accident in ence or even the specialized technical experience, that we need professional help from the professionals in diplomacy? BRASILIA If so, what constitutes “professional help?” How do we develop it? clothing lost between Perhaps our difficulty in arriving at a concept of profes¬ sionalism in the FSO ranks which would compare with LONDON and LAGOS professionalism in law, medicine, etc., starts with our uncer¬ tainty in determining just when in the career the “profession¬ furniture lowered into alism” begins. In law, one passes the bar examination, is licensed and begins to "practice.” In medicine, one is trained to technical standards, tutored in the norms of medical sea at RANGOON practice, is tested and licensed, and then launched to preside over people’s physiology. Ministers are “ordained.” But Whatever the inconveniences of long distance or frequent travel, somehow the rites of passage in which a new FSO attends de Sibour protection can make things a little bit easier. Over his swearing-in ceremony seem less convincing. There has 40 years of service to the Foreign Service has tuned de Sibour been no common pattern of training. No single set of in to your unique needs for world-wide coverage and immediate professional standards seems to exist. The specific duties to service . . . protecting your life, your personal property, your which FSOs are assigned seem too varied to pretend to call automobile—in-transit and once you’ve gotten there. for a single brand of professional competence. What is And low-cost group accident insurance exclusively for Depart¬ worse, many real professionals in diplomacy are practicing very successfully without a license, and often positions which ment of State personnel can provide up to $100,000 protection call for the level of professional diplomacy to which Alsop on ali your travels, business or pleasure, at home or abroad. refers are filled by appointments which ignore both the Phone or write for information on license and the aura of professional experience. "world-wide” insurance and Group Accident Policies Back to Mr. Alsop’s “foreign policy professionals.” Within the Foreign Service Corps, perhaps the key to understanding this professionalism is to see it as a professional-level J. Blaise de Sibour & Co. competence which is the product of the career experience as well as a function of the qualifications demanded by the 1666 Connecticut Ave., N.W., Washington, D.C. 20009 entrance examination and the promotion process. Then FSO Tel.: (202) 483-4700 professional status—for those who make it at all—comes in the middle or upper grades of a profession-oriented continu¬ um of experience. However, there is no reason to deny professional competence just because it is a bit hard to determine when professional status begins, and because the WHERE DIPLOMATS DINE status comes more by an apprentice-to-craftsman route than by a specialized training and licensing route. Nor, in the heat THE FOUR GEORGES RESTAURANTS—Four distinetivaly of a policy decision, should one overlook the fact that the designed dining rooms, each created in a mood and motif re¬ professional’s participation is needed. This concept of pro¬ flective of its culinary achievements. Located in the famous fessionalism seems to be the rationale for creating an FSO Georgetown Inn in the heart of Georgetown—luxurious accom¬ Corps in the first place. And a bigger and more technically- modations. 1310 Wisconsin Ave., N.W. Free Parking, 333-8900. specialized foreign affairs bureaucracy is not a substitute for * * * the professionalism which the career Foreign Service, and GOLDEN TABLE—Newly opened, boasts a serene decor Mr. Alsop, visualizes. and a hard to find air in Washington—the "Grand Hotel.” What, then, are the basic requirements for FSO profes¬ Frequented by State Department officials and known as their annex . . . Menu is international in scope—dinner features sionalism besides some experience? There seem to be at least Crab en Chemise, Prime Ribs and Veal Monseigneur. Lunches three main elements. moderately priced. 528 23rd St., N.W., In Columbia Plaza, 293-I272. 1. However acquired, there is a broad body of pertinent knowledge which bears on the foreign policy process and ■ft ☆ ☆ which, if not unique in detail, is specialized in its total LA FONDA, 1639 "R" St., N.W., AD 2-6965. For years the pattern. For example, the professional in foreign affairs favorite of true aficionados of delectable Spanish and Mexi¬ can food served in a romantic atmosphere. Complete ber. knows his government’s foreign policy apparatus, and also Lunch and dinner parties. Credit cards honored. Open that of a number of other foreign countries. He knows how daily 11:30 to midnight, Sunday, 2 to I0 p.m. these work formally, and how they actually work in prac¬ ☆ ☆ ☆ tice. He knows international organizations, diplomatic cus¬ tom and usage, and the mechanisms of diplomatic communi¬ THE SKY ROOM . . . Hotel Washington, Penn. Ave. A 15th ... A peneramic view of the Washington scene is a cation. That is, he knows the tools of the trade and how to breath-taking backdrop to sophisticated atmosphere here . . . use them. He knows the context from which foreign policy International menu, with a French accent, includes flaming objectives evolve, which means he knows a lot of US sword medallions of beef tenderloin bourguignonne. history, economics, politics, public attitudes, etc. He also ☆ ☆ ☆ must know this for the foreign area or areas with which he FOREIGN SERVICE CLUB, 2101 E St., N.W., 338-5730. is concerned. He knows one or more foreign areas in depth, Membership open to all members of the American Foreign and perhaps just as important, when he approaches a new Service Association. Open weekdays for lunch, 12-3. Reser¬ area including the new and developing nations, he knows vations accepted for lunch, dinner, cocktail parties for twelve or more. Continental menu and daily buffet. Phone 338-4045 what he needs to learn. Closer to the daily job, he knows for membership information. both Embassy and Department of State bureaucracies, and how to get things done through them. So we could add to

14 FOREIGN SERVICE JOURNAL, July, 1970 Need worsteds in July? Need Tropicals in January? SEE SWARIZ!

Yes, T. I. Swartz Sons have specialized in filling the unusual needs of the Foreign Service for generations. As many of you already know, Swartz is unlike any other clothing firm in the entire world. We, at T. I. Swartz, have the fashion “know how," the product and the enthusiasm for the job. From wash slacks to formal wear and uniforms we are world renowned for shipping any item anywhere in the world ... any time. Come over and see us, or write for catalogue and swatches.

600 S. Pulaski Street Baltimore, Maryland 21223 Phone Area 301/233-6400

600 South Pulaski St. Bolt

SONS

FOREIGN SERVICE JOURNAL, July, 1970 15 the catalogue, particularly when one recognizes specializa¬ tion in diplomatic functions. The point is that this is a combination package of indispensable knowledge relating to the substance of foreign affairs which goes far beyond that gained in the course of a good general education, or simply by working in the foreign affairs bureaucracy. 2. Secondly, there is that necessary quality of lost inno¬ cence which, as in other fields, establishes the ‘‘old pro. In foreign affairs professionalism there is no substitute for the varied experience of the FSO, through the course of which he has seen policy in action—sometimes at painfully close range—and he has seen that which has worked, and that which has not. Most to the point, he has had to live with the consequences of policy decisions at many levels. Repeatedly he has seen the unanticipated element determine the out¬ come, and with experience, the number of unanticipated elements become fewer in his perception of policy problems. He has observed the policy initiatives of other countries, has tried to analyze them, and predict them. Because his mental computer is thus programed with the memory of that which has not worked before as well as that which has, and also with the many less obvious factors which come into play in determining the outcome of a policy initiative, the profes¬ sional may appear negative when faced with the fresh new idea. Alsop suggested that this has annoyed some Presidents. And it may give the image of lack of imagination. But one of the virtues of a professional in any field, and for which he is paid, is that his is the counsel which helps avoid repetition of past errors, and anticipates the negative as well as the positive consequences of proposed courses of action. 3. Finally, the professional-level FSO is the one govern¬ ment servant whose mission in life it is to carry out the United States Government’s business, and execute its policy, in a foreign environment. He is the one whose skill allows for the real differences in cultural background and national experience, for contrasting public institutions and the way FROM WASHIHGTON TO KABOUL, through more than 200 offices in over 80 countries, AIU offers you superior service they operate, for the variations in logic and the assumptions —with nearly 50 years' international insurance experience to and perceptions which go with them. His language ability is back it up. not only his means of verbal communication, it is also his entre into the thought processes of those with whom he must deal, or the foreign publics whose attitudes impinge on AIU PERSONAL INSURANCE OVERSEAS their policy makers. His accumulation of experience in includes — everyday living and working in the institutions of foreign Automobile liability protection and coverage of damage to your societies give that extra dimension from which the relevance own car... in policies that satisfy all local legal requirements. of our actions and policies can be judged and interpreted for the benefit of the US officials and the public back home who Accident and sickness coverages... from a single-day trip policy lack this dimension. In short, foreign affairs professionalism to an annual policy covering 24 hours every day. involves not only the policy formation process, but the Property insurance of almost any kind you can think of...on special competence in crossing the bridge to carry it out in a your personal effects and household effects ... on jewelry, furs, foreign situation. fine arts ...or even your overseas residence. Mr. Alsop speaks of FSOs as being “in theory profession¬ als in the conduct of America’s foreign policy . . .” If the theory is to be more than just that, it would seem incumbent on the FSO Corps to attend to its professionalism, to cultivate it, and to defend itself from dilution by assuming AIU PERSONAL INSURANCE OVERSEAS too many functions which do not represent the substance of may be obtained through brokers arid agents, or any AIU office. foreign affairs, from usurpation of its functions by an In Washington, call (Area 202) 737-6855 expanding overseas foreign affairs bureaucracy, or from accepting a too modest status within a unified foreign service. ■

AMERICAN 102 MAIDEN LANE The great exponent of perseverance, William the INTERNATIONAL NEW YORK Silent, Prince of Orange, never wavered in the face of every hardship and disaster from striving for the UNDERWRITERS 10005 unity and independence of the Netherlands. The im¬ mortal sentence in which he epitomized his life can¬ Offices, Agents, and Representatives throughout the world. not be repeated too often: “It is not necessary to CHICAGO • CORAL GABLES • DALLAS • HOUSTON • LOS ANGELES • NEW hope in order to act, or to succeed in order to per¬ ORLEANS • NEW YORK • PORTLAND • SAN FRANCISCO • SEATTLE • TULSA severe.” WASHINGTON, 0. C. —Dean Acheson in “Present at the Creation" 16 FOREIGN SERVICE JOURNAL, July, 1970 Britain’s Diplomats

T HE Duncan Committee has advised the Government that the British Foreign Service is bigger than it needs to be mainly because it is performing (efficiently) many tasks which no longer need to be performed. This is good advice and the Government should take it. The Committee argues that the chief aims of British foreign policy now are to akutnuHtty? improve the balance of payments through trade and to consolidate Britain’s position in Europe and as a member of NATO. Britain’s decision to withdraw from Singapore has rendered out-of-date the assumption that remote foreign Governments will respond to British diplomatic pressure because of British military power. So the sort of Embassy that goes with the assumption is out-of-date as well. The Committee recommends, in effect, that the Foreign Service should be made less pretentious in countries where pretentiousness would be vain in any case, and that the chief effort everywhere should concentrate on trade. This would mean a reduction in the size of the service itself, in the numbers of attaches of various sorts, and in the British Information Service. The Committee finds that the BIS is THE STATE DEPARTMENT generally less effective as a disseminator of information FEDERAL CREDIT UNION about Britain than the BBC and the British Council because the BIS is a British Government agency and is therefore is for your convenience. Use it suspect. to help solve those financial These proposals seem reasonable in view of some of the problems. For details, see remarkable facts the Committee discovered. The BIS em¬ your administrative officer. ploys 117 people in New Delhi and 36 in Calcutta to attempt “the insurmountable task” of projecting the idea of Britain to the Indians. New Delhi is well endowed with TOTAL LOANS: $10,926,548 attaches also. On the military side there is one Major- TOTAL SHARES: $14,730,158 General, one Captain RN, one Group Captain, one Lieu¬ tenant Colonel, and one Squadron Leader. There are also two Ministers, four Counsellors, 13 First Secretaries, 14 Sec¬ ond Secretaries, one Third Secretary, one Passport Officer, one architect, and a doctor to look after all the others. In its own brisk way the Duncan Committee has followed the Fulton Committee’s advice to “look at the job first.” Having done this with much diligence and in a very short time, the Committee concluded that outside the areas and countries with which Britain must now be mainly concerned —Europe, North America, China, and Japan—many of the jobs did not need to be done at all. The Committee questioned the usefulness of “political reporting” to which diplomats give much skilled time. The Committee’s conclu¬ sion, very delicately put, was that although political reports to the Foreign and Commonwealth Office might contain much useful information, the people in Whitehall who read them did not seem to take them seriously enough to act on them. “A substantial number of the reports are not readily identifiable as contributing directly to action and decision¬ making in London.” If the Government accepts the Duncan Committee’s Report it must also accept that Britain now has too many diplomats and that although they nearly all work hard and efficiently, much of the work they do is a fairly expensive waste of time. This will come as a shock to diplomats and they ought, as the Committee says, to be generously treated if they have to retire early. (The treatment of locally-recruited staff should be particularly generous.) But money would be saved in the end and the service would be more efficient. Another conclusion which follows from the Committee’s re¬ port (but which the Committee itself has not drawn) is that if less money ought to be spent on the official British Infor¬ mation Service then more should be spent on the British Council and on the BBC external service. If, as the Commit¬ tee says, these two non-Govemment organisations are doing a good job, more money would enable them to do a better one.—from Manchester GUARDIAN WEEKLY, July 24, 1969

FOREIGN SERVICE JOURNAL,, July, 1970 17 This little life, from here to there— Who lives it safely anywhere? (The tidal wave devours the shore: There are no islands any more.) —Edna St. Vincent Millay

An American Foreign Policy Imperative-

Responsible Restraint

A era is at an end. MARSHALL WRIGHT of the atomic bomb. For more than two decades, the • Most important of all, we be¬ essence and the heart of our be¬ FSO-2 Marshall Wright authored came convinced that there existed “An American Foreign Policy Im¬ havior as a nation has been an ac¬ an intense and urgent threat to our perative: Responsible Restraint" national well-being. A united world tivist foreign policy. It is through during the year he just completed our assertion of world leadership as the first State Department Sen¬ communist movement was working that we have expressed our national ior Fellow at the National War with profound determination and purpose and identity. We have College. As we go to press Mr. frightening skill to take advantage Wright is beginning his second as¬ of the general instability that fol¬ judged our national leaders primari¬ signment on the staff of the Na¬ ly against the standard of their per¬ tional Security Council where he lowed World War II. Our strength formance in the international arena. had served previously in 1967-68. and our influence stood as the only Our sense of well-being and accom¬ During his career, which Mr. effective barrier to the broad ex¬ Wright describes as “at best, check¬ plishment has been, to a great ex¬ tension of communist power. A ered,” he has served abroad in prime communist goal, therefore, tent, a measure of the apparent Canada, Burma and Thailand, and success or failure of our interna¬ Thailand, and in the Department was the destruction of our strength tional role. Our government’s best in a variety of slots. and influence. Simple survival de¬ minds, and the better part of our manded that we defend ourselves by governmental energies, have gone failure of the United States after contesting with the communists for into creating, protecting, and apply¬ World War I to shoulder its inter¬ the future of the world. ing American influence to the course national responsibilities. Americans These three propositions, I be¬ of world affairs. generally accepted the proposition lieve, constituted the philosophical Our international role has domi¬ that when the United States turned foundation for the American asser¬ nated the intellectual climate of its back on the League of Nations— tion of world leadership after American life to such an extent on collective security—on an active World War II. They were the rea¬ that for several decades, the first role in world affairs—we con¬ sons why the United States Govern¬ criterion of an intelligent, responsi¬ demned the world and ourselves to ment decided upon, and the Ameri¬ ble, and informed American citizen the tragedy of World War II. can people assented to, this depar¬ has been his ready acceptance of • We came out of World War ture from the traditional American the necessity for our active asser¬ II with a virtual monopoly of the resistance to overseas involve¬ tion of world leadership. He who kind of national strength which ments. challenged or resisted the activist could be used effectively to influ¬ Americans are, however, a prag¬ thrust of American foreign policy ence the nature of the world in matic people. Our original commit¬ was—by definition—either unwise, which we live. No one else could ment to an activist world policy was irresponsible, or uninformed. even attempt the task of creating a a matter of cool calculation. Our It is no mystery how internation¬ world order conducive to peace and subsequent enthusiasm, and the re¬ al affairs achieved this over¬ prosperity. We, alone, possessed sulting dominance of world affairs weening role in our national life. the potential for benevolent leader¬ in our national life came later. It At the beginning of the era, our ship. Not to use our potential was evolved out of our actual experi¬ society came to believe several tantamount to saying that the ence with an activist role abroad. propositions which, in retrospect, course of world events did not mat¬ For it worked. To our delight, our made such dominance almost inevi¬ ter, that it could safely be left to pride, and our intense sense of ac¬ table: blind fate. That proposition obvi¬ complishment, it worked. • The era began with a world ously was untenable in the after- As the United States began to conflagration which was seen as the math of World War II with its 30 to assert its leadership in world more or less direct result of the 40 million dead and its introduction affairs, we experienced one glitter-

18 FOREIGN SERVICE JOURNAL, July, 1970 ing success after another. The Rus¬ American approach to world tends to remain the master of sian assault on Iranian independ¬ affairs. (It was identified and ele¬ its own house. . . . Finally, to ence vanished in the face of Ameri¬ gantly named “the illusion of Amer¬ those nations who would make can firmness. The communist at¬ ican omnipotence” by the British themselves our adversary . . . tempt to take Greece foundered scholar, Denis Brogan.) Let both sides unite to heed in on the rock of the Truman Doc¬ Lest the reader, in these days of all corners of the earth the trine. The Marshall Plan was a our disenchantment, question command of Isaiah—“to undo brilliant success in restoring the whether our commitment to world the heavy burdens . . . and let economic viability and the political leadership was ever so all encom¬ the oppressed go free.” . . . stability of Western Europe. The passing and enthusiastic as I have asking His help and His bless¬ airlift kept Free Berlin alive. Our described it, let me offer a piece of ing, but knowing that here on occupation policies toward Ger¬ evidence. Go back and read John earth God’s work must truly many and Japan succeeded beyond F. Kennedy’s Inaugural Address. be our own. all precedent and all expectation. You will search in vain for one It is hard to imagine any more The nations of the world demon¬ word addressed to domestic affairs. sweeping declaration that the busi¬ strated an almost eager acceptance Indeed, a mention of domestic ness of America is world leader¬ of American leadership. The United affairs would have been out of ship. And it is worth remembering Nations was generally responsive to place, for President Kennedy quite that this declaration, made by a American initiatives. Under our explicitly addressed himself through¬ President just elected by the nar¬ benevolent gaze, colonial empires out the speech to a world constitu¬ rowest of margins, was generally were liquidated, and sixty-three ency, rather than a domestic one. hailed as a brilliant and inspiration¬ new countries came into being. Let the word go forth, from al expression of the national mood. But, at the same time, the Rus¬ this time and place, to friend I, at least, cannot remember any sian development of a nuclear ar¬ and foe alike, that the torch criticism that it was too concerned senal created a sense of deep has passed to a new gener¬ with international matters, or threat. It underlined the need for ation of Americans . . . un¬ staked out for the United States too an overwhelmingly strong military willing to witness or permit the grandiose an international role. It is force and an active world policy to slow undoing of those human instructive of the change that ten circumscribe the growing commu¬ rights to which ... we are years has brought in our national nist strength. The initial Russian committed today, at home and attitudes to contemplate the recep¬ lead in space was seen as a set¬ around the world. tion which would be given today to back, requiring a massive United Let every nation know, such a declaration of American States Government catch-up effort whether it wishes us well or purpose. and a thorough overhaul of our edu¬ ill, that we shall pay any With the passage of time, then, cational and scientific/technological price, bear any burden, sup¬ we came to see an activist world performance. port any friend and oppose policy as a moral and practical Our successes, then, encouraged any foe to assure the survival necessity, sanctified by success, and us to do more—and our setbacks and the success of liberty. ... essentially unlimited by any partic¬ forced us to. To those old allies whose ular level of available resources. Moreover, the cost of our activist cultural and spiritual values On this national consensus rested policy came to appear to be toler¬ we share, we pledge the loyal¬ several decades of hyperactive able, if not surprisingly light. Al¬ ty of faithful friends. ... To American assertion of world lead¬ though we initially shouldered the those new states whom we ership. It led to alliances with 43 costs of an activist national security welcome to the ranks of the countries. It led to the creation in policy with a sense of picking up a free, we pledge our word that foreign lands of 143 American mil¬ necessary burden, we soon came to one form of colonial control itary bases. It led to the consistent feel that the “sacrifice” had no real shall not have passed away allocation of at least 40 percent of bite. The American economy pros¬ merely to be replaced by a far our federal budget to national secu¬ pered and continued to prosper as more iron tyranny ... To rity purposes. It led to the applica¬ never before in our history. those peoples in the huts and tion of American military force in Thus grew a unique phenom¬ villages of half the globe . . . Korea, Lebanon, the Dominican enon in the history of world af¬ we pledge our best efforts to Republic, Laos, and Vietnam. It led fairs. The United States came to help them help themselves, for to our sending economic assistance define its proper international role whatever period is required. . . to 111 countries, and military assist¬ almost solely in terms of what was To our sister republics south ance to at least 79. desirable. We could do—and of the border we offer a spe¬ It is now clear that time has should do—whatever seemed ad¬ cial pledge ... to assist ... in overtaken this consensus. Time— visable. There was no need to cut casting off the chains of pover¬ and changes both in the domestic our policy to fit a pattern of avail¬ ty. Let all our neighbors know and the international scene—has able resources. There was no need that we shall join with them to eroded the philosophical foundation to distinguish sharply between the oppose aggression or subver¬ on which our national security poli¬ essential and the merely desirable. sion anywhere in the Ameri¬ cies have rested since the Second This attitude became an unspo¬ cas. And let every other power World War. ken but fundamental part of the know that this Hemisphere in¬ The implications for American

FOREIGN SERVICE JOURNAL, July, 1970 19 foreign policy are profound—and well-being. Instead, they assert that dent that our leadership is purpose¬ must be recognized squarely. Those there is no longer a united world ful. Would it not have been better, who manage our national affairs communist movement, and they in retrospect, if we had never got¬ must either find a new basis for a question, in any event, whether it is ten into Vietnam at all? What will continuation of our policy—or cut still implacably and effectively ded¬ be the end result of all our effort the policy to fit the foundation that icated to the destruction of Ameri¬ there? Why with our mighty and now exists in current American at¬ can well-being. costly defense establishment, can titudes. The truth of these assertions is we not bring to a successful conclu¬ sion a conflict with a weak and At the simplest level of complex¬ not, of course, demonstrable. Alone, small enemy whose force has never ity, this is true because we are a they would probably not be suffi¬ exceeded 300,000? Is the end re¬ society with effective representative cient to force a redirection of Amer¬ sult of our investment in national institutions. It is not true that no ican policy. But the criticisms do security a situation in which a mi¬ American foreign policy can be not fall into a vacuum. They fall nor power can with impunity seize long pursued without the support of on a fertile soil of domestic opin¬ one of our naval vessels and im¬ the American public. In many in¬ ion. For hand-in-hand with the prison its crew? Is the end result of stances, indifference serves quite as growth of a minority severely criti¬ the Alliance for Progress a situation well as active support. For non- cal of the assumptions underlying in which Governor Rockefeller controversial policies requiring no our activist policy, has come a cannot visit South America without great expenditure of resources, the great change in the psychological becoming a focal point for wide¬ executive branch need not be much attitude of the American people spread riots? Is the end result of the concerned with what public opinion toward the nation’s role of world Marshall Plan and NATO a situa¬ is, or more precisely, what it would leader. tion in which we are booted out of be if it existed. The ultimate con¬ A large part of our people no France and in which our oldest trol of American public opinion on longer respond to the vocabulary of government policy is dependent our foreign policy. The zest is gone. ally, until recently, seemed deter¬ upon two factors. First, the issue The exciting and youthful sense of mined to undermine the dollar? must be a matter of public contro¬ purposeful leadership in decisive Why must the United States versy. Otherwise, public opinion, if events has been replaced with a maintain a military force of 350,- it exists at all, is dormant and in¬ middle aged skepticism born of ex¬ 000 men in Europe, while not a effective. Second, the policy must perience and weariness. We are no single NATO ally meets its military be one which requires for its suc¬ longer sure that the events are deci¬ commitments to the strength of cessful implementation the expend¬ sive, and we are no longer so confi¬ NATO? Does foreign economic as- iture of large resources. Otherwise, the ultimate sanction of public opin¬ ion, the Congress, is not fully effec¬ tive. The rule, then, goes something like this: no American foreign poli¬ cy can long be effectively pursued without public support if the policy is a matter of public controversy, and if its implementation requires the expenditure of significant resources. And this is precisely the crux of the present crisis facing America’s national security policy. It is the activist nature and the high cost of our world policy which is now a matter of public controversy. The critics no longer accept for foreign policy the dominant role in our national life. They assert, in¬ stead, the higher priority of domes¬ tic affairs. They no longer agree that the cost of our national securi¬ ty policy is tolerable. To the con¬ trary, they consider it excessive. They no longer accept the commu¬ nist threat as so urgent and immi¬ nent as to require an all-out nation¬ al effort to create and maintain a world order conducive to our own

20 FOREIGN SERVICE JOURNAL, July, 1970 sistance do any good, and if so, tivist a world policy as the United contributed mightily to the trans¬ why does the gap between the have States has followed in recent dec¬ formation in national attitudes. It and the have-not countries continue ades. precipitated, it accelerated, and it to widen? That policy was possible only greatly intensified the reconsider¬ It does no good to dismiss the because of a shared concept of ation of America’s activist world questions as unfair. As President reality—a view of what was true role. It gave to what otherwise Kennedy observed, life is unfair. about the world in which we live might have been a reasonably cool These are questions which Ameri¬ and what was necessary for our and detached assessment of nation¬ can citizens ask themselves. They well-being in that world. That view al priorities, a white-hot emotional find no truly satisfactory answers. of reality has changed. Our poli¬ flavor and—on both sides—more And the result has been a funda¬ cies, perforce, will change with it. than a touch of crusading zeal. But mental change in their attitude I submit that there is now in our the seeds of reassessment were al¬ toward the American role in world national psyche a set of general ready present and visibly sprouting affairs. Somehow, we seem now to convictions that make a de-empha¬ in such phenomena as the Congres¬ be the victim of distasteful events, sis of our international role as much sional and public skepticism toward rather than the purposeful leader of a certainty in the decade ahead as foreign aid, the growing expressions decisive ones. There is no longer was its expansion in the aftermath much emotional satisfaction to be of World War II. Those convictions gained from our international activ¬ are: ity—and there used to be much. • At home, we face an urgent Similarly, it is pointless to dis¬ and imminent threat to our nation¬ miss the criticism of our policy as al well-being. Our domestic crisis unworthy of serious consideration. probably transcends in seriousness That kind of Olympian rejection is and is in any event more immedi¬ merely an outmoded manifestation ate in its impact than the dangers of the intellectual sanctity which which face us in the international our activist foreign policies enjoyed arena. The first order of American for several decades—but enjoy no business is to come to grips with more. our domestic problems. There is, in fact, considerable • The operations of the United merit in most of the propositions of States Government in the field of the critics of current American pol¬ national security have got some¬ icy. It is true that the world com¬ what out-of-hand. Our expendi¬ of concern with the “military- munist movement is no longer tures for the defense establishment, industrial complex,” the easy public united. It is true that the threat our maintenance of military forces acceptance of strictures regarding posed to the United States by com¬ abroad, our commitments to the the American role as “world police¬ munism no longer appears as ur¬ defense of other countries, all seem man,” and, most of all, the rising gent and heavy as it did twenty out of proportion either to the need tide of high concern with our do¬ years ago. It is true that the bal¬ for or the benefits which accrue from mestic racial and urban problems. ance of payments problem, the hu¬ such operations. Nor is it reasonable to believe man and material costs of the Viet¬ that the current American role can • Our impact on world affairs nam war, and our domestic infla¬ be long maintained by a supreme is no longer as effective and as tion, have destroyed the once proud effort of “public education,” and a decisive as it once was. In many American assumption that world dogged determination by our na¬ instances, our operations abroad leadership could be asserted with¬ tional leaders to hold the line. Such seem to exacerbate rather than mit¬ out significant sacrifice to our do¬ an effort, however noble in its mo¬ igate problems. Our ability to con¬ mestic well-being. And it is certain¬ tivation, would be wrong-headed trol events abroad is, somehow, di¬ ly true that within the past few and futile. minished, and our general assertion years we have become conscious as The nature of international life is of world leadership often involves a nation of grievous and frightening such that the undiminished asser¬ us in problems not susceptible to weaknesses in our domestic life tion of American world leadership satisfactory resolution by our which demand not only our resour¬ is—simply—impossible. It would efforts. ces, but our concentration. require for its success an assured In any event, for purposes of this It is a mistake to consider these continuity which it does not now analysis, it does not matter so much attitudes as the result of the Viet¬ possess—and cannot now be given. nam war. For that implies that the whether the criticism of American For the first requirement of the attitudes are transitory, and will policy is right, as that it is wide¬ successful application of American change once the Vietnam trauma is spread. What is true is in a sense world leadership is the willingness behind us. Such a reversion is high¬ less important than what the collec¬ of foreign governments to accept ly unlikely. Indeed, without some tive American mind thinks is true. that leadership. And no foreign And in the collective American unifying event of transcendent im¬ government can commit its well¬ mind, there is no longer a shared portance, such a reversion is incon¬ being to dependence upon the set of beliefs, a common philosoph¬ ceivable. United States unless it can have ical foundation, to support so ac¬ To be sure, the Vietnam war has confidence in the continuity and the

FOREIGN SERVICE JOURNAL, July, 1970 21 reliability of our commitments. truly effective. In such an atmos¬ Give us a little repose.” In the present state of American phere, it approaches the fatuous to It seems clear that our national public opinion, we are clearly in for insist upon an undiminished asser¬ political leaders have absorbed this a protracted and highly publicized tion of broad American world lead¬ public attitude. Perhaps they share struggle over the nature of our in¬ ership. it. If not, they appear nonetheless ternational role. Each of our bien¬ I should, at this point, make it to have accepted it as an imper¬ nial elections is taking on the char¬ clear that I do not seriously con¬ ative in their conduct of our affairs. acter of a national plebiscite on our template the possibility that the That is what the Guam Doctrine foreign policy, and an increasing United States is headed for a return means. That is what Secretary of number of Congressional roll-calls to isolationism of the pre-World State Rogers means by a “more are billed as attempts to change the War II variety. There is, so far as modest” American approach to in¬ course of American policy. I can see, no significant American ternational problems. Under these circumstances, few sentiment calling for a crude with¬ It can be argued that those things could be a greater disservice drawal from the world. Outside the charged with the management of to an effective American foreign farther reaches of the New Left, our national security should be policy than for our national leaders there are none who suggest dis¬ greatly stimulated by such a chal¬ to hold to the fiction that all is as it mantling our military establish¬ lenge. It takes one level of profes¬ has been, and that current US for¬ ment, least of all our strategic nu¬ sional competence to identify what eign policy continues to be a rock clear deterrent. Few, indeed, would things are desirable to do in terms upon which our foreign friends can suggest that we scrap the concept of national security. It takes anoth¬ build with total confidence. of collective security, terminate all er—and altogether more demand¬ Our foreign friends know better. our alliances, and tell the rest of ing level of competence—to decide They are acutely aware of our do¬ the world to work out their future which of these desirable things can mestic disarray, and of the heated with the Soviet Union and Commu¬ be left undone without running debate over national priorities. They nist China. unacceptable risks. From the pro¬ follow, and they absorb the implica¬ There is no support among the fessional point of view, the whole tions of the widespread charges that American people for such a policy. process of fitting our national secu¬ we are “over-committed.” They will They are not foolish enough to rity policies to a pattern of reduced not—for they cannot—continue to permit such a policy to be foisted resources and restrained activity shape their national policies around off upon them. But neither are they will be a matter of risks assumed. the assumption that American policy foolish enough to believe that the Applying restraint in our national is a constant and dependable factor. only alternative to the policies of security policy means, precisely, To assure them that they “can the past two decades is a feckless deciding what we can afford not to count upon us,” is to ask them to and improvident retreat to isola¬ do. respect King Canute’s judgment re¬ tionism. We are, in all probability, in for garding tidal movements. Instead, it seems to me, the a sustained period in which fewer Foreign governments already American mood calls for a policy resources will be provided to meet know full well that changes are in of deliberate but responsible re¬ our foreign policy and national se¬ store for America’s international straint in national security matters. curity needs. Hard, and perhaps role. They already know that the It calls on those charged with our agonizing, decisions will have to be Executive Branch of the United security to exercise this restraint made as to how those resources can States Government is beleaguered without the sacrifice of fundamen¬ best be used. In making those deci¬ by a rising Congressional and pub¬ tal national interests. sions, the nation will need the full¬ lic demand for a cut-back in Amer¬ Put another way, it seems to me est participation of those who un¬ ica’s international operations and that the message which should be derstand best and care most about commitments. What they need now heard by our diplomatic and mili¬ America’s international role. to know is how the Executive tary professionals is something They must not disqualify them¬ Branch will come to terms with this along these lines: “You have had a selves from serious participation by sentiment, and what the shape of good long run at asserting world adhering to views which are fast American policy will be after the leadership in a very active way. We becoming irrelevant. Those who terms have been struck. have given unstintingly of the continue to insist that we should do A renewed sense of confidence resources you have said were all that we have done, can con¬ in us and our commitments is de¬ necessary. Now we’d like to be able tribute little to deciding what not to pendent upon the emergence of a to concentrate on some problems do. Those who deny the necessity restructured policy which demon¬ here at home. Moreover, we think for making painful decisions as to strably has continuity. That conti¬ maybe we’ve reached the point of our priority interests, cannot influ¬ nuity can only come from a broad diminishing returns on some of this ence the decisions as to what those consensus of American public sup¬ world leadership business. We priority interests are. And it is port. Until the United States has know we still have to do our part, those decisions that will determine created such a policy, both our and we’re willing to do it. But we the future shape of American pol¬ friends and our enemies will be want you to manage things so that icy. uncertain as to our future role. our part doesn’t take up so much of It therefore seems to me that the In such an atmosphere of uncer¬ our attention and resources. Even first order of business for interna- tainty, no American policy can be God rested on the seventh day. (Continued on page 46)

22 FOREIGN SERVICE JOURNAL, July, 197u And with Caesar to take in his hand the army, the empire and Cleopatra, and say, “All these will I relinquish if you will show me the fountains of the Nile.” —New England Reformers, Ralph Waldo Emerson

Return to EGYPT

DAVID G. NES ■^ URING the early morning hours taurant, the Merryland, provide of June 10, 1967, as American David G. Nes, FSO from 1946-68, Cairo’s growing middle class the Charge d’Affaires in Cairo, I closed has served in Glasgow, Paris, and outdoor amenities of a Paris or the doors of our Embassy for the London, and as a Deputy Chief of London. Lunching there alone on a last time, and was driven through a Mission in Tripoli, Rabat, Saigon, and Cairo. A graduate of Har¬ Friday, I was possibly the only tight blackout to the railway station vard’s School of International Law, foreigner and, certainly, the only to lead the last remaining group of Ambassador Nes was awarded the American to mingle with thousands Department’s Superior Honor Americans out of Egypt. A few of families on their weekly holiday. hours earlier, President Nasser had Award in 1967. He revisited the Mid East earlier this year at which In downtown Cairo, two additional gone on the radio to admit his time he gathered material for this large luxury hotels are nearing country’s devastating military de¬ article. completion, the Sheraton in Giza feat and to resign. The streets were and the Fontana with a sweeping soon filled with chanting masses view of the Nile from Roda Island. calling on him to remain their lead¬ In walking miles through most er, a plea which the National As¬ sembly soon confirmed. Anti-West¬ First impressions are often dis¬ ern, particularly anti-American feel¬ tortions of reality, but when one ing was intense and our security knows a city and a people well, you was questionable. In this atmos¬ can at least observe changes. There phere the Spanish Ambassador, were many fewer international air¬ Angel Sagaz, who was representing craft parked at Cairo Airport but US interests in the UAR, with great most major lines still maintain courage drove himself to the station schedules including TWA. The to say farewell. streets and traffic seemed some¬ Early this year in a United Arab what less hectic and more subdued Airlines Russian-built IL 18, I flew and many areas of street lighting in from Tripoli, over the Western were out, but on the whole, life Desert, flaps down above the three seemed to be going on as I remem¬ great pyramids of Giza, across the bered it three years before. After Nile and its islands of Zamalek and that first night with friends at the Roda, purple in the setting sun, a Estoril restaurant, where you can wide sweep over the sand dunes still enjoy excellent European cui¬ along the road to Ismailia and on sine, and a dinner with wine for less into Cairo airport to be met by old than $3.00, I walked back across friends. the A’Tahrir Square to the Nile Driven in through new Nasr City now under a full moon. Cairo with its modern government offices seemed a most beautiful city and and row on row of apartments, far from the Palestine War. Heliopolis, a middle class suburb of To complete impressions, consid¬ villas and parks, and into a city erable new modern construction is celebrating its first thousand years proceeding, particularly in the He¬ of history, I could not but feel joy liopolis area where a new sports at a return under these new and yet center, large park with gardens in untried circumstances. full flower and an outdoor res¬ Damaged Suez canal area

FOREIGN SERVICE JOURNAL, .July, 1970 areas of downtown Cairo, I found the American University of Cairo is shops stocked pretty much as I had thriving with the largest budget, remembered them, except for the $3.3 million, American faculty bookstalls where New York, Lon¬ members—30, and students—74, don and Paris daily newspapers, in its history. Its incredibly young magazines and books in English are and energetic President, Dr. Chris¬ largely unobtainable—a combina¬ topher Thorn, told me there are tion of foreign exchange shortage now 1700 undergraduate students and censorship. of all nationalities, 450 graduate, While to the casual observer and an evening adult education there are thus few evidences of war program of some 2700. In Maadi, to substantiate the daily military a suburb used by many of the communiques which largely fill the American oil company families, the Downed Israeli aircraft Cairo radio news programs, for¬ American College, a Preparatory eigners are severely restricted in High School, enjoys a new modern movement out of Cairo—the agri¬ physical plant and the largest student days, has emerged on top in the number two position and enjoys the cultural” road to Alexandria and body in its history. The American full trust and confidence of Pres¬ the routes to Ismailia, Suez, Missionary School in Alexandria ident Nasser. He takes over during Fayume Oasis and up river to As- has also profited by the presence of the President’s frequent trips siut being closed to them. During American oil company families in abroad and seems well-versed in my week’s stay, there were two that city. The American Research current military operations, de¬ observable Israeli air attacks. On a Center, which supports archeologi¬ scribing for me his analysis of Isra¬ drive between the site of the an¬ cal efforts, and the Ford Founda¬ cient capital of Memphis and the tion, which is involved in Nile river el’s recent escalation of the conflict. Comparing Israeli air strikes with “step pyramid” of Saqara, I heard irrigation and hydroelectric plan¬ the United States-North Vietnam and observed two Israeli Mysteres ning, are also back in full oper¬ bombing strategy, he jokingly said streak low on the other side of the ation. “They are so similar as to have Nile on their bomb run, unloading Of somewhat questionable ad¬ been devised in the Pentagon.” in the Helwan steel complex vicini¬ vantage to the remaining American There are still between three and ty and then with after-burners roar¬ cultural position are the films being ing, lift straight up out of sight. The currently shown and attracting six million Copts (Early Chris¬ second attack involving four air¬ large crowds—“The Young, the tians) in Egypt, many still holding craft, came several days later just Evil and the Savage,” “Life, Love top positions in business and the government bureaucracy, and a as I was being greeted by Foreign and Death,” “Rosemary’s Baby,” Minister Riad in his downtown and “The Strange Affair.” How small Jewish community of some 2000. There has never been social office. One of his aides, with typi¬ long Egypt’s cultural orientation discrimination against the Jews in cal Egyptian sense of humor, and preference will remain Western quipped, “Well, you see, Mr. Nes, under the pressures generated by Cairo and, somewhat surprisingly, I your friends are giving you a mili¬ the Palestine War is problematical. found a Jewish golfing partner still tary salute.” At this point the anti¬ On the political scene, it is al¬ playing at the Gezira Club. Inci¬ dentally, golf there is still very pop¬ aircraft fire was heavy and you ways essential to remember that could see the bursts from the Min¬ Egypt enjoys a high degree of built- ular with a large number of Egyp¬ tian low-handicap players. Starting istry windows. There was, however, in stability in its history, the char¬ times are required on Fridays and no slackening in the pace of the acter of its people and the nature Sundays. Tennis is, likewise, a ma¬ traffic or pedestrians below. Few of the regime. How many Chiefs of even looked up, so used have they State in today’s world have sur¬ jor sport with Egypt’s number one player, of some international stand¬ become to Israeli air activity over¬ vived sixteen years of varying so¬ head. As recent history has shown, cial, economic and military set¬ ing, receiving the Sportsman’s Award during World War II and in North backs including two military disas¬ of the Year. Vietnam, bombing from the air ters and yet emerged with greater The economic-financial situation, surprisingly enough, seems some¬ only increases a peoples’ resolve popularity than in 1954? Unques¬ and fortitude. tionably President Nasser enjoys what improved from three years ago. This phenomenon is due to The non-official American the full support of his people and presence in Cairo is still consider¬ there is little articulate opposition. three developments. First, the joint Kuwait-Saudi Arabia-Libyan annu¬ able. On the official level, we are Since June 1967, several key per¬ al contribution of $260 million de¬ still represented by Spanish Am¬ sonalities within the Revolutionary bassador Sagaz who maintains a Command leadership have disap¬ signed to cover the consequences of section in his Embassy of some peared, Marshal Amer by suicide, the June 1967 hostilities, loss of the twenty American Foreign Service Ali Sabri, head of the Arab Social¬ Suez Canal tolls, oil production personnel. The largest American ist Union, into a less politically from the Sinai and tourism. Sec¬ presence stems from the operations advantageous position and Zahria ond, and of greater future poten¬ of two oil companies, AMOCO- Muhiedin, Vice-President in June tial, is the ever-increasing produc¬ UAR, a subsidiary of Standard Oil 1967 into obscurity. Anwar Sadat, tion of oil. Production from AMO- (Continued on page 29) of Indiana, and Phillips. The close confidant since pre-revolution

24 FOREIGN SERVICE JOURNAL, July, 1970 funds and commodities to assure their AFSA’s Annual Awards Ceremony proper use and to maximize results. Deputy Under Secretary William B. The William R. Rivkin Award, giv¬ With his counsel the province achieved Macomber presented $1,000 awards en in memory of the Ambassador to its highest level of pacification ... He to three outstanding officers of the Luxembourg, and later to Senegal and often stayed overnight in remote vil¬ foreign affairs community at a special The Gambia, went to Thomas D. lages and hamlets and showed a disre¬ luncheon ceremony on the 8th floor of Boyatt, FSO-4, Chief of the Political gard for his personal safety and com¬ the Department of State on July 1. Section in Nicosia. Mr. Boyatt’s nomi¬ fort . . . Not only did he excel under The awards are made annually by nation was based in part upon his emergency conditions, but he also ex¬ AFSA to one senior, one mid-career experience as reported in his article in celled at resolving the myriad day-to- and one junior officer in recognition the December, 1969 FOREIGN SERVICE day problems which he dispatched of their intellectual courage, creativity JOURNAL, “The Hijacking of TWA with imagination and speed . . . Mr. and personal integrity, including disci¬ Flight 840.” In addition he was cited Kinsey proved particularly skillful in plined dissent in the conduct of United for the drafting of a long-range ap¬ his role as advisor to the technical States foreign affairs. proach to peace in connection with service chiefs and other province The winner of the Christian A. Cyprus, Greece and Turkey which officials. He was able to give program Herter award, established in honor of eventually became the Country Policy and planning advice to officials, but the late Secretary, was Leslie Albion Statement formally approved in leave them with a sense of pride in Squires of USIA. Mr. Squires was Washington. A previous article of Mr. their own accomplishment when this nominated on the basis of his work in Boyatt’s in the JOURNAL was also men¬ advice paid off. Consequently his ac¬ Dacca, East Pakistan where he served tioned to show him as a “loyal icono¬ complishments were of a long term as Consul General. The nomination clast,” see “The Case for Traditional nature as these officials gained in self was made because of his foresight and Diplomacy,” December, 1967. confidence, ability and initiative. One performance before and during the The W. Averell Harriman Award particular success was the establish¬ violent political upheaval in East Pak¬ for junior officers, now funded by ment of a training program for village istan in late 1968 and early 1969. The Governor Harriman through 1988, and hamlet officials which greatly im¬ nomination read in part: “Squires’s was given to Warren Bruce Kinsey, proved local administration through¬ first main accomplishment in Dacca FSO-6, nominated on the basis of his out the province.” was his success in overcoming the performance while serving with Honor guests invited to the lunch¬ anti-American suspicions and resent¬ CORDS in Long An Province, Viet¬ eon were former Under Secretary of ments of many East Pakistanis ... by nam. Mr. Kinsey received two nomi¬ State Elliot L. Richardson, Dr. John A. dealing with them so straightforward¬ nations for the Award. The nomina¬ Hannah, Administrator, Agency for ly and tactfully that they came to tions read in part: “The nominated International Development, Frank J. realize he was a man who could be officer is a student of Vietnamese cul¬ Shakespeare, Director, United States trusted . . . [his] reports were so well ture and speaks the language fluent¬ Information Agency, and the donors buttressed with solid facts and keen ly. . . He made judicious use of US of the Awards. analyses that he overcame the skepti¬ cism in the Department and Embassy and brought them to focus on East At the AFSA luncheon on May 27, Under Secretary for Political Affairs Pakistan as a potential crisis area. It is U. Alexis Johnson greets Senator Charles McC. Mathias and AFSA President primarily to his credit that the US Theodore L. Eliot, Jr. Government was not caught off guard when the crisis finally did erupt. ... In reviewing [his] performance during those turbulent months, it is difficult to find any instance when his decisions and actions were less than the best possible under the circumstances; and it is easy to find instances when he accomplished more than seemed pos¬ sible at the time. His performance was all the more remarkable in view of the fact that throughout it he was suffer¬ ing from a painful and possibly serious physical ailment which compelled him to be hospitalized.” Births California, a daughter, and two grand¬ AFSA Has A New Overseas Chapter children. in France WOOD. A daughter. Felicity, born to FSO and Mrs. Chalmers B. Wood, on A new overseas Chapter of the May 16, in Washington. Mr. Wood is SEARLES. Charles D. Searles, USIS American Foreign Service Association awaiting assignment to an overseas died on May 24, in Eldoret, Kenya. was formed at the American Embassy post in July. Mr. Searles joined the State Depart¬ in Paris, France. Its membership in¬ ment in 1950, transferring in 1956 to cludes Foreign Service personnel as¬ USIS. He served in Austria, Laos, signed to the Embassy and constituent Deaths Madagascar, Togo, and most recently Consulates, USIS, the United States as USIS head in Uganda. He is sur¬ Mission to the Organization for Eco¬ CHRISTOPHERSON. Carl E. Christo- pherson. FSO-retired, died on May 3 vived by his wife, Nancy Searles, 8 nomic Cooperation and Development, and the United States Delegation to in Winchester, New Flampshire. Mr. Brattle Road, Syracuse, New York, Christopherson entered the Depart¬ and two sons. UNESCO in Paris. ment of Commerce in 1928, serving in Quoting from the Charter of AFSA/ Sydney, Calcutta, Shanghai, and TAIT. William M. Tait, AID-FSR- Paris, the new organization has among Manila; later he served as a Foreign retired, died recently in Deerfield its objectives the identification of Service officer at Frankfort am Main. Beach, Florida. He is survived by his . . issues unique to the assignment Mr. Christopherson is survived by his wife, of 1597 S.E. 4th Court, Deer¬ in France of AFSA members and of wife, Louise Christopherson, of RFD field Beach, Florida, and two children. members of the Foreign Service in 3, Winchester, N.H., and by two Contributions to the AFSA Scholar¬ general . . . and . . . questions relat¬ brothers and two sisters. ship Fund in memory of Mr. Tait are ing to the professional aspects of a welcomed. Foreign Service career, whether Offi¬ GREENE. Winthrop S. Greene, FSO- cer, Staff Officer or Staff. . The President of AFSA/Paris is Larry retired, died on May 13 in Vienna, TURKEL. Harry R. Turkel, former Am¬ Raicht (State), the Vice President is Austria. Mr. Greene entered the For¬ bassador to the Inter-American Eco¬ Milton Iossi (USIS), the Secretary eign Service in 1924 and served in nomic and Social Council of the OAS, Treasurer is Clifford Brody (State) Ireland, Chile, Switzerland, Colombia. died on June 15 at Masada, Israel. Sweden, and England before he was Ambassador Turkel joined the Depart¬ and the Recording Secretary is David consul general in Lagos, Bratislava, ment of State in 1929 and served at Jones (State). and Vienna. He is survived by a London, Havana, Mexico City, Paris Prompted by Secretary Macomber's daughter, Mrs. Frances Preston of and Ottawa before going on duty with speech on January 14 and the sub¬ Crymnych, Pembrokeshire, England, the US Army in 1942. He served as a sequent creation of the Task Forces, and a granddaughter. lieutenant colonel in military intelli¬ AFSA/Paris compiled its “Task Force gence overseas, receiving the Legion Report.” a fifteen-page summary of LOVEGROVE. William A. Lovegrove, of Merit and the Croix de Guerre with suggestions in response to the stated USIA-retired, died on April 25, in gold star. He returned to the Depart¬ goals of the individual Task Force Lausanne, Switzerland. A well-known ment in 1945 and entered the Foreign groups. Broad in scope, the Task sculptor, Mr. Lovegrove joined the Service in 1947, serving at Mexico Force Report included among its sug¬ Agency in 1949, and served in City, Lima, Athens, Bonn and the gestions proposals covering language Stuttgart, Dusseldorf, Cairo, Athens, Department. He retired in 1961 and training, career management, promo¬ and Vienna. He is survived by his served as Research Associate, Wash¬ tions, Staff personnel assignments, wife, Isolde Lovegrove, and a niece, ington Center of Foreign Policy Re¬ home leave, buy-American policies, Mrs. George W. Lipp, both of Bay search, Johns Hopkins University. He the Task Forces themselves, and the Shore, Long Island. A scholarship in co-authored “Peace Observation: A Peterson Report. Secretary Macomber, memory of Mr. Lovegrove, Executive History and Forecast,” published by in acknowledging receipt of this un¬ Secretary of the European Council of Johns Hopkins University Press in usual document, stated his own satis¬ International Schools, has been estab¬ 1966. Ambassador Turkel is survived faction that the many AFSA/Paris lished by the American College of by his wife Margaret S., of 3046 P members had contributed to the re¬ Paris. Street, N.W. a daughter, Mrs. Michael port and that the proposals were suc¬ Tippett, Sydney, Australia, a son, Wil¬ cinct and very well-stated. REDECKER. Sydney B. Redecker, FSO- liam C., with National City Bank, Other overseas Chapters should feel retired, died on May 20, in Green¬ Athens, a brother, Dr. Henry W., of free to write directly to AFSA/Paris wich, Connecticut. Former US consul San Francisco and five grandchildren. about its programs. As one of its cur¬ to Germany, Mr. Redecker also Interment was in Jerusalem on June rent projects, the Chapter is searching served in Warsaw, Rotterdam, 18. Contributions in memory of Am¬ for organized and effective means to Naples, and Johannesburg. He is sur¬ bassador Turkel may be made to the provide comments on questions of in¬ vived by his wife, Maxine Redecker. American Foreign Service Association terest of the Association. At the same 111 Park Ave., Greenwich, Connecti¬ Scholarship Fund, 2101 E Street, N.W. time, it seeks to work together with cut; a son, John B. Redecker of Wash¬ other Chapters to develop both prac¬ ington; and three grandchildren. WARNER. Carlos J. Warner, FSO- tical local programs and effective lines retired, died on May 15 in Norwalk, of communication with the Depart¬ ment through AFSA headquarters, SAWYER. John B. Sawyer. FSO- Connecticut. Mr. Warner joined the despite the obvious handicap of not retired, died on April 25, in Modesto, State Department and served at being in Washington “where the action California. A federal government em¬ Buenos Aires, Bogota, Havana, Lon¬ is.” The Association, in turn, wel¬ ployee for 41 years, Mr. Sawyer don, Berlin, Rome, and Zurich, where comes this new voice from the field served at various posts abroad includ¬ he was consul general. He is survived and is providing AFSA/Paris sup¬ ing Hong Kong and Shanghai. He is by a brother, E. Allen Warner, and a survived by his wife, Vera Cass Saw¬ sister. Mrs. J. Ronald Wyllie, both of port it needs to follow through on yer of 517 Lottie Avenue, Modesto, Wilton, Connecticut. its objectives. AFSA Co-Sponsors Conference AFSA Asks Benefits for Injury or Death by Hostile Action on Research in Foreign Affairs AFSA sent a letter to Deputy Un¬ 1) revision of the government¬ A Conference on Research in For¬ der Secretary Macomber on May 21 wide life insurance program to in¬ eign Affairs—jointly sponsored by the urging the Department to try to im¬ clude a special indemnity over and Department of State, the Internation¬ prove the benefits payable to employ¬ above other payments for loss of al Studies Association (ISA), and ees and their dependents in the case of life due to hostile action abroad to AFSA—will be held this fall to focus physical injury or loss of life by hostile any US Government employee as¬ on questions concerning the utilization action. The letter read in part: signed overseas on a regular tour of foreign affairs research in the for¬ We are concerned to note . . . of duty or on temporary duty, re¬ mulation of foreign policy. The con¬ that, with the exception of the one- gardless of the agency or branch of ference is planned at Airlie House in year free sick-leave allowance, an government; Warrenton, Virginia on October employee victimized by hostile ac¬ 2) emendation of the employees 16-18. Participating in the conference tion abroad is treated for benefit compensation schedule (5USC will be a selected group of 40 men purposes exactly as any US Gov¬ 8107) to provide extra benefits for and women—evenly divided between ernment employee who may be in¬ complete disability caused by hos¬ government officials and academic jured or killed in a job-related acci¬ tile action over and above disability and other social scientists interested in dent. Thus, an employee who might from other causes; foreign policy formulation. be killed or injured by kidnappers 3) emendation of the employees The proposal to hold this confer¬ or political terrorists would receive compensation schedule to provide ence was originally made in a letter to the same benefits for himself and survivors with a lump-sum payment Secretary Rogers from the Presidents his dependents as, for example, a equal to one year’s salary of the of AFSA and ISA in May 1969. The building-maintenance employee kill¬ employee, in addition to the appro¬ letter discussed the emergence of “for¬ ed or injured through the collapse priate choice of annuity under the eign affairs professionals” in many ar¬ of scaffolding or in a boilerroom Employees Compensation Act or the eas of American life and encouraged accident. Foreign Service Act. the Department of State to take the We urge the Department to take Deputy Under Secretary Macomber lead in broadening the “dialogue be¬ a close look at what might be done replied that his office was looking into tween Government and citizen.” More to improve the benefits for victims the Board’s recommendations and specifically, the two associations urged of hostile actions and their sur¬ would be in touch after an opportuni¬ the Department to sponsor a small vivors. Among the possibilities to be ty to study them. He expressed appre¬ working conference with the objective studied, we suggest: ciation for AFSA’s interest. of tapping new sources of knowledge, acquiring new techniques, and— perhaps—directing foreign affairs re¬ interest will be circulated, with at¬ conference itself will be limited to 40 search into areas that are of value to tribution, to participants in advance of participants, AFSA—in conjunction the Department, as well as to the the conference. Ideas should be sub¬ with ISA and the Bureau of Intelli¬ researcher. mitted in informal letters, by August gence and Research—is planning to In response to this letter, the De¬ 15, to the conference planning chair¬ sponsor some pre- and post¬ partment has agreed to join AFSA man—Dr. Burton Sapin, Dean of the conference meetings open to all inter¬ and ISA in co-sponsoring such a con¬ School of Public and International ested persons. The pre-conference ference, which will examine the forms Affairs, George Washington Universi¬ meetings will provide an opportunity and sources of available research that ty, 2110 G St. N.W., Washington to discuss and evaluate the commis¬ are relevant to foreign affairs, evalu¬ D.C. 20006. Inquiries regarding con¬ sioned papers and informal letters be¬ ate the utilization of research in the ference topics, or the conference it¬ fore they are presented at the confer¬ policy making process, and develop self, may be addressed to the follow¬ ence. Post-conference sessions will be recommendations thereon. Among the ing State Department and AFSA rep¬ used to analyze the results of the topics to be considered will be: 1) the resentatives on the planning commit¬ meeting and to develop possible rec¬ State Department’s experience in the tee: Grant Hilliker, INR/XR, Pio ommendations for future action. Any¬ sponsorship and use of social research Uliassi, INR/XR, and Edith Bruce, one interested in participating in these in the policy making process: 2) re¬ AFSA representative from E/IS. Oth¬ activities is invited to call Edith Bruce cent developments in the social er members of the planning commit¬ on Ext. 20760. sciences of possible interest to foreign tee are Professor Richard C. Snyder, policy makers; 3) problems of utiliz¬ Director of the Mershon Center of ing research in the policy making proc¬ Ohio State University: Professor Ken¬ Bangkok Chapter Active ess, including the improvement of neth Waltz of Brandeis University; The Bangkok Chapter carried out a communications between the policy William Bader of the Ford Founda¬ very interesting survey of the mem¬ and research communities; and 4) tion; and Mansfield I. Smith, Director bership there. Maybe none of the possible options open to the Depart¬ of the Council on Leaders and Spe¬ information will surprise you, but it ment of State in effectively utilizing cialists of The Experiment in Interna¬ tional Living. certainly is helpful to the Board in available research capabilities—both trying fairly to represent the opinions internal and external. As a co-sponsor of the Conference on Research in Foreign Affairs, AFSA of the membership. We have sent Formally commissioned papers fo¬ supports its aims as a means of pro¬ copies of the questionnaire and cusing on these topics will be discussed moting greater professionalism in the Bangkok’s tabulation of the results to at the conference. In addition to the Foreign Service. AFSA also views the every Chapter Head and Keyman in commissioned papers, personnel in conference as another step toward posts around the world. We would like State and associated agencies are in¬ establishing closer, and more produc¬ to see the survey repeated elsewhere. vited to submit their ideas and sugges¬ tive, collaboration between foreign When we get a significant sample, we tions relating to the conference topics. service officers and members of the will publish the results in the JOUR¬ Comments and thoughts of particular academic community. Although the NAL. July Cover Artist Marie Skora, wife of FSO-retircd George W. Skora, studied under Fred¬ erick O’Hara, the internationally known print-maker, and Elmer Schoo- ley, head of the art department, New Mexico Highlands University. She al¬ FOREIGN SERVICE so studied etching in Venezuela and portraiture in Mexico. Mrs. Skora has had eight one-man exhibitions in this country and overseas and has exhibited her work in many national and inter¬ national graphic shows, receiving a number of awards. Another Happy Hour ranging downward from 75d for a cocktail. During her two years in Caracas, The American Foreign Service As¬ Mrs. Skora worked in the art therapy sociation and the Department of Come, bring a friend, meet a room of the orthopedic hospital there State-USIA Recreation Association friend. and she has been a volunteer worker are pleased to report that the first Memberships at Children’s Hospital for the past joint Happy Hour at the Foreign Serv¬ two years in the same field. ice Club was so successful that a Club memberships will be automati¬ The block print for the cover was second session has been scheduled. cally renewed after July 1 and dues designed for the Independence Day The Foreign Service Club will wel¬ will be billed at the annual rate— program of the North American Asso¬ come members of both Associations unless a member previously advises ciation of Venezuela. to a Happy Hour from 5:30 to 7:30 the Club Secretary that a monthly on July 30. There’ll be potables, billing is desired. Sorry we can’t offer a choice in the billing—the computer 1970-71 Awards for munchables, music and conviviality, isn’t up to it! Student Excellence all for low, low anti-inflation prices, Twenty-two graduating high school Foggy Bottom International seniors have been named by the Com¬ mittee on Education of AFSA as re¬ Seeking a change from the foreign out which proved her conviction of a cipients of the Awards for Student affairs that they customarily engage in, need for this type of gathering in the Excellence. All of those whose names representatives of 30 nations met last Washington area. Mrs. Evans com¬ follow are children of members or of May 2nd at the Foreign Service Club. mented that the tremendous response deceased former members of AFSA, It was an international “singles-only" indicated a great desire especially by and will receive a certificate from the dance-cocktail party, held by a new foreign diplomats for the get-togeth¬ Association honoring their achieve¬ group of Washington’s international ers, where they can forget politics and ment. circuit, “Foggy Bottom International.” simply enjoy themselves. A popular Recipients of AFSA Scholarships Bringing together Embassies, the De¬ break in the cocktail party was a will be listed in a forthcoming issue of partment of State, students, business¬ dance exhibit by Vic Daumit, Director the JOURNAL. men and others interested in interna¬ of the Daumit Dance Studio who tional relations, the group attracted demonstrated several new “mod” Thomas William Ainsworth, (Thomas nearly 200 Washingtonians and for¬ dances. eigners who felt very much at home W. Ainsworth) ; Margaret Marie Ama- Foggy Bottom International plans teis, (Roland P. Amateis); Jeffrey My¬ in an atmosphere where several differ¬ ent languages were spoken and where many more such cocktail parties at ron Baskin, (Myron A. Baskin); Peter the Foreign Service Club, as well as Brescia, (Peter F. Brescia); Catherine informality was the “theme.” Guida A. Evans, with the State De¬ boat rides, movies and other activities Winifred Brown, (Emerson M. for single members of the Internation¬ Brown); Margaret Rice Cheney, (Ed¬ partment Visa Office, the president of al set,, ward R. Cheney); Marc Jacob Cohen, the club, was enthusiastic at the turn¬ (Louis A. Cohen); Janet Anne Colm, (Peter W. Colm); Juliette Simpkins Foggy Bottom International party in full swing at the Foreign Service Club. Pres¬ Kendrick, (Joseph T. Kendrick); ident Guida A. Evans in center foreground. Lawrence Koegel, (Lawrence Koegel); mmmHH Marsha Marie Koone, (Carl D. lllS K o o n e ); Robert Walter Landau, (George W. Landau); Francis Pat¬ rick LaRocca, (Francis P. LaRocca); Mildred Adela Mays, (R. Glynn Mays); David W. Moskowitz, (Saul Moskowitz); John E. Ormasa, (An¬ thony J. Ormasa); Roderick Allen Price, (Russell A. Price); Thomas Yarbrough Recknagel, (Thomas M. Recknagel); Maury Ira Schlossnian, (Alvin Schlossman); Lawrence Chris¬ topher Stedman, (William P. Sted- man); Edith Buchanan Terry, (Charles W. Terry); Hugh McPherson Wolff, (Hugh Wolff). EGYPT the vicinity of Cairo. During my continued from page 24 week’s stay, there were the two attacks already described in the Helwan area, the first on Dahshur, the second on El Maadi. The Israe¬ lis are said to be willing to take higher losses than heretofore in the expectation of increasing deliveries on new American planes. The pur¬ pose of the Israeli air offensive seems largely psychological, to force the UAR to sue for peace on its terms. In sum, I found Cairo as a city little changed since June 1967. The UAR is politically stable, and its internal economy and external bal¬ ance of payments have somewhat improved despite the continuing hostilities. From a military stand¬ point, Israel has little to fear in the foreseeable future from Egyptian offensive capabilities, but itself does not have the depth of power re¬ quired to knock Egypt out or force her to relinquish her claim of sov¬ ereignty over the areas occupied during the 1967 hostilities. Egypt wants peace in Palestine as much, or more, than we want peace in Vietnam, and has agreed to a High dam settlement based on the UN Reso¬ lution of November 22, 1967, ar¬ rived at through the Jarring Mis¬ CO’s “Morgan” field in the Gulf of every creditor except the United sion or another third party media¬ Suez, has now reached 300,000 States. The current adverse balance tion. She cannot agree to direct BPD, while Phillips is lifting 40,- in foreign accounts is running negotiations with Israel while under 000 BPD in the Western Desert. about $230 million this year. Much attack nor can she agree to a cease Both companies are hopeful that of this is attributable to food import fire while a large part of her territo¬ continuing and intensive explora¬ requirements of 2 Vi million tons in ry is occupied. Hence the conflict tion, particularly in the Western grain a year. All in all, the picture could continue for a very long time Desert, will eventually result in an¬ is not bad, given Egypt’s past in ever-increasing intensity. other Libyan miracle. Since Egypt’s financial history and the current Meanwhile, the United States internal petroleum requirements “war of attrition” with Israel. cannot expect a resumption of dip¬ are only 120,000 BPD, she has As for the war itself, the Suez lomatic relations with the UAR, become an exporter and in 1970, Canal divides the UAR and Israeli but will probably continue to enjoy should receive revenues of some ground forces along a front of 90 there, for a time at least, an unoffi¬ $100 million. Thirdly, Egypt has miles. Artillery and rocket cross-fire cial presence in mutually advan¬ been blessed with two extraordinar¬ continues daily, as do small cross tageous financial and cultural en¬ ily good crop years in cotton, rice canal raids by both sides. The cities deavors such as the petroleum in¬ and grain—the first two being ex¬ of Port Said, Ismailia and Suez dustry, American University of ported to the amount of $40 million have been virtually destroyed, leav¬ Cairo, Ford Foundation, tourism, last year. ing another 500,000 refugees of the etc. Personal relationships between Internally, a growth rate of 6 Vi Palestine War to be settled else¬ Americans and Egyptians can be percent during the first Five Year where. In the air the Israelis, with excellent as demonstrated by my Plan has slowed to 4Vi percent, apparently an impenetrable defense own easy access to the Vice- but it is hoped it will rise again as and a large offensive superiority, President, Cabinet Members, Mo¬ petroleum exports increase and the began in December heavy bombing hammed Heikal and other key power and irrigation potential of of the Suez Canal area. More re¬ officials. Whether Nasser could the Aswan High Dam bears fruit. cently, this has been extended to weather a settlement which disre¬ Interest on an external debt burden the West Bank of the Red Sea, garded rapidly coalescing Palestine of some $2 billion is heavy. Re¬ including the temporary air and nationalism is another question payment of debts, however, has naval occupation of the island of and all indications are that he is been successfully rescheduled with Shadwan, and is now penetrating to unwilling to take this risk. ■

FOREIGN SERVICE JOURNAL, July, 1970 29 “There is no place for majority rule in foreign policy. If a foreign policy decision has nothing more going for it than sheer numbers, that’s not enough.” Exorcising the Hobgoblin of Conformity: The Question of Foreign Service Resignations

I HERE is always the question DINO J. CATERINI The Vietnam war has caused more soul-searching on the part of what a career official should do A 38-year-old native of Cleveland, when his government adopts a Mr. Caterini received a B.A. in career Foreign Service officers— policy which he believes is a tragic Political Science from Miami Uni¬ and especially the younger ones— mistake, a policy which he cannot versity (Ohio). He then received than any comparable international his LL.B. from New York Univer¬ event in the history of American in good conscience support,” Am¬ sity School of Law and studied bassador Robert Murphy said in his Comparative Law at the Univer¬ diplomacy. There have been a autobiography, “Diplomat Among sity of Padua on a Fulbright Schol¬ number of little discussed and un¬ Warriors.” arship. Mr. Caterini practiced law publicized resignations from the in New York before joining USIA foreign service because of our poli¬ Murphy was referring to the in 1960. He has served in Berlin, events leading to the Berlin Block¬ Mogadiscio, Asmara and Vietnam, cy in Vietnam. ade in 1948. He felt that the and received the Superior Service In a relevant passage from his United States government, then Award and the Meritorious Service book Murphy tells about a conver¬ Award. Mr. Caterini is presently sation on the subject of resignations sole possessor of the atomic bomb, assigned to Rangoon. should take a strong military stand he later had with the late Henry Luce, chief executive of Time Inc. against the Russians who were sig¬ today about my own part in that Luce “told me with some asperity,” nificantly nibbling away at Allied episode. I suffered anguish over Murphy writes, “that one of the de¬ access rights to Berlin. He and this decision of our government not General Lucius D. Clay, then mili¬ to challenge the Russians when fects of public service in the United States is that very few officials re¬ tary governor in Berlin, recom¬ they blockaded Berlin, and I still sign from their jobs as a matter of mended military action to President deeply regret that I was associated principle. In the early days of the Truman. The Joint Chiefs of Staff, with an action which caused Soviet Republic, he said, there were many however, opposed military action leaders to downgrade United States resignations on issues, and that is a because they felt that the rapid determination and capability, and healthy situation.” United States demobilization after led, I believe, to the subsequent World War II had left the military Communist provocation in Korea.” From the standpoint of a career unprepared to win a land war Murphy is one of the few career service, Murphy takes issue with against the Russians. President Tru¬ diplomats to write the unwriteable, Henry Luce. “There is much truth man followed the Joint Chiefs’ rec¬ even to approach the question of in Luce’s view,” Murphy writes, ommendations and no direct military protest resignations from the career “but there is inconsistency in mod¬ action ensued. Instead, the Berlin foreign service. In the Berlin inci¬ ern American practice because of Air Lift was instituted, which suc¬ dent, of course, Murphy was refer¬ the career principle, and ordinarily ceeded in supplying the beleaguered ring to the heady atmosphere I have little sympathy with a For¬ city with the necessities of life; the where high-level policy is created, eign Service officer who resigns be¬ Russians eventually capitulated and to those exalted corridors of power cause he disagrees with policy.” lifted the blockade. where earth-shattering historical On this point, I disagree with “But the Berlin blockade is the decisions are made—and unmade. Murphy. Unlike Murphy, I have a one occasion in my long career Most Foreign Service officers are great deal of sympathy for anyone where I feel I should have resigned not involved with that level of deci¬ who resigns in protest. But he ex¬ in public protest against Washing¬ sion, but the central question plains, “a professional diplomat un¬ ton’s policy,” Murphy wrote. “My posed—whether to resign or not derstands when he accepts govern¬ resignation almost certainly would when one disagrees with basic poli¬ ment service that he is obedient to not have affected events, but if I cy—is still as real on the lower official policy, no matter how re¬ had resigned I would feel better levels as the higher ones. pugnant a particular line may be to

30 FOREIGN SERVICE JOURNAL, July, 1970 him personally. It is the function of “conformity,” they are talking stated but clearly understood laws a career diplomat to carry out his about conformity in policy formula¬ of the system, the foreign service, government’s policy, a function tion. and by extension America, is the which critics often do not under¬ This is the second half of the loser. Although the foreign service stand.” conformity dichotomy, what one may be able to absorb any number I agree with Murphy’s own per¬ might call the foreign/domestic of individual resignations, it cannot sonal decision not to resign for in split. In talking abroad—to foreign¬ ignore the implications such resig¬ the Berlin incident, I believe, Mur¬ ers—conformity is a necessity; in nations suggest about the environ¬ phy would have done both himself talking domestically—to ourselves ment its officers work in—the im¬ and his country a disservice in —conformity is inexcusable—and plication that the foreign service resigning. I base my belief on what does both the foreign service and “way of life” embodies a blind ad¬ I think is a little understood cause our country a disservice. herence to conformity where of dissatisfaction in the foreign serv¬ And yet it is this feeling that one thoughtful internal criticism is re¬ ice—a cause which is often present cannot talk freely, cannot say his warded only by social ostracism in most resignations from the for¬ piece—that often leads to frustra¬ and career isolation. eign service but which was not pre¬ tion, dissatisfaction and eventually The foreign service has to en¬ sent in Murphy’s case: the inability to resignations. Most FSOs can courage criticism from within. It to have one’s views aired—heard— probably name a couple of extreme¬ will certainly get it from outside if listened to. ly competent officers who began it doesn’t. No channel should be In Murphy’s case, he had direct their careers as fellow junior officers closed to the career officer; every access to the ear of the President but who later resigned, even though channel should be actively encour¬ and to the other high-ranking poli¬ loving the basic life, because they aged. So long as we are talking to cy makers in the Truman adminis¬ felt confined, bound, restricted, lim¬ ourselves—to the domestic side of tration. He had presented his views ited and unable to give full vent to the foreign/domestic dichotomy— and he had lost. their creative impulses. no holds should be barred—and The ability to be heard is crucial During fiscal year 1968, 266 there should be no pressure to con¬ in discussing the question of foreign officers resigned; 80 per cent of form—no rigid obedience to service resignations, as this writer them were younger officers. Many official policy. believes—in the final analysis—that officers will merely turn up their We must get rid of the notion that this is the gut reason for most “pro¬ noses at these resignations and say foreign policy wisdom resides only test” resignation from the service. “good riddance, they didn’t fit in in the Secretary of State—or the This is tied in with the entire ques¬ anyway.” But it might behoove the Foreign Policy Board—or any oth¬ tion of conformity within the serv¬ foreign service to do some real er chosen group whose specific task ice. soul-searching as to why they didn’t it is to create policy. We should When a career Foreign Service fit in. It just might be that the encourage officers at all levels to officer enters the service, he knows foreign service itself has to do some think, to create. that he must obey official policy. changing so as to accommodate There is no need to make But a few clear-cut distinctions creative talent, so that it fits in with officers work within the structure of must be made; they have seldom the aspirations of a growing body a stylized and bureaucratic report¬ been clearly articulated. A distinc¬ of younger talented officers rather ing format. Clearances in draft tion must be made between con¬ than the other way around. There and signatures of agreement have formity in policy implementation will always be misfits in the foreign no place in this type of reporting. and conformity in policy formula¬ service—those who thought they The individual should commit tion. Most officers are perfectly will¬ would like the life and later discov¬ himself to his ideas and he should ing to conform as to policy imple¬ er that they don’t. When they be encouraged to write in good mentation provided they have first resign, it is better for themselves plain reasoned but gut-felt English. had some means of participating in and the service. But resignations There is no place for majority rule the policy formulation half of the because of frustration represent a in foreign policy. If a foreign policy exercise—as Murphy had in the loss of talent to the service and a decision has nothing more going for Berlin affair. However, policy often black mark on the life style of the it than sheer numbers, that’s not comes down to the implementing of foreign service. enough. We should be seeking a fiat proclaimed from on high. The foreign service cannot afford some underlying principles and I would expand upon the imple¬ to lose even one officer under such truths, a foreign policy that under¬ mentation/formulation dichotomy circumstances because of what it stands our national interest and as it impinges upon the question of says about the atmosphere in which seeks to foster it. conformity. It is necessary that officers work—because of the im¬ In speaking to ourselves—in Foreign Service officers speak with plication that an officer resigned be¬ referring to the domestic half of the one official voice when speaking cause he did not “conform” to the career officer’s audience—I am al¬ with foreign governments, officials unwritten rules of the game. A ca¬ luding not only to communications and public. This is the implementa¬ reer officer should not have to re¬ with the headquarters offices— tion aspect of conformity and most sign in order to state his views. State Department, USIA, AID, but officers do not challenge it. When When an officer resigns because to communications with the Ameri¬ Foreign Service officers and their he feels creatively frustrated, be¬ can people as well. There is no critics condemn the service for cause he feels defeated by the un¬ need to require conformity when

FOREIGN SERVICE JOURNAL, July, 1970 31 talking to the American people. On aged dissent from within the ad¬ officer is tied to his career is per¬ the contrary, officers should be en¬ ministration and the bureaucracy,— haps the biggest factor which the couraged to write thought-provok¬ had he created an open administra¬ pressure to conform has going for ing articles, books and monographs tion, he might have diffused his it. This problem transcends the for¬ on foreign policy whether the writ¬ opposition from without by dispers¬ eign service and touches all aspects ings conform to official policy or not. ing it within, thereby preventing of modern society. America today In this connection, some thought the creation of a situation in which is less free-wheeling and more inhi¬ should be given to eliminating the views became polarized either for bited—less open and more con¬ internal censorship which now ex¬ or against him. In politics, as well fined—less likely to create the wide- ists in the foreign service. Now, all as public administration, it is al¬ open, foot-loose and fancy-free writings must be approved for pub¬ ways dangerous to create a situa¬ character of the Frontier. The lication. Americans pride them¬ tion which can be summed up by Frontier spirit could produce the selves on freedom of thought and the words. “If you’re not for me, type of rugged American who could freedom of expression and there is you’re against me.” threaten to resign at the drop of a no reason why a career Foreign If the foreign service continues hat—and who could easily afford Service officer should have fewer to demand obedience to policy to do it. rights than a private citizen. when the foreign service is talking The contemporary American is a The elimination of internal cen¬ to itself as well as when it is talking different animal from the frontier sorship—along with the encourage¬ to foreigners, the problem of “mini¬ American, however, because neces¬ ment of complete freedom of ex¬ protest resignations” (i.e., unpubli¬ sity has made him so. This is true pression—would help solve two of cized low-level resignations as op¬ of the present-day American in the the negative factors that plague the posed to publicized high level Foreign Service—in the Civil Serv¬ foreign service. One is the adverse ones) will remain and possibly in¬ ice, in the giant corporations, and opinion held by the American gen¬ crease. These resignations will not in all society. Having no frontier to eral public of the foreign service as necessarily be over precise policy escape to, it is harder to be inde¬ an effete, conservative, bland and differences but will probably reflect pendent. Without viable independ¬ unimaginative elite corps of well- a dissatisfaction with the pressure ence, it becomes harder to resign mannered but unproductive pencil to conform and the unwillingness of in protest, and the older one be¬ pushers. A second is the negative the foreign service to reward comes, the harder it becomes. If impact of a working atmosphere in creative and daring thought. In the the frontier were the dominant which a great many officers, rightly early days of the Republic, there feature which shaped the early or wrongly, feel that complete free¬ were many resignations on issues, a American character, then it is the dom of expression not only goes healthy situation. But I think some quest for security which has most unrewarded but is somehow active¬ fundamental differences between shaped the modern one. I think ly discouraged. the days of the Founding Fathers that if the entire question of securi¬ We must reconstitute the atmos¬ and today’s world should be point¬ ty were not involved there would phere in which we work. Some ed out. be more resignations front the For¬ will argue that such freedom will In the early days of the Repub¬ eign Service, from the Civil Serv¬ erode the discipline so essential to lic, public service was not a career ice, and from the giant corpora¬ the smooth working of the service. service. Most public servants were tions—and from all institutions to But this is not so because only self gentlemen farmers or independent¬ which people feel bound. The prob¬ discipline is meaningful. This may ly wealthy businessmen for whom lem transcends the Foreign Service result in opinions that do not follow public service was a sometime but becomes more poignant in rela¬ the latest line. But the place to thing. It is doubtful, under such tion to it because of the immense thrash out ideas is in the open circumstances, whether acts of resig¬ importance of the issues involved, forum. nations represented real acts of because the Foreign Service in the I have doubts about any govern¬ courage. It is actually quite easy to field of foreign policy is daily deal¬ ment, organization or group that resign in protest when one has ing with issues of profound impor¬ consistently speaks monolithically something else to go back to—the tance to the future of America. with one voice. Anyone who has old plantation or the family bank. But has the quest for security ever dealt with a Communist coun¬ It takes a genuine act of courage, made cowards of us all? Have we try knows that many opinions in a however, to resign in protest when really sacrificed our basic beliefs on society clash despite the attempts of one has devoted a good part of his the altar of security — careers — the regime to create the appearance life to a career in public service retirement? of speaking with one voice. Also and has no alternative profession to Perhaps only each individual can anyone who has ever served in a fall back on. This represents a truly answer that question after search¬ totalitarian or near-totalitarian coun¬ profound and genuine moral an¬ ing the deepest caverns of his in¬ try knows the deadening impact guish—the type of tragic situation nermost soul. But it does seem to of the pressure to conform. Presi¬ from which great literature springs me that everyone has to believe in dent Lyndon Johnson tried to cre¬ —and which was seldom present ate the illusion of an administra¬ something deeply enough to risk among public servants in the early tion behind his policy from top to losing all in a crunch. This is what bottom. One could argue plausibly days of the Republic. the Founding Fathers did when, in that had President Johnson encour¬ The fact that the average career signing the Declaration of Inde-

32 FOREIGN SERVICE JOURNAL, July, 1970 pcndence, they mutually pledged to one is merely running away from uncreative bureaucracy ignored by each other “our Lives, our Fortunes the problem and that the act of the very presidents it was created and our sacred Honor.” Like the resignation is one of cowardice not to serve. Founding Fathers, most Americans courage. I think this is basically We should ask ourselves just do believe in certain basic funda¬ true so long as there is a meaning¬ what President John F. Kennedy mental principles—more so than ful machinery for reform from meant when he once asked Charles they are often aware. Freedom of within. Bohlen, “What’s wrong with that religion, freedom of expression, But there has to be a certain goddamned Department of yours, freedom of thought, freedom of the point beyond which a Foreign Serv¬ Chip?” In desperation, President press—these represent basic ideals ice officer should resign in protest. Kennedy ended up creating a spe¬ to which almost every American is So it is proper to ask the ultimate cial foreign affairs coterie in the committed. question: when then should a career White House because he had be¬ One can justifiably ask the ques¬ officer resign in protest? come suspicious of “those guys” in tion, however, whether what was To me, the answer seems to be: the foreign service. healthy for the Republic in its early only when the system within be¬ In my opinion, when President growing days is equally healthy for comes so oppressive and so unable Kennedy asked Bohlen “what’s the country today, or more specifi¬ to change that to fight it from out¬ wrong?” he was really asking, cally, whether it is healthy for the side represents the only viable al¬ “Why don’t you guys in the Foreign career foreign service? Although ternative. To anyone genuinely in¬ Service ever come up with some protest resignations are to be ap¬ terested in the future of the foreign new and imaginative ideas? Why plauded at times it is doubtful service, no other answer makes don't you fight for what you be¬ whether they always represent acts sense because if everyone with the lieve in? Why don’t you show a of courage. It all depends on how courage to resign did so it would little more creativity—zest—life— one looks at the situation. For ex¬ leave the foreign service in the spunk?” In other words, President ample, to those who believe that hands of the very people the disen¬ Kennedy carried around in his reforms in the foreign service are chanted are purportedly out to head the image of the foreign serv¬ deeply needed, it may be more fight—the bland, the conformist, ice as an effete bunch of unimagi¬ courageous not to resign and to try the unimaginative and the indiffer- native conformists more interested to work for needed reforms front ent. The very person brave enough in a safe and secure career than in within. Under such circumstances, to resign because he is dissatisfied daring, courageous and innovative one could argue that, in resigning, with the system is the one the for¬ thought and action. eign service most needs and can It doesn’t matter whether the least afford to lose. It would be image President Kennedy had of unwise on our part, however, to the foreign service is wrong but so deny that many such persons have long as the negative image exists, it been lost in the past. The resigna¬ makes sense for us to ask ourselves tion of good men is a problem and why. the foreign service must face up to It seems to me that the basic it. The resignation of even one reason lies in the pressure to con¬ good man is one too many. This form. If consistency is the hobgob¬ brain drain represents a loss of lin of little minds, then conformity talent which the foreign service can is even doubly so. It is a psycholog¬ tolerate only at the risk of reducing ical fact of life that one can never itself to a bland, homogeneous and force truly creative thinkers to con¬ form. When forced to, they resist— or move on. President Kennedy— and otheu presidents as well—have i rn implied somehow that the foreign service has no backbone. It just ! 7 ASSIGNATJON ! nv'ffit be that the reason the foreign sei ice is so is because those with backbone leave because of the pressure to conform. Without the courage to encourage dissent from within, we face extinction. If Pres¬ idents continue to lose confidence in the foreign service as their major advisory arm in foreign affairs, the real power will switch to those spe¬ cial groups in the White House or within other specialized agencies unconnected with the career foreign service in whom the president has (Continued on page 48) FOREIGN SERVICE JOURNAL, July 1970 33 “If we are to guide the forces of change rather than be mastered by them, we must be wise and far-sighted in our national and international policies.”

“The Crisis Of Development”

These are the proposals and conclusions of a Commission LESTER B. PEARSON on International Development of the Council on Foreign Prime Minister of Canada from 1963-68, Lester Pearson Relations, and reprinted from “The Crisis of Development” received his education from schools in Canada, England by Lester B. Pearson, through the courtesy of Praeger Pub¬ and the US, and has worked actively for the Liberal Party lishers. since 1928. Recipient of the Nobel Peace Prize in 1957, PM Pearson has authored "Democracy in World Politics” and “Diplomacy in the Nuclear Age.” From “The Crisis of Development” by Lester B. Pear¬ I"HERE are sixty-eight formal recommendations and son. Copyright (C) 1970 by Council on Foreign Relations. several less formal suggestions in the Report. Their Reprinted by permission of Praeger Publishers, Inc. general objective is to support and strengthen cooperation for development and to give a clearer purpose and greater coherence to “aid” strategy. To this end there are recommendations to increase the quantity of “aid” and improve its quality and its utilization, to emphasize the each country itself. Nothing of lasting significance can fundamental importance of the concept of partnership in be achieved without national drive, national sacrifice, the total aid relationship, to increase the export trade of and national leadership. developing countries and promote sound foreign invest¬ The technical means are now available—if the politi¬ ment, to make aid organization and administration more cal will is strong enough—to create a world of expand¬ effective and strengthen its multilateral element, to in¬ ing opportunity for all, without today’s abject poverty crease the value of technical assistance and last—but and the debilitating disparities in economic and social very far from least—to deal with the population ex¬ standards that now exist between nations. plosion. This, however, will not be achieved without active In the first chapter of its Report, the Commission and constructive international cooperation for world summarizes its general conclusions and I do not think I development, based on a partnership which should be can do better here than to summarize that summary. insulated, as much as possible, from international pol¬ The record of economic growth in developing coun¬ itics. tries over the last two decades is a good one and should Economic growth must be balanced against social be a source of confidence, rather than discouragement, goals, something that can be done only by the de¬ for the future. veloping countries. When it is not done, economic This record shows that where there has been a growth will be nullified by social weakness and division. resolute national purpose and a sincere effort on the There can be no single strategy of development, but part of developing countries, economic growth has re¬ there must be agreement on basic principles; and pro¬ sulted, and external aid has helped to sustain and grams should be welded into a coherent and coordinated accelerate that growth. system. When failures have occurred, these have been largely Much has been learned about the problems of cooper¬ due to political weakness, or instability, in developing ation for development. What is necessary now is to countries, when governments have subordinated the apply what has been learned with a clearer sense of known and necesssary needs of long-term development purpose, more accurate assessment of needs, and a for more immediate and selfish political goals, or when closer relationship between aid-commitments and aid- “aid” commitments have been inadequate or not carried performance on both the donor and receiver sides. out. Reversals in other sectors of development, such as The proportion of aid through multilateral channels trade, have also contributed to failures. should be increased, and the international agencies used While “aid” has been of great importance, the problem for this purpose must provide leadership and efficient of development, in all its aspects, can be solved only by administration.

34 FOREIGN SERVICE JOURNAL, July, 1970 The total volume of aid should be increased to one per cent of the gross national product of the wealthy countries, a goal to be met by 1975. In view of the special need for, and declining flow of, official assistance and concessional finance, particular importance is at¬ tached to a separate target for official development transfers of 0.70 per cent of gross national product, also to be reached by 1975. Donors and recipients should join in an effort to rationalize and simplify existing cumbersome procedures. There should be a combined attack on the practice of tying aid to purchases in donor countries, which now reduces the value of aid and distorts the channels of world trade. Greater attention should be paid to the need for program, as opposed to project, aid. Technical assistance should be more adequately inte¬ grated with capital assistance, and be made more rele¬ vant to local conditions, especially in the fields of education, research and development. cies. This is even more important in the field than at Mutually beneficial private capital flows should be headquarters, though the profusion of agencies often increased, but this must be done in such a way as to lacks direction and coherence at the top. recognize the legitimate interest of developing countries All the components of aid, bilateral and multilateral, in maintaining their economic independence. should be brought into a closer relationship with each In view of the problem of mounting debts, some other through a new international framework designed repayment schedules will have to be rearranged in order for this purpose. The Commission has, therefore, pro¬ to restore the framework for orderly and dynamic posed, and I consider the proposal to be most impor¬ development. Debt relief has an important part to play tant, that the President of the World Bank should invite in aid strategy. Official development loans should be to a conference, to be held in 1970, the heads of provided at rates of interest no higher than two per appropriate organs of the United Nations, heads of cent, with grace periods of seven to ten years, and multilateral agencies, regional development banks and maturities of twenty-five to forty years. UN coordinating bodies, as well as representatives of The development of poorer countries requires a con¬ donor and recipient governments. The conference would tinued expansion of world trade in which the developing discuss the creation of improved coordinating machinery countries should have a larger share. This requires that through a council on the highest level, which would be the trade policies of developed countries should be capable of relating aid and development policies to modified in favor of imports from the less developed other relevant areas of foreign economic policy, and of ones. Trade between the developing countries them¬ making standardized assessments of development per¬ selves, both on a global and a regional basis, should be formance, as well as clear, regular and authoritative encouraged. estimates of aid requirements. Such a council would also Population growth must be controlled so that it does be able to provide balanced and impartial reviews both not thwart social and economic progress. of the aid policies and programs of donor governments and of the aid and development performance of recipi¬ I would like to make here a somewhat more than ents. It should bring about a more constructive and capsule reference to proposals in our Report dealing acceptable dialogue, which should lead to a closer and with organization and administration of aid programs— better relationship between the transfer of aid resources something that I have mentioned only incidentally in and their utilization—something which I have stressed these lectures, though it is of obvious importance. so often as especially important. This monitoring of The strategy of aid must be related to the total performance, for that is what it would be, would be concept of development, and not separately to its vari¬ done by an international body which must reflect in its ous parts. This is particularly necessary in the organiza¬ representation and operation both sides of the aid tion and administration of aid, which is becoming more relationship. complex, both nationally and internationally. It should There would be new machinery, then, at the top be simplified. I know how difficult this will be, and I decision-making level to cover the whole development know that it would be folly to expect total efficiency in front. On the agency and operational level, there are something so complicated and which touches on so already consortia and consultative groups of donors and many aspects of government and of intergovernmental recipients, which have worked well. They should be relations. But improvement should be possible. Indeed, strengthened and new ones, where required, should be it has already taken place in recent years, though much set up which will also reflect this principle of dual remains to be done. representation, responsibility and operation. Multilateral agencies should be strengthened. Existing The World Bank, or some other appropriate existing procedures, including national procedures, are too cum¬ agency, should provide the necessary technical reporting bersome, too slow-moving, and there is too much over¬ services for such reviewing agencies. The World Bank lapping. There should be a closer coordination of aid and the International Monetary Fund should also adopt activities between governments and international agen¬ procedures in countries where both operate for prepar-

FOREIGN SERVICE JOURNAL, July, 1970 35 ing unified country assessments and giving expert and apologize for mentioning again some of its mam com¬ policy advice. ponents at the end of these lectures. There must be The International Development Association, the “soft • Political stability, without which there can be no loan window” of the World Bank, should play an steady and orderly development increasingly important role in the whole development • Social progress based on social justice and human system. To this end, it should be given greater financial rights resources—and for a longer period than one year. • Integrity and efficiency in government Among other things, it could formulate broad criteria to • Financial and economic policies which do not sac¬ govern the allocation of concessional financing for de¬ rifice long-range national objectives to immediate velopment in order to offset some of the more glaring political pressures or ambitions inequities which now exist in aid distribution. • The efficient allocation of domestic resources for A key agency in the development process is the development, with rates of savings and investment United Nations Development Program (UNDP), under that are as high as possible the tireless, experienced and devoted leadership of Paul These are only some of the requirements for the kind of Hoffman. It is the specific purpose of the UNDP, in Mr. development policy which warrants and should secure Hoffman’s words, “to help convert the latent potential cooperation and assistance from outside. [of developing countries] into fuller productivity, par¬ Even when these requirements are accepted in princi¬ ticularly by pre-investment surveys and technical assist¬ ple, their implementation will often be frustrated by ance.” That this potential exists is indicated by the • Insurmountable social and cultural obstacles to the estimate that, at present, not more than 20 per cent of necessary reforms the natural resources and 10 per cent of the human • Failure to save and invest sufficiently for growth, productive capabilities of the developing countries are because people are so poor that everything goes to being fully utilized. mere survival The UNDP is now the largest source of pre¬ • The lack of political will, of the resolution to make investment assistance. Current commitments for pre¬ the effort and the sacrifices necessary for success investment and technical assistance amount to $129 (Failure here is often due to the feeling that the million. By 1968, over $2 billion in follow-up invest¬ problems to be faced seem so intractable as to defy ment had been stimulated by pre-investment activities, solution; so why bother?) supported by the UNDP. • An acute shortage of technical skill and know-how If multilateral aid is increased, as recommended by • Too high a rate of population increase our Commission, the work and responsibilities of the • Modernization of agriculture, without sufficient re¬ UNDP would be expanded. In consequence, its organi¬ gard to local conditions zation and administration and its relations with other • Industrialization artificially or uneconomically forced agencies should be so ordered as to enable it to take on • An educational system not directed to local needs these new and enlarged activities with maximum effec¬ and possibilities, including the development at tiveness. home of technology, science and know-how • Trade and fiscal policies which do not provide for a sound and steady increase in exports I have attempted to indicate briefly the views and These, then, are some of the requirements that must proposals of the Commission on International Develop¬ be met, some of the obstacles that must be overcome by ment. I am very conscious of the fact, however, that, the developing countries if cooperation for world de¬ even if governments considered these proposals wise velopment is to succeed. Any country that is trying to and implemented them, and if, as a result, there were a meet and overcome them has, I repeat, the right to new and better aid relationship with a wise and well- expect and receive the material help and the under¬ administered strategy for total development, there would standing cooperation of those who are economically still be difficulties and problems. This is inevitable in the more advanced and richer in material things. Its right is effort to build a healthy and desirable aid relationship our obligation. It is as important to us as it is to it that based on partnership between materially rich and poor this obligation should be discharged. Indeed, the “aid” is nations in an increasingly interdependent, swiftly chang¬ as mutual as the obligation is general, and the results, ing world—a relationship which touches at so many for better or for worse, will be universal. points on complex and sensitive political and economic We have now finished a decade which began with the matters within and between nations. all but total liquidation of the old imperialism and I can only repeat that such an international effort ended with man on the moon. It was a time of troubles cannot succeed unless there are tolerance, sympathy and problems but also of great technical achievement— and understanding on each side. These, I realize, are some of it bearing hope for the future, some menacing. not qualities that can be taken for granted in relations The next decade may be an even more difficult period between states, even in normal circumstances—far from of tension and crisis. Things are still changing and with it. They will certainly not exist in an aid relationship ever more bewildering speed, and change normally unless there is a very clear appreciation by the de¬ means disruption. If we are to guide the forces of veloping countries, which shows itself in policy and change rather than be mastered by them, we must be action, of what is required from them for self-sustaining wise and far-sighted in our national and international growth as the foundation for self-reliant and total national policies. One test of that wisdom and far-sightedness development. will be what we do about international cooperation to The list of such requirements is long. I do not (Continued on page 47)

36 FOREIGN SERVICE JOURNAL, July, 1970 An examination of the system complete with suggestions for the improvement from the literature and from the experience of big business.

Performance Appraisal And Promotions in the Foreign Service

DONALD P. WARWICK constrained. Performance appraisal systems D Our author is lecturer and director UY the standards of private and of the Comparative International in any organization aim at serving even progressive public organiza¬ Program in the Department of three purposes: (1) letting the em¬ Social Relations at Harvard. He tions the system of performance is a member of the faculty of the ployee know where he stands so appraisals and promotions in the I. F. Kennedy School of Govern¬ that he will be encouraged to im¬ Foreign Service is antiquated, cum¬ ment and research associate of the prove his performance; (2) provid¬ Center for International Studies. bersome, ineffective, and wasteful Donald Warwick came to Harvard ing the organization with informa¬ of human potential. The malaise from the University of Michigan tion on how well its human re¬ where he was associated with the sources are being used to meet its currently seen in the officer corps, Institute for Social Research. In especially among its most talented 1966-67 he directed a study on goals; and (3) to provide an in¬ members, stems from many factors. organizational change and bureau¬ ventory of executive, managerial, cratization in the Department of Not the least of them is the feeling State. He is now working on two and other potential available for fu¬ of insufficient responsibility, exces¬ books to be published later in the ture needs. From all indications the sively slow advancement, poor pros¬ year. appraisal system in the Foreign pects for the future because of the Service does poorly on all three “age lump” in the upper grades, and, Some of this ambiguity is ines¬ counts, especially when compared poor treatment compared with their capable, deriving from the inherent with systems in other organizations. counterparts in other professions. unpredictability of events in the The reasons for this failure are The squeeze on promotions, the di¬ international community. Here I these: lution of responsibility, and the in¬ refer, however, to the apparent re¬ 1. Evaluation and promotion are credible hierarchical layering of the luctance of managers in all seg¬ not related specifically to organiza¬ State Department have already driv¬ ments of the State Department to tional goals. On the officer evalua¬ en many young officers to more define the specific objectives of tion report (Form JF-41) the can¬ tempting pastures, and the trend is their units, and to use these objec¬ didate’s performance is evaluated likely to be accentuated in the fu¬ tives in appraising the performance abstractly rather than by the con¬ ture. Unless the Foreign Service per¬ of their subordinates. crete objectives of the unit to which sonnel system is drastically changed, The resulting vagueness means he is assigned. The rater is asked the chances are good that within ten that Foreign Service, as well as to evaluate knowledge of work, pro¬ to fifteen years mediocrity will be Civil Service, personnel must be ductivity, ability to plan work, judg¬ the dominant note in the Service. evaluated on the basis of subjec¬ ment and dependability. But no¬ The problem of performance ap¬ tive, ill-defined, and often vacuous where is he requested to appraise praisals, competition, and promo¬ personality traits such as “integri¬ the officer’s contribution to the at¬ tion cannot be discussed apart from ty.” Another problem not peculiar tainment of the unit. Moreover, broader questions about the For¬ to the State Department and Foreign some of the specific criteria sug¬ eign Service and the State Depart¬ Service concerns the implicit (and gested in the instructions for use of ment. One issue that cuts across sometimes explicit) managerial phi¬ Form JF-41 implicitly attribute an almost every aspect of the person¬ losophy incorporated in organiza¬ absolute value to certain qualities nel system is a pervasive ambiguity tional manuals and gradually in the that should be judged in relation¬ about goals in the Foreign Service minds of managers themselves. It is ship to the goals of a unit and the in general, and in the operating based upon the military chain of nature of its work. One such trait units of the State Department (with command concept. As long as this is “Amount of Supervision Re¬ the exception of more production- philosophy is allowed to dominate quired.” The assumption here, ap¬ oriented activities such as issuing the system, meaningful change in parently, is “the less supervision the visas and passports). personnel practices will be severely better.” In many situations this as-

FOREIGX SERVICE JOURNAL, July. 1970 37 sumption may be wrong, or the The employee’s personal quali¬ ality weaknesses, they could not do entire dimension irrelevant for an ties are relevant to the organization anything about such weaknesses. adequate evaluation of effective qua organization only to the extent The charge is made that those who performance. that they affect his ability to meet use the person-oriented approach 2. The rating dimensions are too the organization’s goals. Defenders are, in a sense, rendering judg¬ general to be useful, and may re¬ of results-oriented appraisal sys¬ ments about a fellow human being sult in serious omissions of informa¬ tems will argue that if you are in which their own values, atti¬ tion. The rating forms reflect the interested in performance, focus on tudes, and background are so inex¬ misguided belief that all officers performance rather than personal tricably interwoven in the final prod¬ can be rated and compared on the traits assumed to be related to per¬ uct that it is difficult to separate the same criteria, irrespective of the formance. R. R. Blake, in an article two.” specific tasks to which they are called Re-examination of Perform¬ This general problem is compli¬ assigned. Thus, every candidate, ance Appraisal, in ADVANCED MAN¬ cated by the extreme vagueness in whether he is a political, econom¬ AGEMENT, July, 1958, wrote: the qualities suggested for consider¬ ic, or administrative officer, work¬ ation in the Instructions for Form “It is better to be concrete and to ing in Washington or Kathmandu, is JF-41, the officer evaluation re¬ evaluate specific work situations when rated on his written and oral ex¬ the job required more than Joe gave it port. Psychological research sug¬ pression, relations with Americans, and try to find out what blocked him, gests that six raters who knew an relations with foreigners (whether and finally to place plans in action officer equally well would probably or not he ever sees any), and ex¬ which will prevent that kind of situa¬ come out with different assessments ecutive ability. The implicit model, tion happening again. When you do on such broad qualities as intellec¬ of course, is that of the political that you are acting like a manager of tual caliber (potential or as shown officer, while the notion of perma¬ men, you don’t use terms like initia¬ in the man’s work?), range of in¬ nent functional specialization is for¬ tive, character, or adaptability be¬ terests, goals, ambition, commit¬ cause their abstractions are too diffi¬ eign to the instructions for Form ment to the interests of the Service cult for even the best of us to under¬ JF-41. More serious than the ab¬ stand. You may find yourself using (can anyone define these?), objec¬ stractness and at times irrelevance terms like material cost control, job tivity, discretion, and creativity. I of the dimensions appearing on this safety, care of equipment, planning suspect that in many cases the av¬ form are those that are missing. and scheduling, amount of re-do erage inter-rater agreement would Either specific forms should be de¬ work, or sales results, if they are be no more than 30 per cent—a veloped for the various functional relevant, because they point to con¬ rather flimsy basis on which to de¬ cones, or subdivisions should be crete, specific aspects of work.” cide a man’s future. added to reflect the nature of an As suggested in the above quota¬ Personality-oriented evaluations officer’s work. Tt might also be noted tion, personality characteristics are are much more threatening to the that some of the dimensions sug¬ difficult to define, and nearly im¬ individual, and, when negative, are gested in “Precepts for the 1968 possible to apply on any objective likely to lead to a reduction in Selection Boards . . .” (FAMC- basis. They are a convenient open¬ performance rather than an im¬ 512) are odd, e.g.: ing to subjectivism, the kind that provement. Most employees are open to suggestions about improv¬ Positive recognition should be given can be particularly dangerous in an to those officers who . . . have exer¬ organization with loosely defined ing their work, but few are willing cised selectivity, either as drafting or goals. If a superior dislikes a subor¬ to take criticisms of themselves in as supervisory officers, leading to a dinate but cannot fault him on per¬ an objective, rational manner. reduction of the work load and/or formance, perhaps because it would Appraisals emphasizing personal personnel and hence to a reduction of require too much explanation, he characteristics are less constructive the need for increasing overseas staff. can easily shift his ire to personal than those geared to changes in (P-2) qualities such as integrity and cour¬ performance and results. When the Flowever laudable and urgent the age, versatility, adaptability, mo¬ superior and subordinate agree on reduction of overseas personnel may tivation, and tact. It is obviously performance objectives at the be¬ be, it is remarkable that this cri¬ rather damning to have questions ginning of the rating period and terion should be given great promi¬ raised about one’s integrity, and a then discuss progress at the end, nence in itself, with no consideration low rating, offered with little expla¬ improvement is likely to follow in of the relationship between staff cuts nation, may be picked up by the the next period if the “coaching” is and the effectiveness of the mission promotion panels as a justification handled properly. By contrast, in question. This statement and the for holding the officer back. when an officer is told that he lacks entire circular illustrates the sense of Evaluation of personal qualities courage, is deficient on intellectual ambiguity and drift alluded to places the superior in the role of a caliber, was not thorough, lacks pa¬ earlier. judge and personality analyst, and tience, is not properly motivated, 3. The ratings overemphasize asks him to carry out a task for and shows insufficient discretion, he personal characteristics considered which he may have little compe¬ will usually be highly resentful and apart from performance. Many ex¬ tence. Felix M. Lopez writes: “It is confused about what to do, and may perts on performance appraisal alleged that most supervisors have respond by withdrawing into the agree that the personality of the little or no competence in the field safety of bureaucratic ritualism. employee should be played down in of personality appraisal, and even 4. The system of appraisals and performance ratings. if they were able to identify person¬ promotions discourages initative

38 FOREIGN SERVICE JOURNAL. July. 197o and risk-taking. One of the cardi¬ personal qualities are bland and un¬ model of management: nal weaknesses of the personnel discriminating, as they are reported • Performance standards are system in the Foreign Service is to be in a majority of cases, the determined unilaterally by the su¬ that the punishment for failures re¬ members of the promotion panels pervisor. sulting from personal initiative is may well be tempted to use past • The subordinate is then told much greater than the rewards for “burrs” in the man’s record as a what he is expected to do; the success. Elementary psychological means of shelving candidates. Giv¬ superior’s statements then serve as theory suggests that in this situation en the large number of folders and his effective operating goals. the officer will be behaving ration¬ the many other demands on their • Performance evaluation con¬ ally when he avoids initiative and time, this is an all-too-human re¬ sists of determining how well the plays it safe. This tendency was sponse, but it also means that past subordinate did what he was told or noted in rather extreme form in the “episodes” assume much greater expected to do, and pointing out widely criticized and universally importance than the instructions any gaps to the subordinate. The read “Argyris Report” (named for suggest. On this score, it is worth instructions for the rating form C. Argyris and published in 1967). noting that the “Precepts” contain state: “State the frequency and no comparable instruction concern¬ content of discussions you have had “We have a powerful circular loop, ing past successes and examples of with the officer during the rating a process within the foreign service outstanding performance that might period in which you explained culture that tends to reinforce the participants to minimize risk-taking, bode well for the future. what you expected from him, in being open and forthright, as well as Along the same lines, the “Pre¬ general and specific terms, and re¬ minimizing their feelings of responsi¬ cepts” and the instructions to the viewed his performance pointing bility and their willingness to confront rating officers place relatively little out, in particular, areas where im¬ conflict openly. This, in turn, tends to emphasis on originality, initiative, provement was needed or possible. reinforce those who have decided to and “results,” and relatively great Describe the specific steps you have withdraw, play it safe, not make emphasis on “good judgment,” taken to help him improve his per¬ waves, and to do so both in their “service discipline,” and “discre¬ formance.” behavior and their writing. Under tion.” The following cautious note • The most effective way of these conditions people soon learn the survival quotient of ‘checking with struck in the “Precepts” captures helping an employee to improve is everyone’, of developing policies that the tone of this document: “Initia¬ to point out his personal and per¬ upset no one, of establishing policies tive should be judged not only on formance shortcomings and tell him in such a way that the superior takes results but also on demonstrated what he ought to be doing. responsibility for them.” soundness of reasoning and judg¬ Most superiors in the State De¬ One need not look to such a ment (p. 2).” Again the message is partment, of course, do not follow mysterious-sounding term as “cul¬ clear: if you want to innovate you this model in practice, but it re¬ ture” to explain these tendencies. must be willing to accept two kinds mains as the implicit ideal norm in The entire tone of the rating forms of risk: (1) the risk of poor results the system. and especially the “Precepts for the following upon your experiment, There is no space here for a full 1968 Selection Boards” indicates which will most certainly be used or even casual review of the merits that the eyes of the Department are against you; and (2) the risk of of different organizational philoso¬ much more sensitive to past failures being accused of poor judgment phies, particularly the rational- than to successes. Consider the fol¬ even if the results of your experi¬ machine model vs. the participative- lowing instruction from the “Pre¬ ment are seemingly successful. On human relations approach. cepts”: the other side, nowhere do the It may be useful to summarize “Precepts” or the rating forms raise the results of a study of per¬ “Single unfavorable episodes from questions such as the following: formance appraisal systems carried the past should be appraised as to “Have there been any instances out at the General Electric Compa¬ lasting importance, and failings which when the officer should have taken ny. The results challenge all of the have been overcome should be dis¬ action but did not because of an assumptions of the model laid out counted. To give undue weight to past excessive cautiousness or because reports of defects which have already above. been corrected would be patently un¬ of a misconceived definition of The purpose of the GE study fair to the officer concerned.” good judgment?” One need look no was to find out what goes on during further than the performance ap¬ an appraisal interview, and how Despite this pious disavowal at the praisal reports to discover the most this interview affects performance. end, the message to the raters is powerful reasons for caution in the The Foundation for Research on clear: watch out for the trouble¬ Foreign Service, though, as Argyris Human Behavior, “Performance maker, and keep an eye open for suggests, these are undoubtedly re¬ Appraisals: Effects on Employees past problems that may recur. inforced by group norms in the and their Performance,” Ann Ar¬ Moreover, this emphasis upon past culture of the system. bor, Michigan, 1963, p. 41, sum¬ difficulties may indirectly create an 5. The psychology of manage¬ marized the findings: unfortunate solution to the problem ment underlying the appraisal and 1. “The appraisees find the ap¬ feedback system is inadequate to of rank-ordering facing the panels. praisal a threat to self-esteem; this at When performance criteria are the needs of the Foreign Service. least seems to be a reasonable guess. vague—as they certainly are in the The forms and instructions suggest He goes into the discussion with a Service—and when discussions of the following as the prevailing favorable conception of his own per-

FOREIGN SERVICE JOURNAL, July, 1970 39 virtuosi without responsibility for the performance of the orchestra as a whole.” In general, I share the feeling of the Foreign Service Association that basic reforms should be brought about in the personnel sys¬ tem of the Foreign Service, and that these should not be brought about in a piecemeal, “tinkering” fashion. In the case of the per¬ formance appraisal and promotion system it is important that reforms take account of the peculiar nature of the Foreign Service and the State Department, and that programs and policies not be transferred un- questioningly from private or other public organizations. At the same time, it is clear that the experience of corporations such as the General Electric company are highly rele¬ vant to the needs of the Foreign formance and discovers that the man¬ partment should be singled out for Service and may offer a useful ager does not evaluate his contribu¬ attention because of their pervasive point of departure. The State De¬ tion as favorably as he thinks he negative influence on the morale partment has a sad history of should have. and performance of the Foreign drawing up reforms or reorganiza¬ 2. "The appraiser is frustrated. He Service. The first is the tendency to tion plans and then simply “spring¬ gives more praise than criticism; yet exalt the role of superior and to ing” them on those affected, there¬ the subordinate does not respond posi¬ separate him psychologically from by generating anxiety, insecurity, tively either immediately or later to the rest of his unit. The Depart¬ and resentment. This was unfortu¬ that praise. When the manager, fur¬ nately true of some of the otherwise thermore, tries to provide advice on ment follows the classic principle admirable reforms introduced by aspects of performance in need of that the boss “has” the authority, improvement, he gets a defensive and should use it unilaterally to get Deputy Undersecretary Crockett in reaction at least half of the time. The things done. In theory goal-setting 1965 and 1966. more such advice he offers, the more is seen as his responsibility, and The previous discussion of prob¬ defensive the subordinate becomes. obedience the major responsibility lems points up a number of pos¬ 3. “Defensiveness in the reactions of the subordinate. Second, and sible changes that might be consid¬ of employees, inspired by frequent related to this, discussions of lead¬ ered by a task force. To sharpen criticisms, appears to interfere with ership and executive ability operate the issues I will state them as rec¬ setting of our own goals and with on highly individualistic, “great ommendations, though in fact I achievement of goals set by himself mean them to be only tentative and the boss. man” assumptions that have been suggestions for further study. 4. “Criticisms were effective stimu¬ shown to be erroneous in empirical lators of improvement only where studies. At a time when social psy¬ 1. Foreign Service officers should they were followed by carefully stated chologists are inclined to define be permitted greater opportunities goals for improvement of criticized leadership more in terms of a man’s for professional specialization. The performance. (Emphasis added) ability to move a group toward its reasons for this policy have been 5. “Managers who provided an op¬ goals than in terms of abstract per¬ well-stated in recent publications of portunity for participation by employ¬ sonality characteristics, the Depart¬ the Foreign Service Association. ees in daily decisions obtained more ment still relies on the latter in its Here I will consider only the impli¬ improvement in performance than rating instructions. The net result of cations of this policy for perform¬ those who provided little opportunity these two tendencies is a kind of ance evaluation. for participation in decision-making. modified “personality cult” center¬ 2. Performance ratings should be 6. “Men whose supervisors provided much more closely tied to the them with criticisms of them were ing about the superior (especially officer's professional or functional particularly sensitive to any incongrui¬ the Ambassador!), and a parallel ty between the behavior of the boss in reduction in the influence of the specialization. This policy would al¬ the appraisal discussion and his daily subordinate officers. The appraisal leviate several of the problems style of supervision. This incongruity, system builds in no incentives to noted earlier, including the am¬ for men who were threatened by the encourage the superior to develop biguity of goals, the dependence on supervisor, reduced their motivation the capacities of those in his unit. personal qualities, and the general and their improvement of per¬ As a knowledgeable officer has re¬ vagueness of present rating dimen¬ formance.” marked, the present culture of the sions. Several specific possibilities Two specific weaknesses of the Service is one in which “senior are open on this front. First, special managerial system in the State De- officers tend to view themselves as forms could be devised for each

40 FOREIGN SERVICE JOURNAL, July, 1970 functional “cone” so that the di¬ assistance without creating a defen¬ 6. The present emphasis on per¬ mensions of performance are sive reaction in the employee. “To sonal qualities should be reduced or related to the overall goals of that establish this climate, the manager eliminated. Only two questions cone. This would assume, of must act as a helper rather than as should be of concern in the ratings: course, that each cone could, in a judge. In work planning and re¬ (1) how well has the man done; fact, clarify its goals, and this may view sessions, the emphasis shifts and (2) what is his potential for be an impossible expectation at from the judging implicit in ap¬ the future. Personality traits should present. Second, the present panel praisals to a concentration on ac¬ enter into this equation only when system could be changed so that complishing mutually acceptable it can be demonstrated that they each “cone” would be assigned a goals. The emphasis is shifted from affect one or the other. permanent promotion panel consist¬ the weaknesses of the man to a 7. The appraisal system in gen¬ ing of insiders and outsiders whose job-centered approach. The climate eral and the rating forms in partic¬ task it would be to carry out a is established for the employee to ular should give explicit attention rating of each man in the cone receive assistance when and as to the officer’s capacity for innova¬ (i.e., each officer). This policy needed, as the Foundation for Re¬ tion and initiative. Rather than rate would decrease the dependence of search on Human Behavior, said. the man on a vague dimension such the officer on his immediate super¬ • When the emphasis is upon as initiative, the rating officer visor, while still allowing the super¬ improving future performance rath¬ should be asked specifically to cite visor’s intimate knowledge of his er than rectifying past mistakes behavior or examples showing the performance to enter into the rating. “Instead of stressing past mistakes innovative capacity of the individu¬ 3. Performance appraisal should use the review sessions as opportu¬ al in question. The presence of he more closely tied to the goals of nities to learn how to improve work such a question on the rating form the unit to which the officer is as¬ performance. Instead of dealing in might encourage superiors to per¬ signed. The tendency to speak in subjective opinions, praise, or criti¬ mit more initiative on the part of vague abstractions or to submit un¬ cism, they mutually search for mu¬ those under them, without jeo¬ anchored assessments of perform¬ tually acceptable goals. The man¬ pardizing such requirements as se¬ ance can be reduced by having the ager becomes a helper, rather than curity and predictability. rating officer state specifically what a judge. The subordinate becomes 8. The system of promotions was expected of the man and how a partner, rather than a defendant.” should be keyed to the positions well he did it, with concrete exam¬ 5. likely to beS available to avoid the uperiors should themselves ples when possible. be rated on the extent to which present “age lump” at the top. 4. The goals on which perform¬ they develop the potential of their More specifically, promotions ance rating is based should be joint¬ subordinates. Here two practical should be made on a “cone basis,” ly set by the officer and his su¬ steps might be taken to reduce the with explicit consideration of the perior, and should be reviewed fre¬ present separation and exalted number of positions corresponding quently. The General Electric study status of some superiors: (1) the to the ranks in question. At present suggests that performance appraisals rating forms might include ques¬ there seems to be some tendency to are most effective under the follow¬ tions on what the goals of his unit promote first and look for positions ing conditions: are, how well he was able to mo¬ later. • When the subordinate knows bilize his subordinates (and him¬ 9. The Department and Foreign what is expected of him from the self) to attain these goals, and Service should experiment with beginning of the rating period on¬ what specifically he did during the new options for increasing job ward, rather than at the end. rating period to develop the poten¬ incentives for promising younger • When the performance goals tial of those assigned to his unit; officers. Many believe that promo¬ are mutually agreeable to the supe¬ and (2) all ratings completed by tion of the talented is too slow, and rior and the employee, rather than the superior become part of his that once promoted their responsi¬ dictated by the former; permanent file as well as those of bilities are too diluted because of • When the results of the em¬ the officer rated. At present these the overcrowding in the upper ployee’s work are evaluated in fre¬ ratings can be used if there is any reaches. To break this deadlock the quent review sessions whose major question about the man’s fairness. following steps might be tried or at focus is on improving performance With appropriate changes in the least considered: rather than personality. rating forms, however, it would be • Institution of the possibility of • When work planning leads to advisable to use these in judging promotion of more than one grade specific, measurable goals, when the performance of the superior, on at a time for extremely promising the knowledge of results is immedi¬ the grounds that leadership is an young officers. While this would ate and relevant, and especially interactive process—one cannot have to be used on a rare basis, its when the knowledge of how well he lead or be an executive in the presence would serve as a psycho¬ is doing comes from the employee’s abstract. The best operational test logical incentive; own observations rather than the of a man’s executive ability is the • Occasional promotion of tal¬ comments of someone else. extent to which he was able to ented men to positions rated above • When the employee can ask mobilize those under him to attain their rank, on the ground that they for assistance without feeling that the goals of his unit, and this is may be willing to live with the this is an admission of weakness, likely to be reflected in his ratings lower rank provided that their level and when the manager can offer of others. (Continued on page 45)

FOREIGN SERVICE JOURNAL, July, 1970 41 inadvertently misleading the public. The only thing he can be certain of in such a situation is that either choice can be disastrous. An admitted poacher who turned gamekeeper, Goulding covered the Pentagon for the CLEVELAND PLAIN DEALER before becoming Deputy As¬ sistant Secretary of Defense for Public Affairs in 1965 and Assistant Secre¬ Sukarno’s Success natives but capable of some degree of tary two years later. His book is a THE RULER'S IMPERATIVE: Strategies for substitution and combination. The lively, straightforward account of Political Survival in Asia and Africa, by successful leader is the one who per¬ some of the major crises of policy and W. Howard W riggins. Columbia, $10.00, ceives the most appropriate mix for action in which he was involved in the his country and the best compromise NTIL reaching the final chapter of eventful four final years of the John¬ between short term exigencies and son Administration. this book, I had planned to caption longer term goals. the review “Machiavelli Updated,” for The book deals with seven inci¬ The author illustrates each strategy I was at first struck by the completely dents, or “misadventures in national with examples, drawn chiefly from detached and seemingly amoral tone security,” beginning with the flight of South Asia but including Middle of the analysis of how the leader of a US reconnaissance aircraft over a Eastern and African political leaders. French nuclear installation in July the developing country can best ag¬ The Foreign Service reader will gregate and maintain power. But in 1965, and ending with North Korea’s immediately think of other examples, the final chapter, in which he demon¬ capture of the USS Pueblo in January from his own experience, which illus¬ 1968. Other chapters are devoted to strates how successful short-run trate the various categories. strategies may prejudice longer term Robert McNamara’s campaign for a objectives, the author appears, while Although the author’s expression is “thin" ABM system and his efforts to still avoiding moral preachments or neither esoteric nor obscure, it is com¬ de-escalate the war in Viet-Nam, and traditional cold war verbiage, to re¬ pressed, and the book is not easy Clark Clifford’s determination to be¬ veal a preference for democracy, for reading. But for the reader who seeks gin United States disengagement from gradualist approaches to economic de¬ to improve his understanding of the that war. velopment, and the avoidance of for¬ seeming irrationality of governments The last chapter, which offers a eign policy adventurism. One learns to struggling with diverse followers and frank and engaging insight into the appreciate how Sukarno managed to centrifugal forces, the effort is well author’s personal feelings at the time last so long without being induced to worthwhile. Secretary McNamara was replaced by admire his methods, which planted the —ARMISTEAD LEE “Mr. Smooth,” is the most entertain¬ seeds of his eventual downfall. ing and controversial part of the The author, a Columbia professor Mission Impossible: Informing the book. Goulding fully supports Town¬ and former member of the Depart¬ People on National Security send Hoopes’s contention that it was ment’s Policy Planning Council, starts Clifford who persuaded President CONFIRM OR DENY: Informing the Peo¬ with a general description of the prob¬ ple on National Security, by Phil G. Johnson to reverse his Vietnam policy. lems and goals of underdeveloped Goulding. Harper & Row, $7.95. This is, of course, in direct conflict countries and then proceeds to exam¬ with the former President’s own recol¬ ine the various strategies available to H AVING wrestled for the last four lections, as confided to Walter the political leader: the projection of years with the task of trying to keep Cronkite and several million TV view¬ the leader’s personality, the building the press and public informed on for¬ ers, that it was his Secretary of State of an organization (ethnic parties, eign policy developments, I found Phil who played the decisive role in the “patron” parties, and mass parties, Goulding’s “Confirm or Deny” of com¬ decision to end the bombing. Since either authoritarian or democratic). pelling interest. Those less directly in¬ Dean Rusk’s personal sense of loyalty In addition, the leader may find it volved in the public affairs problems prevented him from revealing even to helpful to promote an ideology, to our government faces in dealing with his closest associates the substance of reward the faithful or intimidate the crises will find this book no less rele¬ his recommendations to the President opponent or wavering ally, to develop vant. he served so faithfully, the truth of the the economy, to expand (or alterna¬ Portions of “Confirm or Deny” may matter may remain obscure for some tively to contract) the degree of pop¬ be so unsettling to some that they may time to come. ular participation in politics, and to wish to label the reading of it haz¬ One of the most appealing qualities use foreign policy to forward his do¬ ardous to one’s health. For the author of “Confirm or Deny,” and rare in mestic objectives of consolidating in¬ does not disguise the fact that decisions books of this kind, is the author’s ternal power. In discussing each of made in a crisis atmosphere are, and disarming candor. He readily accepts these strategies, which he disaggre¬ by their nature have to be, based upon responsibility for errors that he might gates for purposes of analysis, Profes¬ information that is sometimes inaccur¬ well have sought to share with others; sor Wriggins considers the advantages and he does not try to justify his and disadvantages. Thus, while it may ate, frequently misleading, and always incomplete. Those whose job it is to mistakes. But the reader should not be politically profitable for the time draw unwarranted conclusions from being to raise the cry against real or deal with the press are hampered by Goulding’s confessions of error. He imagined external threats, it may these same difficulties. learned from his mistakes and de¬ divert resources from development Under heavy pressure from the veloped considerable skill in perform¬ and frighten away needed foreign as¬ press, the Congress, and the public, ing a task which TIME once termed sistance. the official spokesman all too often “Mission Impossible.” At the end of the study, the author finds himself faced with the choice of stresses that these strategies are not deferring comment until all the facts Goulding had significant influence distinct and mutually exclusive alter- are known, or of running the risk of on Defense policies, and he exerted

42 FOREIGN SERVICE JOURNAL, July. 1970 that influence in the right direction. on an unsuspecting public in terms of hand case study, “Vinh Long.” Trac¬ He had the foresight to bring into “national security,” and couched in ing the kaleidoscope of events in the Defense as his deputy the able and such obtuse scientific terms as to be pacification efforts of a Mekong Delta knowledgeable Dan Henkin, also a all but incomprehensible to the voting province from summer 1967 through former newsman, who became Assist¬ layman. Press coverage of the Penta¬ 1968, Mr. Meyerson is strongly criti¬ ant Secretary when Goulding finally gon also comes in for a measure of cal of the assumptions and expecta¬ left the Pentagon, “physically and Lapp’s ire; he considers the quality of tions of the American civilian-military mentally exhausted,” with the change Defense Department coverage, now advisory team. He dissects very accu¬ of administrations in January 1969. that Hanson Baldwin has gone from rately the difficulties involved in trying —CARL BARTCH the TIMES, as inadequate to the com¬ to measure “progress” and he has plexity of the problems with which the something cogent to say about all of A bas the Altar of Technology public really should be wrestling. Now the elements of the rural development that Drew Middleton appears to have program, ranging from the quality of ARMS BEYOND DOUBT: The Tyranny of inherited the Baldwin mantle, at least, the new life in the New Life Hamlets Weapons Technology, by Ralph E. Lapp. perhaps matters will improve in that to RD cadre teams and military oper¬ Cowles Book Company Inc., $5.95. one journal, if no others. ations. This is a readable book, because its While many of this book’s conclu¬ INIOT 20 pages into his book, Ralph author does not involve either himself sions are not above debate, all of its Lapp states his position clearly and or his audience in all the complexities, points on the problems and Gordian forthrightly with respect to the mili¬ either scientific or historical, of the knot-like complexities of the United tary-industrial complex of which retir¬ development of missile weaponry and States advisory effort in Vietnam are ing President Eisenhower spoke on the its effect on Pentagon planning and on worthy of special attention and serious eve of his departure from the White the American society. Lapp has discussion. —JOHN W. ZEROLIS House. There can be no doubt where looked at this immense problem of Lapp stands: . the United States mass-retaliation tactics with the in¬ An Unofficial Russian View needs to make the most searching sights of the scientist he is and the of the Future examination of its national security in experience of the Government official the light of the new technologies of he was. If he is not the best writer in WILL THE SOVIET UNION SURVIVE UNTIL our time. I maintain that we have 1984? by Andrei Amalrik. Harper & this field, and this is not after all his Row, $4.95. overreached ourselves in our quest for trade, much less his intent, he makes security and that by so doing we have his points and for this reviewer this is IT is commonly supposed by many led to an escalation of the arms race. good enough. who should know better that commu¬ We have worshiped too long at the —JOHN M. ANSPACHER nist propaganda, while not particular¬ altar of our high technology.” ly effective in converting outsiders to The Gordian Knot Described With this introduction, the reader is communism, has at any rate succeed¬ under no illusion where he is going. VINH LONG, by Harvey Meyerson. Hough¬ ed in persuading Russians that the Lapp has not made a historical, or ton Mifflin, $5.95. Soviet system is all that it claims to even an overwhelmingly persuasive be. This view has been held with scientific case for or against the anti- FEW books on Vietnam have de¬ particular tenacity by some of our ballistic missile system, by whatever scribed the present conflict—its con¬ own political propagandists, perhaps name. He does start from a reason¬ cepts, programs and frustrations—as because it reinforced their contention ably understandable discussion of the well as Harvey Meyerson in his first¬ that ever larger sums of money should pros and cons of one kind of anti¬ system over another, but more impor¬ tant, he goes on from there. What he is getting at is not ABM per se, or nuclear warfare per se, but something far more significant in political terms. Taking the Eisenhower text, Lapp maintains that the ABM debate, with all its ramifications, has confronted American society with a political mili¬ tary-industrial complex. What started out as a shadow of connivance be¬ tween the Defense Department weap¬ onry advocates and the manufacturers thereof has taken on, in Lapp’s view, Congressional overtones. His most ob¬ vious examples, of course, are Rivers and Russell, both of whom play sig¬ nificant roles in Pentagon planning from a budgetary point of view, and both of whom have major economic political stakes in defense contract awards to their respective states. The Californians in Congress are not far behind. Lapp’s plea is for less worship at his “high altar” of technology, and more light on the significance of various Pentagon proposals ordinarily foisted

FOREIGN SERVICE JOURNAL, July, 1970 43 be made available for counter¬ Can ESP Be Bugged? propaganda. “Will the Soviet Union PSYCHIC DISCOVERIES BEHIND THE IRON Survive until 1984?”, an unauthorized CURTAIN, by Slieila Ostrander and Lynn essay in futurology by a young Rus¬ Scltroeder. Prentice-Hall, $8.95. The Crisis of sian intellectual now living in Mos¬ cow, suggests that political propa¬ THERE can be no doubt about it. This Development ganda has by no means been as suc¬ book brings a new dimension to East- cessful as Soviet propagandists have West relations. For too long we have pretended or our propagandists have focused on the convergence theory, LESTER B. PEARSON feared. on the strategic arms race, on MIRV The authors perceptive observa¬ and ABM. The authoresses, who spent In this timely follow-up to tions on present Soviet reality and on the summer of 1968 in the Soviet the report Partners in the possible future evolution of Soviet Union and Eastern Europe delving society deserve a wide audience. It is into the occult and unexplained Development, prepared perhaps unlikely that events will turn phenomena from ESP to UFOs, put under his chairmanship out quite as described, for human things in a different frame of refer¬ by the Commission on efforts at foreseeing the future are ence. They assure us, for example, International Develop¬ notoriously fallible. It is doubtful, for that "there are organized witch covens example, that a future Russo-Chinese in Russia which are in world-wide ment, Lester Pearson war would turn out as near a draw as underground communication with discusses the meaning of the author predicts. Soviet overkill witches in the West.” How do they international develop¬ capacity is probably too great to make know? Why, because they talked to that a possibility. On the other hand, a Russian witch (who appropriately ment, its historical con¬ it is surely true, as the author indi¬ enough opens the conversation with text, the current eco¬ cates, that the stagnating bureaucratic the casual observation, “I am a nomic-aid situation, and regime now in power in Moscow is witch”). Anyway, speaking as one prospects for the future. incapable of the regenerative effort who believes so fearfully in hobgob¬ required if the country’s problems are lins as to be reduced to hideous Published for the Coun¬ to be overcome. gibberish if caught out-of-doors after cil on Foreign Relations. A thoughtful commentary on the nightfall, the reviewer will take their author’s apocalyptic vision of the end word for it. $4.95 of the Soviet regime, written by Pro¬ Miles. Ostrander and Schroeder are fessor Sidney Monas of the University concerned also that we may be enter¬ Praeger Publishers of Texas, adds to the interest of this ing an ESP race with the Soviet 111 Fourth Ave./N.Y. 10003 fascinating work. Union—concerned because “ESP can —THOMAS A. DONOVAN be a weapon of war.” If so, we’re in

DESTINATION WASHINGTON? Our PICTURE GALLERY OF FINE HOMES and DESTINA¬ TION WASHINGTON with complete information on financing, taxes, insurance, schools, etc., plus the do'» and don'ts of buying or renting, sent free for the asking. Our 73 full-time associates can provide real service to your family. Offices In Alexandria, Arling- ton, Fairfax and Mclaan.

2160 N. GLEBE Rd. Crowell Arlington, Va. 22207 A COMPANY. INC. REALTORS Phone (703) 524-3131

BOSS AND PHELPS, INC.

REALTORS FOUNDED IN 1907 CAN HELP YOU: BUY SELL RENT A HOUSE

NORTHWEST WASHINGTON—BETHESDA— CHEVY CHASE—POTOMAC

We MANAGE your properties when you are overseas.

3830 VEAZEY ST., N.W. WASHINGTON, D. C. 20016 362-9300

44 FOREIGN SERVICE JOURNAL, July, 1970 for trouble. The Soviets clearly have chances of a full nuclear exchange, capable of conveying a considerable the edge. Not only are they experi¬ this will represent a welcome change feeling for Latin America, for the menting with ESP, but, being Soviets, of pace. —WAYNE S. SMITH variety the countries exhibit as well as for the qualities they possess in com¬ they are already trying to bug ESP! A Feeling for Latin America By the time imperialist spies have the mon. The contextual material, which POLITICAL POWER IN LATIN AMERICA. is limited in volume, provides desir¬ capability to transmit telepathically Seven Confrontations, edited by Richard their ill-gotten secrets from Moscow R. Fagen and Wayne A. Cornelius, Jr. able background, economic, social, to home bases in Washington, London Prentice-Hall, Inc. and political, for understanding and or Bonn, the KGB will be ready for interpreting the confrontations. The them! A psychic “interceptor"’ (sta¬ IN their introduction to this volume volume's conclusions not only unify tioned no doubt in a special room in the authors refer to the well known the text but are so perceptive and Lubyanka) will tune in on their “mes¬ frustrations of professors and students illuminating as to merit independent sages.” (Chort! The bad guys win in trying to convey and capture the reading. again.) feeling of Latin America in a few —WILLARD L. BEAULAC While to categorize this as a “must” short months. “Political Power in Lat¬ book would be to say too much, one in America” is an ingenious and read¬ can safely declare that all Sovietolo¬ able effort to meet the problem. The A New Frontier gists will learn something from it. For power “confrontations” it presents are SIBERIA THE NEW FRONTIER, by George example, who among Kremlin watch¬ the Chilean presidential election of St. George. McKay, $7.95. ers can claim to have heard of Wolf 1964, the Venezuelan presidential Messing? Yes, that’s right, Wolf Mess¬ election of 1963, the Argentine elec¬ S IBERIA is a huge, both beautiful and ing! But it’s not what you think. Mess¬ tion and coup of 1962, the Brazilian ugly land inhabited by some of the ing is not a substitute for entrails in coup of 1964, the Dominican revolu¬ tougher people on earth. Here is a the hands of the oracle. No indeed. tion of 1965, the Mexican University glamorous description of it by a Rus¬ He is a psychic extraordinaire whose strike of 1966, and two challenges to sian-born American who seems to powers were once tested by Stalin. the leadership of Fidel Castro. The have been given extraordinary assis¬ And who among us has read a bio on presentation, in each case, is made tance in gathering material by the Nelya Mikhailova, a PK medium who through writings of academic com¬ Soviet Novosti press agency. The book can move objects around a room as if mentators, both American and Latin is of such a nature that Mr. St. she were a—well, a PK medium? American, statements of Latin Ameri¬ George is quite right to say in conclu¬ These are but a few of the characters can political leaders, press reports and sion that “The reader might feel that who people the pages of “Psychic editorials, and other similar material. the author is partial to the Soviet Discoveries Behind the Iron Curtain.” The confrontations presented are system.” If one is jaded by books assessing the important in themselves. They also are —PETER BRIDGES

PERFORMANCE a special panel as “potential execu¬ are going to fail no matter how from page 41 tives” to be groomed for future well we do.” These ratings also of responsibility is high enough. work in this area. These would convey a false sense of mathemati¬ This would create role conflicts normally be officers working in one cal precision about a process that is when the lower-grade officer was of the specialized cones, but who very delicate and fallible, and in above a man ranking higher, but would also be told that because of certain cases may bind the hands of these difficulties may not be insu¬ their over all promise they will also the Service when perhaps more perable. In any event it may be be considered for special executive than the usual number should be psychologically beneficial to play training programs. Such assign¬ involuntarily retired. It would be down the importance of rank per se ments or decisions would have to much better from a psychological and play up the importance of a be reviewed periodically, with some and even practical viewpoint to fol¬ man’s job assignment, quite apart names added and others removed low these procedures for selection- from his rank. Similar problems from the lists depending on their out: (1) institute a probation peri¬ occur in the academic community, progress. Selection for the executive od of from three to five years at the and the strains involved often cone would seem to be a powerful end of which each officer would be prove to be tolerable (as when incentive to stay in the service for a reviewed on an absolute basis to assistant professors head commit¬ younger officer, even if his actual determine whether he should be tees including full professors from assignment may be less than ideal. retained; here no fixed quotas the same Department. The test is 10. The present selection out would be used; and (2) once a whether the younger man is capa¬ provisions should be converted man has passed the probationary ble, in which case the rank strains from a relative to an absolute ba¬ period the assumption should be become less important.) sis. There is something terribly that he will continue and be pro¬ • Setting up an executive cone, punitive and threatening about the moted in the service unless his per¬ as suggested by the AFSA, but one present provisions, a tone that formance is consistently poor and is which would have two components: seems inconsistent with the goal of not corrected. The promotion (1) officers actually working as ex¬ building morale in a career service. panels could still be instructed to ecutives, either as a regular “cone” The use of percentile ratings is an¬ look for weak cases each year, but specialization or on leave from alogous to the use of the distribu¬ these should be evaluated again on their regular specialization; and tion curve in classroom grading— a case-by-case basis rather than by (2) younger officers singled out by those affected feel that “some of us the norms of a numerical quota. ■

FOREIGN SERVICE JOURNAL, July, 1970 45 RESPONSIBLE RESTRAINT There is, perhaps, great wisdom can approach to international obli¬ from page 22 in the instinct of the American peo¬ gations and operations will result in tionally-minded Americans, and ple that the time has come for the a general collapse of the interna¬ above all for our military and dip¬ United States to behave with more tional system. It is possible that it lomatic professionals, is to recog¬ circumspection and modesty abroad, might even lead to a strengthening nize and accept the inevitability of and to concentrate, for the time of that system. constraint in American foreign and being, more of our attention and In any event, we have come as a national security policies. We need our resources upon the mote in our nation to a point where it is inevi¬ to get on with the task of restruc¬ own eye. There is, both at home and table that we shall have a change turing our international and de¬ abroad, a considerable resistance to of emphasis in our national policy. fense postures to something that the and resentment of what is seen as For good or ill, the United States is American people will support and an excessive assertion of American in for a period of restraint in inter¬ the rest of the world will believe in. leadership in the world. It is in the national affairs, and of concentra¬ As one who has spent his entire oldest American tradition that we tion upon our domestic problems. mature life in the field of foreign recognize and respect that senti¬ It is incumbent upon the interna¬ affairs (and profoundly believes in ment. tionalists among us to accept and the general wisdom of the policies It is not immoral to be more preside over this process with the we have followed since World War chaste with our favor. It is neither courage which Hemingway defined II), I do not come lightheartedly to selfish nor irresponsible to believe as grace under pressure. For it is the conclusions set forth in this that the greatest gift that the essential to our national security paper. But neither can I bring my¬ United States can make to the and well-being that the process of self to view these developments as world is to keep our own society restructuring our international role unrelieved tragedy. healthy and our own institutions be performed with a delicate instru¬ It is not, after all, a bad thing for strong. And, there is much truth in ment and with a wise discrimination the American Government to re¬ Montaigne’s observation that “a man between the necessary and the mere¬ flect the sense of priorities of the doth ofttimes doff his doublet only ly desirable. Surgery is inevitable— American people. It is, after all, a to jump shorter than he did in his and surely it is better that it be truism that leadership in world cape.” performed by professionals with a affairs can only come from the vi¬ It is hardly likely that a more scalpel rather than by amateurs tality and strength of domestic life. selective and discriminating Ameri¬ with a hatchet. ■

Idor aff four real estate needs, call uiAiif n i- ■ RENTAL HOUSES HICKS Reall :y, Inc. Chevy Chase-Bethesda 3706 Mt. Vernon Ave. Massachusetts Avenue Extended Alexandria. Virginia B King 8-3111 JL~jjukiiflcjj Mbs A. C. Houghton & Son, Inc. Serving beautiful Worthern Wirfinia since 1946 An Accredited Management Organization Alexandria, Arlington, Fairfax County etc. 1418 H Street, N.W., Washington 5, D. C. Dl 7-9057 Sales, Rentals, Financing Washington Real Estate Since 1907 Picture book of homes FREE on request

FRANCIS SCOTT KEY HOTEL The Nicest SmctU Hotel in Washington BURGLARIES AND 600 - 20th St.. N.W., Washington, D. C. 628-5425 Why Foreign Service Personnel prefer the VANDALISM PROBLEM? Francis Scott Key Hotel Dymic Security Systems will tailor an economical (1) It i« only two blocks from the State Department (2) It offers family accommodation* perimeter alarm system to your overseas resi¬ (3) One room, kitchen, dinette and bath, completely furnished efficiency suite* dence, complete with easy-to-follow installation (4) Completely air-conditioned (5) Restaurant with excellent food at moderate price* instructions. For further information write: ROOMS One Person $9.00—Two Persons $11.00 DYMIC SECURITY SYSTEMS Efficiency Suites—Double Beds or Twin Beds One Person $10.00 & Up—Two Persons $12.00 & Up Box 1656 Additional persons $1.50 each. 10% discount for weekly occupancy. Rockville, Maryland 20850 Rowena F. Ward, Mgr.—Gladys L. Warner, Asst, Mgr. 46 FOBEIGN SEBVIOE JOURNAL, July, 1970 CRISIS OF DEVELOPMENT from page 36 MR. ENVOY IN BONN: bring about more even growth and development over the whole world. We would be foolish, and worse, if we Mr. Envoy was transferred to Bonn, now defaulted on this novel and noble adventure in and his worries of moving are gone, cooperation, which could have such far-reaching impli¬ for all the things he prized cations for the future. There is no cause, yet, to were shipped Containerised & conclude that we will do so, to cry doom and show by the movers you can rely on. gloom. The “crisis of development” is a very real one, * With District's Custom Containerized but it can be overcome. It is not timidity or despair, but method, everything is carefully packed in sensible realism, which insists we look risks and dangers specially constructed containers and remains untouched until un¬ in the face. packed at final destination—across the nation or around the globe. The 1970s may bring crises, but they also offer vast opportunities for positive and creative action in the DISTRICT MOVING & STORAGE, INC. international development field. We have the means, if 3800 Kenilworth Avenue, Bladensburg, Md. 20710 (301) 779-4900 we have the will, to act. The opportunities before us should make us bold, not beaten, for our capacity to exploit them is almost limitless. If the technological skill which took man into outer space can be linked with moral awareness and recognition of the urgent and practical need for international cooperation, we can AfCMEMY bring a better life to all mankind. The Marine Military Academy, a private prep school with an out¬ This is the light. standing staff and faculty, is dedicated to the thorough preparation The dark comes from our fears and our hates, our of its students for college entrance. It accepts qualified boys for grades 7 through 12. Located in the Lower Rio Grande Valley of wrong priorities and our rooted prejudices, the destruc¬ Texas, it is particularly convenient to families stationed in Central tive use to which we put so much of our technology, the and South America. poisoning and polluting of our environment, weariness • Fully accredited. • Small classes. • Naval Honor School. • Marine Corps Junior ROTC. • Testing and counseling program. • Developmental and a declining public commitment to new international reading program. • Aerospace science and flight training under CAP and FAA. • Latin, Spanish, French and German language program. responsibilities. • Interscholastic and intramural sports program. • Scholarships. With will and work, the light can overcome the dark. Catalog: Director of Admissions, 325 Iwo Jima Blvd. An important move to this end, and one which would be Harlingen, Texas 78550 a test of our resolve, would be to strengthen internation¬ al cooperation for development, to work toward a goal where world welfare is as normal as world conflict, and world responsibility as world discord. REAL ESTATE We are at a moment in human destiny when new opportunities and new hopes can be held out to the Specialists in submerged and impoverished billions. The gates of the future are not closed. They are ajar; they will respond TOWN HOUSES to a determined push. But we cannot push if we lack the will, for we have the strength, materially, in abundance. CAPITOL HILL • GEORGETOWN Two hundred years of technological and capital growth FOGGY BOTTOM have placed at the disposal of the richer countries 202-546-2676 unprecedented resources, which grow, on the average, by four or five per cent a year. We know so much more now about the problems of world development than RHEA RADIN.Inc. before, and knowledge is a first stage essential to doing something about them. Compared with the innocence 220 SEVENTH ST., S.E. with which the development process was approached only two decades ago, sophistication and understanding are now the order of the day. A more careful study of T c facts and needs has taken the place of earlier overop¬ timism based on illusions and ignorance. We have made Sanderson great steps forward in understanding what is actually OF VIRGINIA, INC. happening. We have also made great steps forward in understanding what now has to be done. These are REALTORS important gains that have occurred in the last two decades, for, as I have just said, more knowledge and Sales—Management—Rentals greater understanding are the foundation for better 1437 CENTER ST. - McLEAN, VA. 22101 work and greater progress. SERVING ALL OF NORTHERN VA. What a tragedy it would be if we slackened, faltered and gave up at this time because only the will is lacking! Member: Multiple Listing Service What a triumph, if the seriousness of the challenge were met by the greatness of the response! ■ Telephone 356-1300

FOREIGN SERVICE JOURNAL, July, 1970 47 I agree with Murphy on this HOBGLOBLIN policy formulation is to be creative point, except that I would add a from page 33 rather than ossified. proviso. I would say, “After that Under no circumstances should confidence. If that happens, the everybody is expected to support the foreign service become the civil¬ career foreign service might still policy to the best of his ability, ian mirror image of the uniformed continue to exist—but in name provided that the atmosphere in military. Discipline of the military only. It will have been stripped of which he works is conducive to the variety should be unthinkable in all meaningful power and will con¬ free flow of creative ideas, to the the foreign service. There is a place tinue to live only because the mod¬ constant questioning of policies in American society for both the ern state has not yet learned how to once agreed upon, and to the re¬ military and the foreign service: deal with atrophied bureaucracies warding of creative dissent through both are necessary in their chosen whose useful days are over. the encouragement of contrary spheres. But if the foreign service is No one denies that it is the func¬ views.” To create any other type of to differentiate itself from the mili¬ tion of a career diplomat to carry working atmosphere will mean the tary and offer truly sound and out his government’s policy and death of the foreign service. that here conformity is essential. imaginative foreign policy alterna¬ I am optimistic about the future, Many compare the foreign service tives to the president, then the for¬ and I look forward to reading with the military in this connection. eign service must differentiate itself sometime in the years ahead that But I believe there is a great from the military by stressing the newly-elected President of the deal of difference between the de¬ obedience less and creativity more. United States, in a cabinet meeting, mands of the foreign service as a In “Diplomat Among Warriors,” turned to his recently-appointed career and those of the military. I Robert Murphy discusses his own Secretary of State and said, even think it is dangerous to relate decision whether to resign over the “What’s wrong with that god¬ the two. In the military, absolute Berlin blockade. He says: “Under damned Department of yours, obedience is essential to the func¬ the American system, officers and Chip? Can’t you control your peo¬ tions the military are empowered to officials are free to make their perform; in the career foreign serv¬ opinions known to their superiors— ple up there? They’re saying some far out things.” Then he’ll smile ice—an atmosphere of obedience, up to the point where policy is and add, “Which is exactly what I absolute or otherwise, can be catas¬ definitely decided. After that every¬ want. You’re the only Department trophic because it represents the body is expected to support policy antithesis of what is necessary if to the best of his ability.” that ever says anything new.” ■

“SHOP IN AN AMERICAN DRUG STORE BY MAIL'1 ASSIGNMENT WASHINGTON "AN ICE CREAM SODA” is one of the few items we TOWN OR COUNTRY: Top Virginia locations for cannot mail. Drugs, cosmetics, sundries mailed city, suburban or rural properties. “TOWN & COUN¬ daily to every country in the world. TRY” has an excellent selection of available homes in We Maintain beautiful Northern Virginia. FHA In-Service, G.I., and "Permanent Family Prescription Records” Conventional Financing. Six offices to serve you. "SEND NO MONEY" A complete property management and rental service. Write for our free brochure TOWN & COUNTRY PROPERTIES, INC. REALTORS 3807 Mt. Vernon Ave., Alexandria TE 6-891S 4701 Old Dominion Dr., Arlington, Va. 525-6900 4205 Evergreen La., Annandale, Va. CL 6-9100 1384 Chain Bridge Road, McLean EL 6-1323 6556 Backlick Road, Springfield 451-0111 9637 Lee Highway, Fairfax 591-7000

48 FOREIGN SERVICE JOURNAL, July, 1970 gy, etc. seem to me to lend themselves to conduct a wise diplomacy would to production efficiencies and ready seek out the best diplomats possible. quantification; success or failure has I therefore immediately embarked become a matter of toting up projects upon a research project to test the accomplished: dictators deposed (or wisdom of our government. restored) rebellions quelled, aid deliv¬ I have a copy of the Biographic ered, insurgencies countered, and the Register of the Department of State like. The other more traditional view which gives birth dates and other bio¬ of foreign relations conjures up visions graphical information about the mem¬ of a rather undirected foreign ministry bers of the Department. We made a and a number of missions around the random sample of 110 names from world staffed by persons of average the Register and to our amusement, intelligence who happen to be skilled, discovered that only four of our dip¬ by reason of education, experience lomats are Pisces. One would antici¬ and, hopefully, even motivation, in the pate that according to the law of business of disposing of problems with probability, there would be closer to M R. MACOMBER tells us that the other countries according to generally State Department lost control of for¬ a dozen! It would appear that the known policy direction. State Department has only a third of eign policy because we did not partici¬ The end product in either of these pate in the development of the new what would be a natural distribution two systems may be good, bad or of people born during the Pisces peri¬ instrumentalities of foreign policy fol¬ indifferent. Style, Mr. Kennan tells us, lowing World War II. This happened od. Certainly this fact explains the is important in foreign affairs and I failures in American foreign policy because “we were not organized to do know which style I prefer. The impor¬ so managerially and we did not have in recent years. What is not explained, tant distinction, however, comes in however, is how it would be possible the specialists required.” The thesis accountability and there our dem¬ to recruit so few Pisces without try¬ that better organization, better ocratic safety valves have failed us. A ing. mechanisms for leading the foreign little secrecy in diplomacy is not a bad affairs community, and the early de¬ thing, but where billions of dollars, Can it be that there is some gi¬ velopment of potential managers will thousands of lives, and respect of sov¬ gantic conspiracy at the highest level “return the action” to the Department ereignty are concerned, we had better of our government to keep Pisces out of State apparently has some appeal be sure that the people are informed of the State Department in order to to the editors of the leading journal of and able through their representatives maintain a low level of diplomatic the military-industrial complex, GOV¬ to judge policy and to adjust it if success and therefore assure the su¬ ERNMENT EXECUTIVE, which writes necessary. premacy of the Military-Industrial approvingly of this bold program of I have no argument with the pro¬ Complex? reform in its May issue. (To those position that our management and WILLIAM C. ROGERS who are unfamiliar with this publica¬ information systems could stand im¬ (Born March 12) tion I might point out that its lead provement and modernization. But, I We Did It editorial chastises A. Ernest Fitzgerald am extremely sceptical of our ability and Senator William Proxmire for to recapture the “action” by means of WELL, you did it, without the letter attempting to educate American busi¬ internal reform. If American foreign I’ve been meaning to write for ages: nessmen about the waste in the de¬ relations are to be reformed, the job i.e., in The Bookshelf section! It has fense budget. This is “simplistic illog- of restating fundamental policy and annoyed me monthly to find the name ic,” “dumb business,” a “bonehead reforming the relevant institutions will of the reviewed book at the end of the argument,” according to GOVERN¬ have to be done by Congress which article. The format in the May issue is MENT EXECUTIVE.) abdicated responsibility and lost effec¬ so much better; the headings are ex¬ By way of contrast, a retired Air tive control of the action two decades cellent and all pertinent material Force Colonel, writing in THE WASH¬ ago. where it should be. I wish I had been INGTON MONTHLY, May 1970 (“The HARRISON B. SHERWOOD the one to suggest this since, as I say, Secret Team and the Games They Reston, Virginia it’s been on my list of “things to do” Play,” by L. Fletcher Prouty) suggests for a long time. FLORENCE F. W. COPY another theory as to why the Depart¬ Letter to the Twin Citian Magazine ment of State has had relatively little Coral Gables, Fla. to do with major foreign policy activi¬ Having been born under the sign Where Are The Problems? ties in recent years. Mr. Prouty writes of Pisces (February 19 to March 20) I was much interested in your March that, “the most remarkable develop¬ M OST ideas currently being discussed ment in the management of America's issue on astrology. There you stated for the reform of the Foreign Service relations with other countries during that, “for Pisces there always is a seem to me to be designed to correct the nine years since Mr. Eisenhower ‘harmony of the spheres’. Pisces nor¬ failings and/or solve problems relating left office has been the assumption of mally needs a calm environment, often to the foreign policy decision-making more and more control over military a secluded one, for happiness—but process in Washington. Ideas and pro¬ and diplomatic operations abroad by Pisces is also very much aware of the posals drawn up on this basis—and men whose activities are secret, whose needs of others and cares about them. then applied indiscriminately to the budget is secret, whose very identities That is why he is THE natural diplo¬ entire Foreign Service across the as often as not are secret . . .” mat. . world—impose American “public ad¬ To my mind these two articles point The question immediately occurred ministration” solutions upon situations up a fundamental difference in the to me as to whether or not our State which, in fact, are not American. The perception of the role of this country’s Department has made a special effort implementation of foreign policy takes foreign affairs. Proper management, to recruit people born under the sign place, primarily, in association with comprehensive programing, cost- of Pisces. Certainly one would sus¬ non-Americans and outside the United effectiveness, country analysis strate¬ pect that any foreign ministry hoping States. (In fact, it mainly takes place

FOREIGN SERVICE JOURNAL, July, 1970 49 among peoples who share little of our his specialization should be the foreign ment through which the official re¬ cultural heritage.) policy of the United States. lationships of the United States are This being the case, one should JosiAH W. BENNETT conducted with a large variety of evaluate proposals to reform the For¬ Manhattan, Kansas foreign governments composed of dif¬ eign Service by starting from the ferent peoples in pursuit of varying, A Diplomatic Apollo Failure premise that the proposed reforms and often conflicting, interests. Con¬ should, first and foremost, seek to centration upon specialized views of correct failings and/or to solve prob¬ THE savior of the Apollo 13 Mission our relationships will not provide the lems abroad (among foreigners). Pro¬ was repeatedly stated during the re¬ overall understanding of the diverse posed reforms of the Service should cent space crisis to be the engineering motivations and pressures operating probably be rejected if they are de¬ concept of “redundancy,” i.e., built-in upon these governments that the signed primarily to solve Washington duplication of systems. I doubt that United States Government needs in problems. Unhappily, most of the re¬ there is anyone connected with the US order to effectively pursue its own form proposals offered nowadays are space program that would care to goals. , of this type (for example, the pending challenge the wisdom of this concept Is it too late for a second thought, Macomber proposals). Those of us today. or do we need a diplomatic Apollo who are interested in having the best The United States Foreign Service, failure to prove the value of redun¬ Foreign Service in the world should when I joined in 1952, was built upon dancy and the generalist? remain alert to the danger that funda¬ an unstated concept of “redundancy,” BYRON E. BYRON mental “reforms,” designed to help i.e., that of reliance upon the “gener¬ Ankara the Department of State win bureau¬ alist.” We began to give it up under cratic struggles in Washington, may be the “wristonization" program, and ap¬ Submission and Irony inappropriately imposed on our oper¬ parently have determined now that the concept of an officers corps of THE tone of moral uplift in Crag ations overseas. Eisendrath’s article in the April issue JOHN P. HEIMANN men and women of wide breadth of of the FSJ is not reassuring to at least Washington experience and knowledge is unsuited to the present technical age. At least some of us troubled by the essential barrenness of our work as junior The Brains of Foreign Policy the Macomber proposals appear so directed with their emphasis on fitting FSOs. History is replete with examples I share Francis Cunningham’s unease each officer into his ordained "cone.” of established institutions advising over the current emphasis on speciali¬ There is no question but that the their impatient and eager young: zation in the Foreign Service. To his Foreign Service requires the knowl¬ “They also serve who only stand and reasons all excellent, 1 would add the edge and abilities of specialists, but wait”—and equally replete with the thought that specialization, unless this does not, it seems to me, mean young seeing through this sham. And carefully controlled, brings nar¬ that it should be made up of such. isn't it somewhat ironic for Eisendrath rowness. And narrowness can bring They are needed to advise in their to counsel humble submission to the isolation from reality. Can a function¬ areas of specialized knowledge those system when he himself resigned from al or geographic specialist be expected who have garnered the broader out¬ the Foreign Service after presumably to grasp the significance of develop¬ look through education and experi¬ waiting in vain for that “good" job? ANDREW D. SENS ments in this increasingly interdepen¬ ence, particularly the latter. dent world? If he cannot, how can he The Foreign Service is the instru¬ Bordeaux think meaningfully and constructively about foreign policy? Life and Lyve in the Foreign Service By S. 1. Nadler A specialist can easily degenerate into a technician, one who is asked only how to do something, not wheth¬ er it should be done or what other course would be better to follow. Our Vietnam involvement shows that, even more than officers with area, linguis¬ tic, management, and other skills, we need officers qualified and ready to speak out on foreign policy issues which transcend national and func¬ tional boundaries. The Foreign Ser¬ vice should be the nation’s foreign policy brain, not just its spinal cord. I am not arguing for a return to the “generalist” concept. I do not believe in a professional foreign policy elite set above foreign policy’s grubby de¬ tails. Obviously, some degree of spe¬ cialization is needed in as large and complex an organization as today’s Foreign Service. I am merely asking for moderation. A Foreign Service officer must not be a specialist only. ITe must have a variety of experience and training; he must be made to see the link between our needs at home “But what upsets me most of all is that, for one solid year, I believed you had to and our programs abroad. In short, go up here at midnight every night to monitor the Voice of America!"

50 FOREIGN SERVICE JOURNAL, July, 1970 The peace-of-mind approach to overseas auto insurance auto-pak

WHAT AUTO-PAK WILL DO FOR YOU: AUTO-PAK is a unique automobile liability, collision, SECTION A: The basic AUTO-PAK coverage protects marine and personal accident insurance designed es¬ you against legal judgments of liability because of bodily injury and/or damage to the property of others caused by pecially for American businessmen, government em¬ any car driven by you or anyone else with your permission. Catastrophe Protection—You’re covered up to $1,000,- ployees, students, servicemen and others living abroad. 000 in excess of the local compulsory auto liability in¬ surance. Where there is no local insurance required, AUTO-PAK pays liability claims in excess of $5,000 per accident for bodily injury and in excess of $1,500 per • CONFIDENCE —AUTO-PAK is underwritten by the Ex¬ accident for property damage. cess Insurance Company, Ltd., of London and Lloyd’s of Lon¬ Legal Defense—AUTO-PAK will pay all costs of legal defense incurred with the underwriter’s consent which don and administered by the James W. Barrett Company which aren’t payable by your local liability insurance company. for years have been specialists in providing unique international Bail Bonds—AUTO-PAK will pay up to $250 bail bond costs due to an accident or traffic law violation. insurance programs. PREMIUM—SECTION A: $61.00 per auto. ADDITIONAL PREMIUM—Driver under 25: If there • COMPREHENSIVE —AUTO-PAK provides the broadest will be one or more drivers under 25, increase Section A premium by 50% per auto. coverage available against the greater risks of overseas driving. SECTION B: Automobile physical damage insurance pays for damage to or theft of your car up to the value stated • CONVENIENCE—AUTO-PAK provides the simplicity in your application. The payment to you is subject to a deductible of five percent (5%) of the insured value, with of dealing with one experienced firm and is an easy-to-under- a minimum deductible of $100 and a maximum of $300. stand comprehensive package policy. Its coverage will go where- Thus, there is no need for you to buy local coverage for ever you travel and will automatically apply anywhere in the damage to your own auto. Claims Service—If your car is damaged, you may au¬ world except the United States and Canada. thorize the cost of repairs provided the estimated cost isn’t $100 more than the deductible. Substitute Transportation—You will be reimbursed for • COST—AUTO-PAK premiums are low because of the transportation costs accrued while your car is having dam¬ economies of the package insurance concept and volume sales. age repaired or being replaced. Marine Transportation Insurance—AUTO-PAK cover¬ age provides for this in two ways: (1) It’s included auto¬ • CLAIMS —AUTO-PAK claims are handled by the world’s matically for loss of or damage to your car while it is largest international personal insurance claims network with in transit by road, rail, inland waterways and certain short sea voyages and (2) Special coverage in Section B-l. representatives in more than 200 cities throughout the world, SECTION B-l: This section insures your car against “All including Eastern Europe. Risks” of physical damage or loss occurring while your car is being shipped by sea or air. PREMIUM—SECTION B and B-l: See premium table and zone list on insert card. SECTION C: You and your family are protected in case of death, dismemberment and total disability due to an JAMES W. BARRETT CO., INC. accident involving any auto, bus or truck whether the injured party was an occupant or a pedestrian. The total 1140 Connecticut Ave. payable is $105,000 in any one year with accidental death Washington, D.C. 20036 benefit up to $50,000. PREMIUM—SECTION C: $65.00. Why the Foreign Service likes our foreign service “You’d think I was buying an Imperial instead of a Dart.”

As far as we’re concerned, anybody who rates a diplomatic discount rates diplomatic treatment. So whether you’re ordering a Chrysler-built car for overseas delivery or you want it waiting when you get home, here’s what you’ll get: A good price (less U.S. excise tax). The Chrysler Corporation car you want, equipped the way you want it. Delivery where and when we promise it, barring a calamity. (Of course barring one is your job.) And finally, we’ll check back after you have the car to make sure everything is OK. We want to be all the help we can, and we’ll start when we get the coupon. !f^After all, next time maybe you will want ■MRan Imperial.

Chrysler Export Division P. O. Box 1688, Detroit, Michigan 48231 Please send information on these cars □ Imperial □ Chrysler □ □ Plymouth □ Valiant □ □ Charger □ Challenger C

Name

.Country.

EXPORT DIVISION CHRYSLER CORPORATION